Contents Foreword Introduction... 6

Transcription

1 Havering Local Flood Risk Management Strategy 2015

2 Contents Contents... 2 Foreword... 5 Introduction... 6 Structure of Strategy... 6 Review of the Strategy... 7 Annual Plans... 7 Guiding principles... 7 Objectives of Strategy... 8 Legislative Context...10 History of Flood Risk Management in Havering Recent drivers and legislation The National Strategy for Coastal and Erosion Risk Management Nature of Flood Risk in Havering...17 Overview of Havering Types of Flood Risk Factors increasing flood risk Information available on flood risk Powers and Responsibilities of Stakeholders...24 Powers and responsibilities of Risk Management Authorities Powers and responsibilities of London Borough of Havering Lead Local Flood Authority...25 SuDS Approval Body...30 Emergency Planning...31 Highways Authority...32 Historical Environment Planning Authority...34 Additional responsibilities of Borough Councils Responsibilities under the Land Drainage Act Responsibilities as a Planning Authority...35

3 Responsibilities for maintenance of public spaces...36 Responsibilities as an Emergency Planning authority...37 Powers and responsibilities of Water Companies..37 Water Supply Companies (Essex & Suffolk Water...38 Water and Sewerage Companies (Thames and Anglian Water)...38 Powers and responsibilities of Environment Agency...40 National Strategic Role...40 Local Operational Role...41 Main Rivers...41 Coastal Flooding...41 Reservoirs...42 Coastal Erosion Risk Management Authority...42 Emergency Planning...42 Planning process...42 Powers and responsibilities of Businesses and Household...42 Utility and Infrastructure Providers Property owners and residents...43 Riparian Owners...44 Responsibilities of Communities...44 Reporting flood incidents Helping residents to be aware of and manage the risk to their household 45 Community Emergency Self-Help Plans Actions to improve flood risk in Havering...46 Borough-wide Strategic Actions...47 Improve understanding of local flood risk...47 Proactive measures...47 Recording and reporting flood incidents...48 Adapt spatial planning policy to reflect local flood risk...49 Introduction of a robust SuDS framework...50 Inclusion of local flood risk concerns in SFRAs...51 Provision of new guidance via National Planning Policy Framework... 52

4 Raise community awareness...53 Establish working framework between Risk Management Authorities...55 Havering Partnership for Flood Management...56 Environment Overview and Scrutiny Committee...56 Regional Flood and Coastal Committees...57 Internal & External Flood Group Structure.58 Site specific, flood risk management actions Encourage implementation of flood resilience measures and property protection schemes Implement sustainable drainage and source control measures Manage overland flow paths Review land management methods Review asset management and maintenance methods Achieve wider environmental benefits.63 Resource management Public Funding Private Funding Other Sources of Funding Environmental Objectives... 73

5 Foreword Sir Michael Pitts review into the flooding of 2007 resulted into the introduction of the Flood & Water Management Act 2010 and the identification of Local Authorities within England and Wales as Lead Local Flood Authorities. The role of the LLFA s was to formalise the flood management and mitigation measures as well as introduce a risk management approach across a number of differing disciplines within Local Authorities including, Development & Planning, Transportation, Response and Resilience. As part of this Flood Management process the introduction of the following elements ensured there was a standardised approach with milestones that could be auditable and managed so aiding the whole concept of Flood Risk Management. The elements included:- a) Flood Risk Strategy; b) Preliminary Flood Risk Assessment; c) Surface Water Management Plan; d) Multi Agency Flood Response Plan. e) Flood Risk regulations (consultation for implementation in Dec 2015) This foreword introduces the strategy of the London Borough of Havering as required by the Flood and Water Management Act 2010 and the liaison that has been carried out as part of the Drain London Project and the Lead Local Flood Authority responsibilities for flood risk management.

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7 Introduction The Havering Local Flood Risk Strategy is an important new tool to help understand and manage flood risk within the Borough. It principally looks to tackle local flood risk, that is to say flooding from surface water, groundwater and ordinary watercourses such as ditches and streams. This type of flooding is responsible for most of the households flooded in England, but until now there has been little to address these forms of risk. The strategy will look to address this gap. However, for those who suffer from flooding, it doesn t matter what type of flooding it is, so this strategy also provides information about other forms of flooding and the organisations involved. It explains the powers and responsibilities of all the major organisations involved in flood risk and what householders and businesses need to do. It highlights and summarises all the work done on flooding in Havering so that this information is more easily accessible for those wishing to understand more about flood risk. Flood risk management in Havering is entering a new stage marked by better knowledge of the risks in the Borough, improved co-operation between organisations involved in flood risk management and better communication with the public about those risks and what can be done. This strategy explains the steps to be taken to ensure this happens. However the strategy doesn't cover all the actions that will be taking place to tackle flood risk over the next few years. Decisions about that will depend on information that is not currently available; information about where the risk is greatest and what funding can be attained. The strategy identifies broad actions that will need to take place over the next two years and the principle underlying future decisions. The strategy will be supplemented by annual action plans which will be approved by the Havering's Flood Management Group. These will give a more detailed understanding of what will be taking place each year to manage flood risk in Havering. Structure of the Strategy The Strategy begins by stating its guiding principles and objectives which set its context. It continues with a history of how flood risk management has been organised in Havering and a summary of the legislation, explaining what laws dictate the work done to manage flood risk and the organisations involved. There is then information on Havering s level of flood risk. The strategy s focus is on local flood risk. It provides details of this, explaining what information is available and what is currently unavailable. It also explains other types of flood risk, much of which is better known. This information is at a high level and should not be used as reference for any particular location. The next section provides full detail on the responsibilities and powers of each of the organisations involved in flood risk management. This includes the responsibilities and powers of householders and businesses that may have a crucial role to play in managing flood risk.

8 Against this context the strategy provides information on possible actions. It identifies the countrywide actions that need to be taken. It also provides information and analysis about the types of more localised actions that are available. This will be used in future action plans in determining what actions are possible and appropriate to tackle localised flood issues. Finally the strategy considers the resources available and how best to utilise them, including ensuring they meet our commitment to sustainable development. Review of the Strategy There are going to be substantial changes in the next few years with changes to the planning system, sustainable drainage requirements and the provision of flood insurance. There will also be innovations in the funding and design of flood prevention schemes and improvements in the knowledge of where the greatest flood risks lie. So it makes sense for the first review of the Local Flood Risk Management Strategy to take place in the third quarter of After that the strategy should be able to be reviewed less frequently, at 3 yearly intervals, with the next review in Annual Plans To complement the Havering Strategy for Flood Risk Management, annual plans will be put before the Havering Flood Management Group [p68]. These will contain: Latest information available about local flood risk, indicating where flood risk has decreased due to actions or where new information has changed prioritisation. Actions required to meet the Flood Risk Regulations in the coming year. Projects which will be put forward to the Environment Agency for entry onto their medium term plan. Actions from the Surface Water Management Plan which are aimed for delivery over the next two years. Any other actions intended by Havering risk management authorities including the Havering Borough Resilience Forum Risk Management Group or the SuDs Approving Body following adoption of this strategy. Flooding risk assessments were reviewed by the HBRF Risk Advisory Group in June 2014 next review 2016 The meeting to agree the annual plan will occur at the beginning of each financial year. All annual plans will need to comply with the principles laid out in the Havering Strategy for Flood Risk Management and the National Strategy for Flood and Coastal Erosion Risk Management. These annual plans ensure operations are joined up across the different stakeholders in the Borough. They will not be subject to public consultation but will identify through a robust risk assessment process the greatest risks within the Borough. This plan will be subject of deliberation by the environment overview and scrutiny committee. Guiding Principles The following are the guiding principles for flood risk management in Havering:

9 1) Flood damage from surface runoff, groundwater and ordinary watercourses creates both public and private financial costs. Effective flood risk management can reduce long-term flood damage costs 2) Decisions on where local resources are focused should be evidence-based and made against clear criteria. 3) Improving the level of knowledge about flood risk across all stakeholders is a vital process which needs to be improved. 4) Neither LBH nor the EA are able to ensure that all households and businesses are safe from flooding. Householders and business holders have responsibility for protecting their own premises, but relevant public organisations have a duty to inform households of their risk and advise what steps they can take to make their property more resilient. EP Handbook in libraries and on the Havering website has guidance on flood protection. 5) Flooding is a natural event that will occur despite all efforts to prevent it. Hence it is important to focus as much on reducing the disruption that flooding causes as on measures to prevent it. 6) No single organisation can effectively manage flood risk across the whole of Havering, so co-operation among relevant public agencies is essential for the success of long-term comprehensive flood risk management. 7) New developments should aim not only to ensure that there is no increase in flood risk but that the existing flood risk levels are reduced. 8) The cumulative impact of small developments on flood risk is as significant as the impact of major developments, so both must be managed to ensure the threat of flood risk doesn t grow. Objectives of the Strategy The objectives of the strategy are as follows: I. To provide a clear explanation of all stakeholder s responsibilities in flooding issues. II. To ensure a clear understanding of the risks of flooding from surface runoff, groundwater and ordinary watercourses. III. To define and explain the criteria by which areas at risk from flooding are assessed and resources are prioritised. IV. To state how risk management authorities will share information and resources. V. To ensure households and properties are aware of the level of flood risk they face and the steps they will need to take to manage the risk.

10 VI. To set out clear and consistent plans for risk management so that communities and businesses can make informed decisions about the management of the residual risk. VII. To ensure that planning decisions are properly informed by flooding issues and the impact future Development may have. VIII. To encourage innovative management of flood and coastal erosion risks, taking account of the needs of communities and the environment. IX. To ensure that emergency plans and responses to flood incidents are effective and that communities are able to respond properly to flood warnings.

11 Legislative Context History of flood risk management The responsibility for flood risk management within Havering has changed considerably over the past 50 years. Prior to 1989, the regulation of national environmental issues (including flood risk management, drainage and water quality) was carried out by ten Regional Water Authorities (RWAs). Havering came partly under the control of the Anglian Water Authority and partly Thames Water. These companies were set up after the enactment of the Water Act in In 1989 the National Rivers Authority (NRA) was set up. This national body took over the roles and responsibilities of all the individual RWAs. In December 1991, a number of pieces of legislation were enacted which aimed to consolidate existing water legislation. Most relevant in terms of flood risk management was the Land Drainage Act, which outlined the duties and powers to manage land drainage for a number of bodies including internal drainage boards and Local Authorities, and the Water Resources Act, which outlined the roles and responsibilities of the National Rivers Authority. The Statutory Water Companies Act and the Water (Consequential Provisions) Act were also enacted at the same time. The Environment Agency was established by the Environment Act in The Environment Agency came into existence on 1 st April 1996 and took over the roles and responsibilities of the National Rivers Authority and also the responsibility for issuing flood warnings, a role previously held by the police. The management and operation of the Environment Agency is divided into a number of regions across the country; the London Borough of Havering falls across two regions, Anglian and Thames Region, so responsibility is split between both Environment Agency regional teams. Within England and Wales, recent flood risk management policy changes were accelerated by major flood events in 1998 and 2000, which led to the release of Planning Policy Guidance 25 (PPG25): Development and Flood Risk in PPG25 aimed to strengthen development planning with regard to flood risk. Importantly, it was the first attempt to introduce sustainable surface water management into the planning process. Planning Policy Statement 25 (PPS25) superseded PPG25 in 2006 and reinforced the requirement for sustainable surface water management in new developments in England and Wales. Recent drivers and legislation Following the extreme floods of 2007, the Pitt Review (2008) stressed the importance of implementing better legislation for the effective management of surface water, with increased responsibilities for upper tier local authorities such as London Borough of Havering. Many of the recommendations from the Pitt Review have been implemented through the Flood and Water Management Act (2010), which places a greater responsibility on upper tier local authorities, particularly for surface water management issues, under their new role as a Lead Local Flood Authority. A summary of key recent documents and legislation is included below.

12 The Pitt Review Sir Michael Pitt carried out an independent review of national flood risk management practices after the widespread and catastrophic floods during the summer of 2007, in which over 50,000 households were affected and damages exceeded 4billion. The Pitt Review was published in June 2008 and called for urgent and fundamental changes to the way flood risk was being managed. The report contained 92 recommendations for the Government, local authorities, Local Resilience Forums and other stakeholders based around the concept of local authorities playing a major role in the management of local flood risk, by coordinating with all relevant agencies. The Flood Risk Regulations (2009) The Flood Risk Regulations came into force in December 2009 and transposed the EU Floods Directive into law for England and Wales. The Flood Risk Regulations require three main pieces of work for areas identified at being at significant risk of flooding. To address three main tasks across the 32 London Boroughs, a project known as Drain London was created to ensure a standardised approach of flood risk management was completed. These three main tasks were: 1. Preliminary Flood Risk Assessment (PFRA) This involved collecting information on past and future floods from surface water, groundwater and small watercourses, assembling the information into a PFRA report and identifying Flood Risk Areas. The PFRA for the London Borough of Havering has already been completed, submitted to the Environment Agency and the completed document is available on the LBH website. 2. Flood Hazard and Flood Risk Maps Following the identification of Flood Risk Areas, the Environment Agency and LB Havering are required to produce hazard and risk maps by 22nd December Flood Risk Management Plans The final stage is to produce a Flood Risk Management Plan by 22nd December It is likely that SWMPs undertaken in the area, as well as this Local Flood Risk Management Strategy, will contribute significantly to the preparation of a Flood Risk Management Plan for the whole of the Havering area. This plan has now been produced by the EA on behalf of LLFA and is now subject of public consultation. The Flood and Water Management Act (2010) The Flood & Water Management Act (FWMA) gained royal assent on the 8 th April 2010 and provides legislation for the management of risks associated with flooding and coastal erosion. Many of the recommendations contained in the Pitt Review have been enacted through the Flood and Water Management Act. The Act reinforces the need to manage flooding holistically and in a sustainable manner and places a number of roles and responsibilities on councils such as London Borough

13 of Havering, which is designated a Lead Local Flood Authority. The preparation of this Local Flood Risk Strategy is just one of the duties placed upon LB Havering under this piece of legislation. Other responsibilities are covered under Section 5. 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 district council for an area for which there is no unitary authority an internal drainage board a water company a highway authority National Planning Policy Framework The National Planning Policy Framework introduced by Government in March 2012 is designed to streamline planning policy by substantially reducing the amount of planning guidance and bringing it all together in one coherent document. More information on the purpose of the National Planning Policy Framework can be found in the strategic actions under Adapt spatial planning policy to reflect local flood risk [p61] Other Legislation Flood Risk Management is affected by a range of other legislation and guidance. These include: The London Plan (2011) as amended The Climate Change Act (2008) The Conservation of Habitats and Species Regulations (2010) The Civil Contingencies Act (2004) The Strategic Environmental Assessment (SEA) Directive (2001) The Land Drainage Act (1991) The Water Framework Directive (WFD) Thames Region Bye-laws TE 2100 Thames Estuary 2100 plan (pages Rainham Marshes policy unit) Figure 1 provides a summary of European, national, regional and local policies concerning flood and water management that are of relevance and importance to flood risk management within Havering. It also provides an overview of the linkages between legislation, policy and strategy documents that relate to flooding and the management of flood risk.

14 Figure 1 Overview of current flood risk management drivers and National Planning Policy Framework (NPPF)

15 The National Strategy for Flood and Coastal Erosion Risk Management The Flood and Water Management Act 2010 requires the Environment Agency to develop, maintain, apply and monitor a strategy for flood and coastal erosion risk management in England. The national strategy describes what needs to be done by all the authorities involved (including the Environment Agency, local authorities, internal drainage boards, water and sewerage companies and highways authorities) to reduce the likelihood of flooding and coastal erosion, and to manage their consequences. The National Strategy became a statutory document on 18 th July It can be found here: The overall aim of the National FCERM Strategy for England is to ensure the risk of flooding and coastal erosion is properly managed by using the full range of options in a co-ordinated way. It is designed to support local decision-making and engagement in FCERM, making sure that risks are managed in a co-ordinated way across catchments and along the coast. The National Strategy sets out strategic aims and objectives for managing flood and coastal erosion risks and the measures proposed to achieve them. It states that Government will work with individuals, communities and organisations to reduce the threat of flooding and coastal erosion by: Understanding the risks of flooding and coastal erosion, working together to put in place long-term plans to manage these risks and making sure that other plans take account of them Avoiding inappropriate development in areas of flood and coastal erosion risk and being careful to manage land elsewhere to avoid increasing risks Building, maintaining and improving flood and coastal erosion management infrastructure and systems to reduce the likelihood of harm to people and damage to the economy, environment and society Increasing public awareness of the risk that remains and engaging with people at risk to make their property more resilient Improving the detection, forecasting and issue of warnings of flooding, planning for and co-ordinating a rapid response to flood emergencies and promoting faster recovery from flooding

16 Consistency between Local Strategies and the National Strategy The Flood and Water Management Act states that Local Strategies must be consistent with the National Strategy. This means being consistent with the National Strategy's overall aims and objectives, and in particular its six guiding principles. The guiding principles 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 decisionmaking 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. A catchment and coastal cell based approach In understanding and managing risk, it is essential to consider the impacts on other parts of the catchment or coast. Activities must seek to avoid passing risk on to others within the catchment or along the coast without prior agreement. In developing local strategies LLFAs should ensure that neighbouring LLFAs within catchments are involved in partnerships and decision making. Strategic plans such as Catchment Flood Management Plans (CFMPs) and Shoreline Management Plans (SMPs) should be used to help set strategic priorities for local strategies. In addition as part of the Drain London project the Boroughs of Barking & Dagenham and Redbridge form the Area 5 for the purposes of planning and liaison in respect of cross border flood risk. Additional liaison with the Essex areas of Brentwood and the Unitary authority of Thurrock is essential in order to maintain a joined up approach to flood risk management and this strategy. Sustainability LLFAs should 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 developed to set out the link between sustainable development and risk management to support the implementation of the strategy. This is covered in greater detail in Environmental Regulations [p87] Proportionate, risk-based approaches It is not technically, economically or environmentally feasible to prevent all flooding and coastal erosion 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.

17 Multiple benefits As well as reducing the risks to people and property, FCERM can bring significant economic, environmental and social benefits. In developing and implementing local strategies, LLFAs should help deliver broader benefits by working with natural processes where possible and seeking to provide environmental benefit as required by the Habitats, Birds and Water Framework Directive. Measures such as the use of SUDS to manage risk should be considered as they can also deliver benefits for amenity, recreation, pollution reduction and water quality. Beneficiaries should be allowed and encouraged to invest in local risk management The benefits achieved when flood and coastal erosion risks are managed can be both localised and private, through the protection of specific individuals, communities and businesses. In developing local strategies, LLFAs should consider opportunities to seek alternative sources of funding rather than relying on Government funds. This will enable more risk management activity to take place overall.

18 Nature of Flood Risk within Havering Overview of Havering The study area for this Flood Risk Strategy is defined by the administrative boundary of the London Borough of Havering. The geographical extent of the study area is illustrated in Figure 2 Figure 2: Map of the Borough boundaries for Havering Havering Profile Havering is London s 3 rd largest borough, covering an area of 11,235 hectares (43 square miles). 809 hectares are parks and open spaces, and 54% is green belt. The borough is bordered by the London Boroughs of Redbridge and Barking and Dagenham, Essex County and 3 miles/5 km of River Thames frontage. The borough is made up of several suburban towns, a regional shopping centre at Romford, and an even distribution of commercial and industrial premises generally located on estates and retail/office parks. There is one COMAH site (Flogas) located in Rainham. There are several major trunk roads crossing the borough including the M25/A12/A13 and A127. The London Underground District line, C2C and National Rail lines all cross and have stations located within the borough, with the Channel Tunnel Rail Link passing through over ground. The Rivers Rom, Ravensbourne and Ingrebourne run north-south across the borough towards the Thames, with the Rom joining the Beam at the Barking and Dagenham border. These rivers all feature on the EA Flood Map. The population is approximately 237,232, with 88% being White British, 1.4% White Irish, 2.4% Other White and 8.3% Black and Minority Ethnic. Havering has the highest proportion of residents over 60 in London (27%) with 6% (0.4), 14% (5-15) and 53% (16-59). There are 100,230 households, the majority of which are privately owned. The Council house portfolio is predominantly housing, with some low and medium rise and 23 high rise residential blocks.

19 Health care is delivered through 1 major hospital, 1 local hospitals, a polyclinic and 3 health centres as well as GP surgeries. Education is provided through 89 schools and 2 colleges Havering falls across the Thames River Basin District and is served by two water companies, Thames Water and Anglian Water. It is also served by two Environment Agency regions, Thames and Anglian regions. The Thames Region covers the majority of the Borough with Anglian only covering a small area as part of the Thurrock and Brentwood boundary areas. Types of Flood Risk The nature of flood risk within Havering is extremely varied and is becoming a major issue across the Borough. There are a network of rivers and watercourses, combined with a number of suburban towns and green belt areas, which means it is at risk of flooding from a range of different sources. The 2011 Preliminary Flood Risk Assessment (PFRA) for Havering Council highlighted records of a number of flood events across the Borough over the previous years. It also highlighted the number of surface water flooding events over the past 10 years which could be attributable to the changes in climate and infrastructure of the Borough. The main sources of flood risk within Havering include: Surface water flooding, also known as pluvial flooding or flash flooding, is usually associated with high intensity rainfall events (typically greater than 30mm/hr) and can be exacerbated when the ground is saturated or when the drainage network has insufficient capacity to cope with the additional flow. Until recently, the risk from surface water was poorly understood, with little information available about the mechanisms of surface water flooding and the associated risks. Based on information collected as part of the Preliminary Flood Risk Assessment, Havering has nearly 19,000 properties predicted to be affected by shallow surface water flooding (deeper than 0.1m) during an extreme rainfall event (with a probability of 1 in 200). This risk is spread across the Borough. The Havering Surface Water Management Plan completed as part of the drain London project has identified a number of Critical Drainage Areas (CDA s) Figure 3 below identifies the Critical Drainage Areas which were identified as part of the Drain London project and included within the surface water management plan. Although the CDA s are identified the prioritisation of those areas of particular risk into high/medium/low risk is an ongoing assessment process ensuring that available funding is secured to focus upon the area where properties are most vulnerable. Surface water flooding can be potentially exacerbated when there is a tide-locked situation. The drainage system primarily owned and operated by Thames Water can become overwhelmed with torrential rain so reducing its ability to cope with the drainage requirements to discharge into watercourses. The need to work with partners in order to ensure a rigorous maintenance regime is in place to mitigate the potential of this growing type of flood event.

20 CDA 005 Ardleigh Green East CDA 013 West Romford CDA 014 River Rom and Beam River CDA 015 Havering Park CDA 016 Rise Park West CDA 017 Rise Park CDA 018 Cranham CDA 019 CDA 023 CDA 024 CDA 025 Ardleigh Green Elm Park Hornchurch Gallows Corner

21 CDA 026 CDA 030 CDA 032 CDA 034 Harold Hill North Hacton Corbets Tey Thames CDA 035 CDA 036 CDA 037 CDA 038 CDA 039 CDA 040 CDA 042 CDA 043 Upminister Ingrebourne River Ravensbourne Heath Park North Heath Park South Harold Hill South Clay Tye Havering-atte-Bower Surface Water only: LLFA direct responsibility as Surface Water derived risk Surface Water with Main River interaction: Combined Surface Water risk areas of mutual responsibility between LLFA and a partner, where overarching lead sits with a partner Main River with Surface Water interaction: LLFA acts as secondary partner where the lead responsibility lies with another organisation as main risk is not Surface Water derived Groundwater flooding occurs when water levels within the ground rise above the ground surface. Flooding of this type tends to occur after long periods of sustained heavy rainfall and can last for weeks or even months. The areas at most risk are often low-lying where the water table is more likely to be at a shallow depth and flooding can be experienced through water rising up from an underlying aquifer or from water flowing from springs. The Havering PFRA has identified areas susceptible to groundwater flooding across the Borough; this information will be used to assist with the prioritisation of flood risk areas within this document. River flooding, also known as fluvial flooding, occurs when a watercourse cannot accommodate the volume of water that is flowing into it. Rivers are categorised into main rivers and ordinary watercourses. Main rivers are usually large watercourses but also include smaller watercourses of strategic drainage importance. The Environment Agency s powers to carry out flood defence works apply to main rivers only. All other smaller watercourses, ditches and streams are classified as ordinary watercourses. Havering has a number of main

22 rivers and associated tributaries including the River Rom, River Ingrebourne, River Ravensbourne and River Beam in addition to the vast network of ordinary watercourses. Coastal flooding usually occurs during storm surges when there is an increased risk of high sea levels causing overtopping or breaching coastal flood defences leading to flooding inland. The greatest risk of coastal flooding is experienced when there is a combination of high tides and a storm surge, which is when a low pressure system causes a localised rise in sea level and wave height. Havering has no direct coastline although the River Thames in the south of the Borough is tidal and can be affected by any North Sea surge up to and including the Thames Estuary. Reservoir flooding results from the complete or partial failure of a reservoir structure. It may be caused by erosion due to seepage, overtopping of the dam beyond its design level or through accidental damage to the structure. There are no large open reservoirs in Havering that could pose a threat however, there is an enclosed reservoir owned and operated by Essex & Suffolk Water. Reservoir failure is extremely rare. Sewer flooding occurs when the sewer network cannot cope with the volume of water that is entering it or when pipes within the network become blocked. This type of flooding is often experienced during times of heavy rainfall when large amounts of surface water overwhelm the sewer network causing flooding. Water Utility DG5 1 registers show a total of 464 flood events reported by water companies over the last decade. These events have not been georeferenced, so the spatial distribution is unknown; however, it is anticipated that greater risk will be within heavily urbanised areas. Highway flooding can be defined as flooding caused by heavy rainfall or overflowing from blocked drains and gullies causing water to pond within the highway network. During the PFRA process, highway flooding reports were collected from around 150 different locations and this data is included in the overall evidence base of flood information. 1 A water-company held register of properties which have experienced sewer flooding due to hydraulic overload, or properties which are 'at risk' of sewer flooding more frequently than once in 20 years.

23 Figure 4: Responsibility for forms of flooding Surface Groundwater Ordinary Main Rivers Reservoir Flooding Coastal Highway Flooding Factors increasing flood risk Flood risk is a combination of probability and consequence; as there are a number of factors which will lead to higher probability of flooding in the future and more serious potential consequences, this will result in an increase in the risk of flooding across Havering. The factors leading to an increase in flood risk include: It is predicted that climate change will lead to more frequent and more severe extreme weather and therefore to more extreme floods with more serious consequences; Over time deterioration in the condition and performance of existing drainage infrastructure and flood defence structures will increase future flood risk; New development and changes in land use will lead to an increase in impermeable surfaces and therefore cause increased levels of runoff during heavy rainfall events; Development may also lead to deforestation and general loss of vegetation cover, also causing increased levels of runoff during heavy rainfall events; and Damage to higher value property and contents will lead to increased cost of damages. Information available on flood risk A variety of publically available documents identify flood risk within Havering.

24 These include: The Havering Preliminary Flood Risk Assessment The Havering Strategic Flood Risk Assessment The Havering Multi-agency Flood Plan The Thames Catchment Flood Management Plan The Havering Surface Water Management Plan The Emergency Planning Handbook The Havering Preliminary Flood Risk Assessment The Havering Preliminary Flood Risk Assessment was published in November 2011 to meet the requirements of the Flood Risk Regulations 2009 [p10]. The PFRA provides a high level overview of flood risk from local flood sources, including surface water, groundwater and ordinary watercourses. It combines modelling of rainfall events produced by the Environment Agency with locally collected information to explain the local flood risk across the whole of the Borough. Flood risk data and records of historic flooding were collected from different local and national sources including Havering Council services as well as the previous Havering Strategic Flood Risk Assessment (2007), the Environment Agency, water companies, emergency services and other key stakeholders, in order to develop a clear overall understanding of the flood risk across Havering. Information relating to flood events, caused by flooding from surface water, groundwater and ordinary watercourses, was collected and analysed, although comprehensive details on flood extents and consequences during these events was largely unavailable. There is a large variation in the number of recorded historical flood events within the Borough council. However, this variation is most likely to be due to differences between different departments and agencies in recording and storing flood event data, and should not be taken as a representation of the range in frequency or severity of flood risk across the Havering Council administrative area. Because of these discrepancies, the information from the PFRA should be considered as indicative and will be added and improved upon. It will be used as the basis for identifying the areas at greatest surface water flood risk, a process that will be refreshed every year to inform the annual plan. The Environment Agency have used a national methodology, which has been set out by DEFRA, to identify indicative Flood Risk Areas across England. Out of the ten indicative flood risk areas that have been identified nationally, London as a whole (covered by the 32 London Boroughs and the Corporation of London administrative boundary) was identified as a single

25 risk area prompting the Drain London Project managed by the GLA with input from representatives across each of the individual council areas. The Drain London project resulted in all of the Boroughs being divided into groups where flood risk areas were connected. This meant that the project could identify cross Borough liaison and partnership working to address inter-related issues. Location within the Indicative Flood Risk Area does not necessarily mean that flood risk is higher. The Flood Risk Regulations require additional responsibility to be undertaken within the Indicative Flood Risk Area. The Thames Catchment Flood Management Plan The Thames CFMP covers a large area from the Cotswolds to the Thames Estuary including Havering. The Plan identifies the Ingrebourne and Beam as the two significant rivers within Havering. Powers and Responsibilities of Stakeholders This section provides fuller information about the powers and responsibilities of stakeholders. However it doesn t only do this. Flood risk management is not something that can be left solely in the hands of certain organisations and forgotten by everyone else. Households and businesses still have their part to play. Even if this strategy was being devised at a time of substantial public sector budgets, these organisations would still not be able to prevent all floods or solve all concerns. That is why the powers and responsibilities of householders and businesses are also highlighted. Powers and responsibilities of Risk Management Authorities The Flood and Water Management Act identified certain organisations as Risk management authorities which have responsibilities around flooding. This means new ones identified by the Flood and Water Management and longstanding ones covered by previous legislation. The Risk Management Authorities in Havering are: Highways Agency Thames Water Anglia Water The Environment Agency (Anglian and South Eastern Offices) TFL All of these authorities have the following duties and power: Duty to be subject to scrutiny from lead local flood authorities democratic processes. Duty to co-operate with other risk management authorities in the exercise of their flood and coastal erosion risk management functions, including sharing flood risk management data. Power to take on flood and coastal erosion functions from another risk management authority when agreed by both sides All risk management authorities have a duty to be subject to scrutiny from the Lead Local Flood Authorities democratic processes. The key partnership is the Havering Internal Flood Management Group made up of the appropriate services within the Council. In addition the External Flood Group, made up of Partners would be consulted in respect of flood risk

26 management. The flooding responsibility will be primarily reported through to Havering's Environment Overview and Scrutiny Committee. Co-operation with other risk management authorities includes the following: Membership of the Thames Regional Flood & Coastal Committee within which an elected member of one Council represents the Boroughs of Havering, Barking & Dagenham and Redbridge. Discuss with other councils before designating structures and features to ensure consistency Report flooding incidents to the StreetCare Flood Risk Engineer on a monthly basis Report flood assets, as defined by agreed criteria, as and when they are revealed to Officers Assist with Flood Investigation Reports where appropriate Provide local knowledge to SuDS Approval Officers regarding applications in their area. Ensure that members of the public who are trying to contact another organisation are swiftly put through to the appropriate organisation Easy sharing of information and data This list is not exhaustive but if there is any dispute about whether an activity can reasonably be expected from a Flood Risk Management Authority, the issue will be brought to the Havering Flood Management Group. The duties outlined are within the responsibilities of the Lead Local Flood Authority. Powers and Responsibilities of London Borough of Havering London Borough of Havering has a range of different roles that are important for flood risk management. These include acting as: Lead Local Flood Authority SuDS Approval Board to be implemented 6 th April 2015 Emergency Planning Highways Authority Historical and Natural Environment Planning Authority Lead Local Flood Authority The Flood and Water Management Act 2010 identified London Borough of Havering as the Lead Local Flood Authority for its administrative area. This gave Havering a strategic role in overseeing the management of local flood risk i.e. flood risk from surface water runoff, groundwater and ordinary watercourses such as streams and ditches. The responsibilities of Havering as a Lead Local Flood Authority are: Development, maintenance, application and monitoring of a strategy for local flood risk management in the jurisdiction of the lead local flood authority;

27 Strategic leadership of local risk management authorities. It is recommended that this is done through the formation of a local flood partnership between lead local flood authorities and other risk management authorities; Powers to request information from any person in connection with the authority s flood and coastal erosion risk management functions; A duty to investigate and publish reports on 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; A duty to maintain a register of structures or features (asset register) which, in the view of the lead local flood authority, have a significant effect on flood risk in their area; Responsibilities as a Sustainable Urban Drainage (SuDS) Approval Body (SAB) for approval, adoption and maintenance of new SuDS developments; Decision making responsibility for whether third party works on ordinary watercourses by third parties that may affect water flow can take place (internal drainage boards will still have this role on ordinary watercourses in their system); A duty to exercise flood or coastal erosion risk management functions in a manner consistent with national and local strategies; A duty to aim to contribute towards the achievement of sustainable development in the exercise of flood or coastal erosion risk management functions and to have regard to any Ministerial guidance on this topic. From 6 th April 2015 will become a statutory consultee within the Planning application process. This will be in the case initially of all majors defined as being 10+ units. This will be included within the National Planning Policy Framework. Havering also has the following new powers: Power to do works to manage flood risk from surface runoff or groundwater; Power to designate structures and features that affect flooding; The key activities for a Lead Local Flood Authority are: Strategic Leadership Meeting the Flood Risk Regulations Flood Investigation Reporting Asset Register Designating Assets Reporting Flood Incidents

28 Consenting changes to Ordinary Watercourses Strategic Leadership London Borough of Havering has an important role to play as the strategic leader for local flood risk management. This involves developing this Local Flood Risk Management Strategy document, ensuring that all organisations involved in flood risk management are aware of their responsibilities, monitoring progress and activity by all parties involved in flood risk management and co-ordinating communication with the public and between organisations. The Thames Regional Flood and Coastal Committee provides an important forum for elected representatives to discuss flood risk. There are also officer groups which bring together relevant officers from the different organisations to discuss issues of policy and to ensure that information is being captured and shared. Meeting the Flood Risk Regulations The Flood Risk Regulations 2009 require all Lead Local Authorities to produce a Preliminary Flood Risk Assessment (PFRA). The first PFRA was published November 2011 and can be found on the Havering website. A new version will be published in The PFRA identifies any Indicative Flood Risk Areas in the Borough. The Flood Risk Regulations also require that Flood Risk and Flood Hazard Maps are produced for any Indicative Flood Risk Areas. This will be followed by a Flood Risk Management Plan which will be published in December Recording Flood Incidents Assembling an accurate picture of flood risk across Havering requires the collection of precise and useful records from actual flood incidents occurring across the Borough. This will be achieved using a Flood Incident Record Sheet which includes fields for rainfall and flood information, as well as additional columns for the nature and cost of any damage and Officer notes. Any records will be completed each time an incident occurs, and that all records will be sent through to Havering Flood Management group prior to the next scheduled meeting. Anglian Water, Thames Water, Transport for London and the Highways Authority may respond to certain incidents so a process needs to be formulated for data to be efficiently shared with the Lead Local Flood Authority. Flood Investigation Reports A Flood Investigation Report should examine which authorities have an involvement in a flood incident, and clearly outline their responsibility or actions, if any. Investigations will involve consultation with the relevant risk management authorities, landowners and private organisations involved, all of whom we expect to cooperate with us and provide comments. The aim is for Flood Investigation Reports to bring all useful information together in one place, providing an understanding of situations, outlining possible causes of flooding and