Burgaw 2030 Comprehensive Land Use Plan

Transcription

2013
Burgaw 2030
Town of Burgaw Comprehensive Land Use
Plan
Town of Burgaw Planning Department
1
6/11/2013
Contents
Section 1: Inventory and Analysis of Existing Conditions ....................................................... 5
Introduction .......................................................................................................................................... 5
General Location of Burgaw ........................................................................................................ 5
History ................................................................................................................................................ 5
Municipal Government .................................................................................................................. 5
Planning Jurisdiction..................................................................................................................... 5
Population, Housing, and Economic Conditions ...................................................................... 7
Population.......................................................................................................................................... 7
Social Characteristics .................................................................................................................... 9
Housing Characteristics.............................................................................................................. 12
Economic Conditions ................................................................................................................... 15
Existing Land Uses ........................................................................................................................... 22
Definitions and Descriptions of Existing Land Uses ......................................................... 22
Land Use Trends ........................................................................................................................... 28
Annexation Activity....................................................................................................................... 32
Existing Ordinances and Land Use Controls ....................................................................... 33
Public Facilities.................................................................................................................................. 36
Water Supply .................................................................................................................................. 36
Sewage Disposal ............................................................................................................................ 37
Solid Waste Disposal .................................................................................................................... 37
Police ................................................................................................................................................. 37
Fire Protection ................................................................................................................................ 38
Administration ............................................................................................................................... 39
Town Properties ............................................................................................................................. 40
Transportation ............................................................................................................................... 41
Emergency Services ...................................................................................................................... 43
Electrical Distribution ................................................................................................................. 44
Telecommunications .................................................................................................................... 44
Schools ............................................................................................................................................. 44
Parks and Recreation ................................................................................................................... 45
Health Services .............................................................................................................................. 45
2
Physical Conditions .......................................................................................................................... 47
Topography/Geography .............................................................................................................. 47
Hydrology ......................................................................................................................................... 48
Soils ................................................................................................................................................... 49
Resources and Sustainability ................................................................................................... 52
Section 2: Projected Land Development Analysis ..................................................................... 60
Population, Housing, and Economic Conditions .................................................................... 60
Population Trends ......................................................................................................................... 60
Housing Trends.............................................................................................................................. 61
Economics ....................................................................................................................................... 61
Land Use .............................................................................................................................................. 62
Transportation ................................................................................................................................... 64
Annexation .......................................................................................................................................... 66
Section 3: Public Participation Program....................................................................................... 67
Issue Identification Session ........................................................................................................... 67
General Land Use Plan Survey ..................................................................................................... 67
Visual Preference Survey ................................................................................................................ 68
Focus Groups/Policy Area Interview .......................................................................................... 68
Agriculture & Forestry ................................................................................................................. 68
Environment ................................................................................................................................... 69
Economic Development ............................................................................................................... 70
Youth Development ...................................................................................................................... 70
Transportation ............................................................................................................................... 71
Public Health and Safety ............................................................................................................ 71
Housing ............................................................................................................................................ 71
Section 4. Comprehensive Future Land Use Plan .................................................................... 73
Burgaw 2030 Vision Statement.................................................................................................... 73
Burgaw 2030 Goals, Policies, and Actions ............................................................................... 73
Land Use .......................................................................................................................................... 74
Governance ..................................................................................................................................... 76
Economic Development ............................................................................................................... 78
3
Agriculture and Forestry............................................................................................................. 79
Environmental Protection ........................................................................................................... 81
Public Health and Safety ............................................................................................................ 83
Transportation ............................................................................................................................... 85
Housing ............................................................................................................................................ 87
Equity Statement .............................................................................................................................. 88
Future Land Use Map ...................................................................................................................... 89
Land Use Categories..................................................................................................................... 89
Appendix 1: Town of Burgaw Expenditure Categories ............................................................ 94
Appendix 2. Amendments to the Unified Development Ordinance and Official Zoning
Map ............................................................................................................................................................ 96
Appendix 3. Proposed Sidewalk Map .......................................................................................... 108
Appendix 4: Issue Identification Session Responses ............................................................. 109
4
Section 1: Inventory and Analysis
of Existing Conditions
History
Burgaw was originally developed as an
important railroad junction on the Wilmington
to Weldon railway. The town still has the
oldest existing train depot in North Carolina.
After becoming the county seat under the
name “Stanford,” the community officially
incorporated as the town of “Burghaw” on
February 25, 1879 in honor of the Burghaw
Indians who first lived in the area.
Introduction
In 2009, the Burgaw Planning Department
began a multi-year planning initiative to
update the town’s 1997 Land Use Plan. The
plan was initially envisioned as a way to meet
the requirements of the North Carolina
Coastal Area Management Act (CAMA), which
became required for all coastal counties in
1974. However, as planning staff worked on
the project, the plan became more
comprehensive in nature, taking into account
topics not always associated with land use or
included in CAMA plans, such as governance
and equity.
Many of the town’s oldest and most
recognizable structures are due to its function
as the county seat. The Pender County
Courthouse, a National Register landmark,
serves as the physical and cultural center of
the town and is flanked by the former Pender
County Jail, historic downtown, Town of
Burgaw offices, and the historic depot.
While the planning process has allowed the
town to educate itself about its existing
conditions, to elucidate its vision for the
community, and to provide a forum for all
citizens to become engaged in the future of the
town, the primary purpose of the last three
years’ work is the plan itself. This document
is intended to be the map for the town’s
endeavors over the next decade, in order to
achieve our vision of Burgaw 2030.
Municipal Government
The Town of Burgaw operates under a councilmanager form of government. The Board of
Commissioners consists of a mayor and 5
board members, all with four-year terms. A
town manager, appointed by the Board of
Commissioners, is the administrative head of
the Town’s government. The town clerk, also
appointed by the board, serves as the liaison
between the governing board and town
citizens.
General Location of Burgaw
Located in the center of Pender County, the
Town of Burgaw has served as the county seat
since 1877. Two major regional highways, NC
53 and US 117, run through the town, and
Interstate 40 is located within a mile of the
town limits.
Planning Jurisdiction
Burgaw’s planning jurisdiction encompasses
the entire corporate limits of the town and an
extraterritorial jurisdiction (ETJ) area that
extends between one and two miles past the
town limits.
The Town is approximately 25 miles from the
closest metropolitan center, Wilmington, and
100 miles from the state capital, Raleigh.
Area beaches are also within a 30-minute
drive, and recreation activities on the Black
and Northeast Cape Fear River are also only a
short drive away.
The town’s Unified Development Ordinance
outlines land use regulations for this entire
area; however, the Town of Burgaw Code of
Ordinances, including the nuisance code, and
some programmatic activities only include the
corporate limits.
5
6
Point. Both areas are within close proximity
to the New Hanover County line, and the
Rocky Point/Topsail Water and Sewer District,
which includes both areas, was created in
1996. The proximity to a major economic
center and utility infrastructure has provided
attractive and affordable residential building
opportunities for these unincorporated areas
of the county.
Population, Housing, and Economic
Conditions
Population
The Town of Burgaw experienced high growth
in the 2000s due to a housing boom; however,
that rate of growth proved unsustainable after
the economic recession began in late 2007.
According to the 2010 US Census, Burgaw
has a population of 3,872. Roughly 750 of
those counted (19% of the population) were
prisoners incarcerated in Pender Correction
Institution, a male-only facility, skewing data
on gender and other demographic descriptions
of the town.1
Populatoin
Graph 1: Population Growth of
Pender County Municipalities, 2000 2010
Permanent Population
Regional and County. The majority of the
growth in Pender County between 2000 and
2010 occurred in the unincorporated portions
of the county, which had a 28.9% increase in
total population. The municipalities of the
county experienced only a 16.5% increase
from 2000 to 2010. The majority of the
difference in population growth between the
incorporated and unincorporated portions can
be attributed to high growth in two specific
unincorporated areas—Hampstead and Rocky
2010
Municipalities
5,983
6,971
988
16.5
Unincorporated
Areas
35,099
45,246
10,147
28.9
Total County
41,082
52,217
11,135
27.1
2000
2010
Municipality
Table 1: Pender County Population Changes since 2000
2000
4500
4000
3500
3000
2500
2000
1500
1000
500
0
Population Percent
Change
Change
Town of Burgaw. Over the past decade, the
Town of Burgaw’s growth rate was fourth
among the six municipalities in Pender
County. Although Burgaw did not experience
the greatest population percentage increase,
from 2000 to 2010, it experienced the greatest
total population increase with 535 additional
permanent residents (Graph 1). In addition,
with a 2010 population of 3,872, its
population is more than double that of the
second largest municipality in Pender County
(Surf City at 1,853).
While its population remained relatively stable
from 1950 to 1990 with minor decreases in
the 1960s and 1970s, Burgaw began
experiencing major population growth in the
past two decades (Graph 2). In June 1990,
Interstate 40 opened, reducing travel times to
Wilmington and Raleigh, and the connectivity
to I-95 and the rest of the state fostered
1
It should be noted that data acquisition for this plan does not
directly correspond with previous plans. In 2010, the US
Census collected short-form data that measured only
population, people per household, sex, age, race, Hispanic or
Latino origin, housing type, and occupancy status. Due to the
limited short-form data, there is fractional detailed information
available for analysis. The US Department of Commerce elected
to conduct the “American Community Survey” to replace the
long-form for the decennial census. The American Community
Survey collects and provides estimates on population
demographics, social and economic characteristics, and
housing. Some of the data shown in this plan is based on these
estimates rather than actual decennial counts.
7
industrial growth. In all, between 1990 and
2000, the town’s population grew by 1,530
residents, an 84.7% population increase.
(5-19) and 21% of the population is under the
age of 20. The retirement-age population is
approximately the same size, as 16% of the
population is age 65 or older.
Population
Graph 2: Population Increases for the
Town of Burgaw from 1950 to 2010
4500
4000
3500
3000
2500
2000
1500
1000
500
0
The median age for the town was 39.5,
compared with 41.1 for Pender County and
37.4 for the State of North Carolina. As
mentioned earlier, however, almost a fifth of
the town’s counted population is incarcerated
at Pender Correctional Institution. In general,
most incarcerated prisoners are within the 2030 age range, skewing the median age for the
town lower than it may be otherwise.
3337 3872
1613 1750 1744 1738 1807
Graph 3: Town of Burgaw
2010 Population by Age
Year
350
300
Since the 1997 Land Use Plan, the town has
also annexed over 600 acres, increasing the
town’s total acreage by approximately 30%.
Two of the annexed tracts have since been
developed for residential subdivisions.
Overall, Burgaw’s population has increased by
535 permanent residents between 2000 and
2010, a 16% population increase. Prior to
2007, Burgaw’s population was expected to
experience rapid growth in the future due to
its proximity to the Wilmington metropolitan
area, and some residential projects were
resumed in 2011. However, the economic
recession has affected both job growth and
demand for residential properties in the area,
resulting in smaller than expected population
growth. The lower cost of living and relatively
stable economic outlook for the town should
lead to sustained growth, though.
Population
250
200
150
100
50
(85+)
(75-79)
(65-69)
(55-59)
(45-49)
(30-34)
(20-24)
(10-14)
0-5
0
Age Group
Race and Ethnicity. Burgaw is slightly more
diverse than Pender County as a whole. Nonwhite ethnicities are higher in Burgaw than in
the county at large for all categories except
Asian.
Overall, the town is approximately one-half
white, 40% black or African American, and 7%
Hispanic or Latino. The remaining population
of the town is American Indian or Alaskan
Native; Asian, Native Hawaiian or Other
Pacific Islander; or multi-racial. Pender
County, on the other hand, is roughly 75%
Composition and Age
Age. The two largest age groups of Burgaw’s
2010 population were the 25-29 and 30-34
age groups, with each comprising 7.8% of the
total population. In addition, approximately
15.3% of the town’s population is school age
8
white, 18% black or African American, and 6%
Hispanic or Latino. The percentage of all
other racial or ethnic groups is similar.
In comparison, the average household size for
Pender County is 2.51 people, and North
Carolina’s average is 2.48.
Social Characteristics
Graph 5: Average Household Size
2.8
2.6
2.4
2.2
2
Number of Households
The US Census Bureau defines a household
as all the people who occupy a housing unit
as their usual place of residence. According to
the 2010 US Census data, there were a total
of 1,287 households in the Town of Burgaw.
This is over twice the number that existed in
1980 and 1990. There has been an increase
of 328 households since 2000.
1980
1200
1000
Nonfamily households are defined by the US
Census Bureau as people living alone and
households that do not have members related
to the householder. The 2010 American
Community Survey (ACS) estimated that 506
households in Burgaw fall under this
definition. Of these 506 households, only 13%
were estimated to be occupied by roomers or
boarders, and 87% were single person
households.
800
600
400
200
0
2000
2010
The US Census categorizes households as
family households, nonfamily households, and
group quarters. Of all Burgaw’s households in
2010, sixty-one percent (61%) were classified
as family households. The make-up of these
households was 60% husband and wife
structure and 40% single parent structure.
1400
1990
2000
Household Types
Graph 4: Number of Households
1980
1990
2010
The population living in group quarters is not
included in the number of households.
According to the 2010 US Census, 24% of
Burgaw’s population lived in group quarters.
Ninety-nine percent (99%) of this demographic
was institutionalized in correctional facilities,
nursing homes, or mental hospitals.
Starting in 1990, the number of single person
households rose exponentially, especially for
those under age 65. From 1980 to 2010, the
number of single persons aged 65 and older
living alone grew by over 140%. The number
of single persons living alone under age 65
rose by over 225% from 1980 to 2010.
Average Household Size
Burgaw 2010 average household size was 2.28
people per household, the smallest average
household size in 40 years. The size of the
average household has decreased gradually
since 1980, though the number remained
relatively stable from 1990 to 2000.
9
Graph 7: Owner and Renter Occupied
Household Size for Burgaw in FY 2010
Total Number of Households
The number of non-family households in total,
however, has been decreasing since 2000.
The number of family households, however,
has been growing since 1990.
Household Tenure
According to the 2010 US Census, Burgaw
households were 49% owner occupied and
51% renter occupied. These values are much
closer than their 2000 values. In 2000, the
American Community Survey estimated that
57.2% of occupied housing units were owner
occupied and the remaining 42.8% were
renter occupied.
150
1
Person
HH
65&UP
100
50
1990 2000
Year
Renter
Occupied
150
100
50
0
1
2
3
4
5
6
7+
Total Persons In Household
250
0
1980
200
Graph 8: Tenure by Age of Householder,
2010
Number of Residents
Number of Households
1
Person
HH
Under
65
200
Owner
Occupied
250
In the 2000 American Community Survey,
there were 954 occupied housing units in
Burgaw. Residents above the age of 65
accounted for the greatest percentage (28%) of
all age groups for living in owner occupied
housing units. This situation remained true
for the 2010 survey estimates. The 2010
results included a breakdown of owner
occupied and renter occupied tenure by age of
householder.
Graph 6: Tenure by Single Person
Households
250
300
2010
The greatest demand for renter occupied units
are for one person household sizes.
Additionally, renter occupied living was in
greater demand than owner occupied for
households with 3+ persons. An explanation
for this trend may be that current high
housing prices are too expensive for local
salaries or that there is less desire for home
ownership in a difficult market.
200
Owner
Occupied
Renter
Occupied
150
100
50
0
15 to 25 to 35 to 45 to 55 to 65
24 34 44 54 64 and
over
Age
According to these findings, residents under
the age of 35 are the most likely to rent versus
owning their home. The older the resident,
the more likely they are to own their home,
with residents between 45 and 54 having
roughly equal owner occupied and renter
10
tenure and those 65 and older being almost
twice as likely to own versus renting.
Fertility Rates
According to the 2010 American Community
Survey estimates, the birth rate for the Town
of Burgaw is 136 births for every 1,000
women. Based on these calculations, an
estimated 14% of women between the ages of
15-50 gave birth in the twelve months
preceding the survey. The racial distribution
of these births was approximately 60% white,
40% Black or African American, and 0.9%
Hispanic or Latino origin. The survey reported
that 66% of these births came from women
ages of 20 to 34 years, followed by 35 to 50
years with 21%, and finally 15 to 19 years
with 13%. Burgaw’s mothers were more likely
to be older or younger than North Carolina as
a whole which had 73.8% of births to mothers
ages of 20-34 years, 17.8% to those between
35 and 50, and 8.4% to those between 15 and
19.
Additionally, of the Burgaw residents who own
their home, 61% have a mortgage and 39%
own it free and clear.
Marital Status
The 2010 US Census data highlights the
number of married versus not married
residents living in Burgaw. Of the 3,194
Burgaw residents over the age of 15, only 36%
were married. For the purposes of this report
it was assumed that the remaining
populations of residents over the age of 15
were considered not married. Under this
assumption, the town’s not married
population comprised the remaining 64% of
the age 15 and above demographic.
Percent of Population over 18
Graph 9: Percent Change of Marital
Status
70
60
50
40
30
20
10
0
Geographic Mobility
The 2000 US Census found that 46.5% of
Burgaw residents lived at the same residence
as they did in 1995. In comparison, the 2010
American Community Survey estimated that
76% of residents lived in the same residence
as they did in 2006. The most stable
demographics for Burgaw according to the
2010 census were white residents, nonmarried residents, owner occupied housing
tenants and males. Each of these
demographic groups had over 40% living in
the same residence as one year previous. The
owner occupied housing tenant population
was the leading demographic for stability. The
2010 ACS estimates that almost 49% of owner
occupied housing tenants in Burgaw were
living in the same house as one year previous.
Married
Not
Married
1980 1990 2000 2010
Year
According to the NC LINC database, which
provides census data on a variety of topics
spanning the past several decades and the
results of the 2010 American Community
Survey, the mid-1980s saw a reverse in
traditional patterns and the not married
demographic began outnumbering the married
demographic. By 2000, the demographic
groups were roughly equal again, but the
number of non married persons over 15 began
increasing sharply as those who were married
dropped.
Of the estimated 472 Burgaw residents living
below 100% of the poverty line, 25.2%
migrated from within Pender County
(including from within Burgaw) and 7.6%
moved in from a different North Carolina
County. These figures account for nearly 1/3
11
of the total Burgaw population below 100% of
the poverty line. However, the 2010 estimates
for Pender County show that only 16.2% of
the county’s population below 100% of the
poverty level migrated from within the county
or from a different county within the State of
North Carolina.
spoke English in their households. The next
most common language is Spanish or Spanish
Creole, with 256 residents speaking Spanish
at home. Of those, 74% spoke English less
than “very well.” Five percent (5%) of
residents between the ages of 5 and 17 spoke
English at home.
Housing Characteristics
Graph 10: Mobility of Population Below
100 percent of the Poverty Level
Number of Housing Units
The Town of Burgaw currently has 1,473
housing units, an increase of 422 units (40%)
since 2000 and over twice as many as 1990.
Same location
previous 12 months
8%
25%
While the majority of these residential units
are occupied year-round, the number of
vacant units has increased by over 91% since
2000. This increase is a much higher rate
than that experienced by occupied units.
There is little data indicating whether the
vacant housing units are temporary vacancies
due to renter turnover or long-term vacancies.
The population growth of the town does
correspond with the increase in total housing
units, given an average household size of
1.267.
Moved within
Pender County
67%
Moved from
different county
within North
Carolina
The location of social services, health care,
and subsidized housing within Burgaw may
contribute to in-migration of this population.
These residents are also primarily renters, and
residents who rent are also more likely to have
moved within the last twelve months. The
high geographic mobility for lower wealth
households has impacts on the level of
services required at the local level and the
ability for such services (such as education
and health care) to lead to sustained
improvements in living conditions. However,
based on the census information, it appears
that the primary high-poverty populations
moving into Burgaw are from within Pender
County.
Table 5: Housing Tenure and Vacancy, 1990, 2000, and
2010
1990
2000
2010
1,473
Numeric
Increase
422
%
Increase
40.15
Total Units
702
1,051
Year-Round
Housing Units
n/a
1,003
1,405
402
40.08
Vacant Housing
Units
77
97
186
89
91.75
It should be noted that the majority of the
growth in housing units from 2000 to 2010
occurred in the first half of the decade.
Construction has fallen sharply since 2007.
Language Spoken at Home
Unsurprisingly, English is the language used
most commonly in Burgaw. According to the
2010 ACS estimates, 3,289 residents (91.4%
of total population) above the age of 5 only
12
values are considered affordable by today’s
standards, they have increased dramatically
since the 1997 Land Use Plan was adopted,
when the median home value was $55,200.
The median home value has almost tripled
since 1990, when all homes within the town
limits were valued at under $200,000 and less
than 10% were $100,000 or higher.
Age of Housing Units
The Town of Burgaw’s housing stock varies
widely in terms of age. In 2010, almost 15%
of the Town’s total residential units were
constructed before 1940, over 61% of the
housing stock was over 30 years old, and 12%
of units were built since 2000. The greatest
period of housing growth occurred during the
1960s when approximately 21% of the total
units within the current town limits were
built.
Graph 12: Housing Values, 2010
2%
16%
Graph 11: Number of Residential
Structures by Year Built
15%
9%
8%
11%
$50,000-$99,999
18%
13%
15%
1990-1999
25%
19%
21%
$300,000-$499,999
$500,000-$999,999
$1,000,000+
1980-1989
7%
$150,000-$199,999
$200,000-$299,999
2000-2004
3%
Less than $50,000
$100,000-149,999
2005+
3%
0%
1970-1979
1960-1969
15%
Housing Conditions
1950-1959
Heating Fuel. According to the 2012
American Community Survey, most residential
units within the town limits use electricity as
their main house heating fuel, with 811 total
units. The 2010 survey also identified eight
housing units that do not use any heating fuel
for their homes. Since the town’s minimum
housing ordinance requires that all dwelling
units have a primary heating source, it is
possible that this count is due to lack of
heating fuel rather than a need for a furnace,
fireplace, etc.2
That high rate of housing growth continued
from 1960 to 1989. Over half (55%) of the
town’s housing stock was built during this 30year period. The median year residential
structures were built is 1973.
Housing Values
The 2010 median value of Burgaw’s housing
stock was $164,700, while the median value
of residential units in Pender County as a
whole was $147,200. These numbers can be
misleading because Pender County had 355
units (2.2% of total housing stock) valued over
$1,000,000 in 2010, while Burgaw had none.
2
Section 6-84 of the 2002 Minimum Housing Code requires
that “every dwelling unit shall have heating facilities which
are properly installed, are maintained in safe and good
working condition, and are capable of safely and adequately
heating all habitable rooms, bathrooms and water closet
compartments in every dwelling unit therein to a
temperature of at least 60 degrees Fahrenheit.”
The majority of homes within Burgaw are
under $200,000 in value, and only 2.1% are
over $500,000. While the town’s housing
13
Plumbing and Kitchen Facilities. All
housing units within the town limits have
complete plumbing and kitchen facilities,
compared with 1990 when six lacked complete
plumbing facilities and five lacked complete
kitchen facilities.
that several residences and/or businesses still
use a septic system and have not connected to
the town’s sewer system. No out-of-town
residence or business currently uses town
sewer.
Housing Type
Water and Sewer. According to the town’s
water account system, all residents inside the
town limits use town water. Certain residents
have water wells, but the water source is
privately used for irrigation. It should be
noted that the total number of water accounts
is not a direct representation of the total
housing or business units. There are fifteen
water accounts for residents/businesses
The majority of housing units within the town
are single-family detached dwelling units.
This type of dwelling makes up three-quarters
of the town’s residential structures. However,
this percentage has decreased since 1990,
when over 80% of the town’s housing units
Table 7: Housing Tenure, 1990, 2000, and 2010
1990
2000
2010
% Increase
1,405
Increase
Since
2000
402
n/a
1,003
455
546
631
85
15.57
170
408
656
248
60.78
Table 6: Housing Conditions, 2010
Condition
Occupied
Units
OwnerOccupied
RenterOccupied
Number of Units
House Heating Fuel
Utility Gas
22
Bottled, tank, or LP gas
171
Electricity
811
Fuel oil, kerosene, etc.
11
Coal or coke
0
Wood
16
Solar Energy
0
Other Fuel
0
No Fuel Used
8
Lacking Complete Plumbing Facilities
0
Lacking Complete Kitchen Facilities
0
Water
40.08
were single-family homes.
Most of the change in housing type has
occurred in multi-family dwellings, which have
doubled over the last two decades. In 1990,
there were 90 multi-family dwelling units;
there are currently an estimated 211.
Graph 13: Type of Housing
4%
1, detached
1%
1, attached
18%
3
Inside Town limits
Outside Town Limits
1%
1,233
15
76%
Multi-Family
(2 or more
apartments)
Mobile Home
Sewer4
Inside Town limits
Outside Town Limits
Boat, RV, Van,
etc.
1,188
0
outside the town limits.
3
The number of active accounts is not an accurate
representation of the total housing units. The values given are
the number of active accounts for the Town of Burgaw’s
services in 2012.
There are 45 fewer sewer accounts than water
accounts within the town limits, indicating
14
Despite more regulations regarding placement
of mobile homes, there are twelve new
manufactured home dwelling units as
compared to 1990. A portion of these homes,
however, may be attributed to areas annexed
since 1990.
Graph 14: Median Household Income
(2010 Dollars)
50000
45000
40000
35000
30000
25000
20000
15000
10000
5000
0
The number of single-family dwelling units,
attached has only increased by three units
since 1990. This category may include both
townhouses and duplexes. In townhouses,
double houses, or houses attached to
nonresidential structures, each house is a
separate attached structure if the dividing or
common wall goes from ground to roof.
1980
1990
2000
2010
Housing Tenure
When compared to the State of North
Carolina, the Town of Burgaw and Pender
County were well below the State’s median
family income values in 1990 and 2000.
However, the 2010 median family incomes
levels are largely comparable. Burgaw
experienced a drop in median family income
from 1980 to 2000, but its growth levels from
1990 to 2000 have brought it in line with the
state and county. The town does not seem to
have suffered as much of a decrease in terms
of family income levels due to the recession as
at the state and county levels.
According to the 2010 US Census, there are
slightly more renter-occupied dwelling units
than owner-occupied units. The portion of
renter-occupied units has increased by over
60% since 2000. In comparison, the number
of owner occupied dwelling units has only
increased by 15.57%. The increase in multifamily apartment units, primarily rental
properties, can account for at least a portion
of this increase, but the demand for rental
units has also increased because of the
economic recession beginning in 2007.
Economic Conditions
Income Levels
Graph 15: Median Family Income
(2010 Dollars)
The Town of Burgaw has experienced a slight
increase in the median household income for
the past thirty years, when adjusted to
account for inflation. Beginning in 1980, the
median household income for town residents
was $12,781 ($33,822 in 2010 dollars). The
median household income for Burgaw
residents was $45,579 in 2010, according to
ACS estimates. This is an increase of 35%
between 1980 and 2010. Median household
income experienced the greatest decadal
percent increase from 2000 to 2010. The
majority of the growth experienced (25%) since
1980 occurred during that decade.
70000
60000
North
Carolina
50000
40000
Pender
County
30000
20000
Burgaw
10000
0
1970 1980 1990 2000 2010
15
higher than that for either Pender County or
North Carolina and has been so since the
early 1990s. In 2010, the percentage of
persons in poverty in Burgaw was just under
20% of the population.
While per capita money income trends have
been steadily increasing in absolute values,
when adjusted for inflation, the income per
person has been decreasing steeply since
1990. When viewed in conjunction with
trends of smaller average household sizes, this
trend indicates that population growth (and
household size) for households with smaller
incomes is more rapid than for households
with larger incomes.
Percent
Graph 17: Percent of Persons in
Poverty
Graph 16: Per Capita Income Trends
$25,000
Inflation
Adjusted
Values
$20,000
40
35
30
25
20
15
10
5
0
North
Carolina
Burgaw
Pender
County
1970 1980 1990 2000 2010
$15,000
$10,000
Burgaw’s black residents have a higher
poverty level percentage than its white
residents. Since 1990, over 30% of the total
black population in Burgaw was living in
poverty. Comparatively, white resident
populations have never had over 10.3% of
their total racial demographic living in
poverty. In 2010, the racial poverty disparity
was the greatest in 20 years, with 44% of
black residents living in poverty and only 7.4%
of white residents living in poverty.
Absolute
Values
$5,000
$0
1980
1990
2000
2010
Poverty Rate
The percentage of persons in poverty for the
Town of Burgaw has declined by almost four
percentage points since data was first
collected by the census in 1980. This
decrease is slightly less than that of Pender
County as a whole, which experienced a
decrease of a little over 7 percentage points
since 1980, but compared favorably with
North Carolina’s percentage poverty rate,
which had decreased fewer than 2 points from
1980 to 2000 and increased to a level above
the 1980 rates from 2000 to 2010.
Percent of Total
Graph 18: Percent of Population in
Poverty by Race
Burgaw is the only of the three that
experienced a further decrease in the poverty
level from 2000 to 2010 but was also the only
one that experienced an increase in poverty
from 1990 to 2000. In addition, Burgaw’s
percentage of persons in poverty also remains
50
45
40
35
30
25
20
15
10
5
0
% White
Poverty
% Black
Poverty
1990
16
2000
2010
Another demographic with increasing poverty
rates is children. In 2010, the percentage of
children under age 18 was almost double that
of the percentage of those in poverty overall in
the Town of Burgaw. The town’s percentage of
children in poverty has increased steadily
since 1990, with an even more dramatic
upswing since 2000. While both North
Carolina and Pender County’s childhood
poverty percentages have increased since
2000, they were much lower to begin with and
had steadily declined since 1970. Currently,
over a third of Burgaw’s children are living in
poverty, as compared to approximately onefifth of children in North Carolina and Pender
County.
Carolina or Pender. They have both
experienced upswings since 2000, most likely
due to the recession, while Burgaw’s
percentages have been growing at an
extremely high rate since 1990.
Graph 20: Percent of Young Children in
Poverty
(under 6--1970-2000, under 5--2010)
50
45
Percent
40
35
North
Carolina
30
Burgaw
25
20
Pender
County
15
10
Graph 19: Percent of Children under 18
in Poverty
5
0
45
1970
1980
1990
2000
2010
40
35
Percent
30
25
North
Carolina
20
Burgaw
On a more positive note, the percentage of
adults 65 and over has been declining since
1980, when the percentage of senior citizens
in poverty was at 29.72%. The percentage of
seniors in poverty stayed at about 20% in both
1990 and 2000 and dropped drastically in
2010 to just under 5%. This trend is
comparable to those experienced in North
Carolina and Pender County, though Burgaw’s
current poverty rates for seniors are
significantly less than those for the state and
county, which are 10.7% and 13%
respectively.
15
10
Pender
County
5
0
1970 1980 1990 2000 2010
The numbers for young children, those under
6 in the 1970-2000 census data and under 5
for the 2010 ACS estimates, is even more
troubling. Almost half of all of Burgaw’s
children under 5 in 2010 were living in
poverty, increasing from a little over a third of
children under 6 in poverty in 2000. Again,
these rates are not comparable with the
trends of Pender County or North Carolina.
Burgaw currently has almost twice the
percentage of children in poverty as in the
state or county as a whole. Also Burgaw’s
percentage poverty rates have been increasing
for a longer period of time than in North
Educational Attainment & School
Enrollment
Beginning in 1980, the educational
attainment of a bachelor’s degree or higher for
residents 25 and older has remained relatively
consistent—at about 17%. The rate is not
comparable to the rest of the state. The 2010
percentage of a bachelor’s degree or higher in
Burgaw was well below the North Carolina
percentage of 26.1% for the same
17
demographic. The High School education
attainment for residents 25 years and older
has steadily increased in 1980, though.
Burgaw’s 2010 High School educational
attainment percentage was the highest with
74.2%, but this value was still below the North
Carolina average, which was 83.6%.
Table 8: High School or Higher
2000
2010
Total
25-34 yrs
84.10% 76.40%
% Change
-9.16
Male
81.70%
73.60%
-9.91
Female
89.70%
83%
-7.47
35-44 yrs
Graph 21: Total Education Attainment for
Burgaw Residents Ages 25+ years
80.00
75.70%
79.70%
5.28
Male
69.50%
70%
0.72
Female
91.70%
95.30%
3.93
45-64 yrs
70.00
Percent of Total
Total
HS Grad
age25+
60.00
50.00
40.00
College
Grad age
25+
30.00
20.00
0.00
1990
2000
69.40%
79.10%
13.98
Male
56.40%
79.50%
40.96
Female
83.20%
78.60%
-5.53
65+ yrs
10.00
1980
Total
Total
49.40%
58.70%
18.83
Male
55.30%
66.80%
20.80
Female
46.40%
54.20%
16.81
2010
Table 9: Bachelor’s Degree or Higher
2000
According to the 2010 ACS, residents between
the ages of 35 and 44 with a bachelor’s degree
or higher have experienced the greatest
percent decrease when compared to all other
ages and educational attainment levels. From
2000 to 2001, residents within this age
demographic experienced a 44.07% decrease
in the total number of residents with a
bachelor’s degree or higher. This decrease is
attributed to the 73.16% decrease in that level
of educational attainment for women in that
age bracket.
2010
Total
25-34 yrs
18.30% 14.30%
% Change
-21.86
Male
14.60%
12.80%
-12.33
Female
26.50%
18%
-32.08
35-44 yrs
Total
11.80%
6.60%
-44.07
Male
5.90%
6.10%
3.39
Female
27.20%
7.30%
-73.16
45-64 yrs
The second greatest decline in educational
attainment values was experienced by
residents 25-34 with a bachelor’s degree or
higher. Within this demographic, both male
and female residents’ values declined sharply.
Total
17.80%
21.80%
22.47
Male
18.70%
19.40%
3.74
Female
16.80%
25.10%
49.40
65+ yrs
18
Total
13.20%
15.90%
20.45
Male
16.80%
19.50%
16.07
Female
11.40%
13.90%
21.93
Employment Rate
Commuting Patterns
Between 2000 and 2010, Burgaw’s
employment rate decreased by 5%--down from
92% to 87%. These values are below the State
of North Carolina average. In 2010, North
Carolina had an employment rate of 90%.
This value is down from the 2000 values
where 93% of the state’s residents were
employed.
The commute times for Burgaw’s residents
have steadily increased over the last 30 years.
The average commute time for Burgaw
residents in 2010 was almost 10 minutes
longer than the average time in 1980. When
compared to the State of North Carolina and
Pender County, Burgaw has historically had
shorter commute times up until 2010 when
the state’s and county’s commuters
experienced a 3% decrease in time traveled.
Burgaw residents’ commute time, however,
increased by 15%, indicating that local
residents are having to travel outside the town
to find employment.
Employment Patterns
According to the 2010 ACS, the “Management,
Business, Science, and Art Occupation” and
“Service Occupations” experienced decreases
from their 2000 values. The “Sales and Office
Occupations” experienced the greatest
increase, moving from 25% in 2000 to 31% in
2010.
Graph 24: Comparison Commute Times
Minutes
40.00
Graph 22: 2000 Civilian Population
Occupation
30.00
Burgaw
20.00
Pender
10.00
NC
0.00
Production,
etc.
13%
Natural
resource,etc.
17%
1980 1990 2000 2010
Year
Management,
etc.
31%
When comparing the commute times for
Burgaw residents in 2000 and in 2010, the
greatest percent of residents had commute
times of 10 minutes or less in 2000 and 30-34
minutes in 2010.
Service
Occupations
14%
Sales, etc.
25%
Graph 25: Travel Time to Work
Production,
etc.
18%
Percent of Population
Graph 23: 2010 Civilian Population
Occupation
Management,
etc.
25%
Natural
resource,etc.
18%
Service
Occupations
8%
Sales, etc.
31%
19
45%
40%
35%
30%
25%
20%
15%
10%
5%
0%
2000
2010
Industry Types
Major Industries
According to the American Community
Survey, the “Education/health, etc” industry
is still the leading industry type in terms of
jobs in the Burgaw area. This finding is
unsurprising as Burgaw is home to Pender
County Memorial Hospital, Pender Early
College, Burgaw Middle School, and Burgaw
Elementary School. Although
“Education/health, etc” is the leading industry
in Burgaw, it has experienced a slight
decrease in percentage of the total jobs from
2000 to 2010. It is possible that this trend
does not demonstrate a decrease in the total
number of these jobs but an increase in
additional positions in other areas.
The industries that have located in Burgaw
help provide the necessary jobs to ensure a
stable economy. The majority of the
industries in the Burgaw area are located in
the Burgaw Industrial Park, in central
Burgaw, and off Stag Park Road, adjacent to I40.
“Wholesale trade industry” experienced the
greatest increase in percentage of jobs from
2000 to 2010 with a 214.1% increase.
“Agriculture, etc.” experienced the greatest
percent decrease with a 68.3% drop. “Public
administration” experienced the second
greatest percent decrease, suffering a decline
of 59.2%
Table 10: List of Industries with Town Limits
Industry
American Skin, LLC
a manufacturer and supplier of
pork rinds
Mojo Musical Supply
a source for amplifier & guitar
parts; manufactures amplifier
cabinets
Niels Jorgensen Company
manufactures small to mid-size
kilns
Phoenix Technology, LTD
designs, manufactures, and
distributes high performance
gunstocks and accessories.
SOLO Foods, LLC
manufactures a variety of food
and baking products; Burgaw
plant specializes in frozen
berries
manufactures and markets
products to service the building
materials, HVAC, and door
hardware industries in the
United States.
L &L Building Products,
Inc.
Graph 26: Job Percentage Changes by
Industry
Percent of Total Jobs
25
Chloride Systems
20
2000
15
Product
manufactures emergency
lighting
Of the top 25 employers in Pender County, ten
are either located solely in the Town of
Burgaw or are headquartered in the town.
Each of the top five employers are
headquartered in Burgaw, the top three of
which are government entities.
2010
10
5
0
20
“Statement of Revenues, Expenditures, and
Changes in Fund Balance—Government
Funds” of the Town of Burgaw Budget. Please
reference Appendix I. for a breakdown of
expenditure categories.
Table 11: Top 25 Employers in Pender County
(highlighted companies are headquartered in Burgaw)
Rank
Company Name
Employment
Range
1
Pender County Board Of Education
1,000+
2
Pender County N C
250-499
3
State Of NC Dept Of Correction
250-499
4
Pender Memorial Hospital Inc
100-249
5
L&L Building Products (A Corp)
100-249
6
Food Lion LLC
100-249
7
Huntington Health Care & Retirement
100-249
8
Woodbury Wellness Center Inc
100-249
9
Lowes Home Centers Inc
100-249
10
Pender Adult Services, Inc
100-249
11
Smithfield Foods Inc
100-249
12
Harris Teeter Inc
100-249
13
Gomez Harvesting LLC
100-249
14
Pender Volunteer Ems And Rescue Inc
100-249
15
Hardee's- Non Edi
100-249
16
Genlyte Thomas Group LLC
(Chloride)
50-99
17
N C Department Of Transportation
50-99
18
U S Postal Service
50-99
19
Johnson Nursery
50-99
20
NHRMC Home Care
50-99
21
Four County Electric
50-99
23
Piggly Wiggly #86
50-99
23
Town Of Surf City NC
50-99
24
Olde Point Golf & Country Club
50-99
25
Mainsail Restaurant
50-99
Table 12: Comparison of Local Government Finances
FY 99/00
FY 09/10
FY 09/10
(Inflationadjusted
values)
$932,256
Revenue by Source
Ad Valorem Taxes
$583,053
$1,180,511
Other Taxes and
Licenses
$488,963
$738,251
Unrestricted
Intergovernmental
$221,281
$216,581
Restricted
Intergovernmental
$258,692
$261,937
$63,868
$25,921
$177,812
$572,642
$71,282
$9,471
$106,972
$85,721
$1,971,923
$3,091,035
Permits and Fees
Sales and Services
Investment Earnings
Miscellaneous
Total Revenues
19.2
$171,036
-22.7
$206,854
-20
$20,470
-68
$452,219
154.3
$7,480
-89.5
$67,695
-36.7
$2,441,008
23.8
$520,988
$343,337
$659,725
$736,689
$1,288,412
$212,344
$422,288
$359,595
$403,704
$50,953
$68,272
$39,953
$28,558
$41,363
$135,283
$137,888
$149,777
$47,303
$55,457
$1,969,425
$3,211,476
Public Safety
Transportation
Environmental
Protection
Government Revenue Data
Central Services
Cultural And
Recreation
Burgaw’s local economy is also aided by a
fiscally sound local government. The following
table provides a comparison of the town’s
revenues versus expenditures for Fiscal Year
1999/2000 and Fiscal year 2009/2010 in
both actual and inflation-adjusted values.
Economic and
Physical
Development
59.9
$583,001
Expenditure by Type
Current:
General Government
%
Change
%
Change
51.7
$1,017,466
38.1
$333,484
57.1
$318,808
-11.3
$53,915
5.8
$22,553
-43.6
$106,834
158.3
$118,280
-14.2
$43,795
-7.4
$2,536,120
28.8
Debt Service:
Interest and Fees
The expenditures category is used in the
presentation of the general fund in the town’s
annual financial report or audit. The
complete information can be found under the
Contingency
Total Expenditures
21
Commercial uses are primarily concentrated
within the town’s central business district
(CBD) and along the US Highway 117 Bypass
corridor. Other commercial uses are scattered
along NC Highway 53. Current zoning
designates the CBD, the Highway 117 bypass,
and portions of Highway 53 (around the I-40
interchange, from Stag Park Road to the
Highway 117 intersection, and from Dudley
Street to Giles Marshburn Road) for future
commercial development.
Existing Land Uses
In 2009, a survey of the Town of Burgaw’s
existing land uses was taken. While the
information from this survey is not completely
up-to-date, there should have been few
changes in most categories. The only major
different to the town’s land uses took place in
2012, when a large agricultural tract was
deannexed from the town. That change in
jurisdiction is reflected in the information that
follows.
Current commercial activities are primarily
stand-alone businesses; the major “strip-mall”
type facility is the Pender Landing shopping
center, which includes five units. Other
multi-unit buildings include the Pender
County Properties building and the Rowe
office/commercial building on 117, a small
multi-unit building on Hwy 53 West, and the
Rowe office/commercial building on 117, and
the PIggly Wiggly shopping center at Hwy 53
and Dudley St.
Graph 27: Existing Land Uses in Burgaw's
Planning Jurisdiction
(number of lots)
Utilities Rural/Agricultur Governmental/
0%
Public/Civic
al
Industrial
6% Commercial 2%
1%
3%
Parks/Open
Space
2%
Office and
Institutional
2%
Single Family
Religious
52%
Vacant
2%
25%
Mobile
Home Park
Multi-Family 0%
Residential
2%
Industrial
This category comprises all land used for
manufacturing facilities, processing plants,
factories, warehousing, utilities, and wholesale
trade facilities. It also includes associated
office, administrative, and truck facilities for
these uses. Industrial properties occupy
186.2 acres, or 2% of Burgaw’s planning
jurisdiction. All of these 28 lots are located
within the town’s corporate limits.
Mixed Use
3%
Definitions and Descriptions of Existing
Land Uses
Commercial
Commercial land uses within Burgaw’s
planning jurisdiction include all property
where business and trade are conducted,
excluding professional offices. This category
includes both retail and wholesale activities;
accessory use areas, such as parking; and
hotels/motels. Commercial properties make
up 110.1 acres, or 1.2% of Burgaw’s planning
jurisdiction. The town’s corporate limits
contain 85.5 of those acres, while 24.6 acres
are in its extraterritorial jurisdiction (ETJ).
The industrial properties are concentrated in
three primary areas: the Pender Progress
Industrial Park area that stretches from
Industrial Drive to Worth Beverage Drive, an
industrial park area off Stag Park Road, and
the centrally located I-2 district adjacent to
the former railroad corridor. Other industries
are located along Highway 53 West (Rooks
Farm Services and Four County EMC) and on
North Wright Street on the town limit/ETJ
border (Lewis Sausage). Current zoning
reflects this land use pattern and allows
22
expansion of industrial operations along
Highway 53 West.
Graph 28: Single Family Reidence Types by
Acreage
Mixed-Use
EstateDensity
48%
Burgaw’s central business district (CBD) is
one of the town’s primary commercial areas.
However, many of its properties fall under the
category of Mixed-Use. This category includes
areas with a combination, or potential
combination, of commercial and residential
uses either stacked (e.g. multi-level with
residential above and commercial below) or
integrated (e.g. planned developments
designated to integrate land uses). Other CBD
lots have been designated as Mixed-Use due to
a multi-unit mixture of commercial and
professional office uses. Only 9.3 acres (0.1%)
of the town fall within this category. However,
as the CBD contains some of the town’s
smallest lot sizes, this use comprises 71
separate lots.
High-Density
5%
MediumDensity
11%
Low-Density
36%
Graph 29: Single Family Residence Types
by Number of Parcels
EstateDensity
6%
High-Density
24%
Residential
Residential uses include all lots that currently
have structures either used or meant to be
used as residences. This category makes up
1,319.1 acres (14.1%) of Burgaw’s planning
jurisdiction and 43.6% of its lots. In
surveying existing land uses, residences were
broken down into single family housing (high
density, medium density, low density, and
estate density), multi-family housing, and
mobile home parks. For housing
subdivisions, the development’s predominant
density was assigned to the entire subdivision
of record. Each single family density type was
defined to coincide with the town’s residential
zoning districts: high density to R-7, medium
density to R-12, low density to R-20, and
estate density to the lots prevalent in the R-20
and RA (Rural Agricultural) districts.
Low-Density
39%
MediumDensity
31%
High Density Single Family Housing. High
density housing includes lots of up to 12,000
ft2 per dwelling unit. High-density residential
lots cover 63.1 acres (0.7% within the town’s
planning jurisdiction), only 1 acre (5 lots) of
which is located in the town’s ETJ. This
category is made up of 299 lots and is
concentrated in the neighborhoods west of
Walker Street and in two housing subdivisions
(one built and one with recorded lots)—Village
on Eighteen and Creekside.
Medium Density Single Family Housing.
Medium density housing lots are 12,000 ft2
23
per dwelling unit. This type of residential lot
comprises 136.3 acres (1.5%) of the town’s
planning jurisdiction of these lots, 128.6 acres
(359 lots) are located within the town’s
corporate limits and 7.7 acres (20 lots) in the
ETJ. This size lot is prevalent in all of the
residential neighborhoods in the town’s
corporate limits and in one housing
subdivision—Tealbriar. While this type of
residential lot makes up 18.9% of all lots
within the town’s corporate limits, it only
covers 3.8% of the ETJ.
home parks feature mobile home rental spaces
under common ownership.
Governmental/Public/Civic
The Governmental/Public/Civic category
includes all property used for governmental
purposes (administration buildings, schools,
public safety facilities, etc.) and all uses with
non-religious, civic purposes, such as lodges,
nonprofits, and museums. Within the town’s
planning jurisdiction, 181.4 acres are used for
these purposes. All but five of those acres are
within the town’s corporate limits.
Low Density Single Family Housing. Low
density housing lots are 20,000 ft2 (about half
an acre) to 130,679 ft2 per dwelling unit and
make up 451 acres (4.8%) of the town’s
planning jurisdiction. This acreage consists of
487 lots (20.2%) in the total planning
jurisdiction, 345 of which are in the town’s
corporate limits. The percentage of lots that
are low-density residences is similar to that of
medium density lots within the town’s
corporate limits (18.2%) but is much higher
within the ETJ (27.5% of ETJ lots).
Office and Institutional
This category consists of lots or parcels
containing stand-alone office buildings, nongovernmental educational facilities, and
hospitals. Office and Institutional land uses
also include professional services, such as law
and engineering offices, and banks. Only 59.7
acres of the town’s planning jurisdiction are
devoted to these uses, 56.1 acres of which are
within the corporate limits.
Estate Density Single Family Housing. The
largest residential lots, estate density
properties, are defined as being 130,680 ft2 (3
acres) or more per dwelling unit. This type of
lot makes up 603.6 acres (6.5%) of the town’s
planning jurisdiction but only 73 actual lots
(3%). The majority of these properties—63 or
525.7 acres—are located within the town’s
ETJ.
Religious
Religious land uses consist of all properties
containing places of worship and facilities
owned and/or operated by religious
organizations on a not-for-profit basis. Also
included are accessory lots, such as parking
lots or vacant lots, adjacent to religious
structures. This type of land use makes up
39.7 acres of the town’s planning jurisdiction,
roughly two-thirds of which are located within
the corporate limits.
Multi-Family Housing. This land use category
includes duplexes, apartments,
condominiums, townhouses, and public
housing. This type of housing covers 53.2
acres (0.6% of the town’s planning
jurisdiction) and all are contained within the
corporate limits.
Utilities
This category comprises infrastructure for
electricity, gas, and water services, such as
power plants, sewage treatment plants, pump
stations, etc. Some lots, however, that
contain such infrastructure but that are still
available for separate uses may be classified
by the predominant use category instead.
Mobile Home Park. There are five mobile home
parks within the town’s corporate limits,
covering a total of 6.6 acres (0.1%). All mobile
24
Only 6.6 acres, all within the town’s corporate
limits, are devoted exclusively to utility uses.
929 acres (28.5%) of the town’s corporate
limits.
Parks/Open Space
Rural/Agricultural
The Parks/Open Space land use category
describes land dedicated to active or passive
recreational uses that is accessible to the
public. These areas include both privately
and publicly owned facilities and may include
playgrounds, public parks, nature preserves,
golf courses, and similar uses along with
lands that are to be preserved in a natural
state (such as Federal Emergency
Management Agency (FEMA) buy-out tracts
and the former railroad corridor). Altogether,
these properties comprise 284.3 acres in the
town’s planning jurisdiction. All but 6.8 acres
of these properties are located within
Burgaw’s corporate limits. Much of the
parks/open space property is part of
Buccaneer Golf Club, which closed in 2010.
This category is made up of all land used for
agricultural purposes, such as cropland,
livestock production, pasture, and timber. It
includes lots with accessory residential uses
(as long as the agricultural use is the
predominant use of the tract). The majority of
the town’s planning jurisdiction (59.4%) falls
under the designation of Rural/Agricultural
when looking at total acreage. Over 5,548
acres of land are used for agricultural
purposes. While the majority of this land use
is located within the ETJ, comprising 78.4% of
the land in the town’s extraterritorial
jurisdiction, 12.7% are located within the
corporate limits, making rural/agricultural
uses the third largest use in the town after
vacant (34.3%) and residential (22.6%). Most
rural/agricultural tracts, however, are
extremely large. In terms of the number of
lots, only 6% of the lots in the town’s planning
jurisdiction are categorized as
Rural/Agricultural.
Vacant
The Vacant category includes land with no
usable buildings or structures, including
vacant landscapes and wooded lots within a
residential neighborhood. While the term
vacant is intended to designate property that
is ripe for future development, the category
may also consist of tracts too small for
development adjacent to developed tracts.
Vacant tracts do not include land that is used
as farmland or for other agricultural purposes
or for land under plans for development with
valid town permits or developmental approval
from the Town Board of Commissioners. In
instances where properties were not clearly
vacant as opposed to agricultural/forestry
tracts, the planning department took into
account the level of adjacent development, the
possibility of road access, and the size of the
parcels.
Throughout the town’s planning jurisdiction,
over 1,602.8 acres (17.1%) of land were
categorized as vacant. Vacant tracts make up
25
Table 13: Town of Burgaw Planning Jurisdiction
Estimated Land Use Acreage, 20094
Use
Commercial
Industrial
Mixed-Use
Residential
Single-Family
High-Density
Medium-Density
Low-Density
Estate-Density
Multi-Family
Mobile Home Park
Government/Public/Civic
Office and Institutional
Religious
Utilities
Parks/Open Space
Vacant
Rural/Agricultural
Corporate
Area
(acres)
% of
Corporate
Area
85.5
186.2
9.3
613.5
548.5
62.1
128.6
280.0
77.9
53.2
11.8
176.5
56.1
26.4
6.6
277.5
929.2
343.3
2,710.2
2.6%
5.7%
0.3%
18.8%
16.8%
1.9%
3.9%
8.6%
2.4%
1.6%
0.4%
5.4%
1.7%
0.8%
0.2%
8.5%
28.5%
12.7%
4
ETJ
(acres)
24.6
0
0
705.6
705.6
1.1
7.7
171.1
525.7
0
0
4.8
3.6
13.3
0
6.8
673.6
5,205.5
6,637.9
% of
ETJ
0.4%
0.0%
0.0%
11.6%
11.6%
0.0%
0.1%
2.8%
8.6%
0.0%
0.0%
0.1%
0.1%
0.2%
0.0%
0.1%
11.1%
78.4%
Total
Planning
Jurisdiction
(acres)
110.1
186.2
9.3
1,319.1
1,254.1
63.1
136.3
451.0
603.6
53.2
11.8
181.4
59.7
39.7
6.6
284.3
1,602.8
5,548.8
9,348.0
% of
Total
1.2%
1.9%
0.1%
14.1%
13.4%
0.7%
1.5%
4.8%
6.5%
1.6%
0.1%
1.9%
0.6%
0.4%
0.1%
3.0%
17.1%
59.4%
All figures were initially derived from tax record acreages. If properties were split by the town limit line or ETJ
boundary, acreage was measured using GIS software tools. All numbers were rounded to eight decimal places for
accuracy during mathematical operations and were rounded to one decimal place for display purposes only. For
purposes of accurately reflecting the changes caused by the 2012 deannexation, only the acreage amount shown in
the county tax records was used, and that number of acres was transferred from the corporate limits to the ETJ.
26
27
Land Use Trends
and county have worked together to attract
industrial uses to the area, and commercial
businesses have increased along the US
Highway 117 Bypass corridor, especially at
the intersection with NC Highway 53. As local
government operations have expanded, so has
the percentage of land devoted to such uses.
The location of the Pender County Courthouse
and Pender Memorial Hospital in the town has
also contributed to the number of professional
offices located in this jurisdiction. As more
residential properties are developed, including
multi-family residences, the percentage of
those uses has increased, decreasing the
amount of land designated vacant or
agricultural.
In order to determine the way land uses have
changed since the 1997 Land Use Plan, we recategorized the existing land uses to
correspond with the categories outlined fifteen
years ago. All residential uses were put into
one category, and the
governmental/public/civic, religious, office
and institutional, and utilities uses were all
re-categorized as Office, Institutional,
Governmental, Civic. The categories for
Vacant and Rural/Agricultural were also
combined.
Land use changes in Burgaw are highlighted
in the following charts. Percentage change
(acreage gain or loss) from 1998 to 2011 in the
corporate limits and the jurisdiction as a
whole (corporate limits and ETJ) are shown.
Land use types experiencing incremental
acreage gains within Burgaw’s jurisdiction
include Commercial; Industrial; Multi-Family;
Office, Institutional, Governmental, Civic;
Parks, Open Space, Recreation; and
Residential. Vacant/Agricultural land use
acreages decreased, while Mixed-Use
Downtown and Mobile Home Park land use
types remained stable.
Within the corporate limits, the acreage
devoted to industrial uses has grown, as the
town has annexed several industrial
properties over the last decade, providing
necessary water and sewer infrastructure.
Commercial operations within the town seem
to have decreased slightly, but this is at least
partially due to a change in classification of
the downtown area as mixed-use.
Within the corporate limits, decreases in
Commercial; Parks, Open Space, Recreation;
and Residential land use acreage were noted.
Increases in Industrial; Mobile Home Park;
Multi-Family; Office, Institutional,
Governmental, Civic; and Vacant/Agricultural
acreages were small. Again, the Mixed-Use
Downtown land use type is stable. This land
use type is situated in Burgaw’s Historic
Downtown (central business) district. Vacant
and agricultural uses continue to dominate
the corporate limits, with Residential and
Parks, Open Space Recreational uses
contributing significantly to the town’s
corporate limit acreage.
Overall, commercial and industrial uses have
increased in Burgaw’s jurisdiction. The town
28
Graph 30: Land Use Types
Percentage of Total
(Corporate limits and the ETJ)
82.3%
77.2%
12.7%
10.8%
1.0% 1.2%
1.7% 1.9%
0.0% 0.0%
0.1% 0.1%
0.2% 0.6%
1.6%
3.2%
2.2% 3.1%
Percentage of total (town corporate limits and the ETJ, 1998)
Percentage of total (town corporate limits and the ETJ, 2011)
29
30
31
Annexation Activity
W.G. Ferrell Jr. Property (Voluntary): March
9, 2004. A 1.347 acre tract located at 1556
NC Hwy 53 West.
Annexation is the process where the town may
assume responsibility, in terms of provision of
municipal services, for an unincorporated
territory outside its boundaries. Owners of
unincorporated properties may petition the
town to annex the property and are usually
required to cover the costs of service
extension. Annexations initiated by the town
are considered involuntary. The owners and
residents of any annexed areas become
subject to all debts, laws, ordinances, and
regulations enforced by the Town of Burgaw.
Since the last land use plan (1997), the Town
of Burgaw has incorporated nineteen parcels
and has no current plans for further
annexation.
BJP Enterprises (Voluntary): May 9, 2006.
Area located along South Walker Street (PINs
3229-70-1348-0000 and 3228-60-7186-0000)
consisting of 42.7 acres.
Park Lake Properties Inc. (Voluntary): May
9, 2006. Approximately 107.02 acres located
along East Wilmington Street, East
Wilmington Street Extension, McKoy Road,
and Jefferson Street.
RD Howard FLP (Voluntary): November 12,
2006. Approximately 547.64 acres located
along Stag Park Road (PIN 3239-79-17280000).
Annexation Activity, 1998-2012
Pender Progress Corporation (Voluntary):
January 9, 2007. Approximately 52.92 acres
located at the intersection of Progress Drive
and Worth Beverage Drive.
Seven Oaks (Voluntary): October 4, 1999.
Area is located on east side of Progress Drive,
tracts 4, 5, and 6 of the subdivision of the
lands of A McL. Carr.
Extension and Clarification of Corporate
Limits of Town of Burgaw (Involuntary):
August 31, 2007. Includes 131 parcels in 8
separate areas around Burgaw, ensures
corporate limit lines follows property lines
when practical.
Tealbriar (Voluntary): August 8, 2000. Area
is located on north side of Highway 53 West
and south side of Henry Brown Rd.
Covil Properties (Voluntary): November 14,
2000. Property adjacent to and south of NC
Highway 53 East and east of US Highway 117
Bypass.
Deannexation Activity, 1998-2012
RD Howard FLP: July 2012. In the fall of
2011, Mr. Rufus David Howard requested the
Town of Burgaw deannex his property that
was annexed on November 12, 2006. The NC
General Assembly passed a local bill to
deannex this property in Session Law 2012124, effective July 1, 2012.
Lewis Sausage Company (Voluntary): April
24, 2001. Property is located on east side of
N. Wright St.
Underfoote Enterprises, Inc. (Voluntary):
September 11, 2011. Begins at eastern
shoulder of Progress Dr.
Acreage Increase
Bay Tree Business Park (Voluntary): March
9, 2004. Area is adjacent to the east of the
eastern right-of-way (75 feet from centerline)
of US Highway 117 Bypass.
In April 1998, the total town acres were 2,093.
In December 2012, the total town acreage is
approximately 2,709.3, for a town acreage
increase of 616.26 acres.
32
Existing Ordinances and Land Use Controls
and its extraterritorial jurisdiction (ETJ). The
town’s current zoning designates a separation
of residential, commercial, and industrial uses
and includes 12 zoning districts: Rural
Agricultural (RA), Residential (R-20, R-12, R-7,
R-7MH), Planned Unit Development (PUD),
Office and Institutional (O&I), Central
Business (B-1), Highway Business (B-2),
Industrial (I-1 and I-2), and
Conservation/Preservation (CP). The
ordinance also regulates subdivisions and
planned developments. The landscaping,
flood hazard prevention, and stormwater
discharge control regulations seek to address
the relationship between the natural and built
environments.
The Town of Burgaw has maintained an active
and effective planning program. Land use
controls have been adopted to guide
development and implement the policies
contained in the town’s 1997 Land Use Plan.
The Board of Commissioners, with the support
and advice of the Planning Board, establishes
land use plans and ordinances that are
implemented by town staff. The following
documents are currently the primary plans
used to guide decision-making for town land
use decisions.
Town of Burgaw Land Use Plan (1997)
The most recent version of the town’s CAMA
plan created policies to address the following
issues:
Since its initial adoptions, the UDO has been
amended 87 times, as of December 2012.
These amendments include additions to the
Table of Permitted Uses, clarifications of
dimensional regulations, the deletion of the B3 zoning district, the addition of new articles,
procedural changes, and major re-writes (see
Appendix 2 for a complete list). Overall,
development regulations became more
stringent as the town experienced the
consequences of unexpected growth and
additional federal and state regulations.
However, that trend changed after 2009 as
economic conditions have changed, and the
ordinance is beginning to allow greater
flexibility in terms of permitted uses and
procedural requirements.
Resource protection
Resource production and management
Economic and community development
Continuing public participation; and
Storm hazard mitigation, post-disaster
recovery, and evacuation plans
An implementation strategy and schedule
pertaining to each policy was provided in an
effort to guide the town in future land use
decisions. All resource protection policies
were aligned with the regulations of the NC
Building Code, the Pender County Health
Department, the US Army Corps of Engineers
404 wetland areas, FEMA requirements,
including those for flood prone areas, and
Pender County. Additionally, the plan called
for additional existing zoning and subdivision
ordinances that would serve to protect the
natural and cultural resources of the town.
Town of Burgaw Water-Sewer Impact Fee
Ordinance (1996; revised 2000)
The water and sewer impact fee ordinance
applies to all new construction, including the
placement of mobile homes. Any building
connecting to the town’s water and sewer
system must comply with the water and sewer
impact fee ordinance. The ordinance also
applies to existing buildings or other
improvements not previously connected to the
water and sewer system. Renovation,
Town of Burgaw Unified Development
Ordinance (2000)
First adopted in 2000 and updated regularly,
the Town of Burgaw’s Unified Development
Ordinance (UDO) outlines zoning, subdivision,
and other land use regulations for the town
33
improvements, additions, increases, or
changes to more intensive uses of existing
buildings must also pay a water and sewer
impact fee. The ordinance is in place to
ensure the town’s water and sewer system has
the capacity, both in terms of volume and
financial burden, required to adequately serve
town residents and the commercial and
industrial needs of the town.
compliance of all users and contributors to
the publicly-owned treatment works (POTW).
NC 53 Corridor Study (2006)
The NC 53 Corridor Study was conducted in
an effort to address travel safety and aesthetic
improvement of the NC Highway 53 corridor in
Burgaw, NC from its intersection with US
Highway 117 Bypass to just west of the
central business district. An assessment of
existing conditions was conducted in order to
identify redevelopment opportunities and
challenges. Recommendations include
establishing three zones to allow traffic flow
without degrading the established community
character. The three zones include a
commercial gateway zone at the intersection of
NC Highway 53 and US Highway 117 Bypass,
a residential zone leading to the town center,
and a central business zone beginning at the
intersection of Bridgers Street and Walker
Street. Safety and mobility are highlighted as
key components of the plan, which includes
traffic calming measures, pedestrian and
bicycling accommodations, and aesthetic
improvements.
Building Code and Regulations
The North Carolina State Building Code
regulates most structural requirements. The
codes are based on the Standard Building
Code with revisions by the NC Building Code
Council. The Residential Building Code
provides standards for one- and two-family
dwellings and is now based on the Council of
American Building Officials Code with
amendments by the Council.
Water and Sewer Ordinance
The Town of Burgaw’s water and sewer
ordinances sets uniform requirements for
direct and indirect contributors to the
wastewater collection and treatment system
for the Town of Burgaw. The ordinance
enables the town to comply with all applicable
state and federal laws, including the Clean
Water Act. The ordinance objectives include
preventing the introduction of pollutants into
the municipal water system and promoting
the reuse and recycling of industrial
wastewater and sludge. The ordinance also
ensures that the municipality complies with
its National Pollutant Discharge Elimination
System (NPDES), or Non-discharge, permit
conditions, sludge use and disposal
requirements, and any other federal or state
laws to which the municipal wastewater
system is subject. The ordinance details
prohibited discharge standards, including
forbidding the contribution of any pollutant or
wastewater that causes interference or passthrough. The ordinances ensures the legal
Recommended overlay districts to coincide
with the proposed zones are integral to the
implementation of the corridor study.
Generally, the recommendations included in
the study can be accomplished within the
public right-of-way, with the exception of a few
property (not structural) impacts. The
property impacts include the proposed
gateway at the corridor’s intersection with US
Highway 117 Bypass and the proposed
roundabouts at the Timberly Lane and
Walker/Wilmington Street intersections.
Burgaw Parks and Recreation Master Plan
(2008)
The 2008 Parks and Recreation Master Plan
highlights a need to increase park and
recreation land in the Town of Burgaw to
comply with National Recreation and Park
34
Association guidelines. Specifically, the town
would need to add 15.62 acres of park and
recreation acreage between 2008 and 2020
based on the population growth estimates of
2008. According to a town-generated survey,
residents desired low-impact recreational
opportunities. To meet these needs and the
need to conserve land in flood prone areas, the
town recently constructed the Osgood Canal
Greenway and Trail, an approximately 2.1
mile bike and pedestrian path that runs along
Osgood Canal, the central business district,
the National Register Historic District, two
existing schools, the historic Burgaw Depot,
and two existing neighborhood parks.
Additionally, the town recognizes its natural
areas and waters and seeks to protect and
preserve those areas through parks and
recreation projects and educating the public
on the dangers of littering and animal waste.
currents, earthquakes, tsunamis, and coastal
erosion are ranked next (in the order listed) as
additional Pender County identified hazards.
The plan identifies how local governments can
use the tools available to them for hazard
mitigation, including regulations, acquisition,
taxation, and spending. The plan highlights
developed, undeveloped, and publicly owned
land located in the 100-year and 500-year
floodplains and floodways of the county and
each participating jurisdiction, including the
town of Burgaw. Future vulnerability
assessments use population projections and
current land use regulatory schemes.
Mitigation strategies and policies outline ways
in which the county and participating
jurisdictions reduce risk to their citizenry.
Specific goals and implementation strategies,
as well as identification of responsible parties,
are included in the plan in order to create a
living document, integrate hazard mitigation
into policies and future land uses, and reduce
loss due to hazards in Pender County.
Hazard Mitigation Plan (2010)
The Town of Burgaw participated in a multijurisdictional Hazard Mitigation Plan
developed by Pender County in 2010. The
plan highlights the county’s and participating
jurisdictions’ vulnerability to hazards and
outlines steps to reduce risk of injury,
property loss, and loss of life, including
increasing public awareness and multijurisdictional cooperation. The plan includes
community profiles, hazard identification,
capability assessments, vulnerability analyses,
mitigation strategies, and implementation
procedures.
Identified Pender County hazards were ranked
in the 2010 Hazard Mitigation Plan. The
rankings were based on frequency, number of
injuries caused, number of resulting deaths,
and dollar amount of property damage loss
since 1951. Tornadoes, severe winter storms,
severe thunderstorms and windstorms,
hurricanes, and flooding rank at the top of
Pender County’s identified hazards. Wildfires,
storm surge, drought/extreme heat, rip
35
the water system has a capacity of 0.918
million gallons per day (MGD). This is the
quantity that the wells would provide if all
four wells were operated for a period of 12
hours.
Public Facilities
Water Supply
All of the Town of Burgaw and portions of its
ETJ are supplied water via the town’s water
system. This system consists of four wells,
which withdraw water from the Black Creek
Aquifer and store it in three elevated water
storage tanks. Most of the distribution system
consists of 6” lines, though the number of 8”
lines has increased substantially since 1997,
as the town’s ordinances now require 8” lines
in all new subdivisions. Some of the town’s
water lines are undersized: 2-inch, 1-inch,
and ¾ inch. However, before a full
assessment of the town’s water system can
occur, the location, size, and condition of all
water lines should be recorded and mapped.
Currently, there is no centralized
documentation of the entire water system,
though the public works and planning
departments have begun compiling the
information.
While the majority of the town’s water
customers are residential, the largest demand
for water comes from non-residential sources.
During fiscal year 2011-2012, the town’s ten
largest water customers all used on average
over 100,000 gallons each month.
Table 14: Top 10 Water Customers FY 11/12
Water Customer
NC Department of
Corrections
Waste Water Treatment
Plant
Solo Foods
American Skin Co LLC
Lewis Sausage Company
(two meters)
Huntington Health Care
Pender Memorial Hospital
Davita Dialysis Center
Burgaw Elementary School
Pender County Jail
Burgaw Laundry Center
The daily water withdrawn from the Black
Creek Aquifer by the Town of Burgaw is
approximately 375,000 gallons per day (gpd).
There are some other municipalities that
withdraw water from this aquifer. The closest
is Wallace, which is approximately 15 miles
away, followed by Jacksonville, which is
approximately 35 miles away. As a note,
water for Pender County’s Rocky Point/Topsail
Water and Sewer District is purchased from
the Town of Wallace. However, these
municipalities do not withdraw enough water
to have any adverse effect on Burgaw’s water
supply.
Average Monthly
Usage (gallons)
2,050,833
1,180,175
417,558
232,867
228,572
221,683
183,358
154,942
135,442
133,231
104,158
While the town’s Waste Water Treatment Plant
had an average monthly use of over 1 million
gallons of water used each month, after its
decommissioning in the spring of 2012 when
the sewer line project was completed, its water
usage dropped to 93,500 gallons used in
June. As indicated above, the major water
users are food manufacturers, group living
facilities, and large-scale health care
providers. Not all of these uses are currently
reflected in the water/sewer impact fee
schedule. While the schedule of fees has been
reviewed for restaurants and multi-family
dwellings within the past five years, the town
may need to look more comprehensively at the
The town’s wells have a combined pumping
capacity of approximately 1,275 gallons per
minutes (gpm). These wells are controlled
electronically and pumped alternately to the
storage tanks, which have a combined
capacity of 675,000 gallons. According to the
NC Department of the Environment and
Natural Resources (NCDENR) requirements,
36
schedule of fees to ensure that impact
assessments are related to actual water usage
for different types of uses.
and condition. Some information may be
determined by the engineers working on the
re-lining project, but compiling this
information should be a priority of the public
works and planning departments.
While the town has had no major issues with
water shortages, it does have policies in place
for times of drought to encourage and require
water usage reduction as necessary. There
are no policies or activities in place that
routinely encourage customers to conserve
water, however.
Solid Waste Disposal
The Town of Burgaw maintains a contractual
agreement with Onslow Container Service,
Inc. to offer waste collection, transport, and
disposal to residential and commercial
properties within the town’s corporate limits.
Recycling services are also available to town
residents and commercial businesses. The
contract began in June 2006 and, with an
extension, will be valid until July 13, 2015.
Items available for pickup extend beyond solid
waste and recyclables to include white goods,
such as large household appliances, and
construction debris. Yard debris is collected
by the Town of Burgaw Public Works.
Sewage Disposal
In 2012, the Town of Burgaw completed the
construction of a sewer line to Wallace, NC.
Due to concerns over insufficient capacity at
the town’s wastewater treatment plant to
support expected growth, the town decided to
send its sewage to Wallace for treatment. In
2006, Burgaw partnered with Pender County
to construct the line. In exchange for bearing
75% of the costs of construction, Burgaw
received 1.25 million gallons per day of sewage
capacity in Wallace’s plant from the county.
In all, a force main of 65,000 linear feet of 20”
PVC pipe and 5,000 linear feet of 24” PVC pipe
was laid along the Hwy 117 corridor. The
Wallace line includes 2 submersible
wastewater pumping stations, which are in
addition to the 14 lift stations already used in
the town’s system.
Pender Solid Waste is responsible for waste
services in the town’s ETJ. Those residents
may dispose of solid waste and recyclables at
any of the county’s convenience centers. The
two closest centers are located at 3088 New
Savannah Rd. and 196 Whitestocking Rd.
Any waste collected at the convenience centers
is hauled to the county’s transfer station and
then transported to the Sampson County
Landfill.
With this project, the town should have
sufficient capacity to meet future development
needs through 2030. However, inflow and
infiltration (I&I) are still identified as issues
that the town needs to address. Through
2012, the town has been working to reline the
most significant I&I trouble spots in the town,
especially since the town will be charged for
treatment of all flow sent to Wallace,
regardless of whether it is sewage.
Police
The Police Department presently consists of
11 full-time sworn police officers, including
the Police Chief, and a full-time administrative
assistant. Four part-time sworn officers and 2
part-time volunteer officers supplement the
department’s staffing needs. The department
has 13 patrol vehicles (marked and unmarked)
and responds to approximately 3,000 calls per
month. Presently, the department’s response
time is less than 1.5 minutes for emergencies
and fewer than 3 minutes for nonemergencies.
As mentioned above for the water system,
there is currently no centralized
documentation of the town’s entire sewer
system in terms of line size, type, location,
37
The Police Department offers law enforcement
services including patrol of residential and
commercial property, investigative services,
property protection, ensuring law adherence,
and limited dispatch service within the
corporate limits of the town. Emergency
dispatch services are routed through Pender
County’s 911 service.
Chief and Fire Marshall into position (both
positions are currently filled by the Town of
Burgaw’s Fire Administrator) and operates
separately from the Town of Burgaw. This
board solicits votes from members in order to
make decisions in recommending equipment,
budgetary spending, and leadership choices.
Approval of officers and portions of the budget
are required, however, by the Town of Burgaw
Board of Commissioners.
Current resources, including staff and facility
space, are not adequate for the needs of the
department. The department is located in the
same physical building (Town Hall) as the Fire
Department, administrative offices, and Board
of Commissioners meeting room. At this time,
the Police Department is borrowing space from
the Fire Department for office and meeting
space. Additionally, there is a need to
segregate units to include a narcotics unit, a
criminal investigative unit, and a patrol unit.
Due to staffing limitations and shift
assignments, the department is unable to
segregate units at this time.
The department is responsible for a variety of
fire prevention activities, including public
education, fire code inspections, and fire
suppression and protection for the Town of
Burgaw and the Burgaw Fire District. The
Public Protection Classification from the
Insurance Services Office (ISO) for Burgaw’s
corporate limits is currently 5 on a scale of 1
to 10, with a rating of 1 meaning the best fire
protection and a rating of 10 meaning no
recognized protection at all. This score is
based on ISO’s assessment regarding the
responsiveness and effectiveness of the
department and affects homeowners’
insurance premiums in the department’s
district.
The Police Chief foresees an increase in
demand for services in the next five years,
attributed to two main factors: (1) the
department’s adoption of Community Policing,
a proactive approach to law enforcement and
(2) the types of crime the department has
responded to in the past 5 years. Officers are
responding to increasing numbers of narcotic
and financial crimes. These types of offenses
require increased staffing and workload
responsibilities to investigate and solve. The
department would also likely need a dedicated
information technology staff person due to the
increase in the use of technology in law
enforcement services.
The Fire Department service area is
approximately 6.5 miles from the center of
town and is comprised of approximately
11,000 people. The department answered an
average of 458 calls a year between 2006 and
2010. Both emergency and non-emergency
response times are approximately 6 minutes
for the entire service area. Pender County
contracts with the town’s Fire Department to
service calls in the defined Pender Central
region. The department also has a mutual aid
agreement with the State of North Carolina,
meaning that they provide assistance to any
municipality within the state when called.
Typically, it serves Pender County,
surrounding counties, and surrounding
municipalities as needed.
Fire Protection
The Burgaw Fire Department is made up of a
full-time Fire Administrator and 7 part-time
fire fighters employed by the Town of Burgaw
and 32 volunteer fire fighters. The
department is led by an independent,
volunteer executive board that votes the Fire
38
In terms of disaster preparedness and
response, the Fire Department serves Pender
County in times of need by clearing roadways
of debris to allow access to emergency
services, including the hospital. Pender
County provides dispatch services for the
county and distributes calls to 3 fire
departments, including the Burgaw Fire
Department.
board members, all with four-year terms. A
town manager, appointed by the Board of
Commissioners, is the administrative head of
the town’s government and is responsible for
all town departments, including public safety
(fire and police), finance, human resources,
public works, planning, and inspections. The
manager is responsible for daily
administration and oversight of all
departments and executes policies,
resolutions, and regulations established by
the Board of Commissioners.
Department funding is provided by the Town
of Burgaw, Pender County, the Village of St.
Helena, and the State of North Carolina. At
this time, funding, staff, equipment, and
facilities are adequate. The current
equipment inventory consists of three Class A
pumpers (fire trucks), one pumper tank, two
XL Super Duty trucks, and a 100-foot ladder.
Additionally, the department has a
compressor (Bauer Breathing Air System), 28
face mask regulators, and 2 types of fire
suppressant foam—100 gallons each of Class
A foam and aquatic fire fighting foam for Class
B fires. Due in part to grant awards, the
communications and air pack equipment are
adequate and up-to-date.
A town clerk, also appointed by the board,
serves as the liaison between the governing
board and town citizens. The clerk is the
official custodian of all public records
including ordinances, resolutions,
proclamations, contracts, agreements, and
minutes and is responsible for keeping the
public notified of all meetings of public bodies
and for ensuring open meeting rules are
followed.
The Town of Burgaw offers a wide array of
services to the town’s citizens. The finance
department oversees cash and asset
management and administers the town’s
financial policies and procedures. Human
resources is responsible for recruitment and
selection of town employees, position
classification and compensation, benefits
administration, personnel policy, records
management, and workers’ compensation.
The planning department implements the
guidelines of the Unified Development
Ordinance (UDO) on zoning and land use
within the town and its extraterritorial
jurisdiction, creates land use and parks and
recreation plans, and oversees nuisance
abatement issues. The North Carolina State
Building Code is enforced by the inspections
department, and public works maintains town
infrastructure and property. Information
technology is provided through a contract
employee.
Future demands are expected to increase due
to population growth, the increase in multifamily structures, specifically apartments, and
increasing prevention regulations. Due to
these increases in demand, the Fire
Department expects further reliance on
volunteer fire fighters and an increased need
for part-time paid staff to ensure shift
coverage. Facility needs may increase
depending on population growth, specifically a
need for a larger training room. In the next 5
years, the department expects a need for an
additional Class A pumper (fire
truck/complete unit) with an approximate
cost of $500,000.
Administration
The Town of Burgaw operates under a councilmanager form of government. The Board of
Commissioners consists of a mayor and five
39
Currently, the town’s administrative activities
occupy three separate locations—two adjacent
buildings on North Walker Street and the
public works garage on South McRae Street.
One of these structures, located at 103 North
Walker Street and housing the planning and
inspections departments, may be affected by
the proposed roundabout to be located at the
corner of Walker and Wilmington Streets.
New administrative facilities would be required
at that time. Additional staff will also likely be
needed as the town’s population grows.
Public Works Garage (213 S. McRae St.)
Town Properties
Wastewater Treatment Plant (300 E. Wallace
St.)
The Public Works Garage building includes
office space, storage facilities, and an
automotive garage for the public works
department. Most of the approximately 4,218
ft2 structure is devoted to the automotive
garage. The town added a 6,000 ft2 accessory
structure to the public works property in 2012
to accommodate new equipment storage
required by the Wallace sewer project. Office
space is also included in this structure.
To better serve the community, the Town of
Burgaw owns and maintains a number of
properties. The properties are used to house
administrative offices, storage, community
services, and community recreational
opportunities.
The 792 ft2 wastewater treatment plant
housed the town’s sewer maintenance and
treatment facilities until its decommissioning
in 2012. Currently, it serves as short-term
emergency storage in case of repairs to the
sewer line to Wallace.
Municipal Building (109 N. Walker St.)
Water Towers
The Town of Burgaw uses this 1961 4,796 ft2
building, renovated in 1997, for the town hall,
fire station, and police station. The town hall
section holds board of commissioners
meetings, planning board meetings, and
numerous other public meetings. It also
houses the elected officials’ office, town
manager’s office, town clerk’s office, and
finance department. The fire station section
includes the fire administrator’s office, the fire
bay for truck and equipment storage, and
living accommodations for volunteer and parttime firefighters. The police station section
primarily includes office space for the police
chief, officers, and response desk.
The Town of Burgaw utilizes three water
towers: a 75,000 gallon tower located on N.
Walker St., a 100,000 gallon tower located on
Highway 117 Bypass, and a 500,000 gallon
tower at 500 N. Smith St.
Wells and Lift Stations
The public works department has multiple
properties around the town devoted to the
town’s water and sewer systems. The system
consists of four wells and fifteen lift stations.
Debris Landfill (off Piney Woods Rd.)
This property, located outside of the corporate
limits, is used for disposal of vegetative debris.
Town Annex (103 N. Walker St.)
Rayford Hankins Memorial Park (310 N.
Walker St.)
The Town Annex houses the town’s planning
and inspections departments. This 1,200 ft2
building was built circa 1937 and was
formerly occupied by the Pender County
Library, a restaurant, and a bail bondsman’s
office before being completely renovated by the
town in 2008.
This park provides a picnic pavilion, charcoal
grills, and open space for residents.
Handicapped-accessible picnic tables and
restrooms are available.
40
W. Ross Harrell Memorial Park (304 E.
Wallace St.)
Currently, the former jail is vacant and used
primarily for town storage. Without
renovations, its use is limited.
Harrell Park consists of a fenced-in tot lot with
playground equipment and two lighted tennis
courts. It also offers a gazebo and picnic
tables. Off-street parking is available, and the
park is conveniently located across the street
from Hankins Park where there are bathroom
facilities.
Burgaw Community House (102 E.
Wilmington St.)
This circa 1930 craftsman-style bungalow was
the town’s former United Service Organization
(USO) building during World War II. Most
recently used by Pender County Christian
Services (PCCS), an area nonprofit, which
used the site as a thrift store and food bank
for fifteen years. Upon the completion of the
new PCCS building in 2011, the Community
House became vacant, and the town renovated
the structure in late 2012 for revived use as a
community building.
Other Parks
With the completion of the Osgood Canal and
Greenway Project, the town offers five
additional neighborhood parks, located on E.
Ashe St., E. Bridgers St., E. Wilmington St.,
and S. Walker St. While all of the parks are
currently passive, a regional park located on
the Cape Fear Community College tract, will
include playground equipment and a picnic
pavilion with bathrooms.
Former Emergency Management Services
(EMS) Station (108 E. Wilmington St.)
The town took ownership of this building in
2011 when Pender County EMS finalized their
move to a new station on Ridgewood Ave. The
building consists of office space and vehicle
bays but is primarily being used for storage
currently. The town has attempted to sell the
building for removal, as its use will be limited
upon construction of the planned
Walker/Wilmington roundabout.
Historic Burgaw Train Depot (115 S.
Dickerson St.)
This historic structure is listed on the
National Register of Historic Places and is part
of the North Carolina Civil War Trail. Built in
1850, the newly renovated Depot (completed
2009) offers a banquet hall, conference room,
transportation museum, and shared-use
commercial kitchen (Burgaw Incubator
Kitchen). The facility also provides office
space for the Greater Burgaw Area Chamber
of Commerce and Feast Down East, which
also uses the outdoor dock as a distribution
point for its farmers’ cooperative members. In
2010, the town and Feast Down East
purchased a railcar each to use for dry (town)
and freezer/refrigerated (FDE) storage.
Transportation
The majority of Burgaw’s residents choose
private automobile travel for their regular
transportation needs. According to the 2010
American Community Survey, 94.3% of
residents travel by car, truck, or van to work,
and 79.7% of those drove alone. According to
the survey, only 2.7% of residents bike to
work, and none walk. However, according to
routine observations, at least a portion of
Burgaw’s residents walk regularly to access
goods and services and for recreational
purposes, especially around the Pender
County office and the central business
district.
Old Pender County Jail (106 E. Wilmington
St.)
In 2008, the town took over ownership of this
1924 former county jail building, consisting of
upstairs cells for prisoners and downstairs
offices and living quarters for the jailer.
41
State Maintained Roads. The majority of
major thoroughfares are state maintained
roads. However, portions of these roads have
been accepted by the town for maintenance
responsibility. Currently, the town maintains
17.99 miles of road within the corporate limits
(designated as Powell Bill roads). There are
also several private roads located within
subdivisions.
Current Infrastructure—Roads
Major and Minor Thoroughfares. Major
thoroughfares serve as the primary movers of
traffic in an urban area, while minor
thoroughfares serve local traffic. The following
major and minor thoroughfares were identified
by the 1995 Thoroughfare Plan for the Town of
Burgaw (Note: the same road may be classified
as both major and minor, depending on the
section):
Current Infrastructure—Bicycle and
Pedestrian
Major Thoroughfares—
Sidewalks. The town’s sidewalk infrastructure
is located primarily in the areas adjacent to
the central business district and within
residential subdivisions. According to a 2009
sidewalk survey conducted by the Cape Fear
Council of Government (COG), the town had
37,082.2 total feet (7.01 miles) of sidewalk.
Approximately eight blocks worth of sidewalk
have been constructed since the 2009 survey,
and the Board of Commissioners has allocated
a portion of the town’s funds to repair of
existing sidewalks for the past three budget
years. According to the COG survey, the
majority of the town’s sidewalks are in good
condition; however, portions of high traffic
sidewalks contained some trip hazards for
pedestrians. Many of these hazards have been
mitigated through the board’s repair efforts
since 2009.
US 117 Business
US 117 Bypass
NC 53
SR 1214 (Dickerson St.)
SR 1216 (Piney Woods Rd.)
SR 1332 (Penderlea Hwy)
SR 1343 (Henry Brown Rd.)
Wright Street
SR 1344 (Wallace St.)
SR 1345A (Old Savannah Rd.)
SR 1400 (Highsmith Rd.)
SR 1510 (Wilmington St.)
SR 1551 (Bridgers St.)
SR 1557 (Smith St.)
Progress Drive
McNeil Street
Minor Thoroughfares—
The majority of sidewalks within the town are
4 feet in width (45%) and 5 feet in width
(42%). NC Department of Transportation
specifications currently require 5-foot widths
for sidewalks built adjacent to their roadways.
SR 1208 (Hayes St.)
SR 1343 (Henry Brown Rd.)
SR 1432 (Clark St.)
SR 1509 (Stag Park Rd.)
SR 1557 (Smith St.)
Dickerson Street
Dudley Street
Fremont Street
McNeil Street
Walker Street
Williams Street
Wright Street
Bike and Pedestrian Trails. The Osgood Canal
Trail parks and recreation project does include
off-road trails intended for bike and
pedestrian use. This trail runs from E. Ashe
St. to E. Fremont St. Another portion of trail
connects E. Hayes St. and S. Dickerson St.
Bicycle Traffic. While some town residents
currently use sidewalks for bicycle traffic,
42
bicycles are prohibited from using downtown
sidewalks other than those on the Osgood
Canal Trail loop. There are currently no
bicycle lanes, share-the-road markings
(sharrows), or designated bicycle routes.
A new Pender County Comprehensive
Transportation plan was developed 20112012. It was originally scheduled for adoption
in summer 2012 and a resolution of approval
was passed by the Burgaw Board of
Commissioners; however, new routes were
suggested at the department level and have
delayed the full adoption of the plan. Plan
recommendations are expected to include the
NC 53 bypass, widening of US 117 to four
lanes with a central median, and extensive
sidewalks to increase pedestrian connectivity
within the town. The plan will also likely
include recommendations that the town look
at designating official crosswalks and bike
routes. Many of the recommendations of this
plan are included in the Transportation
Policies of this document.
Current Public Transportation Services
The only public transportation currently
available within Burgaw’s planning
jurisdiction is offered by Pender Adult Services
(PAS). PAS offers general public
transportation for Pender County residents 18
and over who qualify for their services.
Funding sources are tied to specific sectors of
the population, so availability is subject to
funding constraints. Rides must be scheduled
at least 48 hours in advance.
Taxicab and private transportation services do
operate within Pender County.
Emergency Services
Pender County’s Emergency Management
department is charged with protecting life and
safety and minimizing property damages and
loss in the entire county, including the town of
Burgaw. It also acts as a countywide
emergency operations center and conducts
reverse 911 calls to county residents when
necessary. The office’s emergency
management duties include four phases:
preparedness and planning, response,
recovery, and mitigation. As part of these
aims, the department led the effort to
complete the 2010 Multijurisdictional Hazard
Mitigation Plan in order to reduce risks of
natural and man-made hazards across the
county and to better respond to them if and
when they occur.
Transportation Plans
The 1997 Land Use Plan supported several
transportation improvements, including
construction of an NC 53 Bypass,
construction of an urban loop, construction of
a road connecting NC 53 to Stag Park Rd.
near I-40, and widening US 117 Bypass to five
lanes. None of these projects are currently
being actively considered. The NC 53 Bypass
project is still officially on the NCDOT
Transportation Improvement Plan, but it was
not recommended for awarding of any points
in 2012. The town has instead focused on NC
53 corridor improvements within town as
outlined by the NC 53 Corridor Study (see
Existing Ordinances and Land Use Controls
section for a summary). As part of this
project, the town is currently working with an
engineering firm to prepare plans for
intersection improvements at the corner of N.
Walker St. and E. Bridgers St. and for a
roundabout at N. Walker St. and E.
Wilmington St.
Pender County’s emergency medical services
(EMS) are provided by Pender County
Volunteer EMS and Rescue. This nonprofit is
responsible for emergency medical services,
crash rescue, search and rescue, and medical
transport services throughout Pender County,
approximately 857 square miles. Pender
Volunteer EMS and Rescue boasts three
divisions—an EMS division, Pender Transport
43
Services, and a Rescue division. The EMS
division operates out of eight separate
response districts. Station 1, which receives
the highest call volume, is located within the
Town of Burgaw corporate limits and serves
Burgaw and the adjacent Village of St. Helena.
Pender Volunteer EMS and Rescue has been
granted Teaching Institute status from both
the NC Office of Emergency Medical Services
and the NC Department of Insurance. Pender
Volunteer EMS and Rescue employs 70 fulltime and 33 part-time staff and works with
volunteer members on a regular basis.
name, provides service to six states and more
than 7 million customers.
Four County Electric Cooperative Membership
Corporation operates as a member-owned
cooperative. An elected Board of Directors
leads the corporation in decision making,
including input from all members. The
cooperative serves Bladen, Duplin, Pender,
and Sampson counties as well as some areas
in Columbus and Onslow counties.
Headquartered in Burgaw, Four County
provides service to over 32,000 clients in the
region, including residences, farms,
businesses, industries, churches, and schools.
Construction of a new combined Emergency
Operations Center (Pender County
government) and Emergency Medical Service
facility (Pender Volunteer EMS and Rescue)
was completed in 2011. This facility
accommodates more EMS vehicles with a
larger bay, a future helipad for transporting
supplies during emergencies, larger bunk
quarters, a fully equipped kitchen, showers,
and an Emergency Operations Center, which
will bring technological improvements to EOC
operations, including wall-mounted monitors.
Collaboration among the two entities (Pender
County Emergency Management Office and
Pender Volunteer EMS and Rescue) is
expected to increase due to the combination of
uses into one large (14,219 ft2) facility.
Telecommunications
Telephone, cable television, and
internet/broadband services are available in
the Town of Burgaw. Major providers include
AT&T, Time Warner Cable, Direct TV, and
Dish Network. As technology and access
improve, more companies are offering
telecommunications services within the town’s
corporate and ETJ limits. Quality of service
may fluctuate depending on the capabilities of
individual providers.
Schools
The Town of Burgaw is served by five public
education institutions. These schools include
Burgaw Elementary School (400 N. Wright
St.), Burgaw Middle School (500 S. Wright
St.), Pender High School (5380 NC Hwy 53
West), Pender Early College (100 E. Industrial
Dr.), and a Cape Fear Community College
satellite campus (100 E. Industrial Dr). With
the exception of the high school, all are
located within the town limits of Burgaw. The
elementary, middle, and high school occupy
facilities operated by the Pender County Board
of Education, and the early college is located
in the Cape Fear Community College building.
The early college program provides high school
students with college credit or professional
training while in a high school setting.
Electrical Distribution
The Town of Burgaw has a franchise
agreement with Progress Energy Carolinas to
provide electric service to the town. Four
County Electric Cooperative Membership
Corporation also provides electric services in
the town in a designated territory, as defined
by the 1965 Enacted Territory laws, and
through exceptions, included grandfathered
lines and customer preference.
Progress Energy Carolinas, now Duke Energy
since a 2011 merger, is headquartered in
Charlotte, NC, and under the Duke Energy
44
The Pender County Board of Education’s tenyear plan addresses the potential growth
within Burgaw and the need for more
classrooms through a proposed new PreK-8
school within the Burgaw town limits. The
facility will house 950 students and serve the
current Burgaw school district. Burgaw
Elementary school will continue to operate,
but Burgaw Middle School students would
relocate to the new facility. The existing
Burgaw Middle School building would then
possibly be used to house an expanded Pender
Early College. All future plans for expansion,
however, are frozen until economically
feasible.
will be required to meet that standard (see
page 60).
Health Services
In Pender County, there is one primary care
physician for every 3,878 people. According to
the Pender County Health Department,
transportation is the leading issue in
providing complete healthcare to all Burgaw
residents. Traveling issues include getting to
and from distant appointments.
There are ten private physicians, one in
internal medicine, three in general family care,
two surgeons, and four dentists practicing in
Burgaw.5 For further specialized medical
care, residents travel to nearby Wilmington.
Parks and Recreation
The Town of Burgaw has no Parks and
Recreation Department and does not currently
offer municipal recreation programs. The
town, however, does operate recreational
facilities that include seven neighborhood
parks, one regional park, and the Osgood
Canal Greenway and Trail.
Pender Memorial Hospital, an affiliate of New
Hanover Regional Medical Center, is the only
hospital located in Pender County. The
facility, located at 507 E. Fremont St., is
within Burgaw’s town limits and has been in
operation since 1951. Pender Memorial
Hospital is a nonprofit governed by an
appointed board. The hospital recently
completed upgrades to the campus, inpatient
medical/surgical unit, and post-acute care
unit. Upgrades include new flooring,
cabinetry, ceilings, and window coverings.
Pender Memorial Hospital contains 86 beds
and provides the following services to Pender,
Duplin, and Bladen counties:
Facilities operated by other public entities are
also located within the town’s municipal
limits. Pender County owns and operates
Pender Memorial Park, a 27.33 acre site that
includes five lighted ball fields (baseball and
softball), one lighted football/soccer field, two
football/soccer practice fields, three batting
cages, a playground area, two concession
stand/restroom facilities, and a shelter with
picnic tables.
Acute Care
Surgery and Endoscopy
Inpatient Medical/Surgical Unit
Post Acute Care Swing Bed Unit
24-Hour Emergency Department
Health & Diagnostics
Laboratory
Rehabilitation
Respiratory Therapy
Skilled Nursing Facility
Home Care
Including the county owned and operated
park, the town currently meets and exceeds
the minimum recommendations of the
National Recreation and Park Association
Standards and Guidelines of 6.25 acres of
park land per 1,000 residents. If the town’s
population grows at the slower historical rate,
those minimum standards will still be met in
2030. However, if the town grows at the faster
rate of the past twenty years, additional parks
5
45
As of 2011
Specialized care is made available to Burgaw
residents as well. Huntington Health Care
Facility, a 98-bed nursing facility and Ashe
Gardens, a 60-bed memory care facility
provide levels of care from rehabilitation to
skilled nursing. DaVita Inc., located at 704 S.
Dickerson Street, is a leading provider of
kidney care, delivering dialysis services to
patients with chronic kidney failure and end
stage renal disease. Coastal Horizons, located
in Wilmington, provides professional
assistance to those in need of crisis
intervention, criminal justice alternatives,
community outreach, substance abuse, and
mental health treatment services.
Pender County Health Department provides a
wide variety of programs and services,
including outreach, primary health care,
dental health, environmental health, health
promotion, laboratory services, and substance
abuse and mental health treatment services.
The three primary functions of this
department are to assess the status of the
county’s public health, to develop policies
promoting public health, and to assure a
competent public health and personal
healthcare workforce through education and
assessment.
46
Within Pender County, groundwater provides
the sole source of water supply for both public
and private systems. Subsurface water of
good quantity and quality is found throughout
the county. The entire area is underlain by a
large aquifer system from which potable water
can be drawn at various depths.
Physical Conditions
Topography/Geography
Pender County is located on the lower Coastal
Plain and ranges in elevation from sea level to
100 feet above sea level. Southeastern North
Carolina is strongly influenced by the geologic
region know as the Cape Fear Arch, an uplift
of sand and limestone deposits formed 35
million years ago. The soils in Pender County
generally are nearly level and have short
slopes along the main drainage ways. The
Cape Fear River, which is in the southwestern
part of Pender, drains most of the county. The
Black and Northeast Cape Fear Rivers are
tributaries of the Cape Fear River and also
drain portions of the county. A few streams,
in the southeastern portion of the county,
drain into the Intracoastal Waterway. The
flow of water streams through the county is
slow, and small tributaries flow only after
heavy rains.
Four geologic strata comprise the aquifer
system. Pleistocene and recent surficial sands
cover most of Pender County and provide the
principal water source for individual wells and
rural domestic supplies. In the surficial
sands, water normally occurs under water
table conditions within 15 feet of the land
surface. Productivity of this aquifer is limited
only by its thickness; it is recharged directly
by rainfall and is easily subject to
contamination. The surficial sands are the
only potable water supply between the Cape
Fear and Black Rivers, where the underlying
strata contain brackish water.
Yorktown clays, shell beds, and marls occur
on a limited basis east of the Northeast Cape
Fear River. This formation is absent in the
central and western sections of the county,
which includes the Burgaw planning
jurisdiction. The Castle Hayne aquifer is not
extensively utilized for water supply in the
county. However, it may be valuable as a
large, long-term water supply. The Pee Dee
Cretaceous sands, limestones, and marine
clays occur throughout Pender County. West
of the Cape Fear River, the Pee Dee
immediately underlies the surficial sands. In
the eastern part of the county, it occurs
beneath and has hydraulic connection to the
Castle Hayne aquifer. In both areas, the Pee
Dee is recharged directly by rainfall. The Pee
Dee furnishes water to many wells drilled west
of the Northeast Cape Fear River. Wells
relying on the Pee Dee vary from 50-200 feet
deep and yield up to 300 gallons per minute.
The Cape Fear, Northeast Cape Fear, and
Black Rivers are affected by the tides. The few
short streams in the southeastern part of the
county are wide and shallow near sea level
and become narrow inland. Most of the
floodplains along these streams are inundated
each day at high tide.
Generally, the Town of Burgaw has a flat
topography with no significant slopes
exceeding six percent. The steepest slopes
tend to occur in the Aycock loam (0-66%
slope) and Baymeade fine sand (1-4% slope)
soils. Aycock loam soils are scattered
throughout Burgaw and its ETJ, while the
Baymeade fine sand soils are concentrated in
two small areas in the far northeast portion of
Burgaw’s ETJ. The soil map provides a
delineation of soil types within the town’s
planning jurisdiction. The average elevation
within Burgaw and its ETJ is approximately
50 feet above sea level.
There are no significant surface waters to be
used as water supplies within Burgaw’s
47
planning jurisdiction. The closest large body
of water is the Northeast Cape Fear River,
which is located approximately 5 miles east of
Burgaw.
waters within Burgaw and its ETJ are
classified by DWQ as Class C. Class C waters
support aquatic life propagation and survival,
fishing, wildlife, secondary recreation, and
agriculture. There are no anadromous fish
spawning areas that have been designated
within Burgaw’s planning jurisdiction. An
anadromous fish migrates up river from the
sea to breed in freshwater.
Hydrology
The Town of Burgaw is located within the
Cape Fear River Watershed Sub-basin 03-0623, which includes the Northeast Cape Fear
River and Burgaw Creek. The Cape Fear River
has the largest river basin in North Carolina,
and its watershed is entirely contained within
the state. Within the Town of Burgaw
planning area, Osgood Branch drains much of
the downtown into Burgaw Creek, which
drains the rest of the town and surrounding
lands. Burgaw Creek then flows into the
Northeast Cape Fear River about 4 miles to
the east of Burgaw.
According to the 2005 Cape Fear River
Basinwide Water Quality Management Plan,
Burgaw Creek contains two water quality
monitoring stations on the creek and one
minor NPDES discharge point at the Burgaw
Wastewater Treatment Plant. While most of
Burgaw Creek is classified as “C,” as described
above, a 2-mile section downstream from the
Burgaw Wastewater Treatment Plant is not
rated because of low dissolved oxygen levels
and high chlorophyll a levels. For recreational
uses, the entire creek is not rated because of
high fecal coliform and chlorophyll levels.
Sources of these pollutants are listed as
impervious surfaces, agriculture, and treated
wastewater discharge.
Osgood Branch. This tributary of Burgaw
Creek flows south to north, through the east
side of the Town of Burgaw and drains into
Burgaw Creek at the north end of town. The
main stem of the Osgood Branch has been
channelized through town and is referred to as
the Osgood Canal. Tributaries of the Osgood
Branch have been historically converted into a
series of ditches located along town roads.
The NC Division of Water Quality and the
Lower Cape Fear River Program will continue
to monitor the Burgaw Creek watershed
because of the high chlorophyll a levels
detected. The NC Division of Water Quality
has recommended that the Burgaw
Wastewater Treatment Plan optimize plan
processes to reduce nutrients that may be
causing algal blooms in Burgaw Creek. With
the decommissioning of this treatment plant,
nutrients should be reduced greatly or even
eliminated.
Burgaw Creek. This creek also flows south to
north through the west side of the Town of
Burgaw, then drains directly east toward the
Northeast Cape Fear River. Burgaw Creek is
also channelized through town and captures
many roadside ditches. North of town, the
creek retains a more natural condition as it
flows through woods and farms.
The North Carolina Division of Water Quality
(DWQ) assigns water quality classifications to
all waters of the State of North Carolina. The
classifications are based upon the existing or
contemplated best usage of various streams
and segments of streams within a basin, as
determined through studies, evaluations, and
comments received at public hearings. All
Burgaw Creek drains into the Northeast Cape
Fear River, a nationally significant floodplain
system containing one of the best examples of
Tidal Cypress-Gum Swamp community,
according to the Pender County Natural Area
Inventory of August 2000. This high quality
swamp along the Northeast Cape Fear River is
48
extensive and possesses outstanding scenic
values. It also supports twelve populations of
rare plants and five rare animals.
Hydric soils also have a high probability of
meeting the criteria for 404 jurisdictional
wetlands. However, confirmation of 404
wetland areas must be made by the US Army
Corps of Engineers Wilmington District.
Flood Insurance Rate Maps (FIRMs) showing
elevations and flood hazard areas are prepared
by the Federal Emergency Management
Agency (FEMA), and the most recent versions
available for this area are dated February
2007. The FIRMs for the Town of Burgaw
show Burgaw Creek and its tributaries,
including Osgood Branch, as high-risk flood
areas Zone A and/or Zone AE, indicating 100year flood zones and associated floodplains.
As a result of the adverse soil conditions
present in most of the town’s ETJ,
development in the ETJ will be severely
limited in areas where sewer service is not
provided.
Soils
The Soil Survey of Pender County, North
Carolina was completed in April 1990 by the
Natural Resource Conservation Service.
According to the Soil Survey, there are 20 soil
series located in Burgaw’s planning
jurisdiction. The locations of these soil series
are delineated on the Soils Map on the next
page. Table 15 provides a summary of soil
characteristics, including a delineation of
prime farmland soils.
Out of the 20 total soil series found in
Burgaw’s planning jurisdiction, six are
considered prime farmland and two may be
considered prime farmland when drained.
The location of prime farmland soils is
indicative of productive agricultural lands.
The Town of Burgaw desires to maintain these
areas as agricultural.
All of the soils located within Burgaw’s
planning jurisdiction pose severe limitations
for septic tank usage. In addition,
approximately one-half of the area within
Burgaw’s planning jurisdiction is covered by
hydric soils. A hydric soil is one that is
saturated, flooded, or ponded long enough
during the growing season to develop
anaerobic conditions in the upper layer.
“Anaerobic” is defined as a condition in which
oxygen is absent from the environment.
49
50
Table 15: Soil Types Found in Burgaw and ETJ
Map
Symbol
Soil Series
Hydric Soils
Grantham loamy fine sand
Gr (PFD)
Slope
Depth to
Seasonal High
Water (ft)
Flooding
Frequency at
Surface
Dwellings without
Basements
Streets & Roads
Septic Tanks
0-2
0-1
None
Severe: wetness
Severe: wetness, percs slowly
Severe: wetness
Severe: cut banks cave,
wetness
Severe: ponding
Severe: wetness
Severe: low strength,
wetness
Severe: wetness
Severe: wetness
Severe: ponding
Severe: shrink swell,
wetness
Severe: wetness,
flooding
Poor: wetness
Severe: wetness
Severe: wetness
Severe: wetness
Severe: ponding
Severe: wetness
Severe: wetness
Moderate: low strength
Moderate: low strength
Slight
Moderate: low
strength, wetness
Moderate: low
strength, wetness
Moderate: wetness
Severe: percs slowly
Severe: percs slowly
Severe: poor filter
Moderate: wetness
Moderate: wetness
Moderate: wetness
Severe: wetness
Severe: wetness
Severe: wetness, poor filter
Gt (PFD)
LnA
Grifton loamy fine sand
Leon fine sand
0-2
0-2
0.5-1
0-2
None
None
Ls
Me
Liddell silt loam
Meggett loam
0-2
0-2
+1-1.5
0-1
None
Rare
Mk
Muckalee loam
0-2
0.5-1.5
Frequent
Mu
Pn
Ra
To
Murville muck
Pantego
Rains fine sandy loam
Torhunta mucky fine sandy
loam
Woodington fine sandy loam
0-2
0-2
0-2
0-2
1.0- +1
0-1.5
0-1
0.5-1.5
None
Rare
None
Rare
0-2
0.5-1
None
0-6
0-6
1-4
0-2
4-6
4-6
4-5
2-3
None
None
None
None
Moderate: wetness
Moderate: wetness
Slight
Moderate: wetness
Wo
Non- Hydric Soils
Aycock loam
AyA (PF)
Aycock loam
AyB2 (PF)
Baymeade fine sand
BaB
Exum loam
EmA (PF)
wetness
Severe: cut banks cave
Severe: wetness
Severe: wetness
wetness
wetness
EuA
Exum-Urban land complex
-
2-3
None
Moderate: wetness
Fo (PF)
Foreston loamy fine sand
0-2
2-3.5
None
GoA (PF)
On (PF)
PaA
Pt
Goldsboro fine sandy loam
0-2
Onslow loamy fine sand
0-3
Pactolus fine sand
0-2
Pits where sandy soil has been excavated
to 10-30 ft
2-3
1.5-3
1.5-3
None
None
None
wetness
Severe: wetness
Severe: wetness
Severe: cut banks cave
51
Severe: wetness
Severe: wetness, poor filter
Severe: flooding, wetness
Severe: ponding, poor filter
Severe: wetness
Severe: wetness
Severe: wetness
Severe: wetness
Resources and Sustainability
404 Wetlands. The most significant fragile
areas in Burgaw are the 404 wetland areas.
404 wetlands are lands that are wet at least
part of the year because their soils are either
saturated or covered with a shallow layer of
water. Wetlands include a variety of natural
systems, such as marshes, swamps,
bottomland hardwoods, pocosins, and wet
flats. While each wetland type looks and
functions differently, all wetlands share
certain properties, including characteristic
wetland vegetation, hydric soils, and
hydrologic features. Usually wetlands are
covered by plants, ranging from marsh
grasses to trees. All wetland plants must
tolerate living in saturated soil without oxygen
during parts of the growing season. Many
wetland plants are called “hydrophytes”
because they can live with their roots in water.
Soils that have developed in wetlands are
known as “hydric” soils because they have
formed under water-logged conditions. They
have distinctive color, texture, and sometimes
odor. The presence of hydric soils means an
area was probably once a wetlands; however,
it does not by itself mean that the area
functions as a wetland today.
Fragile Areas
Natural resource fragile areas are generally
recognized to be of educational, scientific, or
cultural value because of the natural features
of the particular site. Features in these areas
serve to distinguish them from the vast
majority of the landscape. These areas
include complex natural areas, areas that
sustain remnant species, pocosins, wooded
swamps, prime wildlife habitats, or registered
natural landmarks.
In the vicinity of the Town of Burgaw, there
are fragile natural areas located within the
hardwood swamps along Burgaw Creek and
Osgood Branch (including the east prong).
While these areas are not recognized as areas
of environmental concern (AECs), they are
important to the environmental integrity of the
Burgaw Creek and Osgood Branch. Primary
responsibility for protection of the swamp lies
in the 404 wetlands regulatory process. In
addition to the physical significance of this
area, the swamp forest provide valuable open
space adjacent to the developed areas of
Burgaw.
Subchapter 7H of Chapter 15A of the North
Carolina Administrative Code (15A NCAC7H)
provides the state’s definition of areas of
environmental concern (AECs). Those areas
include coastal wetlands, ocean hazard areas,
estuarine shorelines, inlet hazard areas,
public trust water, coastal complex natural
areas, coastal areas sustaining remnant
species, significant coastal archeological
resources, and significant coastal historic
architectural resources. There are no known
AECs located within Burgaw’s planning
jurisdiction. However, CAMA verification of no
AECs is required.
The hydric soils are located on the Soil Map
and include the following soil series:
Grantham, Grifton, Leon, Muckalee, Meggett,
Pantego, Rains, Torhuta, and Woodington.
The reader is cautioned that precise
determinations of 404 wetland areas must be
made through “in-field” site analysis by a
representative of the US Army Corp of
Engineers, Wilmington District. Because of
the extensive areas of hydric soils in Burgaw’s
planning jurisdiction, public and private
development should only be undertaken after
an on-site investigation for 404 wetland areas
has been conducted by the Wilmington Office
of the US Army Corp of Engineers.
There are significant non-AEC fragile areas
that must be identified and their impacts on
Burgaw discussed.
Different types of wetlands perform various
natural functions, many of which are
important to coastal North Carolina. The role
52
of wetlands as a valuable wildlife habitat has
long been recognized. More recently, their
critical roles in protecting water quality,
preventing floods and erosion, and
maintaining fish populations have become
evident.
Excessive Erosion Areas. There are no
excessive erosion areas located within the
Town of Burgaw’s planning jurisdiction.
However, a few significant erosion problems
associated with drainage ditches flowing to
Burgaw Creek and Osgood Canal are present
in town.
In addition, numerous economically important
products and activities depend on wetlands.
Fish, shellfish, blue crabs, and shrimp—vital
to commercial and sport fisheries—use coastal
salt marshes for habitat and food. Inland
freshwater wetlands also affect estuarine
water quality and productivity; thus, they too
influence fisheries. Other traditional wetland
uses of economic importance include hunting,
fishing, and trapping. The water infiltration
and flood protection roles of wetlands are also
of economic value, since they save money that
would otherwise be spent on runoff control,
water treatment, and property preservation.
Drainage. Areas located within the floodplain
of Osgood Branch and Burgaw Creek are most
vulnerable for drainage issues. Due to the
historic ditching and channelization of these
two streams, water flows at an accelerated
rate during storms. Undersized culverts
under roads present a “bottle-neck” effect and
steeply sloped ditches that lack sufficient
vegetation easily erode. In some areas within
Burgaw, the erosion is a potential risk to
infrastructure, including power poles, pipes,
driveways, roadways, and stormwater ponds.
In a natural stream system, wetlands and
dense vegetation in the floodplain slow water,
thereby reducing the risk for erosion and
stream instability. Due to existing
development, it will be difficult to restore
stability to these streams in most areas of
town. However, in some areas there are
potential restoration opportunities, such as
re-grading ditches with more gentle slopes;
retaining dense herbaceous vegetation within
the ditch and woody vegetation along the top
of the bank; replacing undersized culverts
with properly sized culverts; and re-locating
infrastructure so it is less vulnerable.
The many functions and value of wetlands
interrelate to provide a natural resource that
is important to protecting and maintaining the
productivity and environmental quality of the
coastal area. A study of coastal wetlands was
conducted by the State of North Carolina. The
“Coastal Region Evaluation of Wetland
Significance” study rated wetlands as
Exceptional, Substantial, or Beneficial based
on each wetlands’ ability to provide water
quality, hydrologic, and wildlife habitat
functions. Exceptional wetlands are
performing the functions of water quality,
hydrology, and wildlife habitat at well above
normal levels. Substantial wetlands are
scattered along the edges of town, and
represent wetlands functioning at normal
levels. Beneficial wetlands, located in just a
few areas are functioning below normal levels.
Many of the beneficial rated wetlands have
been altered by human activities.
Currently, the town is applying for a Water
Resources Development Project Grant with the
Division of Water Quality to create a
stormwater master plan to help with flooding,
especially in seven target areas: Pender
Memorial Hospital, Osgood Branch, Burgaw
Creek Tributary #1, Village on 18 Subdivision,
Stag Park Industrial Complex, East
Wilmington Street extension, and Burgaw
Creek Loop Road. Many of these areas are
located in existing wetlands.
Slopes in Excess of 12%. There are no slopes
located within the Town of Burgaw’s planning
jurisdiction that are in excess of 12%.
53
54
sites. The c. 1850 Burgaw Depot (NR 1986),
one of the two known pre-Civil War depots still
standing in North Carolina, is located at 115
S. Dickerson St. and has undergone extensive
renovations since 2000. The Pender County
Courthouse Square was listed on the National
Register on May 10, 1979. It is still used as
Pender County’s courthouse and serves as a
focal point for the downtown.
Historic and Archaeological Sites
The North Carolina Department of Cultural
Resources, Division of Archives and History,
has indicated that several undisturbed
archaeological sites have been reported within
the Town of Burgaw’s planning jurisdiction.
One site is located over Burgaw Creek, and
seven sites are located north of the creek
within the proposed NC Hwy 53 Bypass
corridor—two prehistoric and five historic. All
of the sites within the proposed bypass
corridor have been assessed by archaeologists
and either determined insignificant or
mitigated. One other archaeological site,
located near the I-40 corridor, has also been
reported. Nine other archaeological sites
associated with the proposed bypass occur in
a cluster outside of Burgaw’s planning
jurisdiction.
Wildlife Habitat and Biodiversity
The Cape Fear Arch region in southeastern
North Carolina is considered a biodiversity
“hotspot” in the United States. This region
hosts 50 different habitat types supporting
300 species of plants and animals. Twentytwo of these species are considered “endemic”
meaning they are found nowhere else in the
world. Pender County is located within the
Cape Fear Arch region, and the Pender County
Natural Area Inventory has identified the
highest priority natural resources in the
county. An assessment of biodiversity was
completed by the State of North Carolina. The
assessment prioritized terrestrial habitats
based on the presence and quality of
significant natural areas, rare species,
important bird areas, high quality wildlife
habitat, and wetlands. Aquatic habitats were
assessed based on aquatic significant natural
heritage areas, native trout waters,
anadromous fish spawning areas, high quality
benthic communities, high quality waters,
outstanding resource waters, oyster
sanctuaries, shellfish harvest areas, fish
nursery areas, submerged aquatic vegetation,
and stream buffers. The highest ranking
areas in the Town’s jurisdiction are rated 7
out of 10 as shown on the Biodiversity &
Wildlife Habitat Assessment Map. The areas
mapped as 7 are located on the east side of
town in the open space surrounding some of
Burgaw Creek’s tributaries and headwaters.
All archaeological site locations are restricted
information and exact locations may not be
included in any public document or be made
available to any individual without the
permission of the state archaeologist. Any
development projects should be implemented
in accordance with appropriate historic
preservation legislation and in coordination
with the Division of Archives and History to
avoid damage to valuable archaeological
resources.
Burgaw’s downtown and its surrounding
neighborhoods were designated a National
Register Historic District in 1998. The district
qualifies for inclusion in the National Register
under Criterion A in the area of community
planning and development and Criterion C for
architecture. The period of significance for the
district begins c. 1850, the date of the
Wilmington and Weldon Railroad built a depot
in the settlement that would become Burgaw,
and extends to 1949, the cutoff date for
National Register eligibility. Two properties
included in the historic district are also
included on the National Register of historic
55
56
The Town of Burgaw is located within the
Northeast Cape Fear River watershed,
considered a high priority resource in Pender
County and also nationally significant for the
United States. The town appears to be on a
stream divide with most of the town draining
towards the east to the Osgood Branch, and
the west side draining into Burgaw Creek
which then flows into the Northeast Cape Fear
River.
habitat types. Intact habitat areas around the
town may also harbor some of the same rare
species that occur along the Northeast Cape
Fear River. The town could be surveyed for
these species to ensure that if they are
present, appropriate protections are in place.
Table 16: Natural Communities & Rare Plants
and Animals Found Along NE Cape Fear
The Northeast Cape Fear River contains one of
the best examples of Tidal Cypress-Gum
swamp in the nation. This high quality
swamp is extensive, and upland rises within
the swamp contain some of the oldest known
stands of longleaf pine, with trees dating to
more than 300 years old. Overall, the
Northeast Cape Fear drainage basin contains
nine natural community types, including the
rare Peatland Atlantic White Cedar Forest and
old-growth Nonriverine Swamp Forest. The
site also supports populations of twelve rare
plants and five rare animals. Among the rare
plants are the Venus flytrap (Dionaea
muscipula) and Carolina grasswort (Lilaeopsis
carolinensis). The rare animals include the
manatee (Trichechus manatus), American
alligator (Alligator mississippiensis), and
southeastern bat (Myotis austroparius). The
Northeast Cape Fear River is connected to
other important natural areas nearby
including the Holly Shelter Game Lands, 421
Sand Ridge, and Brunswick River/Cape Fear
Marshes in Wilmington. Because of these
connections, the river system serves a regional
wildlife movement corridor for aquatic species
like manatee, large range species like black
bear, and migratory birds and bats. This area
of important wildlife habitat is shown on the
Core Wildlife Habitat and Rare Species
Location Map.
Natural
Communities
Rare Plants
Rare Animals
Coastal Fringe
Evergreen
Forest
Savanna milkweed
(Asclepias pedicellata)
Southeastern
bat (Myotis
austroriparius)
Dry Mesic Oak
Hickory Forest
Nonriverine
Swamp Forest
Peatland
Atlantic White
Cedar Forest
Pine/Scrub
Oak Sandhill
Mixed Oak
Variant
Pond Pine
Woodland
Tidal Cypress—
Gum Swamp
Wet Pine
Flatwoods Wet
Spodosol
Variant
Xeric Sandhill
Scrub Coastal
Plain Variant
Blue water-hyssop
(Bacopa caroliniana)
Long’s bittercress
(Cardamine longii)
Shiny spanglegrass
(Chasmanthium
nitidum)
Venus flytrap
(Dionaea muscipula)
Green fly orchid
(Epidendrum
conopseum)
Sarvis holly (Ilex
amelanchier)
Riverbank quillwort
(Isoetes riparia)
Southern
bogbutton
(Lachnocaulon
beyrichianum)
Carolina grasswort
(Lilaeopsis
carolinensis)
Spoonflower
(Peltandra sagittifolia)
Shadow-witch
orchic (Ponthieva
racemosa)
The Town of Burgaw is located among
tributaries of the Cape Fear River, wildlife
species may attempt to move through the
town and surrounding areas to access other
57
Eastern fox
squirrel (Sciurus
niger)
Manatee
(Trichechus
manatus)
American
alligator
(Alligator
mississippiensis)
Caddisfly
(Rhyacophila
lobifera)
58
The only current record of a rare species in
very close proximity to the town is a snake
species listed as “special concern” by the State
of North Carolina. Special concern species are
given legal protection by the State of North
Carolina and individuals may not be killed or
harmed. Snakes are particularly sensitive to
high density development because of mortality
associated with roads and humans’ fear of
snakes. The location of this rare animal
record is shown on the Core Wildlife Habitat
and Rare Species Location Map. By keeping
natural habitat in place, there is less chance
of wild animals venturing into densely
developed areas like the Town of Burgaw.
The Town of Burgaw ETJ contains three
historic records of rare plants: the Savanna
Indian plantain (Arnoglossium ovatum),
Leconte’s thistle (Cirsium lecontei), and
Dissected sneezeweed (Helemium
pinnatifidum). These plants have not been
observed since the 1950s and 1960s.
Agriculture and Forestry
Within Burgaw’s planning jurisdiction, the
following are considered by the US
Department of Agriculture to be prime
farmland agricultural soils: Grifton loamy fine
sand, Grantham loam, Aycock loam, Exum
loam, Foreston loamy fine sand, Goldsoro fine
sandy loam, Onsly loam fine sand. It should
be noted that Grifton and Grantham soils are
considered prime farmland only where
drained. Most of Burgaw’s undeveloped prime
agricultural lands are located in the
extraterritorial area north and northeast of the
town where extensive areas are occupied by
the Exum loam soils.
Almost all of the soils within Burgaw’s
planning jurisdiction have good potential for
both hardwood and coniferous trees. These
soils include Aycock loam, Exum, Foreston,
Goldsboro, Grantham, Grifton, Liddell,
Onslow, Pactolus, Pantego, Rains, Torhunta,
and Woodington.
59
Section 2: Projected Land
Development Analysis
National and regional trends, however,
indicate greater changes to the area’s
population. In-migration to the state is
projected to place North Carolina 7th in the
nation in population by 2030. The
12,227,739 people expected to live in North
Carolina at that time will make the state more
populous than Ohio, Michigan, and Georgia.6
Between 2000 and 2010, the population of
Pender County grew over 25%. While this rate
of growth was not seen in Burgaw, as
expected, it does have implications for the
town and its land use development.
Population, Housing, and Economic
Conditions
Population Trends
Population Growth
In the 1997 Town of Burgaw Land Use Plan,
the town’s population was conservatively
projected to grow to 4,140 by 2010. This
forecast was considered conservative due to
the large number of residential projects
approved at the time; however, while large
numbers of residential units were approved in
the late 1990s and early 2000s, the economic
downturn of the 2000s has put several
projects on hold and completely prevented
several others. Considering the current
economic situation, the unlikelihood of new
annexations, the current population growth
trajectory, and historic trends, the town’s rate
of growth will be slower than expected in the
late 1990s and only reach 4,054 by the year
2030. While historic trends only considering
the high-growth rate of the past 30 years place
the 2030 population at 5,464, the trend line
for that data ignores the slower growth rate
since 2000. The 4,054 number is more in line
with the rate of growth the town has seen over
the past decade.
Growing populations place a greater burden
on existing infrastructure, including roads,
and demand more land if incentives for infill
development are not in place. If the town
desires to protect its agricultural, forestry, and
environmental resources, regulations will need
to be developed to steer development toward
the areas with existing infrastructure. With
recent investments in new water and sewer
systems, there is still ample underdeveloped
land within the town’s corporate limits to
accommodate new residences, businesses,
and industries.
Demographics
Given historic demographic trends of the past
thirty years, Burgaw will look quite different
demographically by the year 2030. For one,
the population will be older on average, with a
median age of 44.4 (compared with 39.5 in
2010 and 35.3 in 1980). This higher median
age will be less due to elderly residents; the
percentage of residents 65 and older will
actually decrease slightly, and more to a
combination of a smaller percentage of
children under the age of 14 and a higher
percentage of residents 25-64.
Graph 31: Population Trend Analysis
4500
4000
3500
3000
2500
2000
1500
1000
500
0
6
1950 1960 1970 1980 1990 2000 2010 2020 2030
US Census Bureau, State-to-State Migration Flows, Issues
August 2008 (compiled by Mitchell Silver)
60
National trends also point to greater change in
the aging of Burgaw’s population than
indicated by historic trends. According to
information from the US Census Bureau, by
2030, one in five Americans will be over the
age of 65. Even considering a slight decrease
in the percentage of Burgaw residents 65 and
older, the number of older residents is
projected to increase by 210 persons. An
aging population will likely have implications
for the town’s development patterns.
Currently, most town residents rely on
personal automobiles for transportation,
though walking and biking are popular
recreational options. As the town’s residents
age, however, the demand for other
transportation modes is likely to increase.
There are few transit or taxicab options for
elderly or disabled residents currently, so the
demand for this type of program may increase,
as will demand for housing options near
essential services.
condominiums, which have not seen as much
demand in the Burgaw area in the past.
Housing Units
Based on the trends in household size and
expected population growth and factoring in
the population of Pender Correctional
(included in population data but not
household size data), the town will need
approximately 154 more housing units by the
year 2030, close to the 200 units expected
given the building trends of the past decade.
The only active current subdivision is
Creekside, which is permitted for 110
residential units, only 2 of which have been
constructed.
Economics
Education
The education level of Burgaw’s work force
over the next couple of decades is uncertain.
The percentage of the town’s residents 25+
who are high school graduates has grown
steadily since 1980 and is expected to reach
81.2% by the year 2030. However, the
percentage of college graduates 25+ decreased
sharply after 1990. Historic levels of college
education indicate there may be a slight
recovery and rise to 20.3% by 2030, a
decrease from the 29% college graduation rate
seen in 1990. However, if current trends
continue, the percentage of those with a
college education may drop to under 10%.
As mentioned above, the number of residents
25-64 is expected to increase by
approximately 800 persons. The higher
numbers of residents of working age indicates
a growing need for local jobs, especially with
the high unemployment rates experienced
since 2008, if the town does not want to
become a bedroom community.
Housing Trends
Households
If such a decrease actually occurs, there may
be implications for the median income of
residents and affordability of housing and
rising poverty rates may be exacerbated.
While lack of a college degree does not always
indicate a lower income level, there is a
correlation between education level and
earning power. On the positive side, twice the
percentage of residents had some college or an
associate’s degree than had a bachelor’s
degree, according to the 2010 census.
Without data from other censuses, we cannot
In 2030, the number of persons per household
is expected to drop to 2.043 as one-person
households (up 6% since 2000) and nonfamily households (up 9% since 2000)
increase slightly. Most of the town’s housing
units (54.3%) will be rental units, an increase
of 16% since 2000 when 51.9% of housing
units were owner-occupied. In general, the
changing household type indicates that a
greater variety of housing options may become
marketable, including townhomes and
61
determine trends; however, along with the
increasing numbers of residents pursuing
education due to high unemployment rates,
these numbers indicate that the education
attainment of the labor force in 2030 is likely
to be higher than shown by the college
graduation rates alone.
in the labor force have children, a level that
should remain steady in 2030.
Poverty
Overall, the percentage of Burgaw’s residents
living in poverty should decrease slightly by
2030, down from 18.5% in 2010 to 16.24% in
2030. However, this trend does not apply to
all sectors of the population. The only sector
of the population expected to see large
decreases in poverty is for those 65 and older.
Based primarily on trends from the last
decade, the percentage of those 65+ in poverty
should decrease to negligible amounts by
2003; from 2000 to 2010, the percentage of
those 65+ in poverty decreased from its
historically stable level of about 20% to 4.9%
in 2010. However, if current trends continue,
by 2030, 60% of young children will be living
in poverty. There are also differences in
poverty levels depending on racial
demographics. While the percentage of white
persons in poverty is expected to rise slightly
from 7.9% in 2010 to 8.7% in 2030, the
poverty rate percentage for black persons is
growing much more sharply, rising to an
expected 52% of the black population in 2030.
Graph 32: College Graduates 25+
Percent of Population 25+
35
30
25
20
15
10
5
0
1980
1990
2000
2010
2020
2030
Labor Force
While the town’s labor force has grown
steadily since 1980, the percentage of the
population 16+ in the labor force decreased
from 1980 to 2000, when it grew slightly,
mirroring the pattern of the male labor force.
Males 16+ in the labor force decreased by over
30% from 1980 to 2000, then recovered
slightly, growing to 42.5% of males 16+ in the
labor force by 2010.
Land Use
Public Land Use
During the planning period, the town may
experience additional facility needs. The
police department has indicated a need for
expanded space. However, the town currently
owns three vacant buildings located on the
same block as Town Hall and the Planning
and Inspections Annex. While the former
EMS building is slated for removal and the
former USO has recently been renovated to
serve as a community building, the former
Pender County Jail would be available with
upgrades.
The pattern of the female labor force is much
different. The percentage of females 16+ in
the labor force also decreased during the
1980s; however, the 1990s brought a major
upswing, with almost half (45.6%) of females
16+ entering the labor force by 2000. Those
gains, however, were largely lost during the
2000s, and now both males and females are in
the labor force at similar levels (with 42.5% of
males 16+ in the labor force and 41% of
females 16+). Approximately 84% of females
Pender County has been planning an
expansions of the Sheriff’s Department, jail,
and courthouse facilities. Current plans are
62
focusing on the creation of a new county office
campus in St. Helena. If this occurs, it is not
certain what will become of the existing
county jail, jail administration building,
courthouse, and courthouse annex. The
moving of these services away from Burgaw’s
downtown could have a negative effect on its
vitality and commercial viability without plans
in place for re-purposing of these buildings.
Improved safety associated with heavy
truck traffic through the Burgaw
central business district
In addition, the following commercial land use
issues have also been expressed:
Attractiveness and safety of the
highway corridors (strip development,
large trucks, fast traffic, etc.)
Balancing high-quality development
requirements with business-friendly
policies
Lack of transition between highintensity commercial and residential
uses
The use of vacant public buildings, both townowned and county-owned, and the need for
upgraded facilities will be the major public
land use issues for the planning period.
Commercial Land Use
The majority of commercial development
during the planning period is expected to take
place along US Hwy 117 Bypass. There is
little available space for new development in
the downtown area and along Hwy 53 West.
Undeveloped land along Hwy 53 East is
available, and the town has laid water and
sewer lines to service commercial enterprises.
However, most of the land north of the
highway is located in a floodway and is not
likely to be easily developed, especially for
large commercial enterprises. The limitations
of this land are not currently reflected on the
Town of Burgaw Zoning Map or in its
ordinances.
The commercial land use issues facing the
town are most appropriately addressed by
creating strategies to reduce negative impacts
on adjacent properties based on site issues.
Currently, the town’s ordinances control new
development primarily based on narrow land
use categories; greater attention should be
placed on site design rather than the nature of
the commercial enterprise, which will provide
both greater flexibility to business owners and
entrepreneurs and fewer negative externalities
in terms of stormwater, traffic issues, etc.
Industrial Land Use
The Town of Burgaw has two types of
industrial zoning districts, I-1 for “light”
industries (those with a minimum of noise,
emissions, and other external effects) and I-2
for “heavy” industry. While in 1997 there was
a dearth of light industrial areas, such zoning
districts now provide much more land than
the I-2 zoning districts. Unfortunately, as the
town has grown, residential development has
encroached on areas historically devoted to
the heaviest of the town’s industries, creating
land use conflicts in terms of truck traffic,
noise, dust, etc.
For the planning period, the main commercial
land use issues continue to be those
identified in the 1997 Town of Burgaw Land
Use Plan:
Preservation of the Burgaw central
business district (both economic vitality
and historic integrity)
Control of commercial development
along US Hwy 117 Bypass
Control of commercial development
along NC Hwy 53 East between Burgaw
and I-40
Due to the large areas of undeveloped
industrially-zoned tracts, there should be no
63
need to find new areas for industrial growth
during the planning period. However, the
town should be vigilant in stemming
residential encroachment into industrial areas
to avoid the industry-residential conflicts
similar to those currently experienced by
agricultural enterprises and residential land
uses.
(AADT) counts, by 2040 several sections of
Hwy 53 and Hwy 117 Bypass are projected to
be over capacity, along with one portion of S.
Walker St. (Hwy 117 Business). Several roads
within Burgaw’s planning jurisdiction are also
shown to be under-width for the traffic speed
allowed. Penderlea Hwy, Highsmith Rd, Piney
Woods Rd, and Stag Park Rd are all too
narrow to handle the volume and speed of
traffic at current levels. However, the town’s
largest safety issues occur at intersections.
The intersection at Hwy 53 and Hwy 117
Bypass was indicated as the site of the most
accidents in the town’s jurisdiction. The
intersections at Walker St and Wilmington St,
Walker St and Bridgers St, and Timberly Lane
and Hwy 53 also need improvement. At both
the Walker/Bridgers and Timberly/Hwy 53
intersections, improvements are needed to
differentiate turning traffic from through
traffic. The Walker/Wilmington intersection is
too small to handle the large through truck
traffic.
Residential Land Use
During much of the past several decades, the
primary residential development model has
been large-scale subdivisions with new
infrastructure located on the edge of the
town’s developed areas. This development
model has been shaped by financing
incentives and development ordinances that
make large-scale development more profitable.
However, the long-term costs of new
infrastructure are borne by town tax payers,
even if installed by developers. Also, new
financing options may make such
development less desirable for developers. To
offset new development constraints posed by
financing options and to protect taxpayer
monies, the town should establish new
ordinances to allow and incentivize smallerscale, infill development options.
While the recent completion of the Osgood
Canal Greenway and Trail and recent sidewalk
projects have improved pedestrian access,
there are several areas around the town that
are unsafe for pedestrians yet have heavy foot
traffic, namely S. Walker St. and most
portions west of the railroad right-of-way.
Most intersections are also lacking marked
crosswalks, especially in areas of town outside
of the Central Business District. The town
currently has no bicycle infrastructure other
than the Osgood Canal Greenway and Trail.
Transportation
The town’s transportation needs in terms of
safety and efficiency were largely surveyed as
part of the 2012 Pender County
Comprehensive Transportation Plan process.
The plan was developed by the NC
Department of Transportation (NCDOT)
Planning Branch, and its recommendations
were approved by the Town of Burgaw Board
of Commissioners at their August 14, 2012
regular meeting. Since then, NCDOT has
decided to explore alternative options,
primarily for areas other than the Burgaw
planning jurisdiction.
As a result of these findings, the 2012 Pender
County comprehensive Transportation Plan
makes the following recommendations:
Widen Penderlea Hwy from Garden Rd.
to the Town of Burgaw city limits
Widen Highsmith Rd. from the Town of
Burgaw city limits to Hwy 210
Widen Piney Woods Rd. from New
Savannah Rd. to Henry Brown Rd.
While no state road is currently at capacity
according to 2010 average annual daily traffic
64
town’s growing bicycle and pedestrian needs,
safety and access issues along S. Walker St.
and Hwy 117 bypass, and maintenance of
existing infrastructure.
Widen Stag Park Rd. from Hwy 53 to
approximately 0.58 miles east of Hwy
53
Widen Hwy 117 Bypass from Hwy 53 to
the county line to a four-lane divided
thoroughfare with a median and
sidewalks on both sides
Widen Hwy 53 from Hwy 117 Bypass to
Stag Park Rd. to a four-lane divided
thoroughfare with a median and a
sidewalk on one side
Provide sidewalk infrastructure along
most streets within town limits (See
Appendix 3 for map)
Develop a bicycle circulation plan for
the town’s planning jurisdiction
Construct Burgaw Bypass (two lanes)7
Support a study of the feasibility of
reinstating freight and/or passenger
rail service
Construct a collector road that would
connect Hwy 53 and Hwy 117 Bypass
behind the existing McDonald’s and
Scotchman properties
Improve access management,
intersection, and streetscaping along
Hwy 117 Business (S. Walker St.)
Install roundabouts at the
Walker/Wilmington and Timberly/Hwy
53 intersections per the NC 53 Hwy
Corridor Study
Implement all other streetscaping and
intersection improvements as
recommended by the NC 53 Hwy
Corridor Study
The town has made or supported large
investments in new infrastructure over the
past two decades without recognizing the need
for continued maintenance of that
infrastructure. Several roads and portions of
sidewalk within the town are in poor
conditions. The town should analyze longterm maintenance costs when approached
with new development or redevelopment
dedicating infrastructure to public use or
when making decisions about constructing
new roads, sidewalks, and trails.
The town should also consider accessibility
issues and access management issues when
reviewing new development or development
proposals. Currently, the town’s ordinances
only require new sidewalk construction during
the major subdivision process. Sidewalk
requirements should be implemented for all
new development in areas where pedestrian
access is prioritized. New development should
also be easily accessible for bicycle traffic and
should be situated on the site so as not to
hinder pedestrian and bicycle access with
large auto-centric parking lots.
One growing transportation need of the town
is that of transit services. Especially with
increases in the town’s aging population and
its growing health industry, many of those
who live and/or travel in the town are unable
to drive. The town has limited transit and
transportation services within the town and
even fewer resources for those who need to
travel to Wilmington or the Triangle for
medical treatment. On a state level, the
military and port industries are garnering
political support for the reinstatement of rail
service between Wilmington and Wallace. The
possibility of passenger rail has also been
proposed. In order to ensure that such rail
Many of the Comprehensive Transportation
Plan’s recommendations are long-term
strategies meant to address the projected
needs of the town in 2040. The transportation
areas of most immediate concern are safety
improvements to Hwy 53, support of the
7
While the Burgaw Bypass is unlikely to be constructed
during the time frame of this plan, it should be noted that the
town supports limited access along that route to maintain the
area’s existing rural nature and to limit commercial sprawl.
65
service benefits the town’s citizens if
reinstated, the town must advocate for both a
stop within the town’s planning jurisdiction,
whether freight or passenger service, and for
maintaining current levels of east-west
connectivity.
Annexation
The Town of Burgaw has no existing plans for
future annexations. While requests for
voluntary annexation will be entertained, the
town’s ability to provide water and sewer
service will be the primary consideration. The
town currently provides water and/or sewer
along Stag Park Rd, NC Hwy 53 East, and US
Hwy 117 outside of the corporate limits.
These areas will be the most likely to request
annexation due to current zoning and double
water and sewer rates. Another factor that
should be considered regarding voluntary
annexation applications is whether the area
will be urban in nature. Because of the
existing low densities and rural nature of
some portions of the town’s current municipal
limits, Burgaw has experienced some conflicts
between rural and urban uses. For instance,
town code prohibits use of a firearm within
the corporate limits, so hunting and
agricultural depredation are not allowed on
properties that function as if they were “rural”
but are governed by “urban” ordinances.
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Section 3: Public Participation
Program
What things in the community should
be changed?
What would really improve Burgaw?
What should Burgaw look like in the
future?
How fast should changes occur?
As part of the comprehensive land use
planning process, the town offered various
opportunities for public participation. In
November 2011, planning staff provided
information and signed up volunteers at a
table at the Burgaw Business Expo. The
volunteer cards gathered at this event, along
with contacts in the business and
development community, were used to compile
a mailing list that was sent information on
public meetings, surveys, and focus group
meetings throughout 2012.
Participants indicated that some of Burgaw’s
greatest strengths could be attributed to the
downtown area, general livability, and
appearance. In general, the situations that
conflicted with these strengths—“ugly” power
lines, lack of crosswalks and pedestrian safety
devices, declining tree canopy, etc.—were seen
as the town’s biggest weaknesses.
Participants indicated a desire to maintain a
small town quality of life with a strong sense
of community, high level of safety, family
orientation, local businesses, and historic
structures.
Two public meetings and eight focus group
sessions were held in all, and a general survey
was sent out to the mailing list and board
members. The planning staff also interviewed
stakeholders and experts in relevant fields to
gather information for each policy area. Using
the information gathered through these
methods, the planning department drafted
policies that were discussed at regularly
scheduled planning board meetings.
General Land Use Plan Survey
Respondents to the general land use plan
survey, sent out during the spring of 2012,
affirmed the importance of Burgaw’s small
town identity for its citizens.9 When rating the
best aspects of living and/or working in
Burgaw, 92.9% named the town’s small town
atmosphere. Its proximity to Wilmington and
community appearance were also important
aspects, but neither were named by over half
of respondents.
Issue Identification Session
An issue identification session was held at the
February 16, 2012 Planning Board meeting.
Participants worked in small groups to answer
the following questions:8
According to the survey, the most important
issues or concerns Burgaw will face over the
next 20 years include preserving the small
town quality of life, keeping a thriving
downtown, the availability of jobs, and
maintaining existing infrastructure. These
responses point to the need for the town to
find a balance between pro-business policies
and development regulation. Respondents
also indicated that the two primary factors
that would affect their living in Burgaw would
What are the strengths/assets of
Burgaw?
What are the town’s
weaknesses/issues?
What is included in a “good” quality of
life for Burgaw residents?
What are the community’s principal
values (or what should be most
important)?
What things in the community should
be preserved?
8
9
See Appendix 4 for a full list of participants’ responses.
67
See Appendix 5 for full results.
be the loss of community character and a lack
of employment opportunities.
expert interviews in all policy areas. The
policy areas where no formal focus group or
interview was held were Land Use (i.e.
development patterns) and Governance. In
those policy areas, the planning department
used information from a variety of sources to
draft proposed policies.
While the surveys indicated that a strong
economy was very important for Burgaw’s
citizens, the majority of business owners
pointed to the limits of the local market. In
fact, 87.5% of respondents said they primarily
shopped for non-grocery retail goods in
Wilmington. Thereto, while walkability was
named an important aspect of the town and
lack of physical activity was declared one of
the biggest health and safety concerns in
Burgaw, 61% of survey respondents said they
never walked or biked to the store or work.
Agriculture & Forestry
Focus group members and industry experts
cited several current economic stressors facing
agriculture and forestry production. Some
economic constraints include the
requirements for present use value taxation
and cost of entry for large acre farms, which
are the most economically viable. Regulations
on the local level restricting farming and the
development pressures that come with
population growth and the desire for large
acres are also threats to the industry and the
amount of available land.
Visual Preference Survey
On May 17, 2012, the Town of Burgaw
Planning Board and town citizens participated
in a visual preference survey. This type of
survey is a means of assessing the public’s
perspective on various types of development.
The intent of the survey was to gauge general
opinions of respondents and to inform the
land use planning process. It consisted of a
series of pictures that participants were able
to rate on a scale of -4 (extremely undesirable)
to +4 (extremely desirable). The types of
development rated were commercial, office,
industrial, single-family residential, multifamily residential, parking lots, and signs. In
general, participants favored development that
used high-quality design elements and
abundant landscaping.
As population growth occurs and begins to
encroach on historically agricultural and
forest areas, conflicts between the uses occur.
For instance, some residential neighbors
complain of drift from agricultural spraying,
and there has been evidence that residents
will trespass on forestry properties, using the
tracts for trash disposal or putting up tree
stands for hunting.
The largest effect of development
encroachment, though, is on the environment.
Residential lawns mean more fertilizers,
chemicals, and pet waste in the water supply.
Loss of wildlife habitat, timberland, and
wetland ecosystems are also important issues
the industry faces. The principal
environmental stressors affecting agriculture
and forestry in the Burgaw area were
identified as water quality degradation due to
increased stormwater runoff, alteration of
existing drainage, and impact on the quantity
of water resources.
While the information from this survey did not
factor heavily in the policies of the
Comprehensive Future Land Use Plan, this
information will be used as the planning
department makes changes to the Unified
Development Ordinance as recommended by
this plan.
Focus Groups/Policy Area Interview
The planning department held focus group
meetings for eight of the policy areas
represented in the plan, and stakeholder or
While focus group members recognized that
the land in town will likely be developed in 20
68
years time due to smaller lot sizes not
qualifying for present use value taxation,
development pressures, etc, they urged the
retention of agriculture and forestry in the
ETJ.
and southeastern North Carolina is population
growth and sprawling urban development
patterns. Both have major effects on water
quality, quantity, solid waste, and wildlife
habitat.
Participants in the parks and recreation focus
group looked at the strengths and weaknesses
of Burgaw’s existing parks and recreation
system, as well as offering suggestions for new
or improved offerings. The Osgood Canal
Greenway and Trail was one of the amenities
most often used, and respondents indicated
that the sense of safety users felt when
walking or biking downtown and on the trail
was one of the greatest strengths of the
existing system.
The focus group members provided several
suggestions that would help the town to
protect the natural environment as a whole:
reducing or deleting parking minimums to
reduce stormwater runoff, incentivize
development where appropriate (building up
rather than out), preserving open
space/agriculture/forestry, and providing
guidance for small acreage or hobby farmers
to protect water and soil quality.
For the future, participants suggested
expanding the sidewalk system and level of
pedestrian friendliness of the town. Longer
and different locations for biking and running
were two areas of need. However, many
suggestions were for improvements to the
Osgood Canal Greenway and Trail: route
signage, exercise stations along the trail,
adding on to the existing trail for bikers, and
greater connectivity between the different
areas of town.
In general, most of the air quality issues in
Burgaw are due to the natural environment
rather than pollution. Measured pollution
rates are actually quite good in this area.
However, the general pollen load, smoke from
wood fires and agricultural burning, and
indoor air quality (including mold) do have an
effect on the public health.
Air Quality
Solid Waste and Recycling
Growing populations lead to greater waste. As
solid waste fees go up, some cities are
becoming more aggressive advocates of
recycling and composting as cost-saving
measures. Currently, the town offers
recycling services, but there are no formal
programs in place to educate the public on
ways to reduce waste, such as composting.
Other future projects that were suggested
include a community center, expansions of
existing parks to allow for multiple play areas
for a wide variety of recreation options
(perhaps in conjunction with Pender County
at Pender Memorial Park), a pool for water
safety education, and dog parks.
Water Quality and Quantity
Environment
The information provided by the stakeholders
and experts who took part in the environment
focus group was similar in many ways to that
expressed by the agricultural and forestry
group. The area’s growing population and its
effects has the greatest impact on the natural
environment. Two of the most important
environmental issues currently facing Burgaw
While Burgaw’s water supplies are ample, the
experts did express concern about
maintaining a healthy aquifer system and
healthy surface water. The amount of
stormwater runoff, intensified by impervious
areas, leads to surface water contamination.
The amount of stormwater runoff and
drainage issues are exacerbated as
69
development increases. One expert also
indicated that the town may want to monitor
the Black Creek Aquifer as the regional
wastewater treatment systems discharge into
running bodies of water rather than
replenishing the aquifer. Diverting
stormwater into drainage systems that carry
water away from the town may also contribute
to declining aquifer levels, so the town should
promote the protection of natural wetlands for
stormwater treatment and management.
Actions that decrease the level of stormwater
runoff, such as promoting pervious surfaces,
protecting open space, and establishing
impervious limits, are also useful.
Economic Development
One of the biggest issues for the local economy
is the lack of a local market for goods and
services. Area business especially rely on
local support to remain profitable, and as
shown by the General Land Use Plan survey,
the majority of residents, business owners,
and workers look to Wilmington for most of
their shopping needs. Because it is the
county seat, has a large amount of through
traffic, and is the site of the county
courthouse, Burgaw is a viable location for
several small businesses, but the market is
not sturdy enough to sustain a large variety of
small, locally-owned businesses, especially if
the county moves operations out of the town
limits. One expert stressed that local citizens
must visit their local business all of the time,
not just occasionally, and that this market
needs to be supplemented by increased draws
to the town in order to sustain the local
economy.
Natural Resources/Wildlife/Biodiversity
Protection of wetlands was named as an
important objective for wildlife protection as
well. As the population of the town grows and
development displaces habitat, the number of
human/wildlife confrontations (deer,
snakebites, rabies, alligators) is likely to
increase. The focus group also stressed the
need to protect the urban tree cover to
alleviate the effects of air, noise, and water
pollution, as well as promoting a healthy and
biodiverse habitat for native animal species.
However, the experts stressed that attracting
new industry is an important economic
development strategy as well. Factors that
hinder the town’s marketability to new
industries and business include a dearth of
advertised workforce rental housing and
government regulations. While the census
found that over half of housing units in
Burgaw are renter-occupied, few rental units
can be found through internet searches,
causing people unfamiliar with the area to
find housing elsewhere and limiting the town’s
attractiveness to relocating industries. In
addition, though the experts agreed that the
community’s appearance was a major benefit
in attracting and supporting business and
industry, there was concern about
overregulation and difficult development and
review processes.
Energy
As the costs of conventional fuel rise, Burgaw
residents can expect to see a rise in electricity
rates. There are two primary strategies to
mitigate this trend—reducing energy usage
and providing regulatory structures for
alternative energy sources. Area experts
recommend looking at the town’s operations to
find ways to reduce energy usage, encourage
energy audits, and to consider long-term costs
when looking at new equipment since up-front
costs for energy efficiency may discourage
those technologies. Focus group members
also indicated that the planning department
should prepare for alternative energy
industries and sources in its ordinances.
Youth Development
The insights from this focus group session are
incorporated into several different policy
areas, including the equity policies.
70
Participants acknowledged the community has
inadequate support in place for the town’s
young people and few structured activities to
fill the time between the end of the school day
and when their parents return from work.
However, they did not see that it was the role
of the town to provide services, though the
need for a community center was reiterated.
The focus group members did hope that the
town would provide greater support through
in-kind donations, marketing, etc. for youth
development programs in the area.
The Pender County Transportation Plan
focused primarily on the safety and efficiency
of existing transportation modes. The safety
and efficiency issues the town has stressed
include the Hwy 53 corridor improvements
and the future Hwy 53 bypass.
Public Health and Safety
Chronic disease is the leading cause of death
in Pender County, and one reason for this is
due to a lack of physical activity and good
nutrition. As a result, experts from the focus
group meeting and individual interviews stress
the need for the town to promote land use
patterns and transportation systems that
encourage physical activity. Walking, biking,
and other physical activity need to be as easy
and safe as possible. In addition, citizens
need to be educated on how to implement
healthy lifestyle choices, and initiatives that
support these choices should be encouraged
and supported by the town. Since the town is
unable to completely address this issue on its
own, it will be important to form and
strengthen partnerships with area
organizations devoted to improving citizens’
health, such as the Pender County Health
Department.
Transportation
While a focus group meeting was held to
discuss transportation issues, the majority of
policies in this area came out of the Pender
County Comprehensive Transportation Plan
and a meeting of the Board of Commissioners’
Streets Committee. The major concerns that
arose in these meetings include the ongoing
maintenance of infrastructure, alternative
modes of transportation, safety of
transportation modes, and efficiency of
transportation networks.
Over the past few years, the town has had to
increase its spending on maintenance of
existing roads and sidewalks as needed
repairs and upgrades that had been deferred
in the past became prudent. The Streets
Committee expressed the need to continue ongoing maintenance so major repairs were less
necessary and to include long term
maintenance costs when considering
development proposals or new infrastructure.
Other health and safety concerns include
pollution, public nuisances, fire protection,
and crime prevention. New development
should be reviewed to ensure that it supports
a healthy, safe, and crime-free environment
for Burgaw’s citizens, and programs that
strengthen community ties and support are
effective ways of preventing crime.
New infrastructure is needed, however,
especially for pedestrian and bicycle modes.
Many of Burgaw’s citizens walk and bike for
fun and exercise, but a portion of the
population also use these modes as their
primary form of transportation. Provisions for
pedestrian and bicycle traffic also support
goals of the parks and recreation, public
health and safety, equity, and environmental
protection policy goals.
Housing
Historically, the residents of Burgaw have
favored medium to low density single family
housing, as evidenced by the General Land
Use Plan Survey, and those housing types are
most prevalent within the town’s corporate
limits. However, such housing may not be
appropriate for a large percentage of the
71
population or responsible land development
patterns.
A major concern by policy makers is that the
amount of multi-family housing in the town is
also not balanced and serves non-resident
populations. Managers of multi-family
developments have indicated that the demand
for their units is very high and that residents
are generally stable, staying for long periods of
time. Because many of these multi-family
sites are subsidized, policy makers stress that
the town must maintain a balance between
subsidized housing types and local jobs. It
will be of little benefit for residents if they can
afford to live in town but not able to find
employment nearby. In general, one primary
goal of the housing policies in this plan is to
provide a wide variety of housing options to
fully support a wide spectrum of residents,
both existing and future.
Workforce housing is a major concern as
many Burgaw workers do not live in town.
Development experts have indicated that a
major constraint to the development of new
affordable housing is the cost of land and
required improvements. In order to make
development more affordable, the town can
provide information on development
constraints that may affect value and can
work to improve the efficiency of the
development review process.
One expert, however, asserted that existing
housing units in Burgaw should be affordable
to most working professionals and/or families.
Many single professionals elect to live
elsewhere due to the lack of cultural and
social opportunities, and families, who would
perhaps be more drawn to the small town
character, are choosing to live in areas such
as Hampstead that are touted for their quality
schools.
72
Section 4. Comprehensive Future
Land Use Plan
The town’s vision statement was developed
using the vision statement of the 1997 Land
Use Plan and citizen responses provided at the
February 2012 Issue Identification Session.
In addition, a vision statement was created for
each topic area, creating a focus for the goals,
policies, and actions outlined for each area of
concern.
The Town of Burgaw Comprehensive Future
Land Use Plan lays out the town’s course of
action to achieve its vision and is based on the
input received through citizen participation,
expert interviews, and research regarding
current conditions. The plan includes nine
broad topic areas: land use, governance,
economic development, agriculture and
forestry, environmental protection, parks and
recreation, public health and safety,
transportation, and housing. In addition, the
plan includes an equity statement targeting
underrepresented sectors of the population
with policies and action items associated with
each topic area. The plan also includes the
Future Land Use Map, which sets out the
town’s vision of its future development
patterns.
Burgaw 2030 Goals, Policies, and
Actions
Goals are the desired ends toward which the
policies and actions outlined in the
Comprehensive Future Land Use Plan are
directed. Goals can be considered the values
and general principles that guide the
development of a community. They put into
words a community’s preferred future. Goals
also provide a benchmark for developing
effective policies and programs to achieve that
desired future. The goal statements are
consistent with the aspirations expressed in
the Burgaw 2030 vision and the topic area
visions. Goals are not time-bound.
Burgaw 2030 Vision Statement
The Town of Burgaw is a vibrant
community of engaged citizens who
have created a safe, healthy, and
secure environment for all of its
residents. Burgaw combines its
agricultural assets, technical
capability, and historical heritage
with a strong work ethic to establish a
diverse and thriving economy. The
town’s rich history, recreational
opportunities, and attractive
neighborhoods and shopping districts
enrich the lives of its citizens and
attract new residents and visitors
alike. The town recognizes the value
of Burgaw’s present resources and
recognizes that its future prosperity
depends on protecting those assets.
Policies and actions are outlined for each goal.
Policies are a consistent set of principles and
decision guidelines that are intended to attain
the locality’s goals and objectives. Action
items are specific projects or courses of action
in accordance with the expressed policies that
will be used to meet the plan’s goals. Like
goals, policies are not time-bound and may
include sustained efforts and projects.
Discrete individual actions and action items
associated with particular policies or goals will
be implemented into the planning
department’s annual work plan, depending on
staff levels, budgetary constraints, Board of
Commissioners’ priorities, etc. While the
planning department will be responsible for
many of the policies and actions outlined in
the plan, the Comprehensive Future Land Use
Plan is, in the end, an adopted plan of the
Town of Burgaw Board of Commissioners and
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is intended to assist in guiding their future
decisions.
Land Use
The Town of Burgaw realizes the link
between land use patterns and its ability
to provide and maintain a high level of
service. The town also understands that
its policies regarding development
practices can either positively or negatively
affect current residents, future generations,
and the sustainability of natural resources.
As a result, the town aims to promote
growth and development that will
efficiently use existing infrastructure and
land resources.
Comprehensive Future Land Use Plan Terms &
Definitions
Should—An officially adopted course or method
of action intended to be followed to implement
goals. Though not as mandatory as “shall,” it is
still an obligatory course of action unless clear
reasons can be identified that an exception is
warranted. Elected, appointed, and
administrative officials may be involved at all
levels from planning to implementation.
Goal 1: To promote infill development and
revitalization of areas with existing
infrastructure
Encourage—Foster the desired goal through
Town policies and actions, including financial
support, if appropriate.
Policies
Maintain—Keep in good condition the desired
state of affairs through the use of Town policies
and with elected and appointed officials and
staff involvement, funding, and actions as
appropriate.
Encourage development in areas where
the necessary infrastructure—roads,
water, sewer, etc.—are available,
planned, or can be most cost effectively
provided and extended to serve existing
and future development
Oppose rezonings and infrastructure
improvements that create a “leap frog”
development pattern, wherein
development bypasses primary growth
areas and occurs in isolation or in
small clusters
Promote—Advance the desired state through
the use of Town policies and elected and
appointed officials and staff involvement, and
take action as appropriate.
Provide—Take the lead role in supplying the
appropriate support to achieve the desired goal.
The Town is typically involved in all aspects
from planning to implementation to
maintenance. Actions may involve Town
financial support, if appropriate.
Actions
Develop and utilize innovative and
flexible land planning techniques that
encourage developments to efficiently
use land resources that result in more
compact development, infill
development, redevelopment, and the
adaptive re-use of existing buildings
Explore the addition of conditional
zoning to the UDO as a way to provide
more flexibility for the land
owner/developer and the town to
mutually agree upon specific
Support—Adopt and pursue policies and take
action to coordinate activities and supply
necessary resources, as appropriate, to achieve
desired goal. Does not imply promises of
financial support.
Work—Cooperate and act through the use of
staff, Town officials, outside resources, and
volunteers to create the desired goal.
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development conditions and
requirements
Goal 3: To encourage quality and
controlled growth that enhances and
maintains the community’s character
Goal 2: To establish regulations that
protect and acknowledge the topographical
and hydrological features of the town
Policies
Encourage mixed-use centers as an
alternative to “strip commercial”
corridors that would use land
inefficiently, generate unnecessary
traffic, and create traffic congestion and
safety challenges because of frequent
driveways and their associated turning
movements
Policies
Promote the set-aside of
environmentally sensitive areas,
including riparian buffers and stream
corridors, wetlands, and floodplains,
within new developments
Consider floodplain and wetland
information when making
infrastructure, rezoning, and
development regulation decisions
Avoid the placement of infrastructure
that may encourage future development
in the floodway
Encourage the provision of on-site
stormwater systems that mimic natural
systems like rain gardens and
constructed wetlands
Actions
Develop small area plans for the
downtown, gateways, and highway
corridors that establish unique visual
character and guidelines for
landscaping, signs, site development,
etc.
Develop design standards for infill and
new commercial, mixed-use, and multifamily developments
Authorize a special overlay district for
downtown that establishes guidelines
for building façades, streetscapes,
sidewalks, paving, landscaping, street
amenities, and signs
Consider the modification of existing
zoning districts or addition of new
zoning districts to allow for transition
zones between residential and
commercial areas
Apply development standards to ensure
that new developments are human
scaled, pedestrian friendly, and
physically integrated with the
surrounding area
Encourage less-intensive commercial
uses, small offices, and compatible uses
adjacent to existing residential
neighborhoods by allowing adaptive
reuse of single-family units on the edge
of neighborhoods. Commercial
Actions
Identify areas containing sensitive
and/or unique natural resources and
open space and prioritize such areas for
conservation and preservation
Require the stabilization of soils as
quickly as possible during and after
construction and encourage the use of
native seed mixes for soil stabilization
and erosion control
Clarify the function of the
Conservation/Preservation overlay
zoning district and update regulations
regarding development in C/P zones
Update flood regulations and encourage
best management practices to mitigate
flood hazards
Limit the density and intensity of
development in the floodway and 100year floodplain
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development in these areas should be
architecturally compatible with
surrounding development. Adaptive
reuse of single-family units should
maintain their residential appearance
and character.
Incorporate traditional neighborhood
design mechanisms in the zoning and
subdivision ordinances, including
elements such as highly connected grid
roadway systems, street trees, etc.
Governance
The Town of Burgaw envisions an actively
engaged citizenry involved in all levels of
local governance and a local government
that protects the interests of all citizens by
balancing investments in the community
with fiscal responsibility. It strives to
continually improve government efficiency
and effectiveness to ensure a high level of
service for the entire community.
Goal 4: To implement the policies and
actions of the comprehensive land use plan
Goal 1: To ensure cost-effective provision
and development of public facilities and
services
Policies
Oppose land use, development, and
zoning decisions that are not consistent
with the comprehensive plan
Policies
Consider the potential impacts of
maintenance obligations and life-cycle
costs in the development of projects
and programs
Coordinate capital improvement
program development with ongoing
maintenance needs in addition to
preservation and rehabilitation projects
Rehabilitate and maintain in good
condition existing public infrastructure
to accommodate infill development and
allow for the most efficient use of
existing infrastructure
Relate work projects and spending
priorities to the goals outlined in the
Comprehensive Future Land Use Plan
Use quantitative measures to evaluate
the effectiveness of town projects and
programs
Consider long-term costs and benefits
when prioritizing town expenditures
Actions
Review existing development standards
and other regulations in the UDO to
ensure their compliance with the
comprehensive land use plan
Update the comprehensive land use
plan approximately every five years to
reflect the best available information
and changing conditions
Establish quantitative measures for
each land use policy area that can be
used to evaluate the effectiveness of
policies
Conduct an annual evaluation and
assessment report on the progress of
the work plan and enumerating the
quantitative measures
Initiate amendments to the
comprehensive land use plan based on
the findings of the small area planning
process
Goal 2: To improve and streamline the
delivery of services to all customers
Policies
Maximize the use of communication
technology to facilitate the exchange of
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information between public officials and
citizens
Invest in creating a culture of customer
service at all staff levels
individuals with expertise or interests
in specific processes or areas to
distribute appropriate information
regarding projects, plans, and
development codes
Include information on current
departmental projects on town website
Develop public information and
education programs to inform and
educate citizens on how government
works and on issues that affect the
communities in which they live
Distribute newsletters regularly to
report on community planning issues,
major projects, upcoming meetings,
and other matters of public interest
Develop a speaker’s bureau of city
officials and other well-informed
persons available to speak before
service groups, clubs, and school
classes
Work actively to provide news media
with information for the public
Create informational brochures
containing both general information on
town government and specific city
services, explaining procedures, and
outlining required information for
applications
Develop a program to recognize
outstanding community volunteers
Actions
Ensure that technical information is
available in understandable form and
that all segments of citizens are
afforded access to this information
Compile and update public records,
including maps, plans, permits,
correspondence, etc., in a format easily
accessible to town staff and the public
Develop and clearly communicate
customer service standards and
expectations
Create a feedback loop in which
customer satisfaction information is
continuously gathered and information
obtained is fed back into the system for
quality improvement efforts
Streamline internal processes to ensure
citizens and other customers can
receive accurate, timely information
Develop a comprehensive customer
service training program for all
employees
Goal 3: To increase citizen participation
and involvement in the town’s decisionmaking process
Goal 4: To develop and strengthen
partnerships with community
organizations, public agencies, and other
jurisdictions
Policies
Sustain efforts to appoint a wide variety
of people to citizen advisory boards and
commissions
Promote opportunities that bring people
together to help them build connections
to each other, their peers, and the
greater community
Policies
Participate in regional and local
initiatives designed to support greater
inter-jurisdictional partnerships
Encourage participation of other
governmental entities and community
organizations in town planning
initiatives, including the development
Actions
Create and maintain a registry of
stakeholders, interest groups, and
77
and implementation of the
Comprehensive Land Use Plan
Encourage town board and staff to
actively participate in community
groups and their initiatives
the Burgaw Area Chamber of
Commerce, etc., to promote and market
the town’s businesses and industries
and to further tourism
Partner with other western Pender
County municipalities and communities
to establish the area as a regional
tourism destination
Promote the downtown as a place for
community gatherings and the focal
point of the tourism industry
The Town of Burgaw recognizes that
economic vitality is essential to the
success of the community and envisions a
diverse economy that provides living
wage employment opportunities to its
residents and a stable tax base. It
recognizes the importance of supporting
existing businesses and industries,
attracting new investment to the
community, and encouraging
entrepreneurship.
Actions
Implement land development standards
within the town’s commercial areas that
promote high quality, aesthetically
attractive development, in order to add
to and protect the existing economic
value to those areas
Develop, implement, and support a
buy-local campaign to ensure a healthy
market for local businesses and
industries
Implement a marketing and branding
campaign for the historic district,
downtown, and community as a whole,
using the principals of the Small Town
Main Street and other economic
development programs
Develop small area plans for downtown,
commercial corridors, and gateways
into the community
Goal 1: To support the profitability and
sustainability of existing businesses and
industries
Policies
Consider the impacts of the town’s
policies on Burgaw’s economic vitality
when making decisions regarding taxes,
fees, utility rates, development
ordinances, etc., while recognizing the
balance between economic
development, the maintenance of high
quality services, and the financial
health of town government
Identify, construct, and maintain
infrastructure systems and facilities
required to promote and sustain a
positive economic climate
Work with the private sector to evaluate
economic trends, opportunities, and
needs of key industries, with the
intention of anticipating issues and
taking early action to avoid decline in
the city’s commercial areas
Develop partnerships with other
organizations, such as Pender County,
Goal 2: To attract businesses and
industries that will enhance the economic
health and livability of the town
Policies
Cultivate partnerships with other
organizations, such as the Burgaw Area
Chamber of Commerce, Wilmington
Business Development, etc., to
effectively market the town’s economic
assets and to actively recruit new
businesses and industries
78
ordinances that will attract and retain the
type of enterprises necessary to achieve
the town’s vision
Ensure the town’s zoning and
development codes can accommodate
appropriate businesses and industries
and a variety of development forms
Invest in public amenities, such as
parks and recreation, arts and culture,
etc., and encourage private amenities
that will serve to attract large
employers
Facilitate private sector efforts to
implement state-of-the-art technology,
including communication technology,
throughout the community
Policies
Maintain an efficient, timely,
predictable, and customer-focused
permit process, conducted in a manner
that integrates multiple city
departments into a coordinated entity
Improve communication among town
staff, boards, and the business
community to foster greater cooperation
Goal 3: To foster local entrepreneurship
and economic capacity
Actions
Review, and amend as necessary, the
town’s ordinances to remove
unnecessary barriers to retention and
expansion of existing businesses and
recruitment of new businesses and
industries
Policies
Support and collaborate with Cape Fear
Community College, the Pender County
school district, and other educational
institutions to encourage the
development of programs that meet the
changing needs of employers and
employees
Encourage education opportunities in
entrepreneurship, innovation, and
mentoring
Provide opportunities for small food
business start-ups through facilities
and training opportunities associated
with Burgaw Incubator Kitchen
Agriculture and Forestry
The Town of Burgaw recognizes agriculture
and forestry as integral parts of the town’s
economic and environmental health. In
addition, agricultural and forestry lands
contribute to the small town character of the
community. As a result, the town seeks to
preserve, maintain, and support agriculture
and forestry within its zoning jurisdiction.
Actions
Goal 1: To preserve existing agricultural
and forest lands
Amend the ordinance to provide
opportunities for home based
businesses that are compatible with
residential neighborhoods and subject
to appropriate restrictions
Use the town’s website to facilitate the
collection, analysis, and dissemination
of information that contributes to
economic activity
Policies
Consider effects on agricultural
properties when contemplating
expansion of public utilities and other
growth-inducing infrastructure into
agricultural areas
Support educational initiatives on the
importance of and methodology for
Goal 4: To ensure clear and efficient
administrative procedures, policies, and
79
agricultural conservation, including
conservation easements
Present information on prime
agricultural and forestry lands for
consideration when making rezoning
and other development decisions
Goal 3: To encourage and support
profitable agricultural and forestry
industries
Policies
Support the development of local
markets for agricultural and forestry
products
Support agricultural education
programs and events
Actions
Create zoning ordinances that
encourage new development in areas
with existing infrastructure
Determine prime agricultural and
forestry lands in Burgaw’s zoning
jurisdiction
Actions
Encourage agritourism and other
agribusiness by allowing, with
appropriate regulations, on-site sales of
agricultural products and related
services, roadside stands, farm
markets, temporary and off-site signage
for agricultural uses, flexible parking
requirements, accessory housing, and
sideline home-based businesses and
cottage industries
Create local promotional efforts,
including farm maps, websites for
direct marketing, pick-your-own and
agritourism activities, and slogans and
marketing campaigns to help
consumers remember and seek out
local foods
Remove regulations requiring aesthetic
buffers on small timbering tracts
Goal 2: To mitigate the effect of
incompatible development adjacent to
agricultural and forestry areas
Policies
Support the county’s Voluntary
Agricultural District
Actions
Implement ordinances requiring new
developments encroaching on existing
agricultural areas or those identified as
prime agricultural and forestry lands to
include buffers along borders with the
agricultural lands
Create innovative subdivision
regulations that provide for the
agricultural or forestry use of required
open space
Allow greater flexibility in subdivision
regulations to enable coexistence of
agricultural endeavors and other land
uses
Designate roads frequently used by
farm-related vehicles
Goal 4: To protect the integrity of
wetlands and wildlife habitats
Actions
Create regulations in accordance with
forestry best management practices for
timbering on small non-present use
value tracts
See Environmental Protection section for more
policies related to this goal.
80
Environmental Protection
Create a resource manual for
sustainable energy use, fuel sources,
and solid waste disposal
Amend the town’s development
ordinances to allow for and support
alternative energy use and industries
Update and implement the strategies
outlined by the Town of Burgaw
Strategic Energy Plan
The Town of Burgaw appreciates the
connection between a healthy environment
and vibrant residential and business
community and is committed to protecting its
natural resources in order to maintain a high
standard of living for the town’s citizens both
present and future.
Goal 2: To protect and improve the town’s
air, land, and water resources
Goal 1: To reduce waste and energy
consumption in such a way as to minimize
local and regional environmental impacts
Policies
Policies
Support initiatives to decrease traffic
congestion, such as commuter options
programs, Safe Routes to School
projects, idling reduction campaigns,
etc.
Design road and greenway
infrastructure to promote bicycling and
walking as two of the primary forms of
transportation
Promote and provide incentives for
residents, businesses, and institutions
to reduce and recycle waste, including
construction and demolition debris
Consider long-term costs in terms of
energy consumption, maintenance, etc.
when purchasing items for town use
and making capital investments
Advance green building practices by
encouraging National Green Building
Certification Programs, such as, but
not limited to, LEED, NAHB Green, and
Healthy Built Homes, as well as other
local or statewide programs or
recommended practices for new and
existing development
Actions
Create campaign to educate the public
on ways to limit soil disturbance and
Best Management Practices (BMPs)
during development projects to control
soil erosion and minimize sediment
run-off
Provide developers with information
outlining town regulations that include
specific open space definitions and
standards addressing protection of
open space, natural vegetation, and
landscaping, as well as the use of open
space for buffering
Develop and utilize flexible land
planning techniques and incentives to
encourage development to efficiently
use land resources (i.e. infill
development, redevelopment, and the
re-use of existing buildings)
Identify and implement incentives for
open space dedication of highest valued
Actions
Reduce the sources of solid waste by
developing education and outreach
programs and through increased
recycling and composting
Explore the creation of development
tools that encourage the use of flexible,
innovative land use patterns, such as
mixed-use development, neo-traditional
neighborhood standards, cluster
development, etc. for new subdivisions
and residential developments
81
natural resource lands (i.e. density
bonuses, reduction in lot sizes and
setbacks, etc.)
Develop ordinances to encourage Low
Impact Design (LID) elements, as
appropriate, to preserve natural
resources on development sites and to
mitigate the impact of stormwater
runoff
Implement non-structural stormwater
BMPs in an effort to improve water
quality, such as public education
programs, monitoring and control of
illicit discharges, expansions of the
greenway concept to include “receiving
lands” that can absorb storm surge
overflows, etc.
Adopt regulations to reduce impervious
surfaces from building and parking
footprints, such as promoting multistory buildings, encouraging shared
parking, requiring overflow parking to
be grassed, and establishing parking
maximums
Develop technical guidance to educate
homeowners and homeowner
associations on the importance of
stormwater facilities and proper
maintenance requirements
better protect the town’s flood prone
areas and to improve the affordability of
flood insurance for property owners and
residents
Develop appropriate riparian buffer
requirements to enhance the
environmental function of streams and
creeks
Strengthen regulations on development
in floodplains and wetlands to protect
adjacent property owners and prevent
economic losses during flood events
Goal 4: To preserve and enhance the
town’s tree canopy
Policies
Promote the reforestation of tree
coverage that is typically lost during
urban and suburban development
through tree conservation, targeted tree
plantings, urban forestry, and street
tree plantings
Actions
Continue participation in the Tree City
USA program and work toward annual
Growth Awards and Sterling Tree City
USA designation
Goal 3: To protect the integrity of
wetlands and wildlife habitats
The Town of Burgaw identifies public parks
and recreation as an effective tool to connect
neighborhoods; help individuals reach their
potential through ensuring healthy, active,
and balanced lifestyles; provide a sense of
place and identification for the community;
and protect the viability of natural lands.
The town strives to serve as a steward of
public lands and to provide the recreational
opportunities most needed by its citizens.
Policies
Encourage nature-friendly subdivisions
with large blocks of contiguous habitats
linked by functional connections
Discourage use of non-native and
invasive species
Encourage and support Wildlife
Friendly Development Certification
Actions
Note: These goals and policies shall update and
supersede the goals identified in the 2008 Town of
Burgaw Parks and Recreation Master Plan.
Pursue participation in the National
Flood Insurance Program (NFIP)
Community Rating Systems (CRS) to
82
Goal 1: To encourage and protect citizens’
health and well-being through a wellconnected system of trails, sidewalks, and
neighborhood parks
Goal 3: To increase marketing efforts to
achieve an increasing public awareness of,
appreciation for, and usage of our parks
and facilities
Policies
Policies
Revise the Parks and Recreation Master
Plan every 5 years to accurately reflect
current conditions and community
input and to incorporate land use plan
policies
Encourage the use of conservation
subdivision development to preserve
open space amenities within new
development
Support biking through infrastructure
improvements at appropriate locations
Actions
Install signs along trails with map of
entire trail way
Clearly delineate Osgood Canal
Greenway and Trail with markers
Initiate self-guided educational and
recreational programs that can be used
by individuals or organizations to
optimize use of the town’s recreation
system (e.g. native plant and bird watch
lists, walking programs, educational
resources for school-aged children,
Historic Walking Tour, etc.)
Keep the Parks and Recreation page on
the Town of Burgaw website up-to-date
Partner with local organizations to
increase distribution of park maps and
other information
Encourage use of the Osgood Canal
Greenway and Trail and park features
through the creation of wellness
initiatives that can be used by citizens
and area organizations
Actions
Expand sidewalks and trails to connect
all neighborhoods to park systems
Keep records of regular maintenance of
parks and equipment to ensure they
are kept in optimal condition
Ensure UDO regulations include clearly
defined open space standards to ensure
open space set asides are usable for
recreation purposes
Goal 2: To provide recreational
opportunities for all town citizens,
regardless of age, physical condition, or
location of residence
Policies
Partner with Pender County Parks and
Recreation and other area organizations
to provide a wide variety of recreational
opportunities (i.e. walking loop at
Pender Memorial Park, community
center, etc.)
The Town of Burgaw envisions a healthy
community where all residents lead active
lives, have access to nutritious foods, and
live in safety. It recognizes its role in
supporting the health of its citizens through
the provision of sanitation, water and
sewer, public safety, fire protection, and
planning services.
Actions
Install a variety of equipment for
children in designated park areas and
equipment for adults along Osgood
Canal Greenway and Trail
Goal 1: To promote land use patterns and
transportation systems that encourage
83
physical activity, promote healthy living,
and reduce risk for chronic illness10
Consider fire protection and prevention
as part of the review process for all
development plans and proposals
Policies
Actions
Encourage design features that support
walkability when reviewing new
subdivisions*
Promote commercial development
within walking distance of all
residential neighborhoods in the town’s
corporate limits
Consider health impacts of
development plans and proposals as
part of the review process
Identify and seek assistance in
mitigating potential sources of pollution
Develop regulations, such as nuisance
ordinances, that target manmade
hazards, such as stormwater, drainage,
pest control, and storage of hazardous
materials, that could negatively affect
neighboring properties or the
community at large
Assess the alignment of town
addressing, E-911 addressing, and
address displays to ensure the timely
and efficient provision of emergency
services
Conduct a fire safety marketing
campaign emphasizing fire prevention
strategies, such as the importance of
smoke alarms and sprinkler systems,
the availability of voluntary home
inspections, etc.
Actions
Create zoning ordinances that
encourage greater density and a greater
mix of uses*
Establish ordinances that encourage
street grid connectivity for all new
development and require pedestrian
and/or bicycle grids if street
connectivity is not feasible or desirable*
Create plans for and encourage
development on infill and brownfield
sites close to existing pedestrian and
parks and recreation infrastructure
Goal 3: To ensure safe and secure
communities
Policies
Goal 2: To reduce risks to the community
from natural and manmade hazards
Encourage citizen and stakeholder
participation by allowing or establishing
programs such as Community Watch,
Adopt-A-Street, etc.
Encourage development projects to
incorporate the concepts and principles
of Crime Preventions Through
Environmental Design (CPTED) or
similar concepts
Support the establishment of organized
youth activities, including employment
training, mentoring, and community
service programs as crime prevention
strategies
Policies
Continue to provide high quality water
and sewer services to the town’s
residents
Continue to provide fire protection
resources adequate to maintain a low
ISO rating
10
Policies and actions marked with an asterisk (*) have been
positively correlated with non-motorized travel (“Chapter 6.
Current State of Knowledge.” Does the Built Environment Influence
Physical Activity? Examining the Evidence --- Special Report 282.
Washington, DC: The National Academies Press, 2005.)
84
Goal 1: To ensure responsible preservation
and maintenance of the town’s
transportation infrastructure
Consider public safety issues
associated with development plans and
proposals as part of the review process
Policies
Actions
Provide a regular maintenance budget
for street and sidewalk repairs in
addition to Powell Bill Funds
Prioritize needed repairs as part of the
town’s annual capital improvement
plan
Consider long term maintenance costs
when reviewing subdivision and other
proposals that would involve dedication
of roads, sidewalks, trails, etc. to the
public
Develop regulations, such as nuisance
ordinances and maintenance
standards, that target conditions
contributing to the stability of
individual neighborhoods or the
community at large
Goal 4: To promote healthy lifestyle
choices for all citizens
Policies
Explore and support initiatives to
provide increased access to nutritious
foods, such as development of farmers
markets or buyer clubs, and
community gardens
Partner with local organizations,
including Pender County Health
Department, Pender Memorial Hospital,
NC Cooperative Extension, etc., to
promote education and training on
healthy and safe lifestyle factors, such
as physical activity, nutritious diets,
and bicycle and pedestrian safety
Actions
Implement a program of routine
inspections of town roads and sidewalk
conditions and monitoring for
situations (tree root growth, standing
water, etc.) that may degrade
infrastructure
Goal 2: To increase the use and
effectiveness of alternative transportation
modes, such as walking, bicycling, etc.
Policies
Transportation
Provide an interconnected street and
circulation system to support a mix of
alternative modes of transportation and
provide alternative routes for bicyclists,
pedestrians, and drivers
Review all new development and
redevelopment proposals for
compliance with adopted pedestrian
and bicycle plans
Encourage pedestrian, bicycle, and
multi-use paths as alternatives to street
connectivity within subdivisions if
street connectivity is not possible or
desirable
The Town of Burgaw understands the
importance of its transportation system in
maintaining the quality of life of its residents
and attracting visitors, new businesses, and
industry. The town seeks to improve and
protect its transportation system by creating
and maintaining a comprehensive
transportation network that will ensure the
safe and efficient movement of people and
goods; provide appropriate access to
employment, housing, services, and
recreation; and reduce the need for residents
to rely on automobile travel.
85
Include pedestrian and bicycle
accommodations as an integral element
of all transportation-related capital
projects and programs when feasible
Advocate for a passenger rail stop to be
located within Burgaw if passenger rail
service is reinstated by NCDOT within
the town’s planning jurisdiction
o
o
Actions
o
Develop prioritized pedestrian and
bicycle circulation plans that will
outline networks to allow for the safe
conveyance of pedestrian and bicycle
traffic to all areas of the town
Require development and
redevelopment proposals to
accommodate multiple modes of
transportation
Establish ordinances and programs to
support and encourage public transit
and private transport operations within
the town
o
Widening of Stag Park Rd from
Hwy 53 to approximately 0.58
miles east of Hwy 53
Constructing a collector road
from Hwy 53 East to Hwy 117
Bypass allowing alternative
ingress and egress to the
McDonald’s and Scotchman
properties as shown on the NC
53 Corridor Study
Implementing access
management initiatives on Hwy
53 as indicated in the NC 53
Corridor Study and on S Walker
ST
Implementing safety
improvements at Walker and
Wilmington Streets and Timberly
Lane and Hwy 53
Actions
Develop a toolkit of traffic calming
measures that would be appropriate to
achieve the desired balance between
vehicular, pedestrian, and bike travel
capabilities
Establish designated crosswalks at all
intersections included on the
pedestrian circulation plan
Promote and create educational and
public information programs on
pedestrian, bicycle, and automobile
safety
Goal 3: To ensure the safety of all modes
of transportation
Policies
Prioritize NC 53 safety improvements
along the current corridor and advocate
for their immediate implementation on
the local and state levels
Support the following recommendations
of the Pender County Comprehensive
Transportation Plan regarding safety
issues on state-maintained roads
within Burgaw’s planning jurisdiction:
o Widening of Penderlea Hwy to
the Town of Burgaw city limits
o Widening of Highsmith Rd from
the Town of Burgaw city limits to
Hwy 210
o Widening of Piney Woods Rd
from New Savannah to Henry
Brown
Goal 4: To improve the efficiency of
transportation networks
Policies
Advocate for current levels of east-west
connectivity if rail service is reinstated
by NCDOT within the town’s planning
jurisdiction
Support the recommendation of the
Pender County Comprehensive
Transportation Plan to widen Hwy 117
south of the intersection with Hwy 53
86
and to widen Hwy 53 from the
intersection of Hwy 117 Bypass to Stag
Park Road
Support the Hwy 53 Bypass as a longterm solution to capacity issues along
the existing Hwy 53 corridor, as
opposed to the immediate safety needs
to be met by the NC 53 Corridor Study
recommendations
region in order to provide adequate
regional development capacity to
accommodate expected residential
growth and to address low-income
housing needs that transcend
jurisdictional boundaries
Actions
Address regulatory and policy barriers
to affordable housing development,
while maintaining high-quality
development standards
Allow and encourage a range of housing
options in all housing districts for
aging-in-place options and to encourage
income diversity within neighborhoods
Ensure that the town’s development
codes provide ample opportunity for
developers to build a variety of housing
types, ranging from single-family to
dense multi-family. Keeping the
market well supplied with housing will
moderate the costs of owning and
renting, lessening affordability
problems, and lowering the level of
subsidy necessary to produce
affordable housing
Maintain income diversity within
neighborhoods by allowing a mix of
housing types and tenures, including
houses, houses on smaller lots, small
houses, duplexes, attached housing,
accessory dwelling units, multi-dwelling
housing, and mixed-use developments
Housing
The Town of Burgaw envisions a welcoming
community with diverse housing options to
meet the lifestyle, demographic, and economic
needs and desires of all residents. The town
recognizes the relationship between
maintaining a high standard of livability and
providing a sufficient supply of safe, diverse,
attractive, and affordable housing for the
people who work in Burgaw and have a
desire to live here. It is committed to
neighborhood improvement, historic
preservation, and high quality new residential
development.
Goal 1: To promote the development and
preservation of quality housing that is
affordable across the full spectrum of
household incomes and meets the needs
and preferences of Burgaw’s households
Policies
When reviewing proposed development
regulations, consider the cumulative
impact of regulations on the ability of
housing developers to meet current and
future housing demand
Promote methods of more efficiently
using or adapting the town’s housing
stock to enable changing households to
remain in the same home or
neighborhood for many years
Establish partnerships among various
levels of government, other public
agencies, and other jurisdictions in the
Goal 2: To sustain and enhance existing
neighborhoods
Policies
Evaluate infill development for its
architectural compatibility with existing
structures, landscape features, and the
streetscape within its vicinity
Encourage pedestrian and bike
accessibility as vital components in
every neighborhood
87
following policies and actions are included in
the Burgaw 2030 Comprehensive Future Land
Use Plan.
Encourage high-density single family
and small-scale multi-family housing
and office and institutional districts as
transitional buffers between residential
neighborhoods and high impact
commercial and industrial uses
Support public and private actions that
improve the physical and social
environment of areas that have
experienced disinvestment in housing
or that have a concentration of lowincome households
Land Use
Allow and advocate for public and
private schools and health care
amenities to be located within walking
or biking distance of the town’s
residential neighborhoods
Consider the effect of proposed policies
and regulations on low-income and
special populations (children & youth,
disabled, elderly, and people of different
ethnic and cultural backgrounds) when
making land use decisions
Provide for higher-density residential in
portions of town suitable for more
intense development
Actions
Use minimum housing codes and
nuisance ordinances to combat blight
and neighborhood deterioration
Consider zoning tools to protect
neighborhood character and retain
historic integrity
Implement a small-area planning
program for established neighborhoods
through the town to ensure their
ongoing vitality
Develop infill development standards
that reflect the setbacks, orientation,
patterns, height, and scale of
surrounding residences
Consider allowing rural uses in
appropriate residential areas as a way
to meet the demand for a rural lifestyle
Governance
Develop civic educational programs for
children and youth that coordinate with
state educational standards that can be
used in the classroom
Consider translating relevant notices,
regulations, etc. into other languages
on an as needed basis
Continue to seek input and engagement
from sectors of the population
frequently underserved
Equity Statement
The Town of Burgaw is committed to providing
a high level of support to all its citizens and
recognizes that certain populations may have
distinct needs, which should be taken into
account. The town envisions a community
where all people are able to meet their full
potential and lead healthy, independent lives.
To ensure that underserved populations—
including children and youth, the elderly, the
disabled, those who speak English as a
second language, and the poor—have access
to the town’s services and are able to
contribute to the good of the community, the
Work with Smart Start and other
organizations to ensure plentiful highquality and affordable child care to
support working families
Support entrepreneurship, financial,
and job skill training for school-age
children and adults
Promote a diverse economic base
88
summarizes the community’s discussion of
how development should play out over the
next fifteen years. Being able to see a picture
of the end result is helpful in directing the
myriad large and small decisions and
investments over the next fifteen years. While
the map does not identify the implementation
process or interim results, it does show the
end point, or desired future condition, of
development activity and land use decisions
through the year 2030.
Support efforts to provide after school
and summer programs for children and
youth
Develop information on area parks and
recreation opportunities offered at little
or no cost
Consider future park projects in
portions of town that do not currently
have parks and recreation amenities
The Future Land Use Map is intended to be
used in conjunction with the written content
of the comprehensive plan. The map shows
the geographic layout of Burgaw’s preferred
land uses in fifteen years but does not capture
the full detail of the comprehensive plan’s
policies, identify the full range of
recommended strategies, or present any
staging of development priorities.
Promote partnerships like those
encouraged in the Younger Americans
Act between states, local governments,
school boards, and voluntary
community-based groups to address
problems of delinquency and to support
general youth development
Support the activities of other agencies,
such as Pender County Health
Department, to provide adequate
health education and preventive care to
the town’s residents
Preferred land uses are represented by distinct
blocks of colors and do not necessarily
indicate areas of special environmental
concern. While a particular land use may be
appropriate for an area, each site is unique
and may be subject to different environmental
constraints and developmental regulations.
Transportation
Advocate for increased state public
transportation funding to ensure lowincome workers are able to access job
centers and the elderly and disabled
can access necessary support services
Prioritize construction of new sidewalks
and bicycle infrastructure along routes
regularly used by those with limited
access to motorized vehicles
Land Use Categories
Each land use category is described on the
following pages, including the following
information:
Definition of the category and the
criteria used when considering a
property’s designation;
Recommended land uses for that
category; and
Development guidelines for land uses
within that category.
Housing
See Goal 1 of the Housing section.
Rural Development
Future Land Use Map
The Rural Development land use categories
includes lands that are prime for future
The Future Land Use Map presents a
geographic representation of the Town’s
preferred future land use scenario. The map
89
commercial development. These properties
tend to
the Divisional of Coastal Management’s
CREWS wetland maps).
Recommended Land Uses: agriculture,
forestry, recreational amenities
Be adjacent to a major highway
Have access to water and sewer
Be proximate to commercial
development
Developmental Guidelines:
If developed, structures should be
limited in the floodway or wetlands to
the greatest extent possible.
Must comply with all state and federal
regulations
Impervious maximums
Use of Low-Impact Design principles
Serves as a transition/gateway to
corporate limits; so some aesthetical
regulations may be necessary
Recommended Land Uses: small-scale
commercial, agricultural support business,
recreational amenities
Development Guidelines:
Serves as transition/gateway to
corporate limits, so some aesthetic
regulations may be necessary
Low-density development
Rural Character
Recreation/Open Space
Properties in this land use category are
intended to remain rural in nature, with low
density and a primarily agricultural character.
They are not adjacent to a major highway and
may have environmental concerns.
This land use category includes parks,
cemeteries, and the railroad right-of-way
(which NCDOT desires to preserve for
potential railroad reinstatement).
Recommended Land Uses: recreation, open
space
Recommended Land Uses: low-density
residential, agriculture, forestry, recreational
amenities
Development Guidelines: only limited
structures associated with recreational uses
Commercial Growth
Clustered residential developments to
protect wetlands, forests, and
agricultural areas
Structures not recommended in
floodway or wetlands
The Commercial Growth land use category
represents areas of the town where intensive
commercial growth is desirable. Properties in
this area are located along commercial
corridors or near major roads.
Rural Transition
Recommended Land Uses: commercial
(including larger-scale retail, auto sales,
hotels, etc.), shopping centers, large-scale
mixed use developments with accessory
residential
The Rural Transition designation is the only
land use category that seeks to highlight
potential environmental issues associated with
a property. These lands are proximate to
developed areas and would be prime for
development if it were not for the
environmental concerns. Largely, they are
located within the floodway, or the property is
wholly or primarily potential wetlands (using
90
and residential areas and include areas with
existing office and institutional uses.
Provision of pedestrian and bicycle
connections to parking and other
buildings and properties
Hiding of larger parking lots (more than
one double row deep) from
thoroughfares with out-lot structures or
rear parking lots
Increased landscaping to buffer parking
areas, outside storage, display areas,
etc.
Masonry façades
Monument, ground, or column signs
Mitigation of bulk of large buildings
through façade detailing and window
coverage
Site design to protect flood hazard or
wetland areas
Recommended Land Uses: offices, small-scale
multi-family residential, small-scale mixeduse developments, adaptive reuse of historic
structures, educational, neighborhood scale
commercial, non-neighborhood residential
Serves as transition to residential areas
Moderate front setbacks and
appropriate landscaping
Façade articulation and windows to
break up large façades
Mitigation of negative
visual/environmental impacts on
residential areas
Pedestrian connections to multi-use
pathways between uses
Monument or ground signs
Industrial & Institutional
Properties classified as industrial and
institutional include existing areas zoned for
industry or adjacent to existing industry. This
land use classification is intended to allow for
large-scale light industry and large-scale
institutional uses (i.e. hospitals, educational
facilities, museums, etc.).
Town Center
This land use classification includes the
existing downtown business district and
adjacent commercial uses.
Recommended Land Uses: small-scale
commercial, office, educational, governmental,
accessory residential, arts and culture,
entertainment, small parks, bed and
breakfasts
Recommended Land Uses: light industry and
manufacturing, education, large-scale
governmental complexes
Large front setbacks
Landscaping to buffer metal buildings
Screened outside activity areas
Historic setbacks
Parking on street, in rear, or limited on
side only
Façade articulation
Traffic calming
Monument or ground signs
Mixed-Use Transition
Mixed-use transition area are designated for
land uses that serve to buffer residential areas
from intensive commercial, industrial, and
institutional areas. This land use
classification allows for a variety of smallerscale land uses. In general, these areas are
located between major commercial corridors
Traditional Neighborhood Residential
The Traditional Neighborhood Residential
classification is characterized by its
connectivity, both auto and pedestrian, and
91
primarily single-family housing. It includes
properties in existing medium-density
residential neighborhoods, undeveloped
properties that are surrounded by or adjacent
to such neighborhoods, and undeveloped
areas suitable for future residential
development.
Required cluster developments when
needed to protect wetlands and
floodways
Impervious maximums in
environmentally sensitive areas (hydric
soils, wetlands, floodplains, etc.)
Recommended Land Uses: single-family
residential, two-family residential, bed and
breakfasts
Medium-density residential
Street grid connectivity or multi-use
pathways
Pedestrian and bicycle infrastructure
Required cluster developments when
needed to protect wetlands and
floodways
Impervious maximums in
environmentally sensitive areas (hydric
soils, wetlands, floodplains, etc.)
High Density Residential
This land use classification is higher-density
than that of the Traditional Neighborhood
Residential classification, both through
smaller lot sizes and through multi-family
developments. Properties classified as HighDensity Residential include existing highdensity residential areas, areas zoned R-7
(7,000 square foot minimum lot size), and
neighborhoods near the town center
(excluding the Historic District).
Recommended Land Uses: single-family
residential, two-family residential, multifamily residential
Street grid connectivity
Pedestrian and bicycle infrastructure
Common areas for multi-family
residential
92
93
Appendix 1: Town of Burgaw Expenditure Categories
General Government
Town commissioners-fees
Professional services
Non departmental
Capital outlay
Other operating expenditures
Public Safety
Police: Salaries and benefits
Capital outlay
Fire:
Salaries and benefits
Capital outlay
Inspections:
Capital outlay
Transportation
Streets and Highways:
Contracted services
Capital outlay
Environmental Protection
Sanitation:
Contracted services
Cemetery:
Capital Outlay
Central Services
Garage:
Capital outlay
Cultural and Recreation
94
Christmas lights/parade
Blueberry festival
Municipal Parks-Operations
Economic and Physical Development
Committee of 100
Planning and zoning
95
Appendix 2. Amendments to the Unified Development
Ordinance and Official Zoning Map
Date of Amendment
Ordinance
Sections Amended
Amendment
April 10, 2001
2001-05
Section 4-9: Table of
Permitted Uses
adds auction sales as a
conditional use in B-1
2001-05
Regulations for Conditional
Uses
adds conditions for auction sales
2001-11
Permitted Uses
adds sausage preparation (NAICS
311612) as a permitted use in I-1
2001-15
Section 19-3: Extension or
Enlargement of
Nonconforming Situations; E1,
E3, H1, H3
clarify regulations concerning
enclosure of previously
unenclosed areas
2001-16
Section 2-2: Definitions of
Basic Terms
adds definition of roof re
enclosure of previously
unenclosed areas
August 14, 2001
2001-23
Zoning Map
Deed Book property 214/7 from
B-1 to O&I
October 9, 2001
2001-27
Zoning Map
Deed Book property 1624/132
from O&I to B-3
2001-28
Section 2-2: Definitions
adds open storage definition
2001-28
Permitted Uses
adds open storage as a permitted
use in B-2
2001-28
Section 4-10: Notes to the
Table of Permitted Uses
adds Note 16 re open storage
size limits
2001-29
Section 15-6: Streets
amends standards for subdivision
roads; eliminates paragraphs K, L,
O, P, Q, R, and S
2001-31
amends definition for regulated
tree
July 10, 2001
November 13, 2001
96
December 11, 2001
February 12, 2002
2001-31
Section 9-1: Purpose and
Intent
amends authority re landscaping
on single-family lot construction
and new subdivisions
2001-31
Section 9-14
moves text to Section 9-1 (F)
2001-33
Zoning Map
1470 Penderlea Highway from R12 to R-7
2001-34
Section 14-4: Application to
be Complete
adds subsection C re plans for
proposed structures
2002-06
Table of Area, Yard, and
Height Requirements
Zoning Map
provides exemptions from yard
fence height limit
2002-07
Section 5-8: Planned Building
Group Regulations for
Apartments, Condominiums,
and Townhomes
adds townhomes to title
2002-11
adds townhome definitions; adds
air ambulance definition
2002-09
Zoning Map
107 N. Smith St. from B-3 to R-12
2002-17
Permitted Uses
amends note on NAICS numbers,
titles of several uses, and
removes a recreational use
2002-18
adds Note 16 re ABC Board
definition of restaurant
2002-19
Permitted Uses
adds air ambulance service as
conditional use in O&I
2002-19
Uses
Zoning Map
adds condition for air ambulance
service in O&I
2002-05
July 9, 2002
August 13, 2002
2002-20
multiple tracts bounded by
Durham, Hayes, Smith, and
Fremont streets from R-7MH to
R-7
multiple tracts in 2100 block of
NC Hwy 53 West from R-20 to
RA-20
97
September 17, 2002
2002-24
Permitted Uses
amends mobile home park to
conditional use in RA-20
2002-24
lists conditions for mobile home
park in RA-20
2002-30
Uses
Zoning Map
February 11, 2003
2003-04
Zoning Map
portion tract in 600 block of US
Hwy 117 North Bypass from C/P
to B-2
May 13,2003
2003-08a
Zoning Map
July 8, 2003
2003-13
Section 20-1: Amending this
Ordinance
Portion tract containing 3.76
acres at 607 S Walker from R-12
to O&I
adds requirement for notification
of Planning Board meeting to
consider zoning amendments
April 13, 2004
2004-08
amends Note 2 re protective
fencing for swimming pools
2004-09
Section 8-10: Standards for
Streams without Established
Base Flood Elevations and/or
Floodways
amends elevation requirement
for lowest floor
2004-10
Zoning Map
adjusts ETJ line
2004-13
Zoning Map
611 NC Hwy 53 East from R-12 to
B-2
2004-14
Permitted Uses
adds kennel operation, care as a
2004-16
Uses
adds conditions for kennel
operation, care in B-3
2004-20
Permitted Uses
adds church as a conditional use
in I-1
June 8, 2004
September 14, 2004
portion tract in 600 block of US
Hwy 117 North Bypass from C/P
to B-2
98
December 14, 2004
2004-23
Zoning Map
property bounded by Ashe,
Bridgers, US Hwy 117 Bypass, and
Lloyd streets from R-12 to O&I
2004-30
Section 6-2: General
adds the word street to clarify
the meaning of required yard
March 8, 2005
2005-12
Section 7-4: On-Premise Signs
amends height limit on
freestanding ground signs in B-2
and B-3 districts
May 10, 2005
2005-16
Permitted Uses
removes club or lounge from B-1
2005-17
Permitted Uses
adds miniature golf facility as
2005-19
Zoning Map
property from R-20, B-2, and R-7
to R-7
June 14, 2005
2005-23
Zoning Map
4 parcels along West Fremont
Street from R-7 and R-20 to R-7
August 9, 2005
2005-25
Zoning Map
property 3229-83-1536-0000
from B-2 to PUD
2005-26
Permitted Uses
removes words minimum lot size
of 3 acres from Dwelling, Single
Family classification
2005-28
Permitted Uses
changes four classifications from
permitted to conditional uses in
B-1 and/or B-2; adds storage,
self-service to a permitted use in
B-2 and B-3
2005-29
Permitted Uses
adds adult businesses as a
conditional use in I-1 and I-2
2005-30
Article 21. Adult or Sexually
Oriented Business
omits Note 3 Adult Business and
adds Article 21. Adult or Sexually
Oriented Business
December 13, 2005
99
January 10, 2006
2006-02
Permitted Uses
changes dwelling, multi-family to
conditional use in R-7 and PUD
March 14, 2006
2006-06
Section 14-26: Major
Subdivision Final Plat
Submission and Review
adds requirement for dedicated
open space to be incorporated as
part of any proposed subdivision
2006-07
Section 14-8: Table of Area,
Yard, and Height
Requirements
adds Note 5 requiring foundation
surveys for some structures
2006-08
Section 5-13: Open Space
Requirement
amends open space
requirements for PUDs
2006-09
Zoning Map
property 3219-51-6623-0000
from R-12 to I-1
2006-10
Zoning Map
from R-12 and R-7 to R-7
2006-11
adds definition for buildable
acres
2006-12
Section 4-1: Establishment of
Zoning Districts, and the
Purpose Thereof
changes R-5 Multi-Family
Residential District to R-7 MultiFamily Residential District
2006-14
Zoning Map
properties 3219-90-4703-0000
from R-7 and R-20 to R-7, 322819-1347-0000 from R-20 and R7MH to R-12, and 3228-29-13470000 from R-20 and R-12 to R-12
2006-15
Permitted Uses
adds cargo storage containers
(including tractor trailers) as a
permitted use in I-1 and I-2 and
conditional use in B-2 and B-3
2006-24
Zoning Map
properties 3229-75-5809-0000,
3229-85-2802-0000, 3229-855468-0000, and 3229-85-78920000 from R-20, R-12, and I-1 to
PUD
April 11, 2006
May 9, 2006
100
2006-25
Zoning Map
twenty properties along E.
Wilmington St., McKoy Road, and
Jefferson St. from R-12, I-1, and
R-20 to PUD
2006-31
Section 14-8: Table of Area,
Yard, and Height
Requirements
reduces minimum side setbacks
in R-12 to 15 feet and in R-7 to 12
feet
2006-32
Section 14-19: Procedure for
Conditional Use Permit…
Section 20-5: Land Use
Guidelines
amends Section 14-19 and adds
Section 20-5 to provide guidance
for any proposed land use
August 8, 2006
2006-41
Zoning Map
properties 3228-67-2773-0000
and 3228-57-3765-0000 from R20 and R-12 to I-1
October 10, 2006
2006-54
Section 15-5: Water and
Sewerage Systems
incorporates Utility Extension
Policy into UDO
2006-55
Section 14-35: Voluntary
Annexation
amends town’s requirements for
accepting requests for voluntary
annexation
2006-56
Zoning Map
property 3229-19-5516-0000
from R-20 and R-12 to R-12
2006-57
Article 4. Zoning Districts and
Zoning Map
omits RA-20 zoning district
2006-58
Article 3, Part I. Planning and
Zoning Board
amends section on planning
board
2006-59
Zoning Map
zones property 3239-79-17280000 to R-20
2007-06
Zoning Map
rezones abandoned railroad
right-of-way to C/P
2007-07
Zoning Map
Property 3229-98-7668-0000
from R-7 to B-2
2007-08
Height Requirements
establishes requirements for
erecting a fence or wall
June 13, 2006
February 13, 2007
101
2007-09
Zoning Map
properties 3239-05-6652-0000,
3239-05-8624-0000, and 323905-9686-0000 from I-1 to R-20
2007-10
Zoning Map
property 3228-58-6981-0000
from B-3 to O&I
2007-11
Purposes Thereof
amends minimum acreage
requirements for B-2 and B-3
districts
2007-13
Article 8. Flood Damage
Prevention Ordinance
adopts Flood Damage Prevention
Ordinance as Article 8
2007-14
Zoning Map
portion of 3228-49-1442-0000
from O&I to I-1
2007-15
Zoning Map
ten properties from O&I to B-1
2007-16
Permitted Uses
changes automobile service
station operations to conditional
use in B-2, B-3, and PUD
2007-19
Section 6-4: Driveways
amends driveways location(s)
and design standards
2007-20
adds Note 16 outlining
requirements for dumpster
screening
June 12, 2007
2007-21
Permitted Uses
limits the number of uses-byright, especially within
commercial districts, per
recommendations of NC 53
Highway Corridor Study
September 11, 2007
2007-30
Article 18. Enforcement and
Review
amends article; allows for civil
penalties
November 13, 2007
2007-31
Zoning Map
six properties located along US
117 South from B-2 to R-12
January 8, 2008
2008-01
Zoning Map
property 3239-79-1728-0000
from R-20 to R-7
March 13, 2007
May 8, 2007
102
2008-02
Height Requirements
amends Note 2 re satellite dishes,
LP gas tanks, and similar devices
not placed where visible from
existing street rights-of way
2008-03
Section 15-5: Water and
Sewerage System
adds provisions for sewer
connection by commercial
businesses outside of corporate
limits
2008-06
Permitted Uses
adds bail bonding services, NAICS
812990, as permitted use in B-1
2008-07
Permitted Uses
2008-08
Permitted Uses
Adds “Mobile Food Services” as a
permitted use in the B-1 and B-2
zoning districts
adds apiculture-honey bee
production, NAICS 112910, as
permitted use in R-12 and R-20
2008-10
Section 3-4: Created,
Membership
combines Board of Adjustment
and Planning and Zoning Board
June 10,2008
2008-13
Zoning Map
portion of property 3229-666041-0000 from R-20 to B-2
September 9, 2008
2008-18
Zoning Map
property 3229-46-8373-0000
from R-12 to B-2
November 10, 2008
2008-23
Zoning Map
717 US Hwy 117 South from R-12
and B-2 to O&I and B-2
2008-24
Section 7-2: General
Provisions
amends the regulations for
political signs
2008-25
Zoning Map
546.7 acres off Stag Park Rd to be
rezoned from R-20 to R-7.
2009-05
Zoning Map
approximately12.75 acres
located along the 1400 and 1500
Blocks of NC Highway 53 East
rezoned from C&P and R-12 to
C&P and B-2
April 8, 2008
March 10, 2009
103
June 9, 2009
2009-15
Conditional Use Permit
Section 20-5: Land Use
Guidelines
September 8, 2009
amends Section 14-19 and omits
Section 20-5 to limit conditional
use criteria to four findings of
fact consistent with general
statutes
2009-16
Article 9. Regulations for
Landscaping
re-writes Article 9
2009-24
Sections of Articles 2, 4, 5, 6,
10, 12, 13, 14, and 15
pertaining to the authority of
the Planning Board and Board
of Adjustment
aligns these sections with the
advisory powers of the Planning
Board and quasi-judicial powers
of the Board of Adjustment as
described in Article 3.
Administrative Mechanisms
2009-25
Article 19. Nonconforming
Situations
includes Purpose and Intent of
Article sections, provides
regulations for nonconforming
lots of record, clarifies provisions
for grandfathered uses, removes
portions allowing the Board of
Adjustment to issue Conditional
Use Permits, allows for vesting of
projects that become
nonconforming before
completion
2009-26
Article 20. Amendments
requires first-class mail
notification of zoning
amendment requests before
Planning Board meeting
2009-23
Purpose Thereof
adds RA (Rural-Agricultural)
zoning district
2009-34
Zoning Map
2009-36
Purpose Thereof
Amended properties located
along Costin Rd be rezoned from
R-12 to R-7MH
Rezones all currently zoned B-3
parcels to either B-2, R-20, I-1, R12, and R-7
104
November 10, 2009
2009-35
Zoning Map
18.33 acres located off Coston Rd
and along the 700 Block of US
Hwy 117 N being rezoned from R20 and C&P to R-12 and C&P
December 8, 2009
2009-37
Permitted Uses and Section 410: Notes to Table of
Permitted Uses
amends all use categories listed
in table, where uses are allowed,
and use notes; adds Internet and
Sweepstakes Cafes to table; adds
RA zoning district to table
2009-38
Purpose Thereof
Amended Establishment of
Zoning Districts, Table of
Permitted Uses, Notes to the
2010-04
Zoning Map
extends Extraterritorial
Jurisdiction (ETJ) line
Zoning Map
zones all properties newly added
to ETJ and rezones majority of R20 properties to RA
2010-06
Sections 7-4, 4-10, and 14-8
adds regulations for RA zoning
district
2010-07
Conditional Use Permit
Granted by the Town Board of
Commissioners on
Recommendation of the
Planning Board
clarifies the methods by which
the Planning Board and Board of
Commissioners consider
conditional use permit requests
June 8, 2010
2010-11
Sections 2-2, 4-9, and 4-10
defines and amends name and
provisions for Internet and
Sweepstakes Gaming
December 14, 2010
2010-24
Article 10. Buffer Strips
rewrites Article 10
2010-25
Article 12.
Telecommunication Towers
rewrites Article 12
May 11, 2010
105
January 11, 2011
2011-01
Sections 14-20, 4-9, 4-10, and
5-2
updates Conditional Use
regulations to conform with
Table of Permitted Uses; aligns
Table of Permitted Uses, Notes to
the Table of Permitted Uses, and
Residential Cluster Development
regulations to changes in
conditional uses
2011-02
Basic Terms
added terms included in the
amended Articles 10 and 12 and
Section 14-20; deletes terms no
longer used in UDO
2011-05
Sections 14-18 and 14-19
removes Planning Board from
conditional use hearing process
2011-06
Article 14: Permits and Final
Plat Approval, Part I—Zoning
and Conditional Use Permits,
Sections 14-1 to 14-14
clarifies regulations for zoning
and conditional use permits and
aligns these sections with those
recently amended
2011-07
Section 6-3: Minimum Parking
Requirements
reduces the number of parking
spaces required for multi-family
developments
2011-08
Article 14: Part II, Major and
Minor Subdivisions; Sections
14-10 and 15-10
clarifies and updates procedures
for major and minor subdivisions
June 14, 2011
2011-20
Sections 4-10, 14-20, and 2-2
allows accessory structures larger
than 50% of the primary
structure with a conditional use
permit
July 12, 2011
2011-27
clarifies and amends regulations
for home occupations
October 11, 2011
2011-33
Permitted Uses
adds food manufacturing,
apparel manufacturing, and
candle manufacturing to the
table of permitted uses
2011-34
Basic Terms
amends the definition of a bona
fide farm
February 8, 2011
March 8, 2011
106
January 10, 2012
2012-02
replaces existing Article 7
2012-04
Article 7: Regulations for
Signs
Section 4-9 and 14-19
February 14, 2012
April 10, 2012
2012-12
re-organizes and redistricts
educational uses; requires some
off-street parking for more
intensive educational uses sited
in downtown
2012-13
Article 3, Part I
amends ordinance regarding
planning board; allows for limited
non-resident representation
August 14, 2012
2012-24
allows off-premises signs in the
R-20 district with a conditional
use permit; establishes
requirements and standards for
conditional use permit
November 13, 2012
2012-32
adds call center; food, beverage,
& craft processing and
production with retail sales; food
manufacturing (not otherwise
specified); and material recovery
facilities to the table of permitted
uses
March 12, 2013
2013-02
Height Requirements
permits front-yard fences for
residential uses with regulations;
conditional use permit no longer
required
2013-03
Article III, Part I. Planning and
Zoning Board
reduces the number of seats on
the planning board from nine to
seven
2013-04
Section 7-6: Sign Standards
allows LED technology to be used
in certain window signs
requires technical review by
planning board for some
conditional uses
107
Appendix 3. Proposed Sidewalk Map
108
Appendix 4: Issue Identification Session Responses
109
110
111
112
113
114
115
116
117
118
119
120
121
122
123
124
125
126
127
128
129

Burgaw 2030 Comprehensive Land Use Plan

Transcription

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