STORAGE NAME: h0371c.SAC
DATE: 3/20/2025
1
FLORIDA HOUSE OF REPRESENTATIVES
BILL ANALYSIS
This bill analysis was prepared by nonpartisan committee staff and does not constitute an official statement of legislative intent.
BILL #: CS/HB 371
TITLE: Nature-based Methods for Improving Coastal
Resilience
SPONSOR(S): Mooney and Basabe
COMPANION BILL: CS/SB 50 (Garcia)
LINKED BILLS: None
RELATED BILLS: None
Committee References
Natural Resources & Disasters
16 Y, 0 N, As CS
State Affairs
23 Y, 0 N
SUMMARY
Effect of the Bill:
By July 1, 2027, the bill requires the Department of Environmental Protection (DEP) to develop and publish on its
website guidelines for nature-based methods for improving coastal resilience. The bill also requires DEP to
encourage local governments to develop or participate in certain restoration programs.
The bill requires the Florida Flood Hub for Applied Research and Innovation (Flood Hub) to develop design
guidelines related to green infrastructure, model the effects of conceptual green infrastructure designs, identify
areas of significant erosion, and identify strategies and methods to minimize impacts to mangroves or other
shoreline vegetation. By July 1, 2026, the bill requires the Flood Hub to submit a report to the Governor and
Legislature on the guidelines and conceptual designs it has developed.
Fiscal or Economic Impact:
The bill may have an insignificant negative fiscal impact on DEP associated with developing guidelines for nature-
based methods for improving coastal resilience. Additionally, the bill may have an indeterminate negative fiscal
impact on the Flood Hub associated with developing design guidelines and models for green infrastructure.
JUMP TO SUMMARY ANALYSIS RELEVANT INFORMATION BILL HISTORY
ANALYSIS
EFFECT OF THE BILL:
Coastal Resilience Guidelines
By July 1, 2027, the bill requires the Department of Environmental Protection (DEP) to develop and publish on its
website guidelines for nature-based methods for improving coastal resilience. The bill requires these guidelines to
identify all of the following:
Threats to mangroves and other native shoreline vegetation.
Strategies that may be used for new developments to avoid or mitigate their impacts on mangroves.
Ways mangroves, other native shoreline vegetation, and living shorelines may protect barrier
1 and spoil
islands.
2
Areas or regions of the state in which the use of mangroves, other native shoreline vegetation, and living
shorelines, or other nature-based infrastructure, could alleviate coastal erosion. (Section 2)
Additionally, the bill requires DEP to encourage local governmental entities to develop or participate in:
Mangrove planting and hydrological restoration programs.
Restoration of oyster reefs, salt marshes, and coral reefs. (Section 2)
1
Barrier islands are build-ups of sand that form along the coast of larger land-bodies.
2
A spoil island is an artificial island, often created as a byproduct of channel dredging. JUMP TO SUMMARY ANALYSIS RELEVANT INFORMATION BILL HISTORY
2
Florida Flood Hub
The bill requires the Florida Flood Hub for Applied Research and Innovation (Flood Hub) to:
Develop design guidelines and standards for optimal combinations of green and gray infrastructure to
address sea level rise and the impact of storm surges.
Model the effects, including flood risk reduction and socio-economic benefits, of conceptual designs of
green infrastructure and hybrid green-gray infrastructure, and integration of green natural systems into
gray infrastructure systems, on the state’s coastal resilience.
Identify areas of significant erosion.
Identify strategies and methods to minimize impacts to mangroves or other shoreline vegetation. (Section
1)
By July 1, 2026, the bill requires the Flood Hub to submit a report summarizing the design guidelines and
standards and the modeled effects of conceptual designs to the Governor and Legislature. (Section 1)
Effective Date
The effective date of the bill is July 1, 2025. (Section 3)
FISCAL OR ECONOMIC IMPACT:
STATE GOVERNMENT:
The bill may have an indeterminate fiscal impact on DEP associated with developing and publishing guidelines on
its website related to nature-based methods for improving coastal resilience. Additionally, the bill may have an
indeterminate negative fiscal impact on the Flood Hub associated with developing design guidelines and models
for green infrastructure.
RELEVANT INFORMATION
SUBJECT OVERVIEW:
Mangroves
Mangrove forests are distinct saltwater woodlands that thrive in tidal estuaries and low-energy shorelines
throughout the tropics and subtropics.
3 They grow in coastal intertidal environments and are able to tolerate a
wide range of saline waters, from nearly fresh to very high salt content in coastal waters. In Florida, mangroves are
typically found south of Cedar Key on the Gulf Coast and south of Cape Canaveral on the Atlantic Coast.
4 Florida’s
mangrove forests primarily consist of four trees: red mangrove (Rhizophora mangle), black mangrove (Avicennia
germinans), white mangrove (Laguncularia racemose), and buttonwood (Conocarpus erectus).
5
The Impact of Mangroves
Mangroves play a significant ecological role as habitats for an array of species, some of which are endangered and
threatened species, and species of special concern.
6 Mangroves serve as nursery grounds for a variety of marine
and estuarine vertebrates and invertebrates. It is estimated that 80 percent of the global fish catch is in some way
dependent on mangrove forests at some point in their life cycle.
7 Animals associated with the mangrove and
seagrass communities include herbivores, such as green turtles, manatees, sea urchins, blue crabs, fiddler crabs,
and a variety of fishes.
8
3
Fish and Wildlife Conservation Commission (FWC), Mangrove Forests, https://myfwc.com/research/habitat/coastal-
wetlands/mangroves/ (last visited Mar. 4, 2025).
4
Id.
5
Id. Buttonwood trees are not “true” mangrove species because they lack the distinctive reproduction and root characteristics
of red, black, and white mangroves. However, they are frequently found growing in uplands with mangroves and are part of
the ecosystem.
6
Florida Museum, Importance of Mangroves,
https://www.floridamuseum.ufl.edu/southflorida/habitats/mangroves/importance-mangroves/ (last visited Mar. 4, 2025).
7
United States Fish and Wildlife Service, Mangroves on the Move: Wetland Habitats Responding to Changes in Climate, available
at https://storymaps.arcgis.com/stories/ee2242de7aba4c27a62d21e6ec480f83 (last visited Mar. 4, 2025).
8
Florida Museum, Importance of Mangroves,
https://www.floridamuseum.ufl.edu/southflorida/habitats/mangroves/importance-mangroves/ (last visited Mar. 4, 2025). JUMP TO SUMMARY ANALYSIS RELEVANT INFORMATION BILL HISTORY
3
Mangroves protect shorelines from damaging storm and hurricane winds, waves, and floods by functioning as
wind breaks and reducing wave action.
9 Mangroves’ tangled root systems help prevent erosion by stabilizing
sediments and fine substrates and reducing turbidity.
10 This stabilization also absorbs excess nutrients from
entering into coastal waters, benefitting seagrasses which can die off due to excess nutrient loads in the water.
11
Through a combination of these functions, mangroves contribute significantly to the economy of coastal counties of
the state.
Mangrove Loss
Mangroves can be damaged and destroyed by natural events; however, development within estuarine habitats has
had the most severe negative impacts on mangrove forests.
12 The destruction of the remaining mangrove habitat is
increasing due to the continued urban development along Florida’s coastline.
13 Scientists have evaluated mangrove
loss through aerial photos dating back to the 1940s and 1950s and satellite imagery and aerial photography from
the 1980s.
14 Since the 1900s, it is estimated that vital estuary habitats such as Tampa Bay and Charlotte Harbor
have lost 50 to 60 percent of their mangrove forests.
15
In other areas, mangroves are expanding into new territory as parts of the state experience fewer cold snaps
during the winter months. Continued evaluation of aerial images between 1984 and 2011 have shown that the
Florida Atlantic Coast gained more than 3,000 acres of mangroves.
16 Increases occurred north of Palm Beach
County, and the acreage between Cape Canaveral and St. Augustine appears to have doubled.
17
Living Shorelines
Living shorelines are a nature-based approach to coastal protection, using natural elements such as ecosystems,
vegetation, stone, or organic materials to increase coastal resilience and adapt to sea level rise (SLR).
18 When
protecting coastlines, a living shoreline approach represents an alternative to traditional hard armoring
approaches such as seawalls and bulkheads.
19 When constructed correctly, a living shoreline provides erosion
control and maintains coastal processes such as reducing wave energy and storm impacts, improving water
quality, and providing critical fish and wildlife habitat.
20 Additionally, nature-based approaches to coastal
protection can be incorporated or combined with traditional infrastructure to create effective protections. Pictured
below
21 are examples of green and gray projects which can be incorporated into coastal infrastructure:
9
Id.
10
Id.
11
FWC, Mangrove Forests, https://myfwc.com/research/habitat/coastal-wetlands/mangroves/ (last visited Mar. 4, 2025).
12
Florida Museum, Impacts on Mangroves, https://www.floridamuseum.ufl.edu/southflorida/habitats/mangroves/impacts/
(last visited Mar. 4, 2025).
13
Florida Museum, Conservation, https://www.floridamuseum.ufl.edu/southflorida/habitats/mangroves/conservation/ (last
visited Jan. 24, 2024).
14
DEP, Florida’s Mangroves, https://floridadep.gov/rcp/rcp/content/floridas-mangroves (last visited Mar. 4, 2025).
15
Florida Museum, Tell Me About: Threats to Mangroves in Florida, https://www.floridamuseum.ufl.edu/earth-
systems/blog/tell-me-about-threats-to-mangroves-in-florida (last visited Mar. 4, 2025).
16
DEP, Florida’s Mangroves, https://floridadep.gov/rcp/rcp/content/floridas-mangroves (last visited Mar. 4, 2025).
17
Research is ongoing to determine the impacts, both positive and negative, of this transition. Id.
18
National Oceanic and Atmospheric Administration (NOAA), Living Shorelines,
https://www.habitatblueprint.noaa.gov/living-shorelines/ (last visited Mar. 4, 2025).
19
NOAA, Living Shorelines Provide Nature-Based Approach to Coastal Protection, https://www.fisheries.noaa.gov/story-
map/living-shorelines-provide-nature-based-approach-coastal-protection (last visited Mar. 4, 2025).
20
Id.
21
NOAA, Living Shorelines, https://www.habitatblueprint.noaa.gov/living-shorelines/ (last visited Mar. 4, 2025). JUMP TO SUMMARY ANALYSIS RELEVANT INFORMATION BILL HISTORY
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Flood Hub
The Florida Flood Hub for Applied Research and Innovation (Flood Hub) within the University of South Florida
College of Marine Science works to bridge the gap between scientists, policymakers, practitioners, and the public to
help communities mitigate and adapt to flooding risks.
22 The Flood Hub is required to organize existing data needs,
establish community-based programs to improve flood monitoring, and develop opportunities to partner with
other flood and SLR research and innovation leaders.
23 The Flood Hub must also submit an annual comprehensive
report to the Governor and the Legislature that outlines its clearly defined goals, efforts, and progress on reaching
such goals.
24
Coastal Erosion
Florida’s 825 miles of sandy coastline are one of the state’s most valuable natural resources.
25 Wide beaches
provide foraging and nesting habitat for shorebirds, and sea turtles use the beaches during summer months to
come ashore to nest.
26 In all, there are more than 30 plants and animals considered rare within the state that
inhabit beaches and the adjacent habitats.
27
Beaches provide a barrier against storms. The beach and dune system act as a buffer between storm waves and
coastal development or infrastructure. During storms, waves reach the beach and dunes before they get to upland
property. A beach and dune system absorbs the wave energy, thereby greatly reducing damage to upland
structures.
28 Beach erosion is caused by coastal storms, imprudent constructions, sea level rise, and coastal inlets
that interrupt sand movement.
22
Section 380.0933, F.S.; USF College of Marine Science, Florida Flood Hub for Applied Research and Innovation,
https://www.usf.edu/marine-science/research/florida-flood-hub-for-applied-research-and-innovation/ (last visited Mar. 3,
2025).
23
Section 380.0933(2), F.S.
24
Section 380.0933(5), F.S.
25
DEP, Beaches, https://floridadep.gov/rcp/beaches (last visited Mar. 11, 2025).
26
Id.
27
Id.
28
Id. JUMP TO SUMMARY ANALYSIS RELEVANT INFORMATION BILL HISTORY
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RECENT LEGISLATION:
YEAR BILL # HOUSE SPONSOR(S) SENATE SPONSOR OTHER INFORMATION
2024 HB 1581 Mooney Garcia The bill passed the House, but
died in the Senate.
BILL HISTORY
COMMITTEE REFERENCE ACTION DATE
STAFF
DIRECTOR/
POLICY CHIEF
ANALYSIS
PREPARED BY
Natural Resources & Disasters
Subcommittee
16 Y, 0 N, As CS 3/11/2025 Moore Gawin
THE CHANGES ADOPTED BY THE
COMMITTEE:
Required the Flood Hub to identify areas of significant erosion and
strategies and methods to minimize impacts to mangroves and other
native shoreline vegetation.
Required the Flood Hub to submit a report summarizing the design
guidelines and standards that it develops.
Required DEP to create and publish guidelines on its website related to
nature-based methods for improving coastal resilience instead of
requiring DEP to engage in rulemaking.
Required DEP to encourage local governments to create and participate
in certain restoration programs and activities.
Removed the requirement that DEP conduct a statewide feasibility
study on the National Flood Insurance Program.
State Affairs Committee 23 Y, 0 N 3/20/2025 Williamson Gawin
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THIS BILL ANALYSIS HAS BEEN UPDATED TO INCORPORATE ALL OF THE CHANGES DESCRIBED ABOVE.
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