LivingShorelinesStrategicNeedsAssessment

December2016

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TableofContents

Background............................................................................................................................2

StrategicNeeds......................................................................................................................3

TargetAudience.....................................................................................................................3

ExistingResources..................................................................................................................4

LivingShorelineConstituencies-TheirKnowledgeGapsandInformationNeeds....................4PropertyOwners..............................................................................................................................5LSLProfessionals(designers,engineers,andmarineinstallationcontractorsandsuppliers).............6Developers.......................................................................................................................................7ResourceManagers..........................................................................................................................8Realtors............................................................................................................................................9Regulators......................................................................................................................................10NGOs..............................................................................................................................................11FinancialRiskInstitutions...............................................................................................................11OtherIndirectBeneficiaries............................................................................................................12

AdditionalResearchNeeds....................................................................................................12

PoliciesImpactingShorelineManagementApplicabletoLSLUse..........................................13PriorityPolicyInitiatives.................................................................................................................14OtherPolicyInitiativesImportanttoLSLs.......................................................................................17

Conclusion.............................................................................................................................19

AppendixA:LivingShorelineDefinitions..............................................................................20

AppendixB:GSAAStrategyAssessmentProcess...................................................................21

AppendixC:GreentoGrayContinuum.................................................................................22

AppendixD:AdditionalResources........................................................................................23

AppendixE:AdditionalScientificResearchNeeded..............................................................25

ThisreportwaspreparedfortheGSAAbytheprojectteamofMoffattandNicholandtheNorthCarolinaCoastalFederation,incoordinationwiththeGSAA’sLivingShorelinesWorkGroup.EditedbyBillCary,BrooksPierce.ThisprojectwasfundedbyanEPARegion4WetlandProgramDevelopmentGrant,inpartnershipwithTheNatureConservancy, the Southeast Partnership for Planning and Sustainability, Florida Department of EnvironmentalProtection, Florida Fish and Wildlife Conservation Commission, and South Carolina Department of NaturalResources.CoverPhotoCredit:NorthCarolinaCoastalFederation

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BackgroundIn many locations, shorelines that fringe coastal rivers, creeks, sounds and bays areeroding1andwashingawayduetoahostofthreats,resultingindecliningpropertyvalues,damagetotheassociatedaquaticandterrestrialecosystems,anddegradedwaterquality.AsdevelopmentintheSouthAtlanticcontinuesandaccelerates,pressureonthatcoastalinterface between land and water will increase. Alternatives to traditional shorelinemanagement techniques (which rely primarily on engineered structures) may helpstrengthencoastalresiliencewithnaturalinfrastructure.The Governors’ South Atlantic Alliance (GSAA) supported a process to examine theappropriate role in the South Atlantic region (NC, SC, GA, FL) for estuarine shorelinemanagementmethodsother than traditionalmeansof shorelinehardening.Particularfocus was on living shorelines (“LSL”), a suite of alternative shoreline stabilizationtechniquesthatincorporatevegetationorotherliving,“soft”andnaturalelements2.Theassessment process3 included surveys, a summit attended by approximately 150participants, and a workshop, which all contributed to development of this strategicneeds assessment. From this process, consensus emerged that the use of the softestfeasible alternative of those described on the continuum from “Green - SofterTechniques” (e.g., “Vegetation Only”) to “Gray - Harder Techniques” (e.g., “Seawall”)(SAGE,2015,attachedasAppendixC)tendstoyieldboththebestecologicalandshorelinestabilization outcomes, and GSAA partners accordingly support promoting andemphasizingtheuseofsuchtechniqueswherecompatiblewithsiteconditions.TheGSAAhasthereforeadoptedthefollowingStrategicNeedsAssessmenttoadvancetheappropriateuseoflivingshorelinesintheSouthAtlantic.TheAssessment’sintentistohighlightandprioritizetheeducation,research,andpoliciesneededtoestablishLSLsas a desirable alternative for protecting eroding, flooding, or threatened shorelines,therebyprovidingbetteroptionsforcoastalprotectionthatwork inharmonywiththeland-waterinterfaceandthesurroundingecosystems.41 Although erosion is an important part of the natural cycle of estuarine systems, where itthreatensinfrastructureorapropertyowner’suseofhis/herproperty,theownerwillrespondwitheffortstoretardorhaltitsprogression.2 Therearemanydefinitionsof “living shorelines.”DefinitionsusedbyNOAAandUSACEareincludedinAppendixA.3TheprocessisdescribedinmoredetailinAppendixB.4 Although specific examples of action items are included for broad consideration, thisAssessmentisnotintendedtobeastrategicplan,actionplan,orself-taskingdocumentfortheGSAAoranyotherindividualorganizationtoimplement.

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StrategicNeedsThisAssessmentidentifiestwobroadcategoriesofstrategiesneededtopromotelivingshorelineuse:(1)targetededucationandoutreachdirectedtothoseconstituenciesbestsituatedtoaffectshorelinemanagementdecisions;and(2)policiesthatcouldinfluencemultipleelementsofshorelinemanagementdecision-making.

TargetAudienceThisAssessmentisintendedtoassistthoseLSLconstituenciesthatcanbestaddresstheidentified education and outreach needs and can formulate and implement therecommendedpoliciesdesignedtopromotewideruseofappropriateLSLs.Assuch,itisnotspecificallyaddressedtoprivatelandowners,althoughtheirrole inLSLdecisionsiscritical and therefore their information needs should be addressed, as noted in thefollowingdiscussion.Instead,thefollowinggroupshavebeenidentifiedasmostlikelytobeabletousetherecommendationsofthisAssessment:

• StateandFederalagencies involved inshorelinemanagement,whether thatagency’sfocusisonregulation,research,orconservation

• Locallanduseplannersandresourcemanagers

• Academicinstitutions

• NGOs

• Fundersofconservationprojectsandresearch

• Legislators,andotherpublicofficialsinvolvedwithshorelinepolicy

• Publiclandownersofshoreline(includingtheDepartmentofDefense)

• Landtrustswithshorelineinterests

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ExistingResourcesIn each of the GSAA states, the state conservation and regulatory agencies haveinformation (much of it accessible through their websites) concerning shorelinemanagement of erosion and the use of LSLs. In addition, an on-line forum originallycreated by the Southern Environmental Law Center and now hosted by the LivingShoreline Academy5 (http://livingshorelinesacademy.org/index.php/forum/index)collects and reviews a wide variety of materials related to LSLs. Additional sites andmaterialsarecollectedanddescribedinAppendixD.

LivingShorelineConstituencies-TheirKnowledgeGapsandInformationNeeds

Increaseduseof LSLs dependson: (1) theproperty owner/developer choosing an LSLtechniqueinsteadofahardcoastalstructureatappropriatesites;(2)theavailabilityofawell-trainedandexperiencedcommunityof“professionals”(definedhereasdesigners,engineers, and marine contractors); and (3) knowledgeable regulators and coastalresourcemanagers.Propertyownersoftenlackadequateinformationabouttherangeofshorelinemanagementoptions,andtheirconsequences.Choicesareofteninfluencedby the professional and regulatory community, as well as less formal networks ofinformation,suchashowtheirneighborsareaddressingerosiononadjacentproperties,andinformationfromNGOsandrealtors.Theseconstituenciesdirectlyaffectshorelinemanagement decisions and are separately discussed below. Other importantconstituencies discussed below (NGOs, financial risk institutions, and communityinterests)alsohaveaninterestininfluencingshorelinemanagementdecisionsbecauseofthecumulativeimpactsofthosedecisionsalongthecoast.PromotingLSLsandothersofter techniques,advancingtheiradoption,andbroadeningtheir implementationaredependenton thedecision-makers, and thosebest situated to influence thedecision-makers,having informationthatbetter informsshorelinemanagementchoices.Betterinformationwilllikelyleadtobetterdecisions.

5LSAwascreatedasapilotprojectinpartinresponsetothediversebutuncoordinatedeffortsofstateand localentities interested inLSL issues,resulting induplicationofeffort.TheGSAAdoesnotendorseanyoneNGO’sLSLefforts(includingLSA),butdoesrecognizeandsupporttheconceptthattheeffectivepromotionofLSLsisfurtheredbyacoordinatedLSLeffortthatincludesvehiclesfor:wideaccesstoreliableinformation;thedevelopmentofgenerallyacceptedsiting,design,construction,andmaintenancestandards;andthedevelopmentoftrainingmaterialsandopportunities.

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Beforediscussingeachconstituency’sprimaryinformationneeds,oneeducationresourcewasconsistentlyidentifiedacrosstheboard:theexistenceandpublicawarenessofLSLdemonstrationsites,whereindividualscanobservedifferentLSLsinvarioussettingsandseetheireffectovertime.DemonstrationsitesinformLSLuseinamyriadofwaysandareof prime importance in educating all constituencies about shoreline management,protection from erosion and storm damage, flood protection, habitat preservation,ecosystemservices,waterqualitybenefits,andgoodstewardshipofestuarineresources.Constructionofandpublicityaboutdemonstrationlivingshorelinesareimportantpartsofeachofthesuggestededucationstrategiessetoutbelow.

PropertyOwnersIn the near-term, the followingwere considered to be themost pressing informationneedsforthisgroup:

• TheneedforshorelinemanagementandtheexistenceofLSLalternatives

• Howtoinitiatetheprocess(design,permit,andbuild)

• Comparativecosts(installationandlifecyclemaintenance)ofhardenedversusLSLalternatives

• Efficacy6 over time of all alternatives (hardened and LSL) inmanaging bothgradual(erosion)andtraumatic(storm)events

The ways to reach this group are varied. Most frequently mentioned were LSLprofessionals7 (discussed below) and regulators (discussed below) because of thefrequencywithwhichownerstypicallyturntothesegroupsforguidance.Arelativelynewresourceisrealtors(discussedbelow),whoareuniquelypositionedattheearlieststagesof a new homeowner’s first exposure to shoreline management to offer advice andinformationaboutadditionalresources.GeneralpubliceducationandawarenessofLSLissues will rely on NGOs, public education campaigns [including Public ServiceAnnouncements (“PSAs”)],andwebmaterials, suchas thosebeingdevelopedbynon-profitsandstateandfederalagencies.

6Additionalmonitoringandresearch,asdiscussedbelow,willbenecessarytodemonstratetheperformancecharacteristicsovertimeofLSLsandothershorelinemanagementmethods.7Thiscategoryincludesdesigners,engineers,andmarineinstallationcontractorsandsuppliers.

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Additional needs for education considered to be valuable but less critical in affectingdecision-makingbythisconstituencyinclude:

• EcosystembenefitsofLSLs

• Indirectbenefits(propertyvalue,possibleinsurancebenefits)

• Propertyboundariesandregulations(ownershipoftheestuarinebottom)

• Perceptionalbarriers(aesthetics;whatpropertyownersareusedto;thedesireforinstantsolutionscomparedtomoregradualgains)

These areas are best addressed in the types of general public education campaignsmentioned above. In addition, materials being developed by state regulatory andconservation agencies and the materials listed in Appendix D could be sources ofadditionalcontentinthesecampaigns.Homeowners’Associationsandlocalsignagecanalsoraiselocalawareness.

LSLProfessionals(designers,engineers,andmarineinstallationcontractorsandsuppliers)Thisconstituency iscritical to thesuccessofLSLs. Itsmembersmust firstknowof theexistence of LSL alternatives and understand their benefits and limitations. Equallycritical,itisthisconstituencythatmustknowhowtoproperlydesign,install,andmaintainappropriatesystems.Abetterunderstandingofthechallenges,overtime,withhardenedstructuresshouldleadprofessionalstolookmoreseriouslyatsofteralternatives.8Thatexamination of alternatives will require an understanding of design alternatives,installationbestpractices,costs,andpotentialprofits.Informationaboutnewbusinessopportunities(e.g.,suppliersandinstallersofthesoftsystemelements)canalsoattractinteresttothesetechniques.Theprimaryinformationneedsofthisgroupare:

• EvaluatingtheneedforshorelinemanagementandpotentialforLSL

• Comparative costs (hardened structures and LSLs) for installation, life-cycle,andmarketentrycapitalcosts

• SitesuitabilityforLSLs

8Gittman,R.K.,A.Popowich,J.Bruno,C.Peterson(2014).MarsheswithandwithoutsillsprotectestuarineshorelinesfromerosionbetterthanbulkheadsduringaCategoryOnehurricane.Ocean&CoastalManagement,102:94-102.Availableat:http://www.mobilebaynep.com/images/uploads/library/Bulkheads.pdf

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• EfficacyovertimeofLSLversushardenedstructures

• PermittingrulesThe primary method for conveying information on these subjects is through tradeassociationmeetings and seminars, especially those focusing on providing continuingprofessionaleducation(“CPE”)creditsrequiredbycertainprofessions.Thelikelytrainersare experienced LSL professionals, NGOs focused on shoreline issues, and regulators(particularlywithrespecttoassistancewiththepermittingprocess).ResearchscientistscarryparticularweightinpresentinginformationaboutLSLresiliencetostormeventsaswellassitesuitabilityissues.CertificationoflevelsofLSLexpertisebyorganizationslikethe Living Shorelines Academy or the National Estuarine Research Reserve’s CoastalTrainingPrograms(ortheprofessionalorganizationforthattrade)issuggestedasawayofassuringlevelsofcompetenceaswellaspromotingpublicconfidenceandawareness.Additionalneedsforinformationconsideredtobevaluablebutlesscritical inaffectingdecision-makingbythisconstituencyinclude:

• KnowledgeofLSLecosystemservicesandbenefits,includingfishingandbirdingenhancements

• Knowledgeofplants(nativeandinvasive)

• Businessopportunities(newmethods/supplyneeds)

• SourcingLSLsubstrates(appropriateplants,oystershell)• Propertyownerinterest

ThefirstthreeareasarebestaddressedbythesameCPEresourcesdiscussedabove,witha more prominent role likely for the scientific community. The last category is bestaddressedbyexperiencedLSLprofessionalsandNGOsexperiencedinLSLs.

DevelopersSome of the same factors important with owners are applicable to developers. Inparticular,theprimaryinformationneedsofconcerntodevelopersare:

• Comparativecosts(hardenedstructuresversusLSLs) for installationand life-cycle

• Benefitsandlimitationsofalternatives(hardenedversusLSLs)

• Efficacyovertimeofalternatives(hardenedversusLSLs)

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• Evolvingpublicperceptionofbenefitsof“green”developmentAlthoughlesslikelytobeinneedofCPEcredits,thisconstituencycanlikelybereachedatmanyofthesametypesofvenuesapplicabletoLSLprofessionals,suchaspresentationsfromexperiencedLSLprofessionalsandNGOsattradeassociationmeetingsandshows.As discussed above, certain specific topics also lend themselves to scientists andregulators. Attention to these subjects could also be generated through recognitionawards(“StewardshipDeveloper”)andregionalpublicationsfocusingonlivingpatternsandtrends(“CoastalLiving”,city/regionmagazinesfocusedonlivingortourism).Additionalneedsforinformationconsideredtobevaluablebutlesscritical inaffectingdecision-makingbythisconstituencyinclude:

• Understandingofpermittingrules

• IndirectbenefitsofLSLs(propertyvalue,insurance)

• Sitesuitability,bestmanagementpractices,andadjacenteffectsThesamevenuessuggestedabovearealsoappropriate for trainingonthesesubjects.Regulators,LSLprofessionals,andNGOswouldbethebestsourcesforsuchtraining.

ResourceManagersThe primary areas of information needs about the benefits of LSLs applicable to thisconstituencyare:

• LSLalternativestohardenedshorelinemanagement

• WaterqualityandwildlifebenefitsfromLSLs,andhowtocapitalizeonthem

• BenefitsofreplacingexistinghardenedstructureswithLSLs

• FundingsourcesThegrowingbodyofresearchdemonstratingthepositivedifferentialeffectofLSLsoverhardeningisofparticularsignificancetothisgroupandisbestconveyedbyspecializedNGOsandthescientificcommunity.Workshopsandscienceconferencesaresuggestedvenues.ExploringwaystoformpartnershipsamongNGOs,resourcemanagers,andthe

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scientific community for the sharing of ideas and innovations (e.g., obtaining TMDL9credits for LSL installations) shouldbeagoalof suchconferences.A central sourceofinformation,suchastheLivingShorelinesAcademy,shouldcollectandidentifysourcesforLSLfunding(state/federal/privategrants).Alsoofinteresttoresourcemanagers:

• Permittingrules

• Lifecyclecosts

• Knowledgeofecosystemservicesandsystembiology(plants,shellfish,etc.)The same training sources previously identified for regulators, experienced LSLprofessionals,NGOs,andscientistsapplyhere.

RealtorsSomeonepurchasingwater-frontpropertyforthefirsttimemayhavenoawarenessoftheneedforshorelinemanagement,muchlessthesuiteofoptionsavailable.Therealtorhasauniqueopportunitytoinformthisdecisionbyprovidingverybasicinformationandreferral to more knowledgeable “experts.” The information most useful for realtorsincludes:

• TheneedforshorelinemanagementandthepotentialforLSLs

• Generalknowledgeofregulatoryframework

• BenefitsofLSLsandlimitationsofhardenedandLSLsandalternatives

• Sourcesof“expert”advice(competentLSLprofessionals)LikeLSLprofessionals,mostrealtorsaresubject tocontinuingeducationrequirementsand,basedonpilotprojectsinatleastoneGSAAmemberstate,areeagertolearnaboutLSLs.ExperiencedNGOsandexperiencedLSLprofessionalsaswellaslocalregulatorsarethebestsourceoftrainersonthesesubjects.Informationdirectingrealtors,andhencetheirclients, towebmaterial (NGOs,stateagencies) isparticularlyusefulasa trainingtake-away. Homeowner association meetings offer an opportunity for the realtor, in

9“Totalmaximumdailyload”setforspecificcontaminants(includingnutrients)toaddressimpairedwatersundertheCleanWaterAct.TMDLcreditsmaynotbeavailableinparticularlocationsbutarementionedhereasanexampleofemergingopportunitiesrelatedtoLSLs.

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collaborationwiththetrainer,tointroducethissubject(andtherealtor)toacommunity.Realtorscouldbenaturalpromotersofan“LSLParadeofHomes.”Additional subjectsof interest to thisconstituencyas theybecomemore familiarwithshorelinemanagementissuesinclude:

• IndirectbenefitsofLSLs(propertyvalue,insurance)

• EfficacyovertimeofalternativesThelatterpointisparticularlysignificantin“re-educating”aconstituencyoftensteepedinatraditionofhardeningwithoutanunderstandingofitslong-termeffects,especiallywithrespecttotheconsequencesofstormrelatedfailuresofhardenedstructures.

RegulatorsBesidesLSLprofessionalsandinformalinformationnetworks(friendsandneighbors),thisistheconstituencymostlikelytohavesignificantimpactonpropertyowners’ultimatedecisions.IntheGSAAstates,thestateregulatorsarewellawaregenerallyofLSLs,andsome are actively promoting their use in suitable environments. The LSL communityneedstosupporttheseeffortswhilerecognizingtheuniquenon-partisanroleregulatorsmustplay.Areas inwhich regulatorsgenerally (local, state,and federal) couldbenefitfromadditionalknowledgeare:

• ProofofLSLconcept

• Efficacy/riskovertimeofLSLsversushardenedstructures

• Siteselection/suitability;BMPsThe scientific community is especially important in providing up-to-date research anddataonthesesubjects,andNGOscanprovidearoleinchannelingthisinformationtotheregulatorswithwhomthey frequently interact,especiallyat regionalconferences (see“Promote Regional Communication and Coordination” (p. 14) below). To the extentregulators are in organizations requiring CPE, that forum would offer a particularlyconvenient training opportunity. Scientific research institutions are also importantsources for information regarding the ecological tradeoffs inherent in each shorelinemanagementtechnique(anotherareawhereon-goingeducationis important).Finally,organizations like the Virginia Institute of Marine Science (VIMS)—combining marineresearchandeducationandprovidingadvisoryservicestopolicymakers, industry,andthepublic—areextremelyvaluablesourcesofscientificknowledgeapplicabletospecific

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sites and projects and as such aremodels for the development of regionally focusedresearch,education,andadvisoryresources.

NGOsThisconstituencyisparticularlyheterogeneous,rangingfromorganizationswithahighdegreeofspecializedLSLknowledgeandexperiencetothosewithlittleornoknowledgeofthesubjectbutaninterestinconservationgenerally.Theformerofferaresourcefortraining and education, as referenced above. The latter are a potential advocacy andeducationvehiclewithareadilyavailableaudience(theirmembers),andtheirprimaryinformationneedsare:

• IdentifyingappropriateLSLprojects

• EcologicalbenefitsofLSLs

• HowtocoordinatewithotherLSLplayers

• UnderstandingpermittingproceduresandoptionsMore experienced NGOs will be the primary source of this information, along withregulators, experienced LSL professionals, and the scientific community. To reach theNGOslessexperiencedwithLSLs,itisrecommendedthattheybereferredtotheLivingShoreline Forum, and associated web materials, and encouraged to form workingrelationshipswith themoreexperiencedLSLplayersand resourcemanagers.Regionalinformationworkshops (see “PromoteRegional Communication andCoordination” (p.14) below) targeted at any of the constituencies should also specifically reach out toconservationNGOs,whetherornottheyhavespecificestuarineinterests.AdditionalareasofpotentialinteresttoNGOsincludeinformationaboutfundingsourcesandbestmanagementpractices(‘BMPs”)inshorelinemanagement.

FinancialRiskInstitutionsSome of the earliest interest in the effects of sea level rise came from financial riskinstitutions(insurers,re-insurers, lenders),whichhavefollowedthissubjectcloselyforobvious reasons. Information about LSLs couldbeof significance to this constituency,especiallyonthefollowingsubjects:

• Efficacy/riskovertimeofalternatives(hardenedandLSLs)

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• Lifecyclecosts

• RoleofLSLinmanagingtheeffectsofsealevelrise(“SLR”)

• EffectsofLSLonpropertyvalues

The information sources of interest to this constituency will be primarily scientific(including engineering) and economic research, delivered either at professionalconferencesorthroughindustrypublications.

OtherIndirectBeneficiariesInthiscategoryweincludethosewithaninterestinshorelinehealthgenerally,butnotnecessarilyaninterestinanyspecificpropertyordevelopmentdecision.Examplesincludecommercial and recreational fishing interests and other recreational beneficiaries ofimprovedshorelinehabitat(e.g.,boaters,birders).ThesegroupshaveavestedinterestinthehealthoftheecosystemsbenefitedbyLSLs,andthemorethesegroupslearnaboutthepotentialbenefitsofbettershorelinemanagement,themoreadvocatesforLSLstherewillbe.Inthisregard,thisconstituencyismuchliketheNGOcommunitynewtoLSLs.Information important to establish a better understanding of LSL issues for thisconstituencyincludes:

• Knowledgeofecosystemservices

• Waterqualitybenefits

• EvolvingpublicperceptionTheprimarymeansofreachingthisaudienceisthroughtargetedpresentationstocivicgroups,publicinformationcampaigns(PSA;regionallivingandrecreationalpublications(e.g.,“CoastalLiving”)andwebmaterials.

AdditionalResearchNeedsMany of the information needs identified above are a matter of connecting existingsourcesofknowledgewithtargetaudiences.However,significantresearchanddatagapsexist in the scientific knowledge of LSLs, including a need for both social and naturalsciencesresearchregardingLSLs.TheGeorgiaCoastalResearchCounciloutlinedthesein

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detail based on a thorough literature review.10 The North Carolina Department ofEnvironmental Quality’s 2016 Coastal Habitat Protection Plan identified four areas ofadditionalneededresearchspecifictoLSLs.11This Assessment highlights the most pressing needs, considering their overarchingpotentialforsupportingtheLSLdecision-makingprocess.12

1. Efficacyofalternativeshorelinemanagementsystems(hardandsoft)overtime both with respect to controlling erosion and with respect tostorm/catastrophicevents.

2. Better understanding of current perceptions regarding shorelinemanagementoptionsandkeystomotivatingbehaviorchanges.

3. ComparisonofLSLdesignelementsandtheappropriatenessofparticularelementsinvarioussitesandconditions,andtheimpactonadjacentsites.

4. Comparativecostdataforinstallation,maintenance,andlifecycleforLSLsandhardenedstructures.

The GSAA therefore encourages the funding of research proposals related to thesesubjects,withinthecontextofspecificsiteconditionsthatvaryfromstatetostate.

PoliciesImpactingShorelineManagementApplicabletoLSLUseThe GSAA also considered broader policies that promote wider use of LSLs, whereappropriate, and have applicability across a number of areas and activities affectingshorelinemanagement. Consensuswas reached on fourmajor areasmeriting priorityconsideration,aswellasotherpoliciesalsosupportiveofLSLacceptanceanduse.

10http://southatlanticalliance.org/wp-content/uploads/2016/09/Living-Shorelines-in-the-Southeast.pdf11http://portal.ncdenr.org/c/document_library/get_file?uuid=68734102-5af8-462a-8562-734562dc965f&groupId=38337,p.1512 See Appendix E for other specific research topics identified as also being of particularimportancetopromotingtheuseofLSLs.

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PriorityPolicyInitiatives

1. DevelopLivingShorelineIncentives.ThefirstbarriertothewideruseofLSLsasidentified by Restore America’s Estuaries13 is “institutional inertia”—“Waterfrontproperty owners continue to use hardened shoreline protections because they arefamiliar with those methods…” and because “hardening was preferred due topsychologicalinertia.Thatis,whenaneighboringpropertyhasahardenedapproach,…,the perception is that a similar treatment is needed.” Changing engrained behaviors,rootedinpartinperceivedsocialnorms,requiresprovidingareasonforchange.Sincethebenefits of living shorelines extend beyond the landowner installing the system, thedevelopmentofprivateandpublic/regulatory incentives for theuseof softer systemsgenerally and living shorelines in particular is therefore justified and should beencouraged.

a. Financial/Monetary Incentives. Types of financial/monetary incentives for

considerationare:

• Technicalassistancegrantsfordesignorpermitting

• Propertytaxcredits

• Insurancebenefits(inthefloodinsurancecreditratingsystem,orwindinsurancebenefitsformangroveinstallations)

• Installationcostsharinggrants

• Installationinsurance(coveringdamagerequiringre-installationinthefirstXyears)

• Carbontradingcredits(forpreservationofbluecarbonlostifhardenedstructureinstalled)

• TMDLcreditsforlocality,whereavailable

• DiscountedpermitfeesFundingforthese incentives isobviouslyachallenge. Inadditiontotraditionalsources(publicandprivategrants),potentialnewsourcesincludelicensefeesforbenefiteduses(recreationalfishing;commercialfishing;realestatetransfertax).

b. Non-monetaryIncentives.Typesofnon-monetaryincentivessuggestedfor

considerationare:

13RAELivingShorelines:FromBarrierstoOpportunities-https://www.estuaries.org/images/stories/RAEReports/RAELSBarriersreportfinal.pdf,p.26.

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• ContinuingEducationCreditsforprofessionalgroups

• Recognition/Awards (separately for owners, realtors, professionals,regulators)

• Certification of expertise (example - “Master Naturalist-LivingShorelines”)

• Permittingpreferences(fast-track)

• Preferentialmitigationoptionsinpermitting2. ExpandCapacity.The lackofqualifieddesigners,engineers,and installers limitstheabilitybothtoinstalllivingshorelinesandtoeducateowners,developers,regulators,andthepublicabouttheirbenefits.ExpandeduseofLSLsmaystraintheresourcesoftheexisting regulatory agencies. Therefore, preference should be given to researchproposals,education/outreachinitiatives,andinstallationprojectsthatincludeelementsthat expand the institutional capacity of these constituencies (e.g., include training,education, or demonstration elements targeted at these constituencies). The currenteffortsatexpandingcapacityinclude:

• Living Shoreline Academy, VIMS LSL design Course, and other online

trainingmodules/vehicles

• Training and educational materials developed with input from stateregulatorybodies,includingpracticalfieldtraining

• Developmentanddissemination(on-line)ofprofessionaldirectories

• Web-basedGISmaps locatingdemonstration sitesanddescribing theBMPsused

• ConstructionofdemonstrationprojectsAdditionalwaystobuildandexpandcapacitycouldinclude;

• Rigorous academic coursework in relevant engineering fields relatedspecificallytoshorelinemanagement

• Permit fees forall shorelinemanagementprojects, to fundeducationandmonitoring

• Professional certification criteria for LSL design and installationcontractors

• Trainingforrealtors

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3. LearnfromMonitoring.ThelackofdataaboutperformanceovertimeofLSLsaswellasothershorelinemanagementtechniquesiswidelyrecognizedasaninformationgap important to the decision-making and regulatory processes. The collection andanalysisofperformancedataover time (whetheraspure researchoraspermit-basedmonitoring) is critical tomakingbetter informed choices. Currently,monitoring is notconsistently requiredof all shorelinemanagement techniques, so comparativedata islargelynon-existentoranecdotal.Littleornofundingisavailable.As a starting point, a standard for targetedmonitoring is needed. Ideally,monitoringwouldbearequiredelementofallshorelinemanagementsystems,bothhardenedandLSLs (funded, in part, by permit fees). Since all the data potentially of interest to thescientificcommunitywouldlikelybeprohibitivelyexpensiveforeveryproject,astandardisneededforwhatminimalbiophysicalinformationshouldbeconsistentlycollectedtomonitor the performance of an installation. The TNC Oyster Habitat RestorationMonitoringHandbook(forreference,seeAppendixD)discussesavarietyofmonitoringcriteria andmethods, includingmetrics specifically applicable to shoreline stability. Acitizen-scientistapproachissuggested,inwhichappropriatelytrainedvolunteerscouldaid in the collectionof this data (e.g., through an “adopt-a-shoreline” program).Newtechnologies (e.g., drone data collection and digital comparison of photos over time)couldreducethecostandenhancetheefficiencyofdatacollectionandanalysis.Equallyimportantisthetimelyuseoflessonslearnedfrommonitoringdataandon-goingresearch.TheselessonsshouldimpactboththeunderstandingofappropriateBMPsforspecificsiteconditions—thusaffectingdesign, installation,andmaintenancechoices—andpermittingdecisionsforsimilarsitesinthefuture.Aniterativeprocessofrefinementofmethodsandrequirementsbasedontheselessonslearnedisnecessary.4. PromoteRegional CommunicationandCoordination. TheGSAAhas supportedmechanismsforcommunicationintheSouthAtlanticLSLcommunitythroughitsLivingShorelinesWorkgroup,theSouthAtlanticLivingShorelinesSummit,andLivingShorelinesWorkshop.Additionalefforts towardcoordinatingLSLefforts in theSouthAtlanticarealsoneededtoreduceduplicativeeffortsandpromoteeffectiveuseoflimitedresources.To accomplish better regional communication and coordination, the following areneeded:

• Periodic regional conferences/summits focused on coastal/estuary

issues. These conferences would draw together the constituenciesdiscussed above (including state and federal agencies) and provideopportunitiesforbotheducation(asdiscussedabove)andformulationofcoordinatedstrategiesandeffortstopromoteLSLs.

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• Federalagencies involved inLSLs (USACE (both regulatoryofficesandSAGE),USFWS,NOAA) shouldbe involvedwith such conferencesandcanprovidecommunicationandtrainingthataddressesregionalissuescommontoLSLactivitiesacrossstates.

• As noted above (Learning fromMonitoring), a consensus standard isneededconcerninghowtomonitorshorelinemanagementinstallationsandmeasuretheir“success,”bothwithrespect tocontrollingerosionandstormdamageaswellashabitatandecosystemservicesprotection.These“success”standardscouldbebothgeneral,onalargescale,andspecific as to particular site types/conditions. Such standards wouldcreateacommonbaselinefromwhichtodiscussLSLissues(e.g.,BMPs,sitesuitability,long-termimpacts)andlearnfromregionalexperiences.

• A better understanding of the permitting process by manyconstituencies is needed, and it is recommended that an up-to-datestate-by-statetablesummarizingthepermitrequirementsforbothhardandsoftstructuresisneeded14.

• AllLSLresourcewebsites,particularlystateandfederalagency(whetherregulatoryorinformational)websites,needtobelinkedmorecentrallytoprovidea“one-stop-shop” forLSL information.Sites like theLivingShorelineAcademymaybewellpositionedtofillsucharole.AnycentralLSLwebsiteshouldbesupportedbyplansforregular(atleastannual)updatesandmaintenanceandeitheralong-termsupportplanoranexitplan.

OtherPolicyInitiativesImportanttoLSLs

• Public agencies as role models. Many public bodies own propertyincludingshoreline,andcouldserveasrolemodelsinusingLSLswhichcould also serve as demonstration projects. In addition,many publicagencies are directly or indirectly involved in policy formation thataffectsdevelopmentofshorelines.Theseagenciesarewellsituatedto

14In2012,TNCprepared“ShellfishRestorationandAlternativeShorelineProtectionPoliciesofthe Southeastern United States: Florida, Georgia, North Carolina and South Carolina”,whichprovidesanexplanationoftheregulatoryframeworkinplaceatthattimeineachoftheGSAAstatesrelatedtoshellfishrestorationandLSLprojects.http://masglp.olemiss.edu/Advisory/TNC_Policy.pdf

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beleadersineducationandadvocacyofLSLsastoolsinconservingouraquaticresources.

• SLRplanning.Wisemanagementnowof our shorelines can, in somesites,amelioratetheeffectsofSLR.TheroleofshorelinemanagementgenerallyandLSLsinparticulararethereforeimportantaspectsoflongtermSLRplanningandpolicy.

• Protection of existing natural shorelines. Important to this policy isobtaining a comprehensive inventory of the state of the shoreline ineach area, a prioritization of those shoreline areas most in need ofprotection, and a vehicle (e.g., regulatory, monetary incentives,conservation partnerships) for conserving areas before they aredegraded.

• Broader understanding of the economic impacts of shorelinemanagementdecisions.LSLsaretoooftenseenonlythroughthelensofconservationandecology.LSLsalsohaveeconomicimpacts,albeitnotwelldocumentedorpublicized.ConstructionandmaintenanceofLSLsprovide employment opportunities, often in economically depressedareas.Theresultinghabitat(oftenmarsh)providesecosystemservicesthatcanhavewide-rangingimpactsonavarietyofothereconomicallyvaluableactivities(e.g.,recreationalandcommercialfishing,tourism).Theycanhaveimportanteconomicbenefitinpropertyprotectionfromerosion and storm damage, as well as positive impacts on propertyvalue.ThebenefitstowaterqualityfromLSLscan,insomecases,resultindirecteconomicbenefittoacommunityintheformofTMDLcredits.TheeconomicsofLSLsisanimportantbuttoooftenoverlookedbenefitofgoodstewardship.

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ConclusionThe GSAA states are endowed with estuarine resources of extraordinary value andimportance. The experienceof otherswhose resources havebeen seriously degradedthrough the gradual hardeningof sensitive shorelines cannotbe ignored.Whilenot acure-all,livingshorelinesofferimprovementinmanyinstances,bothforthelandownertryingtoprotectpropertyfromerosion,storms,andSLR,andforallofthosedependentontheservicesprovidedbythatestuarinesystem.TheGSAAsupportseducatingthoseaffectedbyandhavingthepowertoaffectshorelinemanagementdecisionsaboutthechallenges and benefits of LSLs, and encourages entities involved in shorelinemanagementtoconsiderthepoliciesdescribedabovetopromotethewideradoptionofLSLtechniques.

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AppendixA:LivingShorelineDefinitions“Living shoreline is a broad term that encompasses a range of shoreline stabilizationtechniques along estuarine coasts, bays, sheltered coastlines, and tributaries. A livingshoreline has a footprint that is made up mostly of native material. It incorporatesvegetationorother living,natural “soft”elementsaloneor in combinationwith sometypeofhardershorelinestructure(e.g.,oysterreefsorrocksills)foraddedstability.Livingshorelinesmaintaincontinuityof thenatural land–water interfaceand reduceerosionwhileprovidinghabitatvalueandenhancingcoastalresilience.”GuidanceforConsideringtheUseofLivingShorelines,NOAA(2015),p.7.ThesamedefinitionisusedbyUSACEinitsProposedLivingShorelineNationwidePermit,with only the last sentence slightly modified and one additional sentence added, asfollows: “Living shorelines should maintain the natural continuity of the land-waterinterface,andretainorenhanceshorelineecologicalprocesses.Livingshorelinesmusthaveasubstantialbiologicalcomponent,eithertidalorlacustrinefringewetlandsorreefstructures.”Fed.Reg.p.35230-31(June1,2016).“Living Shoreline: Shoreline stabilization approaches that integrate living components,suchasplantings,withstrategicallyplacedstructuralelements,suchassills,revetments,andbreakwaters.”USACESAGE:SystemsApproachtoGeomorphicEngineeringhttp://sagecoast.org/info/glossary.html

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AppendixB:GSAAStrategyAssessmentProcessTheprocessbeganwithGSAAcontractors15conductingsurveysofthesoutheastAtlanticLSLcommunitytoassesstheareasofinterestfortheplannedSouthAtlanticLivingShorelinesSummit.AsteeringcommitteethenplannedthespecificagendaforthedayandahalfSummit,heldinJacksonvilleFloridaonApril12-13,2016.TheSummit,attendedbyapproximately150individualsfromalloftheGSAAstatesandbeyond,offeredaforumforscientists,regulators,policymakers,planners,contractors,conservationorganizations,andLSLpractitionerstosharetheirLSLknowledgeandexperienceanddiscussneeds(technical,informational,financial,andregulatory)forwiderunderstandingandacceptanceofLSLs.TheSummitwassummarizedinareportavailableathttp://files.ctctcdn.com/e7868fa3401/c3b78c44-d63e-4fca-b36d-a0617dce05f4.pdf.GSAAtheninvitedasmallerworkinggrouptoaworkshopinCharlestononOctober12-13,2016topreparethisStrategicNeedsAssessment.FacilitatedbyChrissaWaitefromtheNOAAOfficeforCoastalManagement,thegroup:

• Identifiedanddiscussedeachconstituencypotentiallyimportanttoshoreline

managementdecisions

• IdentifiedandprioritizedtheinformationneededtobeconveyedtoeachconstituencytomakeitmoreeffectiveinthenearterminexpandingtheuseofLSLs

• Discussedbestmethodstoconveytheneededinformationtoeachconstituency

• Discussedinformationgaps—whereadditionalresearchisneededtopromoteLSLuse—andprioritizedthoseneeds

• Identifiedpolicyinitiativesthatimpactanumberofareasofshorelinemanagementdecision-makingandprioritizedthosebasedontheonesmostlikelytobeachievableandhavinganear-termimpactonthewideruseofLSLs

ThisAssessmentwasthenpreparedandcirculatedtothatworkinggrouptoensureitaccuratelyandadequatelycapturestheconsensusreachedintheCharlestonworkshop.Finally,theAssessmentwasreviewedand,withrevisionstoreflecttheGSAAleadershipconsensus,adoptedbytheGSAApartners.15GSAAwasassistedbyMoffatt&NicholandtheNorthCarolinaCoastalFederationinconductingthe surveys, planning and conducting the Summit and Workshop, and completing thisAssessment.

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AppendixC:GreentoGrayContinuum

(excerptfromSAGE“NaturalandStructuralMeasuresforShorelineStabilization”)

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AppendixD:AdditionalResources

The following are important existingmajor resources for information about shorelinemanagementissuesgenerallyandLSLissuesinparticular:• NOAA Guidance for Considering the Use of Living Shorelines Report -

http://www.habitat.noaa.gov/pdf/noaa_guidance_for_considering_the_use_of_living_shorelines_2015.pdf

Focusedonestuarinecoasts,baysandtributaries,thisguidanceaddresses:selectingLSL techniques appropriate to the site conditions; NOAA training, partnership,funding, and technical assistance programs; and understanding NOAA’s potentialregulatoryroles.

• SAGE Natural and Structural Measures for Shoreline Stabilization ACOE Report -http://www.sagecoast.org/docs/SAGE_LivingShorelineBrochure_Print.pdf

Developed by NOAA and the USACE SAGE (Systems Approach to GeomorphicEngineering), this brochure presents a continuum of shoreline managementtechniquesfrom“greentogray”(natural/softtohardened)appropriateforaddressingcoastalrisksinavarietyofsettingsandexplainsthebenefitsandchallengesofLSLsineach.

• FloridaLivingShorelineswebsite-http://floridalivingshorelines.com/

Thiswebsiteexplains“howtouseplantsandothernaturalmaterialstohelpprotecterodingshorelinesfromwaveandstormdamageinthebaysandestuariesofcoastalFlorida.”

• GeorgiaLivingShorelineswebsite-http://coastalgadnr.org/LivingShorelines

Thiswebsitehostsareportthatdescribesindetailtheplanning,designandengineering,construction,andmonitoringofGeorgia’s first three livingshorelineprojects. Italsohosts a storyboard of projects that is updated when new information becomesavailable.

• NorthCarolinaLivingShorelineswebsite-https://deq.nc.gov/about/divisions/coastal-management/coastal-management-estuarine-shorelines/stabilization

Thiswebsiteexplainsalternatives,includingLSLs,forshorelinestabilizationwithlinkstoseveral reports, including the State’s Living Shorelines Strategy Report, researchreports, and a “Resource for Homeowners and Professionals” detailing availableresourcesforplanningandimplementingalivingshoreline.

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• “LivingShorelinesintheSoutheast:ResearchandDataGapsReport”,GeorgiaCoastalResearchCouncil(August2016)-

http://southatlanticalliance.org/wp-content/uploads/2016/09/Living-Shorelines-in-the-Southeast.pdf

ThisreportcollectsanddescribestheexistingresearchrelevanttoLSLsintheGSAAstatesandidentifiesareas(gaps)whereadditionalresearchisneeded.

• RAELivingShorelines:FromBarrierstoOpportunities-https://www.estuaries.org/images/stories/RAEReports/RAE_LS_Barriers_report_final.pdf

Thisreport identifies institutionalbarrierstothewideracceptanceanduseofLSLsandsuggestsstrategiesforovercomingthosebarriers.

• LivingShorelinesAcademy(“LSA”)-www.livingshorelinesacademy.org

A product of collaboration between Restore America’s Estuaries and the NorthCarolina Coastal Federation (and their many partners), LSA hosts a website thatcollects up-to-date information, including peer reviewed research, on all areasaffectingLSLs.Italsoprovideson-linetrainingmaterialsandisdevelopingadditionalon-lineandin-persontrainingprogramsforallLSLconstituencies.

• TNCOysterHabitatRestorationMonitoringHandbook-http://www.oyster-restoration.org/wp-content/uploads/2014/01/Oyster-Habitat-Restoration-Monitoring-and-Assessment-Handbook.pdf

Thisreportrecommendsmonitoringtechniquesandperformance

criteriathatwouldallowformoreextensiveandconsistentpost-restorationassessmentbetweenoysterrestorationprojectsonvaryinggeographicscales.

• TNCSouthAtlanticPolicyAssessment-http://masglp.olemiss.edu/publications/index.html(LivingShorelines)

ThispagelinkstoanumberofLSLresources.

• VIMStrainingmaterials-http://ccrm.vims.edu/livingshorelines/index.html

ThissiteincludesinformationaboutLSLsrangingfromadescriptionoftheirbenefitstospecificdesignandbuildcriteria.

• RachelGittman–“EcologicalConsequencesofShorelineHardening-AMeta-Analysis”,http://bioscience.oxfordjournals.org/content/66/9/763.full

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AppendixE:AdditionalScientificResearchNeeded

• Optimumbiophysicalenergyconditionsforvariousdesignoptions,andtechnicalengineeringspecsforvarioussitesandconditions/substrates

• Regional-scalemappingofshorelineerosionandLSLsuitabilitymodeling

• EffectsofSLRonprojectsuccessrelativetoothertechniques

• EffectsofprojectsonmanagingtheeffectsofSLR

• Effectonpropertyvalues

• Howshorelineprotectionalternativesinteractwithsedimentdynamics

• Effectsoflivingshorelinesandhardenedstructuresoncoastalprocesses(nearfieldandecosystem)

• Comparisonoflivingshorelinedesignsinvarioussitesandconditions

• Quantificationoftheecosystembenefitsandtradeoffs

• Dataaboutcomparativecosts

• Efficacyofvariousshorelinemanagementtechniques(includinghardenedstructures)inprotectingshorelines

• Priority/protectedspeciesimpacts/habitatimpacts

• Damagefromintroductionofinvasivespecies(oftenviaconstructionmaterials)

• Performanceatecosystemscale

• Howtochangebehavior/currentperceptions

• Whereareerodingshorelinesandsuitabilitymodeling

• LSLs’abilitytotrapcontaminantsandresultingeffectonaquaticspecies

• Commondefinitionofsuccessatallscales

• Longtermperformancemonitoringofvarioustechnologies

• Bluecarbonstoragepotential

• Preservationofgeneticdiversity