j porter intro frameworkprinciples_revised
TRANSCRIPT
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A Framework for
Flood Risk ManagementAn Introduction
Dr John Porter
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A good place to start if we want to prepare a
strategic framework for managing flood risk is
to define flood risk.
What is flood risk?
There is no one definition of flood risk, but one that
proves very useful for a strategic framework is
RISK = HAZARD x EXPOSURE x VULNERABILITY
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RISK = HAZARD x EXPOSURE x VULNERABILITY
Exposure
Even where a hazard exists,there is no risk unless there areassets that can be damaged,
or there is danger becausepeople live in, work in, orsimply transit through thelocation of flood hazard.
Exposure to flood hazard createsthe potential for personaldanger or property damage tooccur during floods.
BRISBANE, AUSTRALIA
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RISK = HAZARD x EXPOSURE x VULNERABILITY
The consequences of flooding and therefore the risk alsodepends on how vulnerable people and their assets are to danger
and damage.Vulnerability can be reduced if people and authorities: take appropriate precautions in advance of flooding, know what to do to limit danger and damage during floods, and receive adequate warning and appropriate assistance during and
after floods.
FUZHOU, CHINA
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Defining flood risk as
RISK = HAZARD x EXPOSURE x VULNERABILITY
is very useful because the measures we use in floodmanagement can be regarded as modifying
(reducing) one of these 3 key elements of risk.
MODIFYING HAZARD
Flood control dams
Detention basins
Levees or dikes
Flood diversion channelsRiver channelimprovements
Upper watershedmanagement
MODIFYING EXPOSURE
Zoning of land use
Property acquisition
Planning development
controlsBuilding codes
Flood-proofing buildings
Building on platforms orstilts
MODIFYING VULNERABILITY
Flood monitoring and warning
Flood forecasting
Emergency response plans
Community awarenessCommunity preparedness
Post-flood recovery &reconstruction
Flood insurance
STRUCTURAL NON-STRUCTURAL
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This involves land management in addition to water
management.
In normal circumstances there is a clear division
between water and land. Water is contained within
rivers, lakes and other water bodies.
During floods, the water regime expands to
temporarily inundate land which most of the time
can be used for productive purposes.
Therefore, unlike other aspects of water resources
management, flood risk management must embrace
both land use management and water
management.
RISK = HAZARD x EXPOSURE x VULNERABILITY
NOTE ABOUT Exposure to Flood Hazard
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NOTE ABOUT Vulnerability
Many have identified that communities are more vulnerable
to flood risk if there is greater poverty, in
communities with low standards of education,
and in societies with poor governance.
RISK = HAZARD x EXPOSURE x VULNERABILITY
INDUS RIVER, PAKISTAN
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Vulnerability or susceptibility
This is true. Programs aimed at reducing poverty and
improving education and political governance will reduce
vulnerability and flood risk. However, we can introduce anew category for these issues and regard them as issues of
Susceptibility rather than Vulnerability. They are different
because they deal with the ills of society as a whole, are
less specific to flood risk as they affect many other aspects
of community life too. And in that sense, although they are
relevant to management of flood risk, they are not proper
undertakings for flood risk management alone.
RISK = HAZARD x EXPOSURE x VULNERABILITY
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Comprehensive flood risk management must
therefore consider treatment of all three elements
of flood risk:
HAZARD
EXPOSURE
VULNERABILITY
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Consideration of flood risk as the product of
Hazard x Exposure x Vulnerability
only deals with what we do to manage flood risk.
A strategic framework for flood risk management
must also consider how we organize and how we
plan for management of flood risk.It should also consider the impacts of what we do
on the environment and the community.
Therefore, other important dimensions of a strategicmanagement framework are:
INSTITITIONAL FOUNDATION
PLANNING METHODOLOGY or STRUCTURE
EXOGENOUS IMPACTS (social & environmental)
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INSTITUTIONAL FOUNDATION
LEGISLATION
POLICY
ORGANIZATIONAL
STRUCTURE
INSTITUTIONAL
CAPACITY
FUNDING
EDUCATION &
PROFESSIONALTRAINING
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INSTITUTIONAL FOUNDATION
Typically, responsibilities
relevant to floodmanagement arefragmented betweenmultiple governmentagencies. E f f e c t i v e p a r t n e r s h i p
b e t w e e n a g e n c i e sd i r e c t e d t o w a r dc o o r d i n a t e d m a n a g e m e n to f f l o o d r i s k i s o n e o ft h e g r e a t e s t i n s t i t u t i o n a lc h a l l e n g e s .
WROCLAW, POLAND
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PLANNING METHODOLOGY
A well structured method is recommended to capture the
strengths of integrated flood manage-ment through:
rigorous technical analysis,
comprehensive assessment of planning options,
appraisals based on the triple bottom line of
sustainable development (economic viability, social equity
and environmental acceptability),
benefit-cost analysis and
stakeholder participation.
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CONSULTATI
ON
PROCESS
PRELIMINARY PHASE
Identify & Quantify Flood Riskestimate hydrological riskhydraulic model analysismap existing flood hazard & land use
TECHNICAL ANALYSIS
Identify Alternative Flood Management Optionscombinations of structural & non-structural measuresevaluate future riskconsider how to manage residual risk
Appraisal of Impactseconomic analysistangible & intangible social benefits / disbenefits
environment
adverse impacts & opportunitiesrobustness, resilience to future uncertainty
APPRAISAL PHASE
Recommend Preferred Optionrefine analysis; examine assumptionsdocument plan
FLOODMANAGEMENT PLAN
APPROVAL
IMPLEMENTATION
Define Management Objectivescollect data
Understand Planning Contextpopulation characteristicsproperty & infrastructureinstitutional arrangementsplanning instruments
PLANNING
METHODOLOGY
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PLANNING
METHODOLOGY
PLANNING component of the framework
Structured Planning Methodo Definition of management objectives start with desired
outcomes, not a proposed solution
o Understanding of the planning context consider pre-existing plans & local factors
o Identification & quantification of flood risk: technical analyseso Identification & consideration of alternative ways to manage the
flood risk different options comprising packages of FMmeasures
o Appraisal of impacts economic, social & environmental benefits& costs
o Recommendation of a preferred option refinement of solutions;closer examination of assumptions; documentation
o Stakeholder participation opportunity for consultation at eachstep of the process
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PLANNING METHODOLOGY
RIVER BASIN MASTER PLANS
SUB-BASINMASTER PLANS
e.g. - tributaries
- river reaches(over several localgovt jurisdictions)
-lake / wetland
complexes
URBAN DRAINAGE
MASTER PLANS
for internal drainageof cities to mitigateurban flooding
RURAL DRAINAGEMASTER PLANS
to mitigatewaterlogging ofagricultural land
PROJECT PLANNING
to mitigate specificflooding problems,either at single or jointlocal government scale
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EXOGENOUS
IMPACTS
SAFEGUARDS & SUSTAINABILITY
Social impacts may be positiveor negative, and attention mustbe directed during planning anddesign to avoid or mitigateadverse impacts, and enhancebeneficial outcomes. Inparticular, impacts on thosedisplaced or resettled, onindigenous groups, on thedisabled, aged or infirm, or ongender groups need to be
examined and assessed.
Environmental impacts may includeunintentional but foreseeableimpacts on the physical
environment, or on the biosphere.
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EXOGENOUS
IMPACTS
Safeguards:
Environmental protection safeguards
Location and storage of hazardous materials
Involuntary resettlement social safeguards
Indigenous peoples social safeguards
Assessments of the social implications for
gender (womens issues)
Assessments of social implications for disabled,
infirm or disadvantaged persons
Locations of strategic community services
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INSTITUTIONAL FOUNDATION
PLANNING
FLOOD HAZARD
EXPOSURE
VULNERABILITY
Flood Control Works
Structural planning & design
Asset maintenance:
monitoring condition
rehabilitation /upgrading
funding
Operations:decision support systems
communications systems
data acquisition networks
integration with WR management
env.management
Catchment ManagementSoil conservation
Upland land use management
Land Use Management
flood hazard zoning
land use planning controls
property acquisitions
resettlement
Flood forecasting
hydrological models
hydraulic models & DTMs
flood hazard maps
data acquisition networks
Flood warning & emergency response
communications systemspreparedness exercises
decision support systems
Post-flood recovery
support services: health, counseling
material support: food, shelter
infrastructure repairs
financial assistance & incentivescompensation / flood insurance
Land Use Management
building regulations
River basin master plans
Project proposal planning & appraisal: risk assessment: appraisal of alternative options
Planning for emergency responsePlanning for post-flood recovery
Urban drainage master plansRural drainage master plans
Partnerships: across levels of government Restructuring: enhancing coordination
between different levels of governmentLegislation: clarifying mandates Training / awareness / capacity building
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ENVIRONMENTAL
SAFEGUARDS
SOCIAL
SAFEGUARDS
GENDER
ISSUES
INDIGENOUS
PEOPLES
SAFEGUARDS
COMMUNITY CONSULTATION
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Key requirements to make it effective are
LEGISLATION THAT CLEARLY DELEGATES ROLES ANDRESPONSIBILITIES
A KEY COORDINATION ROLE MANDATED FOR ONE LEADAGENCY IN FLOOD RISK MANAGEMENT (or DISASTERRISK MANAGEMENT) WITH STRONG POWERS TOOBLIGE PARTICIPATION BY ALL STAKEHOLDERS INJOINT PLANNING
BROADER STAKEHOLDER PARTICIPATION THROUGHCOMMUNITY CONSULTATION DURING THE PLANNINGPROCESS
There is the strategic framework for flood risk management.
A sound institutional foundation is of crucial importance.
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THANK YOU
THE END
MANILA PHILIPPINES