Land Use Plan-1976

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LAND USE PLAN
TOWN OF SWANSBORO
MAY 24, 1976
PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
PLEASE DO NOT REMOVE

03
1:-
Prepared for .................................... Town of Swan,sboro
Linwood D. Williams Mayor
Commissioners:
Walter Bizzell,
Walter Keagy
Vernon Taylor
Edwin Wade
Town Clerk:
Mrs, Etta Lea Lamm
Assisted by ..............................•,.••.• Citizen's Advisory Committee:
Mary Wood
Thomas Pitman
Craig Lisk
John Licko
Kenneth Jorgenson
O.A. Guin
A.J. Blackmon
Technical Assistance Provided bar...,.,.•...••••• NC Dept., of Natural and
Economic Resources
George W. Little, Secretary
Division of Community Assistance
Robert W. Ewip$, Director
Local Planning. and Management
Services. Section
Billy Ray Hall,:_Chief.
Southeastern Field, Office(Wilmipgton)
John Hootopq_Chief. Planner
David Long*, Planner'.in Charge
M.eLba Thompson, Draftsperson
Karen Murphy;"..Secretary-Typist
Carol Benson,
Jackie Whitsetts "

A
.4
TABLE OF CONTENTS
INTRODUCTION...................................�......,....5
PRESENT CONDITIONS...............,..,................,.....13
Population and Economy
14
Existing Land Use
22
Existing Land Use.Map
24a
Current Plans, Policies, Regulations
29
PUBLIC PARTICIPATION......................................30
Overview
31
Exhibits
33
Issues, Goals, Objectives
41
CONSTRAINTS...............................................48
Land Potential
50
Physical Limitations
50
Fragile Areas
55
Areas with Resource Potential
56
Capacity of Community Facilities
58
ESTIMATED DEMAND..........................T•••••••••••••••6�
Population and Economy
66
Future Land Needs
69
Land Classification Map
72a
Community Facilities Demand
76
AREAS OF ENVIRONMENTAL CONCERN ............................80
Overview
81
Local IAEC's
82
Policies; Land Uses Permitted
84
APPENDIX....................................r.............91

moiio uo)jlNI ' I

The Town of Swansboro recently engaged in the process
of preparing this land use plan in an effort to promote and
encourage orderly growth within its boundaries. The land
use plan was mandated by The Coastal Area Management Act of
1974, which was conceived by the North Carolina General
Assembly as a means of protecting and preserving certain crit-
ical areas within a twenty -county coastal region of the state,
while at the same time making provisions for continued growth
and expansion. The primary intent of this land use plan,
however, is not the mere satisfaction of the requirements of
the Coastal Area Management Act, for a document alone would
accomplish very little. The purpose of the plan is to provide
the local government and the people of Swansboro with a guide
to future growth and development within their town, which best
suits the local situation and remains consistent with the Act's
requirements.
The land use plan is a key element in almost any planning
program, and is usually the first. It seeks to envision the
most appropriate. positioning and spacing of land uses based
upon past trends, present conditions, and the goals and object-
ives of the populace. It normally serves as a reference for
certain regulations and policies such as zoning ordinances,
subdivision regulations, floodway controls, etc., but actually
carries very little illegal" weight itself (in the strict sense
of the term.) It is, then, a foundation upon which future
6

land use decisions are built.
Public support is probably the most crucial factor in
creating a land use plan which functions efficiently and
reaches its purpose. If the people are alienated from the
planning program, and are not given the opportunity to ex-
press their goals and desires, the plan will almost certainly
be cast aside by the public. If, on the other hand, the
people are involved with and allowed to contribute to the
program, the chances are much greater that better understanding
and support of the plan will evolve. The utility of this plan
will to a large degree be dependent upon the further involve-
ment of the public in decisions related to land use; the people's
views and opinions should continue to be solicited. In this
manner, a well -tailored program of land use planning and
management will hopefully emerge.
7

'The coastal area of North Carolina is one of the most important regions
in the United States for food production, future expansion of commerce, industry
and recreation. To enable orderly growth and protection of important natural
resources of that area, the 1974 General Assembly passed the Coastal Area
Management Act.
The Coastal Area Management Act is a state law that asks local government
in 20 counties in Coastal North Carolina to prepare a blueprint for their
future growth and development. The county officials are asked to work closely
with local citizens in deciding what their goals are and in planning for their
best use.
Organization
State level administration and coordination will be handled by the Department
of Administration and Department of Natural and Economic Resources. The Act
creates two citizen agencies:
Coastal Resources Commission - The commission is a 15-member body
appointed by the Governor. All members are residents of the coast.
Twelve were chosen from among nominees made by counties and towns
in the coastal area. Three are appointed at the discretion of the
y Governor. The Commission is responsible for establishing planning
guidelines, approving land use plans and issuing permits for con-
struction when required.
Coastal Resources Advisory Council - The Council is a 45-member body
made up of locally appointed representatives from each coastal county,
plds representatives from six state government departments. It includes
a broad cross section of coastal interests. The Council advises the
Commission on those matters before the Commission, and assists local
governments.
Management Tools Created
There are three major land use management tools created by the bills:
Land use plans, areas of environmental concern and a permit system.
1. Land Use Plans - Each county will prepare a land use plan. The plans
will be based on the goals of -the people in the county, the resources
available in the county, and the most reasonable path for reaching
toward those goals with the resources available. After the plans are
adopted, use of the land must agree with the plans.
2. Areas of Environmental Concern - These areas and their boundaries
will be designated by the Coastal Resources Commission. We know
from experience to be cautious when using these areas. They include
marshlands, beaches, sand dunes, navigable waters, national and state
parks and areas of historical importance. Designation of an area as
one of environmental concern does not prohibit use of that area.
It is a warning sign to be careful.
11

3. Permit System - Any development within an area of environmental
concern must have a permit. The Act does not require permits
for development outside areas of environmental concern. The Act
requires the following projects in areas on environmental con-
cern to obtain a permit from the Coastal Resources Commission:
those projects currently needing state permits; those of greater
than 20 acres in size; those that involve drilling or excavating
natural resources on land or underwater; those which involve
construction of one or more structures having an area in excess
of 60,000 square feet will require a permit from the Coastal
Resources Commission. Local governments will establish regula-
tions for what types of developments in areas of environmental
concern will need permits from them."*
Extracted from Coastal Area Management: A New Look on the Horizon,
NCSU and USDA (Raleigh, NC, December, 1974).

As a part of the State of North Carolina's effort to protect and preserve
valuable resources within the coastal region, the Coastal Area Management Act
of 1974 was enacted by the North Carolina General Assembly. This legislation ,
designed to produce a management program which complies with the Federal require-
ments of the Coastal Zone Management Act of 1972, places a great deal of the
responsibility for planning and management with various units of local government.
Twenty coastal counties and qualifying municipalities within these counties
have been given the opportunity to plan for the future use of land within their
respective jurisdictions, and to make crucial decisions according to local values
which will affect their overall growth.
The Swansboro Land Use Plan is a response to State and Federal requests for
local input into the quest for protection and preservation of coastal resources.
It can and should, however, be more than just one small part of a larger regional
y scheme. The plan should be employed by the townspeople in the local decision-
making process as a reference tool for guiding future growth. The plan is not a
perfect document —as it ages, its utility will almost certainly be questioned and
the need for its updating will become apparent. In the absence of prior plans,
however, it should serve as a solid base for the construction of a comprehensive
local planning program.
This land use plan has been built around a few basic premises: Swansboro,
in its present state is a very attractive and inviting community endowed with
a rich, cultural and historical heritage and enhanced by a pleasant natural environ-
ment, but the forces of change have begun to exert themselves upon the Town and
if not controlled properly, could result in substantial irreversible damage to
many of the valuable features of the Town.
This statement should by no means be construed to imply a "no -growth" policy.
Instead, growth should be encouraged, but only in areas which are properly suited
for growth and which are consistent with the overall goals and objectives of the
Town.
10

The plan has been built around the issues, goals and objectives generated
known as public participation. The major
by Swansboro citizens during a process
portion of the public participation campaign was conducted during the latter
half of 1975...a public meeting was held during August; a newsletter was published
and distributed throughout town advising of the public meeting and the purpose of
the Coastal Area Management Act; a questionnaire was mailed to all known households
within Swansboro requesting citizens to document their opinions regarding the suture
of the Town; newspaper releases and radio broadcasts were made soliciting public
participation; and a Citizen's Advisory Committee was formed with the purpose of
providing guidance and input. The combined efforts of public participation resulted
oals and objectives found in the Land Use Plan.
in the statement of issue, g
A second major component of the plan has been the collection and analysis
of factual data such as population characteristics, maps of existing land use,
listings of current regulations and capacities of community facilities, indentifica-
_ etc. By integrating the factual data with issues,
tion of growth constraints,
goals, and objectives, a general picture of the future growth pattern of Swansboro
began to emerge.
it is expected that Swansboro will register a population increase
Basically,
of about 300 persons during the next decade. This will require additional land
to be devoted to residential use, as well as a slightly larger proportion of com-
mercial land than presently exists. The Town should encourage new growth Ito
locate as close as possible to areas which are presently developed in order to
reduce the high costs for municipal services normally associated with urban sprawl.
Most new construction will be inclined to locate in a strip fashion along N.C. 24,
but this should be discouraged if at all possible.
Finally, areas which have been determined to be particularly sensitive to
ed. These (Interim) Areas of Environmental
future development have been designat
11

Concern are areas which.if developed unwisely could result in serious damage to
the coastal environment. In Swansboro these areas include low and high tidal
marshland, historical places, estuarine and public trust waters, and coastal
flood plains. Particular attention should be paid to shielding these areas
from uncontrolled growth.
12

II. PRESENT CONDITIONS

A. Population and Economy
The 1970 United States Census listed the total population of the
Town of Swansboro at 1207 persons. Recent estimates have placed the
1975 population at approximately 1250 persons. The 1970 figure
represents an increase of 103, or 9.3% over the 1960 total. Within
this same time span, Onslow County grew by 24.7% and Swansboro
Township by 14.4%.
An examination of population data from 1930 through 1970 reveals
that growth was modest in Swansboro for three of the four decades,
but very rapid during one of these decades. This was the period from
1950 to 1960, when the town leaped from a total of 559 persons to 1104
(a gain of 97.5%). This expansion could have been due to a "spinoff
effect" of growth from Camp Lejeune, the nearby Marine base. During
the 1940's thousands of military personnel moved into the area to
staff the base, consequently, the populations of both Onslow County and
Swansboro Township (in which a large part of the base lies) grew
tremendously. Swansboro's rapid growth a decade later could probably
be linked to Camp Lejeunes "boom period", for some persons connected
with the base probably began to move into the Town as time progressed.
The sixties saw Swansboro return to a slower rate of growth, approximating
the pace experienced prior to the fifties. The Town's population appears
to be stable at this time, having grown only slightly since the 1970
enumeration.

Migration rates calculated from 1960 and 1970 census figures
reinforce the idea that Swansboro's population is stable. These
statistics are based on the assumption that a certain age group
in 1960 (e.g. 25-34) compared with itself ten years later (e.g. 35-44
in 1970) illustrate how many persons have moved into, or out of, the Town
during the decade. If less than 100% of the 1960 group are present in
1970, that particular group has generally been characterized by out-
100% are present, in -migration has been the
migration; if more than
trend. Of the seven age groups studied in Swansboro, only one, the
5-14 1960 cohort showed a major decline. The other six groups hovered
very near 100%, averaging about 99.5% remaining over the decade.
The
out -migration of the 5-14 group is to be expected, however,since children
of this age in 1960 have by 1970 begun to enroll in college, enlist in
the Armed Forces, or become employed outside of their hometown.
The median age of the Town of Swansboro (defined by the Census as
that point at which half of the population is older and half are younger)
was 29.6 years in 1970. This figure is about 3.1 years older than the
median age of the state as a whole, which was 26.5 years. In most
instances, this would seem to indicate that less young and more elderly
persons exist in the Town. This is not true in Swansboro's case, however,
for there are proportionately both more persons under 18 and less over 65
than in North Carolina. The answer appears to lie in the fact that there
are a large number of persons in the middle range in Swansboro. Roughly
35% of North Carolina's population consisted of persons aged 25 to 54,
while about 40% of the Town's total fell within this category.
15

Swansboro is somewhat uncharacteristic of the remainder of Onslow
County with regard to the distribution of males and females. Probably as
a result of the large military population, Onslow County is nearly two-
thirds male. In contrast, Swansboro more nearly resembles the national
average of half males and half females. It could be said that the in-
fluence of the military sector on population is weaker in the Town than
in the county as a whole.
The impact of seasonal population is also minimal. There are a
handful of non-resident property owners in the Town, but the vast majority
of the townspeople are year round inhabitants. Although Swansboro business
establishments profit from the summer season (largely as a result of
vacationers to nearby Carteret County beaches who patronize the Town's
merchants) the overall effect of seasonal population on the Town's acti-
vity patterns is not strongly felt.
The following tables list significant aspects of Swansboro's
population:
AGE DISTRIBUTION OF SWANSBORO - 1970
A e
Male
Female
Total
79
%
( 6.5%)
044
36
67
43
55
122
( 10.1%)
5-9
10-14
80
85
165
( 13.7%)
15-19
66
55
121
60
( 10.0%)
( 5.0%)
20-24
35
63
25
65
128
( 10.6%)
25-34
35-44
88
100
188
( 15.6%)
45-54
75
86
161
97
( 13.3%)
( 8.02)
55-64
48
49
36
65
( 5.4%)
65-74
29
4
17
21
( 1.7%)
75+
591
616
1207
(100.0%)
16

-
MIGRATION: 1960
to 1970
in 1960
Age in
Number
jf S- 970
Number Percent Remaining
165
163
10-14
24 15-
181
75
5-14
241
128
25-34
128
100
15-24
171
35-44
188
110
25-34
35-44
163
45-54
161
97
99
gp
45-54
108
55-64
65-74
65
97
55-64
67
POPULATION CHARACTERISTICS:
1970
Total
dale]Female
White
lack
Under 18
over 65
Med. e
Swansboro
1207
49% 51%
99%
0%
12
38.1%
14.6
6.9%
1.3
29.6
20.8
Swansboro Twp.
20800
85 15
38
87
84
15
32.2
2.3
1.5
Onslow
103126
62
51
77
22
34.6
8.1
2
North Carolina
5082059
49
'
POPULATION CHANGE 1930-1970
'
Onslow
Swansboro TWP
Swansboro
394
1930
1940
15,289
17,939
(+17.3%)
2106
2455 (+16.6%)
454
559
(+15.2%)
(+23.1%)
1950
42,047
(+134.0%)
11662 (+375.0%)
18176 (+55.9%)
1104
(+97.5%)
1960
82,706
(+96.7%)
(+24.7%)
20800 (+14.4%)
1207
(+9.3%)
1970
103,126
17

tThe problem of'hooking into the Swansboro wastewater treatment
or reasons for the shift of population to
facility is one of the maj
the outskirts of town, and consequently, a leveling off of the popula-
In order to adequately treat waste materials,
tion inside of Swansboro.
development has been forced by circumstances to locate in less -densely
residential units within
populated areas. Approximately three-four
Swansboro currently utilize septic tanks --this form of waste treatment
is not ideally compatible with urban development, however, and should not
be allowed to expand substantially once the new wastewater treatment
facility is in operation.
States Census of Housing listed 410 total residential
The 1970 Unit
ed
uclassified as year-round .dwellings.
nits in Swansboro, all of which are
the coast, most
This is in sharp contrast to many beach communities along only a few months
of which are dominated by seasonal units which are occupied o y
out of the year. This tends to reinforce the assumption that Swansboro is
community rather than a seasonally oriented
an established, year-round, viable
vacation community. The primary seasonal influences on the Town are more
economic than demographic in nature --the increased flow of traffic through the Town enroute to nearby beaches causes business to increase in Swansboro' s
commercial establishments.
18

Within the town limits of Swansboro, economic activity is centered
primarily around small retail trade establishments, commercial fishing, and
a textile firm. The major industry within the town is the Swansboro Garment
Company, which was established in 1967 and is concerned with the manufacture
of clothing. Approximately 250 persons are employed here, of whom about
90% are female. The Uniflite Company, which is located outside of the town
proper but within a few minutes driving distance, employs 150 persons (90%
male) in the manufacture of fiberglass yachts. This firm was established in
1972.
The central business district of Swansboro, which is focused near the
intersection of Main and Front Streets, is relatively small but diverse. A
small grocery store, pharmacy, restaurant, hardware store, clothing store,
barber shop, florist, and several antique shops and taverns are located here.
Nearby are a marina, real estate office, a bank, and the Town Hall and Post
Office. This commercial area was the first to develop in Swansboro, and
evidence of this fact is found in the aging buildings and narrow streets.
The lack of sufficient parking and space for expansion has forced new
commercial activity to locations on the fringes of the center of town. The
causeway lying in the White Oak River and North Carolina Highway 24 at
Hammocks Rd. are the two new nodes around which commercial development has
become clustered. The causeway caters primarily to marine -related trade,
such as marinas and seafood outlets. The Highway 24 - Hammocks Rd. area is
concerned with trade on a slightly larger scale than that found elsewhere in
Town, such as a large grocery stores tire company, and a proposed shopping
center. A large tract of land in the northwest corner of the intersection has
19

been rezoned to a commercial classification in order to accomodate the
proposed shopping facility. The exact size of the center and number of
businesses to be operated here is not known at this time, but it is the
intent of the developer to serve a region greater than Swansboro alone.
The shopping center perhaps best illustrates the direction in which
Swansboro's retail economy is moving.
a small-scale regional marketplace.
The Town is slowly evolving into
The growth of the beach communities
across Bogue Inlet in Carteret County (Emerald Isle, Cape Carteret,
Indian Beach, etc.) along with population scattered along the eastern
periphery of Camp.Lejuene have combined to create an additional demand for
goods and services in the area. Swansboro, by virtue of its central location,
appears to be the logical choice of some merchants to satisfy a portion of
this demand.
In the absence of detailed income and employment statistics for the
Town of Swansboro, figures for Onslow County are listed below:
OCCUPATION BY INDUSTRY OF EMPLOYED PERSONS (1969)
Construction
Manufacturing
Trans., comm.$ util., san.
Wholesale and Retail Trade
Financial, insurance, business, repair
Health, education, welfare, legal
and misc. professional services
Public administration ,
Other (agriculture, forestry, fisheries,
mines and personal services)
Onslow
NC
Urban NC
1173'
(6.8%)
6.7%
5
1738
(10.1%)
35.4%
30.8%
1169
(6.8%)
5.6%
6.1%
4610
(26.7%)
17.6%
20.3%
1103
(6.4%)
5.6;
7.0%
2649
(15.3%)
14.2%
17.7%
2333
(13.5%)
3.5%
4.0%
2484
(14.4%)
11.4%
8.2%
17259 (100%) 100% 100%
20

PERSONAL INCOME CHARACTERISTICS
(1969)
Ons_low Co.
NC
Urban NC
Median Family Income
$6471
$7491
$7774
$8872
$8588
$10043
Mean Family Income
$2205
$2492
$2877
Per Capita Income
Persons Below Poverty Level
21.7%
20.3%
17.1%
ragaies..gelow Poverty Level
19.1%
16.3%
13.1%
DISTRIBUTION
OF INCOME FOR FAMILIES
(1969)
Onslow
N.C.
-Less than $1,000
923
(4.5X)
3.4%
5.4
$1000
- 1999
1103
(5.3)
2000
- 2999
1540
(7.5)
5.7
3000
- 3999
1691
(8.2)
6.5
4000
- 4999
1899
(9.2)
7.2
5000
- 5999
2261
(11.0)
8.0
6000
- 6999
1924
(9.3)
7.8
7000
- 7999
1917
(9.3)
7.7
8000
- 8999
1430
(6.9)
7.
9000
- 9999
1106
(5.4)
6.9
10000
-11999
1821
(8.8)
11.7
12000
-14999
1593
(7.7)
10.6
15000
-24999
1150
(5.6)
9.0
25000
-49999
229
(1.1)
2.0
Greater Than $50,000
5.9(0.3)
0.5
20646
(100%)
100
Urban N. C.
2.7x
4.1
4.8
5.8
6.5
7.3
7.3
7.3
7.2
6.8
12.1
12.0
12.1
3.2
0.7
100X

B. Existing Land Use
There are 321 acres of land within the corporate limits of
Swansboro, approximately 44% of which are developed with
urban/built-up uses. The majority of urban/built-up land lies
south of Wise's Branch and has been divided into lots; about
16.6 acres of these lots are presently undeveloped. The area
north of Wise's Branch consists mainly of large, undivided tracts
of agricultural and forested land, with the exception of a
housing subdivision and a corridor of commercial development.
Swansboro is a relatively small, quiet town, and as a rule,
the various land uses are well -separated spatially. With the
possible exception of a stretch of "strip development" along
NC Hwy. 24, commercial and residential districts exist in
harmony. Business is concentrated in the central business.
district and in two outlying commercial areas, while residential
areas occupy a majority of the urban/built-up land. There are but
a few commercial activities interspersed through residential areas,
and the only industry in town, Swansboro Garment, is well -isolated.
The occurrence of hasty strip development along NC 24 appears
to be the most significant land -use problem area at this time.
Largely as a result of the lack of construction space elsewhere in
town, most new development is locating along this main traffic artery.
22

The highway is now in the process of being expanded from two to
four lanes in order to accomodate increased summer traffic. If
indiscriminate development is allowed to line the sides of the
road, its primary function as a carrier of traffic could be
seriously impaired. It is only natural for a'merchant to wish
to locate his business along a busy highway in order to reap
profits as rapidly as possible. Too often, however, the long
range costs to both the merchant and the community are not given
due consideration. A more compacted, block -type pattern of
development usually decreases the likelihood of conflicting
land -use, simply by reducing the number of possible interfaces.
Strip development often results in urban sprawl, which is
normally accompanied by more expensive public services and overall
inefficiency of the urban system. The more businesses which
locate along the highway, for example, higher is the likelihood
that traffic congestion will occur. A problem of.this nature could
be ameliorated by controlling access points, such as the construction
of access roads to serve the businesses.
Perhaps the most often -discussed specific land -use problem
in Swausboro at this time is the proposed shopping center. This
facility, which is to occupy the northwest corner: of the NC 24 &
Hammocks Rd intersection has become a major source of land -use
23

controversy during the past few months. The building site
borders very close to the Swansboro Heights neighborhood, and
many homeowners in the area are concerned that their property
values will be lowered by the center's presence.
Also, plans have recently been announced to build a fifty
home subdivision slightly to the west of Swansboro Heights, just
outside of the Town's Limits. The Town of Swansboro will
(barring any unforeseen circumstances) be requested to annex
this area following installation of streets and utilities by
the owner. Both the shopping center and new subdivision will
rely on city water, but will utilize septic tanks for wastewater
disposal pending the completion of a new sewage treatment plant.
The remaining area of land -use change exists in the northernmost
section of Town, where a new municipal recreation complex is due
to be developed within the near future.
24

EXISTING _LAND USE
Residential
Comercial
T. Industrial
G Govt.-Institutional
._ Trans., Comm., Util.
Recreational
Undeveloped
24a
uu,scwNr WI d
♦cWw uKn

The following list briefly outlines characteristics of existing land use
in Swansboro:
RESIDENTIAL
The predominant use of land in Swansboro is for residences,
the majority of which are single family houses. A total of
103.46 acres are currently used for residential purposes.
Proportionately, this accounts for about one-third of the total
of all land in Town. The 1970 U.S. Census counted 410 housing
units in Swansboro; if this figure is accurate, the average lot
size equals approximately one quarter of an acre per housing
unit.
COMMERCIAL
Retail trade and services presently comprise a total of 17.31
acres. Most of this land occurs in the central business district
and along NC 24, and also includes the causeway in the White Oak
River, which consists almost entirely of commercial development.
The construction of the new shopping center should drastically.
increase the proportion of land (now 5.4%) devoted to commercial
use.
INDUSTRIAL
The Swansboro Garment Company, which represents all industrial
development in the Town, is situated on a lot which covers 1.83
acres, or less than 1% of the total land area.
25

GOVERNMENT -INSTITUTIONAL
Government and institutional land in Swansboro consists
primarily of churches, municipal land and buildings, the U.S..
Post Office, an elementary school and the Swansboro Cemetery.
Roughly seventeen acres (5.3%) are accounted for under this
classification.
TRANSPORTATION, COMMUNICATION, UTILITIES
The major components of this category are roads and
water -sewer facilities. There are 30.40 acres devoted to this
use (9.5% of total) 29.22 acres of which are included in the road
and street network. Road rights -of -way were utilized to compute
this figure, so the widening of NC 24 should not increase this
total appreciably.
CULTURAL ENTERTAINMENT AND RECREATION
The only know existing use of this type is a tract of
public beach area bordering the White Oak River near the inter-
section of Spring St. and Water St. This is not a developed
recreation area, but a section of open space. The proposed new
recreation area should cause the proportion of recreational
land which is now about one -fifth of one percent, to rise sharply.
AGRICULTURE/FORESTLAND/WATER
Agricultural land totals 56.48 acres (17.6%) and forested
land 68.32 acres (21.2%) within the Town's Limits. This represents
26

a combined total of 38.8X9 which will probably begin to dwindle as
new urban/built-up land begins to use this land for development.
An accurate count of water area.is somewhat difficult to
enumerate due to the fact that the corporate limits extend
indefinitely into the White Oak River. Until a reliable means of
calculating this area can be found, this figure will be omitted,
WETLAND
Approximately 8.30 acres of marshland exist to the east of
Town, situated directly behind the Swansboro Elementary School.
This area consists primarily of low tidal marsh grass and will most
certainly be designated an Area of Environmental Concern by the
Coastal Resources Commission. This, of course, means that certain
stringent development controls will be placed on its use, and the
marshland will probably undergo no significant changes in land -use
in the near future.
27

EXISTING LAND USE ACREAGES
Acreage
Percent of Total
URBAN AND BUILT-UP
Residential
103.46 acres
32.3%
Commercial
17.31
5.4
Industrial
1.83
0.6
Transportation, Comm., Util.
30.40
9.5
Government and Institutional
16.99
5.3
Cultural, Entert., Rec.
.68
Q•2
Undeveloped Land
16.61
5.2
AGRICULTURE
56.48
11.6
FORESTLAND
68.32
21.3
WATER
NA
NA
WETLAND
8.30
2.6
BARREN
0.00
0.0
320.38 acres
100.0%

C. Current Plans, Policies, and Regulations
Swansboro currently enforces a Zoning Ordinance adopted in 1968. A
building inspector is authorized to enforce the provisions of the ordinance
and appeals are provided for through the Zoning Board of Adjustment. kTne
ganized and reestablished, is now responsible for
Planning Board recently reor
appeals). The Zoning Ordinance is perhaps the most effective tool now operating
to regulate development, but is felt to be som6what outdated and in need of
revision to conform with recent trends, forecasts, regulations, etc.
The Town also enforces the North Carolina Residential Building Code.
The Onslow County Health Department is responsible for the issuance of permits
for nondischarging waste disposal systems of less than 3,000 GPD. Also enforced
are the provisions of the National Flood Insurance Program; Swansboro is
enrolled in the emergency stage of this program and requires building permits
for all proposed construction within the Town. A building Inspector issues
building permits and also serves as an enforcement officer for the Zoning
Ordinance.
The Town of Swansboro has undertaken very few planningefforts in the past
which have implications for future land use. The 201 Facilities Plan and the
the Department of Transportation are perhaps the
study of N.C. 24 prepared by
only previous plans which will affect land use in Swansboro, and neither of
these predict drastic alterations of land use as a result of their proposals.
Preliminary plans have been developed for the clearing of a 17.5 acre recrea-
tion area in the northwest section of Town.
29

III. PUBLIC PARTICIPATION
oul

overview of Public Participation
As a prerequisite for approval of a Coastal Area Management Act
land use plan, the Coastal Resources Commission has urged each local-
ity preparing plans to undertake an extensive program of public parti-
cipation. Those involved in adopting the Coastal Area Management Act
feel that the most effective plans will be those which are consistent
with the goals and desires of the locality and which are molded
specifically to suit local needs.
Public participation has been broken into two subsections: Educa-
tion, (the process of informing the public) and Involvement (the process
of absorbing the people into the planning program), The Coastal
Resources Commission has published a booklet entitled, Handbook on Public
Participation, which contains recommendations concerning the most
effective methods to employ when seeking widespread participation of
the public in the planning program. In addition, each locality's public
participation program is monitored periodically by the staff of the
Coastal Resources Commission to insure that certain standards are being
met.
The accompanying Public Participation Summary explains the specific
methods and mediums which have been utilized in the Town of Swansboro
for securing public participation. Simply stated, the goal of the program
in Swansboro-is to extract some form of commentary regarding the future
state of the town, from each citizen and public agency and to fuse these
comments into a statement of local land use issues, goals, and objectives.
In the absence of participation by each and every citizen of the
town, the awareness of the opportunity to participate on the part of each
and every citizen became a sub -goal of the program. As of this writing,
everyone in the town should be cognizant of the fact that his/her opinions
regarding land use planning are both welcomed and encouraged, and he/she
should have been afforded the proper mediums to express those opinions.
When the results of various involvement efforts become available
(e.g., citizen opinion surveys, group sessions, and public Citizen's Ad-
visory Committee, and•Town Council meetings) they are tabulated, analyzed,
and filed. The statement of local land use issues, goals, and objectives
which follows is the end product of public participation as of this date,
and has been reviewed and endorsed by both the Citizen's Advisory Committee
and the Town Council.
31

in the process of developing issues, goals, and objectives, it became
thought regarding growth and develop
obvious that several different camps of
meet exist in Swansboro.
This is to be expected in most communities. The
task the Town faces in developing issues, goals, and objectives is v reach
the common ground which appeals to the greatest number of people involved.
It
is very difficult to assign labels to the various ideological groups...it
group which favors very
could be said that atone end of the continuum is the g p its resent state.
little if any growth and would rather see the Town remain in P
At the opposite
end are those who feel that the Town could benefit from the
of citizens feel a need for compromise
stimulation of growth. The majority
somewhere in between. plan are neither an
The issues, goals, and objectives set forward in this
the "average citizen" nor are they closed
attempt to descr ibe.the feelings of
roduct of an effort to equally weigh all
to
revision. Rather, they are the p
_ comments received during the public participation process and to weld them into
ent and citizens
a workable whole. The emphasis is on providing the local governm
guide to public opinion, carefully considering all reasonable
with a reference g roduc
and available alt will result
ternatives. It is hoped that the finished p
in the greatest benefit possible to the greatest number of citizens.
32

PUBLIC PAR•TfuPATION SIJ�L`L4RY
1. Evaluation of your Public Participation Program
A. Does your land use planning depend on the local planner for direction
lvement of
ts as
or does citizen invoci ation process. cCourses ofactionaare
advisor in guiding the public parti p which has been dele-
suggested to the Citizen's Advisory commtizen involvement.)
the responsibility of directing
Uni ue features of your public participation program that night be
B. q
useful to other communities.
ts role
The formation of the citizen's Advisory
hasCommitte p ovedes very helpful accepted i in stream -
with interest and responsibil y .
lining the public participation process
C. How did you develop your Public Participation Program? the CAC was
Initially, the planner worked with the Town Council. Later,-the
to
purposes of a) assisting in providing
formed with the dual purppolicies*
the citizens and b) assisting the Town Council in formulating
objectives and standaous•public involvement a success? Please explain.
D. Do you consider y strong in some areas...the questionnaire return'
Citizen response -has been very poor attend -
rate, for example, was 30%. The we area thus far has been the
ance at public meeting. It is felt that a very good cross-section of citizen
n gathered as of this date, but it could be improved.
opinion has bee
rticipation progra names,
E. List some key citizens in your public pa
phone numbers. Swansboro, NC 28584
St
200 5th . Mary Wood, Box 843
A. J. Blackmon, Thomas Pitman, 14 Hammock Rd.
0. A. Guin, 3 First St. Craig M. Lisk, 40 Sabiston Dr.
Kenneth Jorgenson, Box 627
John D. Licko, Box 785
2. Steps taken to inform local citizens about the CA'm program
A and
ounces
ews a er-Onslow Herald published informaibution ofive icle on newsletterM(reachesnA. 90% Of
meeting dates has also helped with as cover households)
households); Jacksonville Daily News has covered most meetings (reaches 65 0
B. Radio -meeting dates announced on WJNC, a station which
covers Swansboro area as well as most of Onslow County
C. Television -no television coverage to date
D. Bulletins, Leaflets, Newsletters -A new co.ery iou information on 700
and its relationship to Swansboro was distributed to ey
derald)ery household in town (700
total distributed as a supplement to the Person
Other Methods -Posters, giving the name and address
E. of a localetCn�3have been
from whom CAMA literature can be obtained (brochures, guidelines,
displayed in several'store windows around town.
33

pt,oJ.IC PARUCIPATION SUMMARY -- Page 2
a. Opportunities for citizens to provide input into land use plannLn3
itizen
A. Personal interviews -The Nombnal rfromTacgroupeofape people) has cbeen employed 6
ment which aids in obtaining conensus
successfully at CAC meetings.
B. Surveys _Citizen Opinion Surveys were mailed to every. known. household in town.'
of the.•346 distributed; a total
ave been eturned
has been htabulatedrand will•behfusedextensively.
tained in the.survey response
C. Workshops and public neett
advertised. Citizens were urgedo attend cineAugusteting held heavily
order to voice their opinions but
attendance was very low-
D. Other Opportunities
4. Quality and quantity of feedback from the public
percentage of community•provididg input -Roughly 35% of all house-
A-, Appr
oximate
ersons) are providing good, solid, valuable input.
holds (perhaps 20$ of all P.
B. Are all ethnic groups and social strata involved? Yes. As of this date, everyc
in toym.should be aware.of his/her opportunity to participate. and everyone should
now that his/her opinions are wanted and needed.
kproperty
G.`'Are non-residents and non -voters involved? Some beinreaskedtwtocontripbuteto
have been contacted. Both voters and non -voters ar g
the planning program.
D. Future participation activities planned -A second cpublic oparticipation will
p5anuedr as well as-additional:OAQ end°p bliccmeetings:
continue to be 'encouraged throughout the; planning.period.
E. How are you reflecting the responses. you are receiving into the land use
plans? As information becomes available'It is .collected and analyzed. The
results of the various invol.ement-techi ques (e.g. surveys, interviews, group
sessions, etc.) will then be fused into a statement of local laravalebp°YtheiTown
objectives, and standards. This statement (contingent upon app
Council) will then be incorporated into the land'use plan.
At this point, a well -discernable pattern of opinion is emerging from the
people. A draft statement of policies, objectives and standards should be complete
within the next six (6) weeks.
Person Filing Report
(tame of Community Town of Swansboro -
Date of Report August 27. 1975 '
34

CITIZH4 OI'1N1(.N SURVLY
FOR THE
TWN OF SWANSBORO
Swansboro is preparing a land use plan in order to comply with the
requirmuents of the Coastal Area Management Act of 1974. One of the most
important aspects of land use planning is that the plan adequately reflect
citizen opinions and attitudes toward the use of the community's land --both
public and private. The following survey is intended to give each citizen
the opportunity to express his opinion on .land use problems and issues. Your
cooperation in answering the following questions will be appreciated.
Swansboro Town Hall
Swansboro, North Carolina 78584
1. Are you a permanent resident of Swansboro? (98) yes• ( 3 ) no
2. How long have you lived in Swansboro?
23.1 Years
3. What is your age? 51.0
4. Do you live in at (98) single-family house
( ) duplex
( 1) mobile home
( 2) apartment
( ) condominium
S. During the next five years would you like to see the population of
Swansboro
(27 ) increase greatly
(39) increase slightly
( 1) decrease greatly
( 7) decrease slightly
(27) stay the same
6. which of the following types of development would you like to see more or
less of in Swansboro? r
More Less
single-family housing
(55)
(5 )
apartments
( 19)
( 8 )
(28)
(34)
condominiums
( 4 )
(53)
mobile homes
a8 )
(12)
commercial
a4 )'
(18)
Industrial
(43 )
(6 )
public open space
public recreation facilities
(76)
(3 )
(playgrounds and parks)
other (specify)
—
7. For what reasons did you chose to live in Swansboro?
(26) born here
(30) close to work
(58) pleasant surroundings
(20) associated with Marine Base
(20) reasonably priced land and house
(24) close to family and friends
(32) retirement
other
11.0
M

S. In which of the following areas do you feel more public funds should
be spent?
More
Less
water and sever
(37 )
(3 )
garbage collection
41 )
( 6 )
- fire and police protection
(44)
( 3)
schools
(56 )
( 4 )
parks and recreational
((a)
(3 )
local planning
(27 )
( ? )
roadsor public transit
(29)
(10)
environmental protection
(50)
( 3 )
Industrial development
(39)
(15)
town management
(28 )
( 3 )
other
_
9. What do you like most about 'Swansboro?
Most prevalent responses: I. Quietnessi..smajl-tuwn atmosphere .
II. Friendliness
III. Acceps_tq water -and natural surroundings
10. What do you like least about Swansboro'!
I. Not anpugh shppping�facilities
II. Lack of opportunities for young people
III. Parking problems
11. Do you think development should be permitted in the following areas --
Never
Seldom
Frequently
Airways
lands near inlets
(50)
( 25)
(4 )
( b)
beaches
(35)
( 22)
(12)
(13)
marshes
(61)
( 7 )
(7 )
(' 5)
dunes
(65)
(.7 )
(1 )
( 6)
inland waterway
(23)
( 15)
(24)
0 1)
other
12. Is there any particular area or
type of area
within the Town limits or
within one mile of the
Town limits
that you
feel is unique or
special and
should be preserved or
protected
-in its present
state, or form?
13. Please use the following space to make any additional concnents you would like.
Thank you for your help and cooperation. This questionnaire should be
returned to:
:wzntooro Town Hall
Sw;nr•uuro, North Carolina 28584
36

SWANSBORO CITIZENS p.DVISORY COMMITTEE
A Brief Description of Purpose and Function
The Coastal Area Management Act was passed by the North Carolina General
Assembly in 1914 "to enable the orderly growth and velcpmentction of of l�.nd useural plansebyurces
in the coastal area of North Carolina. The dev p
st step
each of the twenty counties in Coaboro North
by virtueCarolina
will
statusbe hasfaxqualifiedn
this direction. The Town of Swans ortunity to produce its own land use plan,
municipality, has been given the opP plan. This will
which will later be integrated into the overall ratheOnslor County
give the town the chance to moldits
ow Commission,haxfifteen than emember ccme ugroup
to
outside control. ture
The Coastal Resources
r the Coastal Area Management process, has
appointed by the Governor to administeof
also asked each local planning unite to
willpadeqan uatelyixeflectrthe goalsand
The participation so that each land use p Committee has
desires of the local citizen ding this public Citizensnsboro
public input into the town's land use
been formed to assist P
plan.
A good public participation program consists of two phases: education and
involvement. Before a citizen can becombeYnooinhmustebeuactively solicitedfirst be informed;
olicit aed;
for the citizen to become involved, his/ Pionse done
Education and involvement form the
cornerstones
learn aswmuchork tasbpoasibleyabout
Citizens Advisory committee. We should try to
the goals, desires and values of the townspeople, for the information which we
gather will eventually be used to formulate a statement of local land use issues,
goals, and objectives.
le of Swansboro, the CAC should be able to a) distri
When educating the peo p
bute information to the public, b) act as a contact between tc) assistpr
stheapro-
zens groups$ and
ting
planner and the interested citizens pub1 is andneighborhoodmeetings. These are
fessional planner in conduc
just a few examples, and the list should by no means be limited. It should be
noted that the imaginations of committee members will be relied upon heavily to
reach as many citizens as possible.
During the involvement phase, the results of the citizen opinion surveys
and information gathered from citizens at various meetings will besanalyzed
and will provide a basis for the statement of local land and objectives. At our September meeting (tentatively), this statement will be
e Council
it
drafted and given to the Town Council to act upon it.will hundoubtedly ebes approved
reflects
ty of the
le
the sentiments incorporatedfintoatheiSwansboro Land sUsep
an Plan.
37

SWANSBORO NEWSLETTER
. All Citizens of the Town of Swansboro are urged to attend a Public Meeting on
Thursday, August 14, 1975, at 8:00 PM in the
Swansboro
SwansborowTon
illHall.
discussed. Please
Area Management Act and land use planning for
come and take part.
The Town of Swansboro is in the process of developing a land -use plan to meet
the initial requirements of the Coastal Area Management Act of 1974. This legis-
lation, passed last year by the North Carolina General Assembly, requests that
"local governments in twenty counties in coastal North Carolina prepare a blue-,
print for their future growth and development". The land -use plan is the first
phase of this blueprint, and must be completed by May 21, 1976.
The Coastal Resources Commission, a fifteen member group appointed by the
Governor to supervise the planning process, feels that the best way to make a
land -use plan work for the Town of Swansboro is for the people of Swansboro. to
have a voice in preparing the plan. First, the citizens must become acquainted
with the Coastal Area Management Act; then, they should become actively involved.
No single person or agency will be allowed to prepare a land use plan for the
Town of Swansboro. Each and every citizen, however, shall be given the oppor-
tunity (and responsibility) to express his/her opinions and viewpoints concerning
land use within the town. One method of obtaining public participation is the
"Citizen Opinion Survey", a questionnaire which has been mailed to each household
in Swansboro. Public Meetings and neighborhood group discussions should be held
in the future in an effort to reach as many citizens as possible. A filmstrip
program is available for church, civic, fraternal, etc., groups who would like
to know more about Coastal Area Management and land -use planning.
It is sincerely hoped that when the land -use plan is submitted to the Coastal
Resources Commission for approval in May of next year, each and every citizen
of the Town of Swansboro will have taken some part in the plan's development.
If the plan is to realistically reflect the public's ideas and attitudes, the
people must become involved.
If you would like a questionnaire or more information on the Coastal Area
Management Act, please drop by the Swansboro Town Hall. If you have received
a questionnaire but have not yet completed it, please take a few minutes and do
so. Your help and co-operation will be greatly appreciated.' Thank you.
38

PUBLIC NOTICS
Notice is hereby given that the Town
of hd a public
hearing on Maay 6,11976 if 7:30 PM In
the Swanaboro Town Hall. The Pur-
PoOe or the hearing Is to receive
comments and recommend Ilona
Swanbore' ic eland UseePlan and the
Land Use Plan Synopsis, as required
by the Coastal Area Management Ad
d 1974. Copies of the Land Use Plan
and Synopsis are available for public
inspection at the Town Hall in
Swansbom between fine hours of 8:30
AM and 4:70 PM MWTOaY through
Friday. Comments and ► OM- 1
nwIclations received will be Con-
sidered for Incorporation Into the Plan
prior to adoption.
Apra 7.". May L 1976
NORTH CAROLINA
ONSLOW COUNTY
AFFIDAVIT OF PUBLICATIQN
Before ilia undersigned, c Notary Public of sold County and Store,
duly commissioned, gVolified, and authorized by law to administer oaths,
-----------
personally appeared - ----- -------------- -'--
� �a.►t%, who being
first duly sworn, deposes and says: that he (she) Is -----------------
-- --• _ IOWNr\. /AA U91.PUBLISHED.
70 MAKE OTHER
{ AFO OFFICER
Do eeFAOVRL
RUTHOA -
of THE DAILY NEWS, engaged in the publication. of a newspaper known
as THE DAILY NEWS, published, issued, and entered as second class
mall iq the City of Jocksonvlllo, in sgid Countyand State;
that he (she)
is authorized to make this affidavit and sworn statement; that the notice
or other legal advertisement, a true copy of whlgh is attached hereto,
was published in THE DAILY 9NEWS On the following detest
-- -_ ---F- -1-1�- --- -- - �-- / f_174-------
----------------
---------------------
_---------------------
----------------------------- -------------•------
and that the said newspaper in which such notice, paper, document, or
legal advertisement was published was, at the time of each and every
such publication, a newspaper meeting all of the requirements and
qualifications of Section 1.e within themooningof
fthe rStatutes
a
anSec(ion 1.697 of
and was a qualified newipgp
PaP
the General Statutes North Carolina.'
arolina
This ------
_--� f9�Y
/`...'.. day --- _t
/-�
--------------------
•.----- 1616MATURC OF /SASOa HAZING AFFIDAVIT)
Cloy of
sworn to and sugscribed before me, this -----=---
WaUO
1,97
My Commission expires: _ _ __ - • - -

(to
NORTH CAROLINA
NOTicfl or
PUBLIC HEARllfe
ONSLOW COUNTY
Notice Is hereby given, is ac-
cordance with the provlslons of the
Coastal Area Management Ad of 1974
that the Town Councils of the Towns at
Holly fridge, Richlands, and Swan-
AFFIDAVIT OF PUBLICATION
sloro and the commission of she
County of Onslow will hold a Joint city
county public hearing to receive
comn,ents and retommendaflOna
Before the undersigned, a Notary Public of said County and State,
from public and private parties
duly commissioned, qualified, and authorized by law to administer oaths,
regarding Land Use Plans and
Synopses.
The hearing will be held In the
Superior the 976 at
personally oPpeor�d ---- - - ---•-- .--------
vi Courthouse an May 13.11
7:Sg pm. Copies of the Land Use
Plans synopses
'
andcw are available
forinspecilonoftheofficeoftheCierk
----------______ _____-, Wf10 being
OF Court In the Courthouse between the
hoursdays. fs: mmentndS:nd receeh-
days. Comments and recom•
first dui sworn, de o es and says; that he (she) is __-_-_______
Y P ; Y � -----
mendallons received will be con-
sidered for Incorporation Into the
,
Plans prior to adoption.
.April U, May W. 1116 .•
-----------------
IOWNSR. ►ARTMER. ►UNLISMER• OR OTM(R OFFICER 02 IMPLOW99
AUTMORIA90 TO MARE TNI{ AFFIDAVIT)
of THE DAILY NEWS, engaged in the publication of a newspaper known
as THE DAILY NEWS_ published, issued, and entered as second class
mail in the City of Jacksonville, In said County and State; that he (she)
is authorized to make this affidavit and sworn statement; that the notice
or other legal advertisement, a true copy of which is attached hereto,
was published In THE DAILY NEWS an the following dates.
r­� ---- ---- OL -
-----------------------------------------------------------------
'
-------------•---7 -------------------------------------------
and that the said newspaper in which such notice, paper, document, or
legal advertisement was published was, at the time of each and every
such publication, a newspaper meeting all of the requiriements and
qualifications of Section 1.597 of the General Statutes of North Carolina
and was a qualified newspaper within the meaning of Section 1-597 of
the General Statutes of North Carolina.
tic
to //
This �'�_-. day ---�-�--- 1 ;----------, 19_�}�
----
-!-------------t ---- --------
ISIGNATYRa Of PERSON MAKING AFFIDAVIT)
�V
�d
Sw rrn tto� and subscribed before this -__-_ ---_ day of
//me;
19-i�
�C
NOTARY IUaUc/ %
My Commission expires:
40

Issues, Coals. and Objectives
A) If present population and economic trends continue, the Town of Swansboro will
soon begin to find its supply of vacant land (suitable for development) nearly
depleted. The vast majority of undeveloped land within the Town's limits presently
occurs in large tracts under single ownership. This land, which lies generally in
the northwest section of Town, could conceivably accommodate Swansboro's expected
ten-year growth, provided, of course, that landowners would consent to development.
of their acreage. As a precautionary measure, the Town should begin to investigate
the possibilities of expanding its present limits and jurisdiction. A well -conceived
and equitable system of planned and controlled growth should, in the long-term, be
of both individual and collective benefit to the citizens of Swansboro and the
surrounding area. The results of a sound program in this direction might include:
protection of investments in property, provision of municipal services (before the
"need" becomes an "emergency"); improvement of the efficiency of the Town's activity
systems, and enhancement of the physical appearance of the Town. This listing is
by no means complete, in fact, it is but a beginning toward realizing the greater
long-range benefits of such a program.
GOAL - Promote the controlled and orderly growth of Swansboro by creating a program
capable of planning and managing the Town's land.
OBJECTIVES -
1) Accommodate new development, where feasible, in vacant lands presently
located within the Town's limits; encourage development unable to locate within the
Town's limits in adjacent areas judged suitable for annexation.
2) Plan for extension of water, sewer and related city services to areas likely
to experience development within the near future; in some cases, outlying areas should
request annexation as a prerequisite for extension of city services, with annexation
being judged on a cost -benefit basis to the Town.
3) Study and consider the enactment of a one mile extraterritorial jurisdiction
ordinance, which would give the Town of Swansboro the authority to plan and regulate
development in areas adjacent to the present Town's limits.
41

4) Enforce present development regulations (i.e. Building Inspection System,
Zoning Ordinance, and National Flood Insurance Program) while recognizing the need
to expand and update these regulations where necessary.
5) Consider enactment of an ordinance to regulate the subdivision of land in
order to insure that certain design standards and criteria are met (e.g. street
layout, drainage, etc.).
6) Continue to support and encourage citizen input and participation into the
Town's planning and zoning decisions.
7) Pursue the funding and construction of a new sewage treatment plant under
the 201 facilities program which meets standards of supervisory State and Federal
agencies.
42

B) The Swansboro community recognizes that a sound economic structure provides the
lifeline and support for the Town's existence as a deliverer of municipal services.
Not only is a strong tax base a necessity, in addition, employment must be available
for the citizens of the Town. These, of course, are very basic and elementary con-
siderations; their articulation, however, can serve as a guide for decisions which
will inevitably be made in the future concerning the Town's growth.. A healthy economic
structure will continue to enable the Town to meet its needs.as well as those of its
inhabitants.
As new development in the commercial and industrial section is proposed, it should
be evaluated with due regard to the following economic goals and objectives;
GOAL - Stimulate desirable economic development within Swansboro while recognizing
the deleterious effects which could result from developing too rapidly and/or beyond
the Town's capacities.
OBJECTIVES -
1) Encourage a wide variety of retail trade as a means of achieving economic
self-sufficiency.
2) Regulate location of commercial activities in order to prevent conflicting
utilization of land.
3) Strengthen the economic vitality of the central business district in order
to reduce deterioration; explore for methods of comfortably attracting new customers.
4) Evaluate the potential of city services to accommodate new commercial
development, particularly industry, before annexing an area.
5) Provide guidance for commercial endeavors which may wish to locate in
Swansboro; development should be encouraged only if these industries are deemed
compatible with Swansboro's overall growth policy (e.g..industries should, be small
scale, with low pollution/noise levels).
6) Improve transportation and parking network (should it become necessary) in
order to facilitate adequate ingress and egress within commercial activity centers.

C) The friendliness, tranquility, cleanliness, and pleasant natural environment
of Swansboro are virtues which its citizens highly value. These features are
somewhat unique in that they are very difficult to support with statistics, maps,
records, etc. Because it is difficult to assess the benefits which a community
derives from an aesthetically pleasing environment, decisions are often made in a
town which give these items only secondary consideration. it is the feeling of the
people of Swansboro that decisions regarding the Town's future should give primary
consideration to the maintenance and improvement of these very important attributes,
drawing upon the citizens' ideas and values as a standard for measurement.
GOAL - Maintain and improve the attractiveness of the cultural, historical, and
natural environments.
OBJECTIVES -
1) Consider appointment of a Community Appearance Commission to supervise
beautification.
2) Preserve the cultural and historical atmosphere of the downtown area by
maintaining harmony in the architectural styles both now and in the future; repair
and/or restore deteriorating structures.
3) Encourage the preservation of natural features .(e.g. vegetation, contour)
as new development occurs.
4) Develop a recreational area which serves a wide range of age groups.
5) Continue to operate the branch library.
6) Encourage environmental education in schools, civic groups, etc.
7) Preserve significant historical buildings and sites.
8) Encourage the beautification of the waterfront area while making a concerted
effort to preserve its unique maritime atmosphere.
44

D) As a rule, the quality of housing in Swansboro is exceptionally good. Very
few substandard units (perhaps 8-10) exist within the Town's limits, and there
is no district which is severely blighted. In recent years, however, housing has
been in short supply in the Swansboro area. Virtually all housing units within
the Town are presently occupied, and if projected population increases hold true,
the Town will face a serious housing shortage in the future. Because there are so
few substandard units, it is not felt that there is a pressing need for low-cost
public housing at this time.
There is presently a good deal of concern for the Town's sewerage system. Due
to the inadequacy of the.Town's sewage treatment plant, a moratorium on large sewer
hookups has been placed into effect, and will continue until the present sewage
treatment plant has been replaced by a more efficient system. Currently, large scale
development must rely upon septic tanks for waste disposal. A 201 Facilities Plan
is currently being undertaken by the engineering fin of Henry Von Oesen and
Associates, and the findings of this study should be available in late 1975.
The Swansboro water system appears to be in good condition at this time. Peak
demand presently runs some 200,000 gallons below maximum capacity per day.
GOAL - Provide adequate and reliable housing and public services to the people
of Swansboro.
OBJECTIVES -
1) Protect the integrity of residential districts by enforcing the Zoning'
Ordinance.
2) Discourage scattered, low density, housing development which tends to
produce urban sprawl.
3) Maintain an active Building Inspection System.
4) Discourage.residential development in flood prone areas, enforce regulations
of the National Flood Insurance Program.
5) Discourage excess residential development until new sewer system (tentatively
• to be funded by 201 Facilities Programs) goes into operation.
E

7) Maintain good police and fire protection; upgrade fire insurance rating
if possible.
8) Provide sufficient facilities and means for disposal of solid waste material.
46

$) Productive natural resources within Swansboro consist primarily of marine
.related resources, including marshland and estuarine waters. These areas are of
extreme importance to the entire complex of marine life, for they provide an ideal
habitat for certain species of marine animals. Shrimp, for example, utilize the
estuaries for breeding purposes. Destruction or serious alteration of marshland
and estuaries could have severe consequences on the life -bearing capacities of the
ocean as a whole. Even though these areas occupy very little of the total area of
Swansboro, the influence of the Town upon the surrounding region (such as urban
water runoff) warrants concern, for pollution knows few political bounds. It is
essential that the marshes and estuarine waters be protected at all times from
unnecessary destruction or intrusion. The Town of Swansboro can play a crucial
role in making decisions which could affect these vital areas. Conservation of
surface and groundwater supplies, soils, air resources, woodlands, and productive
agricultural areas should also be given close attention.
GOAL - Conservee the natural resources of the Swansboro,area.
OBJECTIVES -
1) Abide by the regulations governing Areas of Environmental Concern which
are to be issued by the Coastal Resources Commission.
2) Qualify as a permit letting agency under the Coastal Area Management Act.
3) Keep informed on environmental monitoring projects conducted in the area
(such as pollution levels of air and water, and saltwater intrusion into groundwater
supplies).
4) Encourage the education of the public in the field of conservation and
protection of the natural environment.
47

IV. CONSTRAINTS

I+
the impacts of poorly planned growth upon the fragile
Until recently, P
environments of the coastal area have been largely ignored. Wetlands, for
example, which are immensely complex biological areas have been dredged and
filled Ind criminately. As a result of this alteration, many natural processes
i •`
have been temporarily halted or detroyed forever. In fact, the entire marine
foo4 chain has been threatened by the loss of these critical areas. In midi--
Lion, the leveling of sand dunes as a by-product of beachfront construction
has maximized flooding and erosion potential; estuarine waters, considered to
be the cradles of marines life, have been choked as a result of improper treat-
ment of waste materials; and areas of historical and cultural value have been
razed in favor of parking lots and hamburger stands. Clearly, if the quality
of life which has attracted residents to the coastal area is to be maintained,
a serious reappraisal of past trends in land development must be undertaken.
The Coastal Area Management Act was created not as a method of preventing
growth, but as a system of managing growth which will inevitably take place
(consistent with the desires of local citizens). Well -reasoned land use plans
and controls prepared on the local level should aid in making sensible use of
fragile environments. First, it will be necessary to understand the functions
which these areas serve, then, to devise controls which will protect and
preserve their integrity without unjustly damaging the rights of their lawful
owners. (in some cases, the owners of the property will be the public at large).
In summary, it is felt that an effort to discourage the poorly planned
development which has plagued the coastal area in the past is certainly not too
late to begin. Land use planning can be the first step in this direction.
49

A. Land Potential
The suitability of undeveloped land within Swansboro to support
development is analyzed in this section with regard to, l) physical
limitations, 2) fragile areas, and 3) areas with resource potential.
The land potential factors outlined here are those which apply directly
to the Town of Swansboro--items such as frontal dunes and beaches, which
do not exist in the Town, have been given consideration but have been
omitted from the text of this report for the sake of brevity.
1) Physical Limitations
a) Hazard Areas
Estuarine erosive areas: According to a report issued by
the United States Department of Agriculture, Soil Conservation
Service dated August, 1975, the Swansboro area is experiencing
no estuarine erosion at this time. Based on data accumulated
over the past twenty-one years, Swansboro has lost no land to
estuarine erosion, and in fact, portions of the Town's shore-
line have been accreting.
Flood hazard areas (Coastal flood plain): Areas subject to
flooding in Swansboro are described in Flood Prone Area Maps
compiled by the United States Geological Survey under the
direction of the Federal Insurance Administration. The bound-
aries of this area were determined by, a) stage frequency
analysis and records of flooding, as well as, b) local wind -
tide relationships. The boundary generally coincides with
the ten foot contour interval, and reaches its farthest point
inland near the intersection of Church and Elm Streets. A
large portion of this area is now developed. In the future,
50

precautionary measures should be taken to ensure that new
development occurring here is consistent with sound flood
plain management techniques and conforms with the regulations
of the National Flood Insurance Program. Swansboro is currently
enrolled in the emergency phase of this program, which requires
the Town to review all building permits and subdivision proposals
in order to safeguard new development against damage by flooding.
At a later date, a detailed mapping of the flood plain along
with a ratemaking study will take place as a prerequisite for
enrollment into the regular phase of the program.
b) Areas with Soil Limitations
The two most recent sources of soils information for
Swansboro are found in a general soils map of Onslow County pre-
pared by the U.S.D.A., Soil Conservation Service in 1972, along
with a description of soil associations in the Coastal Area
Management region (no maps of this date) authored by Phillips,
Broome, Aull, et al in 1975. The former delineates nine soil
associations, one of which, the Onslow - Lumbee association,
covers the entire Town. This association is generally described
as "nearly level to gently sloping, moderately -well to poorly
drained soils with an intermittent subsurface layer of thin
hardpan and friable sandy -clay loam subsoils." According to
the Onslow County A.S.C.S. office, the majority of the land
in Swansboro lies within the Onslow soil, with smaller pockets
of the Lumbee soil scattered throughout town. The Lumbee is
usually found adjacent to water bodies (e.g. flood plains)
while the Onslow generally occurs at higher elevations.
51

GENERAL SOIL' MAP
�.a .
\ coma—
_ o000
s
Ile0 111F r
coo i
P �I O t = E A
AfM0111YAT[ SCALE IN MILS
J
to
•
GEN
0od�UBASSOCIATION', Nearly iu►swts••pIM
ew•4 •lteo•rh drossdsells
Alalttod
leyor of Shia
hwdPao and frig4ls sandy •I•I logo g•►setts.
LEON - LYNNHAVEN ASSOCIATION: Nearly IavN som•w►•t Poorly
•� to wry Poorly drained sells with sea svrtso• layers sad dark
toddieh br"A good, hgrdNo su►sell. .
LAKELAND-BAYMo A0EDRVGTONASOCITIONssaively
d►ais•d Bondy soils sells asdy
logo su►sells.
- COASTAL BEACH ASSOCIATION: No•rM lava'
TIDAL MARSH
IwKfigwed by high fidwder tagd sand dusga
snd .
POWER- PAMLICO ASSOCIATION: very P••rIF droiss4 orgoole
It to 50 Inaboo of Mask over goody to loamy Nstwod sells.
••: sells SSOCIATION: Nearly isysl vary P•yh► to Poorly
JOHNSTON — SIBS A
no drat"d sells on flood Plain* to dralsopwoys.
ry
PORTSMOUTH —TORHUNTA ASSOCIATION: Newly level ® v• :poo•YN draissd soils with blook aurfaM layers end dray frlebie send.y
goody slay lease sobsoils.
$OUNCE: U.S. OEfMNTSSENT Of MWICULTUIt[
SOIL CONSERVATION C p1VIC[ .
11ALLISNr
52

The 1975 study places Swansboro in the Onslow - Rains -
Norfolk Association. Onslow and Norfolk are the more frequent
• of the three, as there are very few occurrences of the Rains
series. Natural drainage is good in both soils, although
internal drainage is somewhat retarded in the Onslow series
due to the presence of a hardpan layer about six inches below.
the surface.
A detailed soils mapping of the Town of Swansboro should
be completed in early 1976. The following tables describe
soil characteristics of the Swansboro area:

Soil Interpretations
General Soil Map
Onslow County, N. C.
June, 1970
LIMITATIONS FOR
SUITABILITY FOR
Dwellings with
Recreation
Sewerage
Septic Tank
Intensive
Light 1/
Roads &
General
Soil Association
Systems
Filter Fields
Camp Sites
Picnic Areas
Play Areas
Industries
Streets 2/
Agriculture Woods
% in
Soils
Assoc.
SWANSBORO:
Onslow-Lumbee Onslow_
Sit
Wt)_
Slt _ _
_Sit_ _ _ _ _
_Sit_ _ _ _
Mod(Cor)_ _
Slt _ _
Good _ _ _ Good
15% of County Lumbee
_ _ _35
30
_ _ _ _
Sev(Wt)
_ _Mod _ _ _
Sev(Wt)
_ _
Sev(Wt,Traf)
Sev(Traf,Wt)
Sev(Wt,Traf)
Sev(Wt,Cor)
Sev(Wt)
Fair Good
to -
Good
Slopes 10%
Slopes 10%
Slopes 6%
Slopes 10
Slopes 6%
Slopes 10%
Slopes 25%
impose lim-
impose lim-
impose-lim-
impose lim-
impose lim-
impose sev.
impose sev.
itations;
itations;
itations;
itations;
itations;
limita-
limita-
10-25%-Mod.
10-15%-Mod.
6-10%-Mod.
10-25%-Mod.
6-10%-Mod.
tions
tions
25%+-Sev.
15%+-Sev.
107.+-Sev.
25% +-Sev.
10%+-Sev.
Abbreviations for Limiting Factors:
Perc - Percolation rate
Sh-Sw - Shrink -swell potential, R - Rock
ER - Erosion, F1 - Flood hazard, Prod - Productivity
Wt - Water Table, Traf - Trafficability
Cor - Corrosion potential, AWC - Available water
. capacity, .Lfa - Low filtering action
TSC - Traffic supporting capacity
Abbreviations for degree of Limitations:
Sit. -.Slight Mod. - Moderate Sev. - Severe
1/ Structures whose footings are in subsoil
2/ Refers to roads and streets that have subsoil for base

c) Sources of Water Supply
Located in the White Oak River Basin, Swansboro derives
its water supply from groundwater resources. Not in proximity
to Class A2 surface waters, Swansboro is not in a designated
public water supply watershed.
The hydrogeology of Swansboro is not well known. The Post -
Miocene Aquifer exists between land surface and an estimated 80
feet below land Surface; groundwater is stored under water table
and semi -artesian conditions in unconsolidated sand. Below the
Post -Miocene Aquifer is the Tertiary System Aquifer from 80 feet
below land surface to an estimated 220 feet below land surface.
The Tertiary System Aquifer is thought to consist mostly of
limestone, and is artesian. Next is the Cretaceous System Aquifer,
from 220 feet to an unknown depth, where groundwater is stored
under artesian and flowing artesian conditions in unconsolidated
sands.
Potable groundwater in significant quantities is available
both the Post -Miocene and Tertiary System Aquifers. Potable ground-
water in usable quantities is available in the Upper Cretaceous
Aquifer. Brackish groundwater occurs in the Middle and Lower
Cretaceous System Aquifers.
The Post -Miocene Aquifer receives recharge by direct
infiltration of rainfall. Under favorable circumstances, it is
probable the Post -Miocene Aquifer contributes recharge to the
Tertiary System Aquifer.
The City of Swansboro derives its supply of water from two
wells exposed in the Upper Cretaceous System Aquifer. These
wells provide 350,000 GPD capacity. The city is not now experiencing
water problems and should not in the future with reasonable use
of available supplies.
54

2) Fragile Areas
a) Coastal Wetlands
A small parcel of marshland less than ten acres in total
area exists just inside the Town limits adjacent to the elementary
school. The marsh consists primarily of Spartina alterniflora,
which grades into higher marsh grasses as one approaches the
peripheries. This, of course, is part of an extremely fragile
area which plays a critical role in the marine environment.
This.marsh will almost certainly be declared an Area of Environ-
mental Concern by the Coastal Resources Commission. If so,
special protection and control of land uses within the marsh
would begin.
d) Estuarine Waters
The Town of Swansboro is focused upon, and derives much of
its livelihood from the White Oak River. The White Oak originates
approximately twenty-five miles inland from Swansboro along the
Jones County - Onslow County border and flows to the Atlantic
Ocean. According to an agreement adopted by the Wildlife
Resources Commission and the North Carolina Department of Conser-
vation and Development in 1965, waters of the White Oak seaward
of Stella, N.C. are considered commercial fishing waters and are
regulated by the Division of Marine Fisheries. These same commercial
waters are also considered estuarine waters under North Carolina
G.S. 113(n)(2). Swansboro occupies approximately 1.5 miles of
shoreline along the White Oak estuary.
e) Public Trust Waters
In the case of Swansboro, public trust waters are for all practi-
cal purposes identical to estuarine waters. (Please refer to pre-
ceding section for description of public trust waters).
55

g) Areas That Sustain Remnant Species
The Preliminary List of Endangered Plant and Animal Species
in North Carolina lists the following threatened species in the
White Oak - Onslow area:
S ep Lies Preferred Habitat Status
Hyla andersoni Shrub bogs, pocosions Undetermined
(Pine barren treefrog)
Alligator mississipiensis Coastal rivers, lakes, Peripheral -
(American alligator) estuaries endangered in N.C.
Crotalus.adamanteus Sandy pine flatwoods, Peripheral - rare
(Eastern diamond thick bogs in N.C.
rattlesnake)
k) Archaeologic and Historic Sites
The North Carolina Department of Cultural Resources has compiled
a listing of significant cultural and historical places in the Coastal
Area Management region. Three sites, extracted from the Onslow County
list, are located within the Swansboro Town limits. One of these,
the Ringware House, has been approved by the state to be included
in the National Register of Historic Places.
Site Location Ownership
Brick Store N. Corner of Main/Front St. Private
Ringware House S. Corner of Main/Elm St. Private
Harker Ebenezer 18 Elm St. Private
House
It should also be noted that the entire downtown area of
Swansboro possesses a unique cultural and historical atmosphere.
This could possibly be construed as a constraint for new development
in the immediate downtown area.
3) Areas with Resource Potential
a) Productive and Unique Agricultural Lands
Most of the undeveloped land north of Wise's Branch is used for
either farming or woodland. A good deal of the agricultural land
56

is planted in crops, such as corn. The value of these lands is
very difficult to assess in terms of dollars and cents, since
agricultural output figures are not disaggregated for municipalities.
The very existence of this type of land use in what is essentially
an urban setting, however, should raise some important questions
concerning its potential as a resource. Should cities foster
agricultural land use within their boundaries? Deed holders will
probably be coaxed by economic circumstances to develop their land
within the near future.

B. Capacity of Community Facilities
Municipal services currently provided by the Town of Swansboro include
water and sewer service; fire and police protection; and waste collection -
disposal. (Public schools in the Swansboro area are administered through
the Onslow County Board of Education). Roughly 54% of the funds which
support government services in Swansboro are derived from ad valorem
taxes, ABC revenues and privilege licenses account for about 8%, while
the remainder (38%) comes from miscellaneous sources.
The results of the Citizen Opinion Survey conducted during the summer
of 1975 indicate that most townspeople are very satisfied with the service
they receive from the Town. It was generally felt that municipal services
are well -organized, efficient, and reasonably priced through city taxes.
If a decision were to be made, most responders would prefer more public
funds spent on municipal services as opposed to less.
Water System: Swansboro's water supply is extracted from two deep
wells (290 feet) located in the vicinity of Fifth and Sabiston Drive.
These wells pump water at a combined rate of 650 gallons per minute and
supply the Town with a maximum daily capacity of 350,000 gallons. The
peak daily load on the water system as of early 1974 was about 150,000
gallons, leaving a surplus of 200,000 gallons per day. Water is
presently stored both overhead (100,000 gallons) and in the ground
(250,000 gallons). The surplus capacity of the Town's water system
should enable the Town to accommodate additional growth with very little
strain.
Virtually all developed areas in Swansboro are located adjacent to
water distribution lines, as are some areas on the periphery of the Town
(but outside of the corporate limits). Extraterritorial water customers
are currently charged at a rate one and one-half times the in-toww rate.
58

Swansboro's water treatment plant was completed in 1969 and should
be adequate to serve the Town for several years to come. The water
system is looped and utilizes chlorination for treatment purposes.
Sewer System: Sewer service in Swansboro is provided to most areas
of the Town, generally following the route of water lines. The Town's
wastewater treatment plant, located near the intersection of Main Street
and Corbett Avenue, consists of an Imhoff tank., a bar screen, and sludge
drying beds. This type of treatment, termed "primary treatment", represents
a minimum level of sewage treatment, and is not judged adequate to meet
the minimum water quality standards of the White Oak River Basin (according
to a report issued by the North Carolina Environmental Management Commission).
The plant's capacity is adequate (300,000 gallons per day of which 200,000
is surplus capacity), and should be able to protect water quality standards
in the White Oak if it is upgraded to "secondary treatment" as defined
by the Environmental Protection Agency. Three lift stations aid in the
collection of wastewater to the treatment plant, but most of the flow
is gravity -induced. Roughly 84% of the total of 29,100 feet of sewer
is eight -inch line; another 14% is ten -inch, and the remainder twelve
inch line.
Town officials are very anxious to remedy the sewer situation as soon
as possible. The present treatment plant, which is over 20 years old,
was in the process of being improved when 201 facilities regulations were
issued by the federal government. The 201 program requires that an exten-
sive wastewater treatment plan be conducted before federal funds are
approved for construction of municipal sewerage facilities. The 201 Plan
for the Swansboro Facility Planning Area is being prepared by Henry Von
Oesen and Associates of Wilmington, N.C., and should be completed.by
December 1975.
59

• As a rule of thumb, lot sizes should be scaled to the following
sizes in order to prevent health hazards. In areas not presently served
by sewer systems, applications for permits to operate septic tanks should
be carefully reviewed by the Onslow County Health Department in order to
determine the capability of soils at the site to assimilate waste materials.
The following are recommendations and are by no means conclusive:
.1. Lots served by both public water and public sewer
should have an area of at least eight -thousand
(8,000) square feet.
2, Lots served by public sewer but not public water
should have an area of at least ten -thousand
(10,000) square feet.
3. Lots served by only public water or by neither
public water or sewer should have an area of at
least twenty -thousand (20,000) square feet. This
requirement should be increased on the recommen-
dation of the County Health Department based on
investigations of percolation rates and subsoil
conditions.
4. Lots served by a septic tank system and located on
a watershed of a Class I or II reservoir or on the
watershed of a portion of a Class A -II stream ex-
tended from a Class I reservoir to a downstream
intake to a water purification plant should contain
at least forty -thousand (40,000) square feet of area
suitable for a septic tank system location and opera-
tion. The location and extent of these watersheds
• is determined by the State Board of Health, Depart-
ment of Human Resources.
60

• The Division of F.uvironriLntal Management of the North Carolina Dept. of
r Nat'l. & Econ. Res. is rest-asible for issuing permits for nondischarging
wastewater disposal systems of 3,000 GPD or more as well as all discharging
systems. The Division of Health Services of the North Carolina Department
of Human Resources, operating through various county health departments is.
responsible for nondischarging systems of 3,000 GPD or less. The former
enforces Environmental Management Commission Regulation 2-89, which governs
residenne, place of business, or place of public
disposal of sewage from any
assembly in North Carolina and Regulation 2-79 for the treatment and disposal
of sewage in the coastal area of North Carolina. The Division of Health Ser-
vices has indefinitely postponed adoption of similar rules and regulations for
waste disposal systems falling within its jurisdiction, which includes the vast
majority of residential septic tanks.
AI

Perhaps the best indicator of Swansboro's wastewater treatment
problem is reflected in the fact that the Swansboro area is ranked
fifth on the state's Grant Funding List for F.Y. 1975. A moratorium
on large-scale sewer hookups (i.e. the proposed shopping center) has
been placed into effect until the sewage treatment plant is upgraded.
The shopping center, for example, will rely upon a large septic tank
for waste disposal. It is hoped that the necessary improvements on
the sewer system can be made within the next two to three years, and
that all water quality regulations can be adhered to as a result of
the improved facilities.
Fire and Police Protection: Swansboro maintains a police force con-
sisting of four men and two patrol cars. The police station is located
in the Municipal Building and is supplemented by law enforcement from
the Onslow County Sheriff's Department.
Fire protection is provided by a volunteer force of 40 firemen.
Equipment includes a 1964 truck, 250 GPM capacity; a 1966 truck, 750
GPM capacity; 1972 truck, 750 GPM capacity, all housed on Sabiston Drive.
The Town's fire insurance rating is presently class NBFU 8.
Solid Waste Collection: The Town presently contracts with a private
refuse collection firm to gather solid waste within the Town. Pickups
are made six days a week. The disposal site is located north of Jacksonville,
some forty miles away.
Housing: The overall quality of housing within Swansboro is very
good. A recent windshield survey of land use indicated that there were
very few deteriorated or dilapidated housing,units in the Town, and in
fact, over 90% of the units were judged sound. There are some residential
areas which are much older than others, but none of these districts were
judged extremely poor in overall condition.
62

r The accompanying table illustrates housing conditions in Swansboro
',.. relative to Onslow County and the state. "Overcrowding" is defined
as 1.01 or more persons per room, and "substandard" implies that the
unit lacks complete plumbing facilities.
Swansboro Onslow N.C.
Total Units 410 24,547 1,641,222
Occupied 373 (91.0%) 22,761 (9Z.IZ) 7L.V&
Owner 273 (73.2) 11,117 (48.8) 65.4%
Rental 100 (26.8) 11,644 (51.2) 34.6%
Vacancies 37 1,786
Rate 8.8% 7.3% 8.0%
Overcrowding 28 2,553
Rate 7.5% 10.4% 10.2%
Substandard 11 2,017 "--'
Rate 2.7% 8.2% 14.3%
Streets and Highways: Swansboro received Powell Bill funds for 1975
totaling $15,205.68. This figure was based on an estimated population
of 1,310 persons and a city -maintained street mileage of 5.23 miles.
The state maintains approximately 2.80 miles of highway in Swansboro
(unofficially).
Recreation: Swansboro currently does not maintain a developed area for
recreation, but plans have been made for the development of a 17.5
acre recreation complex (bounded by NC 24 and SR 1447); this plan
is hoped to be implemented as soon as funding is available.
63.

The North Carolina Department of Transportations Severn Year Highway
Improvement Program (October 1973) includes a project for the wid wing of
N.C. 24 from Hubert to Swansboro. This segment of highway, 7.6 miles in
length "will be upgraded to a four lane divided highway ... a bypass of Hubert
and a five lane curb and gutter section at Swansboro are planned." As of
March 1976, this project was undergoing construction and the major portion
of the highway through the corporate limits of Swansboro was near completion.
Once finished, the highway should relieve any traffic congestion which the
area may have experienced prior to the widening. Large scale development,
such as the proposed shopping center, should be adequately served by the
new highway and should not have a serious impact upon the capacity of the
road. "No significant alterations of land use or character of the area is
anticipated, since most of the project follows the existing N.C. 24 corridor."
• N.C. 24 is currently four laned from Jacksonville to Hubert and is the
most direct route from Jacksonville to Morehead City; it also serves as the
most convenient route from many points west (e.g. the Fayetteville area
and most of the lower Piedmont) to the Carteret County beaches. Due to the
fact that the five land road will funnel directly onto a two lane bridge
over the White Oak River at the southern edge of Swansboro, special caution
should be exercised to ensure that land uses in the immediate vicinity of
this "bottleneck" do not add to the potential congestion of the area.
N.C. 24 - Ca acities and Flows at Swansboro
00 ,1
Average daily traffic before construction (1970) 6,00
Current average daily traffic ,000
Capacity before improvement 24,400
Capacity after improvement
64

V. ESTIMATED DEMAND
mol

31
A. population and Economy
1) population
Ten year population projections for Swansboro have been developed
employing three different methods. The arithmetic method, which asserts
that numerical changes in population in the past are likely to recur
in the future, yields a low 1985 population of 1511 persons. The
geometric method based on percentage changes, gives a high total of
1929 persons, The least -squares method, based on a regression analysis,
yields the mid -range population of 1551 persons in the year 1985.
The least -squares method appears to best represent the ten year
growth of Swansboro. The results of the Citizen Opinion Survey indicate
that most of the townspeople would like for the Town to grow, but space
limitations will probably act to place a ceiling on the total population
which the Town (within its present boundaries) can comfortably accommodate.
Annexation, of course, might cause the population to swell considerably
higher. The projection of 1551 persons attempts to balance the effects of
both space limitations and possible annexation over the coming decade.
The present (1975) population of Swansboro is estimated to be
approximately 1250.
Arithmetic
Geometric
Least -Squares
1980=1410
1980=1645
1980=1426
1985=1551
1985=1511
1985=1929
1990=2242
1990=1676
1990=1613

The new wastewater treatment facility now scheduled for completion
in December 1977, should provide the Town with a level of treatment
(i.e. secondary) necessary to meet the minimum water quality standards
of the White Oak River, and consequently the capacity to allow added
growth. Enough vacant land now exists within the corporate limits to
accomlaodate the projected ten year population, but services such as water
and sewer will have to be extended to these areas in order for them to
reach their optimum development potential. Beyond the ten year period,
growth will almost certainly be forced to take place outside of the pre-
sent Town Limits. For this reason, citizens have expressed concern for
the control of development along the periphery of Swansboro.
if present trends continue and local values tend to favor gr�heh,
Swansboro could conceivably reach a population ofersonspersons
during the next
_ turn of the century and perhaps as many as 6000 p ears or
fifty years. Projections for small townscovering
nobe
rt twenty-fiveyears
as being
more are at best an "educated guess" and s
conclusive.
67

�) Economy
As has been outlined in the "present conditions" portion of the
data collection and analysis discussion, Swansboro is presently
experiencing a period of economic growth. If the proposed shopping
center becomes a reality, the complexion of retail trade in Swansboro
could be altered somewhat, Among the effects which the shopping center
could have on the local economy are a) more retail dollars would be
kept in Swansboro by lessening the Town's dependence on Jacksonville
and b) business in the downtown area could be reduced.
it is recognized that Swansboro is a small town and that principles
of economic behavior which relate to larger cities are not necessarily
applicable to Swansboro's case. The shopping center, for example,
should not create any serious economic problems for the Town, but its
r weight will still be felt. In a large city, the placement of a shopping
complex in the suburbs could cause a severe stagnation of the city's central
business district. Swansbo rots downtown area, on the other hand, possesses
a great deal of historical, cultural and scenic potential which, if
managed properly, could provide a lifeline to economic vitality for
decades to come.
This discussion of economic trends is by no means conclusive - -
in actuality, forces not within the jurisdiction of local government
(e.g. inflation, recession, national monetary policy) will in most
cases ultimately determine a locality's economic future, These forces
are not known to be affecting Swansboro in any unusual manner at this
time.

$• Future Land Needs
The Coastal Area Management Act local planning guidelines define
five categories for the classification of future land use: 1) Developed
2) Transition 3) Community 4) Rural and 5) Conservation. Most of the land
in Swansboro will fall into either the Developed or Transition classes; the
amount of Rural and Conservation land will be somewhat smaller. It is
possible that a few scattered parcels of Community land might also be pro-
jected. The present land classification system is applicable primarily to
counties, however, and its utility in planning for land use in municipalities
must be questioned. The guidelines, for example, define Developed land as
"areas with a minimum gross density of 2,000 people per square mile." BY
fixing the town limits as the boundaries of a sample area, it is discovered
that roughly 1,250 persons are situated on one-half square mile --this, of
course, produces a ratio of 2,500 persons per square mile. Should the entire
Town of Swansboro then be considered Developed? Not necessarily, for the
guidelines also state that Developed land must "at a minimum contain existing
public services including water and sewer, educational, and road systems.��
Even though the Town as a whole is adequately served by these systems, there
are about 120 acres of agricultural and forest land which are served by neither
water/sewer nor roads. It is clear that a good deal of this land should be
classified Transition, for in all likelihood, this will become the reserve
upon which the Town will draw in order to accommodate future growth (in
addition to lands presently recorded as undeveloped).
Transition areas must, by definition, "be no greater than that required
to accommodate the estimated (county) population growth at a minimum gross
density of 2,000 people per square mile." The purpose of this class is
to identify "lands where moderate to high density growth is to be encouraged
and where any such growth that is permitted by local regulation will be
provided with the necessary public services." Accordingly, Swansboro will

be able to designate a maximum of 96 acres of Transition land, based
upon its expected ten-year growth of 300 persons.
Community lands will consist of "existing or new clusters of low
density development not requiring major public services." There will
be very few areas of this class in Swansboro. Lands considered Community
in Swansboro will be those which contain structures, but which are not
served by the water and sewer systems.
Rural lands are "all lands not in the Developed, Transition, Community
and Conservation classes." Following designation of the Developed, Community
and Conservation lands and allocation of Transition lands, the areas which
remain will be classified Rural.
Conservation lands are those which are not well -suited for future
development and "should be maintained essentially in (their) natural state."
Fragile, hazardous, and natural resource areas will be considered for the
Conservation class. In Swansboro, these will include, but will not nec-
essarily be limited to: wetlands, floodways, watersheds, surface waters,
and historical sites.
As an appendix to the classification system outlined in the local
planning guidelines, Transition lands will be further broken down into
specific categories, coinciding with those listed as urban/built-up
in the existing land use section. In addition to being projected aggregately
(as Transition land) residential, commercial, industrial, etc. lands will
be projected separately. It is felt that local officials will better
comprehend and be able to relate land use decisions to categories which
are somewhat more concrete than those contained in the guidelines. It is
recognized, of course, that on a larger scale (i.e. the twenty county coastal .
region) delineations this specific would be too strenuous to place into
general practice. For these reasons, two separate classification schemes
will be employed in this plan, the rationale being that the Transition

class by definition implies the provision of additional land into which
the urban/built-up functions can expand. The projected land needs of
the urban/built-up functions will be integrated with and become com-
ponents of the Transition class. In no event, however, shall the sum
total of land allocated to the specific urban/built-up uses exceed the
total amount of land set aside for the Transition class (that is, 96
acres). It is hoped that this additional classification system will
provide a worthwhile tool for the local government of Swansboro.
71

0
1
_:............ _
......... ................. .
O p O
Op o°op00 0 0O o 0 000 0 00 -
Er O �OO O O e° ° p 0 e C °° O
0 0 o p 0 0 0 0
00 °0°0 0 00 0 0000 0 0 O00 0 0 0 0pOa \
°p00O°O°O pp000°°p0 0 O°00 O°°° O O°°°p 000
O° O O° O°° p O 001. e e 00
° e e
O O O p p 0 000000. O p O O O a 0 0 0 p p e 0 0 O O
p 0 ° p D O O O O°
° , ° 00 O O 0000 O'0°O�D0 0
transition
Pn
_ <ir
Under the land dassifiation system all land will be plead into onsof f'rw classes.
The Developed class will include existing urban areas which
are currently supplied with a full range of public services including
water and sewer facilities.
0 0 ° - o The Transitions class will identify those areas with land good
0. c 1J
° o o ° o lo- urban development which will be supplied with public services
0 0 0 0 c 0 t, accomodate future population and economic growth.
conservation
The Community doss will include existing clustered rural
residential and commercial areas such as crossroads developments.
These areas may require a public water system but public sewers
should not be allowed.
The Rural class will identify those lands good for agriculture,
forestry, mining, and other land uses such as rural
depending on private wells and septic tanks.
The Conservation class will identify those area which due to
their significant, limited, or irreplaceable natural. recreational, or
scenic resources need to be protected.

0
72a

(Detailed Future Land Use Map on display
at Town Hall)

The primary focus of the future land use map is on locational
arrangements rather than specific allocations of space. The fact that
approximately ten acres of government -institutional land appears on the
map sandwiched between the Swansboro Heights residential area and the
proposed shopping facility, for example, should not be construed to
mean that ten and only ten acres of this land use will be allowed. Rather,
it is intended to suggest that government -institutional land uses (e.g.
churches, schools, etc.) serve as a good buffers between residential
and commercial lands, relieve the friction between the two, and create
an appealing,situation for all parties involved. Ideally, the land use
plan is not site -specific, but recommends a generalized pattern for the
entire town.
Both the land classification map and the future land use map are
flexible with regard to exact allocations of space, yet future space.
needs are essential in determining how large each "piece" of the land use
"puzzle" should be.. The following table reflects space needs for the
year 1985, working within the ceiling of 96 acres of land for expansion
(Transition) placed into effect by the Coastal Area Management Act guide-
lines. The first column lists existing acreage; the second describes
acreage based directly upon a ten year population increase of 25%; and
the third takes into account certain assumptions and safety factors,
such.as the expressed desire for more commercial facilities in the town.
The totals listed in the second and third columns are 25% and 96 acres
greater than the first column respectively.
Existing
Population -Based
w/Safety Factor
Residential
106.46
129.32
145.00
Commercial
17.31
21.63
35.00
Industrial
1.83
2.28
8.00
Transportation, Comm., Util.
30.40
38.,00
40.00
Government -Institutional:.
16.99
21.20
30.00
Cultural, Ent., Rec.
.68
.85
8.00
170.67
213.28
266.00
73

The classification of land in Swansboro has been based upon a) the growth.
f,, goals which the local citizenry has expressed and b) the policies which the
municipal government feels it should follow in order to efficiently discharge
its obligation of providing necessary services to the Towns people at the lowest
possible costs. The area designated Transition on the land classification map
is perhaps the pivotal point of the entire land use plan. This area was
designated for several different reasons. First and foremost, the citizens
have expressed a desire for the Town to grow; second, the governing body would
hope that growth would occur as close as possible to the presently developed
area in order to reduce the costs of providing services such as water, sewer,
fire, police, solid waste, etc.
For these goals as well as the full range of goals and objectives listed
earlier in the plan to be accomplished, new growth should be actively encouraged
to locate in the area labeled Transition. The areas designated Rural are those
which will be left over if development occurs according to the plan during the
decade, yielding the recreational and open spaces which a large number of
citizens have requested. Conservation and Developed lands were considered to
be automatically defined by the guidelines, and Community lands were felt to
be irrelevant to small-town planning.
Noteworthy at this point is a discussion of the relationship between the
Town of Swansboro's and Onslow County's land use plans. The planning program in
Swansboro has been somewhat hindered by the lack of one -mile extraterritorial
control, which would grant the Town of Swansboro the authority to plan and manage
an area up to one mile beyond the present corporate limits. An ordinance to
this effect will probably be passed in the near future. There are a few areas
on the fringes of Swansboro which will likely become developed soon, and possibly
absorb a portion of the projected growth. (The Onslow County plan will probably

indicate these areas as Transition land). The Swansboro Land Use Plan should
be viewed as a policy statement.; i.e., if the projected growth occurs and if
that growth wishes to locate within the present corp3rate limits, then it should
located in the Transition area. Local officials have exrressed a desire to
expand the land use planning program to include the extraterritorial area
during FY 1976-77, and a clarification of the extraterritorial question should
be addressed at that time.
Generally, it is felt that the detailed future land use map better represents
the conclusions of the land use plan. The desire for expanded commercial growth,
the need for a downtown parking area, and the problems of.conflicting land uses
along commercial -residential interfaces, for example, are more definitively
portrayed on this map than on the more concept -oriented land classification
map.
75

C. Community Facilities Demand
-- Major emphasis will center upon completion of municipal sewer
system (2-3 years)
-- Water system judged adequate to serve Town in coming decade
Widening of NC 24 presently underway should facilitate smooth
flow of traffic through Swansboro in coming decade
- Parking facilities in the downtown area should be expanded if
active business is to be maintained
-- Installment of storm sewers in areas experiencing drainage
problems should be considered
-- Completion of new junior high school now in progress should
relieve any excess pressure presently on the school system in
the Swansboro area
-- If Town grows according to projected 1985 population, police
force should be expanded proportionately
-- Town should study the possibility of upgrading its fire
insurance rating to Class 7
-- Water and sewer lines will need to be extended to development
occurring in Transition area (main lines are already in place
to serve these areas)
-- Town should pursue the funding and construction of 17.5
acre recreation area now in planning stage
76

The 201 Facilities Plan for the Swansboro area was completed and dis-
tributed to local government officials on March 4, 1976. Basically, the
plan recommends that the Town of Swansboro be given the "green light" to
begin construction of a 260,000 GPD wastewater treatment plant on Foster's
Creek (pending review from supervisory agencies).
viThe facility will serve the Town of Swansboro and some
unincorporated areas of Onslow County. IThe facility will be
located on a site adjacent to Foster's Creek, a tributary to
the White Oak River, which is classified "SC". An 0.26 MGD
activated sludge (complete mix) facility is proposed which
will discharge disinfected effluent into Foster's Creek. The
existing treatment facility will be abandoned and the existing
site will be used for a new 0.3 MGD pumping station to divest
raw wastewaterfrom the presently sewered Town areas to the
new facility. A new 0.1 MGD pumping station will be con-
structed near the Swansboro High School on N.C. 24. This
station will pump raw wastewater from the presently developed
areas surrounding the high school via a new 8-inch force main
to the new facility. The facility will be constructed and placed
into operation during 1977 and will serve that sub -area's needs
until the year 1997.11*
_ *Excerpeted from Swansboro 201 Facilities Plan prepared by
Henry von Oesen,& Assoc., Wilmington, NC, Feb. 1976; p. 141-142,.
77

When completed, the new wastewater treatment plant should provide
Swansboro with sufficient public facilities for the accommodation of
projected growth. The cost of the new system is outlined in the table
below. The Town will need to extend its bonded indebtedness.in order to
finance the facility.
The Town should need no major expansion of its water system in order to
service projected growth. The costs of providing services such as police
and fire protection, solid waste collection, etc. will increase in proportion
to the rate of growth, but should be able to be fibanced from the additional
revenue generated by the larger tax base.
ESTIHATED PROJECT GAST
SWANSBORO, tJ.C.
(FACILITY PLAIT OPTION B-1)
Cq'LSTRL CT IOil PERI OD'_ 1976 _1977
Total Project Costs
Federal Grant Request
State Grant Request
Local Share
Debt Service ........ 11,109/year
Total annual cost..... S 50,529/year
(Dabt service + Annual O MA)
Estinated Annual Cost per Taxpayer = SM.64
Capes Costs
S 1,083,160. '
766,620.
129,145.
187,400.
Annual 0D
$ 3S,430.
39,430.
78

There were 410 residential units xn Swansboro in 1970, of which only
17 were either for rent or vacant for sale. It is estimated that 10 units have
been constructed since 1970. If the projected population growth of Swansboro
is to be properly housed, construction of new residential units in or around the
Town is almost certain to occur. Judging from citizen input, the present pattern
of single-family detached housing will likely continue, however, it would not
be unwise from a municipal revenue versus expenditure perspective to allow some
mu".ti-family dwelling units to be constructed in the Town in the future. Studies
have indicated that multi -family dwellings are less expensive to service (per
unit) and generate more revenue (per acre of land) than do single-family units,
resulting in an improved financial situation for the local government. of course,
this could vary from community to community, but should be considered as an
alternative form of housing in the future.
79

VI. AREAS OF ENVIRONMENTAL CONCERN
S(1

overview of AEC's
From its inception, the Coastal Area Management Act has focused
upon the preservation, protection, and management of Areas of Environmental
Concern,.or AEC's. Local governments are required by the Act to direct
special attention to AEC's during the land use planning process, and have
been given the responsibility to aid the Coastal Resources Commission in
delineating Interim Areas of Environmental Concern within their jurisdictions.
The draft land use plan submitted to the Commission on November 23, 1975
contained the recommendations of local governments concerning IAEC's,
and will serve as a basis for final determination of these areas. Permanent
AEC's, adhering to more stringent standards, should be established by the
Commission within 1976. The suggested AEC's contained within this report
should be regarded as "potential AEC's", and are not designed for purposes
of permit -letting.
The following passage extracted from the CAMA local planning guidelines
briefly describes the role of AEC's in the planning and management process:
The 1974 Legislature found that "the coastal area, and in
particular the estuaries, are among the most biologically
productive regions of this State and of the nation" but in
recent years the area "has been subjected to increasing
pressures which are the result of the often conflicting
needs of a' society expanding in industrial development, in
population, and in the recreational aspirations of its citizens."
It these pressures are controlled by coordinated manage-
ment," the Act states, "the very features of the coast which make
it economically, aesthetically, and ecologically rich will be
destroyed.!'
To preventthis destruction the Act charges the Coastal Resources
Commission with the responsibility for identifying types of areas,
and designating specific areas -- water as well as land -- in
which uncontrolled or incompatible development might result in
81

~ irreparable damage. It further instructs the Commission to
determine what types of use or development are appropriate
within such areas, and it calls on local governments to give
special attention to these environmentally fragile and important
areas in developing their land use plans.
Local IAEC's
Four types of IAEC's are recognized to exist in Swansboro. These
are: Low Tidal Marshland (Coastal Wetlands), Estuarine Waters,
Historic Places, and Coastal Floodplains. The locations of these IAEC's
are described by the accompanying maps, in addition to the following
verbal descriptions:
1) Low Tidal Marshland (Coastal Wetlands)'- Approximately
ten acres of marshland, consisting primarily of Spartina alterniflora
exist within the Town's boundaries. The majority of this marshland
(which could possibly contain a minute proportion of higher marsh)
• is located directly behind the Swansboro Elementary School.
Scattered parcels of low tidal marshland also exist along the shore-
line of the White Oak River, in both the main part of Town and on
the causeway. (*a trace of high marshland also exists here)
2) Estuarine Waters*, Waters of the White Oak River and its
tributaries (Hawkins Creek, Wise's Branch, and Hominy Creek) are
considered estuarine waters. Because the Town Limits do not close,
but extend indefinitely into the White Oak, exact areas of estuarine
waters cannot be computed. (*is the same as public trust waters also)
3) Historic Places - The North Carolina Department of Cultural
Resources has approved the Ringware House for inclusion into the
82

National Register of Historic Places, qualifying it as a potential
AEC.
4) Coastal Floodplains - The flood prone area of Swansboro described
by USGS maps shall be used in this report as a basis for determining
the coastal floodplain. There is a good possibility that these maps
are not precise, and that the floodplain does not extend as far inland
as the maps show.' Until a detailed flood insurance ratemalcing study
is undertaken, however, -this is the best available information and
must be relied upon.
83

1.0• Coastal Wetlands - General
Coastal wetla
ndsA.
are defined as "any salt marsh or other marsh
su'�7'ect to regular or occasional flooding by tides, including
tide waters reach the marshland areas
wind tides (whether or not the
through natural or artificial watercourses), provided this shall
not include hurricane or tropical storm tides. Salt marshland or
other marsh shall be those areas upon which grow some, but not
necessarily E.11, of the following salt marsh and marsh plant species:
Smooth or salt water Cordgrass (S artina alterniflora); Black
eedlerush (Juncus roemerianus); Glasswort (Sal_ nh•); Salt
NBulrush
Grass (Distichlis S ip cata); Sea Lavender (Lim_ onium sPP.)'
r
(Scir us spp.); Saw Grass (Cladium Jamaicense); Cat -Tail (tea
s .); Salt -Meadow Grass (Spartina Patens); and Salt Reed Grass
PP
_ Included in this statutory
definition
(artina cynosuroides)_."
of wetlands is "such contiguous land as the Secretary of NER
ffect by any such order in carrying
reasonably deems necessary to a
out the purposes of this Section." (G•S• 113-230(a))
coastal wetlands may be considered in two
For policy purposes,
categories: (1) low tidal marsh; (2).other coastal marshlands
which have different significance ;and policy implications.
1.1 Coastal Wetlands - Low Tidal Marshland of
a. Description. Defined as marshland consisting primarily
S artina alterniflora and usually subject to inundation by the
normal rise and fall of lunar tides.
nificance. Low tidal marshland serves as a critical
b. S ,—
m onent in the coastal ecosystem. The marsh is the basis for the
co p
yield system of the estuary through the production of
high net y'g
'. organic detritus (partially decomposed p
lant material) which is the
food chain of. the entire estuarine
primary input source for the
84

system. Estuarine dependent specias of fish and shellfish such as
founder, oysters and crabs currently make up over
menhaden, shrimp,
Y 90 percent of the total value of North Carolina's commercial catch.
In addition, the mots and rhizomes of the Spartina alterni-
flora serve as waterfowl food and the stems as wildlife nesting
material. Low tidal marsh also serves as the first line of defense
in retarding shoreline erosion. The plant stems and leaves tend to
dissipate wave action while the vast network of roots resists soil
erosion. Marshes of this type operate additionally as traps for
sediment originating from upland runoff thus reducing siltation of
the estuarine bottoms and consequent detri.ment'to marine organisms. '
C. Policy objective. To give the higest priority.to the
preservation of low tidal marshland.
d. Appropriate Land Uses. Appropriate land uses shall be
those consistent with the above policy objective. These marshes
should be considered unsuitable for all development which will alter
their natural functions. Inappropriate land uses include, but are
not limited to the following examples: restaurants and businesses;
residences, apartments, motels, hotels, and trailer parks; parking
lots and offices;.spoil and dump sites; wastewater lagoons; public
and private roads and highways; and factories. -Examples of accept-
able land uses may include utility easements, fishing piers, docks,
certain agricultural uses except when excavation or filling
affecting estuarine'.or navigable waters is. involved, and such other
uses which do not significantly alter the natural functions of the
marsh.
85

2.0. Estuarine watt=a
a. Description.' Estuarine waters are defined in G.S. 113-
229 (n) (2) as, "all the water of. the Atlantic Ocaan within the
boundary of North Carolina and all the waters of the bays, sounds,
rivers, and tributaries thereto seaward of the dividing line bekwc
coastal fishing waters and inland fishing waters, as set forth J-P
agreement adopted by the'Wildlife Resources Commission and the
Department -of Conservation and Development filed with tt.e SecreVar
of State entitled 'Boundary Lines, North Carolina Commercial Fishi:
Inland Fishing Waters, revised March 1, 1965,!' or as it mad be
subsequently, revised by the Legislature: '
b. Significance, Estuaries are among the most productive
natural environments of North Carolina. They not only support
valµable commercial and sports fisheries, but are:also utilized
for commercial navigation; recreation., and.aesthetie purposes.
Species dependent upon estuaries such.as menhaden,,shrimp;Jlounder,
oysters and crabs make up over: 90: percent -Of *.the.. total Value of
North Carolina's commercial catch. These species..must spend all
or some part of their life cycle in the estuary.:. The high.level
of commercial and sports fisheries.and:the,aesthstic appeal of.
Coastal North Carolina -is dependent. upon the protection and
sustained quality of our estuarine areas.. -'
C. Policy Objective. To -preserve and manage!.estuarine waters
so as to safeguard and perpetuate. -their biological,;economia-, and
aesthetic values. �-
d, Appropriate Uses. Appropriate uses shall be -those consis-
tent with the above policy objective. Highest priority shall be
allocated to the conservation of estuarine waters. The development
of navigational channels, the use of bulkheads to prevent erosion,
86

and the building'of piers or wharfs where no other feasible alter-
native exists are examples of land uses appropriate within estuarine
waters, provided that such land uses will not be detrimental to the
biological and physical estuarine functions and public trust rights.
Projects which would directly or indirectly block or impair existing
navigation channels, increase shoreline erosion, deposit spoils bew
mean high tide, cause adverse water circulation patterns, violate
water quality standards, or _cause degradation of shellfish waters
are generally considered incompatible with the management of estuarine
waters
41
87

4,5, Fragile Historic or Natural Resource Areas - liisturic
Places.
a. Description. Defined as historic places that are
listed, or have been approved for listing by the North Carolina
Historical Commission, in the National Register of Historic
Places pursuant to the National Historic Preservation Act of
1966; historical, archaeological, and other, places and propertiep
owned, managed, or assisted by the Mate of North Carolina
pursuant to G.S. 121; and properties or areas that have been
designated by the Secretary of the Interior as National
Historic Landmarks,
b, Significance. Historic resources are both non-
renewable and fragile. They owe their significance to their
association with American history, architecture, archaeology,
and culture. Properties on or approved for the National Register
of Historic Places may be of.national, state, or local signifi-
cance. .
c. Policy Objective. To protect and/or preserve the
integrity of districts, sites, buildings, and objects in the
above categories.
d. Appropriate Land Uses. Appropriate land uses shall
be those consistent with the above stated policy objective.
Land use which will result in irreversible damage
to the historic value of the area is inappropriate.
88

'6.3. Natural Hazard Areas - Coastal Floodplains
a. Description. Coastal flood plain is defined as the
land areas adjacent to coastal sounds, estuaries or the. ocean
which are prone to flooding from storms with an annual probability
of one percent or greater (100 year storm). These areas are
analogous to the.100 year flood plain on a river. Information
necessary to identify these areas will be supplied by the State
Geologiat:
b. Significance. Coastal flood plains are those lands
subject to flooding or wave action during severe storms or
h.rricanes. They are lands where uncontrolled, incompatible, or
improperly designed building,•structures,.f acilities, and
developments can unreasonably endanger life.and property. Except
for those portions of the areas lying within estuarine or ocean
erodible areas, they are not generalty�or.necessarily subject to
severe erosion or dynamic action leading to replacement of.the
land with a body of water. In most instances, structures within
this area do not obstruct the flow of waters or create any
additional back waters.
c. Policy Objective. To ensure that all buildings,
structures, facilities and developments are properly designed
and built to maintain their stability, integrity, and safety in
the event of flood surge from a 100 year storm.
d. Appropriate Land Uses. Appropriate land uses shall be
those consistent with the above policy objective. It is
reasonable to allow a certain degree of development if it is
r.arefully controlled and meets stringent engineering standards
m

for stability, integrity and safety during a 100 year storm.
The land use plan may allow development activities, and if such
development is undertaken, as a minimum it must conform with the
standards of the Federal Insurance Administration for coastal.
high hazard areas and safety during the flood surge from a 100,
year storm. (Code of Federal Regulations, Title 24, Chapter 10,
Subchaper B)
on

During the latter stages of the Coastal Area Management planning program,
• some confusion has arisen over the relationship and/or differences between
to , and objectives", Local
objectives, policies and standards" and 'li.5sues, goals
governments were initially instructed by the planning guidelines to develop issues,
goals and objectives as a basis for land use plans; subsequently, this was changed
to objectives, policies, and standards. This change was made after the bulk of
the public participation process had taken place, and in fact, the entire planning
process was centered upon the development of,issues, goals and objectives as a
foundation for the plan. The lack of consistency between synopsis review criteria
and land use plan review criteria has further clouded an already unclear picture...
the former requires issues, goals and objectives; the latter objectives, policies,
and standards.
Albeit a minor point, it is the feeling of this writer that an attempt to
V translate a set of issues, goals and objectives into objectives, policies and
standards at this late stage could only result in increased confusion and a
misrepresentation of the comments generated during the public participation pro-
cess.
92

Major deviations from the standard outline referred to in
the "Generally Applicable Standards of Review for Land Use Plans
and Synopses" includes
A) Plan Description, which is cgvered under Future Land
Ne� eds (pp, 69-75)
B) Summarys which is addressed in the. Introduction (pp. 10-12)
C) City -County Plan Relationship Defined, which is also included
'—r--
under Future'Land Needsam(pp. 74-75
93

7

RESOLUTION TO ADOPT COASTAL AREA MANAGEMENT ACT
. LAND USE PLAN FOR THE TOWN OF SWANSBORO
the
hin
WHEREAS, the To". of. SwansborQ is a municipal.itX withigdthet jurisdj.ccion
cop..stal area of North. Carolina and lies
pf.Chapter 113A, Articlet7 of the leneralMSnagement Actatutes of oofh1974,
Carolina, also known s
and;
Tanning is required of each county and municipality
WHEREAS, land use p and• '
within the: jurisdiction Of G.S._.113A ,.. a
WHEREAS, the Town of Swansboro_has:el.e.cted.to_pxepare � land use plan
fqr the_are.a:under its municipal jurisdiction as provided
under G.S. 113A- 110(c) and has been granted the authority
to do so, _ arid;
ctively encouraged during the formulation
WHEREAS., public input has been a
of the.land.use: pl-an;:.
t T4wn".CQuncil pf th.e Town- of_Swansboro
THEREFORE, be. it resoave:d under the Coastal Area
that..the l• DdUse pi -An --prepare
Management Act is hereby adopted for submission to the
Coastal Resources Commission.
c
L. D. Williams, Mayor
May 20, 1976
Etta L. Lammp Town Clerk

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