20180260 Ver 3_Project Narrative_20220426

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NOTES REGARDING NARRATIVE: This proposal was submitted with a budget
projection of $249,500, and was subsequently awarded $175,000 from the EEG program.
Thus, all substrate deployments – on a site-by-site basis – will now equal 70% of what is
proposed in the text below.

Additionally, following consultation with Marine Corps Base Camp Lejeune, we are not
extending the footprints of sites 5, 9, or 10. Rather, all new substrates will be placed within
the existing permitted footprints of those three sites [detailed below and on site maps and
plats].

Title: Extending the New River Estuary Oyster Highway

Applicant: City of Jacksonville (Lead: Pat Donovan-Brandenburg), Jacksonville, NC

Location: New River Estuary, NC (Farnell Bay: 34.656⁰, -77.350⁰; Morgan Bay: 34.689⁰, -
77.366⁰; nearest town: Jacksonville, NC), White Oak River Basin

Need and Relevance to EEG Program Priorities: The New River Estuary Oyster Highway
(NREOH) is creating oyster habitat stepping stones in the central portion of the New River
Estuary (NRE) that support biogenic reefs via local hard-substrate subsidies, as well as NRE-
wide enhanced oyster larval supply. In turn, improved oyster (reef) fitness in the upper and
middle NRE will underpin improved biofiltration of sensitive estuarine waters, as well as support
a diverse nekton community of ecologically and economically prized species via provision of
essential fish habitat. Using funds provided by the North Carolina Attorney General’s Office’s
Enhancement Grant Program, we will expand the 12 existing NRE Oyster Highway sites by
adding >2,480,000 oysters and constructing an additional ~1,850 patch reefs (across all NREOH
sites). Total project costs equal less than 10ȼ per oyster added to the NRE (before even
accounting for the additional benefits of added oyster and mussel larval settlement substrate and
fish habitat resulting from constructed patch reefs, as well as value-added scientific research on
oyster reef restoration dynamics).

Regional Priority: The NRE is classified as nutrient sensitive waters, and long-term nutrient
inputs into the NRE have caused algal blooms, high turbidity, and bottom-water hypoxia/anoxia
– all of which have exacerbated loss of oyster reef habitat (via intense sedimentation). Efforts by
several entities have and are taking place to improve water quality and fisheries production in the
NRE (e.g., land application of wastewater by the City of Jacksonville). As part of this long-term
effort, it is thought that conditions are now returning to a state conducive for oyster reef
persistence throughout much of the NRE (see oyster recruitment data Figure in main narrative).
In turn, increased oyster biomass in the NRE will contribute toward continued improved water
quality via the biofiltration activities of shellfish (oysters and mussels), facilitating a positive-
feedback loop between water quality and benthic habitat extent. In this context, the NRE Oyster
Highway project is leveraging an integrated, landscape- and watershed-scale approach for
holistic ecosystem and habitat-based fishery conservation.

Fishery Benefits: Oyster reefs are essential fish habitat via provision of structurally complex
foraging, refuge, nursery, and spawning environments for a broad suite of fishes and crustaceans
(NOAA Fisheries). As such, oyster reef restoration supports NOAA’s Fisheries Policy and
Implementation Plans by providing this crucial habitat subsidy in degraded estuarine systems.
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Technical Merit: Permitting and initial construction of Phase I (6 sites constructed in 2019 as
“Phase I”) and II (6 sites constructed in 2020 as “Phase II”) reefs of the NRE Oyster Highway
have already been completed. This experience and practical know-how provides our team a huge
boost in ramping up work on the proposed EEG-support expansion of the Oyster Highway
restoration sites. Our existing CAMA Major Development Permits will be resubmitted for
modification (a streamlined process) in late 2021 – as soon as we are made aware that EEG
funds will be awarded - to include our proposed EEG-supported work.

Design of each of the 12 existing and identically arranged NRE Oyster Highway sites are
summarized briefly: each site is defined by a reef landscape footprint of 70 m * 30 m, located
subtidally but in close proximity to shore (within ~200 m), and away from navigation channels.
Over ½ of each site, we have deployed 90 Oyster Castle® patch reefs. Each Oyster Castle® patch
reef is comprised of 8 concrete blocks (12” * 12” * 8” [L*W*H]; overall dimensions of each
patch reef: 36” * 24” * 16”). On the other half of each site, we deployed 90 Oyster CatcherTM
patch reefs. Each Oyster Catcher™ patch reef is comprised by 10 manufactured patties (12” * 4”
[D * H] disks; overall dimensions of each patch reef: 24” * 24” * 16”). Both Oyster Castle
blocks and Oyster Catcher patties are stackable and interlocking, and are designed to create
complex, stable habitat with exceptional small-scale rugosity that fosters oyster (and mussel)
larval settlement/survival and nekton utilization (see associated project photos). Currently, each
Oyster Highway site is comprised of 180 patch reefs.

Using EEG support, we propose to extend and expand the scope of each NRE Oyster Highway
site. In 2022, at each site we propose to: (1) construct 7 additional Oyster Castle patch reefs,
using the same design as we have previously adopted (additionally, each patch reef will be
underlaid by an Oyster Catcher mat to reduce reef subsidence into surrounding sediments); Also,
(2) we will construct an additional 69 Oyster Catcher patch reefs using a slightly modified
design. This design will include 5 patty structures – one basal 24” D disk, with three 12” D disks
stacked on top, as well as a “rod” patty running through the center of those four disks. We have
adapted the configuration of Oyster Catcher patch reefs based on lessons learned in initial Phase
I and II construction (i.e., maximizing open surface area for oyster attachment and minimizing
patch reef subsidence into surrounding sediments). Finally, (3) at the eight most-down-estuary
sites, we will add 16 “seeded” Oyster Catcher tuffs as a top dressing to all 97 Oyster Castle patch
reefs at each site (i.e., the existing 90 Oyster Catcher reefs plus the 7 newly constructed Oyster
Castle reefs). Notably, “seeding” involves first placing substrates in areas of high natural oyster
settlement (e.g., the lower NRE during spring), and then transplanting those seeded materials
(tuffs in this case, transplanted to NREOH sites in fall, after larval settlement pulses) to areas in
need of stocking to enhance local spawning biomass. Based on previous work, we anticipate that
each tuff will be covered with >100 juvenile (thumb-sized) oysters after “seeding” and when
moved to Oyster Highways sites. We are targeting the eight most-down-estuary sites for
“seeded” tuff additions as previous Phase I and II work (and associated monitoring) has indicated
that survival of transplanted, seeded oysters is particularly high and cost-effective at those sites.

In 2023, we will further extend each NRE Oyster Highway site with: (1) 7 additional Oyster
Castle patch reefs; (2) 69 additional Oyster Catcher patch reefs; and (3) 16 additional “seeded”
tuffs top-dressed on 97 Oyster Castle patch reefs (eight-most down-estuary sites).

At the completion of this work, we will have expanded the NRE Oyster Highway sites via the
addition of ~1850 patch reefs (across 12 sites) and >248,000 “seeded tuffs (>2,480,000 juvenile
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oysters, across 8 sites). This represents nearly a doubling of oyster reef material across the NRE
Oyster Highway.

Assessment/Performance Metrics: The following outcomes will be indicators of success:
1) The expansion of 12 existing New River Estuary Oyster Highway sites via the addition of
>2,480,000 oysters and construction of ~1,850 small patch reefs (summed across all
sites). These efforts will increase biofiltration in the New River Estuary and immediately
provide structurally complex fish and crustacean habitat in the NRE.
2) Oyster densities >10 m2 on reef sites (per NOAA Tier 1 monitoring guidance) for >2
years.
3) The persistence/stability of oyster-reef communities underpinned by man-made substrates
on site, and the absence of material moving beyond proposed site boundaries.
4) Enhanced local nekton abundances, with evidence of on-reef foraging.
5) The opportunity to conduct rigorous scientific assessments of how alternative substrates
support oyster-reef communities across an estuarine salinity gradient will inform future
restoration efforts in the NRE and beyond.
6) Further engagement with Coastal Conservation Association and Wildlife Habitat
Foundation.

Watershed (and Broader) Level Considerations of Extending the New River Estuary Oyster
Highway: The NRE, located within Onslow County, NC, covers an area of ~90 km2 (see project
maps). The entire Estuary is classified as nutrient sensitive waters, and these nutrient inputs into
the NRE have caused algal blooms, high turbidity, and bottom-water hypoxia/anoxia – all of
which have exacerbated loss of oyster reef habitat (via intense sedimentation). Efforts by several
entities have and are taking place to improve water quality and fisheries production in the NRE
(e.g., land application of wastewater by the City of Jacksonville). As part of this long-term effort,
it is thought that conditions are now returning to a state conducive for oyster reef persistence
throughout much of the NRE. In this context, the NRE Oyster Highway project is leveraging an
integrated, landscape- and watershed-scale approach for holistic ecosystem and habitat-based
fishery conservation (see also: NCDENR 2007, NCDEQ 2016). In particular, the White Oak
River Basin Restoration Priorities Plan, published in 2010 and which includes the NRE,
highlights the value of oyster-reef restoration:

“High priority projects for this watershed include projects that improve or restore estuarine
habitats including SAV and oyster beds.”

The NRE Oyster Highway is also highlighted as a key component of a broader initiative to
conserve and restore oyster reef habitat in NC (NCCF State of the Oyster report 2021).

To restore oyster reefs in this system, the City of Jacksonville continues to implement various
efforts to improve water quality throughout the NRE, including creating reef foundations and
adding (transplanting) millions of oysters, mussels, and clams to Wilson Bay (upper NRE) over
the last 15 years. This is not the only effort to recover oyster populations in the upper NRE.
During 2011-2012, the NC Division of Marine Fisheries (DMF) built an artificial reef, AR-398,
in Farnell Bay utilizing recycled concrete from bridge demolition. Recruitment of oysters to the
Wilson Bay reef and AR-398 have been characterized as low, apparently due to a lack of oyster
larvae in the surrounding waters. Indeed, prior to 2019, the closest known natural oyster
populations to AR-398 were 6-km down Estuary (in Stones Bay). With net downstream flow
characterizing the NRE, it is likely that oyster larvae from the spawning of extant oyster
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populations in the lower NRE infrequently reach AR-398 or Wilson Bay, and this limits
sustainability of oyster habitat supporting nekton at estuarine-wide scales.

Thus, the “Oyster Highway” concept was proposed to create stepping-stone oyster reef habitats
in the region between AR-398/Wilson Bay and Stones Bay - i.e., in Farnell and Morgan Bays.
The overarching goal of this project is to create oyster- and fish-appropriate habitats with small
spatial gaps between them that increase connectivity of oyster and nekton populations in the
lower NRE with those in the middle and upper NRE. Habitat restoration and augmentation have
become major tools in efforts to improve water quality, as we all as to conserve coastal fishery
resources. This work aligns with the missions of the City of Jacksonville and financial/hands-in-
the-water partners such as the Coastal Conservation Association of North Carolina and North
Carolina Wildlife Habitat Foundation: to promote sound management (including acquisition and
protection where/as appropriate) of public trust marine and estuarine resources for the use and
enjoyment of current and future generations.

Notably, 2019-2020 monitoring of six Phase I
Oyster Highway reefs sites across Farnell Bay
has demonstrated that oyster spat (i.e., larvae
that have recently settled out of the water
column and begun to grow towards adults)
will indeed recruit to the hard substrate
subsidies we provided in the middle NRE
(Fig. 1). Additionally, we also have empirical
evidence that these oyster reef complexes will
clearly enhance habitat availability for key
fishes and crustaceans, beyond the addition of
oyster biomass in the central and upper NRE
(Mulvey-McFerron 2020).

The New River watershed/estuary is an
exceptionally well studied systems, and one
which fortunately has a history and trajectory of
increasing water quality due in large part to long-
running efforts of the City of Jacksonville and
Marine Corp Base Camp Lejeune, which occupy the vast majority of the land surrounding the
upper, mid, and lower portions of the NRE. As responsible and engaged stewards of the estuary,
these two entities have collaborated for nearly 3 decades to control both point and non-point
sources of nutrients and other contaminants pollutants. The Department of Defense substantially
raised the bar for better understanding and managing the watershed by funding a 12-year,
comprehensive study of the watershed by a broad coalition of academic, local, state, federal
entities (https://www.serdp-estcp.org/Featured-Initiatives/Conservation/Defense-Coastal-
Estuarine-Research-Program). This New River program generated an extensive integration of
“big-data collections” and conceptual and mechanistic ecological modeling across topics,
including, for example, land management, nutrient cycling/inputs, nuisance algal blooms, carbon
cycling, and climate change/sea-level rise. The NRE Oyster Highway represents a valuable
avenue for integrating higher trophic levels (i.e. filter feeding bivalves, secondary and tertiary
consumers) into this ecosystem-level work.

Figure 1. Settlement of oyster spat at Phase I
NRE Oyster Highway sites in fall 2019.
Spatfall at all sites was sufficient to exceed
thresholds necessary for achieving oyster
restoration success based on the threshold
defined in Powers et al. (2009) as 10 oysters
m-2.
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Relative to a central driving force behind the NRE Oyster Highway project, namely
improvements in estuarine water quality through reductions in nuisance levels of DIN and
turbidity, the NRE DCERP and long-running sampling programs by the City of Jacksonville
provide water quality benchmarks and substantial level of mechanistic understanding of NRE-
specific watershed and estuarine processes against which to measure NRE Oyster Highway
impacts on NRE water quality and how they were achieved. The NRE Oyster Highway project is
already collaborating with and funding two groups to monitor and model nutrient reductions in
the NRE associated with the NRE Oyster Highway restoration work. Dr. Michael Piehler,
Direction of the UNC Institute for the Environment and UNC-IMS faculty member was a
DCERP researcher through the entirety of the program and is now tracking nitrogenous nutrients
and oyster-associated denitrification on the NREOH reef and control sites. Piehler’s group has
been a leader in documenting denitrification associated with oyster reefs, and the broader suite of
ecosystem services in general provided by oysters. Further, Dr. Mark Brush is using nutrient and
measured oyster density data in models that predict nutrient levels and chemical species changes
associated with oyster filtering and process of organic matter. Thus, the NRE Oyster Highway
offers outstanding opportunities to rigorously track, model, and monetize at large scale the
benefits of oyster habitat restoration/creation. These results will be of great interest to estuarine
resource managers and restoration practitioners to further illustrate the substantial benefits of
restoration and thereby solidly justify the funding of restoration projects targeting biogenic
foundation species.

Innovation in Oyster Habitat Restoration: The eastern oyster, Crassostrea virginica, is a
protandrous, sequential hermaphrodite, initially spawning as males and transitioning to
functional females with increasing age and size. From this perspective, the NRE Oyster
Highway project is a “beacon” project illuminating a new oyster-habitat restoration strategy for
changing coastal waters often characterized by increasing salinity levels as sea levels rise,
thereby shifting zones of environmental parameters favoring oyster habitat viability and
persistence farther up the estuaries. One consequence of the up-estuary migration of oyster
growth zones may be limitations on larval transport to these areas such that simply the planting
of reef foundation material will not overcome this population bottleneck (e.g. AR-398 in mid-
section of the NRE). To overcome potential larval limitation, it will be necessary to increase
larval abundance in mid and upper regions of estuaries through transplanting large numbers of
harvest-protected oysters that grow to become brood stock.

Brood stock creation via traditional spat-on-shell methods for oyster population creation has
several drawbacks. To reach brood stock status, a single cohort of spat would require very large
numbers of spat to overcome high early-juvenile mortality, as well as that over the typically
years-long growth period before substantial numbers of male oysters transitioned to female. The
NRE Oyster Highway strategy of large-scale transplanting of reef foundation materials “seeded”
with late-stage juvenile oysters (thumb sized) minimizes mortality and more quickly yields an
effective brood stock population. As the NRE Oyster Highway brood stock reefs mature,
retention of a substantial portion of their larval output in the mid and upper portions of the
estuary should settle back onto the reefs (which our monitoring plan, detailed below, could
record), as well as other created hard structure habitat (e.g. AR-398, rock revetments and cement
bridge pilings, seawalls), thereby achieving self-sustainability. Juvenile and adult-sized oyster
are occasionally seen on created hard structure habitats in the mid/upper hard structure habitats,
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including NRE Oyster Highway Oyster Castles® and Oyster CatchersTM deployed in 2019 and
2020 as part of Phase I and Phase II work, respectively.

At the national scale, outreach for the NRE Oyster Highway and networking within the CCA and
other conservation-oriented entities (government, non-profit, and academic) have generated
interest in the use of Sandbar Oyster Company’s (hereafter, SANDBAR) biodegradable
hardscapes in oyster-habitat creation projects. For example, F. Gidus, Director of Habitat and
Environmental Restoration for CCA-Florida (FL) in collaboration with Dr. I. Zink (UM) and a
host of Fort Lauderdale coastal homeowners are working with SANDBAR to examine under-
dock seeding of Oyster Catcher™ hardscapes for use in multiple oyster habitat creation projects
in FL’s southeast coastal estuaries that once hosted expansive oyster populations. Other
examples of SANDBAR’s expanding work with diverse groups planning oyster habitat
restoration/creation efforts include Apalachicola Bay, FL (Dr. S. Brooke, FSU-CML; Dr. K.
Konchar, FL Fish and Wildlife Conservation Commission; R. Harter, Ecology and Environment,
Inc.); Mosquito and Indian River Lagoons, FL (Dr. L. Walters, UCF); the Eastern Shore of
Virginia (B. Lusk, TNC Virginia Coast Reserve); and the Rachel Carson National Estuarine
Research Reserve in NC (Dr. R. Gittman, ECU and Dr. B. Puckett, RCNERR).

An emerging strategy for oyster habitat creation exemplified by the NRE Oyster Highway
project, wherein large numbers of late-stage juvenile and adult oysters attached to reef
foundation materials are transplanted from lower estuaries seeding sites, is cast against complex
sets of statutes and rules, widely varying among states and mostly created to govern oyster
harvest/culture activities and products destine for human consumption. The line between
shellfish culturing for food vs. restoration is blurred and becoming even more so with oyster
aquaculture being viewed as contributing to the levels of ecosystem services provided by oysters
to coastal communities. In NC, there is a recently formalized plan involving the NC Division of
Marine Fisheries, Coastal Management, and Shellfish Sanitation Program to review and
administer (i.e., safeguard against unintended human consumption) culturing oysters for
restoration and modifying the rules to facilitate the growth of this nascent industry and its
environmental, economic and social benefits. Notably, our Phase I and Phase II restoration
efforts served as the “field test” for these permitting frameworks. The set of statutes and rules
emerging from NC’s efforts could provide a model for other states effectively balancing
concerns for human health with the benefits of expanded options for effective oyster habitat
restoration.

Project Technical Description:

Site Selection: All 12 stepping-stone reef complex sites in the NRE Oyster Highway (Phases I
and II) restoration are in the mesohaline-to-polyhaline (5-30 ppt) waters of Farnell Bay and
Morgan Bay within the NRE, and are suitable for the settlement and growth of oysters (see
project maps). Each of our sites are located along the shallow margins of Farnell Bay and
Morgan Bay (1.25-1.5 m depth at mean low water [MLW]). Phase I and II construction did not
target the deeper portions of Farnell Bay and Morgan Bay, thus avoiding: (1) marked boating
channels; and (2) areas prone to extended periods of bottom-water hypoxia/anoxia that can kill
oysters. Furthermore, these sites are located over un-vegetated, unstructured mud/sand bottom
(confirmed by NCDMF bottom mapping survey data and our repeated site visits) that is
sufficiently firm to limit the sinking of reef structures in the sites’ sediments - with nominal reef
underlayment support where needed to ensure minimal reef subsidence.

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Site Description: Each of the 12 Oyster Highway sites are defined by a footprint of 70 m * 30 m
(230 ft. * 98 ft.). All 12 sites are characterized by the same present arrangement of oyster
substrates, comprising a total of 180 patch reefs at each site (see project photos). On ½ of each
site, we have deployed 90 Oyster Castle® reefs. Each Oyster Castle® reef is comprised by 8
manufactured concrete blocks (Fig. 6; 12” * 12” * 8” [L * W * H]) produced by Allied Concrete
in Charlottesville, VA (http://www.alliedconcrete.com/materials/oyster-castles/). Each of these
blocks are stackable and interlocking, and are designed to create complex, stable habitat that is
suitable for oyster settlement, growth, and survival. To date, Oyster Castles® have been
successfully used in estuarine habitat restoration (including living shoreline applications) in
Alabama, Delaware, New Jersey, New York, South Carolina, and Virginia. Each Oyster Castle®
reef includes a base layer of six blocks in a 3*2 design, capped by a second layer of two more
blocks centered over the base layer. Each patch reef has overall dimensions of 36” * 24” * 16”.

On the other half of each site, we deployed 90 Oyster CatcherTM reefs. Each Oyster Catcher™
reef is comprised by 10 manufactured patties - jute plant fiber infused with cement (Fig. 6; 12” *
4” [D * H] disks). These patties are produced by SANDBAR in Morehead City, NC
(http://www.sandbaroystercompany.com). As with Oyster Castle® blocks, the patties are
stackable and interlocking, and are designed to create complex, stable habitat that is suitable for
oyster settlement, growth, and survival. To date, Oyster Catcher™-based materials have been
successfully used in research-scale estuarine habitat restoration (including living shoreline
applications) at the UNC Institute of Marine Sciences (Bogue Sound, Carteret County), at mid-
and upper-estuary sites in the Newport River (Carteret County) and at a mid-estuary site in the
North River (Carteret County) [see above for additional works outside of NC]. Further, since
2015, Sandbar Oyster Company has used multiple different forms of Oyster Catcher™ (e.g.,
patties, linear rods, panels, small tuffs) to created robust oyster reefs on the company’s shellfish
lease in the Newport River (34o 44.557N; 76o 40.314W). This lease is on an exposed sandbar
often buffeted by large wind waves and strong currents. No Oyster Catcher™ materials have
washed beyond the boundaries of this lease, even after direct strikes by 4 hurricanes since 2016.
Each Oyster CatcherTM reef included a base layer of four patties in a 2*2 design, capped by a
second layer of four more patties also in a 2*2 design directly on top of the base layer. These
eight patties were capped by two more patties (third and fourth layer) centered over the bottom
two layers. Five vertical jute/cement poles, per reef, were driven through the center of the “donut
holes” of the patties to ensure the stability of reefs on site. Each patch reef has overall
dimensions of 24” * 24” * 16”.

The vertical relief of the Oyster Castle® (16”) and Oyster CatcherTM (16”) reefs has been kept
low since bottom water hypoxia/anoxia on the proposed sites is not anticipated to be a problem,
and this will accommodate boats that may wish to access the sites for fishing opportunities. At
MLW, the tops of Oyster Castle® and Oyster Catcher™ reefs are 23-43 inches below the water
surface (site dependent). Each Castle® patch reef rests on top of a cement-infused jute mat, to
limit issues related to reef subsidence/sinking. Notably, the dual use of Castle® and Oyster
CatcherTM material is designed to diversity reef substrates and morphologies to ensure a broad
suite of nekton find suitable habitat. This design also represents a gray-green hybrid approach
with one hardscape substrate and one biodegradable substrate that may provide multiple
beneficial settlement cues for oyster larvae in the NRE.

Using EEG support, we propose to extend and expand the scope of each NRE Oyster Highway
site. In 2022, at each site we propose to: (1) construct 7 additional Oyster Castle patch reefs,
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using the same design as we have previously adopted (additionally, each patch reef will be
underlaid by an Oyster Catcher mat to reduce reef subsidence into surrounding sediments); Also,
(2) we will construct an additional 69 Oyster Catcher patch reefs using a slightly modified
design. This design will include 5 patty structures – one basal 24” D disk, with three 12” D disks
stacked on top, as well as a “rod” patty running through the center of those four disks. We have
adapted the configuration of Oyster Catcher patch reefs based on lessons learned in initial Phase
I and II construction (i.e., maximizing open surface area for oyster attachment and minimizing
patch reef subsidence into surrounding sediments). Finally, (3) at the eight most-down-estuary
sites, we will add 16 “seeded” Oyster Catcher tuffs as a top dressing to all 97 Oyster Castle patch
reefs at each site (i.e., the existing 90 Oyster Catcher reefs plus the 7 newly constructed Oyster
Castle reefs). Notably, “seeding” involves first placing substrates in areas of high natural oyster
settlement (e.g., the lower NRE during spring), and then transplanting those seeded materials
(tuffs in this case, transplanted to NREOH sites in fall, after larval settlement pulses) to areas in
need of stocking to enhance local spawning biomass. Based on previous work, we anticipate that
each tuff will be covered with >100 juvenile (thumb-sized) oysters after “seeding” and when
moved to Oyster Highways sites. We are targeting the eight most-down-estuary sites for
“seeded” tuff additions as previous Phase I and II work (and associated monitoring) has indicated
that survival of transplanted, seeded oysters is particularly high and cost-effective at those sites.

In 2023, we will further extend each NRE Oyster Highway site with: (1) 7 additional Oyster
Castle patch reefs; (2) 69 additional Oyster Catcher patch reefs; and (3) 16 additional “seeded”
tuffs top-dressed on 97 Oyster Castle patch reefs.

At the completion of this work, we will have expanded the NRE Oyster Highway sites via the
addition of ~1850 patch reefs (across 12 sites) and >248,000 “seeded tuffs (>2,480,000 juvenile
oysters, focused on the eight-most down-estuary sites). This represents nearly a doubling of
oyster reef material across the NRE Oyster Highway.

The substrates we are using do not entrap protected species as no large (> 2 in) gaps exist in
these substrates. Furthermore, these substrates are not comprised of petroleum products (e.g.,
creosote or asphalt materials).

Ties to Matching Funds: During 2022-2023, we will use an additional $100,000 currently in
hand to purchase “seeded” tuffs for deployment at NREOH sites in a ‘scattered on bottom’ array,
as well as deployments at AR-398 and in Wilson Bay (see project maps). During 2022, we will
also use $25,000 for monitoring of patch reefs constructed during Phase I and Phase II work.
Lessons learned from these monitoring efforts could be used to amend construction approaches
utilized to deploy/construct EEG-funded materials.

Construction: Oyster Castle and Oyster Catcher reefs will be deployed using a combination of
small skiffs and barges, with Oyster Castles blocks and Oyster Catcher patties loaded at Sturgeon
City, Jacksonville, NC, and Oyster Catcher tuffs collected from lower estuary leases where
SANDBAR seeds patties (initially deployed in the lower estuary during spring, before final
moves to restoration sites in the fall, following summer pulses in oyster larval settlement).
Placing the materials on site by hand will ensure that no fishes, reptiles, or mammals are trapped
underneath the deployed substrates. In addition to staff from the City of Jacksonville and
SANDBAR, we will contract with an experienced marine construction specialist to lead material
deployments on NRE Oyster Highway sites (see budget explanation). Furthermore, we will
assign 1 person to serve as lookout during construction to alert project members if a turtle or
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manatee is observed in the vicinity, at which point deployment of substrate materials would be
suspended until at least 30 minutes after the last sighting of the turtle or manatee. However,
sighting of either manatees or turtles are exceedingly rare (i.e., essentially non-existent) in this
section of the NRE. For instance, Cummings et al. (2014) reported no sightings or strandings of
manatees in-or-upstream of Stones Bay during a period of 1991-2012 (and only 3 total sightings
throughout the NRE – all in the lower section). Similarly, Sheryan et al. (1995) reported an
average of only 1 public reporting/sighting of sea turtles per year in the NRE. During 2019-2020
construction of Phase I and II NRE Oyster Highway reefs, no protected species were observed in
the vicinity of underway operations.

Site Demarcation: Each NRE Oyster Highway site is currently marked by 4” posts that delineate
corner boundaries (4 posts per site). Each post extends 4’ above MLW and includes reflective
bands that can be seen 360˚ around. By 2024, we anticipate that these signs will need to be
replaced because of: (a) attrition, and (b) the expansion of each NRE Oyster Highway site. In
remarking/reposting sites, each post will also include signage indicating: (1) project name; (2)
funding sources, including EEG; (3) prohibition of oyster (shellfish) harvest [sites will be
designated as shellfish research reserves via coordination with NCDMF]; (4) project team
contact information. Additionally, each sign will have a QR code that would allow recreational
fishermen to report catches at NRE Oyster Highway sites.

Monitoring: In the two years post-expansion of each NRE Oyster Highway site (and potentially
longer pending funding), we will contract with a marine scientist to make quarterly (see timeline)
visits to all sites to: (1) evaluate oyster density, growth, and survivorship; (2) inspect sites for
marine debris; and (3) inspect sites and surrounding bottom for displaced substrates. Oyster
sampling will follow an established quadrat-based approach for replicate measures of oyster
populations in accordance with the Oyster Habitat Restoration Monitoring and Assessment
Handbook (via Tier 1 guidelines from the NOAA Restoration Center, Baggett et al. 2014). In
accordance with the Monitoring and Assessment Handbook, the scientist will measure four
universal metrics: reef areal dimensions, reef height, oyster density, and oyster size-frequency
distribution. This scientist will also pay particular attention to counting oyster spat (< 1-cm shell
length) to evaluate recruitment across Oyster Highway sites. She/he will also examine substrates
for evidence of scraping/grazing by reef-associated fishes such as sheepshead (Archosargus
probatocephalus). As the NRE Oyster Highway reef complexes are subtidal, this scientist will
also measure/record, as point measures during each visit to each site, three universal
environmental variables outlined in the Handbook: temperature, salinity, and dissolved oxygen.

Project Members: Our team, led by P. Donovan-Brandenburg (City of Jacksonville), has
significant experience managing, designing, and implementing large-scale oyster-reef
construction (refer to CV for more detail). P. Donovan-Brandenburg has served as the center-of-
gravity for Phase I and II NRE Oyster Highway restoration, with assistance from J. Fodrie
(consulting scientist, based at UNC-CH), N. Lindquist (SANDBAR, UNC-CH), and many other
partners. J. Fodrie and N. Lindquist each have been involved in multiple state- and federally
funded oyster-reef restoration projects, having overseen the construction of > 120 reefs (15-80
m2 in size) in Back Sound and North River, NC. Additionally, they have both published >10
peer-reviewed research articles based on these restoration projects (e.g., Ziegler et al. 2017). N.
Lindquist, along with a commercial fishermen (David Cessna), are the creators and managers of
SANDBAR – an environmental engineering and restoration company that developed the novel
Oyster CatcherTM substrate.
10

Permits: The NRE Oyster Highway team already possess a Coastal Area Management Act Major
Development Permit (#67-18) for Phase I and II restoration activities (in consultation with
USACE, NOAA, NCDMF, etc.). With this practical experience, we will be primed to submit
another permit application on day one of the NRE Oyster Highway project (i.e., October 1,
2020). Following previous permit submissions, this should be time to receive approval before the
construction of six Oyster Highway reef complex sites in 2020 (and will remain valid through
2021 construction). We also possess the necessary Scientific/ Educational Collection Permit for
monitoring (#706481).

Sustainability: In the two years following expansion of each NRE Oyster Highway site (and
potentially longer pending funding), we will make quarterly (spring, summer, and fall) visits to:
(1) evaluate oyster density, growth, and survivorship; (2) inspect sites for marine debris; and (3)
inspect sites and surrounding bottom for displaced substrates. Budgeting provides for permanent
marking/signage at each reef complex site, detailing: (1) project name; (2) funding sources,
including EEG; (3) prohibition of oyster (shellfish) harvest; (4) project team contact information;
and (5) link for web-based reporting of reef-associated catches/effort by recreational fishers
(advertised among/by our CCA partners). Notably, our Oyster Highway design should build
system resilience via mid- and upper-estuary oyster larval production/retention and geospatial
buffering against anticipated environmental shifts that result from climate change (i.e., increased
saltwater intrusion via sea-level rise). In this regard, our project is deeply rooted in sustainability
vis-à-vis ecosystem response/change at the whole-system level over the foreseeable future.

We will also help ensure the project is successful and sustainable via broad inclusion of key
stakeholders that become invested in project success. For instance, K-12 outreach and education
for the NRE Oyster Highway project will be incorporated at Sturgeon City
(https://www.sturgeoncity.org/), where project lead P. Donovan-Brandenburg is based. Sturgeon
City’s mission is expressly to “inspire youth leadership, civic involvement, habitat restoration,
environmental education and stewardship of the New River and coastal wetlands.”

References:
Baggett, L, et al. 2014. Oyster habitat restoration monitoring and assessment handbook. Nature
Conservancy
Cummings, EW, et al. 2014. Spatial and temporal patterns of habitat use and mortality of the
Florida manatee (Trichechus manatus latirostris) in the Mid-Atlantic states of North Carolina
and Virginia from 1991 to 2012. Aquatic Mammals 40:126-138
Mulvey-McFerron, O. 2020. Effects of landscape-scale oyster-reef restoration on nekton
communities in a temperate estuary. Masters Thesis. UNC-CH.
NCCF. 2021. State of the oyster: progress report on the oyster restoration and protection plan for
North Carolina. NC Coastal Federation
NCDENR. 2007. White Oak River Basin-wide Water Quality Management Plan. NC Division of
Water Quality
NCDEQ. 2016. North Carolina Coastal Habitat Protection Plan. NC Division of Marine Fisheries
Powers, SP, et al. 2009. Success of constructed oyster reefs in no-harvest sanctuaries:
implications for restoration. MEPS 389:159-170
Sheryan, P, et al. 1995. Sea turtles in North Carolina waters. Conservation Biology 9:384-394
White Oak River Basin Restoration Priorities. 2010. NC Ecosystem Enhancement Program
11

Ziegler, SL, et al. 2017. Effects of landscape setting on oyster reef structure and function persist
more than a decade post restoration. Restoration Ecology 26:933-942
Permit Class Permit Number
MODIFICATION/MAJOR 67-18
AMENDED STATE OF NORTH CAROLINA
Department of Environmental Quality
and
Coastal Resources Commission
for
X Major Development in an Area of Environmental Concern
pursuant to NCGS 113A-118

X Excavation and/or filling pursuant to NCGS 113-229

Issued to City of Jacksonville, PO Box 128, Jacksonville, NC 28540
Authorizing development in Onslow County within Farnell and Morgan Bays, in New River, near
Camp Lejeune and the City of Jacksonville, as requested in the permittee’s application dated 10/28/19 (MP-1)
and 10/28/18 (MP-2), including the attached workplan drawings (13), all dated “Rec DCM-MHD City 11/15/19”.
This permit, issued on May 11, 2020 , is subject to compliance with the application (where consistent
with the permit), all applicable regulations, special conditions and notes set forth below. Any violation of these terms may
be subject to fines, imprisonment or civil action; or may cause the permit to be null and void.

This permit action may be appealed by the permittee or other
qualified persons within twenty (20) days of the issuing date.

This permit must be accessible on-site to Department
personnel when the project is inspected for compliance.

Any maintenance work or project modification not covered
hereunder requires further Division approval.

All work must cease when the permit expires on

December 31, 2023

In issuing this permit, the State of North Carolina agrees that
your project is consistent with the North Carolina Coastal
Management Program.
Signed by the authority of the Secretary of DEQ and the Chair
of the Coastal Resources Commission.

Braxton C. Davis, Director
Division of Coastal Management

This permit and its conditions are hereby accepted.

Signature of Permittee

Oyster Reef Site Additions

1) Unless specifically altered herein, this permit authorizes the creation of an additional six (6) 0.5 acre
oyster reef sites, located in Farnell and Morgan Bays, New River, all as depicted in the attached
permit application, project narrative, and workplan drawings.

2) In accordance with commitments made by the permittee, reef construction within the site shall be
accomplished using prefabricated structures known as Oyster Castles and Oyster Catchers, all as
depicted in the attached workplan drawings

(See attached sheets for additional conditions)

City of Jacksonville Permit No. 67-18
Page 2 of 2

ADDITIONAL CONDITIONS

General

3) The permittee shall coordinate with the NC Division of Marine Fisheries Shellfish Sanitation Section to
develop an approved shellfish transportation plan prior to the initiation of any construction activities.
Furthermore, the permittee shall notify the NC Division of Marine Fisheries Marine Patrol Section upon
completion of construction activities.

4) In order to satisfy concerns of the resource agencies and in order to protect juvenile shrimp and finfish
populations, oyster reef site no. 12 shall not be constructed between April 1 and September 30 of any
year without the prior approval of the Division of Coastal Management, in consultation with appropriate
resource agencies.

5) In accordance with commitments made by the permittee, each of the six (6) oyster reef sites shall be
located, at the time of construction, with a 50-meter buffer from all submerged aquatic vegetation. The
permittee is advised that any proposed expansion of the oyster reef sites may be affected by evidence of
submerged aquatic vegetation.

6) This permit shall not be assigned, transferred, sold, or otherwise disposed of to a third party without the
written approval of the Division of Coastal Management.

7) The permittee and/or his or her contractor shall meet with a representative of the Division prior to
project initiation.

8) This Major Modification shall be attached to the original Permit No. 67-18, which was issued to the
permittee on 6/29/18, and copies of both documents must be readily available on site when Division
personnel inspect the project for compliance.

9) All conditions and stipulations of the active permit remain in force, under this Major Modification,
unless specifically altered herein.

10) This amended permit supersedes all previous authorizations under this major modification.

NOTE: The U.S. Army Corps of Engineers assigned the proposed project COE Action Id. No. SAW-
2017-02514.

NOTE: The Division of Water Resources assigned the proposed project DWR Project No. 2018-0260 v2.

NOTE: An application processing fee of $250 was received by DCM for this project.
8 m
8 m
3 m
3 m3 m 3 m
4 m
2 m
Offshore70 m
30 m
Nearshore
Plan View of Existing Reef Complexes
• six –~0.5 acre reef development
sites in Farnell Bay and Morgan Bay
• 720 oyster castle® units per site; 90
oyster castle reefs per site
• 900 seeded oyster catcher patties
per site; 90 oyster catcher reefs per
site
• reefs proposed to be located in near-
shore shallow water to:
(1)allow shore access to the reefs for
recreational fishing; and
(2) avoid periodic hyoxia/anoxia
events that occur in deeper
waters.
⚫Oyster Catcher™patty reefs
Oyster Castle®reefs
Plan View of Extended NREOH Reef
Complexes 1,2,3,4,6,7,8,11,12
8 m
8 m
3 m
3 m3 m 3 m
4 m
2 m
Offshore70 m
30 m
Nearshore
Plan View of Existing Reef Complexes
⚫Oyster Catcher™patty reefs
Oyster Castle®reefsPlan View of NREOH Reef Complexes 5,9,10
(Footprints not extended beyond existing permits)
2022 additions
Oyster Castle® reefs
Oyster CatcherTM patty reefs
2022 additions
Oyster Castle® reefs
Oyster CatcherTM patty reefs
Oyster Castle° -� ' ' � , ; k �
Allied Concrete ' �3
i
Charlottesville, VA } , � 4 R
� , er.
i
www.alliedconcrete.com ` ' ` ' s,-, -1
rt _
photos from : www.alliedconcrete.com
- Manufactured concrete units ( 12" * 12" * 8" [L * W * H] )
- Stackable and interlocking, designed to create complex,
stable habitat
- Suitable for oyster settlement
- In use in restoration projects in AL, DE, NJ, NY, SC, and VA

Oyster Castles° — photos imported from : www.alliedconcrete.com
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Oyster Castle° Individual Reef Configuration (*90 reefs per site)
(8 units per individual reef)
Plan View: I
Note: these 24
gaps are 1-2 in w-1 in
in width (W)
II I
Cross Section View: _1 i_—I
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_1 .1_, I___1 in
(H)
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Oyster CatcherTM
Sandbar Oyster Company
Morehead City, NC
http://www.sandbaroystercompany.com
Photo of individual patty
from Niels Lindquist
-Biodegradable jute plant fiber and cement plaster units
(12” * 12” * 4” [L * W *H])
-Stackable and interlocking, designed to create complex,
stable habitat
-Suitable for oyster settlement
-In use in restoration projects in NC
Oyster CatcherTM - photos from Niels Lindquist
r.R
Newport River,
NC
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Plan View:
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New River Estuary Oyster Highway Sites
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New River Estuary Oyster Highway Sites
NREOH Site Latitude (DD)Longitude (DD)
1 34.6707 -77.3616
2 34.6583 -77.3555
3 34.6406 -77.3397
4 34.6124 -77.3636
5 34.6369 -77.3730
6 34.6530 -77.3801
7 34.6986 -77.3746
8 34.6283 -77.3504
9 34.6200 -77.3850
10 34.6199 -77.3851
11 34.6801 -77.4003
12 34.7189 -77.4308
Untitled Map
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Distance from Shore: 70 m Existing Site Boundary (70 m * 30 m)

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Distance from Shore: 60 m Existing Site Boundary (70 m * 30 m)

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[Site boundary will not be extended]
Distance from Shore: 50 m

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Distance from Shore: 100 m Existing Site Boundary (70 m * 30 m)

Google Earth Views of the 6 Phase I New River Oyster Highway
Sites in Farnell Bay and Morgan Bay (#s 7-12)
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Distance from Shore: 25 m Existing Site Boundary (70 m * 30 m)

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Distance from Shore: 150 m Existing Site Boundary (70 m * 30 m)

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Longitude: W77.3850° Potential User Conflicts: None anticipated
Depth at MLW: 1.0 m *
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[Site boundary will not be extended]
Distance from Shore: 30 m

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Latitude : N34.6199° Bottom Type : Unvegetated mud/sand
Longitude: W77.3851° Potential User Conflicts: None anticipated
Depth at M LW: 1.25 m Existing Site Boundary (70 m * 30 m)
[Site boundary will not be extended]
Distance from Shore: 30 m

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NREOH 11
View of Site 11
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Latitude : N34.6801° Bottom Type : Unvegetated mud/sand
Longitude: W77.4003° Potential User Conflicts: None anticipated
Depth at M LW: 1.25 m Extended Site Boundary (70 m * 30 m)
Distance from Shore: 50 m Existing Site Boundary (70 m * 30 m)

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Latitude : N34.7189° Bottom Type : Unvegetated mud/sand
Longitude: W77.4308° Potential User Conflicts: none anticipated
Depth at MLW: 1.00 m Extended Site Boundary (70 m * 30 m)
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Distance from Shore: 50 m Existing Site Boundary (70 m 30 m)