fm-s201-overview of integrated flood management by john porter

7/30/2019 FM-S201-Overview of Integrated Flood Management by John Porter

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Introduction to a Framework for

Flood Risk Management

Dr John Porter



For good management of flood risk, it is useful to have a strategic

framework that facilitates comprehensive consideration of flood risk

and its management – i.e. not only the range of measures that can be

implemented to mitigate flood risk; but also the institutional, social and

administrative conditions necessary for effective management and

implementation of measures.

A coherent framework should also help us piece together all the disparate

messages that we receive at a forum such as this, and place them in context

for the important work that we must do in disaster risk reduction and the

alleviation of human suffering.

The framework described in my presentation was used as the framework

for flood risk management in ADB assistance to the Chinese Ministry of

Water Resources to assist them develop a National Flood Management

Strategy for China (ADB TA4327-PRC, 2005)



A good place to start if we want to prepare a

strategic framework for managing flood risk is

to define flood risk.

What is flood risk?

There is no one definition of flood risk, but one thatproves very useful for a strategic framework is

RISK = HAZARD x EXPOSURE x VULNERABILITY

These are terms derived from the insurance industry.

HAZARD

VULNERABILITY

EXPOSURE




Having defined risk (as above), a clear understanding of

the terms in the equation is required to distinguish

them.

Before proceeding to consider these terms in the context of floodrisk, it may be useful to consider another type of risk, one that

most of us experience every day.

The example I want to consider is traffic risk.




TRAFFIC RISK

1. HAZARD

There is (virtually) no traffic hazard if you are relaxing in your

house or backyard.

There is low to moderate hazard if you are on the footpath.

There is much greater hazard if you are on the road.

So the degree of hazard depends on location.

The hazard on the road can be reduced by good road design

and construction; the hazard is increased if you drive at

faster speed, and may be reduced if you drive with caution.

So the degree of hazard also depends on institutional and

social factors.




TRAFFIC RISK

2. EXPOSURE

Let’s consider the case of a pedestrian:

You are not exposed to the hazard if you use the pedestrianoverpass; but you are very exposed to the hazard if you try to

cross the street at road level.

So, again, there are institutional and social dimensions to

managing exposure:First, your government has to provide the overpass, and then

you have to use it.




TRAFFIC RISK

3. VULNERABILITY

This time, let’s consider road users.

You are more vulnerable (to personal danger or property damage)

if you ride a motorcycle than if you drive a car.And you are less vulnerable if you drive a big truck.

When riding a motorcycle, you are less vulnerable if you

wear a helmet.

When driving a car, less vulnerable if you use seat belts.

In a truck, more vulnerable if your tyres are smooth and have no

tread.

In this case, your vulnerability depends on your awareness of risk

and your preparedness.

Government also plays a role reducing vulnerability with things like

traffic lights, median strips and barriers.




Hazard is a potential for harm, loss or damage.Hazard exists wherever land is liable to flooding.Hazard increases with probability and depth of inundation, and

with velocity of flow.


Hazard is a potential for harm, loss ordamage.

Hazard exists wherever land is liable toflooding.

Hazard increases with probability and depthof inundation, and with velocity of flow.

Vistula River,

Poland




Exposure

Even where a hazard exists,

there is no risk unless there are

assets that can be damaged,

or there is danger because

people live in, work in, or

simply transit through the

location of flood hazard.

Exposure to flood hazard createsthe potential for personal

danger or property damage to

occur during floods.Brisbane,

Australia




The consequences of flooding – and therefore the risk – alsodepends on how vulnerable people and their assets are to danger

and damage.

Vulnerability can be reduced if people and authorities: take appropriate precautions in advance of flooding, know what to do to limit danger and damage during floods, and receive adequate warning and appropriate assistance during and

after floods.

Jiangxi Province,

China



Defining flood risk as


is very useful because the measures we use in floodmanagement can be regarded as modifying (reducing)

one of these 3 key elements of risk.

MODIFYING HAZARD

Flood control dams

Detention basins

Levees or dikes

Flood diversion channelsRiver channel

improvements

Upper watershed

management

MODIFYING EXPOSURE

Zoning of land use

Property acquisition

Planning development

controlsBuilding codes

Resettlement

Building on platforms or

stilts

MODIFYING VULNERABILITY

Flood monitoring and warning

Flood forecasting

Emergency response plans

Community awarenessCommunity preparedness

Post-flood recovery &

reconstruction

Flood insurance

STRUCTURAL NON-STRUCTURAL



Comprehensive flood risk management must

therefore consider treatment of all three elements

of flood risk:

HAZARD

EXPOSURE

VULNERABILITY



Consideration of flood risk as the product of

Hazard x Exposure x Vulnerability

only deals with what we do to manage flood risk.

A strategic framework for flood risk management

must also consider how we organize and how we

plan for management of flood risk.It should also consider the impacts of what we do

on the environment and the community.

Therefore, other important dimensions of a strategicmanagement framework are:

INSTITITIONAL FOUNDATION

PLANNING METHODOLOGY or STRUCTURE

EXOGENOUS IMPACTS (social & environmental)



INSTITUTIONAL FOUNDATION

LEGISLATION

POLICY

ORGANIZATIONAL

STRUCTURE

INSTITUTIONAL

CAPACITY

FUNDING

EDUCATION &

PROFESSIONALTRAINING




Typically, responsibilities

relevant to floodmanagement arefragmented betweenmultiple governmentagencies. Ef f e c t i v e p a r t n e r s h i p

b e t w e e n a g e n c i e sd i r e c t e d t o w a r d

c o o r d i n a t e d m a n a g e m e n t

o f f l o o d r i s k i s o n e o f

t h e g r e a t e s t i n s t i t u t i o n a l

c h a l l e n g e s .



PLANNING METHODOLOGY

A well structured method is recommended to capture the

strengths of integrated flood management through:

r i g o r o u s t e c h n i c a l a n a l y s i s ,

c o m p r e h e n s i v e a s s e s s me n t o f p l a n n i n g o p t i o n s ,

appra isa l s based on the t r ip le bot tom l ine o f

s u s t a i n a b l e d e v e l o p m e n t (economic viability, social

equity and environmental acceptability),

benef i t - cost ana lys i s and

s t a k e h o l d e r p a r t i c i p a t i o n .



C O N S U L T A T

I O N

P R O C E S S

PRELIMINARY PHASE

Identify & Quantify Flood Risk estimate hydrological risk hydraulic model analysismap existing flood hazard & land use

TECHNICAL ANALYSIS

Identify Alternative Flood Management Optionscombinations of structural & non-structural measuresevaluate future risk consider how to manage residual risk

Appraisal of Impactseconomic analysistangible & intangible social benefits / disbenefitsenvironment – adverse impacts & opportunitiesrobustness, resilience to future uncertainty

APPRAISAL PHASE

Recommend Preferred Optionrefine analysis; examine assumptions

document plan

FLOODMANAGEMENT PLAN

APPROVAL

IMPLEMENTATION

Define Management Objectivescollect data

Understand Planning Contextpopulation characteristicsproperty & infrastructureinstitutional arrangementsplanning instruments

PLANNING

METHODOLOGY

PLANNING



PLANNING component of the framework

Structured Planning Methodo Definition of management objectives – start with desired

outcomes, not a proposed solution

o Understanding of the planning context – consider pre-existing plans & local factors

o Identification & quantification of flood risk: technical analyses

o Identification & consideration of alternative ways to manage theflood risk – different options comprising packages of FMmeasures

o Appraisal of impacts –

economic, social & environmental benefits& costs

o Recommendation of a preferred option – refinement of solutions;closer examination of assumptions; documentation

o Stakeholder participation – opportunity for consultation at each

step of the process

PLANNING

METHODOLOGY



PLANNING METHODOLOGY

RIVER BASIN MASTER PLANS

SUB-BASIN MASTERPLANS

e.g. - tributaries

- river reaches(over several local govt jurisdictions)

- lake / wetland

complexes

URBAN DRAINAGE

MASTER PLANS

for internal drainageof cities to mitigateurban flooding

RURAL DRAINAGEMASTER PLANS

to mitigatewaterlogging of agricultural land

PROJECT PLANNING

to mitigate specificflooding problems,either at single or jointlocal government scale



EXOGENOUS

IMPACTS

SAFEGUARDS & SUSTAINABILITY

Social impacts may be positiveor negative, and attention mustbe directed during planning anddesign to avoid or mitigateadverse impacts, and enhancebeneficial outcomes. Inparticular, impacts on thosedisplaced or resettled, onindigenous groups, on thedisabled, aged or infirm, or ongender groups need to be

examined and assessed.

Environmental impacts may includeunintentional but foreseeableimpacts on the physical

environment, or on the biosphere.



EXOGENOUS

IMPACTS

Safeguards:

Environmental protection safeguards

Location and storage of hazardous materials

Involuntary resettlement social safeguards

Indigenous peoples’ social safeguards

Assessments of the social implications for

gender (women’s issues)

Assessments of social implications for disabled,

infirm or disadvantaged persons

Locations of strategic community services

PLANNING




PLANNING

FLOOD HAZARD

EXPOSURE

VULNERABILITY

Flood Control Works

Structural planning & design

Asset maintenance:

monitoring condition

rehabilitation /upgrading

funding

Operations:decision support systems

communications systems

data acquisition networks

integration with WR management

env.management

Catchment ManagementSoil conservation

Upland land use management

Land Use Management

flood hazard zoning

land use planning controls

property acquisitions

resettlement

Flood forecasting

hydrological models

hydraulic models & DTMs

flood hazard maps

data acquisition networks

Flood warning & emergency response

communications systemspreparedness exercises

decision support systems

Post-flood recovery

support services: health, counseling

material support: food, shelter

infrastructure repairs

financial assistance & incentivescompensation / flood insurance

Land Use Management

building regulations

River basin master plans

Project proposal planning & appraisal

: risk assessment

: appraisal of alternative options

Planning for emergency response

Planning for post-flood recovery

Urban drainage master plans

Rural drainage master plans

Partnerships: across levels of government Restructuring: enhancing coordination

between different levels of governmentLegislation: clarifying mandates Training / awareness / capacity building



ENVIRONMENTAL

SAFEGUARDS

SOCIAL

SAFEGUARDS

GENDER

ISSUES

INDIGENOUS

PEOPLES’

SAFEGUARDS

COMMUNITY CONSULTATION



This strategic framework for flood risk management isexplained in more detail in a booklet produced by ADB this year.

http://www.adb.org/publications/flood-risk-management-peoples-republic- china-learning-live-flood-risk



Key requirements to make it effective are

LEGISLATION THAT CLEARLY DELEGATES ROLES AND

RESPONSIBILITIES

A KEY COORDINATION ROLE MANDATED FOR ONE LEAD

AGENCY IN FLOOD RISK MANAGEMENT (or DISASTER

RISK MANAGEMENT) WITH STRONG POWERS TO

OBLIGE PARTICIPATION BY ALL STAKEHOLDERS IN

JOINT PLANNING

BROADER STAKEHOLDER PARTICIPATION THROUGHCOMMUNITY CONSULTATION DURING THE PLANNING

PROCESS

There is the strategic framework for flood risk management.

A sound institutional foundation is of crucial importance.



CBFRM refers to those things that communities – working in

groups or as individuals – can do to organize and helpthemselves and others.

CBFRM has become a field of study in itself. Key objectives

are:

o raising public awareness of flood risk;

o maintaining preparedness so that families and

communities can respond appropriately during flood

emergencies; and thereby

o increase personal safety and reduce damage and

economic loss.

Without doubt, CBFRM is important. NGOs have an

important role to play.

But a point I want to make, or an opinion I want to share, is

that it is difficult to sustain without a top-down / bottom-

up approach.

COMMUNITY-BASED FLOOD RISK MANAGEMENT



COMMUNITY-BASED FLOOD RISK MANAGEMENT

Government inputs may be critical for establishment of CBFRM, and

ongoing government support will strengthen and sustain it.

There are many services that government should provide during

flood disasters and during post-flood recovery – flood forecasting

& warning; rescue & safe refuge; monitoring of flood managementinfrastructure; temporary food, clothing & financial assistance;

reconstruction; etc.

These are all services that the government renders to the community,

and they will be most effective if they are conducted in genuine

partnership with the communities being served. And the initiatives

that communities may take themselves, under CBFRM, will also be

more effective if integrally linked to the services that government

can provide.



I did notice the title of this session was Overview of

Integrated Flood Management ; so I should close by saying

something more about integration in flood management.

There are 3 main aspects of this integration in my view:

1) SPATIAL INTEGRATION

2) FUNCTIONAL INTEGRATION

3) ADMINISTRATIVE INTEGRATION

. . . and that’s just about a reverse order of degree of difficulty.

INTEGRATED FLOOD MANAGEMENT



1) SPATIAL INTEGRATION

This is familiar stuff. If you build a levee/dike on the left

bank, you must consider what happens on the other bank.

If you build levees/dikes on both banks, you shoulddetermine the impacts of increased water levels upstream –

and, because floodplain storage may have been decreased,

you should consider possible impacts of increased flow

velocities and flood peaks downstream.

It’s about upstream–downstream impacts, left bank–right bankimpacts, impacts of tributaries on main streams, etc.

It’s the reason why flood management planning is best

undertaken at a river basin scale, i.e. not at local government

district scale.




2) FUNCTIONAL INTEGRATION

This relates to the fact that flood management is not a management

activity that can be conducted in isolation.

The most obvious example is IWRM or water resources

management, because flood management is a sub-set of IWRM and planning needs to undertaken within the broader

context of IWRM. e.g. multi-purpose reservoirs

Another important example is Land Use Management, or

spatial planning. One thing I like to emphasize is that flood

management is not just about water management; it’sequally much about land management. Floods occur when the

water regime expands beyond its ‘normal’ spatial limits, and inundates land

that is ‘normally’ used for something.

Functional integration also relates to social planning and environmental

planning. e.g. levees, livelihoods




3) ADMINISTRATIVE INTEGRATION

I touched on this before. And it’s related to functional integration.

Because flood management is so multi-disciplinary and affects so

many aspects of governing, and because governments always

divide administrative responsibilities between

departments/ministries, good flood management requires joint

efforts and real partnership.

Exceedingly difficult.

Ideally, requires v. high level Task Force, with authority delegated by

an even higher (highest) level.




Thank you

Dr John Porter

fm-s201-overview of integrated flood management by john porter

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