beyond the 100-year floodplain: … serra -llobet . g. mathias kondolf . university of california,...

Anna Serra-Llobet

G. Mathias Kondolf

University of California, Berkeley - 10 March 2014

BEYOND THE 100-YEAR FLOODPLAIN: EXPERIENCES IN EUROPEAN FLOODPLAINS

UNDER THE FLOODS DIRECTIVE

Association of State Wetland Managers - Webinar

Index

About the EU

Flood Management Policy Instruments at EU level

Comparing the EU & the US

Conclusions

About the EU

PART 1

The EU is a unique economic and political partnership between 28 European countries that together cover much of the continent.

What’s the European Union?

A b

o u

t

t h

e

E U

Member States: 6 in 1957 – 28 in 2013

Regions: >270 Inhabitants: >507 millions

Official languages: 25

Currency: € in 20 MS

What’s the European Union?

A b

o u

t

t h

e

E U

Who is who in the European Union?

A b

o u

t

t h

e

E U

European Commission José Manuel Barroso

European Parliament Martin Schulz

Council of the EU Antonis Samaras (Greece)

European Council Herman Van Rompuy

High Representative Catherine Ashton

for Foreign Affairs

Legislative procedure (the institutional triangle)

A b

o u

t

t h

e

E U

Commission

(proposes legislation)

Council Parliament (co-decision)

Legislation implemented in Member States

EU

The body of the EU law: ‘Acquis Communautaire’

A b

o u

t

t h

e

E U

Primary legislation Treaty establishing the European Coal and Steel Community (while existed) (ECSC) Treaty establishing the European Economic Community (EEC) Treaty establishing the European Atomic Energy Community (EURATOM)

Secondary legislation

Regulations Directives Decisions Recommendations and opinions

Case-law

Flood Management Policy Instruments at a EU level

PART 2

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EU

Water Policy

Water Framework Directive (2000/60/EC)

Floods Directive (2007/60/EC)

The Blueprint to Safeguard Europe’s Water Resources (2012)

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EU Water Policy

Water Framework Directive (2000/60/EC)

1

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EU Environmental Policy

1970-nowadays

First European water directives, mainly focused on water quality.

Water management according to administrative or political boundaries.

Recent economic, political and social changes related to European water management launched a radical reform of water legislation in the EU.

This process ended with the creation of the Water Framework Directive in 2000 and the Floods Directive in 2007.

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EU Water Policy

Water Framework Directive (2000)

Goal

Protecting all water bodies, including transitional waters and coastal waters.

Covering all impacts on waters.

Achievement of “good status” in all water bodies and no deterioration of status (by 2015).

River Basin

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EU Water Policy

Water Framework Directive

Main objective: Good status in 2015

Ecological status (for surface water)

Chemical status (for surface / ground water)

Quantitative status (for ground water)

No deterioration of the status

Objectives:

preventing and reducing pollution,

promoting sustainable water usage,

environmental protection

improving aquatic ecosystems

mitigating the effects of floods and droughts.

2015

Good status

WFD 2000

6 years approach

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EU Water Policy


Key elements:

Ecological status

River Basin

Exemptions

Achievement of good status in all water bodies and no deterioration of status (by

2015).

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EU Water Policy


Key elements: (1) Ecological Status

What is “good ecological status”?

The WFD classification scheme for water quality includes five status classes: high, good, moderate, poor and bad.

The definition of ecological status takes into account specific aspects of the biological quality elements, for example “composition and abundance of aquatic flora” or “composition, abundance and age structure of fish fauna” (see WFD Annex V Section 1.1 for the complete list).

The “Ecological Status” Concept

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EU Water Policy


Key elements: (2) River Basin

WFD requires water management by river basin - the natural geographical and hydrological unit - instead of according to administrative or political boundaries.

Country 2

Country 3

Country 1

The “River Basin” Concept

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EU Water Policy


Key elements: (3) Some exemptions to 2015 deadline allowed for socio-economic considerations

Permitted Exemptions

If technical infeasibility or disproportionately expensive to achieve good status by 2015 can:

Delay to 2021 or 2027, or

Lower objectives.

Artificial or heavily modified bodies of water, have to achieving good ecological potential (lower objective) and good surface water chemical status by 2015.

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EU Water Policy


2004

River Basin Management Plans

2015

River Basin Assessment

WFD 2000

River Basin Districts

2009

1

2

3 6 years approach

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EU Water Policy


River Basin Districts 1

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EU Water Policy



RBMP adopted Consultation have not started or ongoing (20 Sept 2013)

3 River Basin Assessment 2

Summer 2002 flood of the Middle Elbe (Germany) (Source: SCIENCE DAILY / Photo: André Künzelmann/UFZ)

Summer 2002 flood of the Middle Elbe (Germany) (Source: SCIENCE DAILY / Photo: André Künzelmann/UFZ)

Since 1998 floods in Europe have caused some 700 deaths, the displacement of about half a million people and at least €25 billion in insured economic losses

WFD 2000

Water Framework Directive was not

enough…

Water Framework Directive was not

enough…

Need for a Floods Directive!

WFD 2000

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EU Water Policy

Floods Directive (2007/60/EC)

2

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EU Water Policy

Best Practices on Flood Prevention, Protection and Mitigation (2004)

• Flood events are part of nature

• Society has become more vulnerable to natural hazards (exposure to risk and vulnerability in flood-prone area have been growing constantly)

• The probability of flooding is expected to increase

• Flood protection is never absolute

• Mitigation and non-structural measures should be enhanced according to this new approach.

• However, structural measures (defense structures) will remain important elements in flood management in Europe.

• But, the concept of residual risk, including potential failure or breach, should therefore be taken into consideration.

• Rivers don’t recognize national borders: river basin management approach

Flood Directive

The Directive 2007/60/EC on the assessment and management of flood risk entered into force on 26 November 2007.

Objective: to reduce and manage risks which floods pose to human health, the environment, infrastructure and property.

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EU Water Policy

2015

FD 2007

6 years cycle

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EU Water Policy

Flood Directive

2013

Preliminary Flood Risk Assessment

2015

2011

Flood Risk Management Plans

Flood Hazard & Risk Maps

FD 2007

The Directive defines a 3-stage approach, which is to be repeated in a cyclic process.

1

2

3

Floods Directive

Key issues:

Information on past floods

systematic collection of related information on past floods in reporting of this step (e.g. historical maps)

Assessment of man-made flood defence structures

Consideration of the impact of climate change on the occurrence of floods

Result: Identification of areas of potential significant flood risk

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EU Water Policy

Preliminary Flood Risk Assessment (art 4-5) 2011 1

Floods Directive

Results:

Areas of potential significant flood risk (e.g. Inland Basins in Catalonia, Spain)

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EU Water Policy

1 Preliminary Flood Risk Assessment (art 4-5) 2011

500-year flood

100-year flood 10-year flood

Ordinary flood

Normal stream flow

e.g. Spain

Floods Directive

Key issues: Flood hazard maps

3 Scenarios:

High probability

Medium probability (≥100 years RP)

Low probability, where appropriate

Elements:

the flood extent

water depths or water level, as appropriate

where appropriate, the flow velocity or the relevant water flow

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EU Water Policy

Flood Hazard & Risk Maps (art 6) 2013 2

Floods Directive

Key issues: Flood risk maps

Elements:

Maps showing population, economic activities, and the environment at potential risk from flooding.

Other information which the Member State considers useful such as the indication of areas where floods with a high content of transported sediments and debris can occur and information on other significant sources of pollution. (climate change, growing population,…)

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EU Water Policy


500-year flood

100-year flood 10-year flood

Ordinary flood

Normal stream flow

e.g. Spain

Floods Directive

Results:

Flood Hazard Maps Flood prone area 10, 100, 500 RP

Flood Risk Maps Flood prone area + land use maps

(population, economic activities & environment at risk)

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EU Water Policy


Floods Directive

Approach: Handbook on good practice on flood mapping in Europe.

Although these documents do not constitute any form of guidance on how the requirements of the Directive can be fulfilled, neither do they necessarily express the views of the European Commission, they give an insight in current practices across the EU.

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EU Water Policy


Floods Directive

Key issues :

Member States shall establish:

appropriate objectives for the management of flood risks and

include measures for achieving those objectives …

focusing on the

reduction of potential adverse consequences of flooding … and, if considered appropriate,

on non-structural initiatives and/or on the reduction of the likelihood of flooding.

shall address all aspects of flood risk management focusing on

prevention, preparedness and protection

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EU Water Policy

Flood Risk Management Plans (art 7) 2015 3

Floods Directive

Key issues :

shall take into account relevant aspects such as :

costs and benefits, areas which have the potential to retain flood water, such as flood plains,

the environmental objectives of Article 4 of Directive 2000/60/EC, nature conservation and water management, soil, spatial planning and land use, navigation and port infrastructure.

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EU Water Policy


EU Water Policy

Floods Directive Water Framework Directive PFRMs Flood Maps FRMPs RBMPs (Article 4. NWRM)

Legislation transposed and implemented Spatial Planning

National

EU Nature Conservation Policy (Soil Strategy, Biodiversity, GI, Habitats, Forest Strategy, Renewable Energy,…) EU Common Agriculture Policy EU Climate Change Policy EU Coastal Zones Policy EU Cohesion Policy EU Research

EU legislation

Better Env. Options for FRM

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EU Water Policy

Floods Directive

Key issues :

may also include the promotion of : sustainable land use practices, improvement of water retention the controlled flooding of certain areas in the case of a flood event.

“Solidarity clause” measures cannot be taken by a MS which increase flood risk up or downstream

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EU Water Policy


Preparation

Prevention

Event

Response

Recovery & Rehabilitation

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Summary

Protection (=US Mitigation)

& Communication

1. Prel. Flood Risk Assessment

TRADITIONAL FLOOD MGM MEASURES: • Structural measures (+CBA) + “Nonstructural” measures (water proofing, ,…)

Land use management

Flood emergency plans

Emergency coordination center

Insurance

2. Flood Hazard & Risk Maps 3. FRM Plans (choose measures)

NATURAL FLOOD MGM MEASURES (natural water retention measures): • Reforestation • Restoration or rehabilitation of water courses, floodplains and wetlands • Increasing soil retention and groundwater recharge • Sustainable urban drainage systems (urban green infrastructure)

River Basin Confederations

Urbanism Department

Civil Protection

Insurance Companies

Civilians


Integrated Flood Risk Management

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Summary

River Basin Confederations

Urbanism

Civil Protection

Insurance Companies



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EU Water Policy

River Basin Mgmt Plans


Flood risk assessment

2011, 2017,…


Flood hazard & risk mapping

every 6 year after

2015, 2021,…

2013, 2019,…

Floods Directive

There is no EU Insurance Program

Insurance systems are different in each MS

E.g. Spain

Consorcio de Compensación de Seguros (national funds for disaster relief)

Insurance promotion at flood risk areas

Subsidies for farming and agriculture

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EU Water Policy

The EU Insurance System

Floods Directive

Coordination (art 8 and 9)

Article 8 : Coordination in the river basin districts

RBD, National, shared between EU member States and shared with third countries.

If coordination fails – “conflict resolution mechanism”.

Article 9 : Coordination and synchronisation with the WFD Flood Hazard and Risk Maps Characterisation of the RBD (Art 5) Flood Risk Management Plans River Basin Management Plans (Art 13) P

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I n

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s

EU Water Policy

Floods Directive

Public information, consultation, reporting (art 9, 10, 15)

Three main products shall be made available to the public & be made available to the Commission (website: WISE!)

Active involvement of interested parties in preparation of the plans

Public participation for the plans shall be coordinated as appropriate with the WFD

Timetable for consultation (22.12.2012)

Main issues (22.12.2013)

Draft FRMP for consultation (22.12.2014)

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EU Water Policy

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Water Information System for Europe (WISE)

EU Water Policy

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Floods Directive viewer (under construction)

EU Water Policy

Flood Directive

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Flood hazard & risk mapping

Sistema Nacional de Cartografía de Zonas Inundables (Source: SMAAMA, 2013)

Spain

This website includes different kind of risks: technological, natural,…

Flood prone zones 500RP

Potentially flooded areas

(Residual Risk)

Catalonia, Spain

Risk Maps Civil Protection Catalonia Website: http://taure.icc.cat/pcivil/map.jsp

http://taure.icc.cat/pcivil/map.jsp

http://taure.icc.cat/pcivil/map.jsp

UK

If you click on the map you know the level of risk and what you are supposed to do

Flood Maps Environment Agency UK Website:http://www.environment-agency.gov.uk/homeandleisure/37837.aspx

http://www.environment-agency.gov.uk/homeandleisure/37837.aspx





The Netherlands

Risk Maps (Risicokaart), Rijswaterstaad Ministry of Infrastructure and the Environment Website: http://risicokaart.nl/en/informatie_over_risicos/overstroming/

http://risicokaart.nl/en/informatie_over_risicos/overstroming/





Individual risk map (not online): From USACE, 2011 Report available at: http://www.iwr.usace.army.mil/Portals/70/docs/iwrreports/2011-R-08.pdf

The Netherlands

Flood Risk Map (The Netherlands)

http://www.iwr.usace.army.mil/Portals/70/docs/iwrreports/2011-R-08.pdf







Flood Risk Map (Catalonia, Spain)

Flood Hazard Map Flood risk map Local emergency plan by river basin by municipality by municipality

Catalonia, Spain

Compulsory

Recommended

Very high

High

Medium

Medium low

Flood prone area

500 RP

Individual + economic risk map (available online): www.gencat.cat/interior/protecciocivil/

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EU Water Policy


GOAL: Member States must aim to achieve “good ecological and chemical status” by 2015.

2015

?

Good status by

‘The achievement of the EU ambitious

water policy goals appears far from

being complete by 2015’ (European

Environment Agency, 2010)

WFD in 2010…

The 2012 Blueprint to Safeguard Europe's Water Resources

WFD in 2010…

‘The achievement of the EU ambitious

water policy goals appears far from

being complete by 2015’ (European

Environment Agency, 2010)

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EU Water Policy

The Blueprint to Safeguard Europe’s Water Resources

(2012)

3

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EU Water Policy

The Blueprint

The Blueprint will synthesise policy recommendations in order to provide the knowledge base to develop the policy options that can deliver better implementation, better integration and completion of EU water policy.

Among these options, focus is be given to water-related green infrastructure measures, also called ‘natural water retention measures’.

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EU Water Policy

The Blueprint

Natural water retention measures consist of:

• reforestation

• the restoration or rehabilitation of water courses, floodplains and wetlands

• sustainable urban drainage systems (urban green infrastructure)

• increasing soil water retention and groundwater recharge

The objective is to slow down or reduce the flow of water downstream leading to a more natural flow regime within a catchment.

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EU Water Policy

The Blueprint

Time horizon 2020, longer time span up to 2050

‘EU 2020 Strategy’: A strategy for smart, sustainable and

inclusive growth in Europe (Resource Efficiency Roadmap)

WATER POLICY

& the EU CRISIS

Who is going to pay for it?

WATER POLICY

& the EU CRISIS

Different mechanisms:

• Member States (national funds)

• EU Common Agricultural Policy

• Structural and Cohesion Funds

Who is going to pay for it?

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EU Common Agricultural Policy

Pillar 1 Pillar 2

CAP

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Pillar 1

Market and price support

policies

Direct Payments

Direct subsidy payment for crops and land which may be cultivated with price support mechanisms, including guaranteed minimum prices, import tariffs and quotas on certain goods from outside the EU

Pillar 2

CAP

cross-compliance

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Cross-compliance (since 2005)

Cross compliance is a mechanism that links direct payments to compliance

by farmers with basic standards concerning the environment, food safety, animal and plant health and animal welfare, as well as the requirement of maintaining land in good agricultural and environmental conditions.

The obligation of keeping land in Good Agricultural and Environmental Conditions refers to a range of standards related to soil protection, maintenance of soil organic matter and structure, avoiding the deterioration of habitats, and water management.


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Pillar 1

Rural Development

The Rural Development Regulation payments linked to nature conservation can be used to compensate farmers for income losses incurred due to the establishment of floodplain areas or the restoration of hydro-morphological structures

Pillar 2

CAP

Agri-environmental measures

Flood prevention at Linnich-Körrenzig-Rur (Germany) ( Source: Flood-wise.eu)

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The 2012 CAP reform

Link with river restoration: The 2012? CAP reforms offer several possibilities for flood prevention, especially under the second pillar.


Coastal wetlands and agriculture in Basses d’en Coll (Spain) ( Source: blog.costabravas.fr)

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EU Funds The European Regional Development Fund

The European Social Fund

The Cohesion Fund

The mission: to strengthen economic, social and territorial cohesion by reducing disparities between the levels of development of regions and

countries of the European Union

EU Cohesion Policy

Flood management

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EU Urban and Regional Planning

Interreg IV (2007-2013) Link with river restoration: Cross-border flood mitigation represents one

important aspect of the Interreg initiative.

EU Cohesion Policy

Sustainable Development of Floodplains Project ( Source: www.SDFproject.nl)

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EU Urban and Regional Planning

Interreg IV (2007-2013) e.g. Sustainable Development of Floodplains (SDF) Project

(jan2003-june2008). The SDF involves transnational co-operation and interaction between Germany and the Netherlands that deals with flood prevention and nature development along the Rhine.

EU Cohesion Policy

The SDF project is investing $32 million in relocating dykes, creating new polders, side channels, and in nature development.

Comparing Flood Management Practices in the EU and the US

PART 3

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Summary

EU US

EXPERIENCE

• > 2000 years managing floods

• Only 6 years at a EU level

2007 Floods Directive

533AD Roma Water Law

2000 Water Framework Directive

1824 USACE involved in flood control

• > 200 years managing floods

• 189 years at a Federal level

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Summary

US

FLOOD MANAGEMENT PARADIGMS

1966 - Unified National Program for Managing Flood Losses (UNP) (revised 1979, 1994) Implied a drastic change in flood control policies in the US towards unified federal policy for managing floodplains. In order to redirect federal involvement in flood defence from structural control to a holistic floodplain management approach.

Flood Risk Management

Flood Damage Reduction

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Summary

EU

US

FLOOD RISK MGMT APPROACH & AGENCIES

Preparation

Prevention

Protection

Event

Response

Rehabilitation

Recovery &

Preparation

Event

Response

Mitigation Recovery

RBD: River Confederations (or Water Agencies) & Civil Protection

USACE & FEMA


Some Flood Hazard Mapping, Planning & Communication

(Failure) Risk Assessment (USACE Levee & Dam Safety Program)

? Flood Risk Assessment, Flood Hazard & Risk Maps,

Flood Risk Mgmt Plans & Communication

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Summary

EU WFD (goals for water management)

Protecting all water bodies, including transitional waters and coastal waters.

Covering all impacts on waters.

Achievement of “good status” in all water bodies and no deterioration of status (by 2015).

FD (goals flood risk management)

to reduce and manage risks which floods pose to human health, the environment, infrastructure and property.

US UNP (co-equal goals for floodplain management) reduce loss of life and property from

flooding reduce loss of natural and beneficial

resources from unwise land use.

GOALS

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Summary

EU

WFD/FD (goals flood risk management)

River Basin

US

Administrative

UNIT OF MANAGEMENT

Country 1

Country 2

Country 3

State X

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Summary

US Some exceptions

Mid-Atlantic River Basin Commissions: Interstate Commission on the

Potomac River Basin (1940)

Delaware River Basin Commission (1961)

Susquehanna river basin commission (1971)

Regional Flood Risk Management Team (2009) for the Upper Mississippi

Upper Colorado River Commission (1948)

UNIT OF MANAGEMENT

State 1

State 2

Map of Mid-Atlantic River Basin Commissions (Photo USACE)

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Summary

EU

Top-down

Floods Directive (2007)

US Top-down

National Flood Insurance Program (1968)

APPROACH & LEGISLATION

2013

2015

2011

Flood Management Plans Flood risk assessment


6 years approach Avoid new developments in floodplains

Flood Hazard Mapping

Communication of Flood Risk to People living in floodplains

Updated 1986,1994, 2012

Keep people away from risk

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Summary

EU

Top-down


US Top-down



2013

2015

2011



6 years approach


Updated 1986,1994, 2012

But how about people living in flood prone areas?

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Summary

EU

Top-down


US Top-down



2013

2015

2011



6 years approach Floodplain Management Regulations (Hazard Mitig. Assistance Program)


Flood Insurance

Updated 1986,1994, 2012

Adopted an insurance standard of 1/100yr flood

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Summary

EU

Top-down


US Bottom-up



2013

2015

2011





Flood Insurance

Updated 1986,1994, 2012


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EU

Top-down


US Bottom-up



2013

2015

2011





Flood Insurance

Updated 1986,1994, 2012


Flood maps are a key element for flood risk management

Flood Maps (e.g. Ter River, Spain)

EU

Flood prone zones

500RP

Potentially flooded

areas (Residual Risk)

Current flood risk (including residual risk)

Future flood risk (cc, demog.) 10RP 100RP 500RP

Flood Risk Maps (potential economic, human, env. losses)

10RP 100RP 500RP

Flood Hazard Maps

These are the maps required for all EU territory & have to be updated every 6 years

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by municipality

Flood Maps required in the US

US

100RP 200RP (exceptional) e.g. California

500RP (optional)

Flood Risk Maps (optional) (potential economic and human losses)

NONE

(optional) If you don’t want to join NFIP

or

Flood Hazard Map

(optional) If you want to join NFIP

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These are the only maps required in the US & many are not updated

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Summary

EU

FLOOD MAPS & GUIDELINES

US

Different for each country (sometimes different even within countries) The same for all US

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Summary

EU

FLOOD MAPS VIEWERS

US

?

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Summary

EU

FLOOD MAPS VIEWERS

US

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Summary

EU

FLOOD MAPS & FLOOD MGM MEASURES

US

Event

Flood Risk Assessment, Mapping, Planning & Communication

Preparation

Prevention

Protection

Response

Rehabilitation

Recovery

Land Use Management

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Summary

EU

Different approaches in different member states (e.g. Catalonia, Spain)

FLOOD MAPS & PREVENTION (LAND USE PLANNING)

US

Image credit: Jeesica Ludy

Floodplain (500yRP)

No urbanization at the floodplain!

• collective activities

• constructions for agriculture and farming

• hydraulic infrastructures

All activities at the floodplains need a risk management plan

No link with flood maps Direct link with flood maps (sometimes)

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EU

FLOOD MAPS & FLOOD MGM MEASURES

US

Event

Flood Risk Assessment, Mapping, Planning & Communication

Preparation

Prevention

Protection

Response

Rehabilitation

Recovery

Flood Risk Emergency Plans

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Summary

EU

Different approaches in different member states

Example: Catalonia, Spain

FLOOD MAPS & PREVENTION (LAND USE PLANNING)

No link with flood maps Direct link with flood maps

US

There are no flood emergency plans

Exceptions: San Joaquin County

Flood Hazard Map Flood risk map Local emergency plan

National emergency plan Regional emergency plan

Conclusions

Conclusions

Shift in thinking

WFD and the FD have promoted a shift in thinking in the way water & floods are managed in Europe, with a new integrated approach at a river basin scale.

Conclusions

Problems

However, these Directives do not call for specific measures to be taken. The way in which water/flood management is handled strongly depends on the national approaches. At a national level we can see very different approaches to implement EU Floods Directive.

Conclusions

Flood mapping

While the US was ahead of Europe as a whole in floodplain mapping through the 20th century, the EU member states have arguably pulled ahead of the US in some significant ways since adoption of the EU Floods Directive in 2007.

Conclusions

Flood mapping

Flood mapping and flood risk management plans are evolving significantly in the EU, and may provide compelling models for flood risk management and communication in a holistic way. The EU experience may provide insights to inform the ongoing efforts to address flood risk in the US.

http://ec.europa.eu/environment/water/flood_risk/

For more information:

http://ec.europa.eu/environment/water/flood_risk/

Thank you!

[email protected]

beyond the 100-year floodplain: … serra -llobet . g. mathias kondolf . university of california,...

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