Adaptation_Planning_Guidebook.pdf

Florida Adaptation Planning Guidebook

Adaptation Planning Guidebook

Acknowledgments This report is funded in part, through agreement from the Florida Department of Environmental Protection, Florida Coastal Management Program, by a grant provided by the Office of Ocean and Coastal Resource Management under the Coastal Zone Management Act of 1972, as amended, National Oceanic and Atmospheric Administration Award No. NA10NOS4190178.

The views, statements, findings, conclusions, and recommendations expressed herein are those of the author(s) and do not necessarily reflect the views of the NOAA, or any of its sub-agencies.

The Florida Department of Environmental Protection appreciates the contributions and support of many to the comprehensive, multi-year project culminating in this guidebook. Among those who made the guidebook possible, special thanks go to Julie Dennis, Barbara Lenczewski, Whitney Gray, Katherine Beck, Joseph Bauer, the members of the Community Resiliency Initiative Focus Group, and the project team from Atkins, a member of the SNC-Lavalin Group.

June 2018

Adaptation Planning Guidebook Adaptation Planning Guidebook

Table of Contents

Executive Summary. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . III

a. Adaptation Planning Basics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV

b. History of Adaptation Planning in Florida and Enabling Legislation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . VII

c. Benefits of Adaptation Planning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . VIII

1. Context

1.1. Assemble a Steering Committee

1.2. Set Guiding Principles and Motivations

1.3. Describe the Geographic Context

1.4. Identify Opportunities for Community Participation

1.4.1. Stakeholder Identification

1.4.2. Public Outreach Approach

1.5. Data Sources, Tools, and Resources

1.6. Best Practices in Stakeholder Involvement

2. Vulnerability Assessment

2.1. Conduct an Exposure Analysis

2.2. Conduct a Sensitivity Analysis

2.3. Assign Focus Areas

2.4. Data Sources, Tools, and Resources

2.5. Best Practices and Funding Opportunities

2.6. Public Outreach Approach, Communicating Risk, and Opportunities for Community Participation

3. Adaptation Strategies

3.1. Assess Adaptive Capacities

3.2. Prioritize Adaptation Needs

3.3. Identify Adaptation Strategies

3.4. Integrate into Existing Plans

3.5. Data Sources, Tools, and Resources

3.6. Best Practices and Funding Opportunities

3.7. Public Outreach Approach and Opportunities for Community Participation

4. Implementation Strategies

4.1. Survey of Funding Options

4.1.1. Prioritize Strategies

4.2. Create a Schedule of Activities, Actions, and Actors

4.3. Monitor and Evaluate

4.4. Best Practices and Funding Opportunities

4.5. Public Outreach Approach and Opportunities for Community Participation

5. Summary

6. Appendices

6.1. Specialty Topics

6.1.1. The Economic Value of Sea Level Rise Adaptation Planning

6.1.2. The Community Rating System and Sea Level Rise Adaptation

6.1.3. Protecting and Preserving Historic and Cultural Resources

6.1.4. Adaptation Action Areas to Protect Natural Resources

6.2. Funding Opportunities

6.3. References

6.4. Example Adaptation Plan

6.5. Example Vulnerability Analysis

Acronyms

IFAS University of Florida Institute of Food and Agricultural Sciences

InVEST Integrated Valuation of Environmental Services and Tradeoffs

Initiatives

Environmental

Adaptation: Adjustment in natural or human systems in response to actual or expected stimuli or their effects, which moderates harm or exploits beneficial opportunities.

Coastal flooding: Flooding which occurs when water is driven onto land from an adjacent body of water. This generally occurs when there are significant tropical storm events, such as hurricanes.

Flood: An overflow of water onto normally dry land. The inundation of a normally dry area caused by rising water in an existing waterway, such as a river, stream, or drainage ditch. Flooding is a longer-term event than flash flooding – it may last days or weeks.

Flash flood: A flood caused by heavy or excessive rainfall in a short period of time, generally less than 6 hours. Flash floods are usually characterized by raging, quick-moving water after heavy rains.

King tide: The highest predicted high tide of the year at a coastal location.

Mean sea level: The height of the sea surface averaged over all stages of the tide over a period of time, typically computed over a 19-year period.

Sea level rise: An observed increase in the average local sea level or global sea level trend. The two major causes of global sea level rise are thermal expansion caused by the warming of the oceans (since water expands as it warms) and the loss of land-based ice (such as glaciers and polar ice caps) due to melting.

Storm surge: An abnormal rise of water generated by a storm over and above the predicted astronomical tides. Storm surge should not be confused with storm tide, which is defined as the water level rise due to the combination of storm surge and the astronomical tide.

Stormwater runoff: Is generated when precipitation flows over land or impervious surfaces and does not percolate into the ground. As the runoff flows over the land or impervious surfaces (paved streets, park-ing lots, and building rooftops), it accumulates pollutants that could adversely affect water quality if the runoff is discharged untreated.

Glossary

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Adaptation Planning Guidebook | IAdaptation Planning Guidebook

Executive Summary

This Adaptation Planning Guidebook is a compilation of more than 5 years of stakeholder involvement and research during the Community Resiliency Initiative (CRI) directed by the Florida Department of Envi-ronmental Protection (DEP) and the Florida Department of Economic Opportunity (DEO) as part of the Florida Coastal Management Plan.

Research began in 2011 and continued through 2017. During this time, upwards of 30 documents that focus on many aspects of adaptation planning and are specific to Florida were created. The documents are available online [https://floridadep.gov/fco], and many are directly referenced in this guidebook.

This guidebook is scalable and intended to be used by local govern-ment planners in cities and counties of any size, providing a frame-work to develop an initial or update an existing Adaptation Plan based on current Florida laws, requirements, and recommendations.

Not all communities will experience sea level rise in the same way or within the same timeframes. Once Context for your specific location is established (Chapter 1), a Vulnerability Assessment (Chapter 2) can follow. This assessment will guide your community to then establish Adaptation Strategies (Chapter 3) for the specific challenges that face your community in a timeframe that is applicable and realistic. The last component is to determine how to Implement Strategies into your plan (Chapter 4) with existing resources and into other existing planning products and processes. Additional recommendations for periodic updates to review refined climate change and sea level rise science are included as well as recommendations on how to include adaptation in other planning processes as they are updated.

The appendix of this guidebook contains specialty topics such as impact on cultural and natural resources that may be relevant to your individual community. It also contains a list of funding sources that are directly applicable to funding adaptation strategies. There is also an example Vulnerability Analysis and Adaptation Plan for reference, both of which were completed during the CRI.

The goal of this guidebook is to assist Florida communities in prepar-ing for and dealing with the effects of sea level rise, especially coastal flooding, erosion, and ecosystem changes. Using this guidebook, com-munities can move along the steps of Vulnerability Assessment, Adap-tation Planning, and Implementation as outlined on the next page in the Steps to Create Adaptation Plans road map. The unique challenges that sea level rise will pose within jurisdictions will require patience and diligence in the face of constantly changing conditions and infor-mation. Using the process outlined in this guideline will help define timeframes within which those changes are likely to occur and provide a springboard for continued discussion on how to protect our quality of life in the face of dynamic environmental changes.

https://floridadep.gov/fco

II | Adaptation Planning Guidebook

START

Steps to Create Adaptation Plans

2 3

CONTEXT

• Assemble a steering committee

• Set guiding principles and motivations

• Establish planning area and describe geographic context

• Define public outreach approach and

ADAPTATION STRATEGIES

• Assess adaptive capacities

• Prioritize adaptation needs

• Identify adaptation strategies

• Integrate into existing plans

VULNERABILITY ASSESSMENT

• Conduct an exposure analysis

• Conduct a sensitivity analysis

• Assign focus areas

IMPLEMENTATION

• Assess implementation capabilities

• Create a schedule of activities, actions, and actors

• Monitor and evaluate

FINISH

opportunities for community participation

2 3

2 3

START

Steps to Create Adaptation Plans

2 3

CONTEXT

• Assemble a steering committee

• Set guiding principles and motivations

• Establish planning area and describe geographic context

• Define public outreach approach and

ADAPTATION STRATEGIES

• Assess adaptive capacities

• Prioritize adaptation needs

• Identify adaptation strategies

• Integrate into existing plans

VULNERABILITY ASSESSMENT

• Conduct an exposure analysis

• Conduct a sensitivity analysis

• Assign focus areas

IMPLEMENTATION

• Assess implementation capabilities

• Create a schedule of activities, actions, and actors

• Monitor and evaluate

FINISH

opportunities for community participation

2 3

2 3

CONTEXT

§§ Assemble a steering committee

§§ Set guiding principles and motivations

§§ Establish planning area and describe geographic context

§§ Define public outreach approach and opportunities for community participation

VULNERABILITY ASSESSMENT

§§ Conduct an exposure analysis

§§ Conduct a sensitivity analysis

§§ Assign focus areas

IMPLEMENTATION

STRATEGIES

§§ Assess implementation capabilities

§§ Create a schedule of activities, actions, and actors

§§ Monitor and evaluate

ADAPTATION STRATEGIES

§§ Assess adaptive capacities

§§ Prioritize adaptation needs

§§ Identify adaptation strategies

§§ Integrate into existing plans

Figure 1. Communities can follow this roadmap of steps to create an adaptation plan.

Adaptation Planning Guidebook | IIIII | Adaptation Planning Guidebook

1,350 miles of Florida coastline sustain and enchant both visitors and residents of the state. The coast’s relationship to the state’s economy is vital. Lined with wetlands, inlets, and rivers, Florida’s coast spans 35 coastal counties containing 76% of Florida’s population and con-tributing $584 billion dollars in economic activity—79% of the state’s total economy as of 2012. The direct contribution of ocean and coastal resources is around $18 billion dollars annually and supports hundreds of thousands of jobs. According to state compiled research in 2011, Florida’s key ocean legacy industries supported over 228,000 employ-ees. When indirect effects are considered, the number of jobs exceeds 440,000. (Florida’s Oceans and Coasts: An economic and cluster anal-ysis, Florida Ocean Alliance, 2013.) In 2014, Florida’s coastal counties contributed over $647 billion to the state’s Gross Domestic Product (GDP) and employed more than 6.5 million people who earned $255 billion in wages and salaries (National Ocean Economics Program (NOEP), 2016). While the coast may be the State’s greatest asset, Flor-ida’s communities are at significant risk from coastal hazards including the slow moving, steady, and arguably irreversible threat of sea level rise. Within the area at risk from one foot of projected sea level rise sits more than 65,000 homes and as many as 121,909 people (Climate Central, 2014). The ability to adapt to and with a changing coastline is vital for the state’s sustainability and continued prosperity over the next century.

A sea level rise adaptation plan is a sound and sensible method for Florida’s coastal communities to develop and enhance their strategies for protecting coastal populations and infrastructure. This guidebook prepared by Florida Department of Environmental Protection provides many resources and offers a reasonable framework for developing an adaptation plan. It includes four recommended components that break down the action steps needed to build an effective plan and additional information to address special considerations like historic and natural resources. The components are:

Introduction

IV | Adaptation Planning Guidebook

These components, discussed in greater detail in the following chap-ters, interact and build upon one another to create an approach to sea level rise planning for the community. However, this guidance avoids a prescriptive formula to follow, recognizing that each community is dif-ferent and unique. Rather, it provides a process to follow with enough latitude to allow for different approaches to reaching the same goal.

There are sample sections from existing adaptation plans around the state to help guide communities developing a plan for the first time or looking to update their plan.

An adaptation plan does not require all the components described in this guide to be developed at once. The process is incremental, mean-ing that the community and the planning team may assemble a com-ponent, or all components relative to a specific aspect of sea level rise, and then return to the plan process when convenient. In addition, the outcomes of this planning process are meant to be incorporated into other on-going community plans and decision-making processes.

Adaptation plan strategies may be adopted on a schedule that con-forms to the community’s existing or projected schedule of adoption and implementation of actions and policies from other plans.

This guidance approaches sea level rise adaptation planning through both participatory and science-based methods. Through participatory methods, input is sought from stakeholders in the community to take advantage of local knowledge and to tailor a strategy that aligns with the local needs, culture, and capacity. Through science-based meth-ods, the guidebook provides references to tools that have been devel-oped by respected agencies that depict the likely future impacts of our changing climate. With the overlap of these two methods, com-munities may gain access to a broad range of local perspectives to be balanced with the best available science to chart a path forward to a more resilient future (Adaptation Plan Components Guide (Post peer-review)).

a. Adaptation Planning Basics The four (4) essential components of the adaptation plan, and where they are found, are:

§§ Context, Chapter 1

§§ Vulnerability Assessment, Chapter 2

§§ Adaptation Strategies, Chapter 3

§§ Implementation Strategies, Chapter 4

Context refers to the preliminary actions that a community should take to facilitate an inclusive planning process in addressing the remaining three components. The Vulnerability Assessment draws from the Risk Assessment framework described in the Code of Federal Regulations for Hazard Mitigation Plans (Title 44 CFR 201.6 (c)(2)), which measures the hazard exposure of a community and its sensitivity – e.g., popula-tion, built environment, natural environment – to the identified haz-ards. Adaptation Strategies are the toolkit of responses for a commu-nity to address sea level rise as well as the steps taken to decide which

Adaptation Planning Guidebook | VIV | Adaptation Planning Guidebook

Adaptation Planning: Road to Implementation

1.1

2.3

3.1 3.2 3.3 3.4

2.2 2.1

1.2 1.3 1.4CONTEXT:

Set the Stage

(6 Months)

VULNERABILITY

ASSESSMENTS

(9 Months)

ADAPTATION

STRATEGIES

(9 Months)

Assemble steering committee

Identify community participation opportunities

Set guiding principles and motivations

Describe geographic context/planning area

Conduct exposure analysis

Conduct sensitivity analysis

Assign focus areas

Prioritize adaptation needs

Identify adaptation strategies

Monitor and evaluate

Integrate into existing plans

Assess adaptive capacities

Adaptation Plan Complete

IMPLEMENTATION

Figure 2. There are four major steps to creating Adaptation Plans in Florida.

VI | Adaptation Planning Guidebook adaptation strategies are the best fit based on the needs of individual communities. Finally, the Implementation Strategies component out-lines a process for communities to move their plan into action consid-ering available funding for adaptation activities, describes the need to assign groups/individuals to complete tasks, and suggests mechanisms to evaluate how effectively strategies are being accomplished.

As shown in the diagram above, within these four main components are many supporting tasks (i.e., sub-components) that provide further work breakdown. From establishing a steering committee, to assigning focus areas, to monitoring and evaluating, the chapters in this guide will describe each component and subcomponent in more detail. Dif-ferent approaches will be illustrated using examples from pilot proj-ects around the state.

The four components and their associated actions are mostly a sequen-tial process to be completed in the order that they are presented in this guidebook (i.e., Context first, then Vulnerability Assessment, etc.).

However, flexibility is key in getting new planning processes, including sea level rise adaptation, off the ground. Steps that occur further along in the process may identify some fatal flaws that will require revisiting a previous step. It is also recommended that this process be revisited periodically to assess its relevancy and need for updating (e.g., more accurate sea level rise data becomes available).

The other parts of the guidebook include:

§§ Executive Summary

§§ Summary

§§ Appendices with the following subsections:

• Specialty Topics

§ The Economic Value of Sea Level Rise Adaptation Planning

§ The Community Rating System and Sea Level Rise Adaptation

§ Protecting and Preserving Historic and Cultural Resources

§ Adaptation Action Areas to Protect Natural Resources

• Funding Opportunities

• References

• Example Adaptation Plan

• Example Vulnerability Analysis

Adaptation Planning Guidebook | VIIVI | Adaptation Planning Guidebook

b. History of Adaptation Planning in Florida and Enabling Legislation One of the state’s first sustained adaptation planning efforts was the Southeast Florida Climate Leadership Summit, first held in Fort Lau-derdale in 2009 and then annually ever since. The focus of the summit is to facilitate climate-related collaboration and knowledge sharing. In January 2010, Broward, Miami-Dade, Monroe, and Palm Beach Coun-ties formed the Southeast Florida Regional Climate Change Compact to coordinate mitigation and adaptation activities across county lines.

In 2011, the Florida legislature passed the Community Planning Act (CPA). Within this legislation, local governments are given the option of developing an Adaptation Action Area (AAA) within their jurisdic-tion to help address the impacts of sea level rise. In 2013, the National Oceanic and Atmospheric Administration (NOAA) approved the Flor-ida Coastal Management Program’s (FCMP) Section 309 Strategy, including an initiative to be conducted by the Florida Department of Economic Opportunity (DEO) titled: “Community Resiliency: Planning for Sea Level Rise.” This five-year initiative examined the statewide framework and best practices for integrating adaptation into the exist-ing planning processes as well as how to coordinate adaptation efforts across Florida.1

1 Adaptation Clearinghouse website: “Florida’s Community Resilience Initiative – Planning for Sea Level Rise”. Accessed May 31, 2018.

2 Adaptation Clearinghouse website: “Florida SB 1094: “An act relating to the peril of flood”. Accessed May 31, 2018.

The City of Fort Lauderdale was selected by DEO as an initial pilot proj-ect in 2013. The City evaluated and incorporated an AAA into its exist-ing comprehensive plan. In 2014, the City Commission approved the AAA and its 14 policies. In 2016, three additional pilot projects were conducted in Escambia County, the City of Clearwater, and the City of St. Augustine. These local communities each created Adaptation Plans as a result of a Coastal Vulnerability Assessment and Workshop that was conducted by DEO and funded by NOAA.

On May 21, 2015, Governor Rick Scott signed SB 1094 into law, which is known as the “Peril of Flood” Statute. This law requires the consider-ation of future flood risk from storm surge and sea level rise in certain parts of local government comprehensive plans. As a result of SB 1094, Florida Statute Section 163.3178(2)(f)1 now includes sea level rise as one of the causes of flood risk that must be addressed in the “rede-velopment principles, strategies, and engineering solutions” to reduce flood risk.

The law also changes requirements of flood insurance offered by insur-ance carriers, requires local governments to include a redevelopment component oriented towards flood risk reduction when drafting com-prehensive coastal management plans, and requires surveyors and mappers to submit elevation certificates to the Division of Emergency Management within 30 days after completion of the certificate.2

VIII | Adaptation Planning Guidebook

21st Century Adaptation Planning in Florida

2009 2013

2011 2013

Southeast Florida Climate Leadership Summit and resulting regional compact (Palm Beach County, Broward County, Miami Dade County, Monroe County)

Florida Legislature passes the Community Planning Act

(CPA); local governments first given the option of developing an Adaptation Action Area

(AAA)

NOAA approved Florida Coastal Management

Program’s Section 309 Strategy; DEO led Community

Resilience Initiative (CRI):

Planning for Sea Level Rise

CRI Pilot localities complete their AAA plans: Escambia County, City of Clearwater, City of St. Augustine incorporate Coastal

Vulnerability Assesment and Workshop

City of Fort Lauderdale selected by DEO as project of special merit pilot;

City Commission approved

Adaptation Action Areas and 14 policies in 2014

Peril of Flood Statue signed by Governor Rick Scott; local governments are required to incorporate sea level rise planning into redevelopment policies (6 ways)

c. Benefits of Adaptation Planning As mentioned earlier, the coastline of Florida is a huge contributor to the State’s economy and warrants protection. There is significant value in exploring adaptation actions that mitigate potential future impacts of sea level rise and help to maintain a productive and thriving econ-omy. A study by the National Institute of Building Sciences, called Nat-ural Hazard Mitigation Saves: 2017 Interim Report, determined that there is a savings of $6 for every $1 spent on hazard mitigation efforts, and there is an additional savings of $4 for every $1 spent surpassing building codes. According to FEMA, higher building standards adopted by 20,000 communities across the country are saving the nation more than $1.1 billion a year in prevented flood damages.

When communities participating in FEMA’s National Flood Insurance Program (NFIP) implement activities that exceed the minimum NFIP criteria, they receive credits by participating in FEMA’s Community Rating System (CRS). These credits provide a reduction in flood insur-ance premiums for community residents. The higher the CRS rating, the deeper the insurance premium discount.

Figure 3. Adaptation Planning is new subject matter in Florida, beginning in 2009.

Adaptation Planning Guidebook | IXVIII | Adaptation Planning Guidebook

Adaptation planning benefits society by reducing loss of life and property damage thus creating safer commu-nities. Communities across Florida are already engaged in hazard miti-gation planning and the actions taken by these communities to reduce their vulnerability to coastal flooding are very similar to those actions Florida communities may choose to imple-ment for adaptation. The main dif-ference is that adaptation assumes a longer time frame for impact and, therefore, a longer time frame for planning and implementation.

Communities should view adaptation as an investment that may save them money in the long term. Actions taken to reduce risk may lead to a reduction in storm-related business interruption across a variety of important coastal industries such as the tourism, recreation, sea-ports and ocean transportation, marine, and fishing/living resources industries. By supporting a resilient business and community environ-ment, workforces can return to work more quickly after coastal hazard events, customers will return more quickly with limited interruptions in service delivery, and suppliers will be able to continue to provide the level of service that businesses need.

Another important reason to address the impacts of climate change and sea level rise is that bond credit rating agencies like Moody’s Inves-tors Service, Standard & Poor’s, and Fitch Group are beginning to con-sider using this more in their ratings. For example, Moody’s now lists six indicators it uses “to assess the exposure and overall susceptibility of U.S. states to the physical effects of climate change.” They include the share of economic activity that comes from coastal areas, hurri-cane and extreme-weather damage as a share of the economy, and the share of homes in a floodplain.3 States that are listed at the high-est risk from climate change by Moody’s include Florida along with other coastal states like Texas, Georgia, and Mississippi.

The impacts of sea level rise and climate change, such as flooding from the ocean and extreme precipitation, will increasingly impact a community’s finances. For example, as sea level rise encroaches into neighborhoods and business districts, property values will likely go down, emergency service costs will increase, and business disrup-tion costs will escalate. These consequences will both reduce revenue as home owners abandon properties or sales taxes go down in areas prone to increased flood and increase costs as communities deal with the aftermath.

These negative financial trends make it more difficult for communi-ties to pay back bonds. Recurring events drain local coffers and reduce financial ability to pay back bonds as funds are diverted or revenues

3 “Moody’s Warns Cities to Address Climate Risks or Face Downgrades” by Christopher Flavelle from a November 29, 2017 article in Bloomberg News (on-line)

Sea level rise has the potential to alter a variety of key Florida industries:

§§ Ocean tourism;

§§ Recreation;

§§ Water transportation;

§§ Marine; and, §§ Fishing/living resources.

To maximize returns and benefits, Florida commu-nities are considering the impacts of sea level rise on coastal infrastructure and environments.

X | Adaptation Planning Guidebook lessened. Financial factors like these are weighed by bond rating agen-cies, and when they become substantial, the cost to borrow money increases. As a result, a downgrade in the bond rating could force communities to pay more to borrow money for projects like building, maintaining, and rebuilding facilities and infrastructure including even the type of measures needed to adapt to sea level rise. The resulting increased cost of borrowing may then be passed on to residents and businesses as communities struggle to cope. Developing an adaptation plan is a step in the right direction to identify the areas at greatest risk and identify a tangible process for addressing the impacts.

Existing Comprehensive

Plan Coastal Management

Element

2015 Peril of Flood Statute

Requirement

Identify Adaptation Action Areas, Recommended

Adaptation Planning Steps for Local Florida Communities

Figure 4. Many Florida communities already have a Coastal Management Element in their Comprehensive Plan. The addi-tion of the requirements in the 2015 Peril of Flood Statute is required upon its update, and, though not required, it is highly recommended to also identify Adaptation Action Areas.

The Florida Department of Environmental Protection is committed to marshalling resources to prepare Florida’s communities and habitats for changes resulting from sea level rise. Our vision is that Florida’s coastal communities are resilient and prepared for resulting coastal flooding, erosion, and ecosystem changes. With our partners at the Florida Department of Economic Opportunity, we provide this guide-book to further our mission of synergizing community resilience plan-ning, natural resource protection tools, and funding to prepare Florida’s coastline for the effects of climate change, especially rising sea levels.

Adaptation Planning Guidebook | 1X | Adaptation Planning Guidebook

1. Context

For the first part of an adaptation planning process, communities are encouraged to consider factors typical of all planning exercises, with a focus on how each factor relates to sea level rise adaptation. This is referred to as the planning context and includes a survey of exist-ing geographic, social, infrastructural, and environmental conditions.

It also entails the creation of principles (e.g., goals, objectives, and policies) to guide the planning process, which are distinct from pri-oritized needs set during the Adaptation Strategies analysis phase.

The sub-components in the Context component include: 1) Assemble a Steering Committee; 2) Set Guiding Principles and Motivations; 3) Describe the Geographic Context; and 4) Identify Opportunities for Community Participation.

By addressing the Context, communities can better guide the adapta-tion planning process as it unfolds in their individual community. These sub-components are where the planning environment – politically, socially, and geographically – should be tailored to respond effectively through the next three components (Vulnerability Assessment, Adap-tation Strategies, and Implementation Strategies) in a manner that creates meaningful stakeholder engagement. Establishing the Context early in the planning process also helps provide working knowledge of the participants and area to optimize the other activities later in the process, such as deciding on Focus Areas after the Sensitivity Analysis (see Chapters 2.2 and 2.3) or setting priority Adaptation Needs (see Chapter 3.2).

1.1. Assemble a Steering Committee

To develop an effective sea level rise adaptation plan that reflects the expertise and interests of the community’s local stakeholders, a steering committee should be assembled to assist the organization responsible for writing the plan. Steering committees have the ability to enhance all ensuing activities in the adaptation planning process.

Because they have a large role in providing data and implementing actions, local government officials or champions are the best candi-dates to chair or lead the steering committee or working group for the planning process. However, steering committees can accomplish their ultimate purpose, to engage the whole community, if they also include non-governmental representation with strong ties to the community (e.g., businesses, non-profits, and neighborhood groups).

It is recommended that the planning team recruit a steering commit-tee whose composition is a blend of community champions, knowl-edgeable community development officials, and technical experts that understand flooding and coastal dynamics. In addition to guidance, steering committee members may work directly with the adaptation planning team to write the adaptation plan so that components such as the Vulnerability Assessment and Adaptation Strategies follow pro-fessional standards. Because sea level rise adaptation planning is an emerging topic, DEP and NOAA urge communities to think of sources of technical assistance in organizations that routinely address the sub-ject. Universities and their cadres of graduate students, Florida Sea Grant agents, regional planning council staff, and NOAA Coastal Man-agement Fellows are some examples.

Chapter 1: Context

2 | Adaptation Planning Guidebook

The planning team is encouraged to look to the private sector (e.g., green building contractors, engineering firms experienced with flood issues), non-profits (e.g., 1000 Friends of Florida, The Nature Conservancy), and universities for potential steering committee members. Coastal biologists, geologists, engineers, public finance specialists, researchers, and residents with local knowledge may all be able to support adapta-tion planning endeavors. By strategically populating the steering com-mittee, the ensuing activities in the adaptation planning process may benefit from creative ideas. Another source for steering committee members can be local mitigation steering committees, floodplain man-agement planning committees, and other similar groups. Participation by these committees in adaptation planning may even earn the com-munity a bonus in their respective planning processes. The Community Rating System (CRS) Activity 412.d (Higher study standards) awards additional credits if the community shows areas that are predicted to be susceptible to flooding in the future because of climate change or sea level rise. For this activity, the community must use an estimate of the anticipated sea level rise that is at least as high as the NOAA “intermediate-high” projections for 2100. Thus, involving local flood-plain managers may result in earning CRS points.

POTENTIAL

STEERING

COMMITTEE

MEMBERS

PUBLIC OFFICIALS, including public works directors, planning directors, city or county commissioners, and city/county managers

MEMBERS OF THE BUSINESS COMMUNITY, includ-ing Chamber of Commerce representa-tives, local business owners, real estate agents, and real estate developers

TECHNICAL EXPERTS, including university professors, graduate students, econo-mists, insurance industry experts, and University of Florida Institute of Food and Agricultural Sciences (IFAS) County Extension Staff

COASTAL SCIENTISTS, including coastal engi-neers, geospatial analysts, hydrologists, geologists, environmental planners, meteorol-ogists, and experts on local flora and fauna

REPRESENTATIVES OF SPECIAL INTEREST GROUPS, including representatives of environmental organizations, advocacy groups, neighborhood organizations, non-profit organizations, and non-governmental organizations4

4Adaptation Planning Stakeholder Outreach & Engagement, pg. 15.

Figure 5. Potential steering committee members.

Adaptation Planning Guidebook | 32 | Adaptation Planning Guidebook

The steering committee is not the only guiding force behind the plan-ning process. As discussed later in this chapter, stakeholders provide additional support in the planning process that includes even wider representation than the steering committee. Individuals considered for the steering committee that were not part of the final roster should be involved as stakeholders.

1.2. Set Guiding Principles and Motivations

By determining guiding principles and motivations, the community can establish its compass for navigating through the remaining components of the planning process. The guiding principles and motivations are one of the plan’s most interactive sub-components and should assist deci-sion-making activities in the subsequent components (i.e., Vulnerability Assessment, Adaptation Strategies, and Implementation Strategies).

The community’s guiding principles and motivations for sea level rise adaptation planning should be set by the plan development team and the steering committee. The principles and motivations examine how the community operates and set its vision for the future which leads to planning goals. Convening a group to set the overarching goals is one primary method for identifying and organizing guiding forces into a single planning process. The principles may align well with goals, and motivations can be aligned as objectives to meet one or more goals.

Setting goals is also a part of the comprehensive planning process and Local Mitigation Strategy process (see 44 CFR 201.6 (c)(3)(i)), which are both recognized at the state and federal level as an important step in facilitating hazard planning efforts. Communities should ensure that the goals of their adaptation plan fit well within the goals set by other planning mechanisms such as their Local Mitigation Strategy, Post-Di-saster Redevelopment Plan, Comprehensive Plan, Historic Preserva-tion Plan, and others if applicable. If the goals from different plans conflict, then the implementation phase will likely be difficult and may reach an impasse.

1.3. Describe the Geographic Context

Describing the geographic context delineates the boundaries of the plan-ning area and the assets, buildings, and structures contained therein.

It is important for the planning team to contextualize the physical loca-tion for which a community is planning. Describing the geographic con-text should include maps with the location of the community within the larger region as well as topographical, hydrological, and zoning layers that indicate current limitations and opportunities for develop-ment activities.

The maps and information developed in this plan sub-component should support the activities within the Vulnerability Assessment com-ponent. As presented in the Exposure Analysis (see Chapter 2.1) and Sensitivity Analysis (see Chapter 2.2), maps of the community showing potential sea level rise are a crucial piece of information for the adap-tation planning process.

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1.4. Identify Opportunities for Community

Participation Community members beyond the steering committee should par-ticipate to shape the outcome of the planning process. Examples of targeted participation opportunities include holding focus group meetings, conducting workshops, and addressing the topic during neighborhood gatherings, home owner association meetings, and town hall (general public) meetings as well as multi-media events such as broadcasts and surveys. An effective example of Community Partici-pation in a sea level rise planning effort is to walk through a Strengths, Weaknesses, Opportunities, and Threats (SWOT) analysis to outline issues more systematically. Participation activities such as these can help to build and strengthen stakeholder and community support for the project as well as serve to highlight concern areas that the plan-ning team may not have previously considered or addressed.

1.4.1. Stakeholder Identification

Stakeholders, those local individuals from a variety of organizations with interest in community planning and the shaping of the future, are best identified by determining who and what the planning efforts will affect. This can include additional governmental entities (other than the lead), community organizations and leaders, businesses, and the general public. Utilizing a community outreach strategy, as described further below, will pull in the most appropriate stakeholders.

Figure 6. Public meetings help the general population envision projects, their location, the alternatives, and their expected impacts. This public meeting was an informal neighborhood gathering style, with information presented graphically on large format boards and impromptu discussions were facilitated by project staff with members of the public in Manatee County, FL.

For a sea level rise adaptation plan to be designed for a particular community and its distinctive population, input from a wide range of stakeholders is required. By involving stakeholders in the overall pro-cess as additional community representation, local government offi-cials and the steering committee are able to communicate messages and results, identify local priorities, and scope and implement projects and planning actions.

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It is the responsibility of the local government officials and the steering committee to lead the efforts of stakeholder engagement by deter-mining the appropriate organizations and individuals to take part in the overall process. They must decide on the best option for promot-ing and fostering engagement based on the target audience. Individu-als and groups from all levels of government, including federal, state, and tribal groups, as well as representative groups from across the community should be offered the opportunity to participate. Outreach to vulnerable populations should also be a priority, so they have the opportunity to participate in the planning process and become vested in activities that could directly affect them.

Local Government Officials5

Stakeholder engagement should include local executive-level staff like elected officials, other local departments with a role in adaptation, and/or neighboring communities. Local executive staff can bring polit-ical awareness to the planning process that can be a boost to public engagement. Other departments may have technical or project expe-rience in fields related to adaptation like coastal flooding. In addition, the planning, zoning, stormwater, and public works departments may create project scope and manage implementable projects that result from the planning effort. This guidance during strategic development will assist future project implementation. Neighboring community stakeholders may be able to enlighten the community by sharing their own adaptation or mitigation experience.

Community Organizations and Leaders

Community organizations and leaders comprise an additional stake-holder group to engage. Connections can be made by reviewing their event calendars and meeting agendas to find a time and way to introduce the adaptation planning process and enlist their involve-ment. Potential partners may include church groups, rotary clubs, civic organizations, homeowners’ associations, and specific interest groups. Community partnerships can provide support and local buy-in to adaptation and resiliency planning efforts. To increase stakeholder engagement, it is well served to utilize existing community activities and forums where individuals are already involved.

Major Businesses

The local business community has a vested interest in the long-term success of the overall community and is a natural stakeholder to the forward-looking adaptation planning process. These businesses may be directly impacted by sea level rise or work in an industry like real estate where their book of business may be impacted. Local busi-nesses, especially those that are water dependent or benefit from coastal proximity, can provide an additional support dimension and help spread the word as well as provide resources. The insurance industry is often absent from these discussions but also has a very valuable perspective.

5 When working with public officials, please consult with the local government attorney about compliance with Florida Sunshine Law requirements.

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1.4.2. Public Outreach Approach

Public participation is important for identifying social, cultural, eco-nomic, and physical factors, which need to be considered during the establishment of guiding principles used to develop community adap-tation strategies. It is also the appropriate avenue for ‘socializing’ the plan. When local ideas, concerns, and preferences are considered, adaptation strategies can be tailored to meet community needs and desires. Plans and policy that are developed with broad stakeholder participation are more likely to be well-received and gain public support when residents have participated in the process from the start. While some members of the public may not welcome the process initially, walking them through the various components generally helps estab-lish valid and urgent reasons why sea level rise adaptation is needed.

General Public

Often, members of the public have had experiences in the past that can significantly contribute to discussions of vulnerabilities and adap-tation possibilities. The wealth of knowledge in the local community should not be discounted, and every effort should be made to gather it and use it.

The first step is education and awareness, allowing individuals to truly understand the threats of sea level rise and flooding based on the effects of total water level. Efforts to educate local stakeholders on current and future flood hazards can be enhanced by directly engag-ing the public using nontraditional outreach techniques, such as social media and interviews.

Looking ahead, today’s youth will be the ones inheriting the full brunt of sea level rise, greater storm surge events, and extreme precipitation that leads to devastating floods. Future generations will continue the task of addressing these climate issues, and some individuals will likely embrace involvement. Youth can help contribute their skill with things like social media to enhance the outreach effort. They also can bring energy, a fresh perspective, dedication to shaping their future, and willingness to think ‘outside the box’ to help find innovative ideas and concepts to advance adaptation planning.

FEMA Photo by George Armstrong

Figure 7. When local ideas, concerns, and preferences are considered, adaptation strategies can be tailored to meet community needs and desires

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Community conversations to identify goals should be centered on topics including:

§§ Background information and critical risks.

§§ The steps that can be taken to reduce risks.

§§ Why adaptation planning efforts are important for the community.

§§ How the proposed strategies will impact the community.

§§ Which proposed strategies the community prefers.

§§ Steps residents can take to assist in community adaptation efforts.

In doing so, an informed set of stakeholders may be equipped to add great value to the critical thinking behind Focus Area prioritization (see Chapter 2.3).

Outreach Strategies

The success of adaptation strategies largely depends upon confidence in the idea that reductions in long-term risk exposure, combined with present day mitigation efforts, will be sustained. Outreach is an import-ant activity that can help build this confidence and lead to future action;

however, each community’s outreach strategy will be unique to reflect local conditions.