Bringing flood resilience into practice: the FREEMAN project

The recent shift in flood risk management concedes that floods cannot be prevented but the impacts on and vulnerability of the risk prone communities can be reduced. Beyond mere structural defence, an integrated risk management approach deploys a diversified set of measures that moderate the economic and social drivers of risk and improve risk governance. In this context, the concept of resilience gains on importance despite the many challenges that obstruct its implementation in management practice. This paper contributes to tackling these challenges and elaborates on opportunities and bottlenecks to bring resilience into practice based on a review of the flood risk management in three case studies in Europe: Flanders (Belgium), Niedersachsen (Germany) and Calabria (Italy). The paper summarizes insights gained on three components of resilience being – institutional interplay, flood management tools and risk communication. The work that has lead to this paper is done under the FREEMAN project (flood resilience enhancement and management), funded under the 2nd CRUE ERA-Net Funding Initiative.     

Combining hazard,exposure and social vulnerability to provide lessons for flood risk management

Flood risk assessments provide inputs for the evaluation of flood risk management (FRM) strategies. Traditionally, such risk assessments provide estimates of loss of life and economic damage. However, the effect of policy measures aimed at reducing risk also depends on the capacity of households to adapt and respond to floods, which in turn largely depends on their social vulnerability. This study shows how a joint assessment of hazard, exposure and social vulnerability provides valuable information for the evaluation of FRM strategies. The adopted methodology uses data on hazard and exposure combined with a social vulnerability index. The relevance of this state-of-the-art approach taken is exemplified in a case-study of Rotterdam, the Netherlands. The results show that not only a substantial share of the population can be defined as socially vulnerable, but also that the population is very heterogeneous, which is often ignored in traditional flood risk management studies. It is concluded that FRM measures, such as individual mitigation, evacuation or flood insurance coverage should not be applied homogenously across large areas, but instead should be tailored to local characteristics based on the socioeconomic characteristics of individual households and neighborhoods.     

Using participatory geographic approaches for urban flood risk in Santiago de Chile: Insights from a governance analysis

Studies based on information acquired by participative geographic approaches have sought to cope with emergency situations and disasters such as floods. However, the impact of these approaches to flood risk governance systems in order to understand these types of events as a complete risk cycle is still not clear. This paper focuses on analysing the governance possibilities of using participative geographic information like volunteered and public participatory geographic information for flood risk reduction in the case of Santiago de Chile, a city which regularly experiences urban floods during rainy seasons. Based on in-depth interviews and document analysis, our study indicates that a relevant part of the current information used for flood risk reduction efforts is provided to local and regional authorities by the affected population. Though, local actors are not recognized by central agencies as valid agents for the production of official information. Moreover, there are neither instances of communication or deliberation with the community, which reduces the capacity of local actors to discuss possible solutions. Participative geographic instruments are seen as potential mechanisms to strengthen work relations among local actors and authorities, by enhancing new logics for producing and sharing information. The impacts for the current risk governance system though can be diverse depending on the participants' level of commitment of participants and the political relations between actors and agencies. Considered as merely data acquisition and analysis mechanisms, participative instruments reproduce the existing hierarchical top-down structures. Furthermore, local-based approaches can enhance local work, support local diagnostics and increase the decision capacity of citizens.     

Flash flood forecasting, warning and risk management: the HYDRATE project

The management of flash flood hazards and risks is a critical component of public safety and quality of life. Flash-floods develop at space and time scales that conventional observation systems are not able to monitor for rainfall and river discharge. Consequently, the atmospheric and hydrological generating mechanisms of flash-floods are poorly understood, leading to highly uncertain forecasts of these events. The objective of the HYDRATE project has been to improve the scientific basis of flash flood forecasting by advancing and harmonising a European-wide innovative flash flood observation strategy and developing a coherent set of technologies and tools for effective early warning systems. To this end, the project included actions on the organization of the existing flash flood data patrimony across Europe. The final aim of HYDRATE was to enhance the capability of flash flood forecasting in ungauged basins by exploiting the extended availability of flash flood data and the improved process understanding. This paper provides a review of the work conducted in HYDRATE with a special emphasis on how this body of research can contribute to guide the policy-life cycle concerning flash flood risk management.     

Effective risk governance for environmental policy making: A knowledge management perspective

Effective risk management within environmental policy making requires knowledge on natural, economic and social systems to be integrated; knowledge characterised by complexity, uncertainty and ambiguity. We describe a case study in a (UK) central government department exploring how risk governance supports and hinders this challenging integration of knowledge. Forty-five semi-structured interviews were completed over a two year period. We found that lateral knowledge transfer between teams working on different policy areas was widely viewed as a key source of knowledge. However, the process of lateral knowledge transfer was predominantly informal and unsupported by risk governance structures. We argue this made decision quality vulnerable to a loss of knowledge through staff turnover, and time and resource pressures. Our conclusion is that the predominant form of risk governance framework, with its focus on centralised decision-making and vertical knowledge transfer is insufficient to support risk-based, environmental policy making. We discuss how risk governance can better support environmental policy makers through systematic knowledge management practices.     

FloodProBE: technologies for improved safety of the built environment in relation to flood events

The FloodProBE project started as a FP7 research project in November 2009.Floods, together with wind related storms, are considered the major natural hazard in the EU in terms of risk to people and assets. In order to adapt urban areas (in river and coastal zones) to prevent flooding or to be better prepared for floods, decision makers need to determine how to upgrade flood defences and increasing flood resilience of protected buildings and critical infrastructure (power supplies, communications, water, transport, etc.) and assess the expected risk reduction from these measures.The aim of the FloodProBE-project is to improve knowledge on flood resilience and flood protection performance for balancing investments in flood risk management in urban areas. To this end, technologies, methods and tools for assessment purposes and for the adaptation of new and existing buildings and critical infrastructure are developed, tested and disseminated.Three priority areas are addressed by FloodProBE. These are: (i) vulnerability of critical infrastructure and high-density value assets including direct and indirect damage, (ii) the assessment and reliability of urban flood defences including the use of geophysical methods and remote sensing techniques and (iii) concepts and technologies for upgrading weak links in flood defences as well as construction technologies for flood proofing buildings and infrastructure networks to increase the flood resilience of the urban system.The primary impact of FloodProBE in advancing knowledge in these areas is an increase in the cost-effectiveness (i.e. performance) of new and existing flood protection structures and flood resilience measures.     

Prescriptive conflict prevention analysis: An application to the 2021 update of the Austrian flood risk management plan

Flood events have become more frequent in Europe, and the adaptation to the increasing flood risks is needed. The Flood Directive set up a series of measures to increase European resilience, establishing Flood Risk Management Plans (FRMPs) at the level of the river basin district as one relevant action. In order to efficiently fulfil this objective, the involvement of stakeholders as well as the analysis of their roles, responsibilities, and demands has been considered to be crucial to develop FRMPs. As a result, the hypothesis tested in this paper is that a consensus solution for the 2021 update Austrian Flood Risk Management Plan is feasible. To demonstrate this, both in-depth interviews and questionnaires to key Austrian stakeholders are implemented. The information collected in both participatory techniques are then used to run a conflict prevention analysis. The results show that (a) improving the coordination among regions and including better land-use planning approaches are preferable to a hypothetical business as usual scenario; and (b) a consensus solution for the 2021 update Austrian FRMP might be achievable on the basis of both a deep discussion on the state-of-the art and green infrastructure development.     

国家环境风险防控与管理体系框架构建

针对我国环境风险防控与管理存在的问题与不足,讨论了国家环境风险管理体系的概念,总结了欧美等发达国家在环境风险防控与管理领域的经验,构建了“四维一体”的国家环境风险防控与管理体系,以及国家环境风险防控与管理制度基本框架,并结合我国当前环境风险防控的形势提出了近期相关工作的重点.     

A flood risk decision making approach for Mediterranean tree crops using GIS; climate change effects and flood-tolerant species

The aim of this study is to estimate flood risk in the Mediterranean island of Crete in Greece, using Geographic Information Systems (GIS). The island of Crete, covering an area of 8265 km², is one of the most intensively Mediterranean agricultural areas dominated by fruit tree crops. In this study, the factors that are directly related to the creation of a flood are combined in a GIS environment in order to identify the most prone flooding areas. These factors are: (a) the Flow accumulation (F), (b) the Rainfall intensity (R), (c) the Elevation (E), (d) the Geology (G), (e) the Land use (L), and (f) the Slope (S). The initials of these factors gave the name to the proposed method: “FREGLS”. The above factors are presented in the form of grid maps and are used in order to determine the final flood risk map. Subsequently, the flood prone fruit tree areas of Crete can be estimated by applying a methodology based on weighting coefficients. The reliability of the final flood risk map is verified using historical flooded data. Additionally, the impact of global climate change scenarios A2 and B1, on flood risk in Crete is examined. Based on the above, this study highlights the flood prone fruit tree areas in the island of Crete under current and future climate conditions. Also, flood-tolerant fruit trees which appear to be economically important for Greece are recommended, especially for the high flood risk areas of the island. The proposed methodology can be applied as a decision making tool for flood risk mitigation to any river basin where tree crops are cultivated.     

Measuring the adaptation gap: A framework for evaluating climate hazards and opportunities in urban areas

Urban areas are increasingly seen as having distinct need for climate adaptation. Further, as resources are limited, it is essential to prioritize adaptation actions. At the municipal scale, we suggest that priorities be placed where there is a gap between adaption need and existing adaptation effort. Taking Seattle, USA, as an example, we present this gap in terms of four categories of adaptation options (no-regret, primary, secondary, and tertiary) for the three primary urban hazards—flooding, heat wave, and drought. To do so, we first establish current adaptation need by identifying and categorizing adaptation options. Next, we consider for each option the number of hazards addressed and benefit to and beyond climate adaptation, the projected magnitude of the hazards addressed, the projection’s uncertainty, and the required scale and irreversibility of investment. Third, we assessed Seattle’s current adaptation efforts by reviewing adaptation plans and related materials. Finally, we identify the distance or “gap” as the proportion of adaptation options not identified by existing adaptation plans.For Seattle, we categorized seven options as no-regret adaptation, five as primary, two as secondary, and three as tertiary. Each level’s adaptation gap highlights significant opportunities to take steps to reduce climate risks in key areas.     

The authority of science in sustainability governance: A structured comparison of six science institutions engaged with the Sustainable Development Goals

Over the past decades, numerous science institutions have evolved around issues of global sustainability, aiming to inform and shape societal transformations towards sustainability. While these science-based initiatives seem to take on an ever growing active role in governance for sustainable development, the question arises how they can claim any political authority in the first place. We present here a structured comparison of six international science-based initiatives, all engaged in governance processes related to the recently established Sustainable Development Goals. We focus on the material and rhetorical strategies employed by these science institutions to acquire authority by fostering perceptions of salience, credibility and legitimacy among governance actors. We distinguish three modes of scientific authority: an assessment-oriented mode that combines a strategy of salience through integration, with credibility by formal mechanisms of review, and legitimacy through representation; an advice-oriented mode, which appeals to salience through the promise of independent and timely science advice, to credibility through the credentials of the scientists involved, and to legitimacy through formal recognition by governance actors; and a solution-oriented mode, with science institutions claiming relevance based on the promise to contribute to solutions for global sustainability, while credibility is sought by invoking support of the scientific community, and legitimacy through a strategy of participation. Based on this analysis, we provide a framework for reflection on the claims and strategies of science-based initiatives, and their role and responsibility in governance for sustainable development.This article is part of a special issue on solution-oriented GEAs.     

Flood inundation uncertainty: The case of a 0.5% annual probability flood event

Aging coastal defences around the UK are challenging managers to redesign schemes to be resilient to extreme events and climate change, be cost-effective, and have minimal or beneficial environmental impact. To enable effective design, reduced uncertainty in the assessment of flood risk due to natural variability within the coastal forcing is required to focus on conditions that pose highest threat. The typical UK standard of protection for coastal defences is to withstand a 0.5% annual probability event, historically also known as a 1 in 200 year return period event. However, joint wave-water level probability curves provide a range of conditions that meet this criterion. We examine the Dungeness and Romney Marsh coastal zone, a region of high value in terms of habitat and energy assets, to quantify the uncertainty in flood depth and extent generated by a 0.5% probability event, and to explore which combinations of wave and water levels generate the greatest threat.     

Resilience in practice: Five principles to enable societies to cope with extreme weather events

The concept of resilience is used by many in different ways: as a scientific concept, as a guiding principle, as inspirational ‘buzzword’, or as a means to become more sustainable. Next to the academic debate on meaning and notions of resilience, the concept has been widely adopted and interpreted in policy contexts, particularly related to climate change and extreme weather events. In addition to having a positive connotation, resilience may cover aspects that are missed in common disaster risk management approaches. Although the precise definition of resilience may remain subject of discussion, the views on what is important to consider in the management of extreme weather events do not differ significantly. Therefore, this paper identifies the key implications of resilience thinking for the management of extreme weather events and translates these into five practical principles for policy making.     

Scientists as policy actors: A study of the language of biofuel research

Theory suggests that the influence of science on policy will be greater when scientific discourse is aligned with the language and meaning of wider social concerns. Seeking to assess whether scientists may be guided by such propositions in a controversial environmental policy arena, we examine the language and content of public-facing, UK scientific research grant abstracts on biofuels for the period 2007–2011, comparing these to stakeholder position statements and newspaper articles of the same period. We find that UK scientists have indeed broadly reflected societal concerns about biofuels during this period. However we also find that both science and society have paid less attention to procedural issues. We comment on the implications of the findings for the role of science in environmental policy development.     

Policy implementation of catchment-scale flood risk management: Learning from Scotland and England

Recent years have seen a gradual adoption of a “catchment-scale” approach to flood risk management into European policy-making which, amongst other objectives, promotes rural land use change to reduce flood risk. While some exploratory studies of land managers’ attitudes exist, research is lacking on how public policies can be mobilised locally to implement these ideas. Two local initiatives were analysed in the transboundary River Tweed basin in Scotland and England during which public authorities negotiated with land managers. A combination of documents (N = 21) and interviews (N = 63) forms the basis of the data analysed. The results showed that implementation is highly dependent on the local policy framework, the activities of implementers, and land managers’ responses to (combination of) policy instruments. Several factors were identified influencing implementation such as devolution arrangements (i.e. from national to regional/local), the level of local interest on flood risk, local attitudes to compromise and collaboration, available policy instruments, and the existence of participatory catchment organisations. With limited scope for stand-alone regulatory action or funding in the short term, synergies and measures promoting co-benefits in flood risk management should be further sought in the Water Framework Directive River Basin Management Plans, as well as in cross-compliance and the new agri-environment-climate strategies of the common agricultural policy.     

Historical assessment of Chinese and Japanese flood management policies and implications for managing future floods

Floods are among the world's most devastating natural disasters, causing immense damage and accounting for a large number of deaths world-wide. Good flood management policies play an extremely important role in preventing floods. It is well known that China has more than 5000 years of experience in flood management policy beginning with the reign of DaYu and Gun. Although culturally related, Japanese flood management developed differently from that of China. Under rapid development of civil engineering technology, flood management was achieved primarily through the construction of dams, levees and other structures. These structures were never adequate to stop all floods, and recent climate change driven extreme events are ever more frequently overwhelming such infrastructure. It is important to take a historical perspective of Japanese and Chinese flood management in order to better manage increasingly frequent extreme events and climate change. We present insights taken from an historical overview of Japanese and Chinese flood management policies in order to guide future flood risk management policy.     

Adaptive governance to typhoon disasters for coastal sustainability: A case study in Guangdong,China

Globally, more people and assets are concentrated on the limited coastal plains where they are exposed to frequent disasters, such as typhoons, rainstorms and floods that often result in tremendous casualties and economic losses. Based on the causal analysis of the historical typhoon cases in the Guangdong Province of China, this study indicates that structural measures alone are not sufficient to resist and offset the impacts caused by typhoon disasters. Additionally, structural measures are unsustainable due to their high investment and low security. Adaptive governance, which uses non-structural measures and resilience building, is a feasible and cost-effective strategy for responding to the cascading effects of typhoon disasters. Multi-stakeholder participation and vertical–horizontal coordination are essential for providing adaptive governance to typhoon disasters. A risk-sharing model was put forward by bringing together the government, insurance companies and victims. Furthermore, a favorable atmosphere for public participation in disaster risk reduction can be fostered and should be a long-term adaptation strategy. The views and frameworks of adaptive governance provide policy makers with insights on coastal disaster risk management within the broader context of climate change.     

The conception of public interest in Dutch flood risk management: Untouchable or transforming?

The governance of flood risks varies considerably in different parts of the world. Obviously this is due to the nature and characteristics of flood risks, but in part governance approaches vary because of political differences in the nature of governance itself. What is ‘appropriate’ in this respect depends partly on the prevailing conceptions of the public interest in a country. By applying Alexander’s (2002) categorization of public interest to flood risk management practices in The Netherlands, we show that the strongly unitary conception of the public interest (a historic ‘flood risk safety for all’), is intertwined with a state-based, sector-based, hydro-technical governance and expertise system. Although this conception is very strong it is no longer self-evident. Because of changing conceptions of governance in general and because of the felt necessity to adapt to climate change, Dutch flood risk management is gradually changing. Increasingly, the Dutch government has to deal with more dialogical and utilitarian approaches to public interest in the governance of flood risks. The Dutch approach is rooted in community-based interests in flood protection and was centralized and rationalized during the 19th and 20th century. The current flood risk standards are based upon a coarse utilitarian benefit-cost analysis, but evolved into mostly a unitary idea of national safety materialized in law by statutory flood risk standards. The findings show that this unitary concept and status of the public interest of flood risk safety has not diminished; it must, however, increasingly take into account the importance of both processes of decision making (dialogues, deliberations) and neighboring public interests. We conclude that the Dutch conception of the public interest on flood safety is still strong but nevertheless gradually changing, not the least because of a general availability of the information and technology to calculate and differentiate risks.     

A framework and indicators for evaluating policies for conservation and development: The case of wildlife management units in Mexico

The Mexican government has an innovative policy model for biodiversity conservation and rural development that includes permissible use of wildlife within a System of Land Management Units (SUMA, by its Spanish acronym). This co-management approach has been successful in terms of landowner participation, since the SUMA currently covers 38.2 million hectares (nearly 20% of Mexican territory). However, after 18 years of implementation, there has been no comprehensive evaluation by which to assess its effectiveness at national level. This article introduces the SUMA policy, its implementation and outcomes, and proposes a framework for conducting institutional monitoring and evaluation within an adaptive co-management approach. Our methodology comprised analysis of the achievements and challenges reported through interviews with stakeholders, journals and grey literature, and a review of the SUMA Information System (SIS) and its decision-making information needs. As result we have developed a set of 40 environmental, social and economic indicators grouped into five distinct but complementary dimensions within a sustainability framework: (I) Biodiversity conservation,(II) Wildlife management, (III) Economics, (IV) Social welfare and (V) Administration. These indicators can be incorporated into the SIS in order to support program evaluation and strengthen decision-making. Our article provides specific pathways for developing policy-oriented evaluation systems for worldwide biodiversity and conservation initiatives.     

A framework for assessing and implementing the co-benefits of nature-based solutions in urban areas

To address challenges associated with climate resilience, health and well-being in urban areas, current policy platforms are shifting their focus from ecosystem-based to nature-based solutions (NBS), broadly defined as solutions to societal challenges that are inspired and supported by nature. NBS result in the provision of co-benefits, such as the improvement of place attractiveness, of health and quality of life, and creation of green jobs. Few frameworks exist for acknowledging and assessing the value of such co-benefits of NBS and to guide cross-sectoral project and policy design and implementation. In this paper, we firstly developed a holistic framework for assessing co-benefits (and costs) of NBS across elements of socio-cultural and socio-economic systems, biodiversity, ecosystems and climate. The framework was guided by a review of over 1700 documents from science and practice within and across 10 societal challenges relevant to cities globally. We found that NBS can have environmental, social and economic co-benefits and/or costs both within and across these 10 societal challenges. On that base, we develop and propose a seven-stage process for situating co-benefit assessment within policy and project implementation. The seven stages include: 1) identify problem or opportunity; 2) select and assess NBS and related actions; 3) design NBS implementation processes; 4) implement NBS; 5) frequently engage stakeholders and communicate co-benefits; 6) transfer and upscale NBS; and 7) monitor and evaluate co-benefits across all stages. We conclude that the developed framework together with the seven-stage co-benefit assessment process represent a valuable tool for guiding thinking and identifying the multiple values of NBS implementation.