the national flood emergency framework for england...6 part 1 - understanding flood emergency...

The National Flood Emergency Framework For England

www.defra.co.uk

Civil Contingencies Secretariat

Contents

Section 1: IntroductiontotheNationalFloodEmergencyFramework

Section 2: Whatemergencyplannersandrespondersneedtoknowaboutnationalemergencymanagement

Section 3: Whatemergencyplannersandrespondersneedtoknowaboutthelegalframework

Section 4: Whatemergencyplannersandresponderscanexpectfromcentralgovernment

Section 5: Toolsforfloodemergencyplannersandresponders

Section 6: Theimportanceofmulti-agencyplanning

Section 7: Goodcommunicationsareessential:planhowyouwillcommunicateduringanincident

Section 8: Importantaspectsoffloodpreparedness

Section 9: Reservoirsafety

Section 10: Dealingwiththeconsequencesofflooding–healthandenvironmentalconsiderations

Section 11: Floodrescue

Section 12: DetailedguidanceondevelopingaMulti-AgencyFloodPlan(MAFP)

Part One: Understandingfloodemergencyplanningandresponse

Part Two: BeingPrepared

Part Three: Detailedplanningforfloodemergencies

Part one: Understandingfloodemergencyplanningandresponse

5NationalFloodEmergencyFrameworkForEngland

Section 1:IntroductiontotheNationalFloodEmergencyFramework

■■ Flooding–aconstanthazard

■■ Floodinghappens!

■■ Somerecentexamples

– Cumbria2009

– Summer2007

– Otherseriousfloodingevents

■■ NationalFloodEmergencyFramework–whatit’sfor

■■ AframeworkforEngland

■■ NationalFloodEmergencyFramework–whatit’snotfor

■■ NationalFloodEmergencyFramework–who’sitfor?

■■ NationalFloodEmergencyFramework–whatwewanttoachieve

6 Part1-UnderstandingFloodEmergencyPlanningandResponse

Flooding – a constant hazard

Floodingisaconstanthazardtolifeandproperty.Weknowfromthe Environment Agency’s national assessment of flood risk(publishedJune2009)that:

■■ oneinsixhomesinEnglandisatriskofflooding;

■■ over2.4millionpropertiesareatriskoffloodingfromriversortheseainEngland,ofwhichnearlyhalfamillionareatsignificantrisk;and

■■ onemillionofthesearealsovulnerabletosurfacewaterflooding,withafurther2.8millionpropertiessusceptibletosurfacewaterfloodingalone.

Aswellasfloodingfromrivers,theseaandsurfacewater,therearesignificantrisksforsomecommunitiesfromgroundwaterfloodingandwaterfromfailedoroverflowingreservoirs.ThescopeofthisNationalFloodEmergencyFrameworkextendstotheseriskstoo.

Flooding happens!

Floodinghappens.Ithappensmanytimeseachyear–oftentopeople,communitiesandbusinessesthathavesufferedfromfloodinginthepast.Itsseverityhasrangedfromminorinconveniencetodestructionofproperties,businesses,livelihoodsandnormalfamilylife.

NopartofEnglandcanexpecttoescapetheimpactoffloodingentirely.Aswellasthepotentialtocauseseriousharmtohumanhealthandpropertydamage,floodingthreatenswidersocialandeconomicdamageanddisruption.Butitisdifficulttoforecastitsexacttimingortheprecisenatureofitsimpact.Thisuncertaintyisoneofthemainchallengesforpolicymakersandplanners.Measurestopreventandcontrolfloodingrequirecoordinatednational,regionalandlocaleffortandcooperation.

Some recent examples

Cumbria 2009

SeriousfloodingaffectedmanypartsofCumbriainNovember2009.Thisfollowedheavyandsustainedrainfallof12.3inchesin24hours,whichisthehighesteverintheUnitedKingdom.Around1,800propertieswerefloodedwiththeworstaffectedareasbeingCockermouth,Keswick,Workington,KendalandUlverston.Around1,500peopleneededtobeevacuatedfromtheirhomesorbusinesses.Infrastructurewasbadlyaffectedwith6bridgeslostintheCumbriaarea,andanumberofroadandfootbridgesclosedbecauseofconcernsabouttheirstability.PCBillBarkerwasswepttohisdeathwhileonduty.ThepicturebelowgivesanaerialviewoftheextentoffloodinginCockermouth,Cumbria.

Summer 2007

FloodingaffectedmanypartsofEnglandinthesummerof2007.Thewettestsummersincerecordsbegan,withextremelevelsofrainfallcompressedintorelativelyshortperiodsoftime,caused55,000propertiestobeflooded.Around7,000peoplewererescuedfromthefloodwatersbytheemergencyservicesand13peopledied.

ThefloodsalsosawthelargestlossofessentialservicessinceWorldWarII,withalmosthalfamillionpeoplewithoutmainswaterorelectricity.Transportnetworksfailed,adambreachwasnarrowlyavertedandemergencyfacilitieswereputoutofaction.Tensofthousandsofpeoplewererenderedhomeless,andsomebusinesseswereputoutofactionformonthsonend.

Other serious flooding events

Overthelastdecadethesehaveincludedthefollowing:

■■ Theautumnof2000wasthenthewettestsincerecordsbeganin1766.TheheaviestrainfallthatseasonwasacrossEnglandandWales,withatotalof489mmfallingbetweenSeptemberandNovember;themostextremerainfallwasinOctober,whichresultedinextensiveflooding.UKinsuranceclaimsarisingfromthatseason’sfloodsaddeduptoaround£1billion.ManyofthesameareasofsouthernUKfloodedagaininearly2003.

■■ Inthesummerof2004aflashfloodinBoscastle,Cornwall,wascausedbyaround200mmofrainfallinginjust4hours.Morethan150peoplehadtobeairliftedtosafetyand50-60carswerewashedaway–around£50millionofdamagewascaused.

■■ AnotherextremeeventtookplaceinJanuary2005,when100mmofrainfellaroundCarlisleinCumbria.Sointensewastherainthatsurface-waterdrainagecouldnotcopeandfloodingbegan.Thefloodcausedlocalpowercutsandinterruptedboththelandlineandmobilephonesystems.

■■ Thesameyear,2005,sawasimilareventontheNorthYorkshiremoors.Afteraweekendheatwave,onthenightofSunday19JuneNorthYorkshirehadthebestpartofamonth’sworthofrainin3hours.Onefast-flowingfloodthatwentthroughthevillagesofThirlby,HelmsleyandHawnbywascausedby27mmofrainthatfellinjust15minutes.Thefloodwasinplaces2metresdeepanditcarriedcarsalongwithit.

■■ InSeptember2008floodinginMorpethwascausedby150mmofrain(6inches)–3months’worth–fallingontosaturatedgroundandfullrivercatchments.Around1,000homesandbusinesseswereaffectedbythefloodingandnearly250familiestookadvantageofrescuecentresandtemporaryaccommodation.

National Flood Emergency Framework – what it’s for

ThisFrameworksetsouttheGovernment’sstrategicapproachtoachievingtheaimssetoutbelowandisintendedforusebyallthoseinvolvedinplanningforandrespondingtofloodingfrom:

■■ thesea;

■■ rivers;

■■ surfacewater;

■■ groundwater;and

■■ reservoirs.

TheconceptofaNationalFloodEmergencyFrameworkwaspromotedbySirMichaelPittinhisreportonthesummer2007floods.Itspurposeistoprovideaforwardlookingpolicyframeworkforfloodemergencyplanningandresponse.Itbringstogetherinformation,guidanceandkeypoliciesandisaresourceforallinvolvedinfloodemergencyplanningatnational,regionalandlocallevels.Itisacommonandstrategicreferencepointforfloodplanningandresponseforalltiersofgovernmentandforresponderorganisations.

Moreprecisely,thepurposeoftheFrameworkisto:

■■ ensuredeliverybodiesunderstandtheirrespectiverolesandresponsibilities;

■■ giveallplayersinanemergencyfloodingsituationacommonpointofreference-bringingtogetherinformation,guidanceandkeypoliciesinasingleplanningdocument;

■■ establishclearthresholdsforemergencyresponsearrangements;

■■ placeproperemphasisonthemulti-agencyapproachtomanagingfloodingevents;

■■ provideclarityonthemeansofimprovingresilienceandminimisingtheimpactoffloodingevents;

■■ provideabasisforindividualresponderstodevelopandreviewtheirownplans;and

■■ bealong-termassetthatwillprovidethebasisforcontinuousimprovementinfloodemergencymanagement.

Italsoprovidesanationalframeworkwithinwhichorganisationsresponsibleforplanning,deliveringorsupportinglocalresponsesshoulddevelopandmaintainintegratedoperationalarrangementsthatareflexibleenoughtorespondtolocalneedsandcircumstances,whilstprovidingthewiderdegreeofconsistencynecessaryforaneffective,sustainableandequitablenationalapproach.

TheFrameworkwillevolveandimproveovertime,asitistestedbyrealeventsandexercises.WewanttheFrameworktohelpimproveresiliencetoseverefloodingincidentsinEnglandbyprovidingacommonandstrategicreferencepointforfloodplanningandresponse-foralltiersofgovernmentandresponseorganisations.WewanttheFrameworktostrengthenresilienceandresponsetoactualorpotentialseriousand/ordisruptiveflooding.Inshortthekeyoutcomeswewillwanttoseeare:

■■ anationthatismoreresilienttofuturefloodingevents;

■■ responsestofloodingeventsthatarejudgedtobeeffective;and

■■ improvedunderstandingbyallofthewiderimpactsofflooding.

A framework for England

ItisaNationalFloodEmergencyFrameworkforEngland.ButithasbeendesignedtotakeaccountoffloodemergencyplanningandresponseinotherpartsoftheUnitedKingdom,forwhichthedevolvedadministrationshaveresponsibility.Eachofthedevolvedadministrationshavetools,information,adviceandguidancethatyoumight,onoccasions,wanttoreferto.

Ready ScotlandcontainsadviceonhowmembersofthepublicinScotlandcanprepareforallkindsofemergenciesanddisruptiveevents,includingsevere weather.ItincludeslinkstotheScottish Environment Protection Agency’sflooding pages.

TheWelshAssemblyGovernmentisresponsiblefordevelopingflood and coastal risk management policy in WalesandlargelyfundsfloodandcoastalactivitiesundertakenbyoperatingauthoritiesacrossWales.Wales PreparedcontainsinformationontheplansforrespondingtoemergenciesinWales.

TheRivers Agency in Northern Ireland andNI DirectwebsitescontainadviceonhowmembersofthepublicinNorthernIrelandcanreducetheimpactoffloodingontheirhomesandbusinesses.DetailsofhowtoreportafloodingemergencytotheNorthernIrelandFloodingIncidentLinearealsogiven.

National Flood Emergency Framework – what it’s not for

ThisFrameworkprovidesinformationandplanningassumptionstoinformandencouragecontingencyplanning.Butitisnotintendedtoprovidedetailedoperationalguidanceforindividualemergencyplannersorresponders.

ThescopeoftheFrameworkdoesnotextendtorecoveryfromfloodingemergencies.Thereisspecificnationalguidanceonrecoveryfromemergencies,whichcanbeaccessedviathe Cabinet Office’s UK Resilience web resources.

Thisplancoversfloodingfromartificialwaterways/canals.Butinpractice,suchfloodingincidentswouldnormallybelocalisedemergencyincidents.SoBritishWaterways,whichmanagessome2,200milesofwaterways,hasitsownemergencyplansinplacewhichincludedealingwiththebreachofacanalorreservoirembankment.IthasplansthatincludearrangementsforliaisonwithLocalResilienceForums(LRF)andCategory1and2responders(includingemergencyservices).

National Flood Emergency Framework – who’s it for?

ThisinitialversionoftheFrameworkisintendedprimarilyforthoseresponsiblefordevelopingpoliciesandstrategiesorcoordinating,managing,maintainingortestingcontingencyarrangementsforrespondingtoflooding.But,additionally,itwillbeofinteresttothoseseekinggeneralinformationoranoverviewoftheUK’sgeneralpreparednessfor,andplannedresponseto,afloodemergency.

National Flood Emergency Framework – what we want to achieve

Inplanningandpreparingforafloodingemergency,theGovernment’sstrategicobjectivesareto:

■■ protecthumanlifeandalleviatesuffering;and,asfaraspossible,propertyandtheenvironment;

■■ supportthecontinuityofeverydayactivityandtherestorationofdisruptedservicesattheearliestopportunity;and

■■ upholdtheruleoflawandthedemocraticprocess.

TheNationalFloodEmergencyFrameworkisintendedtofocusisonthefirstofthese.Indoingso,itcoversthedevelopment,maintenance,testingand,whennecessary,implementationofoperationalresponsearrangementsthatare:

■■ abletorespondpromptlytoanychangesinalertlevels;

■■ developedonanintegratedbasis,combininglocalflexibilitywithnationalconsistencyandequity;

■■ capableofimplementationinaflexible,phased,sustainableandproportionateway;

■■ basedonthebestavailablescientificevidence;

■■ basedonexistingservices,systemsandprocesseswhereverpossible,augmenting,adaptingandcomplementingthemasnecessarytomeettheuniquechallengesofafloodemergency;

■■ understoodby,andacceptableto,emergencyplannersandresponders;

■■ designedtopromotetheearliestpossiblereturntonormality.

■■ Whatyouneedtoknowaboutnationalemergencymanagement

– Managingacrisis-fromlocalemergencytonationalcatastrophe

– Nationalemergencymanagement:CabinetOfficeBriefingRooms(COBR)

■■ Flooding–localornational?

– Workingcollectivelyattheregionalleveltoplanfor,andrespondto,flooding:RegionalResilienceForums

– Workingcollectivelyattheregionalleveltoplanfor,andrespondto,flooding:RegionalCoordinatingGroupsandRegionalCivilContingenciesCommittees(RCCCs)

■■ Internationalassistancemechanisms

Section 2:Whatemergencyplannersandrespondersneedtoknowaboutnationalemergencymanagement

What you need to know about national emergency management

Anemergency(ordisruptivechallenge)asdefinedintheCivil Contingencies Act 2004isasituationorseriesofeventsthatthreatensorcausesseriousdamagetohumanwelfare,theenvironmentorsecurityintheUnitedKingdom.

Managinganyemergencycomprisesthreemainphases:

■■ preparation(pre-planning);

■■ response(mitigatinganimmediateriskorstoppingthingsgettingworse);and

■■ recovery(alonger-termactivityofrebuilding,restoringandrehabilitatingthecommunity).

Theresponsephasecomprisestwoseparatebutclosely-relatedandoftenoverlappingchallenges:crisismanagementandconsequence(orimpact)management.Thesearebothdesignedtocontrolandminimisetheimmediatechallengesarisingfromanincident.

Crisismanagementinvolvesthephaseoftheresponsethatattemptstopreventoravertanimminentemergency,alongwithworkthatputsinplaceprotectiveorothermeasurestomitigatetheeffectsofanemergency,preventfurtherdamageordisruptionandsecurethescene.Italsoincludesactionstakentoaddresstheimmediateeffectsofanincident–andmayincludemanaginghostagesituations,fightingfires,searchandrescue,caringforthedeadandinjured,providingpublichealthadvice,evacuatingthoseatriskanddisseminatingpublicinformation.Thedurationofthecrisismanagementphasecanvaryfromafewhoursorafewdaystoafewmonths(forexampleinthecaseofanoutbreakofananimaldisease)untilthesituationisbroughtundercontrol.

Consequencemanagementusuallytakeplaceinparalleltocrisismanagementandisconcernedwithstepstakentopreventtheimpactofanincidentescalating.Itincludesmanagingwiderconsequencesandservicessuchasrestoringtransportnetworksorelectricitysupplies,managingcommunityrelationships,andprovidingsheltertodisplacedpersons.

Managing a crisis - from local emergency to national catastrophe

ThelocalresponseisthebasicbuildingblockoftheresponsetoanyemergencyintheUK.Emergencies(ormajorincidents)areroutinelyhandledbytheemergencyservicesandotherlocalresponderswithouttheneedforanysignificantcentralgovernmentinvolvement.Suchemergenciesmayincludemajorroadcrashes,localisedfloodingandmanyindustrialaccidents.Thepolicewillnormallytaketheleadinco-ordinatingthelocalresponsewhereacrimehasbeencommitted,orifthereisathreattopublicsafety.

InEngland,theprimaryresponsibilityforplanningforandrespondingtoanymajoremergencyrestswithlocalorganisations,actingindividuallyandcollectivelythroughLocalResilienceForums

(LRFs)andStrategicCoordinationGroups(SCGs).Publicandprivateorganisationsneedtoworkwithandthroughtheirlocalforumtodevelopplansformaintainingcriticalservicesandbusinesscontinuityduringafloodingemergencyandtorespondtothewiderchallengesthatwillresult.

Alist of LRFsandtheircontactdetailscanbefoundontheUKResiliencewebsite.

Thelocalmulti-agencyresponseisco-ordinatedthroughaStrategicCo-ordinatingGroup(SCG)locatedintheStrategicCo-ordinationCentre(SCC).Thechairofthegroup,whetherapoliceleadorLocalAuthorityChiefExecutive,isoftenknownastheGoldCommander.

Theprincipleofsubsidiarityemphasisestheimportanceoflocaldecisionmakingsupported,wherenecessary,byco-ordinationatahigherlevel.Inordertoaidplanning,furtherunderstanding,andprovideguidancetorespondersandcentralgovernmentplannersonwhentheymightexpectcentralgovernmentinvolvementinrespondingtoanincident,threebroadtypes(orlevels)ofemergencyhavebeenidentifiedwhicharelikelytorequiredirectcentralgovernmentengagement.

ThefulldetailcanbefoundintheConcept of Operations (or CONOPS)–thespecificarrangementsfortheresponsetoanemergencyrequiringco-ordinatedUKcentralgovernmentaction–whichcanbefoundontheCabinetOffice’swebsite.But,insummary,theseare:

Significantemergency(Level1)-requirescentralgovernmentinvolvementorsupport,primarilyfromaleadgovernmentdepartment(LGD),oradevolvedadministration,alongsidetheworkoftheemergencyservices,localauthoritiesandotherorganisations.Thereis,however,noactualorpotentialrequirementforfast,inter-departmental/agency,decisionmakingwhichmightnecessitatetheactivationofthecollectivecentralgovernmentresponse(seebelow),althoughinafewcasestheremaybevalueinusingtheCabinetOfficeBriefingRooms(COBR)complex–seebelowformoreonCOBR-tofacilitatethebriefingofseniorofficialsandministersontheemergencyanditsmanagement.

Examplesofemergenciesonthisscalecouldincludemostsevereweather-relatedproblems.

Seriousemergency(Level2)-isonewhichhas,orthreatens,awideandprolongedimpactrequiringsustainedcentralgovernmentco-ordinationandsupportfromanumberofdepartmentsandagencies,usuallyincludingtheregionaltierinEnglandandwhereappropriate,thedevolvedadministrations.Thecentralgovernmentresponsetosuchanemergencywouldbeco-ordinatedfromtheCabinetOfficeBriefingRooms(COBR),undertheleadershipoftheleadgovernmentdepartment.

Examplesofanemergencyatthislevelcouldincludewidespreadurbanflooding.

Catastrophicemergency(Level3)–isonewhichhasanexceptionallyhighandpotentiallywidespreadimpactandrequiresimmediatecentralgovernmentdirectionandsupport,suchasamajornaturaldisaster,9/11scaleterroristattackintheUK,oraChernobyl-scaleindustrialaccident.Characteristicsmightincludeatop-downresponseincircumstanceswherethelocalresponsehadbeenoverwhelmed,ortheuseofemergencypowerswhererequiredtodirecttheresponseorrequisitionassetsandresources.ThePrimeMinisterwouldleadthenationalresponsefromCOBR.Fortunately,theUKhashadnorecentexperienceofaLevel3emergency,butitisimportanttobepreparedforsuchaneventshouldtheneedarise.

Figure 2.1:Emergencylevels

National Coverage

Cross-Region

Cross-Force

Local response with GO providing two-way channel to central

Govt/LGD

Serious - Level 1LGD led central response.

COBR not involved

Significant - Level 2 Co-ordinated central response led by LGD

from COBR

Catastrophic - Level 3Central direction

from COBR

Single Scene

Regional Coverage

Localresponse

Impact

Minimal Parliamentary Interest significant parliamentary interest dominating party/national debate

Minimal LGD operational Interest through RRT/RO LGD crisis centre collective response central direction

Minimal LGD policy Interest monitoring through RRT LGD actively involved strategic challenge overwhelming

National emergency management: Cabinet Office Briefing Rooms (COBR)

Insomeinstances,thescaleorcomplexityofanemergencyissuchthatsomedegreeofcentralgovernmentsupportorco-ordinationbecomesnecessary.AdesignatedLeadGovernmentDepartment(LGD)or,whereappropriate,adevolvedadministrationwouldbemaderesponsiblefortheoverallmanagementofthecentralgovernmentresponse.Inthemostseriouscases,thecentralgovernmentresponsewouldbeco-ordinatedthroughtheCabinetOfficeBriefingRooms(COBR).

COBRwouldbeactivatedinordertofacilitaterapidco-ordinationofthecentralgovernmentresponseandeffectivedecision-making.Inpractice,theactualresponsetoaspecificemergencywouldneedtotakeintoaccountthenatureofthechallengeandothercircumstancesatthetime.

Ministersandseniorofficials,asappropriate,fromrelevantUKgovernmentdepartmentsandagencies,alongwithrepresentativesfromotherorganisations,asnecessary,arebroughttogetherinCOBRtoensureacommonappreciationofthesituationandtofacilitateeffectiveandtimelydecisionmaking.

WhereCOBRisactivatedinresponsetoano-noticeincident,itsdefaultstrategicobjectivesareto:

■■ protecthumanlife(and,asfaraspossible,propertyandtheenvironment);andalleviatesuffering;

■■ supportthecontinuityofeverydayactivityandtherestorationofdisruptedservicesattheearliestopportunity;and

■■ upholdtheruleoflawandthedemocraticprocess.

TheCOBRstructureisdesignedtobeflexibletoadapttothecircumstancesathand.TheCabinetOfficewould,inconsultationwiththeleadgovernmentdepartment,decideonwhichcomponentsshouldbeactivatedandhowtheymightbestbeused.ItwouldalsoprovidetheSecretariatsupportandensurethatbusinessismanagedeffectivelyacrossallareasofactivityinresponsetotheemergency.

Inpractice,thestartofanemergencywouldalsobethepointatwhichthoughtsshouldturntoconsequencemanagementandtherecoveryworkthatwillbeneededoncetheimmediatedangershavepassed–provided,ofcoursethatthatdoesnotslowdowntheresponseitself.SoanImpactManagementGroup(IMG)maybeformallyestablishedbycentralgovernmentwherethereisaddedvalueinhandlingseparatelytheinputtoconsequencemanagementactivity.TheIMGwouldprovidedetailedco-ordinatedadviceonallaspectsoftheGovernment’scontributiontotheemergencyresponseandwouldensurethatarecoverystrategy,includingestablishmentofaRecoveryGroup,isputintoplaceandendorsed.OnceaRecoveryGroupisestablished,theroleoftheIMGinrecoverywouldcease.ThistransitionwouldtakeplaceinconsultationwiththeCabinetOfficeandtherelevantLeadGovernmentDepartments.

Flooding – local or national?

Thetableoverleaf(figure2.2)givesabroadindicationofwherefloodingeventsmatchuptonationalCONOPS.ButexperiencehasshownthatthemediaandpoliticalresponsetofloodingeventscanescalatebeyondthelevelofinvolvementwhichDefra,asLeadGovernmentDepartment,mightbeexpectedtohaveifCONOPSistheonlyreference.Inpractice,factorssuchasmediaresponse,numberofpropertiesflooded,depthoffloodingandimpactoncriticalinfrastructurewilldeterminetheleveltheemergencyresponseandLeadGovernmentDepartmentinvolvementandrole.

Forexample,theeventatBoscastlein2004wouldbeclassedas“local”ontheCONOPSscale,butittriggeredmajormediainterestand,consequently,significantactivityacrossGovernment.Thesummer2007floodsmightwellberegardedasLevel2,but,inpractice,itwasthePrimeMinisterwhochairedmostCOBRmeetings.A1953typeflood(whenover300diedandtherewaswidespreaddestructionoverlargeareas)mightbeclassedasaLevel3event.Sotoomightafuturemajortidalsurge,ordamfailureaffectingamajorconurbationorcriticalinfrastructure.

Figure 2.2: CONOPSlevelsemergency

Level of emergency

Description Levelofengagement

3: Catastrophic Ahighandpotentiallywidespreadimpactandrequiresimmediatecentralgovernmentdirectionandsupportsuchasa9/11scaleterroristattackintheUK,oraChernobylscaleindustrialaccident.

Floodingexample:floodsaffectinganumberofregions;thousandsofdisplacedpersons;seriousdamagetocriticalinfrastructure.

COBR/CivilContingenciesCommittee.PrimeMinisterornominatedSecretaryofStateleadsintheeventofacatastrophicincidentrequiringtheinvolvementofcentralgovernmentfromtheoutsettodeliveraneffectiveresponse,orwhereEmergencyPowersareinvoked

2: Serious Has,orthreatens,awideandprolongedimpactrequiringsustainedcentralgovernmentco-ordinationandsupportfrommanydepartmentsandagencies.

Floodingexample:floodsinmorethanoneregion;hundredsofdisplacedpersons;actual,orriskof,criticalinfrastructuredisruptions.

Responseco-ordinatedfromtheCabinetOfficeBriefingRoom(COBR)bytheLeadGovernmentDepartment.Thecrisisresponsemayrequiredeploymentofwidergovernmentresources.TheCivilContingenciesSecretariat(CCS)providessupportonimpactmanagementandrecoveryissues.

1: Significant Hasanarrowerfocuse.g.prisonriots,severeweatheroraterroristattackwithlimitedconsequences.

Floodingexample:floodswidespreadacrossaregion,somedisplacedpersons,potentialrisktocriticalinfrastructure.

TheLeadGovernmentDepartmentMinisterrunsthecrisisresponsefromtheirpremisesusingtheirownemergencyfacilitiesasappropriate.TheCivilContingenciesSecretariat(CSS)advisesasandwhennecessary.

Local Eventswhichareroutinelyhandledbytheemergencyserviceswithlocalgovernment,suchasroadcrashes,localisedfloodingorindustrialaccidents.

Floodingexample:localflooding;smallscaleevacuation;norisktocriticalinfrastructure.

Nosignificantcentralgovernmentinvolvement.Normallybeledbythepolice/Goldcommanderforlargeremergencies.

Working collectively at the regional level to plan for, and respond to, flooding: Regional Resilience Forums

RegionalResilienceForums(RRFs)havebeenformedtobringtogetherkeyplayersfromwithineachregion,suchaslocalauthorities,centralgovernmentagencies,thearmedforces,andtheemergencyservices.TheroleoftheRRFsistoimprovecommunicationacrossandbetweentheregions;betweentheregionsandcentralgovernment;andbetweentheregionanditslocalresponders.Theyarealsotheretosupportplanningforaresponsecapabilityandprovidemulti-agencystrategicdirectiontocivilprotectionplanningineachregion.Theyhaveaparticularvaluetoaddinfocusingonplanningforwiderconsequencesofincidentsandthemeansforaneffectivereturntonormality.

RRFsworkcloselywithLocalResilienceForums(LRFs)toensurethatpreparednessworkisco-ordinatedacrosstheregion.Thebuildingblocksoftheresponsetoacrisiswillalmostalwaysbelocalplansdevelopedatalocallevel.TheroleoftheRRFisinhelpingtoensurethatlocalplansaredevelopedwheretheyneedtobe,andthattheyworkwellwithother,neighbouring,plans.Theremayalsobespecificareaswherearegionalplanisdeveloped–buildingonscalablelocalplanstogeneratearegion-wideresponsetoacrisis.

Working collectively at the regional level to plan for, and respond to, flooding: Regional Coordinating Groups and Regional Civil Contingencies Committees

RegionalResilienceForumshavenoroletoplayintheoperationalresponsetoemergencies.Theremay,however,beexceptionalcircumstancesinwhichthescaleandgeographicalextentofanincidentrequirestheresponseandrecoveryefforttobeco-ordinatedataregionallevel.

ARegionalCoordinatingGroup(RCG)ismostlikelytobeestablishedwhenanincidentaffectsthreeormorepoliceforceareas,orhasthepotentialtodoso.Insuchcircumstances,theLeadGovernmentDepartment(inconsultationwiththeCabinetOfficeandCLG)may,onitsowninitiative,orattherequestoflocalresponders,conveneaRCGinordertobringtogetherappropriaterepresentativesfromlocalStrategicCoordinatingGroups,orotherrelevantorganisations

Inthemostseriouscircumstances,theremaybeaneedtoconveneaRegionalCivilContingenciesCommittee(RCCC)tosupportresponseandrecoveryactivityacrosstheregion.Thiswouldnormallyonlyhappenwherethelocalresponsehasbeen,ormaybe,overwhelmed,orwherethereisaneedforaconsistent,structuredapproachnormallyacrosstwoormoreregions

TheroleofanRCGorRCCCwouldbeto:

■■ collateandmaintainastrategicpictureoftheevolvingsituationwithintheregion,withaparticular(butnotexclusive)focusonconsequencemanagementandrecoveryissues;

■■ assesswhetherthereareanyissueswhichcannotberesolvedatalocallevel;

■■ facilitatemutualaidarrangementswithintheregionand,wherenecessary,betweenregions;

■■ ensureaneffectiveflowofcommunicationbetweenlocal,regionalandnationallevels,includingtheco-ordinationofreportstothenationallevelontheresponseandrecoveryeffort;

■■ raisetoanationallevelanyissuesthatcannotberesolvedatalocalorregionallevel;

■■ ensurethatthenationalinputtoresponseandrecoveryisco-ordinatedwiththelocalandregionalefforts;

■■ guidethedeploymentofscarceresourcesacrosstheregionbyidentifyingregionalpriorities;and

■■ provide,whereappropriate,aregionalspokesperson.

TheRCG/RCCCwouldnotinterfereinlocalcommandandcontrolarrangements.Butitmightinformthedeploymentofnationalresources–itmight,forexample,takeaviewontheneedformilitaryaidandonprioritieswithintheregionforsuchaidifandwhengranted.

International assistance mechanisms

TheCabinetOfficeistheUK’snationalpointofcontactforEUandNATOcivilprotectionarrangements.Theseincludemutualaidarrangementsthatcanbeusedintheeventofadisastertoshareinformationandfacilitaterequestsandoffersofassistance.IntheeventofadisasterwhichoverwhelmsUKresponsecapabilities,COBRcouldconsidertheneedforinternationalassistanceandoffersreceived.

TheEU Civil Protection Mechanismisalegalframeworkenablingparticipatingstates(the27EUMemberStates,plusNorway,Iceland,LichtensteinandCroatia)toprovideassistancetoeachotherandtothirdcountriesindisasters.TheMechanism’sscopeincludestheEuropeanCommission’sMonitoring and Information Centre(MIC)asameansofmatchingrequeststooffersofassistanceinternationallythroughtheCommonEmergencyCrisisandInformationSystem(CECIS),aweb-basedinformationsharingsystem.

TheNATO Euro-Atlantic Disaster Response Co-ordination Centre(EADRCC),liketheEUMIC,co-ordinatesresponsestodisastersintheEuroAtlanticPartnershipCouncil(EAPC)areaandisafocalpointforinformationsharingamongEAPCcountries.

Section 3:Whatemergencyplannersandrespondersneedtoknowaboutthelegalframework

■■ TheCivilContingenciesAct2004

– Part1oftheCCA

– Part2oftheCCA(EmergencyPowers)

– WanttoknowmoreabouttheCCA?References

■■ TheReservoirsAct1975

– RequirementsoftheReservoirsAct1975

– EnforcementoftheReservoirsAct1975

– TheeffectoftheFloodandWaterManagementAct2010:changestotheReservoirsAct

– WanttoknowmoreabouttheReservoirsAct?References

Thereareanumberofimportantpiecesoflegislationthatimpactonfloodemergencyplanningandresponse.Thekeyones,coveredinthissection,are:

■■ The Civil Contingencies Act 2004;and

■■ The Reservoirs Act 1975.

TheReservoirsAct1975ActwasamendedbytheFlood and Water Management Act 2010.Theamendmentsinthe2010Acthaveyettobecommenced,sodonotcurrentlyhaveeffect.

The Civil Contingencies Act 2004

TheCivil Contingencies Act 2004(CCA),andaccompanyingnon-legislativemeasures,deliversasingleframeworkforcivilprotectionintheUnitedKingdomcapableofmeetingthechallengesofthetwenty-firstcentury.TheActisseparatedintotwosubstantiveparts:localarrangementsforcivilprotection(Part 1)andemergencypowers(Part 2).TheCabinetOfficeisreviewingPart1oftheCivilContingenciesAct.

Part 1 of the CCA

Part1oftheActandsupportingRegulationsandstatutoryguidanceestablishaclearsetofrolesandresponsibilitiesforthoseinvolvedinemergencypreparationandresponseatthelocallevel.TheActdivideslocalrespondersintotwocategories,imposingadifferentsetofdutiesoneach.

ThoseinCategory1areorganisationsatthecoreoftheresponsetomostemergencies(e.g.emergencyservices,localauthorities,NHSbodies).Category1respondersaresubjecttothefullsetofcivilprotectionduties.Theyarerequiredto:

■■ assesstheriskofemergenciesoccurringandusethistoinformcontingencyplanning;

■■ putinplaceemergencyplans;

■■ putinplaceBusinessContinuityManagementarrangements;

■■ putinplacearrangementstomakeinformationavailabletothepublicaboutcivilprotectionmattersandmaintainarrangementstowarn,informandadvisethepublicintheeventofanemergency;

■■ provideadviceandassistancetobusinessesandvoluntaryorganisationsaboutbusinesscontinuitymanagement(LocalAuthoritiesonly);

■■ shareinformationwithotherlocalresponderstoenhanceco-ordination;and

■■ co-operatewithotherlocalresponderstoenhanceco-ordinationandefficiency.

Category2organisations(e.g.HealthandSafetyExecutive,transportandutilitycompanies)areregardedas“co-operatingbodies”andarelesslikelytobeinvolvedintheheartofplanningworkbutwillbeheavilyinvolvedinincidentsthataffecttheirsector.Category2responderssharethelasttwodutieslistedabovewithotherCategory1and2responders.Thatis,theymust:

■■ shareinformationwithotherlocalresponderstoenhanceco-ordination;and

■■ co-operatewithotherlocalresponderstoenhanceco-ordinationandefficiency.

TheCivil Contingencies Act 2004 (Contingency Planning) Regulations 2005establishtheLocalResilienceForum,theprincipalmechanismformulti-agencyresiliencework.Category1and2organisationscometogethertoformLocalResilienceForums(basedonpoliceareas)whichhelpco-ordinationandco-operationbetweenrespondersatthelocallevel.

ThebulkofPart1oftheActwasbroughtintoforceinNovember2005(thedutyonlocalauthoritiestoprovideadviceandassistancetobusinessandvoluntaryorganisationsaboutbusinesscontinuitymanagementcommencedinMay2006).

Part 2 of the CCA (Emergency Powers)

Part2oftheCCAupdatesthe1920EmergencyPowersActtoreflectthedevelopmentsintheinterveningyearsandthecurrentandfutureriskprofile.Itallowsforthemakingoftemporaryspeciallegislation(emergencyregulations)tohelpdealwiththemostseriousofemergencies.Theuseofemergencypowersisalastresortoptionandplanningarrangementsatthelocallevelshouldnotassumethatemergencypowerswillbemadeavailable.Theiruseissubjecttoarobustsetofsafeguards-theycanonlybedeployedinexceptionalcircumstances.Theso-called‘triplelock’ensuresemergencypowerswillonlybeavailableif:

■■ anemergencythatthreatensseriousdamagetohumanwelfare,theenvironmentorsecurityhasoccurred,isoccurringorisabouttooccur;

■■ itisnecessarytomakeprovisionurgentlyinordertoresolvetheemergencyasexistingpowersareinsufficientanditisnotpossibletobringforwardaBillintheusualwaybecauseoftheneedtoacturgently;and

■■ emergencyregulationsareproportionatetotheaspectoreffectoftheemergencytheyaredirectedat.

Inaddition,emergencyregulations:

■■ cannotprohibitorenabletheprohibitionin,oranyactivityinconnectionwith,astrikeorotherindustrialaction;

■■ cannotinstigateanyformofmilitaryconscription;

■■ cannotalteranyaspectofcriminalprocedures;

■■ cannotcreateanynewoffenceotherthanbreachoftheregulationsthemselves;

■■ mustbecompatiblewiththeHumanRightsActandEUlaw;and

■■ areopentochallengeinthecourts.

Emergencypowerscanbeusedonaregionaland/ordevolvedadministrationbasis.TheCCAalsorequirestheappointmentofa‘RegionalNominatedCoordinator’(‘EmergencyCoordinator’inthedevolvedadministrations).Ifemergencypowersareused,he/shewillactasthefocalpointforco-ordinationofresponseeffortsattheregionalordevolvedadministrationlevel.

Want to know more about the CCA? References

YoucanfindoutmuchmoreabouttheCivilContingenciesActontheCabinet Office’s UK Resilience web pages.Specificreferencematerialyoumaywanttoaccessfromtimetotimeincludes:

■■ Civil Contingencies Act, A Short Guide(broaddescriptionofbothPart1andPart2oftheCCA);

■■ Civil Contingencies Act, 2004;

■■ Explanatory notes to the CCA;

■■ Civil Contingencies Act 2004 (Contingency Planning) Regulations 2005;

■■ Civil Contingencies Act 2004 (Contingency Planning) Regulations 2005, Explanatory Memorandum;

■■ Emergency Preparedness, Guidance on Part 1 of the Civil Contingencies Act 2004,itsassociatedRegulationsandnon-statutoryarrangements;and

■■ Details of CCA arrangements in place in the Devolved Administrationsandlinkstotheirwebsites.

The Reservoirs Act 1975

SafetylegislationforreservoirsintheUnitedKingdomwasfirstintroducedin1930afterseveralreservoirdisastershadresultedinlossoflife.ThisActwassupersededbytheReservoirs Act 1975,whichtodayprovidesthelegalframeworktoensurethesafetyoflargeraisedreservoirsandappliestoreservoirsthatholdatleast25,000cubicmetresofwaterabovenaturalgroundlevel.

Requirements of the Reservoirs Act 1975

UndertheReservoirsAct,reservoirowners(Undertakers)haveultimateresponsibilityforthesafetyoftheirreservoirs.TheymustappointaPanelEngineer(aspecialistcivilengineerwhoisqualifiedandexperiencedinreservoirsafety)tocontinuouslysupervisethereservoir(SupervisingEngineer)andtocarryoutperiodicinspections(InspectingEngineer).APanelEngineermustalsobeappointedtodesignandconstructanewreservoirorrepairormakechangestoanexistingreservoir(ConstructionEngineer).

Aperiodicinspection,byanInspectingEngineer,isrequiredeverytenyearsormorefrequentlyifnecessary.Asaresultofthatinspection,asafeoperatingregimewillbespecifiedandworksrequiredintheinterestsofsafetymayberecommended.

ASupervisingEngineerisrequiredtosupervisetheoperationandmaintenanceofthereservoirandproduceanannualstatement.TheSupervisingEngineercanrecommendthataperiodicinspectioniscarriedout.

Forreservoirsbelowthethresholdof25,000cubicmetres,regulationismanagedbytheHealthandSafetyExecutive(undertheHealthandSafetyatWork(etc)Act1974)andLocalAuthorities(undertheBuildingAct1984).

Enforcement of the Reservoirs Act 1975

Priorto1stOctober2004theenforcementoftheActinEnglandandWaleswastheresponsibilityof136LocalAuthorities.ThisroleattractedvaryingresponsesfromtheLocalAuthorities,oftencoordinatedbydifferentdepartments.ThisledtoaninconsistentapplicationoftheActandhighlightedtheneedforconsistencyofregulationtobeprovidedbyasinglebody.ThisrequirementwasrecognisedbyanindustryreviewoftheReservoirsAct1975andreportedtogovernmentandpubliclyviatheBritishDamSocietyin1996.

TheEnvironmentAgencyisnowresponsiblefortheenforcementoftheReservoirsAct1975inEnglandandWales.The Water Act 2003transferredthisresponsibilityfromlocalauthoritiesfrom1October2004.

AstheEnforcementAuthority,theEnvironmentAgencyisresponsiblefor:

■■ maintainingaregisterofreservoirs,andmakingthisinformationavailabletothepublic;

■■ ensuringthattheUndertakerhasappointedaSupervisingEngineer;

■■ ensuringthattheUndertakercommissionsregularinspectionsofthereservoirbyanInspectingEngineer;

■■ enforcingtheReservoirsAct1975byinfluencing,warning,cautioningandultimatelyprosecutingnon-compliantUndertakers;

■■ commissioningessentialworksrequiredintheInterestsofSafetyintheeventofnon-complianceandrecoupingfullcostsincurredfromtheUndertaker;

■■ producingaBiennialReporttotheDepartmentforEnvironment,FoodandRuralAffairs(Defra)andtotheWelshAssemblyGovernment;and

■■ actinginanemergencyiftheUndertakercannotbefound.

The effect of the Flood and Water Management Act 2010: changes to the Reservoirs Act

TheReservoirsAct1975ActwasamendedbytheFlood and Water Management Act 2010.Theamendmentsinthe2010Acthaveyettobecommenced,sodonotcurrentlyhaveeffect,butwhencommencedtheywill:

■■ placearequirementforallreservoirsaboveaminimumvolumecapacity(reducedto10,000cubicmetresfrom25,000cubicmetres)tobeincludedonanEnvironmentAgencyregister;

■■ requiretheEnvironmentAgencytoclassifyeachrelevantreservoiraccordingtowhethertheyposeathreattohumanlife,ormeettechnicalconditions(tobespecified)whichineffectmeantheriskisnegligible;

■■ specifythedutiesofreservoirundertakers;and

■■ specifypanelengineers’dutiesinrelationtothesereservoirsbasedonthelevelofrisk.

Want to know more about the Reservoirs Act? References

SpecificreferencematerialontheReservoirsAct1975thatyoumaywanttoaccessfromtimetotimeincludes:

■■ thefulltextoftheReservoirs Act 1975;

■■ thefull text of the amendments in Schedule 4 of the Flood and Water Management Act 2010; and

■■ Various information on the Reservoirs Act 1975 and reservoir safety on the Environment Agency’s website.

■■ Whatyoucanexpectfromcentralgovernmentandwhodoeswhat

■■ Whatyoucanexpectfromcentralgovernmentgenerally

– WhatyoucanexpectfromDefraastheLeadGovernmentDepartmentforflooding

– WhatyoucanexpectfromtheGovernmentOfficesfortheRegions

– WhatyoucanexpectfromtheDepartmentforCommunitiesandLocalGovernment

– WhatyoucanexpectfromtheEnvironmentAgency

– WhatyoucanexpectfromtheFloodForecastingCentre

– WhatyoucanexpectfromtheMetOffice

– WhatyoucanexpectfromtheDepartmentofHealth

– WhatyoucanexpectfromtheHealthProtectionAgency

– WhatyoucanexpectfromtheDepartmentforTransport

– WhatyoucanexpectfromtheHighwaysAgency

– WhatyoucanexpectfromtheDepartmentforBusiness,InnovationandSkills

– WhatyoucanexpectfromtheDepartmentforEnergyandClimateChange

– WhatyoucanexpectfromtheMinistryofDefence

■■ Nationalemergencymanagement:workingwiththedevolved

administrations

Section 4:Whatemergencyplannersandresponderscanexpectfromcentralgovernment

What you can expect from central government and who does what

Seriousfloodingemergenciesrequireco-ordinatedmulti-agencyresponses,clearlinesofdemarcationandquickdecisionmaking–oftenbyindividualorganisationsbutsometimescollectively.Centralgovernmentdepartments,andtheiragencies,contributetothosemulti-agencyresponsesbuthavedifferentrolestoplay,basedontheirpolicyresponsibilities,expertise,experienceandpowers.

ThissectionoftheNationalFloodEmergencyFrameworkisdesignedtohelpemergencyplannersandrespondersunderstandthedivisionofresponsibilitieswithincentralgovernmentanditsagenciesandtohelpyoutoknowwheretogoforinformation,adviceandassistance.

What you can expect from central government generally

Nationalfloodingemergenciesrequirecentralgovernmenttoworksingularlyandcollectively.Collectively,theoverallstrategicobjectivesofthegovernment’sinvolvementaretoensurethatitwill:

■■ reactwithspeedanddecisiveness;

■■ respectlocalknowledgeanddecision-makingwhereverpossible,withoutlosingsightofthenationalstrategy;

■■ prioritiseaccesstoscarcenationalresources;

■■ usedataandinformationmanagementsystemstogainanationalpictureandsupportdecisionmaking,withoutoverburdeningfront-lineresponders;

■■ basepolicydecisionsonthebestavailablescienceandensurethattheprocessesforprovidingscientificadvicearewidelyunderstoodandtrusted;

■■ drawonexistinglegislationtorespondeffectivelytotheevent,andconsidertheneedforadditionalpowers;

■■ applyriskassessmentmethodologyandcostbenefitanalysiswithinanappropriateeconomicmodeltoinformdecision-making;

■■ workwithinternationalpartnerstoshareinformationandrequestassistanceifnecessary;and

■■ explainpolicies,plansandpracticesbycommunicatingwithinterestedparties(includingthepublic)comprehensively,clearlyandconsistentlyinatransparentandopenwaythataddressesnationalandlocalconcernswhileencouragingandlisteningtofeedback.

What you can expect from Defra as the Lead Government Department for flooding

WithinUKcentralgovernment,departmentsdelivertheirresponsibilities(generallythroughlocalagencies)andareaccountabletoParliamentfortheireffectivedelivery.Thisincludeseffectivelymanagingemergenciesaffectingtheirresponsibilities.Onedepartment–theLeadGovernmentDepartment(LGD)-usuallytakesoverallresponsibilityforassessingthesituation,ensuringthatMinistersarebriefed,handlingmediaandparliamentaryinterest,andprovidingco-ordinatedpolicyandothersupportasnecessarytolocalresponders.OthergovernmentdepartmentswillprovidesupporttotheLGDtoensureaco-ordinatedresponse;however,individualdepartmentswillremainresponsible,includingtoParliament,fortheirparticularpolicyareas.

DefraistheLeadGovernmentDepartmentforfloodemergenciesinEngland.TheCabinetOfficedocumentThe Lead Government Department and its role – Guidance and Best Practicesetsouttherequirementsforhandlinganevent.

Figure 4.1:RoleoftheLeadGovernmentDepartment

Role of the Lead Government Department

Maintain a state of readiness.

Thisentails:

■■ buildinguptheDepartment’sresiliencetoshocksanditscapacitytoleadtheresponse;

■■ identifyingandmaintainingthecapabilitiesthatlocalrespondersandthoseateachlevelofcrisismanagementcancallupon;

■■ maintainingpress/publicinformationcontacts,sothattheDepartmentisinapositiontoeffectivelyco-ordinatethepress/publicinformationeffortduringacrisis;

■■ planningforandleadingnegotiationswiththeTreasuryforanynecessaryadditionalfunds;and

■■ keepingawareofthechangingsetofrisks,threatsandvulnerabilitieswhichbearuponitsfieldsofresponsibility.

Move into action immediately an emergency arises, where central government co-ordination is required

Thisentails:

■■ actingasthefocalpointforcommunicationbetweencentralgovernmentandthemulti-agencystrategicco-ordinatinggroup(s)ontheground;

■■ producingabrief,accuratesituationreportsonthenatureandscaleoftheemergencyandahandlingplan;

■■ drawinguponandapplyingtherelevantcapabilitiesapplicabletotheemergencyinhand;

■■ takingwhateverexecutivedecisionsandactionsareneededfromthecentretohandletheemergencyortohelpthelocalresponderstodealwithit;

■■ actingasthefocalpointforinformationflows;

■■ co-ordinatinganddisseminatinginformationforthepublicandthemediaatthenationallevel;

■■ accountingtoParliamentandleadinginthesubmissionofevidencetoanysubsequentgovernment-appointedinquiry;and

■■ learningandsharingthelessonsfromtheemergency.

Inlinewiththearrangementsforapplicationofthecentralgovernmentmachinery,Defrawillnormallyco-ordinatethecross-governmentresponsetolowerlevelnationalfloodingevents(serious–level1(seesection2))andwillhandleitwithintheDepartment.Level2events(significant)willstillbeco-ordinatedbyDefrabutthroughCOBR.Moreseriousevents(level3-catastrophic)willbefullyescalatedtocentralco-ordinationbytheCivilContingenciesSecretariat,withDefrasupport,withinCOBR.

Deframaintainsa24hour,7dayaweeksystemdutyrotaforreceivingreportsofpossibleoractualflooding,withcloseworkingbetweentheDefraDutyOfficerandtheEnvironmentAgency.Defra’spermanentemergenciesteamtakestheleadwhenseriousfloodingisimminentorhasalreadyhappened(intheeventofunexpectedsevereweatherforexample)andmaintainscloseliaisonwiththeEnvironmentAgency’sincidentteams.

DefrahasadedicatedEmergencyOperationsCentre(EOC)locatedinLondon,withpermanentlyavailableITandcommunicationscapabilities.

AswellashavingaLeadDepartmentrole,DefrastaffmustalsoconsidertheimpactsofapotentialoractualfloodingemergencyonwiderDefrapolicyinterests,includinganimalwelfare,farmbusinesses,countrysideaccess,watersupplyandruralcommunities.SoitisimportantthatallrelevantpolicyleadsinDefraareengagedintheemergencyresponseto:

■■ assesstheimpactofthefloodingfortheirpolicyarea;

■■ dischargetheirnormalpolicyandregulatoryresponsibilitiesthroughouttheresponsetotheemergency;

■■ co-ordinatetheirresponseactivitieswithstakeholdersbothinsideandoutsideDefra;

■■ disseminateinformationabouttheirspecificactivities;and

■■ contributetocross-Defraco-ordination.

Animportantaspectofanyfloodingeventisthebringingofemergencyoperationstoaclose.Defra(andothergovernmentdepartments)willbegintoscaledowntheirinvolvementintheresponseassoonasMinistersaresatisfiedthatitisprudenttodoso.Thisislikelytodependon:

■■ theimmediateemergencyhavingpassed;

■■ satisfactorycross-governmentrecoveryarrangementsbeinginplace;

■■ localresourcesbeingadequatetomanagethesituation;and

■■ formalarrangementsbeinginplacetolearnlessonsfromthefloods.

TheDepartmentforCommunitiesandLocalGovernmentistheLeadGovernmentDepartmentforfloodrecovery(seeseparateentrylaterinthissection).

AnotherimportantaspectofDefra’sLeadDepartmentroleistoensurethatfloodemergencymanagementprocessesareexercisedatanappropriatefrequency.

ThefollowingtableprovidesasummaryofwhatyoucanexpectfromDefra.

Figure 4.2:WhatyoucanexpectofDefra

Stage Defra actions

Preparing for flooding

■■ EnsuringthatstructuresandresourcesareinplacesothatthattheFloodManagementteamandotherpartsofDefracanplaytheirpartinrespondingtoafloodingevent.

■■ EncouragingLocalResilienceForums(LRFs)toprepareappropriateemergencyplansforfloodingandprovidingguidance.

■■ Ensuringcentralgovernmenthasappropriatenationalplanningassumptionsforflooding.

■■ Planningandparticipatinginemergencyexercises.

Stage Defra actions

When flooding is forecast

■■ UsingFloodForecastingCentre,EnvironmentAgencyandMetOfficereportstoanticipateevents(andtheirlikelyscale)asfaraspossible–and,onthatbasis,raiselevelsofpreparednessincentralgovernment.

■■ Initiatingcommunicationsacrosscentralgovernment,includingpressofficesandprovidingsituationreports.

When flooding happens

■■ AdvisingDefraSeniorManagement,Ministers,othergovernmentdepartmentsandagenciesonthedevelopingscaleofevents.

■■ EnsuringeffectivecommunicationswithParliament,thenewsmediaandothers.

■■ CollectingbriefingontheimpactsofthefloodingonallDefrainterests.

■■ WorkingwithCabinetOfficeonescalatingorde-escalatingthecentralgovernmentresponse.

■■ Co-ordinatingthecross-governmentandmulti-agencyresponsetotheflooding.

■■ FacilitatingMinisterialandotherVIPvisitstotheaffectedareas.

■■ Ensuringthatclearresponsibilitiesareestablishedforoverseeingrecoveryandaftermathissues.

When flooding subsides

■■ LiaisingwiththeDepartmentforCommunitiesandLocalGovernment(CLG)onrecoverymatters.

■■ Advisingonfollow-upMinisterial/VIPvisits.

■■ Ensuringarrangementsareinplaceforidentifyinganylessonstobelearned.

What you can expect from the Government Offices for the Regions

heUKcentralgovernmentresponseandsupportduringanemergencyisprovidedthroughanumberofdifferentorganisationsandagenciesincludingUKcentralgovernmentdepartments,theGovernmentOfficesinEngland,DevolvedAdministrationsandlocalresponsepartners.

TheGovernmenthasannounceditsintentioninprincipletoabolishtheGovernmentOfficesfortheregions,subjecttothesatisfactoryresolutionofconsequentialissues.Thefinaldecisionsonthefuture,includingarrangementsfortransferofon-goingfunctions,willbemadeattheendoftheSpendingReviewintheautumn.Inmakingtheannouncement,theGovernmentnotedthatsomeGovernmentOfficefunctions,suchasarrangementsforresilienceandcivilcontingencies,willneedtocontinue.

Untilnewarrangementsareputinplace,theGovernmentOffices(GOs)willrepresentcentralgovernmentintheEnglishregions,bringingtogetherstaffandactivitiesfromthevariousgovernmentdepartmentsoperatingineachregion.RegionalResilienceTeams(RRTs)havebeenestablishedwithineachoftheGOstoco-ordinatetheresponseofthewholeGOduringanemergency.TheyareresponsibleforactivatingRegionalOperationCentreswhererequired,supportinglocalresponseandrecoveryefforts,andensuringthatthereisanaccuratepictureofthesituationintheirregion.

RRTsarethefirstplacethatgovernmentdepartmentsturntoforsituationreportsonfloodingemergencies.RRTsinturnlooktolocalrespondersforthisinformation.Inordertoensureaneffectivetwo-wayflowofinformationbetweenlocalrespondersandcentralgovernmentinanemergency,GOsmayplaceaGovernmentLiaisonOfficer(GLO)withinthelocalStrategicCoordinatingGroup(SCG)setuptomanageanemergency.

Informationflowsmustbetwo-wayhowever.SogovernmentdepartmentsmayuseGOstocascadeinformationandguidancetolocalresponders.TheGOshavesubstantialknowledgeandexperienceoftheworkingsofcentralgovernmentandsoprovideavaluablefirstportofcallforadviceandguidance.

Themechanismsforalerting,mobilisingandinformationsharingbetweenlocalrespondersandtheGOwillbesetoutinRegionalResponsePlans,agreedforeachregion.Theplanswilloutlineproceduresfor:activatingtheemergencymanagementfacilitiesintheGO;whennecessary,activatingRegionalCoordinatingGroupsand/orRegionalCivilContingenciesCommittee(seesectiontwoformoreonRCGsandRCCCs);andcommunicatingwiththelocallevel,otherregionsandcentralgovernment.

GOscanprovideparticularsupportinrelationtoconsequencemanagement-wherethescaleandnatureofafloodingincidentissuchthattheeffectsarelikelytobefeltoutsidetheimmediatelocalityormayoverwhelmthelocalresponse-andinareassuchasarrangingMinisterialorVIPvisits.TheyworkcloselywiththeCentralOfficeofInformation(COI)intheregionsand,withtheirlinkstogovernmentdepartments,canhelplocalresponderstoensurethatacoordinatedandcoherentmessageisgiventothepublic.

GOsplayanimportantroleincross-regionalco-ordination,liaisingwithotherGOsand/ortheDevolvedAdministrations(DAs)tosupporttheresponseeffortduringfloodingemergenciesaffectingmorethanoneregionorspanningtheborderwithScotlandorWales.

What you can expect from the Department for Communities and Local Government

Duringamajorincident,theDepartmentforCommunitiesandLocalGovernment(CLG)willliaisewiththeRegionalResilienceTeamsand:

■■ updatethemondecisionsmadeatCOBR;

■■ actasaconduitforinformationsentfromalocalandregionalleveltocentralgovernment;and

■■ representregionalviewsatCOBRasnecessary,ensuringthatregionalsituationreportsarefedintonationalreportingmechanisms.

CLGalsohasakeyroleinco-ordinatingFireServiceAssetsataNationalLevel.CatastrophicandlargescaleincidentsplacesignificantdemandsonlocalFireandRescueServicesandhaveoftenrequiredanationalco-ordinatedresponsefromacrossthecountry.TheNational Co-ordination and Advisory Framework(NCAF)providessupportandadvicetotheFireandRescueServicesandCentralGovernmentduringincidentsthatareofnationalsignificanceand/orrequirenationalco-ordination.

CLG'sChiefFireandRescueAdviser(CFRA)willberesponsiblefortheco-ordinationandadvisoryframeworkstructureduringincidentsofnationalsignificanceand/orrequirenationalco-ordination.

DuringactivationtheCLGEmergencyRoomwillbeconsideredasthehuboftheNCAFarrangementsandwillprovidesupportfortheChiefFireandRescueAdviser(CFRA)andtheCLGResilienceTeam.

CLGhasaspecificroleintherecoveryphasefromafloodingemergency,wherecentralgovernmentco-ordinationisrequired,CLGwilltakeontheroleofLeadGovernmentDepartmentforrecovery.InthisroleCLGwill:

■■ actasthefocalpointforcommunicationbetweencentralgovernmentandthemulti-agencyrecoveryco-ordinatinggroup(s)atlocallevel;

■■ agree,acrossgovernment,clearaimsandobjectivesfortherecoveryprocess,includingcriteriaforstandingdownrecoverymechanismsandstructures;

■■ ensurethatrecoveryissuesareidentifiedandactedonduringtheresponsephaseofanemergencyandthatthereisasmoothandeffectivehandoverfromresponsetorecovery;

■■ producebrief,accuratesituationreportsonthenatureandscaleoftheemergency;

■■ produceahandlingplanassoonaspossible;

■■ drawuponandapplytherelevantcapabilitiesapplicabletorecoveryfromtheemergencyinhandand,ifrequired,co-ordinatethesupportneededfromothergovernmentdepartmentsandagenciesthroughCOBR;

■■ useitsauthoritydecisivelytotakewhateverexecutivedecisionsandactionsareneededfromthecentretohelpthelocalresponderstodealwithit;

■■ co-ordinateanddisseminateinformationforthepublicandthemediaatthenationallevel,collaboratingwithothergovernmentdepartments,includingtheNewsCo-ordinationCentrewhenactivatedandtheCivilContingenciesSecretariat;

■■ accounttoParliamentandleadinthesubmissionofevidencetoanysubsequentgovernment-appointedinquiry;and

■■ learnandsharethelessonsfromtheemergency.

What you can expect from the Environment Agency

TheEnvironmentAgencyistheprincipalfloodriskmanagementoperatingauthorityinEnglandandWales,withpowerstoprovidemeasurestoreducetheriskoffloodingonriversandtidalwatersandtoprovideastrategicoverviewoncoastalerosion-soontoextendtofloodingfromotherinlandsources.

Incarryingoutthisrole,andwithparticularregardtofloodemergencyplanning,theAgencywill:

■■ communicatetheriskoffloodingtoincreasetheawarenessofpeopleliving,workingandtravellinginfloodriskareassothattheycantakestepstopreparethemselvesandtheirpropertiesforflooding;

■■ workwithcivilcontingencypartnersandcriticalnationalinfrastructureoperatorstohelpthemunderstandtheriskoffloodingintheirlocality,byprovidingflooddataandmappingandtohelpthemtodevelopfloodresponseplanswhererequired;

■■ workwithspatialplannersandadvisedevelopersonimprovingthedevelopmentoflocationssothatfloodresistance,resilienceandsafeaccessandescapeareputinplace;

■■ provideanddevelopfloodforecastingandwarningservices,currentlyforfluvialandcoastalflooding,sothatpriornoticeoffloodingcanbeprovidedtocivilcontingencypartners,businessandthepublic;

■■ operateitsflooddefencessothatprotectionfromfloodingcanbeputinplace;and

■■ provideoperationalsupporttootherresponseorganisationswhereresourcesallow.

What you can expect from the Flood Forecasting Centre

TheFloodForecastingCentre(FFC)isapartnershipbetweentheEnvironmentAgencyandtheMetOffice,combiningtheorganisations’meteorologyandhydrologyexpertisetoforecastforriver,tidalandcoastalflooding,aswellasextremerainfallwhichmayleadtosurfacewaterflooding.

Withadedicatedteaminonenationalcentre,theFFCprovidesthebestpossibleintelligenceandsupporttoexistingEnvironmentAgencyfloodwarningsandMetOfficeweatherwarningservicesforEnglandandWales.Bycombiningknowledgeandexperience,theFFChasimprovedtheabilitytodelivercountrywidelongerleadtimefloodalertsandmoreaccurate,targetedinformationtoCategory 1 and 2 responders.Thiswillprovidepeopleinareasatriskoffloodingwithmoretimetoprotectthemselvesandtheirhomesfromtheeffectsofflooding.

MoredetailedinformationonfloodpredictiontoolsisincludedelsewhereintheNationalFloodEmergencyFramework.ButthefollowingprovidesasummaryoftheFFC’smainservices.

Extreme Rainfall Alert (ERA) Service-thisistoalertemergencyrespondersinEnglandandWalestothepossibilityofurbansurfacewaterfloodingasaresultofextremerainfall.Thealertisissuedatcountyleveltohelplocalresponseorganisationsmanagethepotentialimpactsofflooding.

ERAsareissuedwhentheprobabilityofextremerainfallis20%orgreaterfortheaffectedcounty,withupdatesandcancellationstoalertsasandwhenrequired.Whenthereisbetweena10%and20%probabilityofextremerainfall,extremerainfallguidanceisincorporatedintheFloodGuidanceStatementreferredtobelow.

TheFFChasproducedanERA Services User Guidetohelpitscustomersinterprettheinformationtheyreceiveandputitintorelevantcontextfortheirareas.

AnyCategory1or2respondercanregisterfortheERAServicebycalling03001234501oremailingffcenquiries@environment-agency.gov.ukwiththeirnameandorganisationcontactdetails.

The Flood Guidance Statement–thisprovidesinformationforCategory1and2responderstohelpthemwiththeirplanningdecisions.ItpresentsanoverviewofthefloodriskacrossEnglandandWalesoverfivedaysandidentifiespossiblesevereweather,whichcouldcausefloodingandsignificantdisruptiontonormallife.

Statementsareissueddailyatthefollowingtimes:

■■ verylowandlowrisksituations—10.30hrs;

■■ mediumrisksituations—10.30and15.00hrs;and

■■ highrisksituations—10.30,15.00and20.00hrsand/orasagreedwithNationalIncidentRooms.

SeethisSample Flood Guidance Statement.

TheFFChasproducedaFlood Guidance Statement User Guidetohelpitscustomersinterprettheinformationtheyreceiveandputitintorelevantcontextfortheirregions.

AnyCategory1or2respondercanregister onlinetoreceivedailyFloodGuidanceStatementsorbycalling03001234501oremailing ffcenquiries@environment-agency.gov.ukwiththeirname,organisationandcontactdetails.

Web Service-TheFFC’sWebServiceprovidessecuredeliveryofinformationtotheemergencyresponsecommunityinEnglandandWales.Productsaremadeavailabletoregisteredusersinoneeasytoaccessandsecurelocation.

TheserviceiscurrentlyavailabletoallNationalSevereWeatherWarningService(NSWWS)usersviatheirexistinglogindetails,aswellastoCategory1and2responderswhowishtosignup.ToregisterfortheWebServicecontacttheFFCon03001234501

What you can expect from the Met Office

TheMetOfficeistheofficialsourceofmeteorologicalinformationintheUK.Witharesilient24/7capabilityitprovidesanumberofservicesthathelpauthoritiespreparefor,andrespondto,floodemergencies.

TheMetofficewillprovidebriefingsonthemeteorologicalsituationtoGovernment(includingCOBRwhenactivated–seesection2)asrequiredandwilldeployateamofregionallybasedPublicWeatherService(PWS)Advisorstoworkwiththeemergencyplanningcommunityto:

■■ discusspredictedorongoingsevereweathereventstohelpemergencyrespondersassesstheriskintheirparticularareaandputpreparationsinplacetomitigatetheimpacts;

■■ ensureemergencymanagementteamsareawareofallothermeteorologicalfactorswhichcouldaffecttheincidentandtheirpotentialimpact;

■■ ensuretheconsistencyofmeteorologicalinformationandthatallresponderswithintheCommandandControlCentreusethisinformation;

■■ interpretthisinformationfortheresponderswhererequired;

■■ sourceotherscientificadviceavailablefromtheMetOfficeandactasapointofcontactbetweentheMetOfficeandtheresponders,therebyfreeinguptheresponders’resourcesandallowingthemtofocusonincidentmanagement;and

■■ ifrequiredandappropriate,arrangeforroutineforecastsandotherinformationtobesuppliedtoaidtherecoveryphase.

TheMetOfficewillalsoprovidespecificadditionalinformationviaanEmergencySupportWebsitetoenableeffectivedecisionmakingduringanevent.

WeatherinformationandtheNationalSevereWeatherWarningServiceareavailabletothepublicthroughtheMet Office websiteandtelevisionbroadcasts.

TheMetOfficealsohasanEmergency Support service-afree-at-point-of-useservice,designedmainlyforCategory1and2Responderstoaidtheworkofincidentmanagementteamsindealingwithavarietyofenvironmentalemergenciessituations,includingflooding.TheserviceisdesignedtosupplementtheroleofthePWSAdvisorsinprovidingconsistentweatherrelatedinformationandinterpretationfortheUKEmergencyResponsecommunity.

TheEmergencySupportserviceisweb-basedandprovidestwotypesofinformation:

■■ up-to-dateobservationsandforecastinformation,automaticallyupdated,including:

–– rainfallradardata;

–– real-timerain-gaugeobservations;

–– forecastrainfalldata;

–– windobservations;

–– forecastwinddata;

–– severeweatherwarnings;and

–– lightningdetectioninformation.

■■ emergencyevent-specificcontent:

–– specificallygeneratedproductsandguidancerelevanttoaparticularemergencyevent.

TheEmergencySupportserviceshouldonlybeusedinconjunctionwiththeadviceofaPWSAdvisor.Whileitisdesignedtoprovideaneasy-to-access,up-to-datesourceofinformation,aPWSAdvisorshouldbeconsultedforadviceoninterpretationandguidanceonthemostappropriateresponse.

What you can expect from the Department of Health

Intheeventofawidespreadfloodemergency,theDepartmentofHealthwillinitiateanddirectthegovernmenthealthresponse,providingspecialistadviceandinformationtoMinisters,othergovernmentdepartmentsandrespondingorganisations.Itwillalsoberesponsiblefortheeffectivenessofthehealthresponse.

What you can expect from the Health Protection Agency

TheHealthProtectionAgency(HPA)inEngland–workinginconjunctionwithitsequivalentpublichealthorganisationsinthedevolvedadministrations–istheleadagencyresponsibleforprovidingpublichealthadvicetotheDepartmentofHealthandsupportingallaspectsofthepublichealthresponsetoafloodingemergency.Seesection10formoreonthehealthconsequencesofflooding.

What you can expect from the Department for Transport

TheDepartmentforTransport(DfT)workswithalltransportoperatorstoensurethattheyareawareoftheimplicationsofafloodingemergencyandtoensurethatfacilitiesandcommunicationchannelsareinplacetomeetanyadditionalrequirementsthatmaybeplaceduponthem.

What you can expect from the Highways Agency

TheHighwaysAgencyisresponsibleforoperating,maintainingandimprovingthestrategicroadnetworkinEnglandonbehalfoftheSecretaryofStateforTransport.TheHighwaysAgencynetworkisrecognisedasoneofthesafestandmostefficientroadsystemsoperatingintheworldtoday.Butsevereweathercanhaveasignificantandnegativeimpactupontrafficflowswhichcanresultindelays,thedurationofwhichcanbeinfluencedbyawholehostofvariables.

Themosteffectivewayofrelievingserioustrafficcongestionistoemployrecognisedincidentmanagementtechniquesandattempttoclearincidentsasquicklyaspossible.Thereareoccasions,however,whereseverecongestionandextendeddelaysareunavoidablewhichcanleadtothetravellingpublicbeingstrandedonthenetwork.Forthatreason,theHighwaysAgencyhaspublishedanArea Management Memorandum on Emergency Customer Welfare.This2partpolicyprovidesastructuredapproachtotheprovisionofemergencywelfareforpersons,petsandlivestockwhobecomeunavoidablydetainedandstrandedontheHighwaysAgencynetwork.

What you can expect from the Department for Business, Innovation and Skills

TheDepartmentforBusiness,InnovationandSkills(BIS)engageswiththetelecommunicationsandpostalservicesindustrytoensuretheyhaveadequateplansinplacetorespondtoanemergency.Forfloodrelatedemergenciesaffectingthesesectors,BISwillfeedintothegovernmentresponseandactasacommunicationchannelbetweentheseindustriesandcentralgovernment.

What you can expect from the Department for Energy and Climate Change

TheDepartmentofEnergyandClimateChange(DECC)workscloselywiththeenergysectorstoensurethatindustryrecognisetheimpactanemergencywouldhaveontheUKandtoensuretheyhaveplansinplacetodealwithsuchsituations, sothatanydisruptiontoconsumersisminimised.Shoulditbecomenecessary,theDepartmentandindustry,inconsultationwithotherstakeholders,wouldintroducearangeofmeasurestoensurethemaintenanceofessentialsuppliesandservices.

What you can expect from the Ministry of Defence

ArmedForcessupporttocivilresiliencecanbedividedintotwocategories:

■■ Niche capabilities.Theseareassignedwhen,intheviewofDefenceMinisters,itisinthenationalinteresttodevotespecificArmedForcesandMODassetstospecificoperationsintheUK,eitherinwholeorinpart.TheseassetsareidentifiedinDefencePlanningAssumptionsandareguaranteed;theyinclude:

–– aUK-basedandUK-focussedCommandandControlstructure;

–– anExplosiveOrdnanceDisposalandChemicalBiologicalRadiologicalandNuclearrender-safecapability;

–– anairsurveillance,policinganddefencesystem;

–– FisheryProtectionvessels;

–– aCounterTerrorismcapability;and

–– aSearchandRescuecapability.

■■ Augmentation Capabilities.Whencivilcontingenciesarise,itispossibletodeploythearmedforcesinsupportofthecivilauthoritiesifDefenceMinistersconsideritappropriate.ResilienceplannersshouldnotmakeassumptionsaboutthecriteriaforaDefenceMinister’sdecisioninadvanceandshouldnotmakeassumptionsaboutthelevelofmilitarydeploymentwhichwilldependonthedegreetowhichtheregularandreserveforcesarecommittedoverseas.

ItistypicallytheseaugmentationcapabilitiesthattheMODwouldexpecttodeployinfloodemergencysituationswhereassistancemightinclude:

–– surgepersonnel-thecapabilitytoprovidegeneraldutiespersonnel.

–– logisticadvice-SirMichaelPitt’srecommendation47calledforasmallnumberoftrainedArmedForcespersonnelwhocanbedeployedtoadviseGoldCommandsonlogisticsduringwide-areacivilemergenciesand,workingwithCabinetOffice,identifyasuitablemechanismfordeployment.Logisticsadvicewillbeprovidedwithintheexistingstrategic(MoD)structureandatregionallevelbyJointRegionalLiaisonOfficersorregionallogisticsstaff,dependingonscaleandrequirements.

–– engineering-thetotalstockofengineeringequipmentheldbytheArmedForcesintheUKislikelytobelessthanthatnormallyavailableinamedium-sizedtown-Althoughexpertiseandassetscouldbemadeavailable.

–– estate-elementsoftheDefenceEstatecouldbemadeavailableifappropriatetoprovidehardstandings,storage,logisticshubsetc.

Ingeneraltermsgovernmentwouldexpectcivilresponderstohavethecapabilitiestodealwithmostfloodingemergencies,withthemainDefenceeffortbeingwiththeplanningandpreparingforthosehazardsandthreatsatthehighestcategoriesintheNationalRiskRegister.

National emergency management: working with the devolved administrations

ThebalanceofactivitybetweenUKcentralgovernmentandthedevolvedadministrationswilldependonthenatureoftheemergencyandthetermsofthedevolutionsettlements,thatbeing:

■■ whethertheincidentaffectsScotland,Walesand/orNorthernIreland;and

■■ whethertheresponsetotheemergencyincludesactivitywithinthecompetenceoftheadministration.

ThedevolvedadministrationswillmirrormanyofthetasksoftheUKcentralcrisismechanismaswellasfulfillingthesametasksastheEnglishregionalstructures.Ineverycase,theprecisebalanceofactivitywilldependonthecompetenceofthedevolvedadministrationinvolved(i.e.thetermsoftheirdevolutionsettlement)andthenatureoftheincident.

IftheemergencytakesplaceinScotland,WalesorNorthernIrelandandrelatestoadevolvedmatter,thedevolvedadministrationwillbethenominatedLeadGovernmentDepartment.Floodingisadevolvedmatter.IftheemergencyoccursinEnglandbuthascross-borderimplicationsfordevolvedissuestherelevantdevolvedadministrationwillleadonthisaspectintheirterritoryandprovideadviceandsupportasnecessarytotheUKgovernmentsothateffectscanbeunderstoodandpotentialmitigationmeasuresconsidered.

Inareasofreservedresponsibility,theUKGovernmentLeadGovernmentDepartmentwillleadtheresponseinthedevolvedareasworkingcloselywiththerelevantdevolvedadministration.Inpractice,evenwhereformalaccountabilityrestswithUKministersandWestminster,thedevolvedlegislatureswillexpecttobebriefedondevelopmentswherethesesignificantlyaffecttheirterritory.Likewise,devolvedministerswillbeexpectedtocommentbynationalandlocalmedianecessitatingcloseco-operationandinformationsharingbetweenUKdepartmentsandtheircounterpartsinthedevolvedadministrations.TheUKterritorialdepartments–ScotlandOffice,WalesOfficeandNorthernIrelandOffice–canplayanimportantroleinfacilitatingthisprocess.Thedevolvedadministrationsmaintaintheirownfacilitiestosupporttheirresponsetoemergencieswithintheircompetenceoraffectingtheirterritory.

Section 5:Toolsforfloodemergencyplannersandresponders

■■ Overview

■■ DailyFloodGuidanceStatements:vitalinformationforfloodemergency

plannersandresponders

■■ Forecastingpossiblesurfacewaterflooding:theFFC’sExtremeRainfall

Alert(ERA)Service

■■ Publicfloodwarnings

■■ MetOfficesevereandextremeweatherwarnings

■■ HazardManager

■■ Riverandsealevelsontheinternet

– Howtouseriverandsealevelsontheinternet

■■ Decisionsupportforfloodplannersandresponders-EAFloodAdvisory

Service

■■ Othertools:UKresiliencewebsite

■■ Othertools:NationalResilienceExtranet

Overview

Onethemostdifficulttasksforemergencyplannersandrespondersisknowingwhentoact.Inthecaseofflooding,thereareanumberoffactorsthatyouneedtotakeaccountof.Andit’sinevitablethatadegreeofjudgement,basedonacombinationofdataandinstinct,willbeneeded.

Buttheextenttowhichfloodemergencyplannersandrespondersneedtoapplyjudgementisgraduallydeclining.SinceApril2009,thenewFlood Forecasting CentrehasprovidedavaluablenewtooltoovercometheproblemsofconvertingMetOfficeweatherinformationandEnvironmentAgencyhydrologicalinformationintofloodriskassessments.AndtheEnvironmentAgency’sFloodAdvisoryService,detailsofwhichcanbefoundinthissection,isintendedtohelpplannersandresponderavoidmuchoftheguessworkassociatedwithfloodforecastsandwarnings.

Figure 5.1:Decisionsupport–overviewofproductstoconsider

Product Deliverer Relevant to which types of flooding?

Importance

Daily Flood Guidance Statements

FloodForecastingCentre

All High–triggerforaction

Extreme Rainfall Alert

FloodForecastingCentre

Surfacewater High–triggerforaction

Public Flood Warnings

EnvironmentAgency Riverandcoastal High–triggerforaction

Severe/Extreme Weather Warnings

MetOffice All Medium–keepwatch

River and sea levels on the internet

EnvironmentAgency Riverandcoastal Medium–keepwatch

Highways Agency website

HighwaysAgency All Low–consequenceofflooding

Rail disruptions NationalRailEnquiries

All Low–consequenceofflooding

Daily Flood Guidance Statements: vital information for flood emergency planners and responders

TheFloodForecastingCentre(FFC)issuesdailyFloodGuidanceStatementsthatprovideinformationforCategory1and2responderstohelpthemwiththeirplanningdecisions.ItpresentsanoverviewofthefloodriskacrossEnglandandWalesoverfivedaysandidentifiespossiblesevereweather,whichcouldcausefloodingandsignificantdisruptiontonormallife.

Statementsareissueddailyatthefollowingtimes:

■■ verylowandlowrisksituations—10.30hrs;

■■ mediumrisksituations—10.30and15.00hrs;and

■■ highrisksituations—10.30,15.00and20.00hrsand/orasagreedwithNationalIncidentRooms.

ASample Flood Guidance StatementcanbeviewedontheFFCwebsite.

FloodGuidanceStatementsprovidecountylevelinformationfordaysonetothreeandaregionalscaleillustrationoftherisklevelfordaysfourandfive.Theypresentanassessmentoftheprobabilityandimpactoffloodingbasedonmeteorologicalinformationandanunderstandingofthesituationacrossrivercatchmentsandthecoast.

TheassessmentofdailyfloodriskforEnglandandWalesprovidescolour-codedmapsshowingthelevelsofriskofamajorfloodeventhappeningforeachdayofafivedayperiod.Thecolour-codingisbasedonthefollowingkey.

Figure 5.2:FloodGuidanceStatementcolourkey

Key Very low risk Low risk Medium risk High risk

River & coastal flooding

Probabilityofoneormoreofthefollowingimpactsoccurringfromriversorthesea:

■■ extremedangertolife

■■ considerablenumbersofpeopleaffected

■■ significantimpactoncapacityofCat1&2respondersorthepublictoeffectivelyrespond

■■ approx>100propertieswillflood

■■ severeimpactoninfrastructure

■■ failureorovertoppingofdefencesexpected

<20% ≥20%to<40% ≥40%to<60% ≥60%

Extreme rainfall

ProbabilitythatERAthresholdswillbemet,leadingtopossiblesurfacewaterflooding.

<10% ≥10%to<20% ≥20%to<60% ≥60%

Suggested actions ■■ Businessasusual

■■ Considerliaisingwithpartnerorganisations

■■ Beawareofthelatestweather/floodwarningsandalerts

■■ Considerliaisingwithpartnerorganisations

■■ Consultsurfacewaterfloodmapsandlocalflood

Floodsaredifficulttoforecastsincetheexpectedweatherisjustonefactor.Toidentifyandassigntherisklevel,theFFCtakesintoaccountanassessmentof:

■■ theprobabilityofasevereorextremeweathereventoccurring(low20-40%,medium40-60%,high60%orgreater);

■■ recentweatherconditions–whethertheeventisshortlyafteranearlierperiodofprolongedrainorotherhighimpactweatherevent;

■■ indicativeknowledgeabouttheconditionofthecatchmentswithintheareasatrisk–howsaturatedthecatchmentsare,howhightheriversareandtheunderlyingconditions;

■■ spatialandtemporalextentoftheevent–whetheritisexpectedtobeshortandlocalisedorwillaffectalargegeographicalareaoverseveralhours;

■■ timingoftheevent–whetheritcoincideswithamajorsport,otheroutdooractivityornationalholiday;and

■■ impactoffluvialflowandspringtides–ifamajorfluvialeventisbeingassessed,whetherriveroutflowwilloccurataperiodofhigh(spring)tides.

RisklevelsareagreedonadailybasiswitheachEnvironmentAgencyregionviaForecastingDutyOfficers(forriverandcoastalflooding)andwiththechiefforecasterattheMetOffice(forprobabilitiesofextremerainfall).

AllCategory1and2responderscanregistertoreceivetheFloodGuidanceStatement.Tostartreceivingthem,calltheFFCon03001234501;oremailffcenquiries@environment-agency.gov.uk;orsignuponlineatwww.ffc-environment-agency.metoffice.gov.uk.

TheFFChasproducedafullerFlood Guidance Statement User Guidetohelpitscustomersinterprettheinformationtheyreceiveandputitintorelevantcontextfortheirregions.

Forecasting possible surface water flooding: the FFC’s Extreme Rainfall Alert (ERA) Service

Surfacewaterfloodinghappensasadirectresultofextremerainfall.Itdiffersfromriverfloodinginthatitcanhappenbeforewaterentersariverorwatercourse,orwherenoneexists.Advancewarningisdifficultasitcanhappenveryquicklywhenthelevelofrainfallismorethandrainscanhandle.Theeffectofitsimpactdependsonlocallandscapesandlocalconditionssuchasthestateofculverts.

TheERAServiceisdesignedtoalertemergencyrespondersinEnglandandWalestothepossibilityofsurfacewaterfloodingasaresultofextremerainfall.Thealertisissuedatcountyleveltohelplocalresponseorganisationsmanagethepotentialimpactsofflooding.Theprimarybeneficiaries

oftheERAServiceareCategory1and2responders.TheServiceisdesignedtohelpresponderstaketherightactionandreducetheimpactofsurfacewaterflooding,whichwillultimatelyimprovepublicsafetyandreducedisruption.Benefitsinclude:

■■ impactsonroadnetwork,localtransportandassociatedservicesminimised;

■■ localauthoritiesandutilitycompaniesbetterinformedtomanagetheirresponsetosurfacewaterflooding;

■■ staffandresourcesdeployedandmanagedmoreeffectively;

■■ equipment,suchassandbags,mobilisedanddeployedinadvance;and

■■ communicationteamsbetterinformedandpreparedtohandlemediaandpublicresponse.

AnERAcantaketwoforms:

■■ ERA Guidance—incorporatedintheFloodGuidanceStatementissueddailyat10.30hourswhenthereisbetweena10%and20%chanceofextremerainfall.

■■ ERA Alert—issuedwhenthereismorethana20%chanceofextremerainfallforaparticularcountyorcounties.

AlertsmaybeissuedwithoutbeingprecededbyGuidanceinarapidlydevelopingsituation.Similarly,GuidancewillnotalwaysbefollowedbyanAlert,forexampleifweatherconditionsimprove.

AnyCategory1or2respondercanregisterfortheERAServicebycalling03001234501oremailingffcenquiries@environment-agency.gov.uk.Itisafreeservice.Theseservicesareissuedviaemail,auto-voicemail,SMSorfax(thoughERAguidanceisnotavailablebyemailatpresent).

TheFFChasproducedafullerERA Services User Guidetohelpitscustomersinterprettheinformationtheyreceiveandputitintorelevantcontextfortheirareas.

Public Flood Warnings

TheEnvironmentAgency(EA)operatesafloodwarningserviceinareasatriskoffloodingfromriversandthesea.Iffloodingisforecast,warningsareissuedusingasetoffoureasilyrecognisablecodes.

EA’scodesformpartofitsstagedfloodwarningservice.FloodwatchesandwarningsareissueddirectlyfromFloodlineWarningsDirect(Seesection7formoreonFloodlinewarningsDirectorFWD).Theyaretargetedtospecificareasandtellpeopletheyareatriskofpossiblefloodingand

Flood Watch

What it means

Floodingoflowlyinglandandroadsisexpected.Beaware,beprepared,watchout.

What to do

■■ Monitorlocalnewsandweatherforecasts.

■■ Beawareofwaterlevelsnearyou.

■■ Bepreparedtoactonyourfloodplan.

■■ Checkonthesafetyofpetsandlivestock.

■■ Chargeyourmobilephone.

Flood Warning

What it means

Floodingofhomesandbusinessesisexpected.Actnow!

What to do

■■ Movecars,pets,food,valuablesandimportantdocumentstosafety.

■■ Getfloodprotectionequipmentinplace.

■■ Turnoffgas,electricityandwatersuppliesifsafetodoso.

■■ Bepreparedtoevacuateyourhome.

■■ Protectyourself,yourfamilyandhelpothers.

■■ Actonyourfloodplan.

Severe Flood Warning

What it means Severefloodingisexpected.Thereisextremedangertolifeandproperty.

Actnow!

What to do

■■ Collectthingsyouneedforevacuation.

■■ Stayinahighplacewithameansofescape.

■■ Avoidelectricitysources.

■■ Avoidwalkingordrivingthroughfloodwater.

■■ Indangercall999immediately.

■■ Listentoemergencyservices.

All Clear

What it means Floodwatchesorwarningsarenolongerinforceforthisarea.

What to do

■■ Keeplisteningtoweatherreports.

■■ Onlyreturntoevacuatedbuildingsifyouaretolditissafe.

■■ Bewaresharpobjectsandpollutioninfloodwater.

■■ Ifyourpropertyorbelongingsaredamaged,contactyourinsurancecompany.Asktheiradvicebeforestartingtocleanup.

Figure 5.3:EnvironmentAgencyFloodWarningCodes

needtobealertandstayvigilant.Peoplechoosewhetherornottoreceivethisinformation.Allpropertiesinfloodwarningareasareencouragedtosignupforthisservice.FloodlineandEA’swebsitecontainuptodateinformationonthesituation.

Floodplannersandrespondersareabletoreceiveautomatedemailsummariesofthefloodwarningsinforcetailoredtotheirlocalarea.Thesesummariesareinadditiontoindividualfloodwarningsandwillonlybesentwhentherearefloodwarningsinforceforthelocalarea.YourlocalEnvironmentAgencyofficecanprovidedetailsofhowtosign-upforthisservice.

Met Office severe and extreme weather warnings

TheMetOfficewebsiteincludespublicweatherinformation,includingsevereandextremeweatherwarnings.Theseincludewarningsforheavyrain,heavysnowandstrongwinds–allfactorsthatcansignificantlyaffectfloodrisk.Severeweatherwarningsoccurfrequently,particularlyinwinter.Extremeweatherwarningsarerarehowever.

Detailedsevere weather warningsareavailableatcounty/unitaryauthoritylevelforuptofivedaysahead.Theyareintheformofadvisories,earlywarningsand/orflashwarnings.

■■ Advisories-advisoriesareissuedby1100dailyasroutineandindicateconfidenceofexpectedsevereorextremeweather.Earlyandflashwarningssupersedeadvisorieswhenconfidencelevelsare60%orgreater;

■■ Earlywarnings-anearlywarningofsevereweatherwillnormallybeissueduptoseveraldaysinadvancewhenevertheoverallriskofwidespreaddisruptioninanyUKregionis60%orgreater;and

■■ Flashwarnings-Flashwarningsofsevereweatherareissuedwhenconfidenceofaneventreachingspecified criteriaisabove80%,andshouldgiveaminimumoftwohoursnotice.Warningsareissuedforeveryaffectedcountyorunitaryauthority.

Thefollowingtablesillustratethecriteriaforadvisories,earlyandflashwarningsandthepredictedimpactandpublicadvice.

Figure 5.4: Criteriaforweatherwarnings

Severe weather

Colour and risk levels for severe weather events (can often occur, particularly in winter)

Green Yellow Amber

Warning None Advisory Early Flash

≥20%

Moderate

≥40%<60%

≥60%<80%

Veryhigh

≥80%

HeadlineNosevereweather

expected

Moderateriskof

severeweather

Highriskofsevere

weather

Severeweatheris

imminentorisoccurring

Impact

Moderateriskof

somedamage

toinfrastructure

andlocal

disruption

Highriskthat

therewillbe

somedamageto

infrastructureand

localdisruption

Veryhighriskthatthere

willbesomedamageto

infrastructureandlocal

disruption

Advice

Ensureyou

accessthelatest

weatherforecast

Remainvigilantand

ensureyouaccess

thelatestweather

forecast

Ensureyouaccessthe

latestweatherforecast

andtakeprecautions

wherepossible

Extreme weather

Colour and risk levels for extreme weather events (these are rare)

Green Yellow Amber Red

Warning None Advisory Advisory Early Flash

RiskVerylow

≥20%<40%

Moderate

≥40%<60%

≥60%<80%

Veryhigh

≥80%

Headline

Noextreme

weather

expected

Lowrisk

ofextreme

weather

Moderaterisk

ofextreme

weather

Highrisk

ofextreme

weather

Extreme

weatheris

imminentor

occurring

Impact

Lowrisk

ofmajor

damageto

infrastructure

andthe

environment

Moderate

riskofmajor

damageto

infrastructure

andthe

environment

Highrisk

ofmajor

damageto

infrastructure

andthe

environment.

Casualtiesare

possible

damageto

infrastructure

andthe

environment

islikely.

Casualtiesare

possible

Advice

Ensureyou

accessthe

latestweather

forecast

Remainvigilant

andensure

youaccessthe

latestweather

forecast

Remainextra

vigilantand

accessthe

latestweather

forecast.Be

awareofrisks

thatmightbe

unavoidable.

Followany

advicegivenby

authorities

Remainextra

vigilantand

accessthe

latestweather

forecast.

Followorders

andany

advicegiven

byauthorities

underall

circumstances

preparedfor

extraordinary

measures

Hazard Manager

HazardManagerisaMetOfficeone-stopinformationsourcefortheemergencyresponsecommunity,allowingaccesstoallservicesinonelocation,usingasingleusernameandpassword.HazardManagerprovides:

■■ aone-stopinformationsource;

■■ apassword-protectedwebportaldedicatedtoCategory1and2responders;

■■ improvedvisualisationandamapviewer;

■■ singleusernameandpasswordtoaccessallservices;

■■ automaticpasswordresetting;and

■■ individualloginarrangements.

SomeMetOfficeandFFCproductshavealreadymovedtoHazardManager.Theremainingwillbemigratedacrossovertime.

AnyonewhoworksforaCategory1orCategory2responderorganisationcanaccessHazardManager(withsomeoftheservicesrestrictedtoapprovedusers).Beforeyoucanaccesstheserviceyouwillneedtoregister.

River and sea levels on the internet

TheEnvironmentAgency(EA)websiteprovidesemergencyplannersandresponderswithnearrealtimeinformationaboutriverandsealevels.

EAhasmonitoringstationsacrossEnglandandWalesthatmeasurethelevelofrivers,lakes,seaandgroundwater.MostofthemeasurementsaretakenelectronicallyandautomaticallysenttodatabasesusedbytheAgency’sforecastingsystems.ThesewaterlevelmeasurementsforriversandtheseaarenowsentstraighttotheEAwebsiteandpublishedonline.Theinformationisupdateddaily,andinsomecases,whenwaterlevelsarehigh,theinformationisupdatedmoreregularly.

Havinguptodateinformationonlocalwaterlevelswillhelppeoplelivinginfloodriskareasbebetterinformedaboutthesituationanddecidewhatactionstotakeasthewaterlevelschange.Thisinformationwillalsobenefitpeoplethatuseriversforrecreationsuchasanglersandboaters.Itwillhelplocalauthoritiesidentifywhereraisedwaterlevelscouldresultinproblemswithsurfacewaterflooding,soitshouldbeanimportantcomponentoftheinformationsetthatemergencyplannersandresponderswillusetohelpinformdecisionsandactionswhendealingwithfloodingfromriversandthesea.

How to use river and sea levels on the internet

Peopleareablevisitthefloods section of Environment Agency’s websitetoaccessriverandsealevelsfreeofcharge.

Userswillbegivenanationalmap(seefigure5.5)andwillberequiredtoeitherclickontheEnvironmentAgencyregiontheyareinterestedinorclickthelinktogettextonlyinformation.

Figure 5.5: Nationalriverlevelsmap

OncetheuserhasclickedontheEnvironmentAgencyRegiontheyareinterestedin,theywillbeshownamapsimilartothatshownbelow(figure5.6).Theywillthenneedtoclickonthelocationtheyareinterestedinonthemap.ThiswilltakethemdowntotherelevantEnvironmentAgencyArea.

Figure 5.6:Regionalriverlevelsmap

UsersarethenshownamapoftheEnvironmentAgencyAreafeaturingriversandurbanareas(figure5.7).Usersthenneedtoclickonthelocationtheyareinterestedinanddrilldowntotherelevantrivercatchment.

Figure 5.7:Riverlevelsareamap

Usersarethenshownmapsoftherivercatchment(figure5.8).Themapsshowrivers,urbanareasandtheriverlevelstations(greendots).Usersthenneedtoclickontheriverlevelstation(greendot)theyareinterestedin.

Figure 5.8: Riverlevelscatchmentmap

Onceauserhasclickedontheriverlevelstationtheyareinterestedintheywillbeshownthefollowinginformationforthatparticularstation(seefigure5.9):

■■ asummaryprovidingcontextualinformationaboutthesituation;

■■ riverlevel‘thermometer’–whichshowsthecurrentwaterlevelataparticularpointandincludesinformationtoputthisincontext(suchasthehighestlevelrecordedandthelevelwherefloodingispossible);

■■ ahydrograph-showingtherecentwaterlevelsoverthelast48hours,alongwithinformationtohelpputtheseincontext;

■■ stationdatawhichprovidesdetailssuchasthestationname,stationidentifier,watercourse,andwhenthesitewasopened;and

■■ floodwarnings-whenthereisoneormorefloodwarninginforce,alinkwillappeardirectinguserstotheEnvironmentAgency’sonlinelivefloodwarninginformation.

Figure 5.9:Riverlevelsstationdetails

Decision support for flood planners and responders - EA Flood Advisory Service

Thenumberandcomplexityoffactorsthatfloodplannersandrespondersmustpayattentiontoissuchthatitisverydifficulttobeabletomaketherightcallattherighttimeintermsofactivatingyourfloodplan.

Toaddressthis,theEnvironmentAgencyhasintroducedaFloodAdvisoryServiceforlocalpartners.TheservicewillinvolveajointteleconferencechairedbyyourlocalEnvironmentAgencyrepresentative,withtheassistanceofyourPublicWeatherService(PWS)Advisorwherepossible.Thismaybecalled,forexample,whentheFloodGuidanceStatementishighlightedasamber(mediumfloodrisk)orthereissignificantfloodriskinyourarea.Theservicewillprovidemoreco-ordinatedandconsistentinformationforpartnersondevelopingfloodrisk.

YoucanaccessfulldetailsoftheteleconferencenumberandotherimportantinformationfromyourlocalEnvironmentAgencycontactsorPWSAdvisor.

Other tools: UK resilience website

TheUKresiliencewebsiteexiststoprovidearesourceforcivilprotectionpractitioners,supportingtheworkwhichgoesonacrosstheUnitedKingdomtoimproveemergencypreparedness.AssuchitprovidesgreaterdetailonsomeofthematerialincludedinthisNationalFloodEmergencyFramework.Ithastwomainsections:

■■ theEmergency Preparedness sectionhasadviceforpractitionersonthepre-emergencyphase,withgenericmaterialonkeyframeworksliketheCivil Contingencies ActanddisciplineslikeRisk AssessmentandBusiness Continuity;italsocontainsdetailsoftheUKGovernmentCapabilities ProgrammeandasectiononResilient Telecommunications;

■■ theEmergency Response & Recovery sectionhasadviceforpractitionersonthepost-emergencyphase,withgenericmaterialonkeyframeworkssuchastheCentral Government’s Concept of OperationsandLead Government Department principle,andtheNational Recovery Guidance;ItalsocontainsdetailsoftheCentral Government Emergency Response Training programme.

Other tools: National Resilience Extranet

TheNationalResilienceExtranet(NRE)isasoftwarepackagewith3levelsofserviceavailablethroughsubscription.TheNREprovidesabrowser-basedtooltoenableefficientandsecure(accreditedtoRESTRICTEDlevel)exchangeofinformationduringbothroutineplanningandresponsetoemergencies.Thetoolprovidesreadyaccesstocentrallystoredinformationincludingtemplatesandgoodpracticeguidance,andenablestimelycommunicationofdocumentssuchasCommonlyRecognisedInformationPictures(CRIPs)andSituationalReports(SitReps).

TheNREisdesignedtosupportstrategiccollaborationbetweenpartnerslocally,regionallyandwithcentralgovernment,includingtheDevolvedAdministrations.Italsosupportsapplicationsforincidentmanagement.Itsoverallaimsare:

■■ toprovideasecuresoftwaresolutionthatwilllinktheresiliencecommunitytogetheratalllevelsfromcentralgovernmenttoregional/localresponders;

■■ toshareRESTRICTEDdocuments;

■■ tosupportcollaborativeworking;

■■ toprovidealevelof“standardisation”andinteroperability;

■■ toenabletimelycommunicationandsharingofinformation;and

■■ toprovideaneasilyaccessiblelibraryoftemplatesandinformation.

TheNREcanbeaccessedviaanystandardInternetconnectionbutrequiresadherencetoconnectionguidance.

Therearethreelevelsofbuy-in.Thebasic,day-to-dayinformationsharingcollaborativeworkingpackageincludessectionson:

■■ documentstorageandtemplates;

■■ calendarandon-linebooking;

■■ situationreports;

■■ newsroom;

■■ brokeragefacility;

■■ messagestorage;

■■ discussionboards;

■■ instantmessenger;

■■ eventsinformation;and

■■ contacts.

ThenextlevelEmergencyInformationManagementPackageaddsonamessagelogfacility;afacilitytodepositemergencyplans;ataskssection;andanincidentlogfacility.

ThehighestleveladdsacommerciallyavailableGeographicInformationSystem(GIS)Package.

GettheNREbycontacting:NREenquiries@cabinet-office.x.gsi.gov.uk.

Part two: Beingprepared

NationalFloodEmergencyFrameworkForEngland 61

Section 6:TheImportanceofmulti-agencyplanning

■■ Planningforall

■■ EmergencyplanningattheUKGovernmentlevel

■■ Emergencyplanningatthelocallevel

■■ Helpwithyourmulti-agencyplanning

■■ Whyhavespecificfloodplans?

■■ Focusyourplanning

Part2-BeingPrepared62

Planning for all

TheGovernmentwouldliketoseeallorganisationshaveeffective,well-practisedemergencyplansinplace–planstoreducetheriskofemergenciesoccurring;andplanstoreduce,controlormitigatetheeffectsoftheemergency.

Emergency planning at the UK Government level

TheUKGovernmentCapabilitiesProgrammeisthecoreframeworkthroughwhichtheGovernmentisseekingtobuildresilienceacrossallpartsoftheUnitedKingdom.TheprogrammeusesriskassessmentoverafiveyearperiodtoidentifythegenericcapabilitiesthatunderpintheUK’sresiliencetodisruptivechallenges,andensuresthateachoftheseisdeveloped.Thesecapabilitiesincludedealingwithmasscasualtiesandfatalities,responsetochemical,biological,radiologicalornuclearincidents,provisionofessentialservicesandwarningandinformingthepublic.

TheGovernmenthasinplaceaco-ordinatedcross-governmentalexerciseprogrammecoveringacomprehensiverangeofdomesticdisruptivechallenges,includingaccidents,naturaldisastersandactsofterrorism.TheprogrammeisdesignedtotestrigorouslytheconceptofoperationsfromthecoordinatedcentralresponsethroughtherangeofLeadGovernmentDepartmentresponsibilitiesandtheinvolvementoftheDevolvedAdministrations,totheregionaltierandlocalresponders.ThesenationalprocessesfeedintotheDevolvedAdministrations,regionalandlocallevelstoensurefullyintegratedemergencyplanningatalllevelsthroughouttheUK.

Emergency planning at the local level

EmergencyplanningisattheheartofthecivilprotectiondutyonCategory1respondersundertheCivil Contingencies Act 2004.TheActrequiresCategory1responderstomaintainplansforpreventingemergencies;reducing,controllingormitigatingtheeffectsofemergencies;andtakingotheractionintheeventofemergencies.Theseshoulddrawonriskassessmentsandshouldhaveregardforthearrangementstowarn,informandadvisethepublicatthetimeofanemergency.

Plansmustcontainaprocedurefordeterminingwhetheranemergencyhasoccurred;provisionfortrainingkeystaff;andprovisionforexercisingtheplantoensureitiseffective.Proceduresshouldalsobeputinplacetoensurethattheplanisreviewedperiodicallyandkeptuptodate.

Category1respondersshouldinvolveCategory2responders-andorganisationswhicharenotsubjecttotheAct’srequirements-asappropriatethroughouttheplanningprocess.Category1respondersarerequiredtohaveregardtotheactivitiesofrelevantvoluntaryorganisationswhendevelopingplans.

Category1respondersalsohaveastatutorydutytopublishtheiremergencyplans,totheextentnecessaryordesirableforthepurposeofdealingwithanemergency.

Help with your multi-agency planning

Governmenthasdrawnupguidanceformulti-agencyfloodplanning,basedongoodpracticefromarangeofexistingplans,guidanceanddocumentsandlessonslearnedfromrealfloodingeventsandexercises.Theguidanceformspart12oftheNationalFloodEmergencyFramework.

ThisguidanceshouldbeusedbyLRFstoundertakefloodresponseplanning,includingrecoveryplanningwhereitrelatestoflooding.Itcontainsexamplesofhowtosetoutthevariouscomponentsofafloodplan,allofwhichhavebeendrawnfromcurrentgoodpracticeintheUK.Theguidanceisprovidedtoaidthepreparationofamulti-agencyfloodplan,butshouldbeagoodsourceofinformation,adviceandguidanceforanyindividualbusinessoragencylookingtocompleteafloodplan.

TheguidanceisaimedatLRFsandtheemergencyplansthatflowfromitarenormallydesignedspecificallyforLRFmemberorganisations.Butwithremovalofanysensitiveand/orconfidentialinformation,thoseplanscouldbemadesuitableforwiderorgeneralpublication,whereLRFswishtoprovidesuchpublicinformation.

Why have specific flood plans?

TheCivil Contingencies Act 2004requiresCategoryOneResponderstohaveplansinplacetorespondtoallemergencies.Emergencyplansmaytaketheformofeithergenericplansthatdescribearesponsetoawiderangeofpossiblescenarios(e.g.LocalResilienceForum(LRF)IncidentPlan)orspecificplansthatdealwithaparticularkindofemergency(e.g.animaldiseaseorEvacuationandSheltering).ManyLRFswillprobablyhavebothtypesdependingonhowemergencyplanninghasevolvedinthearea.Theremayalsobearea-wideplans(e.g.atcounty-level)orsite/localareaspecificplans(e.g.district,wardorparish).

FormanypartsofEnglandandWales,floodingposesasignificantriskandiswell-recognisedwithinmanyCommunityRiskRegisters.LRFsareencouragedtodevelopaspecificfloodplantobothcomplementotherplansandtoprovidemoredetailtogenericMajorIncidentPlansorStrategicEmergencyResponsePlans.Thereasonforhavingaspecificfloodplanisbecauseofthecomplexnatureoffloodingandtheconsequencesthatarise,requiringacomprehensiveandoftensustainedresponsefromawiderangeoforganisations.TheguidanceisthereforegearedtowardhelpingLRFstocollectivelydevelopaMulti-AgencyFloodPlan.

Focus your planning

Plansshouldfocusonatleastthreekeygroupingsofpeople:thevulnerable;victims(includingsurvivors,familyandfriends)andresponderpersonnel.

Vulnerablepeoplemaybelessabletohelpthemselvesinanemergencythanself-reliantpeople.Thosewhoarevulnerablewillvarydependingonthenatureoftheemergency,butplansshouldconsider:thosewithmobilitydifficulties(e.g.thosewithphysicaldisabilitiesorpregnantwomen);thosewithmentalhealthdifficulties;andotherswhoaredependent,suchaschildren.

Victimsofanemergency,includenotonlythosedirectlyaffectedbutalsothosewho,asfamilyandfriends,sufferbereavementortheanxietyofnotknowingwhathashappened.

Responderpersonnelshouldalsobeconsidered.Planssometimesplaceunrealisticexpectationsonmanagementandpersonnel.Organisationsshouldensuretheirplansgivedueconsiderationtothewelfareoftheirownpersonnel.Forinstance,theemergencyserviceshavehealthandsafetyprocedureswhichdetermineshiftpatternsandcheckforlevelsofstress.

Organisationsshouldaimtomaintainplansforreducing,controllingormitigatingtheeffectsofanemergency.Themainbulkofplanningshouldconsiderhowtominimisetheeffectsofanemergency,startingwiththeimpactoftheevent(e.g.alertingprocedures)andlookingatremedialactionsthatcanbetakentoreduceeffects.Forexample,theemergencyservicesmaybeabletostemtheemergencyatsourcebyfightingfires,combatingthereleaseoftoxicchemicalsortheextentoffloods.Theevacuationofpeoplemaybeonedirectinterventionwhichcanmitigatetheeffectsofsomeemergencies.Recoveryplansshouldalsobedevelopedtoreducetheeffectsoftheemergencyandensurelongtermrecovery.TheNational Recovery Guidanceprovidesmoredetailonrecoveryissues.

Notallactionstobetakeninpreparingforanemergencyaredirectlyconcernedwithcontrolling,reducingormitigatingitseffects.Emergencyplanningshouldlookbeyondtheimmediateresponseandlongtermrecoveryissuesandlookalsoatsecondaryimpacts.Forexample,thewaveofreactiontoanemergencycanbequiteoverwhelmingintermsofmediaattentionandpublicresponse.Plansmayneedtoconsiderhowtohandlethisincreasedinterest.

Asobviousasitsounds,emergencyplansshouldincludeproceduresfordeterminingwhetheranemergencyhasoccurred,andwhentoactivatetheplaninresponsetoanemergency.Thisshouldincludeidentifyinganappropriatelytrainedpersonwhowilltakethedecision,inconsultationwithothers,onwhenanemergencyhasoccurred.

Themaintenanceofplansinvolvesmorethanjusttheirpreparation.Onceaplanhasbeenprepared,itmustbemaintainedsystematicallytoensureitremainsup-to-dateandfitforpurposeatanytimeifanemergencyoccurs.

Itmaybethatmultipleorganisationscandevelopajointemergencyplanwherethepartnersagreethat,forasuccessfulcombinedresponse,theyneedaformalsetofproceduresgoverningthemall.Forexample,intheeventthatevacuationisrequired,thepolicewouldneedcarefullypre-plannedco-operationfromvariousotherorganisationssuchasfireandambulanceservicesandthelocalauthority,aswellasinvolvementofotherssuchastransportorganisations.

Section 7:Goodcommunicationsareessential:planhowyouwillcommunicateduringanincident

■■ Theimportanceofcommunications

■■ It’syourdutytocommunicate!

■■ Whatinformationisneededwhen?

■■ Communicatingviathemediaatthenationallevel

■■ Workingwiththemediaatthelocallevel

■■ Planningtocommunicatewiththepublic

– Warningthepublicdirectly

– FloodlineWarningsDirect

– Whatshouldyoutellthepublic?

The importance of communications

TheGovernmentbelievescommunicatingwiththepublicaboutemergenciesisessential.ThePreparing for Emergenciesbookletisakeyexampleofeffortstoraisepublicawarenessaboutrisksandpreparednessforanumberoftypesofemergency.Awell-informedpublicisbetterabletorespondtoanemergencyandtominimisetheimpactoftheemergencyonthecommunity.Byinformingthepublicasbesttheycan,allorganisationswillbuildtheirtrust.Partofthisisalsoavoidingunnecessaryalarm.

Communicationsarrangementsbetweenallagenciesrespondingtoafloodneedtobeplannedfor,asfloodingoftencausesfailureoftelecommunicationssystems.TheseplansshouldbeincludedinLocalResilienceForumtelecommunicationsplans,wheretheyexist,orotherwiseintheMulti-AgencyFloodPlan(seesection12).Allagenciesshouldassumethattelecommunicationsmaybecompromisedduringfloodeventsandincludeprovisionfordealingwithfailure.

It’s your duty to communicate!

TheCivil Contingencies Act 2004(CCA)placesadutyonCategory1responderstocommunicatewiththepublic.Thisisbasedonthebeliefthatawell-informedpublicisbetterabletorespondtoanemergencyandtominimisetheimpactoftheemergencyonthecommunity.TheActincludespublicawarenessandwarningandinformingastwodistinctlegalduties–advisingthepublicofrisksbeforeanemergency;andwarningandkeepingtheminformedintheeventofanemergency.

TheStatutoryguidanceEmergency Preparednessdetailstherequirementsofthelegislationandgivesgoodpracticeguidanceonhowonhowresponderscancarryouttheirdutiestocomplywiththelegislation.Chapter7relatestoCommunicatingwiththePublic.

What information is needed when?

Organisationsengagedinwarningandinformingwillneedtothinkcarefullyaboutwhatinformationdifferentaudienceswillwant,andwhen,inanemergency.

Forinstance,immediatelywhenanemergencyoccurs,andduringthefirsthour...

Figure 7.1: Communicationsguide

The PUBLIC NEEDS:

■■ basicdetailsoftheincident-what,where,when(andwho,whyandhow,ifpossible);

■■ toknowtheimplicationsforhealthandwelfare;

■■ adviceandguidance(e.g.stayindoors,symptoms,preparingforevacuation);and

■■ reassurance(ifnecessary).

The PUBLIC WANTS to know:

■■ otherpracticalimplicationssuchastheeffectontraffic,powersupplies,telephones,watersupplies,etc;

■■ ahelplinenumber;and

■■ whatisbeingdonetoresolvethesituation.

BROADCASTERS will REQUIRE:

■■ well-thought-outandjoined-uparrangementsbetweentheemergencyservices,localauthorityandotherorganisations,capableofprovidingagreedinformationatspeed;

■■ animmediatetelephonecontact;and

■■ amediarendezvouspointatthescene.

Communicating via the media at the national level

Anaccurate,timelyandconsistentflowofinformationtothepublicandotherkeystakeholdersisessentialtomaintainingconfidenceintheresponsetoanemergencyandforinfluencingpublicbehaviour.TheLeadGovernmentDepartment’spressofficewillleadonpublicpresentationinsupportoftheleadministerandgovernment.However,whereanemergencyhaswiderangingimpactsorgivesrisetoconsiderablepublicandmediainterest,aNewsCo-ordinationCell(NCC)maybeactivated.ThisisalwaysinplacewheneverCOBRisactivated,butmayalsobestoodupinsupportoftheleadgovernmentdepartmentinresponsetoalevel1emergency(seesection2fordetailsonlevelsofemergency).

TheNewsCo-ordinationCellcanbeactivatedatvariouslevelsdependingonthenatureanddemandsoftheemergency.Thedutiescaninclude:

■■ advisingtheleaddepartmentonmediahandling;

■■ compilingandmaintaininga‘toplinesbrief’summarisingthekeyfactsandmessagesfordistributiontoministersandothersinvolvedintheresponseatanationalandlocallevel;

■■ briefingCOBRmeetingsonmediahandling;

■■ developinginconjunctionwithlocalrespondersandgovernmentdepartmentsacoherentpublicinformationstrategyforconsiderationbyCOBR;

■■ establishingafullyfunctioningcross-governmentmediacentreundertheleadershipoftheleaddepartmentandsupportingthepolicydirectionfromCOBR.

WhenestablishedtheNCCwillhandleallrequeststogovernmentforinformationontheemergencyandco-ordinaterequestsforinterviewswithMinisters.

Decisionsonthelevelofsupportrequiredfromthemediaco-ordinationrole,includingactivationoftheNCC,willbetakenbytheCabinetOfficeinconsultationwiththeLeadGovernmentDepartmentandthePrimeMinister.Wherethereisasignificantdevolveddimension,aninformationofficerfromtherelevantdevolvedadministrationwillalsonormallyjointheNCC.Thedevolvedadministrationswillprovide24/7coverattheirEmergencyCo-ordinationCentres,wherenecessary,andlinkintothepressteamsatalocalStrategicCoordinatingGroupandtheNCC.

Working with the media at the local level

Allorganisationsshouldbefamiliarwiththemediaorganisationsandoutletsintheirownareas,andshouldaimtodevelopgoodrelationswiththem.ThereisaconsiderableamountofadviceonhowtoachievethisintheBBC’s - Connecting in a Crisisinitiative.

Itisclearthatpoorcommunicationscanbedamaging.Thedamagedonetopublicconfidencebythereleaseofinconsistentandcontradictorymessagescanbehardtorepair.Similarly,greatdamagecanbedonebyspeculationaboutcausesorfuturedevelopments.Itisbettertosaywhensomethingisnotknownthantoguess,particularlyifthisisgoingtoraisethehopesoftheaffectedpublic-forexample,aboutwhentheycanreturntotheirhomes.

Thekeytoeffectivecommunicationviathemediaisgettingthemessagerightfortherightaudience.Howinformationandadvicearedeliveredcangreatlyaffecthowtheyarereceived.Organisationsshouldgivecarefulthoughtaheadofanyemergencyaboutwhomayactastheirofficialspokespeopleandundertakemediainterviewsandensurethosepeoplehavesuitabletraining.Otherpublic-facingpeopleintheorganisationshouldhaveabasiclevelofinformationsothattheycanhandleinquiriesconfidently.

Planning to communicate with the public

Insomecircumstances,itwillbecentralgovernmentthatfirstprovideswarningthatanemergencyisabouttooccurorisoccurring.Therearewellestablishedprocessestowarnandinformthepublicaboutthewholerangeofpossibleemergencies.

TheEnvironmentAgencyorganisepublicawarenesscampaigns,arrangeforthebroadcastingofmessagesandprovideadviceofwhattodobeforeduringandafterafloodevent.ThereisalotoffloodinginformationontheAgency’swebsiteincludingasearchfacilityonpostcodestoseeifpropertiesareinafloodriskarea.Nevertheless,it’simportantthatotheremergencyplannersandrespondershavecollectivelyagreedplansonhowtheywillraisethepublic’sawarenesspriortoanincidentabouttheriskoffloodingandhowtheymaybeaffectedbyfloods.Suchplansneedtoincludearrangementstocommunicatewithcertainvulnerablepeoplewhoaredependentupontheirtelephonelines(e.g.dialysispatients)andhowtheyaredealtwithifthenetworkfails.

Nosinglecommunicationssystemwillbethesolutiontoallsituationsorachieveanabsolutelyresilientalertingcapability.Avarietyofmethodswillalwaysbenecessarytoalertthelargestproportionofthetargetaudienceorassesstheirneeds.Usingdifferentmethodswillalsohelptoalertvulnerablegroups(e.g.hardofhearing,elderly,transientpopulationetc).Localrespondersneedtoassesswhichmethodsaremostsuitableinagivensituation,takingintoaccountlocalcircumstancesandthisshouldfeatureinemergencyplans,includingfloodemergencyplans,preparedbyLocalResilienceForums.

Warning the public directly

Themethodsavailabletodeliverurgentinformationtomembersofthepublicareextremelyvaried.Optionsthatshouldbeconsidered,dependingonthecircumstances,include:

■■ mobilisingofficerstogoroundonfootandknockondoors;

■■ fromcarorhelicopter,byloudhailerorotheramplifiedmeans;

■■ mediaannouncements;

■■ electronic/variablemessageboards,e.g.attheroadside;

■■ announcementsinpublicbuildings,shoppingcentres,sportsvenues,transportsystems,etc.;

■■ automatedtelephone/fax/e-mail/textmessagestosubscribers;and

■■ sitesirens.

Door–knockingandsimilarlowtechnologymethodswillbethemostresilienttodisruptiontotelecommunicationsandpower.OrganisationssuchasPolicegivingdirectinstructionstothepublic,orbuildingmanagerscommunicatingwiththeirtenants,allowsthepublictoreceive

messagesfromaknown(andgenerallytrusted)source.Atthesametime,Category1respondersneedtobeawarethatdoor-knockingmayrequirelargenumbersofpersonnelforittobeeffective,whichmaybedifficulttosustainforanythingotherthanshortperiods.Theyalsoneedtohaveregardtohealthandsafetyimplicationstoensurethatanydoorknockingtakesplacewellbeforefloodingisexpected.

Floodline Warnings Direct

TheEnvironmentAgencyoperatesafloodwarningserviceinareasatriskoffloodingfromriversandthesea.Iffloodingisforecast,warningsareissuedusingasetoffoureasilyrecognisablecodes.

Flood Watch

What it means

Floodingoflowlyinglandandroadsisexpected.Beaware,beprepared,watchout.

What to do

■■ Monitorlocalnewsandweatherforecasts.

■■ Beawareofwaterlevelsnearyou.

■■ Bepreparedtoactonyourfloodplan.

■■ Checkonthesafetyofpetsandlivestock.

■■ Chargeyourmobilephone.

Flood Warning

What it means

Floodingofhomesandbusinessesisexpected.Actnow!

What to do

■■ Movecars,pets,food,valuablesandimportantdocumentstosafety.

■■ Getfloodprotectionequipmentinplace.

■■ Bepreparedtoevacuateyourhome.

■■ Protectyourself,yourfamilyandhelpothers.

Severe Flood Warning

What it means Severefloodingisexpected.Thereisextremedangertolifeandproperty.

Actnow!

What to do

■■ Collectthingsyouneedforevacuation.

■■ Stayinahighplacewithameansofescape.

■■ Avoidelectricitysources.

■■ Avoidwalkingordrivingthroughfloodwater.

■■ Indangercall999immediately.

■■ Listentoemergencyservices.

All Clear

What it means

Floodwatchesorwarningsarenolongerinforceforthisarea.

What to do

■■ Keeplisteningtoweatherreports.

■■ Onlyreturntoevacuatedbuildingsifyouaretolditissafe.

■■ Bewaresharpobjectsandpollutioninfloodwater.

■■ Ifyourpropertyorbelongingsaredamaged,contactyourinsurancecompany.Asktheiradvicebeforestartingtocleanup.

Figure 7.2: Floodwarningcodes

TheEnvironmentAgency'scodesformpartofitsstagedfloodwarningservice.FloodwatchesandwarningsareissueddirectlyfromFloodlineWarningsDirect.Theyaretargetedtospecificareasandtellpeopletheyareatriskofpossiblefloodingandneedtobealertandstayvigilant.Peoplechoosewhetherornottoreceivethisinformation.Allpropertiesinfloodwarningareasareencouragedtosignupforthisservice.FloodlineandEA’swebsitecontainuptodateinformationonthesituation.

Floodplannersandrespondersareabletoreceiveautomatedemailsummariesofthefloodwarningsinforcetailoredtotheirlocalarea.Thesesummariesareinadditiontoindividualfloodwarningsandwillonlybesentwhentherearefloodwarningsinforceforthelocalarea.YourlocalEnvironmentAgencyofficecanprovidedetailsofhowtosign-upforthisservice.

What should you tell the public?

TheEnvironmentAgencyhaspreparedgeneralpublicadvice,whichisreproducedhere.Inshort,beforefloodinghappensyoumaywanttoensurethatyoureinforcethekeyEAmessages:

Figure 7.3:Floodwarningkeymessages

If flooding is predicted

■■ Packasmallbagwithessentialbelongingsandincludewarmclothes,torch(checkbatteries),radio(winduporbatterypowered),food,water,otherdrink,mobilephone(preinputusefulnumbers),anymedicinesthatyoumightneedtotake,anyimportantdocumentsthatyouhaveandafirstaidkit.Keepthisbageasilyaccessible.

■■ Collectpersonalbelongings,includinginsuranceandbankdetails,andessentialtelephonenumberstogether,andkeeptheminawaterproofbag.

■■ Movepeople,pets,valuablesandsentimentalitemsupstairsorinahighplacedownstairs.

■■ Keepaseparatelistofusefultelephonenumberstohand(thisshouldincludeyourlocalCouncil,yourinsurancecompanyandFloodline–0845988188).

■■ FindoutwhereandhowtoturnoffyourGasandElectricity.Ensurethatyouswitchitoffiffloodingisimminentbeforeevacuating.

■■ Ifpossible,moveelectricalequipmentandfurnitureupstairs.

■■ Anyfurniturethatyoucannotmoveupstairs,trytoraisewelloffthefloor.

■■ Alertneighboursandassisttheelderly,infirmandthosewithsmallchildren.

■■ Blockdoorwaysandairbricks.

■■ Avoidwalkinganddrivingthroughfloodwater,therecouldbehiddenhazards.

■■ KeepuptodatewithlocalradioforfurtherinformationandannouncementsandviaFloodline08459881188.

■■ ContinuetolistentosituationupdatesonyourlocalradioandviaFloodline08459881188.

■■ Keepdryandoutoffloodwaterifpossible

■■ Stayinyourproperty,ifsafetodoso,untiladvisedotherwisebytheemergencyservicesorthefloodwaterhasreceded.

■■ Donotwalkordrivethroughflowingfloodwater.

■■ Ifitisnecessarytowalkthroughshallowfloodwater,takecareforhiddenholes,obstaclesorotherhazards

■■ Donotwalkonriverbanks,seadefencesorcrossbridgesovertorrentialrivers.

■■ Avoidcontactwithfloodwaterandwashanyexposedpartsbeforehandlingfoodorattendingtowounds.

If evacuation becomes necessary

■■ Staycalmanddonotpanic.

■■ Policeofficersand/orotherofficialswilltrytovisitallpropertiesatrisktoadviseontherequirementtoevacuate.

■■ Ifroadconditionspermit,movevehiclestounaffectedareasandaskfriends/familyifyoucansharetheirparkingfacilities.

■■ Youwillhearaboutyourevacuationpointfortransportandthelocationofthereceptioncentreeitherverballyorbyaleaflet.

■■ Trytocheckthatanyelderly/vulnerablefamilymembersorneighboursknowabouttheevacuation.

■■ Trytoinformfamilymembers/friendsastowhereyouareevacuating.

■■ Listentotheadviceoftheauthoritiesandfollowanyinstructionstoleaveaproperty.

After a flood / returning home

■■ Contactyourinsurersassoonaspossibleandfollowtheiradvice.Mostinsurershavea24hrhelpline.Donotthrowawaydamagedgoodsuntilyourinsurerhasauthorisedyoutodoso.Itisagoodideatotakephotographsofthedamage.

■■ Checkthesafetyofelectricityandgasbeforeuse.Aqualifiedelectricianneedstocheckanyelectricalequipmentandcircuitsthathavebeenexposedtofloodwater.

■■ Avoidcontactwithanyremainingfloodwateroritemshavinghadcontactwithfloodwaterunlesswearingprotectivegloves/clothing.

■■ Boilalltapwateruntilitisdeclaredsafebythewatersupplycompany

■■ Washyoursandyourchildren’shandsfrequentlywithbottledwaterifyoursupplyhasnotbeendeclaredfitforuse.Disinfectanychildren’stoys.

■■ Disposeofanycontaminatedfood,includingtinnedfood,defrostedfood,andpackagedfoodthathavebeenexposedtofloodwater.

■■ Seekmedicalassistanceifanyhealthissuesappear,especiallyflulikesymptoms.

■■ Ventilateyourpropertywhilsttakingcareforsecurity.

■■ Donotthrowrubbishandfurnitureoutdoors;waitforanorganisedcollection.

■■ Duringthesehardtimes,bogus/cowboybuilders/tradersarefrequentlyofferingtheirservices.Makesurethatyougetawrittenquotationthatisonletterheadedpaperwithalandlinecontactnumberandaddress.

Section 8:Importantaspectsoffloodpreparedness

■■ Think,especially,aboutvulnerablepeople

– It’syourduty

– Identifyingvulnerabilityandcommunicatingthroughotherorganisations

■■ Infrastructureandflooding

– FloodWarningsforInfrastructure(FWFI)service

■■ EvacuationandShelteringofPeople

■■ Mutualaid

– Localauthoritymutualaidguidance

– Co-ordinateoffersofmaterialhelp

– Rolesandresponsibilities

■■ Workingwiththevoluntarysector

– Recognitionofcollaborativearrangements

– Issuesforconsideration

■■ Businesscontinuity

■■ Dealingwithfatalitiesandinjuries

– Fatalities

– RolesandResponsibilities

■■ Sandbags

– Adviseresidentsandbusinesseshowtoobtainandusesandbags

Think, especially, about vulnerable people

Theguidanceondevelopingamulti-AgencyFloodPlan(seesection12ofthisFramework)providesdetailedrecommendationsforsharinginformationaboutvulnerablepeopleinvariousfacilities.

Moregenerally,theCabinetOfficehaspublishedabookleton Identifying People Who Are Vulnerable in a Crisis: Guidance for Emergency Planners and Responders.Theguidanceisintendedforthedevelopmentoflocalactionplansforidentifyinggroupsofpeoplewhomaybevulnerableinanemergency.Itisprimarilyintendedforthosewhoareinvolvedinlocalemergencyplanningforvulnerablegroups,particularlythosewithinaLocalResilienceForum(LRF).

Theguidanceisbasedaroundfourkeystagesofestablishinganemergencyplanforidentifyingpeoplewhoarevulnerableinacrisis:

■■ Buildingnetworks-Themosteffectivewaytoidentifyvulnerablepeopleistoworkwiththosewhoarebestplacedtohaveup-to-daterecordsofindividualsandwhowillbeawareoftheirneeds.Thismayrangefromcarehomes(olderpeople)tothelocalhotelindustry(tourists).

■■ Creatinglistsoflists-Itwouldbeimpossibletomaintainacentralup-to-datelistofvulnerablepeople.Thereforeitisrecommendedthatlistsoforganisationsandestablishmentsaremade,whocanthenbecontactedintheeventofanemergencytoproviderelevantinformation.

■■ Agreeingdatasharingprotocolsandactivationtriggers-Oncerelevantagencieshavebeenidentifiedandnetworksdeveloped,agreeddatasharingprocedurescanbeputinplace,whichshouldhavetheflexibilitytoadjusttochangingcircumstanceswithclearagreedtriggersbetweenresponders.

■■ Determiningthescaleandrequirements-Bybuildingnetworksandagreeingdatasharingprotocols,thepotentialscaleofrequirementsofvulnerablepeoplecanbeestimatedinadvanceofanemergency,withoutdivulginginformationaboutindividuals.Thisinformationcanthenfeedintoemergencyplanningintermsofresourcesandequipment.

It’s your duty

ThestatutoryguidanceEmergency PreparednesssetsouttheresponsibilitiesonCategory1responders(withthecooperationofCategory2responders)toplanforandmeettheneedsofthosewhomaybevulnerableinemergencies.Inthiscontext,byvulnerablepeoplewemeanthosewhoarelessabletohelpthemselvesinanemergency:

■■ Makingandmaintainingplansforreducing,controllingormitigatingtheeffectsofanemergency.

■■ Warning&Informing-Chapter7oftheCabinetOfficeguidanceshowshowtheneedsofvulnerablepersons,includingthosewhomayhavedifficultyunderstandingwarningandinformingmessages,needtobetakenintoconsiderationbythoseCategory1responderswithleadresponsibilityforcommunicatingwiththepublic,bothinpublicawarenessprogrammesandinacrisis.Arrangementswillneedtoaddresshowinformationandassistancecanbemanagedbylocalauthoritiesandhealthauthoritieswhoareinregularcontactwithvulnerableindividuals.

■■ Businesscontinuity-Chapter8oftheCabinetOfficeguidancesetsouttheresponsibilityoflocalauthoritiestoprovideadviceandassistancetothoseundertakingcommercialactivitiesandtovoluntaryorganisationsintheirareas,inrelationtobusinesscontinuitymanagementinanemergency.Thisisa‘light-touch’dutybutrespondersmayconsiderincludingadviceontheidentificationofpersonswhomaybevulnerableinanemergency.Buildingcommunityresiliencethroughgoodbusinesscontinuityplanningwillhelpreducerelianceonpublicsectorbodiesintheeventofanemergency,enablingCategory1and2responderstofocustheirresourcesonthemostvulnerable.

Theemphasisfallssignificantlyuponlocalauthoritydepartments(mostnotablyemergencyplanningandsocialcare)andtheirpartnerhealthauthoritiestomeettheplanningandresponseneedofthesestatutoryresponsibilities,mostofwhichapplytoinformationdisseminationorwarningandinformingcampaigns.

OtherlegislationmayinteractwithresponsibilitiesundertheCivilContingenciesAct-inparticulartheDisability Discrimination Act.

Identifying vulnerability and communicating through other organisations

Thefollowingtablewillhelpyouthinkaboutwhomightbecategorisedasvulnerable,forthepurposesofyouremergencyplanning.

Figure 8.1: Potentiallyvulnerablepeople/groups

Potentially Vulnerable Individual/Group

Examples and Notes Target through the following organisations/agencies

Children Wherechildrenareconcerned,whilstatschooltheschoolauthoritieshavedutyofcareresponsibilities.Certainschoolsmayrequiremoreattentionthanothers.

LEAschoolsthroughLocalAuthorities,andnon-LEAschoolsthroughtheirgoverningbodyorproprietor.

Crèches/playgroups/nurseries

Older People Certainsectionsoftheelderlycommunityincludingthoseofillhealthrequiringregularmedicationand/ormedicalsupportequipment

ResidentialCareHomes

HelptheAged

AdultSocialCare

NursingHomes

Mobility impaired Forexample:wheelchairusers;leginjuries(e.g.oncrutches);bedridden/nonmovers;slowmovers.

ResidentialCareHomes

Charities

Healthserviceproviders

LocalHealthAuthoritiesMental/cognitive function impaired

Forexample:developmentaldisabilities;clinicalpsychiatricneeds;learningdisabilities.

Sensory impaired Forexample:blindorreducedsight;deaf;speechandothercommunicationimpaired.

Charitiese.g.theDeafCouncil

Localgroups

Potentially Vulnerable Individual/Group

Examples and Notes Target through the following organisations/agencies

Temporarily or

permanently ill

Potentiallyalargegroupencompassingnotonlythosethatneedregularmedicalattention(e.g.dialysis,oxygenoracontinuoussupplyofdrugs),butthosewithchronicillnessesthatmaybeexacerbatedordestabilisedintheeventofevacuation,orbecauseprescriptiondrugswereleftbehind.

GPsurgeries

Otherhealthproviders(public,privateorcharitablehospitalsetc.)

Communitynurses

Individuals supported by health or local authorities

Socialservices

GPsurgeries

Individuals cared for by

relatives

GPsurgeries

Carersgroups

Homeless Shelters,soupkitchens

Pregnant women GPsurgeries

Minority language

speakers

CommunityGroups

JobCentrePlus

Tourists Transportandtravelcompanies

Hoteliers

Travelling community Localauthoritytravellerservices

Policeliaisonofficer

Infrastructure and flooding

TheCabinetOfficecross-sectorprogrammetoimprovetheresilienceofcriticalinfrastructureandessentialservicestoseveredisruptionbynaturalhazardsisintendedtoestablishashared,consistent,proportionateandrisk-basedapproachtodeliveringreductionsinvulnerabilityoveranumberofyears.Oneoftheearlyproductsofthatwork-The Strategic Framework and Policy Statement on Improving the Resilience of Critical Infrastructure to Disruption from Natural Hazards-setsouttheproposedpolicyintent,scope,aims,timescalesandworkstreamsoftheprogramme.

Atpresent,theframeworkdoesn’tincludepracticalhelpforemergencyplannersinthisarea.Theadviceisthattheymaywishtoengagewithassetownersintheirareatodiscusstheproposedresiliencestandardswithintheframework.Thereareanumberofpoliciesbeingdevelopedthatshouldbeofdirectassistanceinthefuture-forexampleoninformationsharingtoclarifyLRFs'accesstoinformationoncriticalsitesandexpectationsofwhatshouldbedonewiththeinformation.

Flood Warnings for Infrastructure service

Flood Warnings for Infrastructure(FWFI)isawayofissuingfloodwarningstoinfrastructureownersandoperators.Aninfrastructureoperatorisanyorganisationwhichownsoroperatesfixedassetsornetworks.Thisweb-basedserviceisoperatedfortheEnvironmentAgencybyapprovedproviders.

FWFIworksbymatchingassetsatriskoffloodingwithEnvironmentAgencyfloodwarningareas.Anassetcouldbeanysitespecificequipmentordevelopmentsuchassewagetreatmentworks,telephoneexchange,anofficeordepot.Theservicealsoappliestotransportnetworkssuchasmotorway,roadandrailinfrastructure.

ThestatusofallEnvironmentAgencyfloodwarningsisupdatedevery15minutes.TheFWFIsystemautomaticallyupdatesthefloodwarningstatusofeachregisteredassetwithinthefloodwarningareas.TheinfrastructureoperatorcanthenlogintoFWFIandviewthefloodwarningstatusfortheirregisteredassets.Thisapproachallowsuserstoconcentrateonthefloodresponserequiredspecificallyfortheirownassets.

Anynumberofstaffdesignatedbytheassetowneroroperatorcanaccessthesystemusingpersonalisedusernamesandpasswords.Aswellasprovidingthelatestfloodwarningstatusateachasset,thesystemcangiveusersinformationabouttheasset,locationmapsanddetailsoftheEnvironmentAgencyAreaandIncidentRoomsinthearea.

Whenthefirstassetreachesfloodwatchorfloodwarningstatus,ane-mailalertissenttostaffdesignatedbytheregistrant.Thisalertcanalsobeintegratedwiththeregistrant'sowninternalsystemstoraiseawarenessthatoneormoreassetisatriskfromflooding.Thealertpromptsstafftologintothesystemandtaketherelevantaction.Whenstafflogin,theyseealistoftheir

assetswiththefloodwarningstatusclearlyshown.Theassetsathighestriskoffloodingalwaysappearatthetopofthislist.Userscanaddasmuchdetailtotheseassetsastheywish-suchaslocation,uniqueidentificationreferences,anddescriptions.

Whenassetsarenolongeratriskoffloodingandthesystemshows‘allclear’status,ane-mailissent.

AnyoperatorwithsitespecificassetsoraninfrastructurenetworkcansignuptoFWFIandbenefitfromamoretailoredfloodwarningservice.Theserviceischargeable.

Evacuation and Sheltering of People

Thepurposeofevacuationistomovepeople,andwhereappropriateotherlivingcreatures,awayfromanactualorpotentialdangertoasaferplace.Thereismoreonevacuationandshelteringinsection12.

Evacuationplanningshouldbebespoketolocalrisksandcircumstancesandwillrequiretheinvolvementofmanydifferentorganisations.ItisthereforeprimarilyanissueforlocalresponseorganisationsandLocalResilienceForums,whomayhaveanevacuationsub-grouporganisedtomanagethisplanning.

Evacuation and Shelter GuidancehasbeenwrittenbytheCabinetOfficetoassistorganisationsindevelopingtheirevacuationplans.Thisguidanceisintendedtohelprespondersscopetheissuesanddeveloptheirownevacuationandshelterplansthatcanbeusedtorespondtoawiderangeofscenariosproportionatetotheriskstheirparticularcommunitiesface.Itcovers:

■■ therangeofevacuationandshelterscenariosthatplannersshouldconsider;

■■ theresponsibilitiesofkeyorganisations;

■■ legalandotherconsiderationstobetakenintoaccount;and

■■ examplesofgoodpractice.

Mutual aid

SuccessfulresponsetoemergenciesintheUKhasdemonstratedthatjointworkingandsupportcanresolveverydifficultproblemsthatfallacrossorganisationalboundaries.Largescaleeventshaveshownthatsingleorganisationsactingalonecannotresolvethemyriadofproblemscausedbywhatmight,atfirstsight,appeartoberelativelysimpleemergenciescausedbyasinglesource.

MutualaidcanbedefinedasanarrangementbetweenCategory1and2respondersandotherorganisationswithinthesamesectororacrosssectorsandacrossboundaries,toprovide

assistancewithadditionalresourceduringanemergency,whichmayoverwhelmtheresourcesofanindividualorganisation.AlthoughtheCivil Contingencies Act 2004laysdowndutiesregardingbi-lateralco-operation,thatshouldnotbeseentorestrictrespondersworkingclosely.

WhilethereisnoUKwidepolicyspecificallyrelatingdirectlytomutualaid,manyareassuchaspolice,fire,NHSandlocalauthoritieshaveinter(andintra)agencymutualaidprotocolsinplace.Someoftheseareformal,butmanyareinformal.

Formalprotocolsdetailhoweachpartnerwillundertakeorallocateresponsibilitiestodelivertasks.Protocolsmaycovermattersofbroadagreementordetailsforworkingtogether,includinghowtohandovertasksorobtainadditionalresources.Protocolsmayormaynotbelegallybindingdependinguponthenatureoftheagreementbetweentheparties.

Local authority mutual aid guidance

TheCivilContingenciesSecretariatincollaborationwiththeLocalGovernmentAssociation(LGA)andtheSocietyofLocalAuthorityChiefExecutivesandSeniorManagers(SOLACE)hasproducedashortguidetosupportlocalauthoritiesindevelopingeffectivemutualaidarrangements.Mutual Aid: a short guide for local authoritiesoffersadviceonarangeofpracticalconsiderationsandprovidesageneralframeworkthatcanbedevelopedbyauthoritiestosatisfylocalrequirements.

Co-ordinate offers of material help

Asignificantpartcanbeplayedbythevoluntarysectorandothers.Forexample,theRedCrossmayworkwithlocalauthoritysocialservicestoopenrestcentresanddealwiththeneedsofdisplacedpeople.Andlocalbusinessesmightworkwiththeemergencyservicesregardingevacuationplansforindustrialestates,shoppingcentreetc.TheNationalVoluntarySectorCivilProtectionForum,inpartnershipwiththeCivilContingenciesSecretariat,hasproducedaVoluntary Sector Engagement Guidance NotewhichprovidessomesuggestionstosupportCategory1respondersandtheirvoluntarysectorpartnerswhenconsideringcollaborativearrangements.

Moregenerally,itislikelythatmanyoffersofhelpwillarrivefromthegeneralpublic,businesses,charities,voluntaryagenciesandothersbothduringtheresponseandrecoveryphase.Somewillbeofpracticalassistance.Otherswillbeofphysicalgoodsforthosedirectlyaffected.

Considerationshouldbegivento:

■■ procedurestoregisterandco-ordinateoffersofhelp;

■■ formingapaneltoassessneedsandthedistributionofdonatedhelp;

■■ identifyingstorageareas;and

■■ adisposalmechanismforunuseddonations.

Roles and responsibilities

LocalResilienceForums(LRFs)arewellplacedtofacilitatetheprovisionofformalmutualaidagreementsbetweenitsmembers.RegionalResilienceForums(RRFs)canalsobeusedforfacilitatingwidermutualaidagreements,e.g.betweenalllocalauthoritiesinaregion.

MutualAidarrangementsexistwithinandbetweenmanyofthevoluntarysectororganisations.Intheeventofamajoremergency,voluntarysectorsupportmaybeaccessedthroughtheheadofficesoftherelevantvoluntaryorganisationsorthroughtheVoluntary Sector Civil Protection ForumortheNationalVoluntaryAidSocieties’EmergencyCommittee(NVASEC).

Linkswiththevoluntarysectorwillnormallybeco-ordinatedthroughthelocalauthoritiesinanarea-oftenthroughasub-groupoftheLocalResilienceForum–andactivationandco-ordinationarrangementsforvoluntarysectorinvolvementinbothresponseandrecoveryphasesshouldbeformalisedaspartofemergencyplanningwork.

Working with the voluntary sector

Thevoluntarysectorhasanimportantroletoplayinsupportingthestatutoryservicesinresponsetomanyemergencies.Experienceshowsthatactiveengagementofthevoluntarysectorinemergencypreparednessworksuchasplanning,training,andexercising,willenablethemtobemoreeffectiveintheeventofanemergency.

Planningforandrespondingtoemergenciesisprimarilydeliveredatthelocallevel.Therefore,theengagementofthevoluntarysectorincivilprotectionismosteffectivelymanagedatthelocallevel,supplementedbyregionalco-ordinationandanationalpolicyframework.

The Civil Contingencies Act 2004establishesastatutoryframeworkforcivilprotectionatthelocallevel,settingoutaclearsetofrolesandresponsibilitiesforlocalresponders.TheAct’ssupporting RegulationsrequirethatCategory1responders“haveregard”totheactivitiesofcertainvoluntaryorganisationsinthecourseofcarryingouttheiremergencyandbusinesscontinuityplanningduties.(moredetailcanbefoundinChapter 14 of Emergency Preparedness).

ThishascreatedanexpectationthatCategory1responderswillmakethemostoftheresourcesandexpertisethatthevoluntarysectorcanoffer,puttingthisrelationshiponamorerobustandlong-termfooting.

Recognition of collaborative arrangements

Byestablishingthemostappropriateorganisationalframework,thevoluntarysectorcanbeproperlyfactoredintotheplanningprocess.Soundco-operationthroughtheLocalResilienceForum(LRF)processesanddirectlywithindividualCategory1respondersshouldbebasedonanagreedframeworkthatcanleadtoaneffectivestructure.Thisstructureneedstosuitlocalcircumstances,beunderstoodbyallconcernedandhaveclearlyidentifiedpointsofcontact.Arrangementsmustbekeptuptodatebyregularformalandinformalcontact.

Effectiveengagementofthevoluntarysectoratalocallevelwillalsofacilitateamoreeffectiveengagementandresponseintheeventofregional,nationalandinternationalemergencies.

InordertoensurethatarrangementsarefullyunderstoodandrecognisedbyalltheorganisationsinvolvedinpartnershipsbetweentheCategory1respondersandvoluntaryorganisations,itmaybeworthconsideringhowtoorganisethesearrangementsinawaythatbestsuitsthenatureofthepartnership.Thiscouldbedoneinanumberofways:

■■ servicelevelagreements;

■■ memorandaofunderstanding;

■■ establishingprotocols;and/or

■■ formallyreflectingarrangementswithinactualplans.

Issues for consideration

Thereareanumberofelementsthatneedtobeconsideredforinclusionincollaborativearrangementsinordertoensurethattheexpectationsofeachorganisationareunderstoodfullyandmeteffectively.

Figure 8.2:Considerationswhenworkingwiththevoluntarysector

Element Issues for consideration

Existing arrangements

■■ Whatexistingarrangementshasthevoluntaryorganisationenteredinto?

■■ Whatprioritywillthenewpartnershipbegiven?

■■ Willtheotherarrangementshaveanyimpactonthelevelofsupportthevoluntaryorganisationisabletoprovidei.e.ifthereareduplicatedemands?

■■ Areexistingarrangementsformale.g.MOU,contract?

■■ Isthecontributionoftheorganisationincludedinexistinglocalplans?

Personnel ■■ Whatisthepersonnelcapacityofthevoluntaryorganisationi.e.numbers,skills?

■■ Istheestimateoftheemergencyresponserealistic?

■■ Wouldthecapacitybeimpactedbytimeofday,dayofweek,natureofemergency?

■■ Istheorganisationabletocallonamutualaidfacility?

Services and activities

■■ Whattypesofservicesand/oractivitiesdoestheorganisationprovide?

■■ Dotheseservicesand/oractivitiesrespondtoalikelyneedinanemergency?

■■ Dotheseservicesand/oractivitiescomplementorsupplementsimilarservicesand/oractivitiesprovidedbyanotherorganisation?

■■ Isthereflexibilityintheorganisation’semergencyresponsecapability?

Payment of Costs

■■ WilltheCategory1responderbeexpectedtomeetorcontributetocostsincurredbythevoluntaryorganisationduring:

i.Theplanningphasee.g.volunteers’involvementintrainingandexercising.

ii.Theresponsephasee.g.iftheemergencyisaprotractedone.

iii.Therecoverystagee.g.aftercare–HumanitarianAssistanceCentre.

Element Issues for consideration

Insurance ■■ Doesthevoluntaryorganisationprovideinsuranceforitsvolunteersonadailybasis?Doesitprovideinsuranceforitsvolunteersinanemergencyresponse;ifsoisthecoverappropriate/adequate?

■■ DoestheCategory1responder’sinsurancecoverincludevolunteersundertakingtasksonitsbehalf?

Training and Exercising

■■ Whattrainingprogrammesdoesthevoluntaryorganisationhaveinplace?

■■ Whatadditionaljoint-trainingwouldthevoluntaryorganisationand/orCategory1responderswanttoundertake?

■■ Couldvoluntaryorganisationscontributetothedeliveryoftraining?

■■ Towhatextentwouldthevoluntaryorganisationbeinvolvedinexerciseprogrammesi.e.planning,operation,reviewandevaluation?

■■ Willtherebeassistancewithfundingforthecostsoftrainingandinclusioninexercises?

■■ Isthereanyopportunityforinternal/externalaccreditationofstandardsintraining?

Business continuity ThepurposeofBusinessContinuityistoensurethecontinuanceof‘MissionCritical’activitiesoforganisationsandbusinessesduringadisruptivechallenge.

BusinessContinuityManagementisaholisticmanagementprocessthatidentifiespotentialthreatstoanorganisationandtheimpactstobusinessoperationsthatthosethreats,ifrealised,mightcause.Itprovidesaframeworkforbuildingorganisationalresiliencewiththecapabilityforaneffectiveresponsethatsafeguardstheinterestsofkeystakeholders,reputation,brandandvalue-creatingactivities.

Theobjectiveistocontinuethecriticalactivitiesofanorganizationandfacilitatethereturntopre-incidentlevelsoflostpositionorinformationwithinthedefinedmaximumtolerableperiodofdisruption.

Thefollowingdocuments/webpageshavebeenwrittenbytheCabinetOfficetoassistorganisationsindevelopingtheirevacuationplans:

■■ Business Continuity Toolkit-Thisguidanceisintendedtoprovideagroundingtoanysizeoforganisationorbusinessinthekeyareasofunderstanding‘BusinessContinuityManagement’andofferguidanceinaroutemaptoputtinginplaceBusinessContinuityPlans.

■■ Cabinet Office / Business Continuity Web Pages-Thesepagesintroducebusinesscontinuityandofferfurtherareasforexplorationinthevariousstrandsofthesubject.

■■ Emergency Planning College / Business Continuity Training Pages-ThesepagesofferdetailsontrainingandcoursesopentoallsectorstobuildanddevelopskillswithinBusinessContinuityManagement.

■■ AdviceforBusinesses-ThesepagesofferanarrayofpracticalandvariedadviceonbusinesscontinuitymanagementandlinkintotheBusinessContinuityToolkitandtheNationalRiskRegister.

■■ NationalRiskRegister-TheNationalRiskRegisterorNRRsetsouttheCabinetOfficeassessmentofthelikelihoodandpotentialimpactofarangeofdifferentrisksthatmaydirectlyaffecttheUK.TheNRRhasachapterdedicatedto‘ConsiderationsforOrganisations’.TheNRRisaclassifieddocument.

Dealing with fatalities and injuries

Amassfatalityincidentisdefinedasanyincidentwherethenumberoffatalitiesisgreaterthannormallocalarrangementscanmanage.Anyplanfordealingwithfatalitiesneedstobeintegratedwithallaspectsoftheresponseandrecoveryfromsuchsituationsandincidents.

Itislikelythatyourmulti-agencyfloodplanwillbeseparatefrom,butcomplementaryto,yourplanfordealingwithmassfatalitiesandinjuries.

Fatalities

TheMassFatalitiesWorkstream(undertheCivilContingenciesSecretariatCapabilitiesProgramme)aimstobuildgenericcapabilitytodealwithlargescaleeventsinvolvinglargenumbersoffatalitiesbothintheUKandoverseas.Insuchcasesthereisaneedtoensureintegrityofidentificationofthedeceasedwhilstbalancingtheneedsoffamiliesandanyinvestigation.

Roles and Responsibilities

Thelocalauthorityisresponsibleforestablishingandequippingmortuariesthatarerequiredinamassfatalitiesemergency.LocalAuthoritiesareencouragedtousemutualaidarrangements,wherenecessary,tofulfillthisresponsibility.Thelocalauthorityisresponsibleforalertingsocialservices,theEnvironmentAgencyandcallingonsupportfromfaithleadersandthevoluntarysectortoassistinwelfareprovisionforfamilyandfriendsofthedeceased.

SocialServiceswillliaisewiththepoliceFamilyLiaisonCo-ordinatortoassesstheneedfortraumasupportstaffandothertangiblesupportforfamiliesandfriendswhoviewthedeceasedand/orneedtodealwithfuneralarrangements.

ThelocalauthoritywillusuallyappointandsupportaMortuaryFacilitiesManager.Thisappointmentmaybeachievedbyutilizingtheprinciplesofmutualaid.TheLocalAuthoritywithinwhoseareathemortuaryissituated(unlessotherwiseagreed)willassistinmattersrelatingto:

■■ themanagementofallsub-contractedservices(unlessstatedasotherwiseinagreementscontainedwithintheNationalEmergencyMortuaryArrangements);

■■ publichealth;

■■ Health&Safety;

■■ hazardouswastecollection;

■■ themanagementofeffluentdischargesinconsultationwiththewaterservice,utilityproviderandtheEnvironmentAgency;

■■ refusecollection;

■■ cleaningandroad-sweeping;

■■ theprovisionofgardenandlandscapingservices;and

■■ theupkeepandappearanceofallpublicareaswithinthemortuary.

Itisrecognisedthatlocalplansmightbeinsufficienttocopewithlargescaleevents,andsosub-regionalorregionalresponsemassfatalityplansmightberequired.RegionalResilienceForumsshouldengagewithlocalauthoritiesintheirareatoagreethescaleofplanningrequired.

TheHomeOfficeistheLeadGovernmentDepartmentonmassfatalities.Inrecognitionthataregionalresponsemaybecomeoverwhelmed,theHomeOfficehaveworkedwiththeRegionalResilienceForumsandthedevolvedadministrationstoestablishnationalcapabilitytodealwithmassfatalityincidents.RequestsforcentralassistancemustbeputtotheHomeOfficeMassFatalitiesSection.Nationalapprovalisrequiredsothatcentralresourcescanbetrackedagainstthepotentialforfurtherincidents.

ItistheresponsibilityoftheCoronertoestablishcauseofdeath,circumstancesandidentificationofabody.Ifanincidentcrossesmorethanonecoroner’sjurisdiction,aleadcoronerwillhavetobeidentified.Thecoronerwilldecideifpostmortemsarerequiredtoestablishdeath.Coronersshouldhaveemergencyplanstodealwithmultipledeathsthatmayimpactonnormalworkingarrangements.

Sandbags

Traditionally,sandbagshavebeenusedtoblockdoorways,drainsandotheropeningsintopropertiesaswellastoweigh-downmanholecovers,gardenfurnitureandtoblocksink,toiletandbathdrainstopreventwaterbackingup.Usedproperly,sandbagscanbeveryeffectivesincethey:

■■ cankeepwateroutforshortperiodswhichcanbeimprovedbyusingtheminconjunctionwithplasticsheeting;

■■ canfilteroutsomemuddysedimentsfoundinfloodwaters;and

■■ arecheapandeasytoobtain.

However,sandbagsarerelativelyineffectivewhencomparedtopurpose-designedfloodprotectionproducts.Someofthepitfallsare:

■■ ittakestwopeopletofillthem(unlessyouhaveasandbagfillingmachine);

■■ theytaketimetofill(approximatelyonehourtofill12sandbags);

■■ theycanbedifficulttohandle;

■■ layingthemcanbeverytime-consuming;

■■ sackingmaterialisbiodegradableandwillperishifleftinplaceforalongtime;

■■ itisdifficulttoplacesandbagsinwaterandparticularlyinrunningwater;and

■■ sandbagsdoseepwaterevenwhenwell-stackedandtroddenintoplace.

Asaresult,theEnvironmentAgencystronglyencouragestheuseofpurposemadefloodprotectionproducts,suchasfloodboards,non-returnvalvesforplumbingandairbrickcovers.

Advise resident and businesses how to obtain sandbags

Somelocalauthoritieswillprovidesandbagsinafloodemergency.Butnotallaregeareduptodosototheextentthatmaybenecessary.Soit’simportanttoensureresidentsandbusinessesknowwhattheycanexpectfromlocalauthoritiesandothers,andwhattheyoughttodoforthemselves.

TheEnvironmentAgencyhaspublishedSandbags and how to use them properly for flood protection.Itisimportantthatyourcommunitiesknowwhattheycanexpect,andthatthosewhohaveresponsibilityforsandbagging,oradvisingothersonhowtodoitareawareoftheadvice.

■■ TheReservoirsAct1975

■■ Publicattitudestoreservoirsafety

■■ Planningforreservoirfailures

– On-sitereservoirfloodplans

– Off-sitereservoirfloodplans

– WhotoWarnandInform–PublicInformationZones

– Whatinformationandwhen?

– Informingmethods

– Ensuringyourcommunicationsarerobustandfitforpurpose

– Emergencywarningmethods

■■ Handlingthemedia

Section 9:Reservoirfloodsafety

TherehavebeennofatalitiesintheUKfromreservoirfailuresincethe1920sand,acrossthecountryasawhole,thelikelihoodofindividualdamfailureisverylow.However,thepotentialimpactofafailurecanbehigh.

The Reservoirs Act 1975

SafetylegislationforreservoirsintheUnitedKingdomwasfirstintroducedin1930afterseveralreservoirdisastershadresultedinlossoflife.ThiswassupersededbytheReservoirs Act 1975,whichtodayprovidesthelegalframeworktoensurethesafetyoflargeraisedreservoirsandappliestoreservoirsthatholdatleast25,000cubicmetresofwaterabovenaturalgroundlevel.

UndertheReservoirsAct1975,reservoirowners(Undertakers)haveultimateresponsibilityforthesafetyoftheirreservoirs.TheymustappointaPanelEngineer(aspecialistcivilengineerwhoisqualifiedandexperiencedinreservoirsafety)tocontinuouslysupervisethereservoir(SupervisingEngineer)andtocarryoutperiodicinspections(InspectingEngineer).APanelEngineermustalsobeappointedtodesignandconstructanewreservoirorrepairormakechangestoanexistingreservoir(ConstructionEngineer).

Aperiodicinspection,byanInspectingEngineer,isrequiredeverytenyearsormorefrequentlyifnecessary.Asaresultofthatinspection,asafeoperatingregimewillbespecifiedandworksrequired‘intheinterestsofsafety’mayberecommended.

ASupervisingEngineerisrequiredtosupervisetheoperationandmaintenanceofthereservoirandproduceanannualstatement.TheSupervisingEngineercanrecommendthataperiodicinspectioniscarriedout.

Forreservoirsbelowthethresholdof25,000cubicmetresregulationismanagedbytheHealthandSafetyExecutive(undertheHealthandSafetyatWork(etc)Act1974)andLocalAuthorities(undertheBuildingAct1984).

FormoreontheReservoirsAct,includingenforcement,seesection3onthelegalframework.

Public attitudes to reservoir safety

Insummer2009,theEnvironmentAgencycommissionedatotalof10extendedgroupdiscussionswithresidentslivingwithinthefloodzonesof5reservoirsinEngland,forwhichoutlinefloodmapshadalreadybeencreated.

Insummarytheconclusionsofthegroupdiscussionswereasfollows:

■■ therewaslowawarenessandunderstandingofreservoirs;

■■ therewasdifficultygraspinghowtheyposeafloodriskfrom“failure”;

■■ awarenessandperceptionsofriskareinfluencedby:

–– typeofcommunity/residents:longtermresidentshavelivedsafelywiththereservoirandseelessrisk;

–– typeofreservoir:tendencytoviewfamiliartypeassaferthananother;

–– differentperceptionsofsmallsailing“lake”,ratherthanbigobviousreservoir;

–– typeofundertaker:trustinwatercompaniesbutconcernthataprivateownermaycutcornersoninspectionandmaintenance;and

–– topographyandproximity:hardertoimaginea“wallofwater”inaflatterarea,andperceptionthatonlythoseclosetothereservoirareatrisk.

Afterdiscussion,therewasstrongrecognitionoftheneedfortransparencytoinformresidentsofthepossibleriskandforaveryclearandconsistentlistofkeyinformationthatshouldbeprovidedinaletterorleaflet:

■■ basicinformationonstatusandsafetyatlocalreservoirs;

■■ reassurancethatinspectionsandmaintenanceproceduresarefollowedandenforced;

■■ confirmationthatemergencyresponseplanisinplace;

■■ detailsofevacuationroutesandlocations;

■■ impactofreservoirriskonhomeinsurance;

■■ contactdetailsforgeneralqueriesandforemergencysituations;and

■■ detailsofwherefurtherinformationcanbefound.

Therewasageneralconsensusthatmapsshouldbeavailable.

Planning for reservoir failures

The2007summerflooding,andtheconsequentPittReview,identifiedshortcomingsintheReservoirsAct1975andreservoiremergencypreparednessandresponse.ThethreatofabreachoftheUlleyDaminSouthYorkshirereinforcedtheneedtoamendtheActandtoensurethattheresiliencecommunitywasbetterprepared.Partofthosepreparationsneedtoincludecollaborativeworkingbetweenthelocalauthorityandtheemergencyservices,whoshouldfacilitateeffectivecommunicationsforthewholecommunity.Ajointcommunicationismoreeffectiveatgettinginformationacrosstothecommunityaswellasbeingamoreefficientuseofresources.

Onthespecificplanningthatreservoirowners/usersandLRFsshoulddo,theGovernmenthas,todate,soughttoaddressthatintwoways:

On-site reservoir flood plans

InJanuary2010thethenGovernmentconsultedonaproposaltointroducealegalrequirementforreservoirundertakerstoproduceareservoirfloodplan.

Theproposalswouldmeanthatownersoroperatorsofatleastthe100highestriskreservoirsaroundthecountrywouldberequiredtoproduceafloodplan.Thesereservoirsarenomorelikelytofailthananyothers,butareconsideredtobe“highestrisk”onthebasisofthenumberofpeoplepotentiallyaffectedifthereservoirwastofail.

Theplanswouldinclude:

■■ areservoirfloodmap,toprovideanindicationoftheareasthatcouldbefloodedintheworstcasescenarioifadamfailscompletely;

■■ keyrolesandresponsibilitiesforstaffworkingatthereservoir;

■■ descriptionsoftheengineeringandoperationalcharacteristicsofthedam;

■■ detailedactionstotakeinresponsetoapotentialuncontrolledreleaseofwater;

■■ acommunicationsplantoactivatetheoff-siteemergencyresponse;and

■■ arangeofothermeasures.

Undertheproposals,reservoirownerswouldhaveayeartocompletetheirreservoirfloodplans.TheywouldbelegallyrequiredtocomplyandtheEnvironmentAgencywouldhavethepowertoprosecuteforfailuretodoso.

AlthoughtheGovernmenthasyettotakedecisionsonimplementationoftheseproposalsreservoirownersshouldbeencouragedtoadoptthesegoodpracticesmorewidely,inliaisonwithLocalResilienceForumsandthelocalcommunitieswhowouldbeaffectedbyreservoirfailure.

Off-site reservoir flood plans

TheEnvironmentAgencyhasproducedhighlevelfloodmapsfortheapproximately2,100reservoirscoveredbytheReservoirsAct.Basedonthese,theGovernmentwouldliketoseethetop-tierlocalauthorityinwhichareservoirissitedco-ordinateproductionandmaintenanceofthecounterpartoff-siteplan,engagingothersLocalResilienceForummembersasrequired(anddownstreamLocalResilienceForumswhereapplicable)aswellasthereservoirundertaker.Bothwarningthepublicintheeventofanemergencyandinformingthepublicinadvance(andpossiblysubsequenttoanevent)shouldbecarriedoutinliaisonwithreservoirundertakers.

Adjoiningtoptierlocalauthoritiesshouldliaisewitheachothertoensurethatmessagingand,asfaraspracticable,formatareconsistentwhencommunicating.Forexample,whereapropertyisinthefloodzoneofmorethanonereservoirandthosereservoirsareindifferenttoptierauthoritiesareas,localauthoritiesshouldensurethattheinformationgivenisessentiallythesameandgiveninasimilarformattoreducethepotentialforconfusion.

Who to warn and inform – Public Information Zones

Planningforreservoirfailureisnecessarilybasedonfloodmaps,showingthelikelyextentofanyflooding.ItisrecommendedthatthemapsshouldbeusedtodesignatePublicInformationZones,comprisingallthosewhowouldbeaffectedwithintwohoursofthefailurewithintheextentofthewettedarea;andallthosewithinwhatthemapsshowastheextremeHazardzone.

Thosetoconsidertargetingspecificallywithinanfloodzoneandotherswhoneedfurtherinformationinclude;

■■ allthoseatriskgenerally;

■■ groupswhomayhaveparticularneeds(vulnerablegroups/individuals);

■■ infrastructureoperators;

■■ allCategory1and2responders;and

■■ vulnerablesites-suchasholidaycamps,industrialestates,schoolsetc.

DownstreamLRFsmayalsoneedtobepartofaninformationsharingprotocol

What information and when?

Thoseengagedinwarningandinformingthepublicwillneedtothinkcarefullyaboutwhatinformationdifferentaudienceswillwant,andwhen.Specificinformationwillbeneededinanemergencyandmoregeneralawarenessinformationshouldbesharedwiththepublicpriortoanyemergency.

Aswellasclearinstructions,relevanttotheaudience,thefrequencyofthecommunicationsshouldbeconsideredtoensurethatcommunityawarenessismaintained.Communicationsshouldprovidesiteandemergencyplanningunitcontactdetailsforhandlingissuesorconcernsfromthecommunityandsetouttheproceduresthatyouhaveinplacefordealingwithqueriesandconcerns/complaints.

Warningandinformingmaterialshouldalsorefertocentralwebsiteswheremoreinformationcanbefound.

Informing methods

Themethodsavailabletodeliverimportantandurgentinformationtomembersofthepublicareextremelyvaried.Forinformingprior toanemergencymethodstoconsidershouldinclude(butnotnecessarilybelimitedto):

■■ mailshots(letters,laminatedcards,calendarsetc.)mediacampaign(localpressorradioforexample);

■■ informationinpubliclibrariesandcounciloffices;

■■ websites(suchasLRF/localauthorityones);and

■■ meetingswithcommunitygroups,housingassociations,etc.

Whenusingmailingsmakecleartheimportanceoftheinformationcontainedtoreducethepossibilityofitbeingthrownawayasjunkmail.Inmailings,considerincludingwithanyletteracard/laminateoftheemergencyinstructionsandcontactnumbers.Peoplearelesslikelytothrowtheseaway.

Itisworthconsideringincludingreservoirfailurewithinbroaderpreparednesscommunityliaisonevents.Sucheventsgivethelocalcommunityanopportunitytoraisequeriesandtheirconcerns.Theyprovideusefulfeedbackontheeffectivenessofcommunicationsandprovideanopportunitytoreassurethepublicofthesafetyrecordandthesite’sbeneficialroleinthecommunity.Thesegroupsworkwellwhenthereisrepresentationfromthesite,thelocalauthority(e.g.emergencyplanning/businesscontinuityadvisors),emergencyservices,residents,businessesandlocalrepresentatives.

Messagesneedtobeconsistentandpresentedinaconsistentway.Thelevelofdetailshouldbeproportionatetotheriskandimpact.Peoplearelikelytowanttobetold:

■■ thelevelofrisk–bothgenericandsitespecific–andwhyactionisbeingtakennow;

■■ whattheconsequencesofadambreachwouldbe;

■■ impactonanyplanningapplications;

■■ thecurrentsafetyrecordandanysafetymeasuresinplace;

■■ whattheresponderswoulddointheeventofanemergency;

■■ howtheywillreceiveinformationintheeventofanemergency;

■■ triggerpoints;

■■ whattheyshoulddowiththeinformationtheyhavebeengiven;

■■ evacuationroutesandwhethercarsshouldbeusedornot;

■■ safeareas;

■■ howtoprepareforanevacuation(tyingintocommunityresilience);

■■ existenceandlocationofreceptioncentresand/orrestcentres;

■■ anticipatedlevelofdamage/propertiesatriskofdemolition;and

■■ sourceof/reasonfortherisk:particularlyimportantwheremorethanonereservoirmightaffectthem.

Decisionswillneedtobemadeastowhatitispracticalandsensibletocommunicateandreasonswhysomeinformationisnotbeingrelayed,ifthatisthecase.

Themainpurposeofcommunicationswiththoseinthefloodzoneistoavoid,orminimisetheeffectofanemergency.Thelocalcommunitymustbeawareofandunderstandtheemergencyinstructionssothattheycantakeeffectiveaction.Communicationsandinstructionsmustbeclearandrelevantforthewholecommunity,includingthosewhoarepartially-sighted,hardofhearing,elderly,residents,employers,landlords,workers,schools,hospitals,shopsandcommuters.

Siteowners/undertakersandLocalAuthoritiesshouldworktogethertoensurethatarrangementstocommunicatewithresidents,localbusinessesandthewidercommunityarecraftedinsuchawayastoensurelocalbusinessneedsaremet;makingprovisionwhereappropriateforjointcommunicationswithrelevantbodies.

Ensuring your communications are robust and fit for purpose

Guidance on reservoir emergencies: warning and informing the publicincludestemplatesthatcanbeusedasthebasisforyourPublicinformationmaterial.Ifyoudonotusethetemplateorifyouproduceanyadditionalcommunicationsmaterialitisrecommendedthatitshouldcontainthefollowing:

■■ nameofreservoirandagenciesinvolvedinplanningandpotentiallyresponseevident;

■■ verybriefhistoryofreservoirandpurposeitserves;

■■ indicationoftherisk;

■■ briefdescriptionofthetypeoffloodingareservoirfailurecouldcause-i.e.deepfast-movingwaterinsomeareas;

■■ statementthatthereisnoincreaseinriskandwhytheworkisbeingdonenow;

■■ indicationofhowpeoplearelikelytobecontacted;

■■ dosanddon’ts;

■■ evacuationrouteswhereavailable;

■■ listingofcommunicationrouteslikelytobeaffected(roadclosures,trainandbusroutes);and

■■ wheretofindoutmoreinformationbothduringandpriorto(e.g.localradiointheeventandEAorLRFwebsitespriorto)anevent

YoushouldalsofollowtheguidancegiveninChapter7oftheCivilContingenciesActguidance,EmergencyPreparedness,WarningandInformingthePublic.

Emergency warning methods

Themethodsavailabletodeliverimportanturgentinformationtomembersofthepublicareextremelyvariedandsomedependontheavailabilityofpowersuppliesortelephonelines.Somemayrequirecarefulconsiderationoftheriskstohumanlifeandhealth,incaseatthetimeofanemergencystafformembersofthepublicareexposedtodangerwhiletheyarewarningorbeingwarned.

Forwarningintheeventofanemergency,methodstoconsidershouldinclude(butnotnecessarilybelimitedto):

■■ mobilisingofficerstogoroundonfootandknockondoorswithevacuationcards(wheretimeandsafetyconsiderationsallow);

■■ fromcarorhelicopter,byloudhailerorotheramplifiedmeans;

■■ mediaannouncements;

■■ announcementsinpublicbuildings,shoppingcentres,sportsvenues,transportsystems,etc.;

■■ automatedtelephone/fax/e-mail/textmessageswherepracticable;

■■ informationinpubliclibrariesandcounciloffices;

■■ websites;

■■ meetingswithcommunitygroups,housingassociations,etc.;and

■■ electronic/variablemessageboards,e.g.attheroadsideoronmotorways.

Handling the media

Themediamaybepresentinlargenumbersfromanearlystageofareservoiremergency,arrivinglocallywithinhours,andseekinginformationprobablybeforetheemergencyservicesco-ordinatedresponseisoperational.Theywillattempttogetasclosetothesiteaspossible,insearchofinformationandimages.Theywillbeequippedwithup-to-datecommunicationstechnologyseekinginformationforimmediatebroadcastandtoreportingdeadlines.Mostimportantly,theyarelikelytoprovidethemosteffectiveandresilientmethodofquicklyreachinglargenumbersofpeople.

Intheeventof,orinadvanceof,amajorpotentialoractualemergency,arrangementsshouldbeputinplacetoco-ordinatetheresponsetothemedia.Thefollowingshouldalsobeconsidered:

■■ establishmentofamediabriefingcentre(MBC);

■■ responderorganisationsprovidingagreedmediabriefingontheirownareasofresponsibilitythroughtheMBC;

■■ developmentofamediastrategytoprovideaclearframeworkforpressofficersandreportersdetailingtheregularityofpressconferences,briefings,locationsetc.;

■■ systemstoensurethatpressreleasesfromthevariousorganisationscanbesharedandagreedpriortoissue;

■■ howanongoingstreamofinformationmightbecollatedinordertomeettheneedsofthebroadcastmedia;and

■■ arrangementsforupdatinginformationonorganisations’websitesor,whereavailable,forthemulti-agencymajorincidentwebsitetobe‘switchedon’.

Section 10:Dealingwiththeconsequencesofflooding–healthandenvironmentalconsiderations

■■ Floodingcanseriouslydamagehealth

■■ Healthprotection

■■ HealthandSafetyconsiderations

■■ Floodingcanseriouslydamagetheenvironment

■■ Disposingofanimalby-products:fallenstock&otheranimalcarcases

– Fallencattleagedover24monthsneedtobetested

– NationalFallenStockScheme

– Horses

Flooding can seriously damage health

Drowningistheclearestandmostimmediatehealthriskduringfloods.Seriousinjurycanalsobecausedbyfallingintofast-flowingwaterorfromhiddendangersunderthewater,suchasmissingmanholecovers.

Thereisalsoaseriousdangerposedbycarbonmonoxidefumesfromtheuseofgeneratorsandotherfuel-poweredequipmentbroughtindoorstodryoutbuildings.

Donotunderestimatethestressandstrainofbeingfloodedandcleaningupafterfloods.Taketimetoconsideraffectedindividuals'mentalhealthandwell-being.Donotoverdoitwhencleaningup,andrememberthattiredness,difficultysleepingandanxietyarenormalinthesecircumstances.

Health protection

Intheeventofmajorfloods,theHealthProtectionAgency(HPA)workswithlocalagencies,includingtheNHS,police,localgovernmentandtheEnvironmentAgencytoprovideexpertadviceonprotectingthehealthofthelocalcommunity,particularlyfrommicrobiologicalandchemicalhazards.LocalHealthProtectionUnits,liaisingwithnationaladviserswhospecialiseinenvironmentalhazards,infectiousdiseasesandemergencyplanning,canprovideafocalpointforhealthprotectionadvicetolocalrespondersandthepublic.

Themainthreatstohealthduringandimmediatelyafterafloodaredrowning,andinjuriescausedbyaccidentsinflowingwater.Walkingorevendrivingthroughfloodwaterisrisky-sixinchesoffastflowingwatercanknockpeopleoverandtwofeetofwaterwillfloatacar.Manholecoversmayhavecomeoffandtheremaybeotherinvisiblehazards.

Theothermainhealthhazardinfloodscomefromthestressandstrainoftheeventandclean-up.Thepublicshouldbeadvisedtotaketimetolookaftertheirfamily’smentalhealthandwellbeingandnotoverexertthemselvesintheclean-up.Thereisalsoaseriousdangerposedbycarbonmonoxidefumesfromtheindooruseofgeneratorsandotherfuel-poweredequipment,suchasdriers.

TheHPAandotherwebsiteincludesawealthofimportantinformationforthepublic,butfloodplannersandrespondersshouldalsobefamiliarwiththisadvice–or,atleast,abletoaccessitquickly.Keyreferencematerialincludes:

■■ theHPA’s flooding pages,includingdetailedQ&A;

■■ HPA leaflets;and

■■ HPA’s detailed guidelines and reference materialonflooding.

FoodsafetyintheeventoffloodingisalsoimportantandtheFoodStandardsAgencyhaspublishedfood safety advice for people affected by flooding.

Health and Safety considerations

Allrespondingorganisations,includingvoluntaryagencies,shouldbeawareoftherisksassociatedwithworkinginornearbytofloodwater,suchas:

■■ healthissueswhencontactismadewithfloodwater;

■■ riskofelectrocution;

■■ hiddenobjects/triphazardsbeneaththewater;and

■■ thepowerofwater,howeasyitistobecomeunbalanced.

Aspartoftheirmulti-agencyfloodplanning(whichiscoveredindetailinsection12ofthisFramework)LocalResilienceForummembersshoulddecidewhetheranyspecifichealthandsafetyissuesrelatingtofloodriskintheareashouldbeincludedintheirplans.Inallcases,people/staffwhoareexpectedtoplayaroleinfloodresponseandrecoveryshouldreceiveappropriatetraininginrelevanthealthandsafetypoliciesandproceduresoftheirorganisation.

Flooding can seriously damage the environment

Floodingcancreateanumberofenvironmentalproblems,allofwhichneedtobeplannedfor.Examplesare:

■■ disposalofanimalcarcassesiffarmlandisflooded;

■■ disposalofpersonalproperty;

■■ disposalofsiltandgravel;

■■ disposalofcontaminatedsandbags;

■■ salineintrusionofafreshwaterSiteofSpecialScientificInterest(SSSI);

■■ pollutionifsewage/industrialsitesareflooded.

Alloftheaboveaspectsshouldbeconsideredwhenconstructingmulti-agencyfloodplans(seesection12formoreonthis).

Disposing of animal by-products: fallen stock & other animal carcasses

Followingfloodingincidentscarcassescanendupinavarietyofplacesincluding:fields,hedgerows,depressions,towns,roads,canals,rivers,sea,beachesetc.

Whereacarcaseisdepositedonprivateland,whereverpossibletheownerofthecarcaseshouldbeidentifiedandisresponsibleforthecollectionanddisposal.Ifownershipcannotbeproventhenresponsibilityfordisposalrestswiththelandowner.Itcanbedifficulttoidentifywhoownsanimalsifsweptawayfromfarm/holding/home.

Whereacarcaseisdepositedelsewhere,includingpubliclandorhighways,andownershipofthecarcasecannotbeascertainedthenthelocalauthorityisresponsibleforthedisposal.

TheEnvironmentAgencywillremoveacarcasefromawatercoursebutonlyifthereisapollutionorfloodriskandtheanimal’sownerorlandownercannotbeidentified.

Fallenstockcannotbeburiedorburnedintheopenbecauseoftheriskofdiseasespreadthroughgroundwaterorairpollution.Instead,animalsmustbetakento/collectedbyanapprovedknacker,huntkennel,incineratororrenderer,eitherbyprivatearrangement,orundertheNationalFallenStockScheme(seebelow).

Farmerswithfallenstockshouldlocateanapprovedknacker,huntkennel,incineratororrendererbycontactingtheirlocal Animal Health Office.

Fallen cattle aged over 24 months need to be tested

Cattleover48monthsofage,whichhavediedorbeenkilledonfarmotherthanforhumanconsumption,mustbetestedforBSE.Theymustundergobrainstemtestingatapproved sampling sitespriortodisposalanditistheresponsibilityofthelivestockproducertoensuresuchanimalsaresentfortesting.

Anyoneinpossessionorcontrolofafallenbovinemustmakearrangementsforittobedeliveredtoanapprovedsamplingsitewithin24hours,orifdeliveringitthemselves,mustmakearrangementswithanapprovedsamplingsitewithin24hoursanddeliverthecarcasethemselveswithinafurther48hours.

Ifthecarcasecannotbecollectedforanyreasone.g.becauseitisinaninaccessibleplace,orifthereisdoubtabouttheageoftheanimal,theVeterinaryLaboratoriesAgencyatNewcastlemustbenotifiedon08456011367andtheywilladviseonacasebycasebasis.

National Fallen Stock Scheme

The National Fallen Stock Company(NFSCo)wassetupinpartnershipwithGovernmentandthefarmingindustrytorunaNationalFallenStockScheme.NFSCoisanotforprofitorganisationdedicatedtodeliveringavaluedserviceforthefarmingcommunity.TheSchemeisvoluntary,andisdesignedtoassistfarmersandhorseownersincomplyingwiththeAnimal-By-ProductsRegulationbyprovidingareliable,lowcostmeansofdisposaloffallenstock.

Ifyouneedtoadviseonthedisposalofanimalcarcasses,youshouldrefertotheNationalFallenStockCompany,Animal Healthorthelocalcounciltradingstandardsdepartment.

ThosewhodisposeofdeadanimalsmustmakesurethatthedisposalcomplieswiththerequirementsoftheAnimalby-productsregulations(ABPR).Thereisonline advice on the requirements of the ABPR.Deadanimalsmustnotbeburiedorburned.

Petownerscanburytheirownpets,providedthatthepetisonenormallykeptasapet,suchasdogsandcats.Animalssuchassheepandgoats,whichareprimarilykeptasfarmanimals,cannotbeburied.Eveniftheyarekeptaspets,theymustbedisposedofbyanapprovedroute.

Ifownersdonotwishtohavetheirdeadpetsreturnedtothem,theuseofa registeredwastecarriermustbearrangedtodisposeofthem.Theymustbedisposedofatalicensedanimalcrematoriumorpetcemetery.

Horses

TheNational Fallen Stock Companyprovidesareliable,low-costschemetocollectanddisposeofhorsecarcassesorprovideownerswithcontactdetailsforlocaldisposalservices.

Ifownersarrangethedisposalofhorsecarcassesthemselves,theyshouldensurethatremovalisby:

■■ arendererapprovedbyAnimal Health,oralicensedknacker’syard;

■■ incinerationinanincineratorlicensedundertheABPR;or

■■ huntkennelsapprovedbyAnimal Health.

Theownermustensurethattherecipientsofthecarcasesholdtheappropriatelicence,permitorauthorisation.

Section 11:Floodrescue

■■ Introduction

■■ Floodrescueconceptofoperations

■■ Responsestominororlocalisedfloodingevents

■■ Responsestomajororwideareafloodingevents

■■ Guidanceforspecialistfloodrescue–interimarrangementsforaccessing

mutualaid

■■ Informationrequiredfromrequestingauthorities

■■ Airassetsupportforwaterrescueoperations

Introduction

Floodingandsubsequentfloodrescueoperationscanposesignificantrisksformembersofthepublicandrescuersalike.Theseriskscanbecontrolledthroughtheuseofcompetentrescuerswhohavethetrainingandtherescueandpersonalprotectiveequipmenttoenablethemtoworksafelyinthefloodenvironment.

DefraisleadinganationalprojecttoimprovefloodrescuecapabilityacrossEngland(andWales)sothatacomprehensiveemergencyresponsecanbedeployedandco-ordinatedbetweenallfloodrescueserviceproviders,includingpublic,privateandvoluntaryorganisations,makingbestuseofexistingandfuturefloodrescueassets.

TheFloodRescueNationalEnhancementProject(FRNEP)isimprovingfloodrescuecapabilityacrossEnglandandWalessothatacomprehensiveemergencyresponsecanbedeployedandco-ordinatedbetweenallfloodrescueserviceproviders,includingpublic,privateandvoluntaryorganisations.

TheFRNEPhasproducedadraftregisterofknown,floodrescueresourcesthatcouldbecalledupontosupportmajorornationalfloodevents.Thedraftregistercontainscontactinformationofcompetentfloodrescueteamsfrombothstatutoryagenciesandthevoluntarysector,alongwithexperiencedstrategicandtacticaladviserswhocanprovidespecialistadviceandsupporttoimpactedareas.Thisisalivedocument.

Flood rescue concept of operations

AkeyobjectiveoftheFloodRescueNationalEnhancementProjectistheproductionofaFloodRescueConceptofOperations(FRCO).Thisdocumentsetsouttheframeworkforenhancingthecapabilityandnationalco-ordinationoffloodrescueandwillprovidemoreclarityforfloodrescue,especiallyinmajorfloodingevents,throughsuchmeasuresas:

■■ thesettingofnationalstandardsforequipmentandtraining;

■■ theuseofstandardoperatingproceduresanddefinedcommandandcontrolstructures;

■■ aframeworkforhowagenciesinvolvedwillrespondtofloodingincidents;and

■■ processesformanagementandengagementofnationalassetsandteamtypes.

ThisFRCOwillalsoserveasabasisforco-ordinationwithothergovernmentdepartments,theblue-lightservices,andotheragencies,inmeetingthecountry’srequirementsforfloodrescue.Thisdocumentwillbeupdatedandreviewedonanannualbasis,toensureitreflectsfloodrescuerequirementsandemergingbestpractice.

TheFRCOisexpectedtobepublishedforpublicconsultationinthesecondhalfof2010.Itaffordsthefollowingbenefits:

■■ greaterclarityandcertaintyinrespectofrolesandresponsibilitiesforspecialistfloodrescueoperationsduringamajorfloodevent;

■■ greaterclarityandcertaintyinrespectofrolesandresponsibilitiesofsupportingfloodrescueoperationssuchasmedicalsupport(airambulancesetc),animalrescue(e.g.RSPCA),dive-teams,vehicleretrieval(e.g.theAA)andotherfloodresponseeffortsoperatingsimultaneouslyinfloodedareas;

■■ improvedvisibilityofthecapabilitiesandcapacityoffloodrescueresourcesavailabletoGoldCommandsduringfloodevents,achievinggreaterutilisationofavailableresources;

■■ assuranceforthepublic,requestingauthoritiesandincidentcommandersthatrescueteamsrespondingtomutualaidrequestsarecapableofcarryingoutthetasksrequiredofthemsafelyandeffectively;

■■ improvementsintheco-ordinationofresourcesonthegroundandwithairSearchandRescueoperations,theprovisionoflogisticalsupport,thedecontaminationofequipmentandthereturnofspecialistresourcestonormaldutiesattheendoftheincident;

■■ reducedcostsbytakinganationalmulti-agencyapproachtostrategicresilienceandmakingbestuseofexistingassets;

■■ standardisationofapproachandequipmentacrossallagencieswithacommonprocurementframeworkwhichwillalsodrivedowncostsandenhanceresiliencethroughgreaterinteroperability;

■■ ensuringthebestuseofavailableresourcesinordertoprovidecapabilityinthemostefficientandeffectivemanner;

■■ abasisfordefiningtherequirementsofallresourcesbeingprocuredbytheprogrammeandensuringthatwhatissuppliedmeetsthecapabilityneeded;and

■■ clarityonco-ordinationofallsearchandrescueactivityduringsevereflooding.

Responses to minor or localised flooding events

Rescueresponsestominororlocalisedfloodeventswillcontinuetobemanagedatalocallevelbyemergencyservices,usuallyunderdirectionofthepolice.Thedecisiontodeployspecialistfloodrescueteamsrestswithemergencyserviceorganisationsanditistheirresponsibilitytoassurethemselvesthatanyteamstheydeployarecompetenttooperatesafelyinthefloodenvironment.

However,whenconsideringwhethertodeployexternalresources,itcanbedifficultforemergencyservicestojudgethecompetenceandcapabilitiesofthefloodrescueteamsofferingassistance.

WhilstitisamatterforthePoliceandemergencyservicestodecidewhethertodeployrescueteamswhoarenotontheFRNEnationalassetregister,referencetotheregistercanprovideassurancethattheteamstobedeployedhavebeenassessedascompetenttoworkinthefloodenvironment.

Responses to major or wide area flooding events

Forthepurposeoffloodrescue,amajororwideareaeventmaybedefinedasanyfloodeventrequiringmutualaidforspecialistfloodrescueteamsfromoutsidetheLocalResilienceForum(LRF)area,oraneventrequiringextensivefloodrescueoperationssimultaneouslyimpactingmorethanoneLRFarea.DuringmajororwideareafloodingeventsemergencyservicesrequestingmutualaidshouldbearinmindthatthespecialistteamsfromneighbouringareasandthevoluntarysectorthattheymightnormallycalluponmayberegisteredinmorethanoneLRFarea.

Whilstflashfloodingcanoccurwithlittlewarning,inmanycircumstancesearlywarningsofamajorfloodeventwillenabletheestablishmentofrobustcommandandcontrolframeworksbeforetheeventimpactsthelocalarea.Thisearlywarningcanalsobeusedtoprovideanopportunityforspecialistmutualaidteamstoberequestedearlyandpre-deployedtothearea.Effectiveuseofearlywarninghasanumberofsignificantoperationaladvantages,reducingriskforcommunitiesandrespondersalike.

Guidance for specialist flood rescue – interim arrangements for accessing mutual aid

Governmentintendstointroducesubstantivenewarrangementsforthecoordinationofmulti-agencyfloodrescueassets.UntilthesenewarrangementsarefinalisedandpublishedaspartoftheFRCO,interim arrangements,basedonthosedrawnupbytheFireandRescueServiceinresponsetothe2007floods,willbeusedintheeventofwide-area,severeflooding.

Figure 11.1:Interimfloodrescuearrangements

Theimpactedauthorityidentifiesriskofafloodeventrequiringadditionalspecialistfloodrescueassets

TheimpactedauthorityrequestsassistanceviatheFireandRescueServiceNationalCoordinationCentre(FRSNCC)inWestYorkshire.Tel:01274684914.

TheFRSNCC,whoareresponsibleforcoordinatingNationalResilienceAssets,willinitiatetheestablishmentofaChiefFireOfficersAssociationNationalFloodSupportTeam(FST).

TheFSTwillliaisewiththeimpactedAuthority,NationalFloodForecastingCentre(FFC)andCLGEmergencyRoom(andCFRADutyOfficerwhereestablished)anddecidethemostappropriatecourseofaction,includingassemblingtypedteamsfromtheassetregistertomeettherequestforassistance.

AllFRSassetswillberequestedbyFRSNCC.Non-FRSassetswillberequesteddirectlybytheFST.

TheFSTwillmaintainanationaloverviewofallfloodrescueassetsontheFRNEdatabaseandwillprovideafunction24/7toprovideanystrategicortacticaladvicethatmightbenecessaryandwillmaintaincommunicationswithallfloodrescueorganisationsonthenationalregisterduringtheemergency.

FSTwillmaintainaforwardlookingstrategicoverviewoflikelyrescuerequirementsinconsultationwiththeFloodForecastingCentreandanyotherstrategiccoordinationfunctionsthathavebeenestablished,e.g.CLGEmergencyRoom.

Whenformally“stooddown”,FSTwillcommunicatewithallteamsontheFRNEdatabase.

Information required from requesting authorities

AffectedauthoritieswhorequestassistanceshouldcontacttheFRSNCCpassingthefollowinginformationasaminimum:

■■ locationofincidentorexpectedtime/locationofimpact;

■■ natureofincidentandanyspecifichazards,i.e.knownchemicalcontamination;

■■ prevailingweatherand(whereknown)waterconditions;

■■ estimatednumberofpersonsrequiringrescue;

■■ localresourcesalreadyinattendance/available;

■■ estimateofmutualaidresourcesrequired;and

■■ location(gridreference/nameandaddress)ofrendezvouspoint.Includinglocalaccessissuescreatedbytheflooding.

Air asset support for water rescue operations

Alloftheabovereferstoland/waterbasedspecialistrescueteamsonly.Duringamajorfloodevent,airassetswillalsoformaninvaluablepartoftheoverallrescueeffort.TheprotocolforrequestingMilitary/CoastguardHelicoptersforemergencyassistanceissetoutbelow.

TheAeronauticalRescueCo-ordinationCentre(ARCC)willrespondtoallrequestsfromtheemergencyservicesforhelicopterassistanceinanemergency.Thepotentialcontributionofferedbyairassetstoafloodingeventisconsiderable.TheARCCprovidesacommontaskingprocedureforallUKSARhelicopters.

ARCChasthefollowingresourcesavailable:

■■ RAFSeaKinghelicopterswithwinching;Infra-redandNVGsearchcapability;andNHSequivalentqualifiedandequippedparamedic(whenavailable);

■■ RoyalNavySeaKinghelicopterswithwinching,infra-redandNVGsearchcapabilityandNHSequivalentqualifiedandequippedparamedic(whenavailable);

■■ CoastguardAW139andS-92helicopterswithverysimilarcapabilities;and

■■ RAFMountainRescueTeams,eachavailableatonehour’snoticeandfullyequippedwiththeirownvehicles,communicationsandqualifiedandequippedparamedics.

IntheeventofanoperationalincidentwheretheaffectedFRS/IncidentCommanderbelievestheuseofairassetsmaybeappropriate,theyshouldcontacttheDutyOfficerattheARCC,withthefollowinginformation:

■■ locationofincident(gridreference);

■■ descriptionofincident;

■■ natureoftasking(e.g.rescue,reconnaissance,transport);

■■ numberandpositionofcasualties;

■■ hazards(overheadpowerlinesetc.);

■■ weather/environmentalconditions;and

■■ otherresourcesonscene.

Figure 11.2:ARCCcontactdetails

ARCC Contact Details

Emergency 01343 836036

Admin/general 01309 678302

Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan112

Part three: Detailedplanningforfloodemergencies

Section 12:DetailedguidanceondevelopingaMulti-AgencyFloodPlan(MAFP)

■■ Introduction

– Whyhavespecificfloodplans?

– Aboutthisguidance

■■ Relatedresources

– MAFPchecklist

– MAFPTemplates,Figures&Tablesdocument

■■ Floodemergencyplanning

– Developingtheplan

– Consultationandcrossboundaryconsiderations

– Formatandstyle

– IncludingmapsinyourMAFP

– ProtectivemarkingofsensitiveinformationinMAFPs

■■ ConstructingyourMulti-AgencyFloodPlan(MAFP)-context

– Introduction

– Aimandobjectivesoftheplan

– Ownershipandaudience

– Relatedandinterdependentplans

– Theriskofflooding

■■ ConstructingyourMulti-AgencyFloodPlan(MAFP)-

communicationplanning

– Communicationarrangements

– Communicatingwiththepublicabouttherisk

– Warningthepublic:loudhailerannouncementincaseofevacuation

– Sirens

– Generalpublicadvice

■■ Planactivation–thresholdsandtriggers

– Therangeoftriggers

– Whatdofloodwarningsmeanandwhatdorespondersdo?

■■ Planningrolesandresponsibilities

– Actions,rolesandresponsibilities

– Environmentalconsiderations

– Healthandsafetyconsiderations

■■ Vulnerablepeople

■■ Criticalinfrastructure

■■ Beingrescuedandcaredforinanemergency

■■ Recovery

■■ Trainingandexercising

■■ Plansignoffandrevision

■■ Importantrecordstomaintain

– Contactdetailsofkeypersonnel

– Locationofcontrolcentres

– Resourceavailability

Introduction

Thisguidancereplacesthe‘PreliminaryGuidanceonDevelopingaMulti-AgencyFloodPlan’whichwaspublishedinFebruary2008asastand-alonedocument.Itdrawsongoodpracticefromarangeofexistingplansandguidanceandfeedbackfromstakeholdersinspring2010andattheMultiAgencyFloodPlanworkshopheldinJanuary2010.IthasalsotakenintoaccountthethenGovernment’sresponsetothePittReviewonthesummer2007flooding.

ItisimportanttorememberthatwhilethisguidanceprovidesadviceandassistancetohelpdevelopMulti-AgencyFloodPlans(MAFPs),itisultimatelyforLocalResilienceForum(LRF)memberstodeterminewhatinformationtoincludeandthelevelofdetail.LRFsarebestplacedtodeterminewhatwillworkinarealflood.

TheguidancesetsoutthereasonsforhavingMAFPsandthecontextfordevelopingyourplan.But,mostimportantly,itprovidesaframeworkforconstructingyourplan.Italsocontainssomeexamplesandreferencematerialforyoutodrawonasappropriate.

Why have specific flood plans?

TheCivilContingenciesAct(2004)requiresCategoryOneResponderstohaveplansinplacetorespondtoallemergencies.Emergencyplansmaytaketheformofeithergenericplansthatdescribearesponsetoawiderangeofpossiblescenarios(e.g.aMajorIncidentPlan)orspecificplansthatdealwithaparticularkindofemergency(e.g.Chemical,Biological,RadiologicalorNuclear(CBRN)orEvacuationandSheltering).ALocalResilienceForum(LRF)willprobablyhavebothtypesdependingonhowemergencyplanninghasevolved.Theremayalsobearea-wideplans(e.g.atcounty-level)orsite/localareaspecificplans(e.g.atdistrict-level).

FormanypartsofEnglandandWales,floodingposesasignificantriskandiswellrecognisedwithinmanyCommunityRiskRegisters.LRFsareencouragedtodevelopaspecificfloodplantobothcomplementotherplansandtoprovidemoredetailtogenericMajorIncidentPlansorStrategicEmergencyResponsePlans.Thereasonforhavingaspecificfloodplanisbecauseofthecomplexanddiversenatureoffloodingandtheconsequencesthatarise,requiringacomprehensiveandoftensustainedresponsefromawiderangeoforganisations.ThisguidanceisthereforegearedtowardhelpingLRFstocollectivelydevelopaMulti-AgencyFloodPlan(MAFP).

About this guidance

ThisguidanceshouldbeusedbyLRFstoundertakefloodresponseplanning,includingrecoveryplanningwhereitrelatestoflooding.Itcontainsexamplesofhowtosetoutthevariouscomponentsofafloodplan,allofwhichhavebeendrawnfromcurrentgoodpracticeintheUK.TheLRFshoulddecideonthetypeoffloodplanneeded(dependingonlocalcircumstances)aswellasdecidingifaMAFPistosupersedeorcomplementexistingplans.

Section 12:Detailedguidanceondevelopingamulti-agencyfloodplan

Thisguidanceprovidesadviceonfloodplancontent,whereandhowtofindanyrelevantinformationandsuggestswhatgovernmentwouldconsideranappropriatelevelofdetail.ItshouldbereadinconjunctionwiththeChecklistdocument(seebelow)toensureyouhaveanunderstandingofwhatneedstobeincorporatedintoyourplan.Withminormodificationsandtheremovalofpersonaldata/confidentialinformation,anyplanbasedonthisguidancecouldbesuitableforgeneralpublication-forexampleontheLRFwebsite.

DecidingwhetheraMAFPis‘required’ornot,ismostsensiblydeterminedatalocallevelbyeachLocalResilienceForum(LRF)oranominatedfloodingsub-group.FormanyLRFsaMAFPoughttobeproducedforeachboroughordistrictthathasmorethan250properties(residentialand/orbusiness)in‘significantand/ormoderate’floodriskareas,accordingtotheEnvironmentAgencyfloodmap.Itisrecommendedthat,attheveryleast,astrategiclevelMAFPbecreated(forexampleatacounty-widelevel)withatargetaudiencebeinglocalauthorityChiefExecutivesandthosewitharesponsibilityinStrategicCo-ordinatingGroups(‘Gold’level).Inmanyinstances,dependingonthefloodrisk(asrecordedinaCommunityRiskRegister),itisadvisabletocomplementtheStrategicMAFPwithtacticallevelMAFPsprovidingmoredetail.Theseplanswouldequateto‘Silver’leveldocumentsforcommandandcontrolstructuresestablishedinafloodevent.AlternativelyaLRFmaychoosetoproduceasinglecounty-levelMAFPwithaseparateannexforeachborough/districtwithgreaterthan250propertiesin‘significantand/ormoderate’floodriskareas.

AnumberofLRFshaveprovidedmaterialforthisguidance.Youmaywanttocontactthemtoseeiftheywouldbewillingtosharetheirplan,orapartofit.CumbriaLRFis,forexample,willingtosharetheirplanwhichwaseffectivelyusedinrespondingtothefloodsinNovember2009.

Related resources

TherearetworelatedpublicationswhichthoseresponsibleforconstructingMAFPsshouldfinduseful.

MAFP Checklist

Thefirst,theMAFPChecklist,isatabulatedsummaryofthecontentsofthisGuidanceandshouldbeusedtocheckthecompletenessofyourMAFP.

Multi-AgencyFloodPlansandrelatedemergencyplans(evacuationplans,warningandinformingplans,businesscontinuityplansandmoregenericmajorincidentplansforexample)shouldincludeasufficientlevelofinformationanddetailforittobeconsideredasbeing‘satisfactory’.Thedefinitionof‘satisfactory’issetoutintheChecklist.

TogetacopyoftheChecklist,emailfloodemergencies@defra.gsi.gov.uk.TheMAFPchecklistwillbeincorporatedintheNationalFloodEmergencyFrameworkinduecourse.

MAFP Templates, Figures & Tables document

Thesecondrelateddocumentistheseparatetemplate,figuresandtablesdocument(whichwillalsobeincorporatedintosubsequentversionsofthisframework,butwhichyoucangetnowbyemailingfloodemergencies@defra.gsi.gov.uk).Thedocumentprovidesblankversionsofthemodeltablesincludedinthisguidance.Youarenotobligedtousethembutmayselectoradaptthosewhichbestmeetyourneeds.

Flood emergency planning

DevelopmentofMulti-AgencyFloodPlans(MAFPs)allowsallrespondingpartiestoworktogetheronanagreedcoordinatedresponsetosevereflooding.Figure12.1showsahierarchyofemergencyplansandhowaMAFPmightlinktootherrelatedresponseplans.Thisisjustanexampleofsomeoftheplanstobeconsideredbutthereareothersthatmayalsoneedtobereferredto.

Figure 12.1:HowaMAFPfitswithotheremergencyplans

Generic Emergency Plan

Generic Actions,Limited Local

Detail

Specific Actions,

Local Detail

MULTI-AGENCY / LRF FLOOD PLAN

Individual and community emergency plans

e.g.Generic Rest

Centre Plan

e.g.Generic

EvacuationPlan

e.g.Generic

CommunicationsPlan

Developing the plan

Agoodplanistheproductofagoodplanningprocess.Inotherwords,theprocessofworkingtogethertocreatetheplanisasimportantastheendproduct.Withthisinmind,LRFsareencouragedtouse“TaskandFinish”groupsorFloodWorkingGroupstoleadtheproductionoftheplanandtoencourageinvolvementofCategoryOneandTwoResponderswhowillhavearoleinitsdelivery.

TodeveloptheMAFP,itisrecommendedthatreferenceismadetothesectioncalledEmergency Planning (Chapter 5) of Emergency Preparedness-partoneoftheCivilContingenciesAct(2004).

Aworkinggroupwithrepresentativesfromallrelevantdepartmentsandagenciesisagoodwaytodevelopafloodplanthatconsidersalltheconsequencesandimpacts(short,mediumandlongterm).LocalauthoritiesshouldconsidercontributionsfromrelevantdepartmentsincludingEmergencyPlanning,Highways,Drainage,SocialServicesandEnvironmentalHealth.ArepresentativefromtheEnvironmentAgency’sFloodIncidentManagementteamshouldalsobeamemberoftheworkinggrouptoprovidefloodriskandfloodwarningadviceandinformation.ContributionsfromCategory2respondersarecriticalintermsofconsideringassetsandinfrastructureinthefloodplainthatmaybeimpactedbyfloodwater.Forexample:failureofapumpingstation,collapseofamajordrain,contaminationofwatersuppliesorpowerfailureoverlargeareasareallconsequencesthatneedtobeworkedthroughaspartofdevelopingaMAFP.

ThoughnotasubstituteforMAFPs,communityfloodplanscanalsobepartoftheapproachtofloodriskplanningandmanagementinsomelocalities.Thecommunityengagementneededtodevelopsuchaplanisinitselfaverypositiveprocess.FurtherguidanceoncommunityfloodplanningisavailablefromtheEnvironmentAgencyandrelatedinformationoncommunityresiliencecanbefoundontheUK Resilience website.

Consultation and cross boundary considerations

Toenableotherresponderstocommentontheplanand,inparticular,thelinkswiththeirownplans,werecommendthattheLRForappropriateworkinggroupcirculatetheplanamongstitsmembers.ItisrecommendedthatplansaresharedwithneighbouringLRFssothatcrossboundaryissuescanbecarefullyconsidered.Thelossofinfrastructure(energy,transport,waterassets)oftenaffectsadjacentregionsandorganisationalboundariesandjurisdictionsarerarelyspatiallycoherent.

Format and style

Afloodplanshouldcomplementotherplans,asstatedabove.Thelevelofdetailwilldependontheneedsoftherespondingorganisationsandtheexistenceofotherrelatedemergencyresponseplans.MAFPsshouldnotcontaininformationaboutthedecisionsthataremade‘ontheday’whenafloodistakingplacebutshouldaimtoprovideaclearandconcise,yet

adaptable,responsetoolunderwhicheachrespondingorganisationhasclearlydefinedrolesandresponsibilities.Themostcriticalpartoftheplanisthesectionon“Activation”.Thisshouldsetoutthetriggers,andwhoisexpectedtodowhatoncecertainthresholdsaremet.Italsodetermineswherethehighrisk,highconsequenceareasareandhowthiswillinfluenceplanactivationandtriggers.

Theplanshouldbeintuitivesothatanyprofessionalrespondercanpickitupandunderstandwhatactionorresponseisrequiredindifferentcircumstances.Forexample,usecolour-codeddividersortabstohelpusersnavigatethroughtheplantogetherwithappropriateuseofmaps,tables,diagramsandevenpictures.

ConsiderifitwouldbebeneficialforthedocumenttobeaccessibleviatheNationalResilienceExtranetinordertoaiddocumentcontrolanddistribution,althoughhardcopiesshouldalsobeavailableforbusinesscontinuityreasonsandinincidentcontrolrooms.

Including maps in your MAFP

Aseparatefoldercontainingspare/laminatedmapsmaybeusefultoenablerespondingofficerstoremovemapswithoutdismantlingtheplan.TheEnvironmentAgencyFloodIncidentManagementteamcanadvisewhereitisappropriatetousethefloodmapand/orfloodwarningareasasthebasisofthemapscontainedwithintheplan.

GeographicalInformationSystem(GIS)softwareisausefulwaytoproducemapstoincludeinyourMAFP–seeaGuide to GIS Applications in Integrated Emergency Management.Tosavehavinglargenumbersofmapsinthehardcopyofyourplan,youcouldconsidersavingmapsonaCDandstoringthediscinwiththehardcopyoftheMAFP.ToavoidduplicationconsiderwhatmapsarealreadyavailableonEnvironmentAgency‘Goldlaptops’andinLocalFloodWarningPlans(e.g.floodzone,floodwarningareaandsurfacewatermaps).Youmaydecidethatitwouldbeusefultokeepcertainhardcopiesofmapsincontrolroomstoo.ItisimportantfortheLRFpartnerstoagreewhatisneededandwillworkforyouinafloodemergency.

Protective marking of sensitive information in MAFPs

InordertofacilitateeaseofhandlingandstorageofMulti-AgencyFloodPlans,thelowestpossibleprotectivemarkingshouldbeapplied,consistentwiththesecurityofthecontainedinformation.FewMulti-AgencyFloodPlansarelikelytoneedaprotectivemarkinghigherthanRESTRICTED.InmanycasesMAFPscanbemarkedPROTECT,orremainunclassified.

ParticularissuestoconsiderinrelationtotheprotectivemarkingofMAFPs:

■■ Isthereinformation(includingmaps)whichflagsinfrastructureasCriticalNationalInfrastructureislikelytoincreasetheclassificationtoCONFIDENTIALorhigher?

■■ DoestheMAFPincludesensitivepersonalinformation(e.g.staffmembers’hometelephoneorpersonalmobilenumbers)?

■■ DoestheMAFPincludedinformationwhichcouldjeopardisethesecurityofphysicalassets(e.g.accesscodestobuildings)?

■■ IfitisvitalthatsensitiveinformationisincludedintheMAFP,coulditbeannexedinaseparatedocument(e.g.logofkeyinfrastructure,detailsoffacilitiesforvulnerablepeople)?

■■ IfthecontentoftheMAFPwarrantsitbeingprotectivelymarked,cananedited,unclassifiedversionbepublished-forexampleontheLRF’swebsite?

AdviceonwhichProtectiveMarkingtoapplycanbefoundintheSecurity Policy Framework(CabinetOffice,October2009)andSecurityVettingandProtectiveMarkings:AGuideforEmergencyResponders(CabinetOffice,March2008).

ForguidanceonsharingpersonaldatapleaseconsultData Protection and Sharing: Guidance for Emergency Planners and Responders.

Constructing your Multi-Agency Flood Plan (MAFP) - context

Thefollowingsectionsetsout,indetail,howyoumaywishtoconstructyourMAFP

Introduction

Thissectionshouldbeshortandcoveraspectsnotcoveredinsubsequentsections.Itshould:putintocontextemergencyplanninginyourareaorregion;explainwhytheplanisneeded;clarifyifitsupersedesother,previousplans;setoutbroadlywhattheplanincludesandexcludes;andstatewhentheplanwillbereviewed.

EachMulti-AgencyFloodPlanneedstoadequatelyaddressriver,coastalandsurfacewaterfloodrisk(asdefinedinCommunityRiskRegisters)andtheassociatedemergencyresponsearrangements.Theplanisnotexpectedtoincludefloodrisksfrom:

■■ foulsewage;

■■ burstwatermain;

■■ canalsandprivatelakes;

■■ reservoirdamfailure(seeseparatesectionforguidanceonthis).

Itisusefultoincludea‘Documentcontrol/distribution’tableatthefrontofyourMAFP.

Aim and objectives of the plan

Thissectionshouldbroadlydescribethepurposeoftheplanincluding:

■■ whethertheplanisastrategicortacticalplan;

■■ thestrategicortacticaloutcomeexpectedinrespondingtoaflood(i.e.whatsuccessfulimplementationoftheplanwouldlooklike);

■■ thedifferenttypes/sourcesoffloodingandtheirstatuswithintheCommunityRiskRegister;and

■■ theareacovered,preferablywiththeaidofmap(s)thatshowthefloodoutline.(Figure12.2isanexampleofthis).

Theaimandobjectivesshouldspecifywhattheplanwillandwillnotbeabletoachieve.TheobjectivesthatyousetshouldfollowtheSMARTprinciplewherepossible(i.e.theobjectivesshouldbeSpecific,Measurable,Achievable,RelevantandTime-bounded).Forexample,itwouldnotbesensiblefortheplantostatethatitsobjectiveistopreventfloodwaterenteringanypropertyasthisislikelytobeunrealisticandbeyondthelogisticalcapabilitiesofrespondingorganisations.

Anexampleofthe‘AimsandObjectivesofthePlan’sectiontakenfromtheCumbriaMAFP(2009)isprovidedintheTemplates,FiguresandTablesdocument.

Figure 12.2:Exampleoverviewmapoffloodrisk

Ownership and audience

Inthissection,thepersonresponsibleforupdatingandmaintainingtheplanshouldbeidentified.Thereshouldalsobeclarityontheintendedaudienceandhowtheywillbenotifiedofupdatesandmodificationstotheplan.

Anumberofagenciescontributetoandjointlyownmulti-agencyplans.Dependingonlocalcircumstances,someLocalResilienceForums(LRF)willopttoplacetheaccountabilityfortheplanwiththeLRFmemberscollectively.Ifso,theagency/individualresponsibleforupdatingandmaintainingtheplan(oftenfromthelocalauthorityorPoliceEmergencyPlanningUnit)shouldbegivenaclearmandatefromtheLRF.

Related and interdependent plans

Inthissection,youshouldeitherlistotherrelatedandinterdependentplansorinsertadiagramshowingtheplansandlinkagesbetweenthem.

Theplan(s)shouldnotduplicateinformationthatisalreadyavailableelsewheresocross-referencingisencouraged.ItisimportantthattheMAFPispreparedaspartofacomplementarysetofemergencyplanssomeofwhichmaycontainsectionsonfloodresponse.

Figure 12.3:EmergencyPlans–fittingthemtogether

Regional Strategic Framework

Area specifi c emergency plans

Thematic plans, guidance and arrangements

Specifi c Organisational plans

Other plans

Generic Regional Emergency Response Plans

Multi-Agency

Flood Plan

Recovery Plan

Mass Evacuation

Reservoir Flood Plans

Major Incident PlanMulti-Agency

Response PlanCrisis Management Plan

Essential Services Plans

Organisations Communications Plans

Utility Company Plans

EA Local Flood Warning Plans

Local Authority Plans

Emergency Services Plans

Thediagramabove(figure12.3)isanillustrationofhowtolinkexistingplanscoveredbyyourLRFandwillhelpyouworkouthowvariousplanscomplementeachotherandhowtoavoidduplication.Forexample,ifyouhaveaplanforWarningandInformingorforEvacuationandShelteringitmaybethatthereisnoneedtocovertheseaspectsintheMAFP.Similarly,iftherolesandresponsibilitiesofthevariousorganisationsaresetoutinagenericMajorIncidentPlancoveringyourLRF,thenthereisnoneedtorepeatthisinformation.Instead,insertacrossreferenceandincludeonlyspecificoradditionalinformationthatisrelevanttoafloodresponse.

TheEnvironmentAgencyproducestheLocalFloodWarningPlansincludedinfigure12.3.AllpartsofEnglandandWaleshavebeenassessedbytheEnvironmentAgencyfortheleveloffloodriskfromriver(fluvial)andcoastalfloodingandsusceptibilitytosurfacewaterflooding.Aspartofwarningthepublicwherefloodingfromriversortheseaislikelytooccur,theEnvironmentAgencyhasidentified“floodwarningareas”.Theseareissuedwithafloodwarningwhenweatherforecastsorariseinriverlevelsdictate.TheEnvironmentAgencyLocalFloodWarningPlansareoperationalplansandcontaindetailedinformationandmapsontheseareas.TheseplansareoftenusedbyStrategic(gold)andTactical(silver)controlsasreferencedocumentsinincidentcontrolroomsduringaflood.So,inpreparingyourMAFP,youmaywanttoinsertanappropriatecross-reference,orlink,totheEnvironmentAgencyLocalFloodWarningPlans,ratherthanduplicateinformation.

The risk of flooding

Thissectioncanbeseparatedintosubdivisionsby‘community’or‘sourceofflooding’.Itshouldbeginwithanoverviewoffloodriskforcoastalandriverfloodingintheareaandsusceptibilitytosurfacewaterflooding(seefigure12.4foranexampleofafluvialfloodriskmapandfigure12.5foranexampleofasurfacewaterfloodingsusceptibilitymap).Astrategicplanshouldasaminimum,containanoverviewofsusceptibilitytosurfacewaterflooding;whereasatacticalplanshouldcontainmoredetailaboutareaswithahighersusceptibilitytosurfacewaterflooding.

YourEnvironmentAgencyrepresentativemustbeconsultedbeforesurfacewaterfloodingdataispublishedsincetherearelicencecontrolrestrictions.

TheriskinformationshouldbeconsistentwiththeriskassessmentinformationpublishedintherelatedCommunityRiskRegisters(LRFsshouldconsiderthefloodriskslistedinthelocalriskassessmentguidancewhenpreparingandupdatingCommunityRiskRegisters).TheCivilContingenciesSecretariatpublishesthisguidanceeachyeartoinformthisprocess.TheRiskRatingMatrixusedforlocalriskassessmentpurposesisshowninfigure12.6.

Thereareanumberofinformationsourcesyoumaybeabletodrawon:

■■ theEnvironmentAgency’sLocalFloodWarningPlanscontaininformationonriver,seaandtidalfloodrisk;

■■ youmayfinditusefultoconsultthetidetablestoincludeinformationonhightidesifapplicable;

■■ wheretheyexist,SurfaceWaterManagementPlansshouldbereferredtoforinformationontheriskofsurfacewaterfloodingandstrategiesformanagingthatrisk-uppertierorsingletierlocalauthoritiesleadonproducingtheseplans,incooperationwithotherpartners;

■■ historicrecordswillbeanotherusefulsourceofinformationwithregardtosurfacewateranddrainagefloodingproblems;

■■ watercompaniesmayhaveon-siteand/oroff-siteemergencyplansandfloodmaps;and

■■ manyCOMAH(ControlofMajorAccidentHazards)siteswillhaveriskassessmentinformationthatcanbeconsideredaspartofdetermininganddescribingtheimpactofflooding.

IfthereareInternalDrainageBoards(IDBs)withinyourareayouneedtofactorintheirresponsetoafloodevent.AlthoughIDBsarenotcategory1or2respondersundertheCivilContingenciesAct,theyareaDrainageAuthorityandprovidefloodprotectionandwaterlevelmanagementinareasofspecialdrainageneed(low-lyingfloodrisksensitiveareas).Theyalsooperatecontrolstructuresandpumpingstationsundertheirjurisdiction,soitisimportanttheyareconsultedinpreparingyourplan.

TopreparefloodriskinthissectionoftheMAFP,startbycompilingfloodrisksummarysheetsforeachcommunitytogetherwithassociatedmaps(detailedmapswillhelprespondersduringanincident,toquicklyidentifytheareasthatareatrisk).Thesummarysheetsshouldalsoshowknownlocationsofvulnerablegroupsandsitesofkeyinfrastructure.

Figure12.7isanexampleofacommunityfloodrisksummarysheet.Theexampleprovidedshowsfloodriskareastogetherwithlocationsofvulnerablegroupsandcriticalinfrastructure.Incommunitieswithsignificantfloodrisk,itmaybenecessarytosplitcommunitiesintosmallersub-areaspresentedovermultiplesheets.Thesesub-areasshouldbeconsistentwiththeEnvironmentAgency’sfloodwarningareas.Whereappropriate,thetablescanbeadaptedtocaptureinformationonothertypesoffloodriskasdescribedabove.

Figure 12.4:ExampleoverviewfloodmaptakenfromthelocallevelMultiAgencyFloodPlancoveringCanterburyCityCouncilarea(2009)

Figure 12.5: Exampleofasurfacewatersusceptibilityfloodmap

7 manually operated sluices adjacent to Millers Arms.

Automatic level gauge just upstream. All CCC responsibility.

5 manually operated sluices adjacent to The Causeway. Automatic level gauge just

upstream. All CCC responsibility.

5 manually operated sluices adjacent to Millers Field car park. CCC

responsibility.

All sluices at Barton Mill, Sturry Road removed in 2007

1 manually operated floodgate adjacent to

sluices at Millers Field car park. CCC responsibility.

1 trash screen adjacent to The Causeway. EA responsibility.

Figure 12.6:RiskRatingMatrix(fromEmergencyPreparedness,Annex4F)

Relative Likelihood

Risk Category

Low(1)

Medium-Low(2)

Very High Risk High Risk Medium Risk Low Risk

Medium(3)

Medium-High(4)

High(5)

Limited(1)

Minor(2)

Moderate(3)

Significant(4)

Catastrophic(5)

Figure 12.7:ExampleofaCommunityFloodRiskSummarySheetforacommunitythatiscoveredbytheEnvironmentAgency’sfloodwarningservice(takenfromClevelandMAFP).

Note:Thetablecanbeadjustedasappropriateforacommunitynotcoveredbythefloodwarningservice.Thetablecouldalsobeadaptedandusedtodescribeotherfloodriskssuchassurfacewaterflooding.

Skinningrove – Covered by EA Flood Warnings

ThereisasignificantpopulationatriskofTidalandFluvialfloodinginSkinningrove.Themajorityofpropertiesat

riskareresidentialaccommodation.AreasatriskborderKiltonBeckandincludetheZetlandRow,BeachRoad,

NewGroveTerrace,ChapelStreet,MarineStreetandtheHighStreet.TheEAidentifythat189householdsare

atriskofflooding.TheFishermansshedsandstorage,Communitycentreandalimitedamountofcommercial

propertiesarealsoatrisk.Theprimaryriskoffloodingwillbefromacombinationofhightidesexacerbatedby

floodingformKiltonBeck,whichwouldbackupduringhightides.

No. of properties at risk No. of vulnerable people at

Critical vulnerable infrastructure

189howeveradditional

propertiesoutsideofflood

warningzonemaybe

affected.

Currentlyunknown. Nocriticalinfrastructureidentified,other

infrastructureidentifiedbelow.

No. of properties

registered to Flood

Warning service

Return Period Lead Time

35 Unknown 2–12hours

Vulnerable Infrastructure:RoadaccesstoGroveHillTerrace.SubstationlocatedatNZXXX,XXX.Water

treatmentplantatNZXXX,XXXandtheRiversideCommunityCentre.Skinningrovebridgehas2pipelineson

thedownriverside,believedtobedomesticgassupplypipes.MillLane,HighStreet,BeachRoadareliableto

flooding.

Access and Egress

Primary Access: isviatheA174SkinningroveRoadandMillLanehoweverthismaybedisruptedintheeventof

highwaterinKiltonBeck.

Alternative Access:A174viaCarlinHow,GroveRoad,ViaA174Loftus,HummerseaLane,Skinningrove

BankRoad.

IntheeventofthedefencesbeingclosedfootaccessispossibleviaafootbridgeonMillLane.Emergency4x4

accessmaybepossibleeitherviaDeepdaleLaneandfieldsorviathefootpathleadingfromtheminingmuseum

–Cautionthisisverynarrowseephoto(x).

Road Closures:IntheeventthatthebridgeatNZ714,198isclosedtherewillbenovehicularaccesstoGrove

HillandZetlandRoad.Itisessentialthatemergencyservicescontrolroomsarenotifiedifthebridgeisclosedas

perfollowingprocedure.GroveRoadfromCarlinHowemayalsorequireclosingtoreducecongestion/riskto

membersofthecommunity.

Advanced Signage: A174BrottonRoadjunctionwithSkinningroveRoad.

Flooding History (if known)

Skinningrovefloodedtwicein2000,JuneandNovember,onbothoccasionsasaresultofhightidescombined

withsignificantamountsofrainfall.Resultinginsignificantdamagetoanumberofresidentialproperties,no

liveswerelost,howevertherewasasignificantimpactonthecommunity.Manyresidentspropertiesrequired

refurbishment.

Rest Centres

ThenearestdesignatedrestcentreisLoftusYouthandCommunityCentre,analternativecentreislocatedat

SkeltonCivicCentre.Bothcentresareasignificantdistanceandwillrequiretransport.

ItislikelythattheRiversideCommunityCentremaybeopenedasarestcentrebymembersofthecommunity

andwouldprovideagoodstaginglocation.Considerationshouldbegiventousingitasanalternativerest

centre/commandpost.

Vulnerable Populations

ResidentsofZetlandRow,StoneRow,BeachRoad,TheSquare,HighStreet,ChapelStreet,NewGroveTerrace,

WilsonTerraceandMarineTerraceareparticularlyatrisk.

Evacuationrouteshavebeenidentifiedbythecommunitywardens,wardensarealsoabletoassistwiththe

identificationofvulnerablecommunitymembersinprivateresidences.

Flood Defences / Alleviation Schemes

Seadefenceswererefurbishedin2007.Thebridgeinthecentreofthevillageislikelytobeclosedbyvolunteers

orCarillion(CouncilPartners)intheeventofhighwater(6”belowthebridgesoffetseephoto).Closingthis

bridgestopsvehicleaccesstoZetlandRowandGroveHill.

Intheeventofthesirensoundingthevillageshouldbeevacuatedimmediately.Thesirencanbeautomatically

activatedbytheEnvironmentAgencyormanuallybyEA/CarillionorFloodWardensatthesite.Approximately

1,000sandbagsareavailableinacontainerintheriversidecommunitycentreyardtheseareforusebythe

community.TrashScreensarelocatedatNZ758,185onKiltonBeck,previouslydebrishasblockedtheriver

resultinginsuddensurgesofwateranddebris.

Traffic Management

TrafficflowswillbeseverelyhamperedintheeventoffloodingitislikelythattheA174mayalsobeaffected.

Flood Warning Status Area(s) at risk (refer to map)

FloodWatch NA

FloodWarning NA

SevereFloodWarning 121FWFNS078

Risk Assessment: (Refer to Emergency Preparedness, Annex 4D)

Likelihood 2 FinalRiskRating

(Low–VeryHigh)

4LowImpact-Health

-Social

-Economic

-Environmental

MeanImpact

Figure 12.8:ExamplemapfromRyedale’sdraftMulti-AgencyFloodResponsePlan(2007)

Constructing your Multi-Agency Flood Plan (MAFP) - communication planning

Goodcommunicationsareessentialandtheyneedtobeplanned.

Communication arrangements

Yourplanningshouldincludecommunicationarrangementsbetweenallagenciesrespondingtoaflood(wherethesearenotcoveredinanotherLRFplan)andwarningandinformingthepublic(akeyrequirementoftheCivilContingenciesAct).

AseparateCommunicationPlan,oraGenericEmergencyPlan,maycontainarrangementstocommunicatewiththepublic,mediaandeachother.But,ifthisisnotthecase,itisrecommendedthatthissectionofyourMAFPshouldinclude:

■■ arrangementsforinternalcommunications;

■■ adocumentedprocedureformanagingcrossboundarymutualaid;

■■ amulti-agencystrategicmediaco-ordinatingroleandJointMediaStrategy;

■■ pointsofcontactatStrategic/Tactical/Operational(Bronze,SilverandGold)levels;

■■ pre-preparedannouncements/mediareleases;

■■ triggersforcommunicatingwithothers;and

■■ contactdetails(seefigures12.25and12.26)andarrangementstosetupandoperateahelplineorinformationline.

Thissectionshouldalsocross-refertoLRFtelecommunicationplanswheretheyexist.Wheretheydon’texist,asectionshouldbeinsertedintheMAFPonhowcommunicationsbetweenrespondingorganisationswouldworkinthecaseofanyofthepublicnetworksfailing(i.e.contingencyarrangements).

TheMAFPshouldnotcontainthearrangementsforissuingfloodwarnings,asthiswouldduplicatetheEnvironmentAgencyLocalFloodWarningPlans.

Communicating with the public about the risk

ThissectionofyourMAFPshouldincludewaysofraisingthepublic’sawarenessabouttheriskofflooding,thearrangementsintheMAFPandhowtheymaybeaffectedbyfloods.IfanLRFtelecommunicationsplandoesnotexist,thissectionshouldincludeplanstocommunicatewithvulnerablepeoplewhoaredependentontheirtelephoneintheeventofnetworkfailure.

Inspecificfloodriskareas,theEnvironmentAgencyissuesfloodwarningsforriverandcoastalfloodrisktothoseregisteredontheFloodlineWarningsDirectsystem.Thereisalsoanonline

servicethatshowsthecurrentfloodwarningsituationinEnglandandWales-thewebsiteisupdatedeveryfifteenminutes.TheEnvironmentAgencyalsoorganisepublicawarenesscampaigns,arrangeforthebroadcastingofwarningmessagesonlocalradioandprovideadviceonwhatdobeforeduringandafterafloodevent.

ThereisalotoffloodinginformationontheEnvironment Agency’s websiteincludingasearchfacilityonpostcodesallowingacheckonwhetherapropertyisinafloodriskarea.

Warning the public: loudhailer announcement in case of evacuation

Hereisanexampleofaloudhailerannouncement,shouldevacuationbecomenecessary:

“Flooding of (insert area) is possible within the next few hours. The authorities are considering evacuating residents from properties in (specify roads / etc).

If you occupy property in any of these locations you should make preparations now for a possible evacuation.”

(AdaptedfromtheCityofYorkFloodDefenceEmergencyResponsePlan(2002)andfromtheLondonFloodResponseStrategicPlan(March2007))

Sirens

Ifsirensareusedwithinyourareaduringafloodincident,itmaybeusefultoincludesomeinformationonthem,forexample;

Figure 12.9:Sirendetails

Sirens

Location

Ownership

Triggerforactivation

Whoapprovestheactivation

Whatdoesitmean

Whatactionisrequiredandbywhom

General public advice

YourplanshouldalsoincludetheneedtoreinforcetheEnvironmentAgency’spublicmessagesonwhattodointheeventofpossibleoractualflooding,whichisreproducedbelow.

Figure 12.10:Whattodointheeventofpossibleoractualflooding

Before a flood

Prepare a Flood kit and include the following:

Packasmallbagwithessentialbelongingsandincludewarmclothes,torch(checkbatteries),radio(winduporbatterypowered),food,water,otherdrink,mobilephone(preinputusefulnumbers),anymedicinesthatyoumightneedtotake,anyimportantdocumentsthatyouhaveandafirstaidkit.Keepthisbageasilyaccessible.

■■ Collectpersonalbelongings,includinginsuranceandbankdetails,andessentialtelephonenumberstogether,andkeeptheminawaterproofbag.

■■ Movepeople,pets,valuablesandsentimentalitemsupstairsorinahighplacedownstairs.

■■ Keepaseparatelistofusefultelephonenumberstohand(thisshouldincludeyourlocalCouncil,yourinsurancecompanyandFloodline – 0845 988 188).

■■ FindoutwhereandhowtoturnoffyourGasandElectricity.Ensurethatyouswitchitoffiffloodingisimminentbeforeevacuating.

■■ Anyfurniturethatyoucannotmoveupstairs,trytoraisewelloffthefloor.

■■ Alertneighboursandassisttheelderly,infirmandthosewithsmallchildren.

■■ Blockdoorwaysandairbricks

■■ Avoidwalkinganddrivingthroughfloodwater,therecouldbehiddenhazards.

■■ KeepuptodatewithlocalradioforfurtherinformationandannouncementsandviaFloodline 0845 988 1188.

During a flood

■■ ContinuetolistentosituationupdatesonyourlocalradioandviaFloodline 0845 988 1188.

■■ Keepdryandoutoffloodwaterifpossible

■■ Stayinyourproperty,ifsafetodoso,untiladvisedotherwisebytheemergencyservicesorthefloodwaterhasreceded.

■■ Donotwalkordrivethroughflowingfloodwater.

■■ Ifitisnecessarytowalkthroughshallowfloodwater,takecareforhiddenholes,obstaclesorotherhazards

■■ Donotwalkonriverbanks,seadefencesorcrossbridgesovertorrentialrivers.

■■ Avoidcontactwithfloodwaterandwashanyexposedpartsbeforehandlingfoodorattendingtowounds.

If evacuation becomes necessary

■■ Staycalmanddonotpanic.

■■ Policeofficersand/orotherofficialswilltrytovisitallpropertiesatrisktoadviseontherequirementtoevacuate.

■■ Ifroadconditionspermit,movevehiclestounaffectedareasandaskfriends/familyifyoucansharetheirparkingfacilities.

■■ Youwillhearaboutyourevacuationpointfortransportandthelocationofthereceptioncentreeitherverballyorbyaleaflet.

■■ Trytocheckthatanyelderly/vulnerablefamilymembersorneighboursknowabouttheevacuation.

■■ Trytoinformfamilymembers/friendsastowhereyouareevacuating.

■■ Listentotheadviceoftheauthoritiesandfollowanyinstructionstoleaveaproperty.

After a flood / returning home

■■ Contactyourinsurersassoonaspossibleandfollowtheiradvice.Mostinsurershavea24hrhelpline.Donotthrowawaydamagedgoodsuntilyourinsurerhasauthorisedyoutodoso.Itisagoodideatotakephotographsofthedamage.

■■ Checkthesafetyofelectricityandgasbeforeuse.Aqualifiedelectricianneedstocheckanyelectricalequipmentandcircuitsthathavebeenexposedtofloodwater.

■■ Avoidcontactwithanyremainingfloodwateroritemshavinghadcontactwithfloodwaterunlesswearingprotectivegloves/clothing.

■■ Boilalltapwateruntilitisdeclaredsafebythewatersupplycompany

■■ Washyoursandyourchildren’shandsfrequentlywithbottledwaterifyoursupplyhasnotbeendeclaredfitforuse.Disinfectanychildren’stoys.

■■ Disposeofanycontaminatedfood,includingtinnedfood,defrostedfood,andpackagedfoodthathavebeenexposedtofloodwater.

■■ Seekmedicalassistanceifanyhealthissuesappear,especiallyflulikesymptoms.

■■ Ventilateyourpropertywhilsttakingcareforsecurity.

■■ Donotthrowrubbishandfurnitureoutdoors;waitforanorganisedcollection.

■■ Duringthesehardtimes,bogus/cowboybuilders/tradersarefrequentlyofferingtheirservices.Makesurethatyougetawrittenquotationthatisonletterheadedpaperwithalandlinecontactnumberandaddress.

Plan activation – thresholds and triggers

Thissectionisvitaltothesuccessofyourplan.Itshouldsetoutaspreciselyaspossiblethetriggersorthresholdsforactivatingyourfloodemergencyarrangements.Thismaybeeasiesttomapoutasaflowdiagramoratable.ItshouldcoveragreedactivationtriggersforbothTactical(Silver)andStrategic(Gold)commandsandotherresponsearrangements.TheaimistoensureallpartnersintheLRFareclearonthepointatwhichtheplanisactivated,andatwhatpointsduringanincidentdecisionsarelikelytobemadeandactiontaken.YourEnvironmentAgencyrepresentativeonyourLRFwillbeabletoexplainwhatthedifferenttriggersmightmeanintermsofthelikelihoodandscaleofanyflooding.

ActivationarrangementsshouldtakeaccountoftherecommendationsinthePittReviewthatGoldCommandsshouldbeestablishedatanearlystageonaprecautionarybasiswherethereisariskofseriousflooding(Pittrecommendation43)andthatuppertierlocalauthoritiesshouldbetheleadresponderfortriggeringmulti-agencyarrangementsinresponsetosevereweatherwarningsandlocalimpactassessments(recommendation41).

The range of triggers

ThefollowingareexampletriggersandactionsthatyourMAFPcouldinclude:

■■ FloodGuidanceStatementsissuedbytheFloodForecastingCentre(FFC);

■■ heavyrainfallalertsissuedbytheFFC;

■■ extremerainfallalertsissuedbytheFFC;

■■ flashseverewarningsissuedbytheMetOffice;

■■ earlyseverewarningsissuedbytheMetOffice;

■■ EnvironmentAgencyfloodwarnings;

■■ reportsoffloodingfromthepublic;and

■■ RiverlevelsontheInternet(nearreal-timeriverlevelsdatapublishedontheEnvironmentAgencywebsite)-notatriggerbutusefulsupportinginformation.

Formoreinformationonthesetriggersandhowtheycouldbeofuse,pleaserefertosection5:Toolsforfloodemergencyplannersandresponders.InformationabouttheFloodForecastingCentreanditsservicescanbefoundinsections4and5ofthisFramework.

Triggersneedtobelinkedtospecificactions.InthecontextofyourMAFP,thesemayinclude:

■■ alertandstandbyprocedures;

■■ peopletonotify/inform;

■■ instructionsfortheopeningofcontrolcentres;and

■■ othergenericactions,dependingonthescaleoftheincident.

Figure12.11isanexampleofqualitativetriggersandgenericactionsforfloodwarningserviceareasandotherareas.Itisimportanttospecifydifferentresponselevelsandtheassociatedgenericactionssothateverybodyisawareofthescaleofresponseexpected,proportionatetotheseverityoftheincident.SuggestedLocalResponseleveldefinitionsaregiveninFigure12.12.

What do flood warnings mean and what do responders do?

TheEnvironmentAgencyoperatesafloodwarningserviceinmostareasatriskoffloodingfromriversandthesea(seesection4-WhatyoucanexpectfromtheEnvironmentAgency).Iffloodingisforecast,warningsareissuedusingasetoffoureasilyrecognisablecodes.Incoastalzonesthereisanassumed8hourleadtimeforovertoppingofcoastaldefencesfromstormtides.

ComprehensivedetailsarecontainedintheLocalFloodWarningPlanmaintainedbytheEnvironmentAgencywiththesupportofthemembersoftheFloodWarningPlanningGroups.Thatplanisintendedtoassistwiderdisseminationandunderstandingoffloodwarningarrangementsandsystemsandistheprimereferencedocumentinthisrespect.

Figure 12.11:Exampleplantriggersandgenericactionsusingqualitativeimpactmeasures

Triggers in areas covered by the Flood Warning

Service

Triggers in areas not covered by the Flood

Warning service

Environment Agency monitors rainfall, river and

sea levels and the tides 24/7

Flood Guidance statement issued by the Flood

Forecasting Centre [FFC]

LEVEL 0

Low Flood Risk

Local Response Level *

UKCMF [Coastal & Monitoring Forecasting

service] costal water level alerts provided by the FFC

[to EA only]

Extreme Rainfall Alert issued by the FFC

LEVEL 1

Moderate Flood Risk

Severe weather warning and / or reports of

minor fl ooding

Heavy Rainfall Alert issued by the FFC [to EA only]

Category 1 and 2 responders receive weather warnings and reports of fl ooding.

Flood Guidance statement issued by the Flood

Forecasting Centre [FFC]

Met Offi ce severe weather warning

LEVEL 2

Substantial Flood Risk

Extreme Rainfall Alert / Reports of

Met Offi ce severe weather warning

LEVEL 3.

Severe Flood Risk

Reports of signifi cant / catastrophic fl ooding

Flood Warnings from the Environment Agency activate

the plan

LEVEL 4

Recovery

Floodwater recedes

Environment Agency opens Area Incident Room. Monitors / operates fl ood

defences on main river /tidal.

* please refer to Figure 12.12 on next page “local Response Level Defi nitions”

Figure 12.12:LocalResponseLevelDefinitionsExampletakenfromBarnet2010MAFP

Analertleveldescribestheexpectedscaleofresponsetoafloodincident.Thesecouldbedefinedas:

Local Response Level

Trigger Actual or forecast Impact

Response

Level 0 (Lowfloodrisk)

Nofloodwarning/watchesand/ornowarningsofsevereweatherinforcethatmayresultinflooding

Nofloodingoccurring

Nospecificresponse,normalawarenessofpossiblefloodrisk

Level 1 (Moderatefloodrisk)

Floodwarningsinforce,

And/or

Warningsofsevereweatherinforcethatmayresultinflooding

And/or

Reportsofminorimpactflooding.

Lowimpactfloodingoffields,gardensandminorroads.

■■ Individualrespondersoffloodplansandproceduresmaybeactivated

■■ Someroutineorpreparatoryresponsesmaybeunderway,e.g.diversionofminorroads,dutyofficersputonstandby,resourcesmobilised

■■ Heightenawarenessiffloodrisk

Level 2 (Substantialfloodrisk)

Floodwarningsinforce,

And/or

Warningsofsevereweatherinforcethatarelikelytoresultinflooding

And/or

Reportsofpropertyflooding.

Aslevel1,plusHighimpactfloodingwhichmayresultinrisktolife,homesandbusinesses.

Asforlevel1,plus:

■■ MultiAgencyFoodPlan(MAFP)activated

■■ RespondersundertakeactionscontinuedinMAFP

■■ ConsidertheneedforpoliceledMulti-agencyco-ordination.

Level 3 (Severefloodrisk)

Severefloodwarningsinforce,

And/or

Warningsofsevereweatherinforcethatarehighlylikelytoresultinflooding

And/or

Reportsofsignificant,catastrophicflooding.

Aslevel2,plus:

Veryhighimpactfloodingwhichmayresultinextremedangertolifeandproperty.

Asforlevel2,plus:

■■ Policeco-ordinatemulti-agencyresponse

■■ Multi-agencycontrolcentreopen.

■■ ConsidertheneedtosetuparecoveryworkinggroupalongsidetheSCG(Gold).

Level 4 (Recovery)

Floodwarnings/severefloodwarningsdowngraded

And/or

Allclearsissued

And/or

Nowarningsofsevereweatherinforcethatmayresultinflooding.

Floodwaterreceding.

Localauthoritytofacilitaterehabilitationofthecommunityandrestorationofthecommunity.

Figure12.13isanexampletakenfromtheCityofYorkFloodDefenceEmergencyResponsePlan(2010)ofquantitativemeasuresthatcanreplacequalitativedescriptionstoreflectlocalimpactsandcircumstances,suchas,riverlevels,numberofpropertiesorspecificinfrastructureatrisk(theAOD(AboveOrdnanceDatum)levelsrelatetogaugeboardreadingsonabridgeovertheOuseinthecentreofYork).Thisisappropriateinthislocationastheriverhasaslowrateofrise.Therefore,themulti-agencygrouphastimetoimplementadetailedresponsestrategy.Inrapidresponsecatchments–examplesareBoscastleandCarlisle,whererapidfloodingoccurredin2004and2005respectively-aquantitativemeasurediagramwouldnotbesuitableduetothespeedatwhichriverlevelsincrease.Respondersneedtobeverysurethatcertainlevelswouldtriggeraparticularaction.

Figure 12.13:Exampleoftriggersandgenericactionsusingquantitativeimpactmeasures

(ExtractedfromtheCityofYorkFloodDefenceEmergencyResponsePlan(January2010)

Planning roles and responsibilities

Thissectionfollowsdirectlyonfromplanactivationtriggersandshouldsetouttheactions,rolesandresponsibilitiesofrespondingagenciesinrelationtothesetriggers-foreachcommunityatriskfromflooding.

Actions, roles and responsibilities

ThelevelofdetailincludedinthissectionisamatterforyouandyourLRF.Non-floodspecificorgenericrolesandresponsibilitiesshouldbeassetoutinotherstrategicorgenericemergencyplansandnotrepeatedhere-relevantreferencesorhyperlinksshouldbeadded.

YoushouldfocusonprovidingasummaryofthefloodspecificrolesandresponsibilitiesofCategoryOneandTwoRespondersattheplanningstageandduringtheevent.Considercircumstanceswheretheremaybeaneedforchangesinrole.Forexample,theEnvironmentAgencyhasprimaryresponsibilityforfloodingfromrivers,whereasthelocalauthorityand/orWaterCompanyhasprimaryresponsibilityforfloodingfromdrainsandsewers.

Figure12.14providesanexampleformatforpresentingfloodspecificrolesandresponsibilities.AllLRFsarestronglyadvisedtoincludetables,similartothoseinFigures12.14throughto12.17intheirMulti-AgencyFloodPlan.Formost,thiswillformthebackboneoftheresponseplantofloodinginagivenarea.

Yourplanwillneedtodescribeasfaraspossibletheexpectedscaleofresponseandassociatedactionstobetakenintheeventofflooding(ifnotincludedinothergenericplans).Thisshouldincludethe:

■■ specificactionsthatorganisationsandrespondingagencieswilltakeatdifferentstagesofafloodingincident;

■■ activationofplansandprocedures;

■■ openingofincidentrooms,commandandcontrolcentres;

■■ linesofcommunication;

■■ criteriaformakingdecisionstoprioritiseandallocateresources;

■■ availabilityofrelevantresourcesandskills;and

■■ environmentalresponsibilities.

Environmental considerations

Itisimportanttoidentifyandlistinthe‘consequence’columnofyourversionofFigure12.16anyanticipatedenvironmentalimpactsdirectlyresultingfromtheflood,forexample:

■■ disposalofanimalcarcassesiffarmlandisflooded(seesection11formoreonthis);

■■ disposalofflooddamagedpersonalproperty;

■■ disposalofsilt,gravelandotherflooddebris;

■■ disposalofcontaminatedsandbags;

■■ salineintrusionoffreshwaterSitesofSpecialScientificInterest;and

■■ pollutionifsewage/industrialsitesarefloodedorpollutionfromfloodedvehicles,storedfertilisersetc.

Alloftheaboveaspectsshouldbelinkedbacktorecoveryplanswheremoredetailontheactionsneededshouldbesetout.

Health and Safety considerations

Allorganisationsneedtoensurethattheyhaveappropriateandadequateresourcesthatcanbesustainedoveraprotractedperiodifrequired-inparticular,staffresource,personalprotectiveequipmentandaccommodation.Thisneedstobeclearlysetoutinyourplan,oracrossreferencemadetotherelatedplan.

Allrespondingorganisations,includingvoluntaryagenciesshouldbeawareoftherisksassociatedwithworkinginornearbytofloodwater,suchas:

■■ thehealthissueswhencontactismadewithcontaminatedfloodwater;

■■ theriskofelectrocution;

■■ hiddenobjectsortriphazardsbeneaththewater;

■■ thepowerofwaterandhoweasyitistobecomeunbalanced;and

■■ drowningorhypothermia.

WhenpreparingyourMAFP,LRFmembersshouldconsiderthespecifichealthandsafetyissuesrelatingtofloodriskintheareathatshouldbeincludedintheplan.Inallcases,individualsandteamsthatareexpectedtoplayaroleinfloodresponseandrecoveryshouldreceiveappropriatetraininginrelevanthealthandsafetypoliciesandprocedures.TheMAFPisnotexpectedtosetoutsuchpoliciesandprocedures,butyoumaywishtoincludesomeorallofthemdependingonyourlocalarea.

Figure 12.14:ExamplesofRolesandResponsibilitiesSpecifictoTypeofFlooding.AdaptedfromBarnetMAFP,2010

Organisation Risk Preplanning Minor Flood (medium Consequence)

Major Flood (high Consequence)

Notes Recovery

EnvironmentAgency

Fluvial,Costal,tidal

PrepareandmaintainLondonLocalFloodPlan;AdviseandDevelopmentproposals;updatefoodriskmaps;supportLRFfoodriskassessments;maintainwatercoursecapacity;maintainfloodmanagementstructures.

ConveneaFloodAdvisoryServiceteleconference

Issuewarnings;monitorcatchments;operatedefences;supportLA’sandemergencyservices.

(Asforminorflood)

SupportLA’sandcommunityasresourcesallow;Repairanydamageddefences.

FireBrigade(LFB)

Fluvialflooding.

Standardoperationalresponsetoaspecialservice.ResponsibilitiesundertheFireandRescueServicesAct2004LESLPguidanceLFBbusinesscontinuityplans.

Liaisewithotheragenciesandprioritiseresponseandresources.Giveassistancewithpumping.Giveprioritytofloodinginvolvingariskoflife,fireorexplosion.Environment

issuese.g.chemicals,hospitals&homesandtheelderly,publicutilitiesandfoodstorage,heritagesites.

AswithMinorflood.Informrelevantofficers.Assessresources.FollowLESLPprocedures.AttendGoldandotherco-ordinatedresponsemeetings.

RequestassistancefromtheRNLIforsearch&rescuewherethereisapotentialrisktolife.

Assistotheragenciestominimisetheimpactonthecommunity.

Figure 12.15:ResponseActions,RolesandResponsibilities.ExampleadaptedfromtheBarnetMAFP,2010

ForamorecomprehensiveexampleseetheTemplates,FiguresandTablesDocument

Response Actions, Roles and Responsibilities

Emergency Response

ThedifferentagenciesrespondingtoafloodeventwillcarryouttheirdutiesasstatedintheLESLPProcedureManual(withfocusonAnnexEoftheRecoveryPlan).Thefollowingpagesstatethedifferentrespondingagenciesresponsibilitieswithregardstoafloodevent.

Metropolitan Police Service (MPS)

LESLPguidancestatestheMPShavethefollowingresponsibilities;

■■ SavingofLife

■■ co-ordinationoftheemergencyservices,localauthoritiesandotherorganisations

■■ Secure,protectandpreservethesceneandcontrolsightseersandtraffictheuseofcordons.

■■ Investigationoftheincidentandobtainingandsecuringofevidence

■■ Collectionanddistributionofcasualtyinformation

■■ IdentificationofthedeadonbehalfofHMCoroner

■■ Preventionofcrime

■■ Familyliaison

■■ Shorttermmeasurestorestorenormality

■■ Intheeventofwarningandinformingcommunitiesatriskoffloodingnotbeingeffective,wherepracticable,assistancewillbegiven.

MajorincidentdeclarationtobemadebyBluelightorlocalauthoritypersonnel.

Majorincidentprocedure–commandandcontrol-provisionofGoldco-ordinationchairandlocation.

ConsiderationastoCasualtybureauetc.

UseofGoldmediacell.

Recoverycellbuiltintocommandandcontrolprotocols.

London Fire Brigade (LFB)

LESLPguidancestatestheLFBhavethefollowingresponsibilities:

■■ Lifesavingthroughresponseandrescue

■■ Firefightingandfireprevention

■■ Renderinghumanitarianservices

■■ Detection,identification,monitoringandmanagementofhazardousmaterialsandprotectingtheenvironment

■■ ProvisionofqualifiedscientificadviceinrelationtoHAZMATincidents

■■ Salvageanddamagecontrol

■■ Safetymanagementwithintheinnercordon

■■ TomaintainemergencyservicecoverthroughouttheLFBareaandreturntoastateofnormalityattheearliesttime

■■ Inafloodeventassistancewillbegiventorelevantagencies,particularlythelocalauthority,tominimisetheeffectsofmajorfloodingonthecommunity

■■ Inafloodeventassistancemaybegivenwithpumpingoperations,dependingonthesituation,withprioritybeinggiventocallswherefloodinginvolvesarisktolife,orfireorexplosionandtocallsfromhospitals,residentialhomesfortheelderly,publicutilitiesandfoodstoragedepots.

WhentheMulti-agencyFloodPlanisactivated,anditisamajorincident,theLFBwillattendmeetingsandliaisewithotheragenciestoprioritisetheirresponse.

Assistotheragenciestominimisetheimpactonthecommunity.

AccesstoboatsthroughtheFire&Rescueservice.

National Grid. Gas – Electric

Distribution/ transmission

■■ SetupGold/Silver/Bronzecommandasappropriate,onsite

■■ Co-operatewithrespondingagenciestoisolatesuppliesandmakesafeasnecessary.

Wherepossiblereconfigurationofsupplies

Possiblelock-outofregulatorstomaintainpressuresingasmains.

Waitforwatertorecede,re-establishsupplies

Prepareforrecovery

Invokemutualaidandresourceplans

Returntoservice

Environment Agency (EA)

EAhavetheleadroleformonitoringcatchmentsandprovidingfloodwarningswherepracticalandpossible,toprotectpeopleandpropertyatrisk.

Operatedefences

WhenpossibletheEAwillattendcommandcentrestoprovideface-to–facesupportandinformationonwhereafloodishappeningandwhatcanbeexpectedtohappenduringthecourseofthefloodevent.

WhereresourcesareavailabletheEAwillhelplocalauthoritiesandtheemergencyservicesindealingwiththeeffectsofflooding,suchasevacuationanddistributingfloodprotection

SupportLA’sandcommunityasresourcesallow

Repairanddamagesdefences.

Figure 12.17:FloodWarningActions.ExampletakenfromtheBarnet2010MAFP

(Anexampleofactionstakenbyvariousorganisationswhenaspecifiedfloodwarninglevelisinforce.)

Flood Watch

Who What When Comments

Environment Agency (EA)

IssueAlert Combinationofwaterlevelsandforecastsuggestfloodinglikely.Propertyfloodingnotexpected.

Precautionary:maynotresultinflooding.

Met Police (MPS)

CommunicationofEAmessagetopatrollingofficers.

UponreceiptofEAmessagebyBOCUcontrolroom

AdditionaltasksundertakenasrequestedbyEA.

London Fire Brigade (LFB)

FireBrigademobilisingcontrolpromulgateswarningwithintheLFB.Prepareforpossiblebatchmobilising.

AssessResources

OnreceiptofinformationfromtheEA.

NHS/PCT Alertrelevantorganisations(acute/mh/GPs)tobeaware

Assoonaspossible Informationre.floodwarningshouldbereportedtoNHSLondonemergencyplanning.

London Ambulance Service (LAS)

MonitorknownhighriskareaswithreferencetoEAfloodmaps.

IssueofFloodWatch

Flood Watch

Who What When Comments

Thames Water

Three Valleys

Noterisks

Setupafloodwatchteam

ConveneThreatAssessmentResponsegroup

Situationmonitored

Ongoingmonitoring

■■ Impactofcustomerservice

Assessed

*Reviewofimpacttootherserviceprovidercustomers-developasingleindustryview-Peopleandoperationsatriskidentifiedfollowingriskassessment

TFL - HA

Transport Networks

Monitorsituationbutnospecificactions

Vulnerable People

Thissectionshouldsetoutthemechanismforsharinginformationaboutvulnerablepeopleinvariousfacilities(notindividuals’details)whomayneedspecificassistanceduringafloodincident.Figure12.18isincludedtohelpidentifyspecificfacilities.

TheCabinetOfficeGuidance on Identifying People who are Vulnerable in a Crisis(CabinetOffice2008)shouldbereferredtoformoredetail,includingguidanceonidentifyingwhoisvulnerable.TheEmergencyPreparednessGuidancetoPart1oftheCivilContingenciesAct(Section2.2)definesvulnerablepeopleas"thosethatarelessabletohelpthemselvesinthecircumstancesofanemergency”.

Informationonthelocationandneedsofvulnerableindividualsisheldandmaintainedbyvariousagencies/organisationsanditisnotnecessary,orsensible,tocatalogueorduplicatethisinformationintheMAFP.Thecontactdetailsofsuchagencies/organisationsshouldbeincludedinthetableforwhichfigure12.25isamodel.AmechanismforsharingthisinformationduringanemergencyshouldbeagreedwithintheLRF.

Akeyissuethatneedstobeconsideredistheapproachtowarningandinformingvulnerablepeople.Suchwarningsmustbeaccessiblewhichmayrequireanumberoftailoredcommunicationsapproaches.

Itisrecommendedthatanappropriatemapshowingthelikelywhereaboutsofvulnerablegroups(e.g.schools,nurseries,carehomes)isincludedinyourMAFP.Anditisadvisabletocontacttheoperatorsofthosesitestoseeiftheyhaveanyexistingarrangementsinplace,includingevacuationplans.Ifso,theseshouldberecorded.Itisalsoimportanttorecordthecontactdetailsofcertainkeypeople,suchaskeyholders,floodwardensandcommunitygroups.

Figure 12.18:ExampleLogsheetofVulnerablePeopleinvariousfacilities.

Facilities Address Useful Contact number(s)#

Support needed in Emergency

Communication Issues

Comments Grid Ref

NewcastlePrimarySchool

<do the same for all groups> e.g.

Schools

Nurseries

Carehomes

Surgeries/clinics

Areaswithhighconcentrationsofelderly

Caravanparks&campsites

NewcastleStreet,NewcastleNE11AA

MrSSmith(keyholder)

(daytime)01911111111

(m)07877345862

Evacuationforpupilswithspecialneeds

(e.g.Sensoryimpaired)

300Children

Noevacuationplan

xxxyyy

Critical infrastructure

TheUK’scriticalnationalinfrastructurecomprisesninesectors:water,energy,transport,telecommunications,health,food,financialservices,emergencyservicesandgovernment.Thelossofsomeinfrastructureassetsasaresultoffloodingmayhaveasignificantimpactanditisvitalthatthisisassessed.

SothissectionofyourMAFPshouldidentifyallinfrastructureatriskfromfloodingthatiscriticaltothelocalpopulation,ortootherpartsofthecountry.Figure12.19providesamodelforcapturinglocations.Includemapsasfaraspossible.Butbearinmindthatthedetailsonthesitesyouincludeislikelytodeterminetheprotectivemarkingwhichshouldbeappliedtothedocument.

Whenplanningforpotentialfloodingonornearasite,LRFsshouldworkwithinfrastructureownersandoperatorstoidentifytheatrisklocations;theirbusinesscontinuitymanagementplans;thepotentialconsequencesoflossoftheasset;andthekeydependenciesandinterdependencieswithothersectors(watersupplyreliesontheavailabilityofelectricityforexample).Localknowledgeisimportant.

Itisrecommendedthatyouprioritisethecriticalityofkeyinfrastructureaspartofyourplanning.Forsomeinfrastructuresectorstheremaybesufficientresilienceatlocalleveltomanagelikelydisruptioncausedbyflooding(supermarketsareunlikelytobequicklyexhaustedoffoodforexample),inwhichcaseyoudonotneedtofocusontheminyourMAFP.

WhereLRFtelecommunicationplansexist,theseshouldbereferredtoaspartoftheMAFP.TheMAFPshouldcrossreferencetootheremergencyplansasneededandthensetoutthespecificactionsfallingtorespondingagenciesinrelationtoeachoftherelatedrisks.

MAFPsshouldbesharedwithneighbouringLRFsinviewofthefactthatcrossboundaryissuesneedtobecarefullyconsidered.Disruptiontoinfrastructurecanaffectanumberofadjacentcommunities,andbeyond.

GuidanceonunderstandingandimprovingtheresilienceofinfrastructuretonaturalhazardswillbemadeavailableontheNationalResilienceExtranet(NRE).

Figure 12.19:ExampleofCriticalInfrastructureLogsheet

Key Infrastructure Address Useful Contact number(s)#

Details Grid Reference

e.g.NewcastleSub-Station

MainStreet,Newcastle,NE11BB

MrsPSmith(keyholder)

(daytime)01911111111

(m)07877345862

OwnedbyNEDL-

Supplies500propertiesinsouthHull

XXXYYY

#Allcontactdetailsshouldalsobeincludedinanappendix.

CompletetheLogSheetforallkeysitesandinfrastructure,includingforexample:

■■ electricitysub-stations;

■■ telephoneexchanges;

■■ policestations;

■■ firestations;

■■ hospitals/A&Es;

■■ ambulancestations;

■■ localauthorityoffices/depots;

■■ shoppingcentres;

■■ COMAHsites;

■■ prisons;

■■ watertreatmentworks;

■■ sewagetreatmentworks;and

■■ transporthubs.

Being rescued and cared for in an emergency

Inthissectionyoushouldrecordthearrangementsforevacuatingandshelteringpeopleatriskfromflooding.Indoingso,youneedtodifferentiatebetween‘Rescue’and‘EvacuationandSheltering’(althoughthelattermaybeadequatelycoveredbyaGenericEvacuationandShelteringPlan).

ItisrecommendedthattheEnvironmentAgencyisconsultedforadviceonflooddepthinformationwhichcouldbeusefulforplanningevacuationroutes.

IfaGenericEvacuationandShelteringPlanexists,itshouldnotbereplicatedintheMAFP.Butifnot,theMAFPshouldidentify:

■■ vehiclesandresourcesavailableforevacuation;

■■ safeevacuationroutesandrendezvouspoints,preferablymarkedonamap;

■■ trafficmanagementarrangementsforknownfloodproneroads;

■■ shelters/receptioncentrestoaccommodatedisplacedvictims(plusanyvaluablestheymaybring,includingessentialmedicationandpets);

■■ detailsofevacuationplansoperatedbyothers;

■■ issuesregardingthelonger-termrecoveryofpeople,suppliesandservices;

■■ issuesregardingtheevacuationandshelteringofpets,welfareoflivestockandzoos;

■■ amethodoftrackingdisplacedpeople,distributionofsuppliesandservices;and

■■ theneedsoffaith,religious,culturalandminorityethnicgroupsandcommunitiesandforeignnationals.

Therelevantlocalauthorityteamwouldidentifythemostappropriaterestcentres.Reception/restcentresshouldbemarkedontheappropriatemapinyourplan.

Forfurtherguidanceonevacuationplanning,refertotheEvacuation and Shelter Guidance(2006)ontheUKResilienceWebsite.

Figure12.20isanexampleofbasicevacuationandshelteringarrangements.

Figure 12.20:ExampleEvacuationandShelteringArrangements(adapttosuitlocalarrangements)

Reception / rest centres / shelter

Community being evacuated

Potential no. of evacuees (i.e. those at flood risk)

Routes and distance from evacuee rendevous point

Resources available at facility

Facility contact number / key holder

O/S Grid Reference

HexhamSchool

RiversEstate

MainStreet

RiverRoad0.5miles

MainStreet1mile

Shelter,catering,food&blanketsfor200,12toilets,Telephones,25carspaces2kennels,2mini-busesonsite

(BusCoA:01911111111)

077770777777(JoBloggs)

Refertomap(addcrossreference)

BlythSportsCentre

UpperBlyth

LowerBlyth

BlythStreet1mile

NorthStreet1.5miles

Shelter,catering,food&blanketsfor500,32toilets,Telephones,45carspaces0kennels,3busesonsite

(BusCo.B:01912222222)

077770777777(JohnSmith)

Refertomap(addcrossreference).

PlanningassumptionsforevacuationneedtobeagreedwithinyourLRF,onthebasisofnationalguidance,andincludedwithintheMAFP.Forexample:

Evacuationandemergencyshelteringandaccommodation:Aslittleasonehourwarninggiventoemergencyservicesforevacuation.AssumesX%ofpeopleleavetheareaspontaneouslyandstaywithrelatives/friends(includesholidaymakersleavingtheaffectedareatoreturnhome);Y%useavailablehotelsinsafeareas(touristsarevacatedtogiveroomstolocalresidents);Z%needassistedshelteringforupto6months.

Intheeventofevacuationbeingnecessary,youwillalsowanttoensurethereareprocessesformarkingthosepremisesashavingbeenchecked.Indoingso,it’simportanttobearinmindthat:(a)youshouldn’tdamagetheproperty–aswellasthepotentiallegalimplications,someownerswilltakeexceptiontotheuseofpaintmarkingsontheirpremises;and(b)anymarkingswhichareusedshouldbedesignedtolimittheriskoflooting.

Examplesofrecordsthatyoumightwanttokeeparesetoutbelow.

Figure 12.21:Premisesmarking(extractedfromtheLondonFloodResponseStrategicPlan)

Premises Marking Aide Memoir

S Premisessecureandnoanswer

E Premisesenteredandchecked

O Occupantshavenotbeentraced

T Occupantshavebeentracedelsewhere

X Occupantsrefusetoleave

M Occupantsawaitingmedicalevacuation

✓ Occupantshavebeenevacuated

> Premiseshavebeenre-occupied

Markings should be:

■■ Aslargeaspossible(toassistquickobservation/identificationfromthestreet)

■■ Displayedontheleftsideofthedoor

■■ Inchronologicalorder–toptobottom

■■ Ascloseaspossibletoeyelevel

■■ Clearlyvisibletoapersonobservingthepremisesfromthefrontornormalsideofapproach

■■ Bywaxcrayonsorsimilarwaterproofmarking

Figure 12.22:ExampleofaCheckedRecord

FLOODING INCIDENT – PREMISES CHECKED RECORD

LOCATION Use rear of form for any additional information like

babies/infants, pets, guide/hearing dogs, walking aids,

non English speaking etc.

Town/Sector(Area of search): TomTownTT12AB

Street of Multi-occupancy

Premises Checked:

SamStreet

Date/Time Checked: 10/10/10/18.30

Team Ref./Officer Completing: ATeam/MrT

Property

No. or

Last Marking Symbol on

Premises or ‘None’

OCCUPANTS

Number in

premises

Names Vulnerable Status

Gransden None 2 MrHarryBrown

MrsLillyBrown

Y-blind

44 S 3 MrDavidJones

MrsTinaJones

MissLauraJones

Recovery

Thissectionshoulddescribehowtherecoveryfromafloodincidentistobemanaged.

National Recovery Guidance(includingaRecoveryPlanGuidanceTemplate,detailedTopicSheets,andCaseStudies)hasbeenpublishedontheUKResiliencewebsite,anditisrecommendedthatthisguidanceisusedtohelpcompletetherecoverypartofyourMAFP.Ifthereisnoexistinggenericrecoveryplan,thenthefloodplanshouldoutlinethearrangementsformanagingtherecovery,bothshortandlongterm.

TheNationalRecoveryGuidanceprovidesadviceonhowtherecoveryphasecanbeco-ordinated(includingthehandoverfromresponsetorecovery).ItalsoincludesadraftTermsofReferenceforaRecoveryCo-ordinatingGroupandsuggestionsonsub-groupstructures.

TheRecoveryCo-ordinatingGroupwillneedtoprioritisethevariousneedsidentifiedbyeachsub-groupandallocateresourcesappropriatelysothatthecommunityreturnstonormalityassoonaspossible.Commonissuesfollowingfloodinginclude:

■■ cleanupandwastedisposal;

■■ repairstopublicassets/infrastructure–schools,buildings,roads,bridges;

■■ restorationofpower,communicationsandwater;

■■ domesticandbusinessinsuranceissues;

■■ displacedbusinesses;and

■■ humanitarianassistanceneedsincludinghomeless/displacedresidentsandpsychologicalimpacts

DetailedTopicSheetsonalltheseissuescanbefoundintheNationalRecoveryGuidance.

Training and exercising

ThissectionshouldincludethetrainingneedsandascheduleoftrainingforallorganisationsinvolvedintheoperationofyourMAFP.Figure12.23isamodeltableforthis.

Itisessentialtotrainrespondingofficersintheirrolesandresponsibilitiesbeforetheyneedtousetheplanduringanexerciseoranactualevent.Exercisesaimtovalidatetheplans,trainstaffandtestprocedures.Suchexercisesmaybeinternal,ortiedintoothermulti-agencyexercisesorganisedbytheLocalResilienceForum.Theyshouldconfirmtherolesandresponsibilitiesofrespondingagencies,aswellastheadequacyofcommunications,resourcesandequipment.Itmaybehelpfultoinvitenon-technicalobserversand/orcommunitygroupstoattendtheseexercises.

Itisrecommendedthatexercisingthisplanatoperationalandstrategiclevelsisundertakenwheneverthereisamajorrevision,oratleasteverythreeyears.

PleaserefertotheExercise Planners Guideforfurtherinformationonexercisingyourplans.

Figure 12.23:ExampleTrainingandExerciseSchedule

Organiser Title of exercise

Type Date Relevant lessons or link

SSmith

EmergencyPlanningUnit

Waterworks Tabletop 01/07/2006 Requirebettercommunicationbetweenrespondingagencies–refertonewmulti-agencyplan

PEvans

EnvironmentAgency

Waterside Discussion 09/09/2007

NJenkins

Fire&Rescue

Waterwheel Live 06/10/2008

JJones

Police

Watercress ControlPost 14/02/2009

Plan Sign Off and Revision

Allorganisations/departmentsthatcontributetotheplanshouldapprovetheMAFPandfinalsignoffshouldbeagreedbytheLRFasamulti-agencygroup.Thesameorganisationsthathavecontributedtotheplanshouldalsocommittoreviewingandupdatingtheplan-asandwhennecessaryand,ideally,atleastannually-tomakesureeverythingisstilluptodateandrelevant.

ConstructingandmaintainingyourMAFPisacollectiveresponsibility.Responsibilityforupdatingtheplan,however,oftensitswiththelocalauthorityorPoliceEmergencyPlanningUnit.TheLRFshouldensurethereisclarity–and,wherenecessaryamandate–sothatindividualsororganisationsknowthattheyhaveprimaryresponsibilitytomaintainandupdatetheplan.

Important records to maintain

TherearesomekeyrecordsthatneedtobemaintainedinorderforyourMAFPtoremainup-to-dateandusable.

Contact details of key personnel

Whereaseparatecontactsdatabaseordirectoryisnotavailable,yourMAFPshouldincludealistofkeyinternalandexternalcontacts.Jobtitles,asopposedtoindividuals’names,willmakeiteasiertokeeptheplanup-to-date.

Figure12.24showsanexamplecontactlistwitharelativelysmallamountofdetail.Figure12.25showsamorecomprehensiveexampleadaptedfromtheMulti-AgencyResponsePlanforFloodinginCumbria(2006).

Figure 12.24:ExampleContactDetailsofKeyPersonnel(placeDept/Organisationinalphabeticalorder)

Department / Organisation

Post title Contact number Secondary contact (name / number)

Electricity

Environment Agency

FloodIncidentManagementTeamLeader

4445689 Incidentroom5697856

Highways HighwaysManager

2364578

07777777777

Deputy2364577

07777777778

Police DutyInspector 4785623 IncidentRoom3951687

Social Services DutyOfficer 2368989

07776666666

DutyOfficer2368989

07776676677

Telephone

Figure 12.25:Exampleofcontactdetails,adaptedfromtheMulti-AgencyResponsePlanforFloodinginCumbria(2006)

Organisation Name NaydonCouncil Date & Issue No. 21/07/07No.1

Address NaydonHouse,

Naydon,

NA45TG

EventContactDetails DutyOfficercontactedon07777777777

Noneventcontactdetails EmergencyPlanningDepartment0191222555

EventRole Inaccordancewithroledefinedinthisplan

EventResponsibility Asabove

MajorIncidentPlaninvokedwhen: Propertiesareaffectedand/ordangertopublic

PRhandling RefertoGenericCommunicationPlan

Response

FloodWatch Situationnoted,operationalstaffadvised

FloodWarning Triggerlevelsinspected.Contractorcalloutasnecessary

SevereFloodWarning Actionasappropriate

AllClear Actionasappropriate

Actionsdeployedpostevent Communitycleanupteamresponsibleforpostevent

Available resources

Sandbags 200filled,2000unfilledinNaydonDepot

Staff 2initially,increasingto8

Other 2cars,2vans

Availabilitytoprovidecross

boundarysupport

HaveprovidedsandbagstootherCouncilsinthepast

Personresponsiblefor

maintainingform

MrFSmith–EmergencyPlanningDepartment

Location of control centres

Wesuggestthatthefloodplanshouldidentifythetriggersforopeningcontrolcentres,andtheirlocationsincluding:

■■ EnvironmentAgencyincidentrooms;

■■ localauthoritycontrolcentres;

■■ multi-agencyoperational(Bronze)rendezvouspoints;

■■ multi-agencytactical(Silver)commands;and

■■ multi-agencystrategic(Gold)commands.

It’sobviousthatcontrolcentresshouldnotbelocatedinfloodriskareas,butmistakeshavebeenmadeinthepast.Andyoushouldconsiderwhethertheproposedbuildingreceivespowerfromutilitieswithinthefloodplain,orreliesontelecommunicationshubsthatmaybevulnerable.Youmaywanttoidentifyacontingency(back-up)facilityincasetheprimarylocationisnotfitforuseduringaflood.

YourMAFPshouldincludeallthenecessaryinformationtofindandgainentryintothecontrolcentres,forexample:

■■ address(includethepostcodeforeaseofusewithsatellitenavigationsystems);

■■ telephonenumber;

■■ keyholderinformation;

■■ accessdetails;

■■ securityinformation(i.e.fobs/securitycodes);and

■■ parkingarrangements.

Itmayalsobeusefultohaveagrabbagcontainingresourcesthatwillbeneededbyofficersattendingthecommand/controlcentres.

Resource availability

Thefollowingisanexamplelistofarecordofthesortofresourceswhichmaybeavailablefromorganisations/agenciesincludedwithintheMAFP.Itisnotintendedtorecordspecificnumbersorvolumes,butprovidesarecordofwheretogoifspecificresourcesareneeded.

Figure 12.26:Resources

Resource Who / Where Contact Number

Sandbags Localauthority,EnvironmentAgency

Boats FireandRescueService,LocalAuthority,CoastGuard,EnvironmentAgency

Pumps Fire,LocalAuthority,EnvironmentAgency

Transport EnvironmentAgency,LocalAuthority,Police,Fire,Ambulance

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