Bolton s Flood Risk Management Strategy

Transcription

1 Bolton s Flood Risk Management Strategy Ringley Old Bridge over the River Irwell; built It replaced a previous bridge lost in a flood in 1673.

2 Revision History Revision Ref Amendments Issued to: Version 1, 20/02/13 Draft Report Consultation: Council members, Council Officers, United Utilities and Environment Agency Version 2, 23/05/13 Incorporation of comments by United Utilities & Post Consultation amendments Version 3, 05/07/13 Addition of culvert policy, and comments from Canal and River Trust. Amendments following Flood Re announcement. Copyright 2013.

3 Bolton s Flood Risk Management Strategy Foreword by Councillor Nick Peel: The risk of surface water flooding coupled with the predicted changes in climate present challenges we need to prepare for. Flooding when it occurs results in high economic losses, disrupts business and can hit communities hard from which they sometimes struggle to recover from. Through warning and informing the community, making sure development is appropriate for its location, flood defences and watercourses are maintained, we can prevent flooding being worse than it would otherwise be. We will work with our local partners and developers to build drainage systems that are environmentally, economically and socially sustainable.

4 Executive Summary There have been recent developments in the role and responsibilities of upper tier local authorities in managing flood risk. The commencement of the Flood Risk Regulations 2009 and the Flood and Water Management Act 2010 introduces new statutory roles for. The Flood Risk Regulations adopts a new institutional structure for the management of flood risk. The management of local flood risk, involving flooding from surface water, ordinary watercourses, groundwater, canals, lakes and small reservoirs, is now the responsibility of Lead Local Flood Authorities such as. The Flood and Water Management Act places new responsibilities on, the main ones being: Locally leading on flood management. Mapping and registering flood defence assets including those in private ownership. Designating third party assets. A duty to investigate the causes of flooding. The technical approval body for Sustainable Drainage Systems (SuDS). The management and maintenance of adopted SuDS systems. must develop, maintain, apply and monitor a strategy for local flood risk management in its area for the following forms of flood risk: surface runoff groundwater and ordinary watercourses This strategy sets out how will take on the challenges posed by flood risk by setting local objectives and stating how these will be achieved. It also reflects the needs and priorities identified by local people, business and flood risk partners. The strategy sets out: The risk management authorities in Bolton. The flood risk management functions that may be exercised by those authorities in Bolton. The objectives for managing local flood risk. The measures proposed to achieve those objectives. How and when the measures are expected to be implemented (see appendix D) The assessment of local flood risk for the purpose of the strategy. How and when the strategy is to be reviewed. How the strategy contributes to the achievement of wider environmental objectives.

5 Contents Page No. 1. Introduction 1 2. Legislative Context 5 3. National Strategy Guiding Principles of the Local Strategy Flood Risk Future Changes to Risk Wider Social Economic and Environmental issues Local Flood Risk Management Strategy Flood Risk Management Planning and Funding Local Strategy Policies Local Flood Risk Strategic Objectives Flood Risk Management Measures and Delivery Actions Future Progress 66 Glossary Appendices A What are Sustainable Drainage Systems (Suds) 74 B References / Evidence Base 80 C Culvert Policy 82 D Draft Action Plan 89

6 Figures Figure 1.1 Figure 3.1 Figure 5.1 Figure 5.2 Figure 5.3 Figure 5.4 Figure 5.5 Figure 7.1 Figure 7.2 Figure 7.3 Figure 7.4 Figure 8.1 Figure 8.2 Figure 8.3 Figure 8.4 Figure 10.1 Map of main rivers Managing the risk of flooding Map of the Bolton Area Bolton s hydrological connections with other areas. The Greater Manchester Flood Risk Area. Plan showing areas susceptible to groundwater flooding. Plan showing large raised reservoirs that could potentially affect Bolton. Local areas that are the most 20% deprived in England and surface water flooding hotspots Plan of Agricultural Land Classifications Hydrological connections between river outflows in Bolton and SPA and SAC sites in the Ribble and Alt, and Mersey estuaries. Designated Environmental Sites in Bolton Example data from the GM SWMP The asset management cycle Regional and Local Governance Organogram Local Governance - Flood Management Structure Organogram. AGMA Investigation policy Tables Table 5.1 Table 5.2 Table 9.1 Size of the Drainage Network Bolton - Key Property Flooding Risk Data Relevant Flood Risk Plans

7 1.0 Introduction Bolton s Flood Risk Management Strategy is an important instrument to help our community understand and manage flood risk. Its focus is on flooding due to heavy rainfall, groundwater, and from small streams and ditches. It outlines our approach to reducing the risk of flooding, and its associated misery and economic damage, in a sustainable way. Flooding is a natural phenomenon, the adverse consequences of which can be exacerbated by poor management of the landscape and the environment, such as inadequate and irregular maintenance of watercourses. The problems of flooding can be made worse if we fail to properly address managing this risk. In England in 2009, around 5.2 million - that s one in six residential and commercial properties were identified as being in areas at risk of flooding from rivers, the sea and surface water. Around 1.1 million properties are in areas that would be at risk of flooding if a nearby reservoir failed. 1 Flooding by its very nature is often unpredictable in location and severity. Dealing with uncertainties that are effectively out of our control can be challenging. However, flood risk is something that can be understood and its effects are generally predictable. This means that the impacts can be mitigated, up to a point, and response and recovery can be more effective and efficient. The form of flooding we are most familiar with is from rivers overtopping their banks. Another common form is flooding along coasts from high tides and storms. Less well known and understood is rainfall related (pluvial) flooding which occurs following intense downpours that overwhelm drainage systems or when it cannot infiltrate into the ground quickly enough resulting in overland run-off. These types of floods can occur with little warning and in areas not obviously prone to flooding. Pluvial flooding is also more likely to occur in urban areas due to predominance of impermeable surfaces and the density of buildings. To illustrate surface water flooding risk, a report by the insurer AXA 2 showed that in 2007, 75% of their flood claims were as a result of surface water and in the Cumbrian floods of November 2009 less than a third of flood claims were in a designated high flood risk region. 1 Defra National flood and coastal erosion risk management strategy for England. 2 AXA The True Cost of Flooding November

8 Recent experience in the UK has shown the effects of large-scale flooding in central and eastern England during summer 2007, Cumbria in 2010, and many other occurrences in previous years. People often base their perception of flood risk on personal experience or intuition which can often deceive. Flood victims often say that they have lived in a location nearly all their lives but have not seen anything like it before. This is largely due to the infrequent nature of very large flooding events, of which people often have no experience and which may not occur in a person s lifetime. However, when such events occur, such as in the summer of 2007, they can lead to devastating and widespread economic loss, large-scale social disruption and have negative impacts on people s lives that can last many years. It is estimated the flooding in 2007 cost the economy 3.2 Billion 3. In 2012, the Department for Environment Food and Rural Affairs (Defra) published a report 4 assessing the future risk in the UK from climate change. The assessment reviewed the evidence for over 700 potential impacts of climate change in a UK context. Detailed analysis was undertaken for over 100 of these impacts across 11 key sectors, on the basis of their likelihood, the scale of their potential consequences and the urgency with which action may be needed to address them. Of the highest ranked threats identified, the top 5 all related to flood risk, those 5 threats are: 1. Increase in Expected Annual Damage to residential property due to flooding. 2. Ability to obtain flood insurance for residential property. 3. Effects of floods/storms on mental health. 4. Insurance industry exposure to UK flood risks. 5. Increased number of residential properties at significant risk of flooding. The report states that flood risk is projected to increase significantly across the UK. Increases in the frequency of flooding would affect people s homes and wellbeing, especially for vulnerable groups (e.g. those affected by poverty, older people, people in poor health and those with disabilities), and the operation of businesses and critical infrastructure systems. Annual damage to UK properties due to flooding from rivers and the sea currently totals around 1.3 billion. For England and Wales alone, the figure is projected to rise to between 2.1 billion and 12 billion by the 2080s, based on future population growth and if no adaptive action is taken. 3 Environment Agency (2010) The costs of the summer 2007 floods in England Project: SC070039/R1 4 DEFRA, Summary of the Key Findings from the UK Climate Change Risk Assessment

9 Although large-scale flooding can be a once in a lifetime event and takes place over a short timeframe, the economic, environmental, and social effects on a community can be devastating and it can take many years for the community and individuals to recover. Deprived communities are often disproportionality affected by flooding as they are impacted greater by financial losses and the effect of flooding on their well-being and mental health. As a consequence of the summer 2007 floods, and previous similar occurrences, the government put in place a review of the management of flood risk; The Pitt Review. The recommendations of the review culminated in the Flood and Water Management Act This Act gives local authorities a greater role in the management of flood risk. It also creates the role of Lead Local Flood Authority (LLFA) for local authorities. The flood risk management responsibilities of the Council are limited to the following sources of flooding: Surface Water Ordinary Watercourses Groundwater 1.1 Surface Water flooding: When very intense rainfall occurs over a short period of time, water can often not get into drainage systems quick enough. This causes water to flow overland where it gathers at low spots and in hollows; this can result in flooding to properties and infrastructure. Drainage systems and watercourses can be quickly overwhelmed by rainfall which again can cause flooding when they overflow. Surface water flooding encompasses flooding from all sources due to rainfall including from canals, sewers, reservoirs and lakes. The Council is responsible for working with various stakeholders to minimise the risk from surface water flooding, this includes: working with the highway authority to deal with the risk of flooding of the highway; the sewerage undertaker, United Utilities, to reduce the risk of flooding from overflowing sewers; and other stakeholders such as the Environment Agency. 3

10 1.2 Ordinary Watercourses The Environment Agency keep a map of the rivers designated as main rivers of England (see figure 1.1 below), where watercourses are not recorded on this map they are designated as ordinary watercourses. Ordinary watercourses are normally the small streams and brooks that feed into larger rivers. as LLFA manages flood risk on ordinary watercourses, and the Environment Agency manages flood risk on main rivers. Figure 1.1 : Map of the main rivers in Bolton 1.3 Groundwater Flooding Groundwater flooding occurs when rainfall either locally or some distance away causes the natural water table in the ground to rise. In some locations in the country this can lead to surface flooding. In Bolton, this type of flooding is uncommon and mostly limited to flooding of basements or under-floor areas, although from time to time small-scale surface flooding has occurred when springs suddenly become active due to rainfall. 4

11 2.0 Legislative Context and Roles The floods in summer 2007 proved that there were significant gaps in the powers held by various bodies in trying to reduce and respond to the risk of flooding. The government s response to the Pitt Review included the Flood and Water Management Act This puts in place many of the changes recommended by Sir Michael Pitt in the aftermath of the 2007 floods, allowing for wider changes to the roles and responsibilities of the relevant bodies. Following Royal Assent in April 2010 the Flood and Water Management Bill became an Act of Parliament. As a consequence, upper tier local authorities have taken on new powers and duties extending their previous responsibilities for flood risk management. The two key drivers behind the new legislation are the review in to the summer 2007 floods by Sir Michael Pitt, most often referred to as the Pitt Review, and the other is the EU Floods Directive, which has been transposed into UK law by the Flood Risk Regulations The Flood and Water Management Act 2010 aims to provide better, more comprehensive management of flood risk for people, homes and businesses. The Act defines various bodies which are risk management authorities and lists them as the following: a lead local flood authority () the Environment Agency a sewerage utility company (In this area United Utilities) and a highway authority ( and the Highways Agency) All risk management authorities have the following new responsibilities under the provisions of the Act: A duty to cooperate with and provide information to other risk management authorities. An ability to take on flood functions from another risk management authority when agreed by both sides. 2.1 The Flood and Water Management Act 2010 (FWMA) The legislation introduces a number of new statutory bodies and partnerships, together with new duties and powers for local authorities. These are described briefly below Lead Local Flood Authority The role of local authorities is enhanced so that they take on responsibility for leading the coordination of flood risk management in their areas. The Flood and Water Management Act (FWMA) provides for this through the new role of the lead local flood authority (LLFA). In the Bolton area is the lead local flood authority. 5

12 2.1.2 Local Partnerships The role of the LLFA is to bring together all relevant bodies to help manage local flood risk. The important roles played by highway authorities and water companies are also recognised in the Act and these bodies, together with the Environment Agency, are identified as risk management authorities. The Act enables effective partnerships to be formed between the LLFA and the other relevant authorities who retain their existing powers. It requires the relevant authorities to co-operate with each other in exercising functions under the Act and they can delegate to each other. It also empowers or the Environment Agency to request information from others needed for our flood risk management functions. Locally a partnership known as the Greater Manchester Flood & Water Management Board, has been formed at a city region level with United Utilities and the Environment Agency that provides an effective structure for working both regionally and locally. Figure 2.1 : Local Flood Risk Partners and their Risk Management Functions Sea Main Rivers Reservoirs Surface Water Groundwater Ordinary Watercourses Highway Drainage Public Sewers Water Supply Flood Risk Management Strategies The Environment Agency has developed and published a national strategy for the management of all sources of flood risk for England. The Act requires each lead local flood authority to develop, maintain, apply and monitor a strategy for local flood risk management in its area. will be responsible for ensuring the strategy is put in place but the local partners can agree how to develop it in the way that suits them best. The Act sets out the minimum that a local strategy must contain, and is required to consult on the strategy with the local risk management authorities and the public. 6

13 2.2 Local Roles and Responsibilities Flooding Type Description Party Responsible for Managing the Risk Surface Water Flooding Flooding from intense downpours of rain that result in large volumes of run-off from land or when drainage systems cannot cope with the amount of rainfall. Groundwater Flooding Occurs when the ground water-table rises causing flooding. Highway Flooding Occurs when the highway drainage system or the sewers they discharge to cannot cope with the amount of rainfall entering the system, or when gully s become blocked., United Utilities, Highway Agency (Motorways) Ordinary Watercourses Flooding from intense downpours of rain that result in large volumes of run-off from land causes streams and culverts not marked on the main river map to overflow. Main River Flooding from rivers or streams on the main Environment Agency river map Reservoirs Flooding from reservoirs falling under the Environment Agency provisions of the Reservoirs Act Sewer Flooding Occurs when the amount of water entering the United Utilities sewer system exceeds its design capacity or when the system becomes blocked. Water Supply Flooding Occurs when water mains burst. United Utilities Canals Breach s of embankments supporting canals Canal and River Trust can result in flooding. Railways Flooding from intense downpours of rain that result in large volumes of run-off from land on to the railway or when drainage systems on the rail network cannot cope with the amount of rainfall. Network Rail It is the role of as the Local Flood Risk Authority to ensure the above flood risk management authorities work together to deliver improvements in flood risk management and to hold them to account. Utility providers such as, United Utilities as sewerage and water undertaker, National Grid and Electricity North West have additional responsibilities: Planning the future development and maintenance of services. Taking account of flood risk management plans in their own planning process and ensuring their assets and systems are resilient to flood risks. Ensuring the required level of service can be maintained in the event of a flood incident. 7

14 2.2.1 Other External Partners In addition to the flood risk authorities there will be many other external agencies and bodies we will need to create partnerships with to deliver the many aspects of flood risk management. The following list of partners have an input into flood response, or management of the water environment: Greater Manchester Civil Contingencies and Resilience Unit Emergency Services Highway Agency The town councils of Blackrod, Horwich, and Westhoughton. Red Rose Forest Network Rail Natural England Lancashire, Manchester and North Merseyside Wildlife Trust Land Owners and Estate managers 2.3 New Duties The FWMA introduces several new duties and powers to, these are outlined below Duty to act consistently with local and national strategies The FWMA requires local flood risk management strategies to be consistent with the national strategy in particular the guiding principles for managing flood risk set out in the National Strategy. This local strategy will build on information such as national risk assessments and will use consistent risk based approaches across different local authority areas and catchments. This local strategy will not be secondary to the national strategy, rather it will have distinct objectives to manage local flood risks important to the local communities Duty to maintain a register of flood risk assets To clarify maintenance responsibilities and ensure greater co-ordination of information, Bolton Council will maintain a register of structures or features which they consider have a significant effect on flood risk in their area, at a minimum recording location, ownership and state of repair. The register is to be available for public inspection and regulations will be made about the content of the register and records. The register once formed will also enable a risk based approach to indicate where inspection and maintenance regimes should be focused in order to reduce flood risk. This will require the location of assets to be considered alongside other data such as computer flood modelled data, location of critical infrastructure, property, and transport infrastructure. Our criteria for the definition of significant is outlined in section 10. 8

15 2.3.3 Duty to investigate flooding incidents To ensure greater cooperation and avoid situations where bodies do not accept responsibility, will investigate flooding incidents in its area (where appropriate or necessary) to identify which authorities have relevant flood risk management functions and what they have done or intend to do. will then be required to publish the results of any investigation, and notify any relevant authorities Ensuring local progress The FWMA enables the local authority s overview and scrutiny committees to hold all the risk management authorities to account. In this way, the public can be actively involved in ensuring each of these authorities perform Powers to do works to manage flood risk The FWMA provides the LLFA with powers to do works to manage flood risk from surface runoff and groundwater. There are existing powers to do works on ordinary watercourses. Any works must be consistent with the local flood risk and water management strategy for the area Protection of privately owned flood defences (Designation of third party assets) The FWMA provides, and the Environment Agency with powers to designate structures and features that affect flooding. The powers are intended to overcome the risk of a person damaging or removing a structure or feature that is on private land and which is relied on for flood risk management. Once a feature is designated, the owner must seek consent from to alter, remove, or replace it. If someone does make a change to a designated feature, then the authority may issue an enforcement notice which will set out any steps that must be taken to restore a feature. An individual may appeal against a designation notice, refusal of consent, conditions placed on a consent or an enforcement notice The Approval Body for Sustainable Drainage Systems (SuDS) A key aspect of reducing flood risk is the removal of the right for developers to connect to a public sewer without first exploring alternative means of surface water disposal. This is to promote the use of Sustainable Drainage systems (SuDS), the elements that make up these systems are described further in Appendix A. SuDS aim to move away from the traditional use of conventional piped drainage systems, through the greater use of : 9

16 Permeable surfaces Swales Filter Strips Flood Storage Basins Ponds and wetlands The use of these types of features will lead to reductions in flood risk and improvements in water quality. The statutory requirement for SuDS in new development is contained in Schedule 3 of the FWMA; this part of the Act has yet to be enacted. Schedule 3 will establish as a SuDS Approving Body (the SAB ). The SAB will have responsibility for the approval of proposed drainage systems in new developments and redevelopments. Approval must be given before the developer can commence construction. In order to be approved, the proposed drainage system would have to meet new national standards for sustainable drainage. The SAB will also be responsible for adopting and maintaining SuDS which serve more than one property. as the Highway Authority will be responsible for maintain SuDS serving public roads. The SAB must arrange for SuDS on private property, whether they are adopted or not, to be designated under Schedule 1 to the Act as features that affect flood risk. The SAB will also be required to arrange for all approved SuDS to be included on the register of structures and features. National Standards will set out the criteria by which the form of drainage appropriate to any particular site or development can be determined, as well as requirements for the design, construction, operation and maintenance of SuDS. Schedule 3 of the FWMA also makes the right to connect surface water drainage from new development to the public sewerage system conditional on the surface water drainage system being approved by the SAB. As Schedule 3 of the FWMA has yet to be commenced, the requirement for SuDS in new development outlined above is not yet a legal requirement. Defra expect to implement Schedule 3 in April

17 3.0 National Strategy The national strategy s overall aim is to ensure that flood risk is well-managed and co-ordinated, so that its impacts are minimised. 3.1 What is the National Strategy? The Environment Agency and the Department for Environment, Food and Rural Affairs (Defra) have published a National flood and coastal erosion risk management strategy for England to ensure that government, the Environment Agency, local authorities, water companies, and other organisations that have a role in flood risk management understand each others roles and coordinate how they manage these risks. This fulfils a requirement in the Flood and Water Management Act 2010, which gave the Environment Agency a strategic overview of flood risk management and in turn takes forward a recommendation from Sir Michael Pitt s inquiry into the 2007 floods. The key themes in the national strategy are set out below and give a guide to all the organisations that will work together with communities to: Manage the risk of flooding to people and their property. Over time, we will be able, where possible, to improve standards of protection. Help householders, businesses and communities better understand and manage the flood risks they face. Respond better to flood incidents and during recovery. Move the focus from national government-funded activities towards a new approach that gives more power to local people, either at an individual, community or local authority level. Local innovations and solutions will be encouraged too. Invest in actions that benefit communities who face the greatest risk, but who are least able to afford to help themselves. Put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy. 3.2 What can be done? The National flood and coastal erosion risk management strategy for England stresses the need for risk to be managed in a co-ordinated way across river catchments, embracing the full range of practical options and helping local decision-making. The strategy helps bring together government and the authorities who are responsible for managing these risks with the organisations, communities, and people who are at risk. In summary, the strategy encourages them to work together to: 11

18 Know when and where flooding is likely to happen. Risk management authorities need to improve their understanding of the risks of flooding. They particularly need to develop a better understanding of surface water and ground water flood risk. Make sure that any flood risk management plans use the most up-to-date information and raise awareness of these risks among affected communities. Reduce the chance of harm to people and damage to the economy, environment and society by building, maintaining and improving flood erosion management infrastructure and systems, where it is affordable to do so. Help communities understand the risks and take action to manage them or reduce the consequences - for example, by making their properties more resilient. Avoid inappropriate development in areas of flood risk. Improve the detection and forecasting of floods and how warnings are issued, so that people, businesses and public services can take action, plan for and coordinate a rapid response to flood emergencies and promote faster recovery from flooding. Take opportunities to work with and enhance communities, services and the natural environment. Figure 3.1 : Managing the risk of flooding 12

19 4.0 Guiding Principles of the Local Strategy 4.1 Guiding Principles from National to Local Strategic Aims and Objectives Flood risk management often means that difficult decisions have to be taken on where action should and should not take place. The national strategy aims to guide these decisions locally by setting out six high level principles. These principles are centred on: Community focus and partnership working A whole catchment based approach Sustainability Proportionate risk based approach in targeting resources Contribute multiple economic, environmental and social benefits Beneficiaries of actions encouraged to invest in risk management 4.2 Community focus and partnership working Risk management authorities need to engage with communities to help them understand the risks, and encourage them to have direct involvement in decision-making and risk management actions. Working in partnership to develop and implement local strategies will enable better sharing of information and expertise, and the identification of efficiencies in managing risk. 4.3 A whole catchment based approach In understanding and managing risk, it is essential to consider the impacts on other parts of the catchment. Activities must seek to avoid passing risk on to others within the catchment without prior agreement. In developing local strategies shall ensure that neighbouring LLFAs within catchments are involved in partnerships and decision making. Strategic plans such as Catchment Flood Management Plans (CFMPs) should be used to help set strategic priorities for local strategies. Regional Flood and Coastal Committees will have an important role in this approach. The national strategy identifies that careful planning is required to ensure that appropriate, sustainable options are selected and that they are implemented properly. The local strategy provides an opportunity to present a clear picture of what will be done to manage risk, and bring together relevant information contained in other plans and strategies such as Catchment Flood Management Plans (CFMP), and River Basin Management Plans (RBMPs). This will help communities understand the risks they face, what they can do to manage them and how risk management authorities are working together to help manage them. They should also link with local and neighbourhood development plans. 13

20 4.4 Sustainability shall aim to support communities by managing risks in ways that take account of all impacts of flooding (for instance on people, properties, cultural heritage, infrastructure and the local economy) and the whole-life costs of investment in risk management. Where possible, opportunities should be taken to enhance the environment and work with natural processes. Risk management measures should also be forward looking, taking account of potential risks that may arise in the future and being adaptable to climate change. Government guidance has been published by Defra setting out the link between sustainable development and risk management called Guidance for risk management authorities on sustainable development in relation to their flood and coastal erosion risk management functions. When creating new or maintaining existing assets, we shall build in resilience to more extreme events that provide long term value for money and reduced whole life costs. Ensure we build resilient future proofed development, prevent inappropriate development through planning policy and achieve environmental, social and economic benefits consistent with sustainable development. 4.5 Proportionate, risk-based approaches It is not technically, economically or environmentally feasible to prevent flooding altogether. A risk-based management approach targets resources to those areas where they have greatest effect. All aspects of risk management, including the preparation and implementation of local strategies, should be carried out in a proportionate way that reflects the size and complexity of risk. The assessment of risk should identify where the highest risks are and therefore the priorities for taking action. 4.6 Multiple benefits As well as reducing the risks to people and property, flood risk management can bring significant economic, environmental and social benefits. In developing and implementing local strategies, shall help deliver broader benefits by working with natural processes where possible and seeking to provide environmental benefit, including those required by the Habitats, Birds and Water Framework Directive. Measures such as the use of SuDS to manage risk should be considered wherever possible as they can also deliver benefits for amenity, recreation, pollution reduction and water quality. Flood risk management also has the potential to bring significant economic, environmental and social benefits. For example, sustainable drainage systems that rely on storage ponds etc provide opportunities to enhance the built environment as well as improving biodiversity and providing habitat creation. Freshwater ponds can be biodiversity hotspots and are key habitats for many of the UK s priority species. It is now accepted that a badly designed streetscape is in the long-term costly both economically and socially; assets are unwanted and become uncared for or vandalised; it reduces pride in an 14

21 area; and impacts on any economic improvement. Local authorities should aim to deliver good resilient designs that have a long-term future. Local ponds lead to more attractive development that can enhance the desirability of an area. It is our intention to grasp the additional opportunities in SuDs design to exploit: Landscape design Amenity Reduce Pollution Wildlife Habitat Water Resources A recent publication by CIRIA entitled Water Sensitive Urban Design in the UK suggests how to achieve the above through a process of integrating water cycle management with the built environment through planning and urban design. New urban pond creation offers recreation and educational opportunities. Soft Landscape SuDs when used as an educational resource, can show how nature develops through the year, how reed beds function, what wildlife and birds are attracted to water, and support activities such as Pond Dipping. 4.7 Beneficiaries should be allowed and encouraged to invest in local risk management The benefits achieved when flood risk is managed can be both localised and private, through the protection of specific individuals, communities and businesses. In developing local strategies, shall consider opportunities to seek alternative sources of funding for managing local flood risk rather than relying solely on government funds. The funding regime that has been introduced by the government encourages local investment to support flood protection or reduction schemes. This is to ensure that future plans are not constrained by what funding central government could provide. The overall funding regime is designed to ensure there is the opportunity for significantly more risk management activity to take place if alternative sources of funding can be secured in each area to reflect the local benefits that would be delivered. 15

22 5.0 Flood Risk An assessment of local flood risk 5.1 Local Context Bolton developed rapidly in the 18 th and 19 th century s with the development of many industries largely based around the textile trades. Much of the drainage infrastructure dates from this period when large-scale culverting of natural watercourses was undertaken to enable development and during which some of the nation s first sewers were constructed. By the early 20 th century the town had over 200 large mills and over 25 bleach works. These industries depended heavily on water supplies and in many places in the town have shaped today s drainage systems. There is a legacy of aging drainage infrastructure that continues to pose a risk of collapse in the borough. Since the middle of the 20th century, the traditional manufacturing base has been completely reshaped and other sectors have grown to replace manufacturing. Some production industries have modernised around new technology and the service sector has grown significantly. Bolton forms part of the Manchester City Region which is a major centre for economic activity and is the focus of a significant proportion of the future development activity for the region. The borough of Bolton is one of ten metropolitan districts in Greater Manchester. It is bounded to the north by the Lancashire districts of Chorley, and Blackburn with Darwen, and on the remaining sides by the Greater Manchester districts of Wigan, Bury and Salford. With the exposure of the area to westerly maritime air masses and areas of high ground in the form of the West Pennine Moors, Bolton is one of the wetter parts of the Manchester region. Due to the range of topography across the borough there is also a variation in average annual rainfall from around 1000 mm in the south and west to around 1500 mm on the higher areas on Smithills Moor. In Bolton the number of rainy days per year where rainfall is more than 1mm is around About half of the borough is built up, with the remainder being countryside, mainly in agricultural use or open moorland. The key landscape features of the borough are its moorland backdrop, remnant areas of woodland, river valleys and pastoral agricultural land. The undulating topography and rising land of the West Pennine Moors influences flood risk in the borough. The highest point in the borough is Winter Hill to the north of the area, at a height of 456m. The lowest parts of the borough are in Kearsley in the southernmost part of the borough at around 40m above sea level. 5 Met Office: Climate data averages: < [accessed 12 th August 2012] 16

23 Figure 5.1 : Map of the Bolton Area Urban development is concentrated on a spine through the town centre, leading into the rest of the Greater Manchester conurbation to the south. Bolton is the most significant town centre in the borough, with smaller town centres in Horwich, Farnworth, Westhoughton, Little Lever, and Blackrod. The ground varies across the borough, the upland areas are generally covered in peat, there are occasional pockets of sand and gravel deposits most of which are confined to river valleys but by far the most prevalent deposit is of boulder clay. The boulder clay is varied and can be riven with bands of sand and gravel deposits, consequently, groundwater hydrology can vary considerably across even small sites. The Bolton area contributes to three distinct river catchments: part of Horwich and Blackrod areas drain into the River Douglas which ultimately flows northwards and enters the Ribble Estuary west of Preston; parts of Blackrod, Westhoughton, and Over Hulton drain in a south-westerly direction to the Mersey Estuary via Wigan; the remainder and drains to the River Irwell which flows southwards through the administrative areas of Bury, Salford, Manchester and Trafford, then onwards to the Mersey estuary. The figure below illustrates the interconnectivity of the hydrological links in the area. Bolton receives inflows from Chorley, Blackburn with Darwen, Rossendale and Bury. It has outflows which contribute to rivers in Wigan, West Lancashire, Salford, Manchester, Trafford and Warrington. 17

24 Figure 5.2 : Bolton s hydrological connections with other areas. We shall work locally with the city region and other adjacent local authorities to consider any impacts beyond our administrative borders. Actions and measures taken by upstream communities can have an effect on downstream communities. We need to be mindful of this when making local decisions and setting policies that both the local and regional needs are considered. Catchment Flood Management Plans (CFMPs) have been prepared by the EA, these identify short, medium and long term aspirations for how each catchment is managed and identify actions that could be undertaken in risk and land management. CFMPs for the North West region are available at An example of the type of policies promoted by the CFMP in the Bolton area is as follows: Explore ways of achieving land management change to reduce run-off from the upper catchment, for example through blocking of moorland grips, creation of storage ponds, targeted woodland creation. 18

25 5.2 Size of the Land Drainage network The approximate size our drainage network is as follows: Table 5.1: Size of Drainage Network Asset Type Length of ordinary watercourses Length of main river Quantity 351 km 101 km Number of debris screens maintained by 109 Number of debris screens maintained by Environment Agency 26 Length of culverted watercourse Length of culverted main river 104 km 19 km Number of manholes on watercourses more than 920 The area of standing water (lakes, ponds etc) owned or managed by 26.4 hectares Number of highway gullys 57,000 Approximate length of highway drainage 175 km 19

26 5.3 Local Flood data has for over 20 years recorded and maintained information on incidents of flooding from ordinary watercourses, surface water and groundwater in the area. The information is held in both map and database forms, these will continue to be maintained and further developed. In recent years the Environment Agency has produced river and surface water flood risk mapping, modelling and data which is shared with local authorities. The Greater Manchester Surface Water Management Plan (GMSWMP) project has produced an updated surface water map for the Greater Manchester Area which shows the areas likely to flood during different intensities of rainfall. As part of the SWMP, UU as the sewerage undertaker for the area has shared sewer flood data with the authorities. Using this information will help us understand the local risks and enable us to identify priorities and allocate resources. The area contains four rapid response catchments: Eagley Brook at Eagley Middle Brook and Bessy Brook at Lostock Junction River Irwell at Kearsley River Croal at Burnden Rapid response catchments are those that will respond quickly to intense rainfall with peak river flows occurring within a few hours. Usually these are small, steep catchments containing a large proportion of impermeable soils or urban cover. These types of catchment present challenges in terms of making accurate flood forecasting and preparing and responding to emergencies due to the short timescales involved. Plans showing these areas are available at The area also contains four flood warning areas: River Irwell at Kearsley Eagley Brook at Astley Bridge Eagley Brook at Eagley Eagley Brook at Dunscar These are areas where the flood risk is high and are so positioned in a catchment where river levels can be monitored and predictions made in advance of flooding occurring. This enables the EA to issue predictive warnings to be given in sufficient time, that preparations and actions can be undertaken before any flooding occurs. Plans showing these areas are available at 20

27 Table 5.2 : Bolton - Key Property Flooding Risk Data 6 Flood Source Rainfall Event Residential Properties Surface Water 300 mm depth (1) Non- Residential Properties Hospitals Schools Telecoms Sites Emergency Services 1 in 30 year annual risk (3.3 % chance per year) in 200 year annual risk (0.5 % chance per year) in 200 year annual risk with climate change allowance (2) Sewer 1 in 30 annual risk (3.3 % chance per year) River 1 in 100 year risk (1% chance per year) Not available 1 1 in 1000 year risk (0.1% chance per year) Not available 1 Notes: 1. Data from the GMSWMP and only includes properties flooded to a depth of 0.3m or more. 2. Climate change scenario used in above estimate is the medium emissions scenario in JBA Consulting Greater Manchester SWMP. Stage 1 A Strategic Assessment of Surface Water Flood Risk 21

28 5.4 Preliminary Flood Risk Assessment 7 As part of the Flood Risk Regulations 2009, was required to undertake a Preliminary Flood Risk Assessment (PFRA). The PFRA is a high-level screening process following a pre-determined methodology to indicate whether there is a flood risk within the LLFA boundary based on past and future flood risk. The study only looked at flooding from surface water, ground water, ordinary watercourses and canals. It was undertaken in collaboration with the other AGMA local authorities. In order to ensure a consistent national approach, Defra identified flood risk criteria and thresholds to be used for defining flood risk areas. National surface water flood maps and location data were then utilised to identify areas above the flood risk thresholds. Where clusters of these areas contained the homes of 30,000 people they were identified as indicative flood risk areas. Only ten national flood risk areas were identified in England, one of these covers the Greater Manchester area and includes approximately half the geographic area of Bolton. A map of the Greater Manchester Flood Risk Area is shown below; the map shows an area where the social and economic impact of an extreme surface water flooding event would be high, it does not mean locations within the defined area are at risk of flooding. Figure 5.3 : The Greater Manchester Flood Risk Area. 7 JBA Consulting Preliminary Flood Risk Assessment 22

29 The Greater Manchester cluster identified 86,500 people at risk of flooding, of which 9,800 are within the Bolton area. As the PFRA has identified a Flood Risk Area, this triggers the next stage of the Flood Risk Regulations process. This means the authority will have to produce flood hazard maps and flood risk maps by June 2013 and flood risk management plans for at risk locations by June Flood hazard and flood risk maps will show the likely extent, depth, direction, speed of flow and probability of possible floods and their consequences. Flood risk management plans will set out: What measures are proposed to reduce the adverse consequences of flooding. What measures are to be taken relating to the prevention of flooding of individuals, communities and the protection of the environment. Arrangements for forecasting and warning. 5.5 Other Forms of Flooding Groundwater Flooding Groundwater flooding occurs when water levels in rock and soil become high enough for the water to appear near to or above the ground surface. This can be as a result of rainfall either locally or some distance away. It generally occurs where there are underlying gravels or porous ground that allows water to travel and concentrate in certain areas. In Bolton, this type of flooding is uncommon and mostly limited to small-scale flooding of basement or under-floor areas, although from time to time surface flooding has occurred when springs suddenly become active due to rainfall. The areas at most risk are often low-lying areas where the water table is more likely to be at shallow depth. Underground coal mining in Bolton began in the Middle Ages, grew rapidly during the Industrial Revolution and ended in the 20 th century. Many of the older mines predating the late 19 th Century remain unrecorded. There is left a legacy of abandoned coal mines in the area. Some of these mines used pumps to control water, which ceased when the mines became abandoned, as a consequence mine water levels rose. Groundwater flows from these mines causes pollution in the form of acidic mine water to watercourses in the area, often observed as a bright orange deposit in water. These groundwater discharges from abandoned mines can vary from seasonal trickles to substantial flows. Very occasionally flooding at ground level has occurred when groundwater discharges from abandoned mines have become active, usually following extended periods of rainfall. The risk of flooding from mine water although possible at many locations across the borough is not a significant problem, with very few instances recorded. 23

30 One of the outputs from the Greater Manchester Surface Water Management Plan was to produce a map showing groundwater flood risk. The plan is reproduced below and shows areas of relative groundwater flood risk. Higher risk areas are shaded darker than lower risk areas. The plan does not show the risk of groundwater flooding from mine workings. Figure 5.4 : Plan showing areas susceptible to groundwater flooding Canal Flooding The risk of flooding from canals is generally low because of their regulated nature. The main source of flooding from canals results from a breach of raised canal embankments or collapse of a canal reach above culverted sections of a watercourse. Generally, the canals have a freeboard of approximately 300mm between the normal water level and canal bank and water levels are controlled by overflow structures/ sluices. This arrangement limits the opportunities of a flood risk directly from canals. 24

31 Sections of the Leeds and Liverpool Canal and the disused Manchester, Bolton and Bury Canal run through Bolton. Although there is little evidence of flooding from canals in Bolton, a canal breach occurred in the Manchester, Bolton and Bury Canal at Little Lever in This breach was the most serious of several breaches that occurred during the life of the canal, some being attributed to mining subsidence. Following the 1936 breach at Little Lever the canal was not repaired and the disused canal was split into three isolated sections which remain today. There are existing raised sections of canal along the old route of the Manchester, Bolton and Bury Canal, though most are at locations where a breach would not cause damage to property. There is a 500 metre section of raised embankment in Prestolee, Kearsley that could potentially affect property should a breach occur. No raised canal embankments that would have an effect on Bolton have been identified along the Leeds and Liverpool Canal that passes through a small section of the borough to the east of Blackrod Reservoir Flooding Reservoirs in the UK have an extremely good safety record with no incidents resulting in the loss of life since Following the 1925 incident, parliament introduced the Reservoirs Act 1930 (which was updated in 1975) and reservoirs are now more carefully maintained. The Act covers the safety of all reservoirs in the United Kingdom that can hold at least 25,000 cubic metres of water and means reservoir flooding is very unlikely to happen. The operation of large reservoirs is regulated by the Environment Agency (EA). The EA ensures that reservoirs are regularly inspected and essential safety work is carried out. Imminent changes to the Reservoirs Act will bring additional smaller reservoirs into the regulatory regime and make further improvements to reservoir safety in England. Local authorities are responsible for co-ordinating emergency plans for reservoir flooding and ensuring communities are well prepared. The Greater Manchester Civil Contingencies and Resilience Unit is currently developing these plans for several significant reservoirs in collaboration with reservoir owners and other relevant bodies. The development of emergency plans for reservoir flooding is a new responsibility for local authorities. These will take time to prepare and we have not yet prepared specific reservoir flood plans. There are 17 large raised reservoirs within or upstream of Bolton that could potentially have a significant effect on Bolton if they were to fail or partially fail. 12 of these relate to water supply and are owned and managed by United Utilities. Maps showing the extent of flooding from reservoirs are available on the Environment Agency website 25

32 Figure 5.5 : Plan showing large raised reservoirs that could potentially affect Bolton Sewer Flooding United Utilities (UU), the sewerage company in this area, is responsible for flooding from foul and surface water sewers. Flooding from sewers can happen when the capacity of sewers is exceeded or they become wholly or partially blocked. UU are regulated by OFWAT the economic regulator of the water and sewerage industry in England and Wales. Many aspects of the company such as their service standards and performance are monitored by OFWAT. The company is required to maintain a DG5 register recording internal and external flooding. However, this register currently only contains a list of properties that have suffered sewer flooding (internal or external) because of hydraulic inadequacy of the sewer network. It is therefore not a register of properties at risk of sewer flooding. Currently there are 25 and 100 properties in Bolton on the internal and external DG5 register respectively (Feb 2011) 8. 8 JBA Consulting. Greater Manchester Surface Water Management Plan Stage 1 A Strategic Assessment of Surface Water Flood Risk

33 The water industry operates on a five year cycle of investment called Asset Management Plan (AMP) periods. Each AMP submission to OFWAT contains the programme of investment they intend to make over a particular future five year period. This needs to be approved by OFWAT before the business plan is put into action. Each AMP will contain a variety of projects that tackle flooding from sewers. However, establishing the need to resolve a flooding problem, identifying the suitable solution and it becoming a high enough priority for a project to be undertaken in an AMP may take many years. Building on the partnership approach to managing flood risk as LLFA will work with UU (and other asset owners) to ensure that a coordinated approach is implemented when undertaking any work in an area. UU in the last 20 years have made significant investment in Bolton to reduce flooding of property, as well as make other improvements to the environment and river water quality. 27

34 6.0 Future Changes to Risk 6.1 Climate Change The long term predicted changes in climate pose the most likely changes to flood risk. It is predicted that future extreme rainfall events are more likely to occur leading to more frequent flooding events. The GMSWMP study estimated that the number of properties in the Bolton area being at risk of surface water flooding during an extreme rainfall event between now and 2080, will increase by 1100 purely as the result of climate change. The following is a prepared statement by Defra on Climate Change for the North West River Basin District and its likely effects on flood risk: Climate Change Statement 9 The Evidence There is clear scientific evidence that global climate change is happening now. It cannot be ignored. Over the past century around the UK we have seen sea level rise and more of our winter rain falling in intense wet spells. Seasonal rainfall is highly variable. It seems to have decreased in summer and increased in winter, although winter amounts changed little in the last 50 years. Some of the changes might reflect natural variation, however the broad trends are in line with projections from climate models. Greenhouse gas (GHG) levels in the atmosphere are likely to cause higher winter rainfall in future. Past GHG emissions mean some climate change is inevitable in the next years. Lower emissions could reduce the amount of climate change further into the future, but changes are still projected at least as far ahead as the 2080s. We have enough confidence in large scale climate models to say that we must plan for change. There is more uncertainty at a local scale but model results can still help us plan to adapt. For example we understand rain storms may become more intense, even if we can t be sure about exactly where or when. By the 2080s, the latest UK climate projections (UKCP09) are that there could be around three times as many days in winter with heavy rainfall (defined as more than 25mm in a day). It is plausible that the amount of rain in extreme storms (with a 1 in 5 annual chance, or rarer) could increase locally by 40%. 9 Environment Agency. Preliminary Flood Risk Assessment (PFRA) Annexes to the final guidance. Environment Agency March

35 Key Projections for North West River Basin District If emissions follow a medium future scenario, UKCP09 projected changes by the 2050s relative to the recent past are Winter precipitation increases of around 14% (very likely to be between 4 and 28%) Precipitation on the wettest day in winter up by around 11% (very unlikely to be more than 25%) Relative sea level at Morecambe very likely to be up between 6 and 36cm from 1990 levels (not including extra potential rises from polar ice sheet loss) Peak river flows in a typical catchment likely to increase between 11 and 18% Increases in rain are projected to be greater near the coast than inland. Implications for Flood Risk Climate changes can affect local flood risk in several ways. Impacts will depend on local conditions and vulnerability. Wetter winters and more of this rain falling in wet spells may increase river flooding especially in steep, rapidly responding catchments. More intense rainfall causes more surface runoff, increasing localised flooding and erosion. In turn, this may increase pressure on drains, sewers and water quality. Storm intensity in summer could increase even in drier summers, so we need to be prepared for the unexpected. Drainage systems in the [North West River Basin] district have been modified to manage water levels and could help in adapting locally to some impacts of future climate on flooding, but may also need to be managed differently. Rising sea or river levels may also increase local flood risk inland or away from major rivers because of interactions with drains, sewers and smaller watercourses. Where appropriate, we need local studies to understand climate impacts in detail, including effects from other factors like land use. Sustainable development and drainage will help us adapt to climate change and manage the risk of damaging floods in future. Adapting to Change Past emission [Sic] means some climate change is inevitable. It is essential we respond by planning ahead. We can prepare by understanding our current and future vulnerability to flooding, developing plans for increased resilience and building the capacity to adapt. Regular review and adherence to these plans is key to achieving long-term, sustainable benefits. 29

36 Although the broad climate change picture is clear, we have to make local decisions [incorporating some] uncertainty. We will therefore consider a range of measures and retain flexibility to adapt. This approach, embodied within flood risk appraisal guidance, will help to ensure that we do not increase our vulnerability to flooding. Long Term Developments It is possible that long term developments might affect the occurrence and significance of flooding. However current planning policy aims to prevent new development from increasing flood risk. In England, the National Planning Policy Framework (NPPF) on development and flood risk aims to ensure that Inappropriate development in areas at risk of flooding should be avoided by directing development away from areas at highest risk, but where development is necessary, making it safe without increasing flood risk elsewhere. Adherence to government policy ensures that new development does not increase local flood risk. However, in exceptional circumstances the Local Planning Authority may accept that flood risk can be increased contrary to government policy, usually because of the wider benefits of a new or proposed major development. Any exceptions would not be expected to increase risk to levels which are "significant" (in terms of the government's criteria). 30

37 6.2 Population change development and land management Bolton s Flood Risk Management Strategy The population of England is expected to increase by 10 million by 2030, most of this increase is likely to occur in the south and east of the country. However, predictions estimate that population growth in the North West will be much lower but still at around a 10% increase between 2010 and Locally this will increase the need and pressures to provide new homes and infrastructure. This is in excess of an already high demand for housing, particularly social housing in the area. The present demand for housing will increase urbanisation and potentially exacerbate rapid run-off. There may be in future considerable pressures to develop local areas that may be in zones at risk of surface water flooding. Unless development is carried out appropriately and the relevant design requirements and checks undertaken at the planning and construction stage, this could lead to increased risk of flooding by placing more people in areas at risk. 6.3 Future Insurance cover Individuals and businesses commonly rely on taking out insurance to reduce their vulnerability to a flood. This strategy can be difficult for those on low income or in high risk areas where the premiums can become unaffordable. It is estimated that 50% of people in the lowest income decile do not have household contents insurance and therefore there is a differential effect across society on how risk is managed. 11 The majority of the financial shock of a flood is absorbed by insurance companies which reduces the vulnerability of individuals and businesses. Currently there exists a "Statement of Principles" between the Association of British Insurers (ABI) and the UK government which is an agreement to generally provide flood insurance to domestic customers and businesses in high risk areas at no higher premium. This statement of principles is a short term agreement and set to lapse in June Following this date it is likely that an insurance scheme called Flood Re will begin. Flood Re is a scheme built to ensure flood insurance remains widely affordable and available, its key elements are. Flood Re will be run and financed by insurers as a not-for- profit fund which will cover the cost of flood claims from high risk homes. Insurers will pass the flood risk element from those households deemed at high risk of flooding to the fund. Premiums for the flood risk will be calculated based on council tax banding up to a maximum limit depending on the Band. Flood Re will cover losses up to those expected in a 1 in 200 year a year six times worse than 2007 with Government taking primary responsibility working with the industry and Flood Re for distributing any available resources to Flood Re policyholders should claims exceed that level. 10 Office for National Statistics. Social Trends No.39. (2009). 11 Environment Agency. Addressing Environmental Inequalities: Flood Risk. (Science Report: SC020061/SR1.) (2006) 12 ABI. The Future of Flood Insurance: What you need to know about Flood Re July

38 It has been a concern that potential future changes in the availability of affordable flood insurance in high risk areas may have significant effects on the social make up of areas and potentially cause property blight. Mortgages may not be able to be secured on properties at risk with the effect of reducing both demand and property prices. The Flood Re scheme will go some way to countering this effect by making flood insurance widely available. However, high risk property owners will still pay higher premiums, but not as high as if Flood Re were not in operation. There may still be areas where the flood risk results in low property values and an increase in the proportion of rented property, which results in low income tenants and pensioners being attracted to the lower rents in the area. These are also potentially more vulnerable to the impacts of flooding. Members of the ABI have already developed flood risk analysis tools and creating data on flood risk, so do possess some tools to assess the risk posed in an area and hence individual properties. A watching brief will need to be made on the effects of the cost and affordability of flood insurance and their subsequent effect on urban development and social composition in high risk areas. 32

39 7.0 Wider Social, Economic and Environmental issues Bolton s Flood Risk Management Strategy 7.1 Deprived communities Experience has shown that flooding has a disproportionate effect on deprived communities. In social housing, it is estimated that around 50% of homes do not have contents insurance 13. The uninsured are also hardest hit, as the average insurance pay-out range for flood damages is 20,000 to 40, As a result, many of those living in deprived areas are most likely to receive no financial aid when flooded, making recovery harder for those communities. Several reports have shown that levels of awareness of flood risk are low among those in the lower socio-economic groups. Residents in deprived neighbourhoods are therefore likely to be less well prepared to cope in the event of a flood and with its aftermath 15. Health impacts of flooding will be more extensive in neighbourhoods already characterised by poor health. Those who suffer the greatest losses often those on lower incomes and without insurance may be most susceptible to psychological health effects and, by extension, physical health effects. There is UK research which indicates that more deprived communities tend to have lower levels of social capital. Social capital refers to networks or connections among individuals, and the norms of reciprocity and trustworthiness that arise from them. International research concludes that places with low levels of social capital cope less well in the aftermath of flooding. Densely habited urban areas offer a high risk of surface water flooding as the environment is more likely to be one made up of impermeable surfaces and buildings. They are also the same areas where deprived communities are most likely to be found. Consequently, there is an established correlation in the UK between flood risk and deprivation. Previous studies have shown that vulnerable groups are over represented in the areas at risk. 13 Pitt. Pitt Review into the lessons learnt from the 2007floods AXA. Flooding research 2010 the true cost of flood insurance. AXA Environment Agency. Addressing Environmental Inequalities: Flood Risk. (Science Report: SC020061/SR1) (2005) 33

40 Figure 7.1 : Local areas that are the most 20% deprived in England (blue shaded areas) and surface water flooding hotspots (boxes shaded green to red) 16 The above map shows the parts of the borough, shaded blue, that are within the 20% most deprived communities in the England, it also shows as square blocks the areas that have been identified as areas of pluvial flood risk. The map generally indicates that in Bolton, flood risk hotspots are also associated with the dense urban areas and the most deprived communities. It is planned to work closely with the local housing associations to highlight the risk of flooding and to identify the areas that are at most risk. The national funding mechanism for addressing surface water flooding problems means there are potential sources of funding that could assist with making any identified properties flood resilient, particularly in deprived areas. 16 Deprivation map based on Rank of Index of Multiple Deprivation Score (LLSO Areas) DCLG survey 2010 and flood hotspot data from the GM SWMP. 34

41 7.2 Business Continuity Business can be severely affected by flooding, anecdotal evidence suggests that some businesses close after flooding and this may then have wider impacts on the economy of a neighbourhood. Small businesses are likely to be hit harder than their larger counterparts as they are less likely to have adequate insurance, business continuity plans and computer protection. However, research has also shown that some local building repair businesses do very well after a local flood. The average insurance pay-out to business following a claim is 60,000 17, this gives an indication of the likely monetary damage a business would need to find if it were not insured. Small businesses are less likely to have insurance and so the consequence of a flood can be very damaging indeed. The loss of stock and equipment could potentially end a small business. It is planned to work closely with local businesses to highlight the risk of flooding and to identify the businesses that are at most risk. We propose to work with identified businesses to help build business continuity plans in order that they can continue operations as soon as possible after a flood event. 7.3 The Value of Agricultural Land. During the summer 2007 floods damages to agriculture, associated with inundation of over 40,000 hectares, accounted for about 2 percent ( 50 million) of the total economic costs of the flood events 18. Over 90 per cent of flood damage costs were associated with losses of farm output and additional production costs. The remainder involved damage to farm level assets such as machinery, property and infrastructure. Only about five per cent of flood damage costs (excluding damage to household property) were insured. The floods did not have a major impact on total food supply, but probably contributed to further price increases during a year of general commodity deficit at the global scale. By its nature good quality agricultural land tends to be associated with land that regularly floods. Agricultural land is classified in a grading system of one to five with grade 1 being excellent quality and grade 5 being very poor quality land. Bolton contains predominantly grade 3 and 4 agricultural land, no grade 1 or 2 class land exists within the area (shown on Figure 7.2 below). The national policy is focused on protecting grade 1 and 2 land, which are locations of high grade, high production agricultural land that are key to the nation s food production and supply. Due to the type of land in the Bolton area it is unlikely that agricultural land value will be a significant consideration when undertaking flood risk management. However, should flooding occur that causes damage to agricultural land, this may from part of an appraisal when assessing flood risk management options. 17 AXA. Flooding research 2010 the true cost of flood insurance Environment Agency. The costs of the summer 2007 floods in England

42 Figure 7.2: Plan of Agricultural Land Classifications 7.4 Water Resources The subject of water resources generally refers to the sources of fresh water that can be used for drinking water, agriculture and industry. In future there will be a broadening gap between supply and demand due to population change and as the impacts of climate change emerge. It is estimated that by the 2050 s river flows in the late summer and early autumn could fall by over 50 per cent 19. The latest climate change projections from UKCP09 indicate that the North West region may receive up to 20 per cent less rainfall in summer by the 2080's (medium emissions scenario, central estimate). Although better placed than other parts of the country due to the wetter weather, and existing water infrastructure, the predicted more frequent and more severe droughts may result in our water supply still being vulnerable. 19 Environment Agency. Water resources in England and Wales current state and future pressures 36

43 Several strategies are emerging to counter this threat the main one being to introduce legislative changes which allow water companies to share or trade water. However, large scale water sharing relying on pumping water in pipes to other parts of the country would be extremely costly and the amount of energy required to do this would in all likelihood make most schemes unjustifiable. It is likely that more progress will be achieved through the use of SuDS that utilise on-site storage of water for later use, coupled with lots of small-scale localised solutions such as rainwater harvesting, and recycling grey water (bath, shower and washing-up water). This strategy supports this approach through the promotion of water re-use from SuDs in new development. Only 15% of our household water usage is needed to be supplied at drinking water standard such as drinking cooking and hygiene uses. The rest is used for toilet flushing, watering gardens and washing cars. Our policy in limiting the impact of stress on water resources is to: Promote SuDS that store water for re-use. Promote the re-use of grey water. 7.5 Water Framework Directive The European Water Framework Directive (WFD) came into force in December 2000 and became part of UK law in December The Water Framework Directive (2000) is a major piece of legislation, which aims to rationalise EU water legislation to achieve an integrated system of water protection, improvement and sustainable use 20. Unlike the EU Birds and Habitats Directives which apply only to certain designated sites, the WFD applies to all surface and ground water bodies. It introduces a series of new objectives, which will govern water management and activities affecting water status : status is a measure of ecological, chemical, hydrological and morphological quality in surface waters, and groundwater quantity/chemistry. The WFD objectives include: Preventing deterioration in water status. Restoring surface waters to good ecological and chemical status by Reducing pollution from priority substances and phasing out certain priority. hazardous substances. Achieving objectives for EU protected areas. Contributing to mitigating the effects of floods and droughts. Preventing and/or limiting pollution input into groundwater. Balancing abstraction and recharge. The Environment Agency are key to delivery of the above and working partnership with other bodies to ensure delivery of WFD objectives. However, this means that statutory bodies, such as local authorities, will potentially have a much more important role in water management, as a result of WFD implementation and our new role in flood risk management. 20 DCLG. The implications of the EU Water Framework Directive for plans, plan making and development control 37

44 The LLFA will have to ensure the following: 1. We comply with our duty to protect and enhance the water environment 2. Provide environmental benefit when undertaking works 3. Not make water bodies worse or prevent water bodies from achieving their WFD objectives 4. Ensure this plan is consistent with the local River Basin Management Plan The North West River Basin Management Plan (NW RBMP) was published in 2009 and sets out the strategy for locally meeting the WFD objectives. The NW RBMP includes an assessment of the state of the water environment as it was in 2009, identify water bodies locations that need protection and the actions that are proposed to make improvements. Any activities that we undertake such as; capital works, routine and non-routine maintenance need to be WFD compliant to ensure the environment is not damaged. We will need to ensure that works by third parties and works that we need to grant consent under the Land Drainage Act are subject to a WFD assessment where required. This assessment process and ensuring our own works are assessed for compliance may require additional resources. To ensure that this strategy is WFD complaint: We will need to demonstrate the measures we propose will not cause deterioration to water bodies (cause harm) We will need to demonstrate the measures we propose will not prevent future improvement (eg restoration) It identifies opportunities for improvement to meet WFD objective / improve ecological status (take positive action) North West River Basin 21 The latest climate change projections from UKCP09 indicate that the North West region may receive up to 20 per cent less rainfall in summer by the 2080's (medium emissions scenario, central estimate). The Office for National Statistics forecasts that nearly a million more people will be living in the region by Historical issues and these challenges relate to a range of specific pressures that need to be dealt with in this river basin district. The most significant are: Diffuse pollution from rural areas nutrients, sediments and pesticides in runoffs. Point source pollution caused by discharges from sewerage systems an excess of organic matter which depletes the oxygen available for wildlife. Diffuse pollution from roads and urban areas a range of pollutants related to urban areas and the transport network. Physical modification of rivers and coastline - changes to the structure of water bodies, such as for flood defence. 21 Environment Agency. North West River Basin Management Plan 38

45 Point source pollution caused by discharges from industry - a range of pollutants and chemicals related to various industries that may affect the physiology, growth, development and reproduction of aquatic organisms. Abstraction and other artificial flow regulation problems related to taking water from rivers, reservoirs, lakes and groundwater Pollution There are a number of major challenges posed by: high population densities and transport networks that put pressure on the water environment; and discharges from sewage works that can impact on water quality or the enjoyment of it. As a result of our rich industrial past there is left a legacy of poor river water quality. Bolton contains a number of old contaminated sites that continue to contribute to pollution of the water environment over 100 years since they were created. A great deal is already being done to protect and improve the water environment. However, it will take more time, effort and resources to deal with the pressures that have significantly altered and damaged the environment over the last few hundred years. The delivery of development sites is important to achieving sustainable economic growth within the region. Managed well, this growth and regeneration will be an opportunity to make improvements to the water environment in a way that enhances people s quality of life. SuDS have a means of tackling pollution through varying degrees of treatment for surface water, using the natural processes of sedimentation, filtration, adsorption and biological degradation. They reduce the amount of run-off (minimising paved areas) thus the amount of pollution. Swales and filter strips are effective at removing polluting solids through filtration and sedimentation. The vegetation traps organic and mineral particles that are then incorporated into the soil, while the vegetation takes up any nutrients. Basins and ponds treat runoff in a variety of ways: Settlement of solids in still water - having plants in the water enhances calm conditions and promotes settlement. Adsorption by aquatic vegetation or the soil. Biological activity. Permeable surfaces reduce pollution as the permeable fill or sub-base traps sediment, thereby cleaning up runoff. During the industrial development of Bolton there were many heavy industries and chemical works built that deposited waste in and around the borough. Many of these sites are known, but some remain unremediated. There are certain sites where a SuDS drainage solution would be inappropriate without first undertaking a major land contamination remediation scheme to prevent contamination becoming mobilised by the SuDS drainage. The use of SuDS systems near these 39

46 sites will need to be carefully considered if they could change the ground water flow regime or mobilise and cause the migration of contamination. Our policy will be to encourage the use of appropriately designed SuDS to control run off at source, but ensure that the guidelines in the National Planning Policy Framework (NPPF) are followed on controlling pollution of groundwater that may arise from development of land. 7.6 Habitats Directive The EU Habitats Directive aims to protect the wild plants, animals and habitats that make up our diverse natural environment. The directive created a network of protected areas around the European Union of national and international importance. They are called Natura 2000 sites. These sites include: Special Areas of Conservation (SACs) - these support rare, endangered or vulnerable natural habitats, plants and animals (other than birds). Special Protection Areas (SPAs) these support significant numbers of wild birds and their habitats. Water draining from Bolton flows close by but does not enter any of the sites known as Manchester Mosses or Rixton Clay Pits which are designated as Habitats Directive Sites - Sites of Community Importance (SCI). Diffuse water pollution from Bolton could potentially have an effect on either the Mersey Estuary or the Ribble & Alt Estuaries SPA/Ramsar Sites, since water from the River Croal, River Irwell, Glaze Brook & River Douglas flow away from Bolton and eventually discharge into these Estuaries. However, prior to discharging into the estuaries all these rivers pass through many other metropolitan areas, and the estuaries are both adjacent to major conurbations. Long term improvements in tackling diffuse pollution from the Bolton area will contribute to improvements on wildlife in these estuaries, provide this is done on a catchment wide basis 22. We do need to be mindful of both the effects of diffuse and acute pollution, how these may affect internationally important habitat sites downstream, and the long-term benefits of tackling diffuse pollution through source control. 22 The Greater Manchester Ecology Unit. Habitats Regulations Assessment of the Impact on European Protected Sites of s Core Strategy

47 Figure 7.3: Hydrological connections between river outflows in Bolton and SPA and SAC sites in the Ribble and Alt, and Mersey estuaries Local Environmentally Important Sites Sites of Special Scientific Interest -SSSI A Site of Special Scientific Interest (SSSI) is a conservation designation denoting a protected area in the United Kingdom. There are six SSSI s in or bordering the Bolton area, five of these due to their location or type are unlikely to be affected by development. Red Moss SSSI is a partially aquatic habitat to which surface water discharges are made and will be subject to further discharges for upstream development in the future. Care must be taken in future to ensure this habitat is not unduly influenced by surface water discharges Sites of Biological Interest SBI SBI is a non-statutory designation used in Greater Manchester to identify an area that is valued for its biological diversity. SBI s have no legal protection, but do receive some protection through planning policy, and are taken into consideration when examining planning applications. 41

48 Local Nature Reserves LNR There are nine local nature reserves within or bordering the Bolton area. A Local Nature Reserve (or LNR) is a statutory designation made under Section 21 of the National Parks and Access to the Countryside Act All these areas are in the control of the local authority. Figure 7.4 : Designated Environmental Sites in Bolton 42

49 8.0 Local Flood Risk Management Strategy 8.1 The Greater Manchester Surface Water Management Plans (SWMP) A Surface Water Management Plan (SWMP) is a plan which outlines the preferred surface water management strategy in a given location. In the context of the plan, surface water flooding is flooding from sewers, drains, groundwater, run-off from land, overflow from small watercourses and ditches that occurs as a result of heavy rainfall. A Greater Manchester SWMP (GM-SWMP) study has been undertaken in consultation with key local partners who are responsible for surface water management and drainage in this area. The primary study partners are: the ten Greater Manchester Authorities, Association of Greater Manchester Authorities (AGMA), United Utilities and the Environment Agency. These partners are working together to understand the causes and effects of surface water flooding and agree the most cost effective way of managing surface water flood risk for the long term. The GM-SWMP is structured around guidance issued by Defra. It is an on-going process which provides a framework for bringing together the many aspects of flood risk management, such as, forward planning of development as well as fulfilling improvements and compliance with the associated issues of water quality, ecology and requirements under the Water Framework Directive. The GM-SWMP is currently underway which aims to establish a long-term action plan to manage surface water in the city region and should influence future capital investment, drainage maintenance, public engagement and understanding, land-use planning, emergency planning and future developments. The first stage of the study has identified locations at an elevated risk of surface water flooding across the Greater Manchester region. Further work has been undertaken to produce outline or detailed suggested options for alleviating the risk at these locations. The outputs from the study will be used to further inform: Flood risk management. Local development proposals. Management of water assets. Key outputs from the study comprises flood risk data that informs, visualises and helps us better understand flood risk. Data includes flooding extents for a range of rainfall events, along with depth and velocity data. This data will enable engineers and planners make more informed decisions, and the public to visualise this risk. Next year a national surface water flood risk map will be produced that is similar to the one used in the GM study; this will be available to the public via a national website. 43

50 Figure 8.1: Example Data from the GM SWMP Middlebrook, Horwich. 8.2 The Role of the Planning Authority The purpose of the planning system is to help achieve sustainable development, whilst ensuring that new development delivers economic, social and environmental benefits. The FWMA makes provision for considerable changes to the role of the LLFA in terms of planning and development control for flood risk management, partly because of the SuDS provisions, but also because the Local Planning Authority (LPA) must have regard to the Local Strategy in its non-flood risk management functions, and must act consistently when exercising its flood risk functions. Because of this, the role of the LPA in flood risk management is essential: 44

51 By planning to avoid inappropriate development in areas at risk of flooding and to direct development away from areas of highest risk. This especially applies to key infrastructure such as hospitals and other major utilities. By mitigating the surface water run-off impacts of new development on downstream areas. Planning policies tend to focus on mitigation in terms of adverse impacts from the quantity and rate of run-off. However, given the requirements of the Water Framework Directive, the mitigation of adverse water quality also needs to be considered How the Planning Authority will ensure flood risk is managed for new development Summary overview of some of the key elements of the planning system in relation to flood risk management, including: Embedding Strategic Flood Risk Assessments into the Local Plan. Avoiding inappropriate development in the functional flood plain. Using NPPF to locate new development and regeneration according to the flood vulnerability of the intended use. Directing development first to risk areas through embedding the NPPF sequential approach into the Local Plan. Safeguarding land for critical infrastructure and agricultural use. Developing action plans, where necessary, to support sustainable spatial planning. Ensuring all plans are integrated and firmly linked to strategic policies in local plans. Promoting the use of open space for multiple use/benefits including biodiversity, public amenity and making space for flood water. Promoting sustainable water management. Consult recognised advice on planning, management and designing sustainable places. Securing funding through development for flood defence schemes. The role of the planning authority is key to delivering the long-term objectives of flood risk management as well as the associated issues of sustainability and water resources. Only through the application of planning policy can the aims of this strategy be achieved. In Bolton, the adopted Core Strategy already follows the principles set out above. Core Strategy policy CG1.5 reduces the risk of flooding in Bolton and other areas downstream by minimising water run-off from new development and ensuring that a sequential approach is followed, concentrating new development in areas of lowest flood risk. The Council s Sustainable Design and Construction Supplementary Planning Document contains a section on sustainable drainage, including water use. If Schedule 3 of the FWMA is commenced this will lead to the introduction of the SuDS Approval Board (SAB). The requirement for a developer to gain approval by the SAB before construction of a development begins, the multitude of other issues relating to planning control, and highway adoption issues, will require close co-operation between the LPA and the SAB. The SAB will provide the data and expertise required to ensure that decisions relating to flood risk on a development are based on sound evidence. 45

52 The SAB will require early input into local plans and development master plans to ensure that proposed large developments take an in-depth examination of the opportunities for SuDS that comply with the national standards and provide other multiple benefits. This will ensure design proposals would be approved by the SAB prior to the development being undertaken and will ensure that drainage disposal does not become an obstacle to the development plans. Due to the complexities associated with SuDS, the need for a SuDS solution may steer the overall design and layout of the development particularly on larger development sites Planning Policies Planning Advice The long-term building of SuDS, introduction of SWMP s and installing flood resilience measures all have the potential to limit or reduce the number of people exposed to flooding. The installation of sewerage systems that separate surface and foul water, with surface water going to rivers and foul to treatment, increases capacity in the sewer network, and reduces sewer flooding as rainwater does not get into the foul system. Bolton developed during a period when sewers were installed that accepted both foul and surface water, known as combined sewers. Much of the older parts of the town are likely to depend on combined sewers for the foreseeable future. Combined sewers also need overflows which spill to river during storms rather than cause flooding. This may in some areas have an impact on river water quality. If large-scale redevelopment is proposed such as in renewal areas, opportunities to re-sewer areas to introduce separate systems should be explored. If Schedule 3 of the FWMA is commenced, it will be a requirement for developments to install SuDS. How this requirement will be applied and to what extent is currently unknown. Commencement of Schedule 3 will also empower the SAB to withhold permission for developments to connect to a combined or surface water sewer should not all alternative methods of surface water disposal have been examined. The FWMA introduced the potential to implement future changes to building regulations to make it a requirement to install flood resilience measures to houses when undertaking works to properties that require building control approval such as extensions to existing property. However, there needs to be a more strategic approach to deal with development in or contributing to high flood risk areas, this might include: In areas subject to re-development Enhanced constraints on surface water discharge rates, Demand the construction of effective SuDS, Car parking, access and finished floor levels constructed above flood level, Make topographic changes to create safe run-off routes. Promote rain water capture. 46

53 During large developments explore opportunities for the re-sewerage of areas (removal of surface water from existing sewer networks) Previously Undeveloped areas As the above plus the construction of high quality landscaping that incorporates soft landscape SuDS. Current economic and market conditions could result in the number of developments being low over the next 5 to 10 years which may limit progress. Bolton s core strategy sets out the areas proposed for the location of new housing. These areas are mainly currently developed and the focus of the strategy is on urban renewal. It estimates that 80% of housing development will be on previously developed land 23. Location Percentage of new dwellings to 2026 Bolton town centre 10-20% Renewal areas 35-45% Horwich Loco Works 10-15% Outer areas 20-30% One of the objectives is to build housing at increased densities of at least 30 dwellings per hectare. However, building at high densities will potentially narrow and limit the number SuDS solutions that can be achieved. A further aspect of development in the above areas is that much of the land has previously had industrial uses and has a legacy of contamination. Detailed ground investigation is required to establish whether favourable ground conditions exist before promoting and infiltration SuDS solutions. The older urban areas, such as Bolton town centre, are virtually exclusively drained to combined sewers. Often in areas such as these there is little opportunity, except where a development is very near or immediately adjacent a watercourse, to dispose of surface water other than to a combined sewer. This may limit a development site s drainage options with regard to SuDS in some urban locations. It also highlights the need for the potential construction of new strategic surface water drainage infrastructure in some areas. Development can lead to pressure to culvert existing open watercourses or leave existing culverts buried. However, open watercourses form an important part of the landscape, provide habitats for wildlife and allow flood water to efficiently enter the land drainage network. Culverting watercourses can increase the risk of flooding, increase routine maintenance costs and destroy wildlife habitats. Consequently we shall develop and implement a Culverting Policy that explains our policy regarding applications to culvert ordinary watercourses, including good practice, design principles and guidance. 23. Local Development Framework Bolton s Core Strategy Development Plan Document. March

54 8.3 Assets Maintaining and improving Flood Risk Management systems to reduce the likelihood of harm to people and damage to the economy, environment and society. Where as land owner or as Highway Authority has responsibility for maintenance of assets, we shall through regular risk based inspection and monitoring of land drainage infrastructure reduce the likelihood of flooding by making sure to the best of our endeavours that assets are kept functioning. By ensuring we undertake improved monitoring and maintenance regimes, this will deliver a reduction in flood risk without undertaking capital expenditure, as assets will be less likely prone to blockage or collapse whilst operational. Where other parties are responsible for the asset we will ensure the risk of blockages or collapse to culverts is reduced, by undertaking the work as the LLFA or by taking enforcement action. The initial phases of work will be: 1. Creation of an inventory of assets following desk top and field surveys. 2. Assessing the economic and environmental risk posed by failure of the assets found. 3. Prioritisation of assets by flood risk and potential effect of a failure in service. 4. Scheduling regular risk based inspection and monitoring visits. Some assets can be inspected by an officer visiting a location to make a visual survey to assess current condition and maintenance requirements. Underground assets may require more expensive CCTV or man-entry surveys. The length of cycles between visits will be established through a risk based analysis or by following current accepted good practise. Poor condition assets may be inspected on a more frequent basis to monitor deterioration. These cycles will be constantly reviewed as more data is accumulated. We will take an infrastructure asset management approach to the long-term maintenance of water assets. Infrastructure Asset Management is a holistic management framework that is accepted as best practise for demonstrating good stewardship of infrastructure. Its ethos is a regime of planned maintenance rather than reactive maintenance initiated by asset failure. Its concept is one of a logical and holistic framework that draws together a plethora of information such as, condition data, asset valuation, policies and strategies, customer surveys, local plans, performance indicators, value management etc. Utilising this information decisions can be made on where to invest to gain the best rate of return, whilst providing a customer focused service. This rate of return though may not be based on purely monetary grounds and may take into account societal and environmental factors in its determination. 48

55 The main themes of asset management can be summarised as: Strategic Approach: Whole of Life: Optimisation: Resource Allocation: Customer Focus: A systematic process that takes a long-term view. The whole-life/life-cycle of an asset is considered. Maximising benefits by balancing competing demands. Allocation of resources based on assessed needs. Explicit consideration of customer expectations. Asset management is a cyclical process that is constantly undertaken and monitored. The figure 8.1 below illustrates the elements of the cycle. Figure 8.2: The asset management cycle An Asset Management Plan for all water and land drainage assets will be drawn up to establish the process and procedures for undertaking asset management. It is proposed to establish a programme of maintenance works that support the objectives of improving flood risk. This might range from wholesale replacement of culverts to improvement to existing debris screens. The aim is to ultimately move to a regime where investment decisions are based on an evidence base that addresses risk rather than be founded on available resources. This will lead to better budget planning and improved project prioritisation. As part of the objectives of this strategy we shall develop a Water Assets Management Plan in accordance with industry best practice and standards. 49

56 8.3.2 Highway Authority Drainage Most highways contain drainage designed to take water off the surface of the highway and to transport the water so that it is discharged safely away from the road. Drainage is an important element of the highway, as it prevents water building up on the surface which could be dangerous to highway users, and it prevents water damage to the highway surface. In urban areas, the highway often relies on the public sewer network managed by UU for disposal of surface water. Highway flooding problems can occur due to damage or blockages within the system. However, even when the system is well maintained, there may be circumstances when flooding still occurs. This could be due to exceptional rainfall or when the capacity of a public sewer is exceeded or simply the gully grating becoming blocked. Highway flooding can often cause flooding to property where the surface water runs-off the road. To prevent this type of flooding and ensure that the highway is safe, it is essential that routine maintenance is undertaken to ensure that the drainage system is working efficiently. Run-off from highways can, at times, be a significant polluter of watercourses. Vehicles produce heavy metal pollutants normally copper, zinc and iron as a result of wear of metallic surfaces and brakes, hydrocarbons as oils and greases as a result of leakage. Other metals may be present but these three are the most damaging to bio-systems. After extended periods of dry weather, pollutants particularly in the form of silt, oils and metals build up on highway surfaces which can get washed into rivers in one short flush. When these conditions occur, the run-off from the highway can sometimes be very polluting. Studies have shown draining via SuDS do have a significant benefit of retaining much of the metallic, oil and grease pollution entering the environment. As the Highway Authority, is also responsible for management of the highway network. Upon commencement of Schedule 3 of the FWMA, new highway drainage systems will be designed to incorporate where possible a SuDS train that will result in cleaner discharges to the water environment. Water usually enters highway drainage systems via grids in the highway that discharge to gully pots. The main purpose of gully pots is to prevent surface run-off from carrying sediment into drains, sewers which cause blockages or restrict flow in the systems and carrying in onward to the water environment. Gully pots functions are: By a water seal they reduce odours from sewers. They trap sediment and reduce pollutant load. They can retain oil and floating pollutants. Failure to clean, maintain and empty gully pots can result in sediments building up to the extent that they block up and stop working, this can result in flooding on the highway or contribute to flooding from highway run-off. In addition poorly drained highways become damaged quicker and deteriorate faster and require more investment to keep them maintained. 50

57 A gully cleaning policy aimed at reducing flood risk also needs to aim at taking actions to reduce pollutants reaching the environment. This could mean targeted and more frequent cleaning of gully pots on busy roads and in particular identifying locations where the highway drainage discharges to smaller or sensitive water bodies. At these locations the effect of pollution on these water bodies is potentially damaging so careful management of gully cleaning routines need to be considered. It is proposed to undertake an in-house study and to determine a risk-based gully pot cleaning regime. Similarly the disposal of arisings from gully cleaning contain pollutants, the disposal of such waste needs to be undertaken carefully so as to not impact on water resources. Some authorities use on-site recycling facilities that treat the waste, separate out reusable sand and reduce the quantity of waste being disposed of at waste treatment sites. Some have utilised more natural solutions such as reed bed treatment sites that treat the whole of the waste by retaining metals and removing oils. As highway authority we will be responsible for maintaining highway drainage constructed as part of a SuDS systems, once Schedule 3 of the FWMA is commenced. It will be an important consideration in the design of these systems on how pollution can be tackled. In addition it may be possible to seek opportunities to retro-fit SuDS to existing highway drains where possible. These new SuDS highway drainage systems may not, in every case, discharge to the public sewer system, so alternative means of water disposal will need to be examined. The construction of highway drainage systems incorporating SuDS is a new arena, and requires quite different construction techniques, standards, and materials to normal piped drainage systems. as Highway Authority, or in collaboration with other authorities, will need to produce a design standard to which developers can work in order to fulfil agreements for the adoption of roads. 8.4 Management of Other Assets Key to the delivery of reduced flood risk is ensuring all flood risk assets are managed regardless of ownership. The majority of watercourses in the area are in private ownership, this does present problems as owners are often not aware of their responsibilities for maintenance and sometimes even unaware of the existence of a culverted watercourse and their associated liabilities. Through the creation of an asset register we will ensure that asset owners are identified, made aware of their duties and responsibilities, and the register will enable effective management of these water assets. Assets on the register will be monitored by the Council to ensure they perform, are well maintained and operate effectively. By working with owners of surface water assets to undertake improved maintenance regimes, this will deliver a reduction in flood risk without owners having to undertake the large expenditure required to improve or replace culverts. Privately owned assets that provide a protection against a significant flood risk will be designated by. This is a legal process under the FWMA and has been introduced to ensure that privately owned features are properly maintained and perform their function into the future. Owners of designated features are required to apply for approval to if they wish to 51

58 alter or remove the designated feature. has a role in ensuring such features are properly maintained by their owners. will also have a consenting role where asset owners wish to make physical changes to watercourses to enable development or other purposes. Actions such as culverting a watercourse will need to be approved by the authority to ensure these new assets do not pose an increase to flood risk. The authority has additional powers to take enforcement action against landowners who do works without consent. Under the Land Drainage Act (LDA), has enforcement powers to ensure that where blockage to a watercourse has occurred that the relevant land owner undertakes work to remove the blockage. We will ensure any necessary enforcement of the LDA or FWMA is undertaken where there is a flood risk. is aware that parties are often not aware of their duties and responsibilities in respect of owning watercourses and land drainage law. Consequently, we will pursue a policy of education rather than litigation when dealing with preliminary enquiries. When deciding on whether to take enforcement action officers will decide on the appropriateness and scale of any action taken against persons infringing the LDA. Any action taken will be proportional, consistent, transparent, and targeted. 8.5 Governance and Local Partnerships Regional Governance Structure Regional governance is made up of several committees and groups that work together to deliver flood risk management in this area. The Regional Flood and Coastal Committee (RFCC) is a statutory body set up by the Environment Agency that oversees and allocates flood defence funding in the region for both Environment Agency and local government programmes. In the city region, the Greater Manchester Flood and Water Management Board manages the GM-SWMP and agrees candidate flood defence projects prior to their consideration by the RFCC North West Regional Flood and Coastal Committee (RFCC) The North West RFCC is responsible for reviewing flood defences in the Region and for determining how the defences will be managed in years to come. The North West RFCC is a committee established by the Environment Agency under the Flood and Water Management Act 2010 and takes the place of the North West Flood Defence Committee (FDC). It brings together members appointed by Lead Local Flood Authorities (LLFAs) and independent members with relevant experience for three purposes: 52

59 To ensure there are coherent plans for identifying, communicating and managing flood and coastal erosion risks across catchments and shorelines. To promote efficient, targeted and risk-based investment in flood and coastal erosion risk management that optimises value for money and benefits for local communities. To provide a link between the Environment Agency, LLFAs, other risk management authorities, and other relevant bodies to engender mutual understanding of flood and coastal erosion risks in its area. The Committee plays an integral part in the flood defence schemes that are developed in the North West and provides advice on how flood defence work should be managed. All meetings are open to the public. The North West RFCC covers a geographic area encompassing the regions of Manchester, Merseyside, Lancashire, and Cumbria Greater Manchester Flood & Water Management Board AGMA has now established the Greater Manchester Flood & Water Management Board providing governance and direction for AGMA s flood risk management work programme. The board is made up of the Chief Planning Officers from the ten authorities with the addition of representations by the Environment Agency and United Utilities. Current priorities include: Delivery of the GM Surface Water Management Plan. The next stages of the Preliminary Flood Risk Assessment. Establishing capacity to ensure delivery of new duties and powers. Establishing collaborative structures to facilitate joint working, communication and cooperation between districts. Establishing a strong working relationship with the RFCC The Technical Flood Risk Officers Group (T-FROG) This group made up of technical leads from each of the ten local authorities is now well established and meeting regularly. The current focus is on planning a way forward for councils to discharge their new duties, develop skills and capacity through workshops, seeking collaborative opportunities and managing outputs from the Surface Water Management Plan. Through our links with neighbouring authorities, the Local Government Association and other professional bodies we will share our experience and expertise, and learn from each other. Key staff will need to understand industry best practice through participation in on-going learning and training, which can be passed on to this group. 53

60 Figure 8.3 : Regional and Local Governance Organogram Regional Flood and Coastal Committee (RFCC) Regional Governance and funding Defra appointed Chair Cllr Derek Antrobus (Salford) Councillor Molyneux (Wigan) Councillor Andrews (Manchester) Councillor Brodsworth (Stockport) Wider Leadership Team AGMA wide decision making Greater Manchester Flood & Water Management Board Planning Officers Group, Lead Drainage Engineers, GM Resilience Unit Representative, EA Representative and UU Representative (Quarterly meeting) Technical Flood Risk Officers Group District Technical Level leads and Operational managers, Planners and GM Resilience Team. Representatives from all 10 authorities. Local scrutiny and oversight arrangements x 10 (local cabinets or executive members as appropriate) Bury, Bolton, Manchester, Oldham, Rochdale, Salford, Stockport, Tameside, Trafford, Wigan 54

61 8.5.5 Local Governance is governed by a leader and cabinet executive system. Executive Cabinet Members are given powers to act on behalf of the Council for specific functions of the authority. Any decisions made by the Member are examined at a Scrutiny Committee meeting which comprise other and opposition elected councillors. In Bolton the relevant Executive Cabinet Member will undertake the functions of both the planning control function and engineering functions of the Council. The Policy and Development Group will steer the policies of with regard to flood risk management and how we engage with other flood risk management authorities. Previous meetings have invited representatives of United Utilities, where members have closely scrutinised the local role and actions of the company. This group will provide the overview and scrutiny role in Bolton to hold all the various risk management authorities in the area to account. The relevant head of service will have delegated authority to undertake any day to day management requirements of the FWMA. The Greater Manchester Flood & Water Management Board will produce elected member briefing notes to inform of progress with the SWMP and give notification of any changes in the flood risk management field. The final version of the strategy is to be approved by the PDG where the contents will be clearly explained and in particular its local relevance to other existing priorities. There are several functions of the authority which are operationally managed by officers that provide elements of flood risk management namely: Flood Risk Management (Engineering) Planning Control Spatial Planning and Planning Strategy Civil Contingencies Highway Authority 55

62 Figure 8.4 : Local Governance - Flood Management Structure Organogram. Developing and updating response plans, operational readiness Civil Contingencies Team / GMCCRU Multi Agency Flood Response Plan Business continuity Warning and Informing Flood Risk Management (Engineering) Operational maintenance / inspections SAB (from 2013/14) Customer Enquiries Asset Registers FWMA duties Consultation on Planning and Building Control Applications Planning Development Control Building Control Liaison on development of strategic planning documents and policy Planning (Spatial Planning and Planning Strategy) Supplementary Planning Documents LDF Sustainability Policy Strategic Planning Developing Planning Policy Documentation. Advising on planning applications. Flood Management Group - Co-ordination of the above activities Group Comprises: Assistant Director (Highway and Engineering) Chief Planning Officer Operational Flood Risk Management Team Leader Civil Contingencies Planning Officer (Sustainability) Greenspace Manager Executive Cabinet Member for Environment Services and Development and Regeneration Departments. 56

63 8.6 Civil Contingencies and Resilience The Civil Contingencies Act 2004 is one of the most relevant pieces of legislation to emergency planning for flooding. It formalises a number of duties on local authorities, the emergency services and other organisations involved (including the Environment Agency) in responding to any emergency. Amongst these are contingency planning and risk assessment for emergencies at the local level, including flooding. The Act lists local authorities, the Environment Agency, and emergency services as 'Category 1' responders to emergencies. It places duties on these organisations to: Undertake risk assessments. Manage business continuity. Carry out emergency planning. Share information and cooperate with other responders. Warn and advise the public during times of emergency. Local resilience forums (LRF s) of which the Environment Agency is a member in all regions are responsible for developing multi-agency flood plans (MAFPs). These plans allow all responding parties to work together on an agreed co-ordinated response to flooding. Greater Manchester Civil Contingencies and Resilience Unit (GMCCRU) has completed a Multi Agency Flood Plan which sets out how a multitude of providers will respond if required and what resources they have available to draw upon in an emergency. This has been further strengthened by the government s commitment to developing a National Flood Emergency Framework (NFEF), which was published by Defra in The NFEF is a forward-looking policy framework for flood emergency planning and response prompted by Sir Michael Pitt in his report on the summer 2007 floods. It brings together information, guidance and policies and is a resource for those involved in flood emergency planning at local and national levels. Effective mapping of flood risk, with improved mapping of surface water and related flood risks alongside the information on river and sea flooding risk maintained by the Environment Agency, will help support the work of the GMCCRU in making effective risk-based planning decisions. 57

64 8.7 Partnerships with United Utilities and the Environment Agency We cannot reduce flood risk on our own, effective partnership working with others such as United Utilities and the Environment Agency are essential. Surface water systems and watercourses are complex systems with elements having different ownerships and responsibilities. United Utilities and the Environment Agency share our common goals in relation to reducing flood risk. Effective partnership working will be required to deliver the best results for communities, and deliver multiple benefits in a cost-efficient way. By focusing shared resources at priority areas, partnerships can effectively use limited resources to deliver improved outcomes. By identifying problems, we can develop joint solutions through joined up problem solving. 58

65 9.0 Flood Risk Planning and Funding 9.1 Flood Risk Planning and Management Flood risk and coastal erosion management activities require careful planning to ensure that appropriate, sustainable, options are selected and that they are implemented properly. Actions should be planned effectively, for the long-term, and provide a clear picture of what will be done to manage risk and provide multiple benefits. This may include, for example, linking with other plans such as: river basin management plans (RBMP s) and supporting biodiversity, habitat creation or improving water quality. It is essential that communities are involved in the development of these plans and that combinations of options should be considered and selected as required so that: The negative consequences of flood or coastal erosion are minimised. The likelihood of an event causing loss of life and damage is reduced. Opportunities to improve the environment are taken. The following table contains some of the plans, assessments and data collection prepared by different bodies and how these contribute to understanding and planning flood risk management. Table 9.1 : Relevant Flood Risk Plans and Data Authority Plans / data Description Environment Agency Strategic Plans National strategies to manage flood risk River Basin Management Plans Regional plans to meet the demands of the WFD Catchment Flood Management Plans Catchment specific plans that give short, medium and long term actions to reduce flood risk Technical Guidance Flood Risk Data Technical Guidance to assist LLFA s Procure flood risk data for analysis and studies RFCC Business Plans Ensure Consistency between national and local plans Review and approve EA plans and expenditure Preliminary Flood Risk Assessments Local Development Framework Strategic Flood Risk Assessments Flood Risk and Hazard Maps Surface Water Management Plans Reservoir Emergency Plans Produce PFRA report to fulfil Flood Risk Regulations Guides planning policy Local studies of flood risk for the LDF Produce risk and hazard maps to fulfil Flood Risk Regulations Local SW management strategy Manage reservoir on-site emergency plans 59

66 Authority Plans / data Description GM Civil Contingencies and Resilience Unit Multi Agency Flood Risk Plans Reservoir Emergency Plans Develop, maintain and monitor multiagency flood plans Manage reservoir off-site emergency plans United Utilities Sewerage Management Plans Long-term (+25 years) maintenance Price Review 14 - Final Business Plans 2015 to 2020 Asset Management Plans plans for the public sewer system Investment strategy for 2015 to 2020 Period specific investment plans 9.2 Funding of the LLFA It was recognised that the new roles placed on local authorities would require additional resources. This need for local authorities to spend more on flood risk management was identified in the last Comprehensive Spending Review in As a result will receive Startup Funding Allocation specifically for Flood Risk Management in its Local Services Support Grant Settlement in this Spending Review period (between 2011/12 and 2014/15). This funding is being used in Bolton to: 1. Begin visually surveying all watercourses to locate and assess all flood defences and establish ownership. 2. Create a GIS database of flood and water assets. 3. Undertake the process of designating privately owned flood defence features with owners. 4. Create and maintain a database and GIS map indicating the location of third party flood defences, their owners, importance and condition data. 5. Support AGMA in the SWMP process. 6. Deliver any early local actions in the SWMP. 7. Investigate causes of flooding where appropriate. 8. Create a record of flooding events and causes. 9. Administer the consenting of changes by private owners of changes to watercourses. 10. Make drainage and flood risk comment on Planning Applications. 11. Undertake the flood risk management strategy action plan. It will also be used to regulate and maintain publically adoptable SuDS when this part of the legislation is commenced. 9.3 Funding of Projects In May 2011, Defra introduced a new approach to the way that funding is allocated to flood defence projects. Instead of meeting the full costs of just a limited number of schemes, the partnership approach to funding flood resilience means that government money is potentially 60

67 available towards the costs of any worthwhile scheme. Funding levels are based on the numbers of households protected, the damages being prevented, and the other benefits a project would deliver. Overall, more schemes are likely to go ahead than under the previous all or nothing approach. Partnership Funding aims to provide improved transparency and greater certainty over potential funding levels from the general taxpayer for every flood and coastal defence project. It also aims to allow local areas to have a bigger say in what is done to protect them and puts added emphasis on providing support to those most at risk and living in the most deprived parts of the country. These partnerships will be closely aligned to local strategies and development plans produced by local authorities, in consultation with communities. As long as minimum criteria are met, all new defences and capital maintenance projects are eligible for partnership funding, as are those protecting individual properties and managing risk from surface water and groundwater. By partially funding projects, it will mean nationally there is potential for more projects to go ahead. However, when projects are partially funded it will require a contributory element of funding that will need to be found locally, either from the community, business or individuals. All local authorities raise a levy from households which is included in Council Tax. This levy produces regional funding that can be used to help fund local flood risk projects which do not qualify for full central government funding. This levy funding is allocated by the RFCC to local priority projects. The Community Infrastructure Levy (CIL) is a tariff that local authorities may charge in connection with the grant of planning permission to secure additional funding for infrastructure. The levy is a locally set fixed rate charge, based on square metres of net additional floorspace. It is payable when construction commences. The Council must then use this money for infrastructure provision across the borough, such as highways improvements, open spaces or education provision. The use of CIL for flood risk management projects is one that will be explored once the charging scheme is commenced. will actively work to identify surface water flooding projects, and where suitable projects are identified, to promote and apply for funding. This may be conditional on local funding being found if only partial funding for a project can be secured. 61

68 Figure 9.1 Funding streams for local investment 62

69 10.0 Local Flood Risk Policies The Flood and Water Management Act introduces several duties on the authority, the extent to which these duties are met and fulfilled is dependent on how we set local criteria and thresholds. These duties and the local criteria for implementing these duties are set out below: Duty / Service Local Strategy The Act also requires a lead local flood authority to develop, maintain, apply and monitor a strategy for local flood risk management in its area. Duty to investigate We have a duty to investigate flooding incidents in our area where the authority believes this to be appropriate or necessary. The purpose is to identify which risk management authorities have responsibilities in terms of undertaking investigation or risk management functions, and what they have done or intend to do. In some cases, it is likely that there may be a number of factors contributing to a flooding incident and some flood risk authorities may resist accepting responsibility. In this case we may have to make a detailed investigation. Policy It will be our policy keep the local strategy initially under biennial review. Progress reports will be monitored by an Assistant Director in Environmental Services as and when necessary. It will be our policy to make an initial study where property is flooded internally, or when critical infrastructure or priority highways are affected, and another flood risk management authority is not already investigating. We will not guarantee publishing investigations where less than five properties are affected. Our investigation policy is detailed in section The lead local flood authority will then be required to publish the results of any investigation, and notify any relevant authorities. Duty to maintain a register We have a duty to maintain a register of structures or features which we consider have a significant effect on flood risk in their area, at a minimum recording ownership and state of repair. The register must be available for public inspection. Locally we consider that assets whose failure in service would potentially result in a flood that meets the thresholds stated in the investigation table overleaf, are assets that shall be included in the register. Ensuring Progress The Act does not require routine reporting on performance, but allows information to be requested where necessary. In addition, the Act enables overview and scrutiny committees in lead local flood authorities to hold all the risk management authorities to account. In this way, the public can be actively involved in ensuring authorities perform. Power to do works The Land Drainage Act provides the lead local flood authority with powers to do works to manage flood risk from surface runoff and groundwater. All works must be consistent with the local flood risk management strategy for the area. It will be our local policy to invite the local flood risk management authorities to the Environmental Services Scrutiny Committee to present how they meet their current functions, and details of their flood risk reduction investment programmes, on an annual basis. Subject to funding we will undertake work to reduce flood risk that is consistent with the local strategy. We can apply for funding to do works via Defra or RFCC local levy funding. 63

70 Duty / Service Enforcement of the Land Drainage Act Occasional emergency works are required where due to a blockage or collapse of an asset flooding occurs that is significant and likely to continue unless repair works are undertaken. We rely upon enforcement of the Land Drainage Act to ensure land owners undertake repair works. Where the problem is significant and the land owner is not identifiable or is unwilling to undertake the work may undertake repair work on a recharge basis. Designation of third party assets The Act provides the authority with powers to designate structures and features that affect flooding. The powers are intended to overcome the risk of a person damaging or removing a structure or feature that is on private land and which is relied on for flood risk management. Policy It will be our local policy to undertake enforcement action where applicable and in accordance with the principles of being proportional, consistent, transparent and targeted. Our local policy will be to consider that any structure or asset on private land that protects against (internal) flooding of any property, critical infrastructure or priority highways shall be designated. Once a feature is designated, the owner must seek consent from the authority to alter, remove, or replace it. If someone does make a change to a designated feature, then the authority may issue an enforcement notice which will set out any steps that must be taken to restore a feature. An individual may appeal against a designation notice, refusal of consent, conditions placed on a consent or an enforcement notice. Weather and Emergency Response Recent development in flood forecasting and warning have enabled authorities to plan a response to weather emergencies. This has led to the authority undertaking inspection and checking for debris blockages, followed by debris clearance on culvert grilles prior to a predicted weather event on a more frequent basis. This reduces the flood risk due to blockages occurring during significant rainfall events. It will be our local policy to undertake an emergency response on a best endeavours basis. However, resources at the authority are limited and an emergency response can only be undertaken on a best endeavours basis particularly during a weather emergency. This may result in some tasks not being achieved and a consequential risk of flooding occurring. Culverting of Watercourses Watercourses are important features of the landscape and provide habitats for a wide variety of wildlife. It is therefore important that watercourses and their associated habitats are protected and enhanced for the benefit of present and future generations. However, we recognise that in some circumstances culverting of watercourse is unavoidable. Consequently, a policy is required on our approach to applications to culvert watercourses. Our culvert policy is included in appendix C. 64

71 10.1 Investigation Policy A study into the causes of flooding will be carried out where any of the following criteria are met: The internal flooding of one property (either domestic or business) has occurred. Flooding to priority highways (priority highways include Motorways, A-Class roads, roads adjacent to important transportation infrastructure, hospitals, or fire and rescue facilities.) Flooding to gardens or open space where there was a risk to life, taking into consideration land use, depth and velocity of flood water. Where a flood occurs that meets any of the above thresholds and another risk management is not investigating the cause, or where the source of flooding is uncertain. Having undertaken a study a formal investigation under the FWMA may be undertaken. We do not guarantee undertaking a formal investigation unless more than five properties in the same location have been internally flooded during a single flooding event. 65

72 11.0 Our Local Flood Risk Strategic Objectives Bolton s Flood Risk Management Strategy The local strategy is not a static document, it will need to be revised by the Authority as necessary to reflect the current political, economic and environmental demands of the time. A key role of a strategy is to make the connections between the high-level strategies nationally, regionally and locally, governing the authority s flood risk management work and the day-to-day decisions the Authority makes when managing the drainage and watercourse network. This chapter sets out the objectives that aim to support the National Strategy, the Greater Manchester Strategy (GMS), and s Community Strategy. Economic Objectives Reducing economic damage from flooding will make Bolton economically and socially resilient and provide a basis for growth. To reduce annual flood damages to property and businesses. Minimise the whole life cost of water assets, whilst maintaining good service levels, and reducing insurance claims. Ensure development is resilient to meet the demands of economic and population growth. Environmental Objectives A cleaner and greener Bolton is key to making our local areas more attractive. 24 The introduction of sustainable drainage systems and their associated features underpins the objectives of promoting sustainable development. To promote sustainable drainage systems. Ensure new development is resilient to climate change. Reduce pollution in the water environment. Enhance our built heritage and landscapes. Social Objectives Studies have shown that flooding can have a significant impact on both physical and mental health. Deprived communities have been shown to be the hardest hit financially and in terms of health by flooding events. To reduce the risk to life. To reduce the impact of flooding on communities, particularly in deprived areas. To promote awareness of flood risk and how it can be managed. To promote access to SuDS for recreation and amenity. 24. Bolton Community Strategy Our Vision

73 12.0 Flood Risk Management Measures The following flood risk management measures have been identified which support our strategic objectives. Studies, Assessments and Plans 1. Provide continued support to, and collaborate with other local authorities in supporting and progressing the Greater Manchester Surface Water Management Plan. 2. Prepare flood risk and flood hazard maps in accordance with the Flood Risk Regulations. 3. Prepare flood risk management plans in accordance with the Flood Risk Regulations. 4. Undertake studies to identify locations where there is high risk to: communities, business, listed buildings, heritage assets and critical infrastructure. 5. Produce a programme of improvements to mitigate flood risk. 6. Identify the parts of the road network most at risk of flooding. 7. Examine opportunities on the highway network to mitigate the risk of flooding and for reducing pollution. 8. Develop local highway adoption standards for highway SuDS. 9. Ensure that flooding emergency response procedures are kept up to date and are fit for purpose. 10. Undertake an assessment of Flood Risk Management activities to ensure that these are WFD compliant. Development Planning and Climate Change 1. Ensure new development complies with the national standards on SuDS (when enacted). 2. Promote the use of green and blue infrastructure. 3. Ensure development and infrastructure takes account of, and is resilient to, the effects of Climate Change. 4. Improve the heritage and legacy of development through enhanced landscapes, improved quality of open spaces, and habitat creation. 5. Ensure close co-operation between the SAB and the Planning Authority. 6. Ensure the SAB has input into local plans and development master plans. 67

74 Flood Awareness and Communication 1. Communicate with residents in high flood risk areas and how they should prepare for and respond to a flood. 2. Communicate with businesses in high flood risk areas on how they can mitigate risk and what they can do to be resilient to flooding. Asset Management and Maintenance 1. Develop a Water Asset Management Plan. 2. Utilise the latest technology to manage and maintain flood risk assets by utilising and developing mobile working technologies. 3. Mitigate any surface water flooding problems identified on key or strategic roads as far as practicable. 4. Improve our knowledge of highway drainage systems. 5. Implement improvements in the management of highway drainage. 6. Develop and implement a culverting policy for watercourses and drainage systems. 7. Work with asset owners to improve the maintenance regimes of surface water assets as this offers the greatest opportunity to reduce flood risk without capital investment. 8. Ensure co-operation with all Risk Management Authorities and other relevant stakeholders in the area during flood risk projects, so that joint opportunities to improve assets and explore ways to collectively reduce any residual flood risk. 9. Ensure any capital works or maintenance activities undertaken by the authority or by others are WFD compliant. Land Management 1. Mitigate flood risk through changes in land management. 2. Encourage and promote the construction of SuDS that include recreational facilities, footpaths for walking, wildlife watching, cycle routes etc. 3. Utilise SuDS as an educational resource. 68

75 13.0 Future Progress To demonstrate successful delivery of reduced flood risk in Bolton we will monitor progress, review and update where necessary this strategy. Due to the incremental introduction of the legislation and national standards we will need to ensure that the strategy is in harmony with current and future regulations. It is planned to review this strategy in 2014/15 when it is likely that all the proposed legislation and guidance has been introduced. Future reviews may be at a longer interval. An action plan in the form of a separate document has been produced which contains more detail on actions that support the above measures, how these are to be time-framed, funded and the means of measuring their success. 69

76 Glossary ABI Act ADA Assets AGMA Aquifer Average Annual Damages Blue Space Bolton at Home Building Regulations CABE Catchments CCTV CFMP CLA Climate change Critical Infrastructure Cultural heritage Culvert DCLG Defences Defra Deposition Drainage authorities EA Emissions Scenario Expected Annual Damage FCERM FDiGA Association of British Insurers A Bill approved by both the House of Commons and the House of Lords and formally agreed to by the reigning monarch (known as Royal Assent) Association of Drainage Authorities Structures, or a system of structures used to manage flood risk. Association of Greater Manchester Association Strata that holds or transmits groundwater The average cost of flood damage per year to a receptor or development caused by flooding over a long period of time. An urban area set aside for the storage or conveyance of surface water. Local Housing Association (formerly manager of the Council s Housing stock) The UK Building Regulations are rules of a statutory nature to set standards for the design and construction of buildings, primarily to ensure the safety and health for people in or around those buildings, but also for purposes of energy conservation and access to and about other buildings Commission for Architecture and the Built Environment An area that serves a river with rainwater, that is every part of land where the rainfall drains to a single watercourse is in the same catchment. Close Circuit Television Catchment Flood Management Plan Country Land and Business Association The change in average conditions of the atmosphere near the Earth s surface over a long period of time. Installations such as national grid sub-stations, hospitals, water infrastructure and COMAH sites, whose failure in service would have widespread impacts. Can include transport infrastructure. Buildings, structures and landscape features that have an historic value. A covered manmade structure, usually a pipe, passing under a road, embankment etc, to direct the flow of water. Department for Communities and Local Government A structure that is used to reduce the probability of floodwater affecting a particular area (for example a raised embankment) Department for Environment, Food and Rural Affairs The process whereby sediment is placed on the river bed or floodplain. Organisations involved in water level management, including IDBs, the Environment Agency, and RFDCs. Environment Agency Projection of possible levels of greenhouse gas emissions throughout the twenty-first century (low, medium and high) used by UKCP09 The average cost of flood damage per year to a receptor or development caused by flooding over a long period of time. Flood and coastal erosion risk management Flood Defence Grant in Aid 70

77 Flood Fluvial Flooding GIS GMCCRU Green space Grey Water Groundwater flooding IDB Important infrastructure LDA LDF LGA Listed Building LLFA LNR LRF LWT Main River NFU NPPF Ordinary watercourses PFRA Pluvial Flooding RAMSAR sites RBMP Receptor Recovery Reservoir Resilience The temporary covering by water of land not normally covered with water Flooding from overflowing rivers and streams. Geographic Information System Greater Manchester Civil Contingencies and Resilience Unit. An area within the urban environment comprising grass, trees, or other vegetation set apart for recreational or aesthetic purposes. Wastewater generated from domestic activities such as laundry, dishwashing, and bathing, which can be recycled on-site for uses such as landscape irrigation and constructed wetlands. Occurs when water levels in the ground rise above the natural surface. Low-lying areas underlain by permeable strata are particularly susceptible. Internal drainage board Infrastructure that supplies essential services, for example, water, energy, communications, transport. Land Drainage Authority or Land Drainage Act Local Development Framework Local Government Association A building that has been placed on the Statutory List of Buildings of Special Architectural or Historic Interest. Lead local flood authority Local Nature Reserve Local resilience Forum Lancashire Wildlife Trust A watercourse shown as such on the Main River Map, and for which the Environment Agency has responsibilities and powers National Farmers Union National Planning Policy Framework All watercourses that are not designated Main River, and which are the responsibility of Local Authorities or, where they exist, IDBs. Preliminary Flood Risk Assessment Flooding from rainfall Wetlands of international importance designated under the Ramsar Convention River Basin Management Plans Receptor refers to the entity that may be harmed by flooding either people, property, infrastructure or key services The process of rebuilding, restoring and rehabilitating the community following an emergency. A natural or artificial lake where water is collected and stored until needed. Reservoirs can be used for irrigation, recreation, providing water supply for municipal needs, hydroelectric power or controlling water flow. The ability of the community, services, area or infrastructure to avoid being flooded or lost to erosion, or to withstand the consequences of flooding or erosion taking place. 71

78 Return Period RFDC RFCC Risk Risk assessment Risk management authorities River flooding RSPB SAC SBI SCI SEA Sewerage Flooding SFRA SME SPA SSSI Standard of protection SuDS Surface water flooding SWMP Bolton s Flood Risk Management Strategy A return period also known as a recurrence interval is an estimate of the average interval of time between a rainfall event of a certain intensity or size. Regional flood defence committee Regional flood and coastal committee Measures the significance of a potential event in terms of likelihood and impact. In the context of the Civil Contingencies Act 2004, the events in question are emergencies A structured and auditable process of identifying potentially significant events, assessing their likelihood and impacts, and then combining these to provide an overall assessment of risk, as a basis for further decisions and action. Organisations that have a key role in flood and coastal erosion risk management as defined by the Flood and Water Management Act (2010). These are the Environment Agency, lead local flood authorities, district councils where there is no unitary authority, internal drainage boards, water companies, and highways authorities. Occurs when water levels in a channel overwhelms the capacity of the channel. Royal Society for the Protection of Birds Special Area of Conservation Defined in Habitats Directive Site of Biological Interest: a non-statutory local designation that indicates an area of biological diversity. SBI s have no legal protection. Site of Community Importance Defined in Habitats Directive Strategic environmental assessment Flooding caused by overflowing sewers Strategic Flood Risk Assessment Small and Medium Enterprises Special Protection Area Defined in Habitats Directive Site of Special Scientific Interest. An area of land that is of special interest by virtue of its fauna, flora, geological or physiographical / geomorphological features. SSSI s have some legal protection. The flood event return period above which significant damage and possible failure of the flood defences could occur. Sustainable drainage systems Flooding from rainwater (including snow and other precipitation) which has not entered a watercourse, drainage system or public sewer. Surface Water Management Plan: A Plan for managing the component of pluvial flooding directly caused by extreme rainfall or sewerage. UKCP09 United Kingdom Climate Projections 2009 UU United Utilities; the local sewerage undertaker Watercourse A channel (natural or artificial) along which water flows usually from a natural source. WFD Water Framework Directive 72

79 Appendices A B C D What are Sustainable Drainage Systems (Suds) References / Evidence Base Culvert Policy Flood Risk Management Action Plan 73

80 Appendix A Sustainable Drainage Systems (SuDS) What is a SUD? Many years of development in our towns, cities and road networks, has resulted in large areas of the country being covered in impermeable surfaces like tarmac and concrete. These areas are drained by grids, gullys and pipes which usually discharge to rivers and sewers. In heavy rainfall this leads to all the water falling on to these surfaces to quickly run-off, this can cause flooding as grids and drains are unable to capture all the rain. It can cause sewers and rivers to overflow resulting in flooding to property. Roads and car parks in dry weather can store up oils and heavy metals deposits from vehicles on the impermeable surface, which is washed off into the streams and rivers in rainfall. This can damage wildlife in the water environment. Sustainable Drainage Systems (SuDS) aim to move away from the traditional use of conventional piped drainage systems, through the greater use of : Permeable surfaces Swales Filter Strips Basins Ponds and wetlands Permeable surfaces these come a various forms, they let water that falls on them pass through to be infiltrated into the ground below or drain into underground drainage systems. Figure A1 : A Permeable Surface Swales Swales are a type of drainage ditch with a vegetated surface on a gentle gradient which are mostly dry when it is not raining, normally they have a flow control 74

81 at the downstream end to control the outflow of water. The water's flow path, along with being a wide and shallow ditch, is designed to maximize the time water spends in the swale, which aids the trapping of pollutants and silt. They are often constructed adjacent car parks or highways to intercept vehicle pollutants. Figure A2: A Swale Filter Strips filter strips usually work in association with swales, they are shallow vegetated embankments which water flows over this encourages infiltration into the ground and the deposition of pollutants. Figure A3: A Filter Strip 75

82 Basins Normally dry when it is not raining, basins are used as temporary storage areas for storm water, they normally contain flow control systems which limit the amount of water that can drain away at any time. Figure A4: A Flood storage basin Ponds kept in a wet state, ponds are used in the storage of storm water, have a role in treating water to make it cleaner, and in reducing flood risk by slowing storm water run-off. They are normally contain a flow control system to limit the overflow to the next downstream water-body. Basins and ponds treat runoff in a variety of ways: settlement of solids in still water - having plants in the water enhances calm conditions and promotes settlement, adsorption by aquatic vegetation or the soil, biological activity. Figure A6: A flood storage pond 76

83 Wetlands this is land that is saturated with water either on a permanent or seasonal basis, they can have a large amount of vegetation and promote a diverse range of wildlife habitats. They have a role in reducing pollution and in flood risk reduction. Figure A7 : A Wetland Darcy Lever Gravel Pits, Bolton 77

84 Other Issues Pollution it is estimated that around half the oil pollution in the sea comes from inland run-off and drainage systems. The inclusion of swales, filter strips, ponds and wetlands in a drainage system can reduce the amount of pollution it discharges, therefore reducing the amount of oil reaching rivers and the sea. Water Safety Some people are automatic negative about water bodies being near residential communities and have concerns in respect of the safety of water environments. Best practices in the construction of ponds and basins have been established to ensure it is done to promote safety. The depth of water is kept to a limit and entry into the water is kept at a shallow gradient. This makes it easy to walk out of the water if someone was to fall in. Planting of dense waterside vegetation is also used to make it harder to access the water easily. Figure A8 : A Safe Pond Other sources of information on SuDS The websites below provide further detailed information on SuDs and additional means of providing sustainable drainage. 78