Beach Access Plan-1982

pl,
TOWN OF TOPSAIL BEACH
BEACH ACCESS PLAN
PROPERTY OF
DIVISION OF COASTAL MANAGEMENT
PLEASE DO NOT REMOVE
JOHN J. HOOTON & ASSOCIATES, WILMINGTON, N.C.

TOWN OF TOPSAIL BEACH
BEACH ACCESS PLAN
May 1982
Phil Stevens, Mayor
Joel Barden, Planning Board Chairman
The preparation of this report was financed in part by a grant
from the U.S. Department of Commerce, National Oceanic Atmospheric
Administration, and the North Carolina Department of Natural
Resources and Community Development, Office of Coastal Management.

CONTENTS
Page
1.0 INTRODUCTION . . . . . . . . . . . 1
13,1.1 PLAN HISTORY . . . . . . . . . . . . . . . . . . . 1
2.0 ISSUES AND POLICIES . . . . . . . . . . . . . . . . 2
2.1 EXISTING TOWN POLICIES . . . . . . . . . . . 2
2.2 STATE POLICIES AND DEFINITIONS 2
2.3 CONSISTENCY OF TOWN POLICIES WITH STATE POLICIES . 4
3.0 SURVEYS, PLANNING AND DESIGN STANDARDS . . . . .
. . . . 7
3.1
SURVEY OF OCEANFRONT ACCESS . . . . . . . .
. . . . 7
3.2
SURVEY OF SOUNDFRONT ACCESS . . . . . . .
. . . . 8
3.3
PLANNING AND DESIGN STANDARDS . . . . . . .
. . . . 10
4.0 METHODS
OF ACQUISITION . . . . . . .
. . . . 13
4.1
ACQUISITION OF FEE SIMPLE INTEREST . . . .
. . . . 13
4.2
ACQUISITION OF LESS THAN A FEE
INTEREST - EASEMENTS . . . . . . . . . . .
. . . . 13
4.3
LAND USE CONTROLS . . . . . . . . . . . . .
. . . . 14
4.4
DONATION . . . . . . . . . . . . . . . . .
. . . . 16
5.0 EVALUATION . . . . . . ... . . . . . . . . . . . . . . . 171.
6.0 CONCLUSIONS AND RECOMMENDATIONS . . . . . . . . . . . . 19
ADDENDA

1.0 INTRODUCTION
1.1 PLAN HISTORY
x This plan arose out of the realization by Town officials that increased
development and escalating land values could effectively foreclose opportunities
for purchase and development of access and open space within the Town. As
evidenced at several other beach communities in North Carolina (and even more
apparent in other coastal states), this decision is neither unfounded nor
hasty. Through its land use plan and zoning ordinance, the Town has taken a
strong stance toward maintaining the single-family character of the community,
and at development rates that are consistent with the capacity of its natural
environment.' But even this sensible attitude toward barrier island develop-
ment will not address the problem of how to assure access to public waters and
preserve some space for recreational purposes for present and future residents.
Because some of the issues are politically sensitive and technically complex,
it was felt that a formal plan would provide a more systematic -and effective
method of joining both citizens and state and federal agencies in the Town's
efforts to provide access and open space. The plan.is a result of that decision.

2.0 ISSUES AND POLICIES
2.1 EXISTING TOWN POLICIES
In its recently updated Coastal Area Management Act Land Use Plan
(approved by the Coastal Resources Commission March 13, 1981), the Town adopted
the following policies as a guide for providing and developing access to the
beach and other public trust lands:
(1) To provide reasonable means and opportunity for all members of the
public to have access to the beach and other public trust lands and
waters, provided such means do not conflict with the rights of
residents to the use and enjoyment of their property.
(2) To encourage the use of non -auto oriented transportation methods
such as bicycling and walking.
(3) To prohibit all traffic on the dune and berm except at designated
access points and upon a ramp or walkover structure.
The main purpose in the above policies centered on providing access to the
beach for all persons while protecting property owners, as well as the protective
features of the dune and berm. This intent illustrates the policy compromise
required of beach communities who wish to provide adequate access for visitors
but must rely mostly on local residents to absorb the financial and environ-
mental costs of this action. Thus, the basic issue confronting beach or other
resort communities in developing access, recreational or service policies and
plans is how to negotiate a position that will be equitable to residents, pro-
perty owners and visitors.
Before establishing additional Town policies, consideration should be
• given to the policies and definitions adopted by the Coastal Resources
~ Commission for beach access at.the local and state level.
2.2 STATE POLICIES AND DEFINITIONS
State Beach Access Definitions
Beach access — Includes the acquisition and/or improvement of pro-
perties situated along the Atlantic Ocean for parking and pedestrian passage
to the oceanfront. Beach access facilities may include, but are not limited to,
parking areas, restrooms, showers, picnic areas, dressing/shower rooms,
- 2 -

concession stands, litter receptacles, water fountains, dune crosswalks,
and other appropriate facilities.
Local accessways - Include those points which offer minimal facilities,
.,. if any at all. Generally, these accessways will have only a dune crosswalk, if
needed, and trash receptacle, and are for the use of pedestrians within a few
hundred yards of the site.
Neighborhood accessways - Those areas offering limited parking,
usually space for no more than 5 to 10 vehicles, a dune crosswalk and trash
receptacle. Such accessways are primarily for the use of pedestrians, within
the immediate subdivision or area of the site.
Regional accessways - Accessways of such size which offer such
facilities that they serve primarily pedestrians throughout an island, including
day users of the beach. These sites normally provide parking for 25 to 60
vehicles, restrooms, a dune crosswalk, foot showers,.and trash receptacles.
Improvements - As related to beach access, improvements are any
facilities which promote pedestrian access at a specific site. The most
common improvements include dune crosswalks, trash receptacles, parking areas,
restrooms, gazebos and foot showers.
Maintenance - The proper upkeep and repair of beach access sites
and their facilities in such a manner that public health and safety is ensured.
In accord with these definitions, the Coastal Resources Commission has
declared several general and specific policies for beach access. Since it is
the intent of this Plan and the Town's beach access policies to promote these
policies to the greatest possible extent, the pertinent state policies are
summarized in the following paragraphs.
State Beach Access Policies
General Policy - To foster, protect, improve and insure optimum access
to recreational opportunities at ocean beach areas consistent with public rights,
rights of private property owners; and the need to protect natural resources,
especially sand dunes.
-3

Development - Development shall not interfere with the public's
right of access to the shorefront where acquired through public acquisition,
dedication, or customary use as established by the courts.
Allocation of state and federal funds - Public beach area projects
funded by the state and federal governments will not receive initial or addi-
tional funds unless provisions are made for adequate public access. This must
include access rights, adequate identification and adequate parking.
Shorefront properties in state or federal ownership - Policies
regarding state or federal properties with shorefront areas intended to be
used by the public must encourage, permit, and provide public access and ade-
quate parking so as to achieve maximum public use and benefit of these areas
consistent with establishing legislation.
Dune protection - State and federal.funds for beach access shall be
provided to localities that also provide protection of the frontal dunes.
Access for all socio-economic groups - All land use plans and state
actions to provide additional shorefront access shall recognize the need to
provide access for all socio-economic groups.
Handicapped access - Beach access projects shall, to the maximum
extent feasible, be consistent with approved local land use plans, beach access
plans and outdoor recreation plans, and will be designed to be free of archi-
tectural barriers which may limit their use by the handicapped.
Responsibilities of local and state governments - Local governments
shall have lead responsibility for the provision of local and neighborhood
access, with full support and assistance from the state; and the state shall
a have lead responsibility for the provision of regional accesses.
2.3 CONSISTENCY OF TOWN POLICIES WITH STATE POLICIES
Although adopted prior to the establishment of the state access policies,
the Town's policies are very similar in intent and language. Both Town and
- 4 -

state require generally that access be provided to public trust areas, consistent
with individual property rights. More specific state policies require availa-
bility of access, as far as feasible, for handicapped persons and all socio-
economic groups. The Town's general policy requires that access opportunities
be available to all members of the public. State policies place strong emphasis
on dune protection. Town policies emphasize the need for this protection even
more strongly, not only as a beach access policy (see Section 2.1, above), but
also in other sections of the land use plan (Section 3.2, Ocean Hazard Areas,
Off -Road Vehicles; and Section 3.3, Beach Preservation). In addition, the Town
has an Erosion Control Study which incorporates a dune maintenance manual for
dune protection.
The following policies are established to provide additional consistency
with state policies and expand upon previously adopted Town policies.
Maintenance of Existing Access.- It shall be the policy of the Town to
maintain existing access to the extent feasible; however, where erosion or
storm damage has destroyed or rendered unusable access facilities and it appears
that additional damage is likely in the short term, then it will be the Town's
policy to discontinue the use of such facility and seek to relocate the access
at a more stable point in order to maintain an equal number of access points.
New Access - It shall be the policy of the Town to develop any hew access
points as neighborhood or regional access points with appropriate facilities.
To.maintain consistency with state definitions, neighborhood and regional
access points for the Town of Topsail Beach are defined as follows:
Neighborhood Access Point - These points are open to all members of
the public but provide limited parking of 3 to 5 cars, a dune crosswalk
in accord with the design standards included in the Addenda, a public
access sign, and trash receptacle. Their major purpose is to provide
access for non -oceanfront residents and overnight visitors.
Regional Accessway - A regional accessway is intended to serve day
users of the beach, as well as residents and overnight visitors. These
sites shall provide parking for.25 or more vehicles, a dune crosswalk in
accord with the design standards included in the Addenda, trash receptacles,
public access signs.
- 5 -

Location of Accessways - The basic policy in establishing accessways,
and particularly regional accessways, is to direct pedestrian and vehicular
traffic away from residential areas. This policy is intended not only to pro-
vide improved access opportunities for the public, but also to protect property
owners from intrusive uses of their property.
Design - Generally, site and structural designs shall be esthetically
compatible with surrounding structures, structurally sound enough to resist
moderate storm damage, and located so that the dune and berm system is not
compromised. Examples of acceptable designs for both regional and neighborhood
accessways are included in the Addenda.
Handicapped Accessways - At least one handicapped accessway will be con-
structed similar to the design standards included in the Addenda. However, the
time of construction will depend upon the availability of state and local funds.
Acquisition - The Town will begin a program of acquiring additional access -
ways, not only to oceanfront properties, but also soundfront. Because of the
potential high cost, acquisitions may be limited to those areas which can be
acquired through donation or with joint participation with state and federal
governments.
Open Space and Recreation - Active recreational facilities within the
Town shall be limited to low intensity uses such as nature and fitness trails,
picnicing, swimming areas, tennis courts and basketball courts. These
facilities shall be designed and located for the purpose of accommodating
primarily Town residents but shall be open to all persons. The Town will also
begin a program, through acquisition, lease, easement or condemnation, of
acquiring areas for permanent open space.

3.0 SURVEYS, PLANNING AND DESIGN STANDARDS
The following sections provide a brief description of the observed physical
condition of facilities at both soundside and oceanfront access points.
3.1 SURVEY OF OCEANFRONT ACCESS
Humphrey - Minimal walkover (ramp with rail and no other facilities) with
fence and gate --not platted for public access.
Fields Avenue - No walkover or other facilities --fence and no trespassing
sign on property. Shown on Town Zoning Map as platted 6 foot public beach
accessway.
Sidbury Avenue - Platted accessway with walkover structure., bollards,
trash cans, and on -street parking for 3 to 4 cars.
Dolphin Pier - Public fishing pier with access to beach on sides.
Queens Grant Condominiums - Three public access rights -of -way will be
granted and walkover structures constructed. Time of construction and locations
to be negotiated with the developer.
Gave Street - Walkover structure in place --no signs or facilities, and
parking is limited.
Canad - Undeveloped. No platted access and no facilities.
Barwick - Platted public access, but presently undeveloped, with no
walkover or other facilities.
Rocky Mount - Platted public access at street end, with walkover structure,
trash cans, bollards, concrete walk and sand fence.
Empie - Platted public access at street end, with walkover structure, trash
cans, bollards, concrete walk and sand fence.
Pearson - No platted access.
Haywood Avenue - Platted public access at street end, with walkover
structure, trash cans, concrete walk, and sand fence.
- 7 -

Davis Avenue - Platted public access at street end, with walkover
structure, trash cans, concrete walk and bollards.
Flake Avenue - No platted access.
New Topsail Ocean Pier - Private pier open to public, with access on
sides.
Crews - Platted public access at street end, with walkover, bollards,
trash cans, and sand fencing.
Hines - Platted public access at street end, with walkover, bollards,
trash cans, and sand fence.
Scott Street - Platted access at street end, with walkover structure,
bollards, concrete walk and sand fencing, and trash cans.
Crocker - Platted access at street end, with walkover structure, bollards,
concrete walk, sand fencing and trash cans.
Darden - Platted access at street end with walkover structure, bollards,
concrete walk, sand fencing and trash cans.
Smith - Platted access at street end, with walkover structure, trash
cans and sand fencing. Erosion has damaged walkover, requiring repairs and
reconstruction.
Trout and Odum Avenues - Erosion has completely destroyed walkover
structures at these points. A protective berm has. been erected, placing
constraints on access and parking.
Godwin - Platted public access just south of street end, with walkover
structure, trash cans, sand fencing and concrete walk.
3.2 SURVEY OF SOUNDFRONT ACCESS
Shoreline Drive - Limited parking at street end, with unplatted
pedestrian access.
Godwin - Access apparently open to public off bulkheaded street end;
approximate 6 foot drop at mean low water.
McLeod, Boryk - Access closed.

Trout - Platted public access at street end; bulkheaded with 5 to 6 foot
drop at mean low water; Drum Avenue asphalted from Carolina Blvd. to bulkhead.
Smith - Apparent platted -public access at street end.
Darden - Platted public access at street end, paved to bulkhead, with
5 to 6 foot drop at mean low water.
Crocker - Platted public access at street end. Bulkheaded.
Scott - Platted public access at street end, partly asphalted, some
apparent encroachment by adjoining property owners.
Hines - Platted public access at street end.
Crews - Platted public access at street end.
Ward - Platted public access at street end.
Haywood - Platted public access at street end, no bulkhead.
Empie - Platted public access at.street end, "Road Closed" sign, no bulkhead.
Rocky Mount - Platted public access at street end, no bulkhead, "Dead End"
sign.
Barwick - Platted public access at street end, fence to either side of
fire hydrant apparently in center of access, access area grassed and appears
to be part of adjoining -property owners' lawns, but no encroachments.
Gaye Street - Platted public access at street end, bulkhead.
Sunset Avenue - Platted public access at street end.
Well Site #2 - No platted access shown, possible access opportunities
behind well site.
Nixon - Platted public access at street end, no bulkhead.
_ Sidbury Avenue- Platted public access at street end, no bulkhead.
If
Beechwood - Platted public access at street end.
Fields - Platted public access at street end.
Humphrey - Platted public access at street end.

3.3 PLANNING AND DESIGN STANDARDS
Guidelines for Planning and Design - The following guidelines are intended
to provide generalized standards for location, design and improvements at beach
access points; however, required improvements at any particular point will
depend upon site characteristics, degree of intended use, and budgetary
constraints.
Planning and Location
Location near customary use areas - Wherever possible, access sites
should be located near or at areas that are normally used by the public.
Avoid endangered species - The habitat, breeding or nesting areas
of rare or endangered plant animal species should be avoided.
Dune height - Areas where the dune height is so low that the beach
is visible from the road should be avoided. This will encourage the use
of walkovers and provide an opportunity for low or damaged dunes to rebuild;
however, lower areas may have to be used as points selected for handicapped
modifications to insure adequate ramp slopes.
Connection to public access - Access points must be provided directly
from an area open to the public --such as a road or park.
.Sight distance - Where possible, adequate site distances should be
provided between entry or parking areas and intersections or curves --a
minimum line of sight of 300 feet should be provided in either direction.
Required points - At least one access point should be provided for
each 1,000 users, using the average (not peak) seasonal population as a
base.
Parking and transit - All methods should be used to encourage the use
of non -auto oriented transit to access points. Mass transit, bikeways
and footpaths are recommended as alternatives to conserve energy, protect
air and water quality, increase access, and promote safety. If feasible,
- 10 -

parking for 120 cars per 1,000 visitors should be provided within 100
yards of an access point.
Spacing - Access points should be located every one-half mile where
feasible.
Points for the handicapped - A minimum of one access point with
handicapped modifications should be provided, with one additional such
point per 20 standard points.
Facilities
Bike racks - One ten -bike rack should be provided at every other
access point and at all points with improved parking lots. Racks should
be of steel or cast concrete and should be -located out of the parking
area or protected by ties or bollards.
Litter receptacles - Two twenty -gallon enclosed receptacles at access
entry and one ten-gallon receptacle at steps of walkover or oceanside.
Pickup should be a minimum of three times per week during peak season.
Identification - Signs should be placed at entry from highway, at
steps of walkover on ocean and land sides. Pennants on a mast or pole may
be used in addition to, or in lieu of, signs on oceanside. Wooden signs
are recommended for esthetics. Signs should be approximately 24" x 36"
on 4 x 4" posts at 8' heights. Signs should be double -sided, with the
faces toward the direction of foot or vehicular traffic.. Information
signs (concerning. safety, surfing, litter) should be posted at walkover
steps.
Bathroom facilities, showers, water fountains - Because of maintenance
costs, these facilities are recommended only in high use areas (over 1,000
visitors per day). Showers should be open-air, cold water only, with pipes
protected against vandalism. Foot showers only are recommended. Bathrooms
should be located near parking areas (away from beach) and conform to
applicable environmental regulations.

Sand fences - Recommended for all walkovers. Thirty feet of 4'
high fencing, with posts every 100 feet on each side of walkovers.
Place on dune ridge.
Modifications for Handicapped Access Points
• Handicapped parking spaces should be marked with the international symbol
for the handicapped and located immediately adjacent to a ramp or hard surfaced
walkway; spaces should be a minimum of 12' 6" in width.
• Designated public parking areas should have a minimum of 2% of the total
number of spaces reserved for handicapped parking.
• Bollards, posts or other barriers to wheelchairs or persons with walking
aids should be removed.
• Dune walkovers should have maximum slopes of 12.5% (1:8) with steps
eliminated or ramp by-pass constructed. The transition from walkway to dune
walkover should be smooth and continuous. Walkovers should have a minimum of
a 100-square-foot covered deck at the top of the structure.
• Identification signs should include the international symbol for the
handicapped.
- 12 -

4.0 METHODS OF ACQUISITION
Several methods of access acquisition are available to local governments in
North Carolina. The following sections briefly discuss the methods that are
possibilities for Topsail Beach.
4.1 ACQUISITION OF FEE SIMPLE INTEREST
Purchase of fee simple title is the most direct means of acquiring access
but may also be an expensive method, depending on the location and amount of
land sought. North Carolina local governments are granted the authority to
acquire real property in General Statutes H 153A-158 and 160-11. Authority to
purchase property for parks and recreation purposes is granted in North
Carolina General Statutes H 15A-444 and 160A-353. Purchase of a fee interest
at the neighborhood scale would be most appropriate for purchasing narrow
strips for access to the beach or providing limi.ted parking. At a larger scale,
the fee simple purchase would most likely be used to acquire a relatively large
park for state or municipal use.
4.2 ACQUISITION OF LESS THAN A FEE INTEREST - EASEMENTS
Easements, or the right to use another's land in some specifically
designated manner, may generally be acquired either by purchase or prescription.
Easements are most appropriate in acquiring walkways from a public area, across
a landowner's property to the beach. The primary consideration in acquiring
easements is to insure that the accessway leads from the beach to an area
accessible to the public. Thus, to be of use to the public, parking of some
"sort must be available. Purchase of easements may be expensive or unavailable,
but landowners may be persuaded to sell if they are allowed a reduction in pro-
perty taxes because of diminution in value. Another type of easement is the
prescriptive easement. This easement is acquired because of the continued use
of the landowner's property by some other party, and the law will recognize
that party's right to continue that use. In the case of beach access, the
"other party" is the public. In many beachfront communities, including Topsail
Beach, the public has continually used certain areas to reach the beach. If
such public use satisfies the requirements for prescription, primarily as to
- 13 -

duration of the use and prescription, then the public has acquired a right to
use that particular accessway, irrespective of the desires of the land title-
holder. A prescriptive easement can be acquired only when it can be shown that
the use has been made by the public at large and, to be legally recognized,
must be established by litigation, followed by recordation of the encumbrance
upon title. The major stumbling block to establishing prescriptive easements
in North Carolina is the requirement of adverseness. Most cases have
involved use of an access road by a landlocked owner, with adverseness won by
a lack of overt permission. Thus, the use need not be hostile in the con-
ventional sense in order to be adverse. However, if permission is given by
the servient owner, the easement will be precluded, and use of vacant land is
presumed to be with the permission of the owner.
4.3 LAND USE CONTROLS
There are two basic tools that fall under the police power heading availa-
ble to local governments to acquire pedestrian access for the general public.
These are zoning ordinances and subdivision regulations. The simplest method
is to zone beachfront property as recreational/residential, with access
provisions being one of the requirements of the Zone; this designation could
apply to commercial, as well as residential, uses. This approach has been
utilized by Currituck County since October 1971. Under that ordinance, a
Recreational/Residential Zone requires the provision of public accessways of
not less than 10 feet -in width, from a public roadway to a recreation area,
for each development involving more than 600 feet of recreational resource
frontage (beaches or sounds). The authority for establishing such requirements
in local zoning ordinances exists under the zoning enabling legislation for
North Carolina counties, North Carolina General Statutes § 153A-340. This
section states:
Where appropriate, the conditions may include requirements that
street and utility rights -of -way be dedicated to the public and
recreation facilities be provided.
The question is whether the provision of beach access is an "appropriate" situa-
tion for the imposition of requirements relating to recreational space and
facilities. For the same reasons discussed in the Introduction, a substantial
case can be made that the provision of -access is "appropriate."
The second land use tool available to local governments is required
dedication of roads to provide access. Public access to beaches is afforded
- 14 -

by requiring the extension of roads or rights -of -way to the foreshore and
dedication to the public. In application, two requirements are necessary:
(1) extension of all roads and rights -of -way not parallel to the beach down
to the foreshore, and (2) public dedication of all such roads and rights -of -
way not parallel to the beach. The Currituck County ordinance previously
mentioned requires the extension of all roads and rights -of -way not parallel
to the ocean down to the foreshore in all developments having a minimum of
600 feet of frontage. The land subdivision regulations adopted by the Town of
Nags Head require public dedication of all roads in subdivisions developed
within the Town--beachfront and non-beachfront. The authority for requiring
such a dedication is contained in North Carolina General Statutes § 153A-331,.
which states:
A subdivision control ordinance may provide for . . the
dedication or reservation of recreation areas serving residents
of the immediate neighborhood and of rights -of -way or easements
for streets or utility purposes.
A third method, directly related to the one just discussed, is the required
provision of water access to lots in new subdivisions. Generally, a municipality
could not require public dedication of an entire lot without just compensation.
However, there are two possible methods of achieving access without unreasonable
cost to the municipality or developer. First, dedication, through the sub-
division control ordinance, of water access lots could be required in any
subdivision containing interior lots; that is, access for the entire subdivision,
not the general public. While this would provide access only to lot owners in
the subdivision, the municipality could later acquire the lot through eminent
domain if the need arose. Using the "before and -after" valuation method
required in condemnation proceedings, the cost of acquisition would probably
be relatively low, due to the difficulty of transfer caused by the many owners
of the lot. The Carolina Beach subdivision regulations require the provision
of water access lots for any subdivison adjoining the sound, the Cape Fear
River, the Intracoastal Waterway, or the Atlantic Ocean if interior lots are
included. Water access lots must be a minimum of 10 feet in width and provided
at the ratio of one lot per 600 feet of frontage. Access lots must adjoin a
public street and be either dedicated to the general public or transferred in
fee to interior lot owners.
- 15 -

The Town of Topsail Beach provides in both its subdivision regulations
and its zoning ordinance for dedication of public access. Section 9-4072 of
the Town subdivision regulations requires that:
In subdivis ion areas being developed, or to be developed in
the future, where the approved streets do not provide ready access
-• to the ocean and/or sound, an access lane of not less than 20 feet
in width shall occur at a maximum of 400 foot intervals to provide
public access to the sound and/or ocean, these access lanes to be
dedicated to the Town by the subdivider.
The Town's zoning ordinance provides in Section 9-5124 that the Town Board of
Adjustment may refuse to grant a special exception unless adequate provision
for access to the sound and/or ocean is provided.
4.4 DONATION
Until recently, donation of private property in beach areas was a rare
occurrence and generally depended on the benevolence of the property owner.
However, two factors acting together --one physical and one legal --may make
donations a significant opportunity for acquisition of property. The physical
factor is the continued high erosion rates affecting North Carolina's coast.
What was once a buildable lot with a protective dune and berm may be reduced
to a few feet of buildable area with no protection at all. The second factor
is the application of the Coastal Area Management Act which establishes certain
setbacks in Ocean Hazard Areas of Environmental Concern. The CAMA setback is
generally measured from the first line of stable natural vegetation. Most
towns, including Topsail Beach, also establish setbacks from the street right-
of-way. These two factors working in combination reduce buildable area on some
lots to the point that a house cannot be constructed. In such cases, the market
value of the lot may be drastically reduced. Although unfortunate, the property
owner can salvage some benefit from these circumstances by claiming casualty
losses on income tax returns and by either donating the property to the Town,
thus creating further tax deductions for charitable donations or, if funds are
available, selling to the Town at the reduced market value. A systematic method
of alerting property owners to potential erosion losses and applicable setback
requirements, and also of possible additional tax benefits from donation rp for
to erosion.losses could result in significant acquisition possibilities for
the Town..
- 16 -

5.0 EVALUATION
Number of Points - Under the guidelines set out in previous sections of
1 access point per 1,000 average seasonal visitors, Topsail Beach has enough
existing points to accommodate not only existing and projected average seasonal
populations through the year 2000, but also even peak seasonal populations.
The recently updated CAMA Land Use Plan makes the following average and peak
seasonal population estimates and projections.
Peak Seasonal Average Seasonal
1980 5,310 4,060
1990 7,720 5,890
2000 10,120 7,720
Since the Town currently has 13 improved access points open and available
to the public, this exceeds even the number of 10.1 that would be required by
the projected peak seasonal population for the year 2000 (10,120 1 1,000 persons
per point). In addition, the Town has an additional 8 points (includes 3 at
Queens Grant) available but unimproved.
Design and Facilities - The recommended designs by the Florida Sea Grant
Program were utilized by the Town in the original construction of its dune
walkovers. Bollards, concrete walks and trash cans are provided. No public
access identification signs are provided at any point. These facilities and
designs are generally considered consistent with the recommended design and
facility standards for local accessways. The major improvement needed is the
addition of public access identification signs. With the exception of minor
repairs to sand fencing, all structures appear to be in good condition.
Parking and Location - These two standards represent the most serious
problems to the Town in providing and controlling access. While some of the
difficulties can be overcome through redesign of existing points and construc-
tion of new walkover structures, some of the problem is caused by previous
design and uncontrollable natural forces. Because of the previous layout of
Town streets, there are few street ends platted to terminate on the ocean side
- 17 -

from Barwick Street north. Excluding Barwick Street (which presently has no
developed accessway), there were only 3 platted access points from this point
north until 2 years ago when the developers of Queens Grant condominiums
agreed to provide 3 additional accessways in the vicinity of the Dolphin Pier.
One additional point was also recently provided at Gaye Street, which is also
adjacent to the Queens Grant project. However, even with the availability of
these new points, a considerable portion of the beach is poorly served, not
only by the unavailability of access points, but also by the shortage of parking
facilities. Because of the proximity of the road to the base of the dune in
this area, parking is limited to 2 to 3 cars on the road shoulder. Users of the
new accessways at the Queens Grant project may also experience problems because
of competition for parking by users of the Dolphin Pier and future condominium
development which may pre-empt or fail to provide new space.
A second problem in the location of points has been caused by the erosion
occurring near the New Topsail Inlet in the southern area of the Town. Two
accessways were destroyed and others damaged by storms requiring berm rebuilding
by the Town, which effectively closed these points. Also contributing to the
parking problem was the design of many of the original walkways. At several
points, street rights -of -way are wide enough and the depth from pavement to dune
is deep enough to accommodate additional parking; however, restrictive boll.ards
were placed close to the pavement edge, thus eliminating additional parking
space.

6.0 CONCLUSIONS AND RECOMMENDATIONS
Within the constraints imposed"by uncontrollable natural forces and
irreversible previous planning of the Town's street system, the Town of
Topsail Beach has provided and improved beach access well beyond the standards
recommended in this plan. Generally, available accessways have been improved
with well constructed, esthetically attractive walkover structures that are
located on the sites in a manner that respects the integrity of the dunes'
protective features.
Consistent with the Town's policy of maintaining existing access points
as local accessways, adequate facilities are provided. Access identification
signs at all points, and the possible addition of bike racks at selected
points, would further improve these areas. Because of the lack of a platted
system of collector streets with street ends traversing the island from sound
to ocean in the area from Barwick Street north, there is.a shortage of available
access points and parking in this area. The problem is compounded by the proxi-
mity of Highway 50 to the landward dune toe, which further limits parking
availability. The shortage of points and parking spaces in this area is less
acute at present because of'the low density of development relative to the more
southern areas of the Town. However, if projected growth rates continue, this
will inevitably become a more serious problem in the future. Some opportunities
do exist to improve this situation at several platted but undeveloped access
points.
The most serious problem in providing access for future populations, primarily
visitors, will be parking. Provision of adequate parking, with appropriate
supporting facilities, will not only improve access and recreational opportunities
for visitors, but help to control and direct pedestrian and vehicular traffic
so that property owners are not intruded upon. Parking can be improved at
several existing points through redesign; however, to adequately provide for
anticipated future visitor increases and direct traffic movement, development
of regional accessways will be required. They should be so located as to be
convenient and to direct traffic movement away from residential areas to the
extent possible.
- 19 -

In accord with the Town's policy, and the states, of providing access
for all persons, consideration should be given to development of at least one
point for handicapped persons in accord with the standards recommended for
handicapped access points.
Recommendations
PRIORITY 1 - COMPLETION OF.EXISTING ACCESS PROGRAM AND UPGRADING
OF SELECTED POINTS
Dune walkover structures, consistent with the recommended design
standards, should be constructed at Barfield Street, Nixon and Fields Avenues.
These points should be developed as neighborhood accessways if parking can be
provided without additional acquisition by the Town.
• The following points should be redesigned to provide additional parking:
Smith Avenue, Darden Avenue, Crocker Avenue, Scott Avenue, Hines Avenue, Crews
Avenue, Empie Avenue, and Rocky Mount Avenue. Redesign should include movement
of bollards seaward to within 5 to 10 feet of the dune toe, establishment of a
border to protect contiguous property owners, and laying of a marl or gravel base
for parking. Establishment of parking lanes may also be desirable. The follow-
ing site sketch illustrates the -des irable redesign configuration for each of the
points identified above. The exact redesign will depend on available depth
from street pavement to dune toe and width of the street right-of-way. Access
identification signs should be added at each point.
PRIORITY 2 - DEVELOPMENT OF NEW TOPSAIL INLET REGIONAL ACCESSWAY
PHASE ONE - All lots from the Sea Vista Motel south should be
acquired by the Town through donation, purchase or condemnation. In the event
fee simple title cannot be acquired, access easements or long term leases
should be negotiated. All houses should be relocated to areas inland or to
areas not experiencing severe erosion. The Town should begin an incentive
program by offering to pay house moving costs in exchange for donation of the
remaining lot.
PHASE TWO - All of the unplatted area south of the Sixth Subdivision
and Godwin Avenue should be acquired by the Town for open space and access
purposes. Acquisition can be through donation, lease, or purchase of fee or
lesser interests.
- 20 -

,4
1tv►ak-,4 ss'Z77d t9'7v�8 �N1.1s1X� �Li

t
1
t`
�J Ujt-�)
--
ov
0
N AN PICA ESL Q
ACCESS -FACILITY p
APBi riOtIt, 1_
AOLDIT'IbN At-_
PAf� <it-4 T- 10 -iS GAizs
c, ono
L� --11�
�J►-IDS �'�
O�
QQQ
Q
1� ,L�.GQ�1� T't��o �GN J�N4T1o��E o1,;-Pv%'cl-flask
L,LL Lors t f, DM SEA V IS 7 q SDOT"14 ON
GGE.ANFF ofiT-
z) % .LOGA47V- ALL �-�Es ©tA oC-F-A-N Fml-Ar
Fff-OfA IGE.A V IST'd- So UT"
p14gs,F 1T
1) ,4 GG� u l P:= dLL ��tQ F-RON1 �-ODW I N AVE
SovrU v-=xcLvst\,e of s►xTI4
I� .as _sUDWt��,✓:=
t�wG ��sT-AL.L. N;✓c�.ssbR,- svF-�r�cF�c.��-�:�
AC:Of:►k NC Tb FUTADItyG
EX tsrl M &
F?0 P-Q ,
/lS
1 K L_!T
a;�inoNAL'���thlG-
ID-�S GA-�S

PHASE THREE - After acquisition of the unplatted area, the follow-
ing improvements should be made to the New Topsail Regional Access Point:
(1) Construction.of a loop gravel or marl road.inside the dune line. The road
should be located so that there is no disturbance of dune formations or
nesting areas for birds. The loop would begin and end at the southern
ends of Ocean Boulevard and Shoreline Drive.
(2) Three or four parking areas should be provided with parking for 10 to 15
cars at each area. At the area with highest visibility, a handicapped
access structure should be constructed in accord with the recommended
design standards.
(3) Additional supporting facilities should be provided to include: bollards
and other traffic control devices to keep off -road vehicles within defined
areas;. access identification and warning signs; trash receptacles; bath-
rooms and foot showers, if feasible; and bicycle racks.
PRIORITY 3 - DEVELOPMENT OF REGIONAL ACCESSWAY AND BOATING ACCESS
AREA AT DOLPHIN PIER
PHASE ONE - Dune walkover structures should be constructed at points
agreed upon by the Town and the Queens Grant condominium developers, with
appropriate supporting facilities.
PHASE TWO - The Town should begin negotiations with property owners
and the State of North Carolina for acquisition of the marsh area adjacent to
and north of the Queens Grant development. After land acquisition, the Town
should request permission from the state to develop the marsh area for parking
area for the regional accessway and as a boat ramp for soundside access.
PRIORITY 4 - ON -GOING DONATION PROGRAM
The Town should begin an on -going program of acquisition of oceanfront lots
through donation in order to provide additional access and eliminate potential
problems from storm damage. The program should focus on informing property
owners of 'projected and potential erosion rates and the tax advantages of dona-
tion prior to severe erosion.
PRIORITY 5 - RECREATIONAL AND OPEN SPACE ACQUISITION PROGRAM
The Town should begin a recreational and open space acquisition program
designed to preserve some areas within the Town as open space and for
- 21 -

recreational purposes primarily for the use of Town citizens. The location of
such areas should be away from commercial and heavy traffic areas, but located
as closely as possible to the more densely populated parts of Town in the
southern area. Recreational facilities should be primarily low -intensity,
passive type uses, such as biking, jogging and fitness.trails; picnic areas;
children's play areas; and nature walks. The most active or intense use would
be tennis courts and outdoor basketball courts.
- 22 -

E— E �L�(g
E{nNDIGAPPED SiRUGTl1KE
JOHN J HOOTON. &.ASSOCIATES
lj h2G S7.,FS Fi7S It�Ca
:n�.VA5 Cklf, Y R�dE
- ¢OAZ7Yr'i:1G TD AR�YA: A.4cA
-- _ - ;—=LEVA QI y2=1'

MOr,�1S
LFiJ
Vs
I
W-rw 7uwl,tv el
t-,
�5Q?J'o'7"109 HrP44

•
= "�
��
Typical Beach Profile
8' below.
existing
profile
•
,
` - __ v-
Beach Storm Profile=
-
EXISTING DUNE
Expected during a storm
CREST LINE
R/W
Varies
Varies
Varies
o
as Required
as Required
as Required
'
_
m
eRgm_p-� secttionkl-8
[A I
}e�
SeScildnsl� C
r•
G
-
t
U
m
Z
J
�
Pedestrian
Barrier
o
N
O
(Fence)
o
Note: Sections of Dune
'
Walkover structure should
be planned to the specific
profile of the area for
which it is desired.
Fig.I TYPICAL
PLAN and
ELEVATION VIEW
Scale: 1�� = 20�

Section I - A - Landside
This Dimension Vries Depending on
Dropoff Beh nd Dune
No to: place steps on beach side
to level of maximum beach
recession during a severe
storm or tropical hurricane
Section I -B - Deck Section l- C - Seaside
This Dimension Varies ' This Dimension Varies
Depending on Width Depending on Dropof f in
of Dune Front of Dune Crest
Typical
Beach
=Nip
-+-/ 0,
j 0'
E MSL
,c
E
O
Beach Storm Profile
(Maximum Expected Recession

O
ih
1
_0
_1
to
0co
6 _ 0��
L �
2 x 8 Trlm
I/2"x 12 Hex.
bolts w1th Nuts on £dt
i Q hashers
5 , _ O„ (head countersunk)
2 x 10 x 7' Joist
2 x 6 x 6' Deckin
r-2 x 10 Spllce Board
Nailed
Hex Bolts with
�L'connectlon
���
ffi
%1 vi
�2xlOx7'
0 • SplIce Boards
•
2 x, 10 x 6' Bents
Fig-3 TYPICAL SECTION I-B DECK
Scale. I"= +t_011
..

6" 0. D. Pile
7- 0"
2,� peck -Q
2SIX f 0 it Stringer
dr
®
Notch Strinqers in f
Field to Rest on Bents _ — — - -----
112" x 12" 2"xlO"Bents
Hex Head Bolts
w Nuts a Washers
2"x 10"Bents
Fig.4 TYPICAL RAMP DETAIL
Scale: 1"= I'- 011

2x6
Deck
6' 8" = 80" = 8 Steps /Section
0
_ ao Tread 2 x /O
2 x lO r ,i
Stringer
2xlO O
Bents "-"' /oil.as
2x l4 -- _ I/2"x 12"
Stringer ® Hex. Bolts
w/ Nuts B
6" 0 Pile ® �� Washers
2xl
Bents
6'- 8 N IL to IL Pilings
Fig.5 TYPICAL STEPS DETAIL
Scale : I "= 1'- 0"

� i 4
7' O" I Varies
Ramp
7' O" Varies 7'- O " _ Varies
Deck
Strinaor Dlmonsions —
A
2 x 10 x 7'-9"
-B
2 x'10 x 7E "
c
z x.10 x „
D
2 x 10- x 7'-0"
E
2x10x 7'--3"
F
2 x 14 x 9'-0" notchod for steps
G
e
2 x 14 x 8'- 6" notched SfODS
H
2 x 14 x 8'- 9" notched for sfei7q
Den_t__Dim¢nsio
/ - 2 ►' ..
Splice Dimonslon
2 x 10 x 2,- O_
1'
Note. Bill of Materials based on ramp
length of 21; deck length of 26' and 2
stair sections of 6'- 8°each.
Fig.6 TYPICAL STRINGER LAYOUT DETAIL
11
Scale: 1 = 5�-0
-Deck /Steps ot. Steps
Note: All splice blocks to be nailed
to stringers to provide both lateral
support at joints and bearing support.
All pile bolted connections to be 112
x 12 "hex. bolt with nut and washers.
4uan.
'Item - Description
44
2 x 6 x 20'
dressed
9
2 x x 20
dressed
5
2 x lox 20'
dressed _..
19
2 x lox 2 '
roui7h
3
2 x14 x 20'
rou h
100
1/2'Sc 12" hex. bolt with nut and rashers

Include as many step
sections
as necessary
to grade
from top of dune f 3
feet to
base of rear
dune.
To Road
Section / A Landside Section l -B Deck
This Dimension Varies ,�_ This Dimenslon Varies
Depending on Dune Backslope
Fig.7 ALTERNATE SECTION No.I
Scale : ( 11 = 51- 0"
(Refer to details as per Figure 2)
To Ocean

r
FIG-8 TYPICAL SECTION
scale: I"= I1- di

Varies
6101 Varie s 6'- 0"
A An. ----L
II ,
6'- 0" I Varies
6'0"
eps ' Deck/Steps ( Deck Deck/Steps Steps
A
2
x
12 x
8
notched for steps
B
2
x
1Z x
T-9
C
2
x
12 x
6
0
2
x
12 x
7 -B
notched for steps
E
2
x
12 x
T- 6
notched for steps
SPLICE
BLOCK
01M2'.SION
F
2
x
/2 x
/-6
BILL OF Al YE'RI LS
QUAN .
ITEM DESCRIPTION.
I08
2x /2 Str! ers ll a ks
16
4 x 4 Posts or Poles
66
1/2x /2 Hex boll w/ nut and washers
0
E M
Note: All splice blocks to be nailed to
stringers to ' provide both lateral and
bearing support at joints. All pile
bolted connections to be 1/2"x 12"
hex bolt with nut and. washers.
Bill of Materials based on 24' deck
and step lengths, 6' and l2'
FIG.9 TYPICAL STRINGER LAYOUT
scale: I`=- 5`