Office of Public Works DRAFT STRATEGIC ENVIRONMENTAL ASSESSMENT SCREENING REPORT Climate Change Sectoral Adaptation Plan for Flood Risk Management (2014-2019) Determination of the need for strategic environmental assessment for the Climate Change Sectoral Adaptation Plan for Flood Risk Management prepared under the National Climate Change Adaptation Framework 2538_RP/001/D FRAM Section Office of Public Works Page A.3
Office of Public Works CONTENTS 1. INTRODUCTION 1.1 BACKGROUND 1.2 PURPOSE OF THE PLAN 1.3 SEA SCREENING PROCESS 2. SCREEING CHECK, STAGE ONE 3. ENVIONMENTAL SIGNIFICANT SCREENING, STAGE TWO 3.1 THE CHARACTERISTICS OF THE PLAN HAVING REGARD, IN PARTICULAR TO: 3.1.1 CRITERIA NO. 1 3.1.2 CRITERIA NO. 2 3.1.3 CRITERIA NO. 3 3.1.4 CRITERIA NO. 4 3.1.5 CRITERIA NO. 5 3.2 CHARACTERISTICS OF THE EFFECTS AND OF THE AREA LIKELY TO BE AFFECTED BY HAVING REGARDS TO: 3.2.1 CRITERIA NO. 1 3.2.2 CRITERIA NO. 2 3.2.3 CRITERIA NO. 3 3.2.4 CRITERIA NO. 4 3.2.5 CRITERIA NO. 5 3.2.6 CRITERIA NO. 6 3.2.7 CRITERIA NO. 7 4. CONCLUSIONS Page A.4
1. INTRODUCTION 1.1 BACKGROUND In December 2012 the Irish Government published the National Climate Change Adaptation Framework (DECLG, 2012). It sets out Government policy for addressing climate change adaptation in Ireland, focussing on the key climate sensitive sectors. It mandates that certain Government Departments, other public sector bodies and Local Authorities prepare sectoral and local climate change adaptation plans. The Framework states that the sectoral plans will present evidence of a clear understanding and description of the risks presented by climate change to each sector, their vulnerability to such risks and actions both to address the risks and ensure the climate resilience of the sectors (DECLG, 2012). The Framework outlines that the sectoral plans should be revised every 5 years. The Office of Public Works (OPW) is responsible for producing the Climate Change Sectoral Adaptation Plan for Flood Risk Management. Greenhouse gas mitigation will be addressed, in parallel, through the National Low-Carbon Roadmap which will incorporate several sectoral roadmaps including the Built Environment. The OPW is a member of the Built Environment Working Group which is developing the Low Carbon Roadmap for the Built Environment Sector. The OPW is the lead agency for flood risk management in Ireland. The National Catchment Flood Risk Assessment and Management (CFRAM) Programme is central to the medium to long-term strategy for the reduction and management of flood risk in Ireland. The Programme delivers on core components of the National Flood Policy, adopted in 2004, and on the requirements of the EU Floods Directive. The National CFRAM programme is being carried out in parallel with similar programmes across the European Union. Under the National CFRAM programme, CFRAM Studies are being undertaken throughout the country. The outputs from the CFRAM Studies will be the Flood Risk Management Plans (FRMPs). These FRMPs will set out the policies and potential measures, including guidance on appropriate future development, that should be pursued by the local authorities, the OPW and other stakeholders to achieve the most cost effective and sustainable management of flood risk within the study area taking account of the effects of climate change. Each measure will be assessed against four criteria; technical, economic, social and environmental. Scoring against these criteria helps to achieve the CFRAM Study objective of achieving the most cost effective and sustainable management of existing and potential future flood risk within the area being studied. A set of objectives are associated with each criteria. Page A.5
The degree to which a measure achieves each objective is an indication of the success of the measure in managing the flood risk. An objective on ensuring that flood risk management measures are adaptable to future flood risk is included under the technical criteria. 1.2 PURPOSE OF THE PLAN The Climate Change Sectoral Adaptation Plan for Flood Risk Management (hereafter referred to as the Plan ), is being prepared to satisfy the requirements of the National Climate Change Adaptation Framework. It will set out the OPW policy on climate change adaptation in relation to flood risk management, based on a current understanding of the consequences of climate change for flood risk management in Ireland. The objectives and outputs of the Plan include: A review of the existing science relating to the potential impacts of climate change on flooding. An outline of the potential increase in flood hazard and flood risk, with links to locations of more detailed data, drawing on the work done under the National CFRAM Programme. Information on potential increases in flood risk for consideration by other sectors. Policies on climate change adaptation to be pursued and applied in the development of flood risk management (FRM) strategies and measures. The plan will not consider specific locations and nor propose projects or measures. Detailed adaptation approaches and measures, to a specified programme, will be set out in the FRMPs developed under the National CFRAM Programme. Each FRMP is undergoing SEA and Appropriate Assessment (AA). The Plan will not specify how other sectors should provide for potential changes in flood hazard and risk. It will provide information on the potential change for consideration by those sectors, and on activity in the flood risk management sector. The Plan will be revised every 5 years. A summary of adaptation actions is presented in Appendix B. Page A.6
1.3 SEA SCREENING PROCESS The European Communities (Environmental Assessment of Certain Plan and Programmes) Regulations 2004 (S.I. No. 435 of 2004) (hereafter referred to as the SEA Regulations ), as amended by the European Communities (Environmental Assessment of Certain Plans and Programmes) (Amendment) Regulations, 2011 (S.I 200 of 2011), require the screening of individual plans or programmes, based on the criteria in Schedule 1 of the SEA Regulations. These criteria must be taken into account in determining whether or not significant effects on the environment would be likely to arise. The SEA screening process undertaken by the OPW is consistent with the process as recommended by the Environmental Protection Agency (EPA) publication entitled Development of Strategic Environmental Assessment (SEA) Methodologies for Plans and Programmes in Ireland Synthesis Report (hereafter referred to as the EPA Publication ), specifically Stage 1 (Screening of Plans and Programmes). An Appropriate Assessment Screening Report is being produced in line with the requirements of Article 6(3) of the EU Habitats Directive (Directive 92/43/EEC). 2. SCREENING CHECK, STAGE ONE The first step of the validation process was to undertake a pre-screening check using the decision tree presented in Figure 2 of the EPA publication Development of Strategic Environmental Assessment (SEA) Methodologies for Plans and Programmes in Ireland. The decision tree is based on a series of administrative questions that allows rapid screening out of plans and programmes that are clearly not going to have an environmental impact, and screening-in of those that definitely do require an SEA. The decision tree and responses to the administrative questions as they apply to the Plan are presented in Appendix A. The outcome of the pre-screening stage is that the Plan does not require an SEA because it does not provide a framework for development consent for projects. 3. ENVIRONMENTAL SIGNIFICANT SCREENING, STAGE TWO The pre-screening process indicated that a SEA is not required for the Plan, however it was further assessed against the environmental criteria contained in Schedule 1 of the SEA Regulations. Page A.7
3.1 THE CHARACTERISTICS OF THE PLAN HAVING REGARD, IN PARTICULAR TO: 3.1.1 CRITERIA NO. 1 The degree to which the plan or programme, or modification to a plan or programme, sets a framework for projects and other activities, either with regard to the location, nature, size and operating conditions or by allocating resources. The purpose of the Plan is to set out the policy on climate change adaptation to be pursued and applied in the development of flood risk management strategies and measures. The Plan will not set a framework for future development consent of projects listed in Annexes I and II to the Environmental Impact Assessment Directive. 3.1.2 CRITERIA NO. 2 The degree to which the plan or programme, or modification to a plan or programme, influences other plans including those in a hierarchy. The Plan will draw on work already underway by the OPW, in particular the National CFRAM Programme. It has the potential to influence the following flood risk management programmes, however it will not consider specific locations nor propose projects or measures; National CFRAM Programme and implementation of the 'Floods Directive' Arterial drainage maintenance Coastal protection Each of these programmes is screened for SEA or EIA and AA, as appropriate. There are currently 29 SEAs underway as part of the National CFRAM programme. 3.1.3 CRITERIA NO. 3 The relevance of the plan or programme, or modification to a plan or programme, for the integration of environmental considerations in particular with a view to promoting sustainable development. The plan is aimed at integrating climate change into flood risk management with a view to promoting sustainable and climate resilient development. The embedding of climate change in the OPW business for flood risk management will be through the National CFRAM programme, which will undergo full SEA. The impact of the integration is therefore unlikely to result in significant environmental effects over and above those identified in the SEAs of the FRMPs. Page A.8
3.1.4 CRITERIA NO. 4 Environmental problems relevant to the plan or programme, or modification to a plan or programme. The Plan will set out the policy on climate change adaptation to be applied in the development of flood risk management strategies and measures. Any detailed adaptation measures will be developed under the CFRAM studies which are undergoing full SEA. 3.1.5 CRITERIA NO. 5 The relevance of the plan or programme, or modification to a plan or programme, for the implementation of European Union Legislation on the Environment (Plans linked to Wastemanagement or Water Protection) Building awareness of, and capacity to adapt well to the impacts of climate change will positively support the OPW in achieving the objectives of the EU Floods Directive. 3.2 CHARACTERISTICS OF THE EFFECTS AND OF THE AREA LIKELY TO BE AFFECTED HAVING REGARD TO 3.2.1 CRITERIA NO. 1 The probability, duration, frequency and reversibility of the effects The purpose of this Plan is to set out the policy on climate change adaptation to be pursued and applied in the development of flood risk management strategies and measures. The Plan will not set a framework for future development consent of projects listed in Annexes I and II to the Environmental Impact Assessment Directive. Detailed adaptation approaches and measures, for various locations, will be set out in the FRMPs developed under the National CFRAM Programme. Each FRMP is undergoing SEA and AA and all significant environmental affects will be assessed as part of these processes. 3.2.2 CRITERIA NO. 2 The cumulative nature of the effects The primary effect of this Plan will be to build capacity and strengthen ability to adapt well to the impacts of climate change on the flood risk management sector. The Plan will be implemented through existing OPW flood risk management programmes which undergo SEA. All significant environmental affects will be assessed as part of these SEAs. Page A.9
3.2.3 CRITERIA NO. 3 The transboundary nature of the effects This Plan sets out the policy on climate change adaptation to be pursued in the development of flood risk management strategies and measures. As the Plan is not proposing any measures it is not anticipated that this plan on its own will be able to have significant effects. 3.2.4 CRITERIA NO. 4 The risk to human health or the environment (e.g. due to accidents) The risks to human health and the environment from climate change are potentially considerable. It is not anticipated that this plan on its own will be able to have significant effects on these issues as it is a policy document. Detailed adaptation approaches and measures will be set out in the FRMPs developed under the National CFRAM Programme which are undergoing SEA and AA. 3.2.5 CRITERIA NO. 5 The magnitude and spatial extent of the effects (geographical area and size of the population likely to be affected) The Climate Change Sectoral Adaptation Plan for Flood Risk Management will be national, but does not identify specific areas for development. Any detailed adaptation measures will be developed as part of the CFRAM Studies. 3.2.6 CRITERIA NO. 6 The value and vulnerability of the area likely to be affected due to: a) special natural characteristics or cultural heritage b) exceeded environmental quality standards or limit values c) intensive land-use The primary effect of this Plan will be to build capacity and strengthen ability to adapt well to the impacts of climate change on the flood risk management sector. The Plan will be national, but does not identify specific areas for development. Page A.10
3.2.7 CRITERIA NO. 7 The effects on areas or landscapes which have a recognised national, European Union or international protection status The purpose of this Plan is to set out the policy on climate change adaptation to be pursued and applied in the development of flood risk management strategies and measures. The Plan will be national, but does not identify specific areas for development. 4. CONCLUSIONS Following the screening process, where the context of the Plan has been assessed against the prescreening check and the environmental significance criteria as set out in Schedule 1 of the SEA Regulations it is concluded that a full Strategic Environmental Assessment is not required for the following reasons: The Plan does not provide a framework for development consent for projects listed in the EIA Directive. The propose of the Plan is to outline OPW policy on climate change adaptation in relation to the development of flood risk management strategies and measures but the Plan will not consider specific locations nor propose projects or measures. Detailed adaptation approaches and measures will be set out in the FRMPs which are undergoing SEA and AA. The Plan is not considered likely to have significant effects on the environment, therefore, an SEA is not required. Page A.11
REFERENCES DECLG, 2012 National Climate Change Adaptation Framework. Environmental Protection Agency, 2003 Development of Strategic Environmental Assessment (SEA) Methodologies for Plans and Programmes in Ireland (2001-DS- EEP-2/5). Synthesis Report and associated Final Report. Report prepared for the Environmental Protection Agency by ERM Environmental Resources Management Limited. European Communities (Environmental Assessment of Certain Plans and Programmes) Regulations 2004 (S.I. 435 of 2004). European Communities (Environmental Assessment of Certain Plans And Programmes) (Amendment) Regulations, 2011 (S.I. 200 of 2011). EU, 2007. Directive 2007/60/EC on the Assessment and Management of Flood Risk. Official Journal of the European Communities L288 of 6 th November 2007, p.27.. Page A.12
Appendix A - Decision Tree
Appendix B Summary of Adaptation Actions REF. ACTION WHO WHEN Research A.1 Improve, through research, the understanding of likely future changes in seasonal and short-duration rainfall patterns and the frequency of occurrence and severity of weather storms to inform future assessments. A.2 Assess, through research, the impacts of future changes in seasonal and shortduration rainfall patterns on land saturation and water-logging, and resultant effects on farming. A.3 Address information needs to improve adaptation to potential flood risk futures through research on the drivers of change to the climatic parameters related to flooding and on how such changes will manifest in changes in flood hazard. A.4 Address information needs to improve adaptation to potential flood risk futures through research on communication and community awareness and action in adaptive flood risk management and on decision-making under uncertainty for dissemination through the 'Climate Ireland' web platform. Assessment EPA, Met. Eireann DAFM OPW, EPA & Met Eireann OPW, EPA & Local Authorities B.1 Assessment and publication of flood hazard and risk mapping for the MRFS and HEFS for the AFAs through the National CFRAM Programme. OPW 2015
B.2 Potential impacts of climate change on the standard of protection for existing flood relief schemes to be reviewed as part of National CFRAM Programme. B.3 As part of the review of the PFRA, assess the existing standard of protection and condition and benefits of the Land Commission embankments, and assess the costs, benefits, merits and impacts of potential responses to mean sea level rise. B.4 As part of the review of the PFRA, assess the existing standard of protection and condition and benefits of the Arterial Drainage Scheme Embankments, and assess the costs, benefits, merits and impacts of maintenance or improvement of the embankments to inform future work. B.5 Review of the National PFRA including assessment of the potential impacts of climate change to provide a regular assessment of the national vulnerability to the potential impacts of climate change on flood risk. OPW 2015 OPW & DAFM 2018 OPW 2018 OPW 2018 B.6 Assessment and publication of flood hazard and risk mapping for areas of potentially significant risk identified through future cycles of the PFRA. B.7 Review of the PFRA with respect to existing urban storm water flooding, including assessment of the potential impacts of climate change, and where relevant, prepare flood maps and assess measures, where reasonably possible, to reduce or manage the flood risk from urban storm water management systems. B.8 Review of the PFRA with respect to existing infrastructural assets that could give rise to flooding or flood risk, including assessment of the potential impacts of climate change, and where relevant, prepare flood maps and assess measures to reduce or manage the flood risk from those assets. OPW Local Authorities Local Authorities, ESB, Waterways Ireland, Irish Water 2019 & 2018 & 2018 &
Planning, Design and Implementation C.1 Flood risk management strategies and outline designs for potential flood risk management measures are to be developed through the National CFRAM Programme based on the adaptive management approach, in coordination with the preparation of the RBMPs, and set out in the FRMPs. C.2 Identify, as part of the preparation of the FRMPs being produced under the National CFRAM Programme, additional hydrometric monitoring needs with respect to monitoring or assessing the potential impacts of climate change on flood risk for vulnerable communities. C.3 Appropriate adaptation options for each existing flood relief scheme to be assessed in the review of the first FRMPs, with any necessary measures to be set out in the second cycle FRMPs. OPW 2016 OPW 2016 OPW 2016-2021 C.4 Decisions on short-term investment in flood risk management measures should include a detailed review and determination of the most robust, 'no regrets' strategy and design, taking account of the range of future investments that may be necessary depending on how the impacts of climate change are manifested with respect to flood risk. C.5 Proposals submitted under the Minor Works Programme should take account of the potential impacts of climate change to ensure that any measures proposed are adaptable to possible future changes. OPW Local Authorities
C.6 Ensure that potential future flood information is obtained and/or generated through a Flood Risk Assessment (FRA) that is then used to inform suitable adaptation requirements within planning and development management in line with the Guidelines on the Planning System and Flood Risk Management (DoECLG & OPW, 2009). C.7 Maintain and update on an ongoing basis the National Flood Event Database (www.floodmaps.ie). C.8 Maintain, and where possible improve, the operation of existing flood forecasting and warning systems, including the Tide and Storm Surge Forecasting Service. C.9 Identify the benefits and resources required to develop, on a phased basis, a national flood forecasting and flood warning service, for decision by Government. C.10 Ensure that flood event emergency response plans are reviewed on a regular basis to reflect the degree of flood risk and/or our understanding of that risk, including the resource capacity required to provide an effective response. C.11 The requirements for urban storm water drainage systems for new development should take into account the potential future impacts of climate change, including consideration of the use of sustainable drainage systems. C.12 The planning and design of future assets should take into account, and be adaptable to, the potential future impacts of climate change. Planning Authorities & Developers OPW OPW, Relevant Local Authorities OPW, DECLG & DPER Local Authorities & DECLG Local Authorities Local Authorities, Irish Water, ESB & Waterways Ireland
Capacity Building D.1 Promote community resilience to the potential impacts of climate change for flooding and flood risk through the 'Plan, Prepare, Protect' and 'Be Winter Ready' campaigns. D.2 Strengthen the adaptive capacity of OPW staff and partners through collaboration and training. D.3 OPW to make available relevant information for access and dissemination through 'Climate Ireland' web platform. Monitoring & Review E.1 Develop indicators to assess effectiveness and implementation of adaptation within the flood risk management sector, with reporting on same in the next Plan. E.2 Progress reviews will be undertaken at three yearly intervals (end of 2016 and 2019), or as otherwise required under new legislation or EU requirements, on the implementation of this Plan and progress in integrating adaptation into flood risk management. OPW, OEP & Local Authorities OPW OPW, EPA OPW OPW 2015 to 2019 2016 & 2019
Adaptation Planning & Governance F.1 Local Adaptation Plans, and Adaptation Plans for other Sectors, should take account of the potential impact of climate change on flooding and the effects the foreseen increases in flooding and flood risk may have locally and on each Sector, and also how adaptation decisions taken locally and in other sectors may impact on flooding and flood risk. This would benefit from ongoing information exchange and coordination through cross-sectoral fora such as the Adaptation Steering Group convened by DCELG. F.2 Examine the options for future management of the Land Commission Embankments taking account of the outcomes of Action B.3, including the issues of responsibility for maintenance and the appropriate standard of protection. Local Authorities, All Sectors OPW & DAFM 2015 and