Implementing the European flood risk management plan

In response to the extreme flood events of recent decades, the European Union has released the Floods Directive (2007/60/EC), which requires the creation of flood risk management plans. These plans do not yet exist in practice, as water management agencies have until 2015 to put them into action. This contribution will discuss two questions regarding the European flood risk management plan: First, how is the new instrument integrated into the various member states, particularly with respect to the scenario approach? Second, how prepared are the institutions for the collaborative planning paradigm of the flood risk management plan, particularly with respect to the river basin districts approach? Citing examples from France, Germany, the Netherlands, and Great Britain, this paper offers both a pessimistic and an optimistic perspective on the implementation of the new flood risk management instrument.     

Flood risk management in Dutch local spatial planning practices

Spatial planning is increasingly regarded as an important instrument to reduce flood consequences. Nevertheless, there are very few studies that show why local planning authorities do or do not systematically use spatial planning in advance to mitigate flood risks. This paper explores flood reduction strategies in local planning practices in the Netherlands. It also explores why spatial planning was or was not used to reduce flood consequences. The arguments for the use or non-use of planning mainly referred to requirements from other governmental bodies and the perceived role and the related responsibility of local planning authorities, previous disaster experience, and previous experience with spatial planning for flood risk management.     

Flood resilience: consolidating knowledge between and within critical infrastructure sectors

Flood resilience has been rising up the political, economic and social agendas. Taking an integrated systems approach, using the right design guidance and tools and ensuring that education is in place for all stakeholders are three themes which are intrinsically linked to delivering flood resilience. This paper reviews these themes across the academic research, policy landscape and practitioner approaches, drawing conclusions on the way forward to increase our societies resilience to floods. The term ‘flood resilience’ is being increasingly used, however, it remains to be clearly defined and implemented. The UK, USA and Australia are leading the way in considering what flood resilience really means, but our review has found few examples of action underpinned by an understanding of systems and complexity. This review investigates how performance objectives & indicators are currently interpreted in guidance documents. It provides an in-depth exploration of the methods, that although developed through European and US expertise, can be used for worldwide application. Our analysis highlights that resilience is often embedded in engineering education and frequently linked to risk. This may however, mask the importance of resilience and where it differs from risk. With £2.6 billion to be spent in the UK over the next 6 years on strengthening the country’s flood and coastal defences, this is the opportunity to rethink resilience from a systems approach, and embed that learning into education and professional development of engineers. Our conclusions indicate how consolidating flood resilience knowledge between and within critical infrastructure sectors is the way forward to deliver flood resilience engineering.     

Rehabilitation of a lowland river: Reconciling flood defence with habitat diversity and geomorphological sustainability

Geomorphologically appropriate rehabilitation measures were proposed to enhance the in-stream environment of the lowland River Idle, north Nottinghamshire, UK. However, the River Idle has multi-functional management requirements including those of flood defence so environmental enhancement must be pursued without significantly increasing the flood risk. Hydraulic testing of rehabilitation proposals is complicated because of the stringent assumptions about flow and morphology in ‘traditional’ hydraulic models. While new generation two- and three-dimension hydraulic models may overcome some of these problems, they are extremely data intensive, require advanced modelling capabilities and are, therefore, very expensive to apply. Also, they do not yet predict morphology-flow interactions adequately. As an alternative, several simple hydraulic models were applied to test the rehabilitation proposals, based on a fitness-for-purpose criterion.BENDFLOW was applied to fine tune the optimal siting of measures and to estimate the additional near-bank scour generated by proposed bend re-profiling. HMODEL2 and the FCFA method were used to test the impact on local channel conveyance capacities and HECRAS was applied to simulate the impact of the proposals on regional flood defence. Indicative results from the testing suggested a maximum increase in near-bank scour of 0·15 m in re-profiled bends, a loss of approximately 10% in flood conveyance locally due to deflector installation or reed and tree planting, and a 0·12 m increase in flood stage within the reach for a 15 year flood. The modelling results were acceptable to the management authority as an indication of an acceptable compromise between flood defence and conservation interests, and construction of the measures followed in 1996. It is clearly that it will require the results of post-project monitoring to indicate whether compromises made to the rehabilitation initiatives in order to satisfy flood defence requirements have unduly reduced their environmental enhancement potential but, for assessing the proposed methods, the models are recommended for use other lowland river environments.     

Adapting a holistic approach to flood management in the Hawkesbury–Nepean region: complexities and perceptions of the agencies involved

This paper looks into the complexity of managing flood risks in the Hawkesbury–Nepean catchment, Australia. Several aspects are explored: (1) the complexities created by the way different agencies are involved in assessing flood risks; (2) different perceptions on acceptable flood risk level; (3) community engagement in defining acceptable flood risk level; (4) views on a holistic flood risk management plan; and (5) challenges of a centralised information system. This study concludes that the complexity of managing a large catchment is exacerbated by the difference in the way professionals perceive the problem. This has led to (1) different standards for acceptable risks; (2) inconsistent attempt to set up a regional-scale flood management plan beyond the jurisdictional boundaries; (3) absence of a regional-scale agency with licence to share and update information; and (d) lack of forums for dialogue with insurance companies to ensure an integrated approach to flood management.     

Conditions for citizen co-production in a resilient,efficient and legitimate flood risk governance arrangement. A tentative framework

Across Europe, there is an increasing trend towards citizen involvement in the implementation of flood risk governance. Policy-makers increasingly advocate co-produced flood risk governance (FRG), whereby citizens are actively engaged in the implementation of flood risk policy, for example, by taking property-level protection measures. In doing so, they aim to make FRG more resilient, efficient and legitimate [Mees, H., Crabbé, A., Alexander, M., Kaufmann, M., Bruzzone, L., Levy, L., & Lewandowski, J. (2016a). Coproducing flood risk management through citizen involvement: Insights from cross-country comparison in Europe. Ecology and Society, 21(3), 7. http://dx.doi.org/10.5751/ES-08500-210307]. Co-production, however, also raises important questions concerning these aims. In this paper, the opportunities and limitations of and barriers to citizen co-production in FRG in terms of resilience, efficiency and legitimacy are investigated by an extensive review of literature on citizen co-production in other public services and on individual and community-based climate change adaptation and FRG. Based on this, a tentative framework is developed on the required conditions to enable co-produced FRG, which benefits both the resilience, efficiency and legitimacy of FRG.     

Adapting cities to climate change – exploring the flood risk management role of green infrastructure landscapes

There is now an emerging sense of the scope and nature of response that can be implemented at building and neighbourhood scales to help adapt cities and urban areas to the changing climate. In comparison, the role of larger natural and semi-natural landscapes that surround and permeate cities is less well understood. Addressing this knowledge gap, this paper outlines two case studies that describe and map the flood risk management functions offered by green infrastructure landscapes situated within the Urban Mersey Basin in North West England. The case studies establish that areas potentially exposed to flooding can be located at some distance, and within different jurisdictions, from upstream areas where the flood hazard may be generated and could be moderated via functions provided by green infrastructure landscapes. This raises planning and governance challenges connected to supporting and enhancing flood risk management functions provided by green infrastructure landscapes.     

Between resistance and resilience: a study of flood risk management in the Don catchment area (UK)

The river Don catchment area in Sheffield and Rotherham offers a good place for a case study of flood risk management, given the impact of a flooding event in 2007 and the way in which local events have become entwined with national and international policy shifts. To interpret local policy, a combination of systems-based and socio-cultural theory is used. Both the theories and the case study serve to disentangle the multiple meanings of resilience. Understood in opposition to flood resistance, resilience has only limited applicability in an area such as the case study where engineering works protect employment and infrastructure. Resilience as a policy discourse also lacks political transparency and a recognition of socio-cultural influences. Underlying the shift towards resilient styles of management is an appreciation of the importance of capacity, to learn and to act. The case study identifies blockages to the realisation of that capacity.     

The use of Landsat multispectral scanner data for the analysis and management of flooding on the river Severn,England

Remote sensing has emerged as one of the major techniques for the analysis and delineation of large floods. This analysis can provide data invaluable for the hydrological management of large river systems. A need for information on the extent of floodplain inundation for the lower reaches of the largest river in the UK was met by a search through Landsat images of floods and the analysis of the best example recorded. Automated classification of the Landsat imagery of this flood on the river Severn in 1977 was used to provide estimates of the extent and spatial distribution of inundation. Flood images were generated using the Plessey IDP 3000 image processor, and the maps derived accorded well with aerial photography and qualitative flood information. Three distinct floodplain environments were delineated and flood images produced by different spectral bands compared. Specific questions prompted by flood hazard management and concerning the processes and extent of flooding were answered by the Landsat data analysis. Management of the flood risk of large rivers is expensive and remote sensing data is a relatively cheap and effective way of monitoring control works and providing data for the prediction of the effects of future hydrological works. Remote sensing is a practical way in which spatial information concerning the behavior of large dynamic systems can be obtained both quickly and relatively cheaply.     

Evaluating the suitability of policy instruments for urban flood risk reduction

ABSTRACT

City governments have access to a range of policy instruments to reduce flood risk, but choosing among these tools is challenging. This article identifies fourteen different policy instruments that could contribute to urban flood risk reduction and draws on interviews with expert stakeholders to score these instruments across eight evaluation criteria. The results indicate which policy tools the interviewees consider to be most and least suitable and illuminate the trade-offs inherent in instrument selection. Complementary relationships between the various instruments are also considered in the context of instrument mixes – combinations of multiple policy tools designed to maximise urban flood risk reduction.     

A procedure for incorporating spatial variability in ecological risk assessment of Dutch river floodplains

Floodplain soils along the river Rhine in the Netherlands show a large spatial variability in pollutant concentrations. For an accurate ecological risk characterization of the river floodplains, this heterogeneity has to be included into the ecological risk assessment. In this paper a procedure is presented that incorporates spatial components of exposure into the risk assessment by linking geographical information systems (GIS) with models that estimate exposure for the most sensitive species of a floodplain. The procedure uses readily available site-specific data and is applicable to a wide range of locations and floodplain management scenarios. The procedure is applied to estimate exposure risks to metals for a typical foodweb in the Afferdensche and Deestsche Waarden floodplain along the river Waal, the main branch of the Rhine in the Netherlands. Spatial variability of pollutants is quantified by overlaying appropriate topographic and soil maps resulting in the definition of homogeneous pollution units. Next to that, GIS is used to include foraging behavior of the exposed terrestrial organisms. Risk estimates from a probabilistic exposure model were used to construct site-specific risk maps for the floodplain. Based on these maps, recommendations for future management of the floodplain can be made that aim at both ecological rehabilitation and an optimal flood defense.     

The economic dimensions of integrating flood management and agri-environment through washland creation: a case from Somerset, England

In many river floodplains in the UK, there has been a long history of flood defence, land reclamation and water regime management for farming. In recent years, however, changing European and national policies with respect to farming, environment and flood management are encouraging a re-appraisal of land use in rural areas. In particular, there is scope to develop, through the use of appropriate promotional mechanisms, washland areas, which will simultaneously accommodate winter inundation, support extensive farming methods, deliver environmental benefits, and do this in a way which can underpin the rural economy. This paper explores the likely economic impacts of the development of flood storage and washland creation. In doing so, consideration is given to feasibility of this type of development, the environmental implications for a variety of habitats and species, and the financial and institutional mechanisms required to achieve implementation.     

Disaster preparedness and perception of flood risk: A study in an alpine valley in Italy

Italy is a country highly vulnerable to floods and landslides. The present study aims to investigate disaster preparedness and perception of flood risk in a group of people living in an alpine valley in the north of Italy. Four hundred seven adult residents in nine communities exposed to hydrogeological risk were interviewed by using a structured questionnaire. Participants were asked about the adoption of a set of protective behaviors that can prevent negative consequences of floods. Perception of flood risk was assessed by means of a one-dimensional scale that was developed and validated by the authors. Items included in this scale asked participants to estimate likelihood of occurrence of different flood consequences and to express feelings of worry associated to them. Socio-demographic and experiential information on respondents were also collected. Overall, results showed that most of respondents were fairly well prepared to deal with a future flood disaster. Correlational and regression analyses indicated that disaster preparedness was positively associated with risk perception. In accordance with literature, there was not a significant relation between likelihood judgments and adoption of protective behaviors, while feelings of worry were associated with disaster preparedness. Authors interpret their results in relation to the socio-environmental characteristics of the studied communities. Theoretical, empirical and practical implications of the findings are also discussed.     

Stakeholders' views towards flood risk management in the Paz River catchment area of Guatemala and El Salvador

The river Paz is a transboundary river that flows through Guatemala and El Salvador. Its frequent floods endanger the lives and livelihoods of downstream communities. Attempts have previously been made to develop flood management programmes for this watershed. However, these approaches were generally made by high-level governmental institutions with few if any contributions from floodplain communities and other stakeholders. Recognising that public consultation is a key aspect in flood management programmes, we intend in this work to extract different stakeholders' views regarding current and future flooding and flood management programmes in the Paz River basin. This is achieved using Future Scenarios Workshops with a projected time horizon of 30 years. The exercise was expected to identify consensual short- and medium–long-term flood management strategies for the Paz River basin that draws on input from inhabitants of flood-prone areas and other stakeholders.     

Power,responsibility and justice: a review of local stakeholder participation in European flood risk management

Over the past few decades, there has been an increasing interest in the active involvement of local stakeholders in the management of floods in Europe. Such involvement is seen as necessary as the management of floods becomes more complex. Management approaches now seek to include a range of potential measures to reduce risk (e.g. structural defence, spatial planning and property-level protection measures). Local stakeholder involvement is seen to be important because governments lack the capacities such as knowledge and funding required to deliver all these measures alone. This paper focuses on the implications that more participative approaches have on the fairness of European flood risk management (FRM). Studies of environmental justice are well placed to address this question because they are interested in who is included and excluded from decisions related to the distribution of environmental goods (resources) and bads (risks). Existing literature suggests that fair decision-making processes (procedural justice) can lead to fair distribution or resources and risks (distributive justice). This literature review of 30 peer-reviewed papers provides an analysis of justice and FRM by assessing practices of participation which are presented in the recent literature on local stakeholder involvement in FRM in England, Germany and the Netherlands. It was found that participation in practice generally focuses on transferring responsibility to the local level at the expense of power. This paper discusses the implications that this finding has for justice and synthesises potential ways forward based on recommendations of the reviewed literature.     

Social Dimensions of Urban Flood Experience,Exposure, and Concern

With growing urban populations and climate change, urban flooding is an important global issue, even in dryland regions. Flood risk assessments are usually used to identify vulnerable locations and populations, flooding experience patterns, or levels of concern about flooding, but rarely are all of these approaches combined. Furthermore, the social dynamics of flood concerns, exposure, and experience are underexplored. We combined geographic and survey data on household‐level measures of flood experience, concern, and exposure in Utah's urbanizing Wasatch Front. We asked: (1) Are socially vulnerable groups more likely to be exposed to flood risk? (2) How common are flooding experiences among urban residents, and how are these experiences related to sociodemographic characteristics and exposure? and (3) How concerned are urban residents about flooding, and does concern vary by exposure, flood experience, and sociodemographic characteristics? Although floodplain residents were more likely to be White and have higher incomes, respondents who were of a racial/ethnic minority, were older, had less education, and were living in floodplains were more likely to report flood experiences and concern about flooding. Flood risk management approaches need to address social as well as physical sources of vulnerability to floods and recognize social sources of variation in flood experiences and concern.     

Adaptive co-management and network learning in the Room for the River programme

Adaptive co-management and learning are paramount for integrated flood risk management. Relevant literature focuses on adaptation at the level of physical and societal systems. The level of projects and programmes is largely overlooked, but they comprise interventions that adapt our physical systems and they provide opportunities for learning to contribute to transitions of societal systems. This paper aims to increase understanding on how learning takes place and can be stimulated within a programme. The mixed-method case study of Room for the River, a €2.3 billion programme for flood risk management, shows that a programme can be organised using various governance arrangements to stimulate learning and be a means for adaptive co-management to deliver upon environmental objectives.     

Rehabilitation and Flood Management Planning in a Steep,Boulder-Bedded Stream

This study demonstrates the integration of rehabilitation and flood management planning in a steep, boulder-bedded stream in a coastal urban catchment on the South Island of New Zealand. The Water of Leith, the primary stream flowing through the city of Dunedin, is used as a case study. The catchment is steep, with a short time of concentration and rapid hydrologic response, and the lower stream reaches are highly channelized with floodplain encroachment, a high potential for debris flows, significant flood risks, and severely degraded aquatic habitat. Because the objectives for rehabilitation and flood management in urban catchments are often conflicting, a number of types of analyses at both the catchment and the reach scales and careful planning with stakeholder consultation were needed for successful rehabilitation efforts. This included modeling and analysis of catchment hydrology, fluvial geomorphologic assessment, analysis of water quality and aquatic ecology, hydraulic modeling and flood risk evaluation, detailed feasibility studies, and preliminary design to optimize multiple rehabilitation and flood management objectives. The study showed that all of these analyses were needed for integrated rehabilitation and flood management and that some incremental improvements in stream ecological health, aesthetics, and public recreational opportunities could be achieved in this challenging environment. These methods should be considered in a range of types of stream rehabilitation projects.     

Drinking water risk assessment in practice: the case of Swedish drinking water producers at risk from floods

To achieve a safe and reliable drinking water supply, water producers need to manage a large range of risks regarding both water quality and quantity. A risk management approach where risks are systematically identified and handled in a preventive manner is promoted by the World Health Organization and supported by researchers and drinking water experts worldwide. Risk assessment is an important part of such a management approach, and a variety of tools for risk assessment are described in the literature. There is, however, little knowledge of how drinking water risk assessment is performed in practice, including which tools that are actually used. This study investigates the use of risk assessment tools, and the approach to risk management, on a local level in the Swedish water sector. It is based on interviews with key persons from a targeted selection of water producers. We find that the application of tools as well as the approach to risk assessment and management differs considerably between the water producers. The tools most frequently used are mainly the ones promoted or required by Swedish national organizations. Although many of the water producers have done some kind of risk assessment, most have not implemented a risk management approach. Furthermore, their knowledge of the concepts of risk and risk management is often limited. The largest challenge identified is to prioritize risk assessment, so that it is actually performed and then used as a basis for managing risk in a systematic way.     

The hazards of risk management

Summary Increasing application of the concept of risk raises several policy and management issues for environmental managers. Functionally, risk can be structured as risk assessment, risk management and risk communication. Each of these functional areas have complex technical issues associated with them that are often unfamiliar to the public.Dr Donald W. Floyd is an Assistant Professor in the School of Natural Resources at The Ohio State University. He specialises in natural resource/environmental policy, with an emphasis on conflict resolution.