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National Directorate for Fire and Emergency Management National Directorate for Fire and Emergency Management Department of Housing, Planning, Community and Local Government Report on Flooding December 4 2015 – January 13 2016 November 2016 1 2 Report on Flooding December 4 2015 – January 13 2016 Table of Contents Preface 5 Executive Summary 7 The Meteorological Background 11 The Hydrological Background 21 Mitigation and Preparedness Measures for Severe Weather 31 Impact of the Flooding 37 Response Measures 49 Recovery Phase 63 Summary Conclusions 69 Summary Recommendations 72 Appendix A Details of Areas Worst affected by Flooding and Response Measures Taken 75 Appendix B Government Departments and Agencies represented at the National Co- ordination Group for Severe Weather 94 3 4 Preface Following an exceptionally wet month of November 2015, severe flooding occurred in many parts of the country as a result of a series of Atlantic Storms beginning on 4 December 2015 with Storm Desmond. Further significant and extensive flooding occurred in the wake of Storm Eva that impacted the country on 23 December. This flooding primarily affected the midlands and west of the country. The heavy rainfall associated with this storm exacerbated existing flooding and gave rise to serious flooding in parts of the country that had previously escaped relatively unscathed. With the ground fully saturated and with no capacity to absorb any more water, rivers and streams around the country swelled and overtopped their banks. Surface water flooding due to pluvial factors i.e. resulting directly from intense and prolonged rainfall also occurred. Storm Frank on 29 December brought yet more rain with the worst of the resultant flooding occurring in the South East with Carlow, Kilkenny, Waterford and Wexford seriously affected. Graignamanagh was flooded twice in four days and the Quays and other parts of Enniscorthy were inundated when the River Slaney broke its banks. In the case of the River Shannon, the continued and sustained rainfall worsened already severe flooding along that river and its tributaries, flooding a number of homes and leaving many others cut off as roads became submerged. The huge volumes of water discharged through the extensive Shannon catchment caused flooding in the lower reaches also, below the Parteen Weir. Rainfall over the period was 189% of normal, making it the wettest winter ever recorded. Met Éireann measured 602mm total average rainfall for the country during this time. This Report describes the meteorological and hydrological characteristics of the period and reviews the impact of the storms on the communities involved. It describes the preparedness and the response of the State Agencies to the severe weather events. The report also details the recovery measures that were put in place by Government to deal with the aftermath of the flooding. This report is prepared by the National Directorate for Fire and Emergency Management, a section of the Department of Housing, Planning, Community and Local Government. The Department is the Lead Government Department for the response to severe weather events and flooding. The Department wishes to acknowledge the input to the preparation of this report from a range of organisations and Departments, including Met Éireann, Local Authorities and the Local Government Management Agency, Department of Defence, Department of Transport, Tourism and Sport and its agencies, Department of Communications, Climate Action & Environment and its agencies, in particular the ESB, Department of Social Protection, Department of Public Expenditure and Reform and Office of Public Works, and Irish Water. 5 6 Executive Summary This is a Review Report on the response to the severe flooding that affected many parts of the country during winter 2015-2016. The exceptional and in some areas record breaking rainfall that caused some of the worst flooding in Irelands history began in November 2015 and continued right up until early January 2016. This weather was punctuated by a series of Atlantic Storms including Storms Desmond, Eva and Frank. Rainfall totals over the period were 189% of normal, making it the wettest winter ever recorded. The worst affected areas were the west, southwest and the areas along the Shannon and its tributaries and later the South East. Homes and businesses were flooded, transport links severely impacted and disruption was caused to everyday life for people in large swathes of the country. One of the most notable aspects of this severe weather emergency was its longevity, with flooding persisting in some areas into March 2016 and indeed longer the turlough regions of South Galway. This report describes the meteorological and hydrological conditions that led to the flooding. It details the various impacts and effects of the flooding and sets out the responses made by the relevant state agencies as well as community and voluntary bodies. The flooding presented an enormous challenge to the response agencies and the appropriate apparatus of state was mobilised. The report examines the preparedness measures in place for such events and the coordination and effectiveness of those responses. The intention of the report is to draw together the learning points from the response activities and set out a series of recommendations to improve the preparedness and response to future emergencies. Many of these recommendations have been implemented. Impacts The most acute and visible impacts of the flooding were to homes and businesses that were damaged by floodwaters and others that were cut off for extended periods of time. Transport infrastructure was severely disrupted and extensive damage was caused principally to the roads network. Large areas of farmland were flooded impacting on agricultural activity and raising animal welfare concerns. National Response The Department of Housing, Planning, Community and Local Government which is the Lead Government Department for the response to severe weather emergencies, prepared this report. The OPW has the central role in flood preparedness and mitigation measures in its role as the Lead State Agency for flood prevention and flood mitigation. In examining the response the report concludes that the Lead Government Department model worked effectively for the management of this emergency at national level. The National Level response was activated on 3 December 2015 in anticipation of the impact of Storm Desmond on 4 December, with the convening of a National 7 Emergency Coordination Group. The National Emergency Coordination Group met daily until 15 January 2016 to bring a “whole of Government” response to bear in dealing with the crisis. Local Response The severe weather protocols in place in all the Principal Response Agencies (PRAs) and underpinned by the Framework for Major Emergency Management are also considered to have worked effectively at a local level. The ESB manages several major river catchments that were affected by flooding and worked closely with the local authorities to enable them to respond in a timely manner to areas at risk. Notwithstanding the effectiveness of the response, it is intended that the Framework for Major Emergency Management will be reviewed to further enhance inter-agency co- operation in emergency response related activities. It is intended that the aspect of the community and voluntary sector in building resilience to major emergencies will be expanded into this review of the Framework. On a local level as the emergency unfolded and its protracted nature became apparent the response was assisted by the Defence Forces and a range of voluntary emergency services including Civil Defence, Irish Red Cross and Mountain Rescue. Communities and individuals worked together with the PRAs, demonstrating remarkable resilience and resourcefulness to further bolster the response effort. In all, fewer properties were flooded than during the last severe flooding event in 2009 despite water levels being higher in a number of locations. It is concluded that the local response was, in many cases, effective over extended periods. Support for Those Affected The Department of Social Protection activated a Humanitarian Assistance Scheme that provided vital material supports to flooded householders. In recognition of the impact of the flooding on the business community, an Emergency Humanitarian Scheme for Small Businesses was arranged and was operated by the Irish Red Cross, while the Department of Agriculture, Food and the Marine operated a range of assistance measures for the farming community. These assistance measures together provided a suite of supports to the sectors most affected by flooding and the report recommends that pre-arranged assistance measures should be developed that can be activated quickly in the event of any future emergency. It is considered that the existing Department of Social Protection Humanitarian Assistance Scheme and the Department of Agriculture, Food and the Marine scheme could be used as a template for the operation of other schemes. Clean-up and Recovery When the flood waters receded an appraisal of infrastructural damage was undertaken and concluded that the total cost was in the order of €106m principally damage to the roads network. 8 Funding of €18m was made available by the Department of Housing, Planning, Community and Local Government to assist local authorities in meeting additional/unbudgeted exceptional costs associated with the very protracted flooding response and post flooding clean-up. The OPW operates a Capital Programme for major flood
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