Integration of Flood Risk Management in Land Use Plans

Transcription

1 Integration of Flood Risk Management in Land Use Plans Dipl.-Ing. Rudolf HORNICH Styrian Federal State Government Department 19 B Flood Control and Managment

2 Development of settlements City of Graz, Austria, development of settlement area

3 Development of settlements Dynamic development of municipalities in Alpine areas due to tourism and economic growth, also in areas endangered by natural hazards. An enormous increase of damage potential in hazardprone areas took place within the last decades. source: Rudolf-Miklau

4 Development of settlements Austria: Available living space Building Stock 1951 usable usable settlement settlement area area Building Stock th EWA Source: Brussels Conference,, 6 Nov Conference WIFO (2009)

5 Development of settlements Austria: Available living space usable settlement area

6 Increasing impact on areas settlements infrastructure agriculture leisure Space needed for forestry tourism industry n. conservation source: K. Michor

7 Extreme floods and river morphology (..rivers need space) Trisanna, Galtür, Austria, 2005 Habersack & Krapesch, 2006

8 Extreme floods and river morphology Width change: factor 3,47 Length change: 1 % 100 width [m] Breite [m] Width after Umlagerungsbreite stream Flusslauf course ursprüngliche Width before Flussbreite Habersack & Krapesch, 2006 Missing space for large scale events Rivers need space

9 Development Space for rivers in case of floods

10 Development 1st step: river training 2nd step: infrastructure roads cycling lanes telecommunication sewers pipelines Little consideration to the infrastructure measure flood protection

11 Development 3rd step: flooding 4th step: flood protection + management Land use planning?

12 Excessive load - River Engelberger Aa (CH) flood corridor capacity: HQ100 excess discharge Swiss Air Force Integrated Flood Management source:a. Götz

13 Integrated flood management Protection of human lives Protection of natural resources Protection of waterbodies Mitigation of material damage Provision for reconstruction and restart Sustainability of measures Take necessary protection Promote awarness Coordinate planning by the public authorities Ensure adequate use through spatial planning

14 History of flood events (Götz-safeprotec09) 100 years with very few XL-events 2007 Nature Manmade? source: A. Götz

15 Living space has become highly vulnerable Trend Events Damage potential costs Reach and keep a protection level Financial resources Availability of space Time

16

17 Flooding 18 July 2009

18 Austria 2002

19 Austria 2005 Flood Disaster August 2005: Styria, Tyrol and Vorarlberg

20 Austria 2009 Summer 2009 Styria

21 Flood risk management in local planning The flood events 2009 have demonstrated, that it is vital even in small river basins to take flood discharge areas into consideration in land use planning. At the European level, matters pertinent to spatial planning have been transferred to the Member States. However, environment-related directives, such as the Water Framework Directive and the Floods Directive, do include a strong focus on spatial planning. Austria does not have a federal law in its own right governing spatial planning. Spatial planning falls within the competence of the Länder and is thus a federalist task. Accordingly, there are nine different regional laws governing spatial planning. The coordinating body is Austrian Conference on Spatial Planning (ÖROK).

22 Instruments of Land Use Planning in Austria State level: policy making and implementation of land use planning issues with supra- local importance State development plan Sectoral programme Regional (development( development) programme Community level: implementation of land use planning issues with local importance Local development concept Local land use plan (zoning( plan) Building (regulation)) plan source: Seher

23 Regional Planning Currently there are no legal obligations concerning risk prevention in regional (development) plans Risk related zoning in regional plans is not excluded by law In practical implementation measures of risk prevention are no main issues in regional planning source: Seher GIS Steiermark, 2007

24 Flood risk management in local planning Example for consideration of hazard map in land use plans: In Styria, the regional parliament adopted a Regulation on Flood- Protected Development of Settlement Areas in the wake of the flood events in This sectoral programme defines legally binding rules for risk related zoning on community level (restrictions and exceptions) This government regulation pursues the following objectives: Minimising the risk by lowering the damage and hazard potential Maintaining and improving the conditions and areas for water retention Keeping areas clear in an anticipatory approach rather then taking subsequent remedial action

25 Flood risk management in local planning At all events, the following zones must be kept clear: HQ100 discharge areas Red hazard zones as defined by the Austrian Service for Torrent and Avalanche Control Areas which are particularly suited for flood protection measures ( reserved areas ) Riparian strips of at least 10m in width

26 Flood risk management in local planning Land use plan with flood plains and hazard zones

27 Flood risk management in local planning Since 1975, the preparation of hazard zone maps for torrent watersheds has been governed by the Forestry Act. According to the Austrian Water Act, any building or structure which is situated in an HQ30 discharge area is subject to an approval Problems: Municipalities often fail to acknowledge the results of discharge studies and of hazard and risk maps for the development of settlements and for the designation of building land and regard them to be an impediment. Consideration of flood discharge areas and floodplains in spatial planning dynamic processes and vulnerable zones collide with existing laws. Changes and adaption lead to compensation, loss in asset, liability.

28 Land Use Planning and Hazard Information Land use planning instruments are usually revised periodically, e.g. update of local land use plans after 5-10 years Different regulations concerning revision of local land use plans as a result of updated hazard information In Austria hazard maps are considered as qualified expert opinions, they are not legally binding for land use planning unless there is special reference in the respective land use planning law

29 Directive 60/2007/EC With the European Directive on the Assessment and Management of Flood Risk (Directive 60/2007/EC), the preliminary evaluation of flood risks and, based on this, the drawing up of hazard and risk maps is provided with a regulatory framework which is applicable to all Member States. It provides a sound basis for future spatial planning policies. In Austria, the legal conditions for transposing the Floods Directive into national law are currently being elaborated. Work on the preliminary assessment of flood risk has already made very good progress. Areas exposed to significant flood risk are designated based on a set of significance criteria, using the inundation areas in HORA, a system developed in Austria in 2005 jointly by the Federal Ministry of Agriculture and Forestry, Environment and Water Management (BMLFUW) and the insurance industry. HORA enables the assessment of flood risks for settlement areas throughout Austria based on a standardised calculation method and can be accessed by every citizen via the internet (

30 Directive 60/2007/EC (preliminary flood risk assesment) (

31 Vulnerability / Damage potential Analysis using HORA Number of buildings Worth in Mrd.

32 Directive 60/2007/EC Implementation in Austria For spatial planning purposes and for incorporating inundation areas into land use and zoning plans the more detailed data from discharge studies gathered by water management are being relied upon. Preparing hazard and risk maps was started in Austria several years ago. Styria has established maps showing inundation areas for recurrence periods of 30, 100 and 300 years. Inundation areas are determined via two-dimensional discharge calculations based on digital elevation models and topographic surveys performed with laser scan technology. The inundation areas which have been determined in this way are transferred to the land use plans. From a legal point of view, the results are equivalent to an expert opinion. Based on the inundation maps, fundamental flood protection measures are proposed.

33 Hydraulisches 2D Modell Neudau

34 Hazardmap LEGENDE: Flutungsfläche HQ30 Flutungsfläche HQ100 Anschlaglinie HQ300 Betroffene Gebäude 5th EWA Brussels Conference, Conference, 6 Nov. 2009

35 Risikmap Überflutungshö berflutungshöhe bei HQ100 Klasse Objekt > 50m² 50m² < 0,3m 0,3-0,7m 0,7-1,5m > 1,5m WirtschaftsWirtschafts- und Nebengebä Nebengebäude EinfamilienEinfamilien- und Reihenhaus IndustrieIndustrie- oder Gewerbeobjekt Versorgungsobjekt (auch wenn < 50m² 50m²) Mehrfamilienhaus und öffentliche Gebä Gebäude LEGENDE: Gebäude mit mäßigem Hochwasserrisiko mittlerem Hochwasserrisiko hohem Hochwasserrisiko 5th EWA Brussels Conference, Conference, 6 Nov. 2009

36 Measures LEGENDE: HW-Schutzmaßnahme HQ 100 Projekt Restrisikofläche

37 Working Group on Floods (WGF) Workshop Flood Management in Local Planning April 2008 A/SLO 60 participants from 20 nations, 18 MS+ N, HR

38 WGF - Workshop Flood Management in Local Planning Main results: Information, communication and participation are the keys to successful flood management Raising the public awareness for flood risks Clear separation between private and public responsibilities are necessary Closer collaboration between flood management and land use planning is necessary Funds for the implementation of measures are frequently lacking innovative financing concepts need to be developed, provision of necessary funds FRM in urban Different approaches in FRM - urban and rural areas

39 WGF - Workshop Flood Management in Local Planning Main results: Technical issues are generally handled well, the necessary legal basis is still lacking in many instances (especially on the field of land use planning) Wish for a guidance document on the interpretation of the FD was expressed According to climate change there are to great uncertainities are connected to this issues for reliable statements (not handled in detail) Considerable differences in the level of implementation of the FD in the individual MS More Land Use Planner should participate at the next WS

40 WGF - Workshop Flood Management in Local Planning Questionnaire: Are there gaps between LUP and FRM in local planning in your country? 90% - YES Reasons: Different legal bases and different competencies - 36% No consideration of flood risk in local planning (flood studies are not taken into account) - 21% Different planning standards - 21% Funding - 15% Flood risk is played down by demands for development and due to a weak legal basis -7%

41 WGF - Workshop Flood Management in Local Planning Field trip to good practice exambles in A/SLO

42 Best practice examples for integration of Flood Risk Management in Land Use Plans After the big floods of the past decade several spatially relevant programmes with a major focus on spatial planning have been started for Europe s large river basins such as the Rhine, the Danube and the Elbe

43 Best practice examples for integration of Flood Risk Management in Land Use Plans PLANALP Platform on Natural Hazards of the Alpine Convention Promotion of international exchange of experience 1 Risk dialogue 2 Adaptation to climate change 3 Residual risk 4 Land use

44 Recommendations PLANALP Platform on Natural Hazards of the Alpine Convention 1. Integrated approach 2. Dialog on risk 3. Concepts insesitive to excessive load 4. Respect natural hazards in land use planning 5. Periodical cheques of risk situation and protection measures 6. Production of acurate hazard and risk maps

45 Challenges Land Use Planning Focus on risk prevention in flood risk management plans calls for instruments of land use planning Improvement of legal links between hazard mapping and land use planning: obligatory consideration of flood hazard maps in land use planning Increasing demand for implementing measures of flood risk prevention into land use planning on regional level Integration of vulnerability information into land use planning

46 Challenges Flood Risk Management Safety for everyone and everything is impossible Vulnerability has increased enormously Pure defence against hazards is no longer the only issue Certain risks hve to be accepted dealing with residual risk Be prepared for the unexpected Enhance public awareness for flood events Grant more space for the rivers Adaptation

47 Closer cooperation between flood risk management and land use planning Thank your for your attention! There s no need! Will I have to tear down my house? The next flood will do it for sure! source: GRAWE