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  • 8/3/2019 J Porter Intro FrameworkPrinciples_revised

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    A Framework for

    Flood Risk ManagementAn Introduction

    Dr John Porter

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    A good place to start if we want to prepare a

    strategic framework for managing flood risk is

    to define flood risk.

    What is flood risk?

    There is no one definition of flood risk, but one that

    proves very useful for a strategic framework is

    RISK = HAZARD x EXPOSURE x VULNERABILITY

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    RISK = HAZARD x EXPOSURE x VULNERABILITY

    Exposure

    Even where a hazard exists,there is no risk unless there areassets that can be damaged,

    or there is danger becausepeople live in, work in, orsimply transit through thelocation of flood hazard.

    Exposure to flood hazard createsthe potential for personaldanger or property damage tooccur during floods.

    BRISBANE, AUSTRALIA

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    RISK = HAZARD x EXPOSURE x VULNERABILITY

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

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

    after floods.

    FUZHOU, CHINA

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    Defining flood risk as

    RISK = HAZARD x EXPOSURE x VULNERABILITY

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

    (reducing) one of these 3 key elements of risk.

    MODIFYING HAZARD

    Flood control dams

    Detention basins

    Levees or dikes

    Flood diversion channelsRiver channelimprovements

    Upper watershedmanagement

    MODIFYING EXPOSURE

    Zoning of land use

    Property acquisition

    Planning development

    controlsBuilding codes

    Flood-proofing buildings

    Building on platforms orstilts

    MODIFYING VULNERABILITY

    Flood monitoring and warning

    Flood forecasting

    Emergency response plans

    Community awarenessCommunity preparedness

    Post-flood recovery &reconstruction

    Flood insurance

    STRUCTURAL NON-STRUCTURAL

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    This involves land management in addition to water

    management.

    In normal circumstances there is a clear division

    between water and land. Water is contained within

    rivers, lakes and other water bodies.

    During floods, the water regime expands to

    temporarily inundate land which most of the time

    can be used for productive purposes.

    Therefore, unlike other aspects of water resources

    management, flood risk management must embrace

    both land use management and water

    management.

    RISK = HAZARD x EXPOSURE x VULNERABILITY

    NOTE ABOUT Exposure to Flood Hazard

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    NOTE ABOUT Vulnerability

    Many have identified that communities are more vulnerable

    to flood risk if there is greater poverty, in

    communities with low standards of education,

    and in societies with poor governance.

    RISK = HAZARD x EXPOSURE x VULNERABILITY

    INDUS RIVER, PAKISTAN

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    Vulnerability or susceptibility

    This is true. Programs aimed at reducing poverty and

    improving education and political governance will reduce

    vulnerability and flood risk. However, we can introduce anew category for these issues and regard them as issues of

    Susceptibility rather than Vulnerability. They are different

    because they deal with the ills of society as a whole, are

    less specific to flood risk as they affect many other aspects

    of community life too. And in that sense, although they are

    relevant to management of flood risk, they are not proper

    undertakings for flood risk management alone.

    RISK = HAZARD x EXPOSURE x VULNERABILITY

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    Comprehensive flood risk management must

    therefore consider treatment of all three elements

    of flood risk:

    HAZARD

    EXPOSURE

    VULNERABILITY

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    Consideration of flood risk as the product of

    Hazard x Exposure x Vulnerability

    only deals with what we do to manage flood risk.

    A strategic framework for flood risk management

    must also consider how we organize and how we

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

    on the environment and the community.

    Therefore, other important dimensions of a strategicmanagement framework are:

    INSTITITIONAL FOUNDATION

    PLANNING METHODOLOGY or STRUCTURE

    EXOGENOUS IMPACTS (social & environmental)

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    INSTITUTIONAL FOUNDATION

    LEGISLATION

    POLICY

    ORGANIZATIONAL

    STRUCTURE

    INSTITUTIONAL

    CAPACITY

    FUNDING

    EDUCATION &

    PROFESSIONALTRAINING

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    INSTITUTIONAL FOUNDATION

    Typically, responsibilities

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

    b e t w e e n a g e n c i e sd i r e c t e d t o w a r dc o o r d i n a t e d m a n a g e m e n to f f l o o d r i s k i s o n e o ft h e g r e a t e s t i n s t i t u t i o n a lc h a l l e n g e s .

    WROCLAW, POLAND

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    PLANNING METHODOLOGY

    A well structured method is recommended to capture the

    strengths of integrated flood manage-ment through:

    rigorous technical analysis,

    comprehensive assessment of planning options,

    appraisals based on the triple bottom line of

    sustainable development (economic viability, social equity

    and environmental acceptability),

    benefit-cost analysis and

    stakeholder participation.

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    CONSULTATI

    ON

    PROCESS

    PRELIMINARY PHASE

    Identify & Quantify Flood Riskestimate hydrological riskhydraulic model analysismap existing flood hazard & land use

    TECHNICAL ANALYSIS

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

    Appraisal of Impactseconomic analysistangible & intangible social benefits / disbenefits

    environment

    adverse impacts & opportunitiesrobustness, resilience to future uncertainty

    APPRAISAL PHASE

    Recommend Preferred Optionrefine analysis; examine assumptionsdocument plan

    FLOODMANAGEMENT PLAN

    APPROVAL

    IMPLEMENTATION

    Define Management Objectivescollect data

    Understand Planning Contextpopulation characteristicsproperty & infrastructureinstitutional arrangementsplanning instruments

    PLANNING

    METHODOLOGY

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    PLANNING

    METHODOLOGY

    PLANNING component of the framework

    Structured Planning Methodo Definition of management objectives start with desired

    outcomes, not a proposed solution

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

    o Identification & quantification of flood risk: technical analyseso Identification & consideration of alternative ways to manage the

    flood risk different options comprising packages of FMmeasures

    o Appraisal of impacts economic, social & environmental benefits& costs

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

    o Stakeholder participation opportunity for consultation at eachstep of the process

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    PLANNING METHODOLOGY

    RIVER BASIN MASTER PLANS

    SUB-BASINMASTER PLANS

    e.g. - tributaries

    - river reaches(over several localgovt jurisdictions)

    -lake / wetland

    complexes

    URBAN DRAINAGE

    MASTER PLANS

    for internal drainageof cities to mitigateurban flooding

    RURAL DRAINAGEMASTER PLANS

    to mitigatewaterlogging ofagricultural land

    PROJECT PLANNING

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

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    EXOGENOUS

    IMPACTS

    SAFEGUARDS & SUSTAINABILITY

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

    examined and assessed.

    Environmental impacts may includeunintentional but foreseeableimpacts on the physical

    environment, or on the biosphere.

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    EXOGENOUS

    IMPACTS

    Safeguards:

    Environmental protection safeguards

    Location and storage of hazardous materials

    Involuntary resettlement social safeguards

    Indigenous peoples social safeguards

    Assessments of the social implications for

    gender (womens issues)

    Assessments of social implications for disabled,

    infirm or disadvantaged persons

    Locations of strategic community services

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    INSTITUTIONAL FOUNDATION

    PLANNING

    FLOOD HAZARD

    EXPOSURE

    VULNERABILITY

    Flood Control Works

    Structural planning & design

    Asset maintenance:

    monitoring condition

    rehabilitation /upgrading

    funding

    Operations:decision support systems

    communications systems

    data acquisition networks

    integration with WR management

    env.management

    Catchment ManagementSoil conservation

    Upland land use management

    Land Use Management

    flood hazard zoning

    land use planning controls

    property acquisitions

    resettlement

    Flood forecasting

    hydrological models

    hydraulic models & DTMs

    flood hazard maps

    data acquisition networks

    Flood warning & emergency response

    communications systemspreparedness exercises

    decision support systems

    Post-flood recovery

    support services: health, counseling

    material support: food, shelter

    infrastructure repairs

    financial assistance & incentivescompensation / flood insurance

    Land Use Management

    building regulations

    River basin master plans

    Project proposal planning & appraisal: risk assessment: appraisal of alternative options

    Planning for emergency responsePlanning for post-flood recovery

    Urban drainage master plansRural drainage master plans

    Partnerships: across levels of government Restructuring: enhancing coordination

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

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    ENVIRONMENTAL

    SAFEGUARDS

    SOCIAL

    SAFEGUARDS

    GENDER

    ISSUES

    INDIGENOUS

    PEOPLES

    SAFEGUARDS

    COMMUNITY CONSULTATION

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    Key requirements to make it effective are

    LEGISLATION THAT CLEARLY DELEGATES ROLES ANDRESPONSIBILITIES

    A KEY COORDINATION ROLE MANDATED FOR ONE LEADAGENCY IN FLOOD RISK MANAGEMENT (or DISASTERRISK MANAGEMENT) WITH STRONG POWERS TOOBLIGE PARTICIPATION BY ALL STAKEHOLDERS INJOINT PLANNING

    BROADER STAKEHOLDER PARTICIPATION THROUGHCOMMUNITY CONSULTATION DURING THE PLANNINGPROCESS

    There is the strategic framework for flood risk management.

    A sound institutional foundation is of crucial importance.

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    THANK YOU

    THE END

    MANILA PHILIPPINES