Meeting Pack Derry City and Strabane District Council
Dear Member of Assurance, Audit and Risk Committee
You are hereby summoned to attend the monthly meeting of the Assurance, Audit and Risk Committee to be held in the Chamber, Guildhall, Derry, on Thursday 9 March 2017 at 4.00 pm.
Yours faithfully
John Kelpie Chief Executive
AGENDA
1 Notice and Summons of Meeting
2 Apologies
3 Declarations of Members' Interests
Open for Decision
4 Chairperson's Business
5 Confirmation of the Open Minutes of the Assurance, Audit and Risk Committee held on Thursday 2 February 2017 (Pages 1 - 6)
6 Matters Arising
7 NIAO Audit Strategy (Pages 7 - 26)
8 Western Emergency Preparedness Group Multi-Agency Flood Response Plan (Pages 27 - 90)
9 Review of Winter Flooding (Pages 91 - 234) Open for Information
10 Role of Elected Members (Pages 235 - 238)
1 March 2017 Agenda Item 5
Derry City and Strabane District Council
Open Minutes of Assurance, Audit and Risk Committee held in the Council Chamber, Guildhall on Thursday 2 February 2017 at 4.00pm. ______
Present: - Councillor McGinley (in the Chair); Aldermen Hamilton, Ramsey and Thompson; Councillors Carlin, Donnelly, Duffy, Gallagher, Hastings, McHugh, McKeever, and Robinson.
Non-Members of Committee: - Aldermen Devenney and Hussey; Councillor Carr; Mr Tony Jackson.
In Attendance: - Director of Environment and Regeneration (Mrs K Philips), Lead Assurance Officer (Mrs D McDonnell), Internal Audit Manager (Mr J Harrigan), Fleet Manager (Mr Bertie Magee) Risk Manager (Mrs Annmarie Begley),and Committee Clerk (Mrs T Johnstone).
______
AAR13/17 Notice and Summons for Meeting
The Lead Assurance Officer read the Notice and Summons for the Meeting.
AAR14/17 Apologies
Apologies of absence were received from Alderman M Hamilton and Councillor Reilly.
AAR15/17 Declarations of Members’ Interests
There were no declarations of interests.
Open for Decision
AAR16/17 Deputations
There were no deputations.
AAR17/17 Chairperson’s Business
Page 1 There was no Chairperson’s Business.
AAR18/17 Confirmation of the Open Minutes of the Assurance, Audit and Risk Committee held on 5 January 2017
The Open Minutes of the Assurance, Audit and Risk Committee held on 5 January 2017 (AAR1/17 – AAR11/17) were confirmed and signed by the Chairperson as correct.
Matters Arising
AAR19/17 DCSDC Annual Audit Letter (AAR09/17)
A non-committee Member of the UUP grouping referred to the section on absenteeism where the Chief Executive had advised Members that the topic was discussed every six months at the Governance and Strategic Planning Committee where a full detailed report was presented. He enquired as to when a report had been last presented and when the next one will be presented.
The Chair advised the Member he will check on this matter and forward a response.
AAR20/17 Internal Audit Report
The Internal Audit Manager presented the above report to update Members on the Internal Audit work carried out within Derry City and Strabane District Council in the period December 2016 to January 2017
A Member of the Sinn Fein grouping enquired about Fraud Awareness Training for Members as she had not received any notifications.
The Chair advised her that an email had been sent out with a reminder for Members diaries.
Mr Tony Jackson commented with regard to Strabane Council purchasing their fuel across the border because of the reduced price and asked officers to advise on the matter.
The Director for Environment and Regeneration reported that the systems currently in use were from the two legacy Councils and officers were now in the process of looking at the cost benefit analysis of both to consider a combined approach.
Page 2 The Internal Audit Manager commented that there were two different systems operating when the new Council began and they were in the process of reviewing and amalgamating the two systems. He added that there had been a number of recommendations with regard to theDiesel Card Ireland (DCI ) system which was also part of the overall review.
The Lead Assurance Officer reported that before the merge of the two councils, Members may recall a number of issues identified previously with the DCI. A significant number of improvements have been made since that time and Council are now in the process of reviewing and amalgamating the two areas.
An Independent Member of Council thanked officers for the report but stated that he wished to highlight concerns which were previously raised regarding security at Skeoge Depot. He added that Members were aware of the history of the depot including the issue of a single tender action for a security contract and the concerns surrounding this and was pleased to note that the Internal Audit tem had reviewed this area as part of the audit.
The Director of Environment and Regeneration commented that the issues had been noted regarding Skeoge Depot.
The Committee
Recommended that the contents of the Internal Audit Reports for Derry City & Strabane District Council be endorsed.
AAR21/17 Assurance, Audit and Risk Committee Terms of Reference
The Lead Assurance Officer read the above report on the Committee’s Terms of Reference
A Member of the UUP grouping enquired on the monitoring of the work of other committees and to what level this would be envisaged.
Page 3 The Lead Assurance Officer stated that the Governance and Strategic Planning Committee will be presented with reports in relation to performance improvement and assessment. However, it is the role of the Assurance, Audit and Risk Committee to provide assurance that the Council’s arrangements for performance improvement are operating effectively and to actively assist the Council with monitoring the activity of any Committee charged with the scrutiny of performance improvement.
The Committee
Recommended that the contents of the Report on Terms of Reference for Derry City & Strabane District Council be endorsed.
AAR22/17 Risk Review Processes and Update on Council Service Risk Registers
The Insurance and Risk Manager presented the report regarding ongoing risk review processes in accordance with Council’s Risk Management Strategy.
Mr Tony Jackson commented that a number of the high-scoring risks on the community planning risk register where subject to external variables, and therefore may effectively be outside of Council’s control.
The Insurance and Risk Manager reported that the risk register has been prepared in conjunction with the Business Support and Change Manager and was also reviewed and agreed by the Transition Community Planning Partnership. At this stage it was recognised that there were many external factors which would impact on the community plan, and therefore risks related to securing adequate capital funding, accommodating foreign direct investment, and the skills deficit were currently scored highly. The risk register did however include actions which to some extent were within the control of Council and these were subject to ongoing monitoring and review by the Community Planning Partnership.
Page 4 A non-committee Member of the UUP grouping referred to the number of high-scoring risks on the Register and enquired when the relevant committee will address the concerns which had been identified.
The Director of Environment and Regeneration reported that the risk register had an action plan highlighting the risks which will be presented at the next committee meeting.
The non-committee Member of the UUP grouping then enquired as to when the actions would be completed and also if the matter should be presented to Assurance, Audit and Risk Committee or go to the committee that effectively dealt with the issues.
The Lead Assurance Officer relayed that a further report in relation to the delivery of actions will be presented to the Governance and Strategic Planning Committee.
The Director of Environment and Regeneration reported that the community plan was about to go out into public consultation and although there were controls starting to gather together they were not fully agreed and signed off. She added that a report would be generated on the community plan and forwarded to Governance and Strategic Planning specifically highlighting the risk register.
A Member of the SDLP grouping stated that with regard to community planning there were too many variables at work, therefore it would be difficult to come to an exact figure to measure the risk as each of the areas relate to another organisation other than the Council. He added that if a target was set then risk could be measured against that and also the non-completion of tasks. He stated that he was aware that there will always be issues as every community within the DCSDC area had a community plan and would be measuring our performance against that.
The Committee
Page 5 Recommended that the contents of Risk Review Processes and update on Council Service Risk Registers for Derry City & Strabane District Council be endorsed.
The Meeting terminated at 4.25 pm
Page 6 Agenda Item 7 Title of Report: Officer presenting:
NIAO Audit Strategy Lead Assurance Officer
Author:
Lead Assurance Officer
1 Purpose of Report/Recommendations 1.1 To purpose of this report is to seek Members endorsement of the Northern Ireland Audit Office's Audit Strategy for Derry City and Strabane District Council for 2016/2017 - refer to Appendix 1.
2 Background 2.1 The purpose of this document is to highlight to the Chief Financial Officer and Audit Committee of the Council: 2.1.1 How the NIAO plan to audit the financial statements for the year ending 31st March 2017, including how they will be addressing significant risks of material misstatement to transactions and balances; 2.1.2 Matters of interest and developments in financial reporting and legislation; 2.1.3 The planned timetable, fees and audit team; and 2.1.4 Matters which the NIAO are required to communicate to the Council under International Standards on Auditing (UK and Ireland) (ISAs), including the scope of the audit, the NIAO's respective responsibilities, and how the NIAO maintain independence and objectivity.
3 Key Issues 3.1 A representative from the Northern Ireland Audit Office will be in attendance at the meeting to present the Audit Strategy.
4 Financial and Other Implications 4.1 There are no implications arising from this report.
5 Recommendations 5.1 It is recommended that Members endorse the contents of the NIAO's Audit Strategy.
Background Papers
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Derry City & Strabane District Council
N I A O AUDIT OF 2016‐2017 STATEMENT OF ACCOUNTS Northern Ireland Audit Office
AUDIT STRATEGY Our purpose ...
Promoting better use of public money, through independent professional scrutiny, underpinned Contents by our commitment to:
Integrity Introduction 1
Equality Our Audit Approach 2 Openness Innovation Significant Risks 4 Further matters of interest 6 To make a difference for the people of Northern Audit timetable, staffing and fees 8 Ireland. Annex 1: Scope of audit, respective 10 The Local Government (Northern Ireland) Order responsibilities and other matters 2005 (the Order) provides that the Department Annex 2: NIAO quality standards and 14 for Communities (DfC) may, with the consent of the Comptroller and Auditor General, designate independence persons who are members of staff of the Northern Ireland Audit Office (NIAO) as Local Government Auditors. Once designated, auditors carry out their statutory and other responsibilities, and exercise their professional judgement, independently of DfC and the Comptroller and Auditor General.
Louise Mason, Assistant Auditor General is the designated Local Government Auditor.
For further information please contact:
Colette Kane Director Northern Ireland Audit Office 106 University Street
Belfast BT7 1EU
Tel: 02890 251064
Email: [email protected]
Page 9 Audit Strategy: Derry City and Strabane District Council 2016‐2017
1 Introduction
1.1. The Local Government Auditor is the independent external auditor of the financial statements of Derry City and Strabane District Council under the Local Government (Northern Ireland) Order 2005 (the Order). Our audit is designed to allow the Local Government Auditor to give an opinion on whether: the financial statements are ‘true and fair’, in accordance with relevant legal and regulatory requirements and the Code of Practice on Local Authority Accounting (the Code);
the information given in certain sections of the Statement of Accounts is consistent with the financial statements; and
a number of further matters on which she reports by exception, including whether or not adequate accounting records have been maintained or if the Annual Governance Statement does not reflect Department for Communities guidance or compliance with the Code. 1.2. The purpose of this document is to highlight to the Chief Financial Officer and Audit Committee of the Council: how we plan to audit the financial statements for the year ending 31 March 2017, including how we will be addressing significant risks of material misstatement to transactions and balances;
matters of interest and developments in financial reporting and legislation;
the planned timetable, fees and audit team; and
matters which we are required to communicate to you under International Standards on Auditing (UK and Ireland) (ISAs), including the scope of the audit, our respective responsibilities, and how we maintain independence and objectivity (Annex 1). Actions for those charged with governance 1.3. Those charged with governance are invited to consider and discuss: whether our assessment of the potential risks of material misstatement to the financial statements is complete; whether management’s responses to these risks are adequate; our proposed audit plan to address these risks; and whether the financial statements could be materially misstated due to fraud and communicate any areas of concern to management and the audit team. 1.4. Those charged with governance, in order to comply with best practice, should also review the accounting policies adopted by the organisation and consider whether they remain appropriate to the organisation’s circumstances and comply with the Code and relevant guidance issued by Department for Communities.
Page 10 1 Audit Strategy: Derry City and Strabane District Council 2016‐2017
2 Our Audit approach
2.1. Our approach to the audit of financial statements uses a range of techniques to obtain audit evidence and assurance and is based on a thorough understanding of the business. 2.2. This understanding allows us to develop an audit strategy which focuses on addressing specific risks whilst providing an acceptable level of assurance across the financial statements as a whole.
Outline of our general audit approach 2.3. The NIAO audit approach is risk‐based, informed by a good understanding of the operations of Derry City and Strabane District Council and an assessment of the risks associated with the financial statements. 2.4. Our initial assessment of Derry City and Strabane District Council’s operations and control environment has identified an area of significant risk which requires a specific audit response. This is listed below in section 3. Against the risk we have provided a preliminary audit response. On completion of our audit we will provide a further update on this risk in our Report to those charged with Governance. 2.5. For all significant audit areas, we will use a variety of audit techniques, including analytical procedures and sampling of transactions. 2.6. We will review other accounting systems and management controls operated by Derry City and Strabane District Council only to the extent we consider necessary for the effective performance of the audit. As a result, our review may not detect all weaknesses that exist or all improvements that could be made. Where we do uncover any significant deficiency weaknesses we will report these to you, with our recommendations for improvements. Using the work of others 2.7. We continue to liaise closely with Internal Audit and seek to take assurance from their work where their objectives cover areas of joint interest. We also carry out a review of the Internal Audit structure and function in accordance with ISA 610: Using the work of internal auditors. Materiality 2.8. The concept of materiality recognises that financial statements are rarely absolutely correct, and that an audit is designed to provide reasonable, rather than absolute, assurance that the financial statements are free from material misstatement. 2.9. For the purposes of determining whether the financial statements are free from material misstatement or illegality we consider whether the following would influence the users of the accounts: the magnitude of misstatement; or the nature and cause of misstatements (e.g. because of the sensitivity of specific disclosure or legality requirements). 2.10. In line with generally accepted practice, we have set our quantitative materiality threshold as approximately 2% of estimated gross expenditure of £1,325,910 (Council) and £1,417,603 (Group). 2.11. Other elements of the financial statements that we consider to be more sensitive to users of the accounts will be assessed using a lower qualitative materiality threshold. These elements include the remuneration report disclosures; any losses and special payments note; our audit fee and related party transactions. 2.12. We apply the concept of materiality in planning and performing our audit and in evaluating the effect of misstatements on our audit and on the financial statements. As the audit progresses our assessment of both quantitative and qualitative materiality may change.
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Error Reporting Threshold 2.13. For reporting purposes, we will treat any misstatements below £15,000 as “trivial” and therefore not requiring consideration by the Audit Committee. 2.14. Please note that this is a separate threshold to our consideration of materiality as described above. It is materiality, not the error reporting threshold, which is used in forming our audit opinion. Proper Arrangements
2.18. In addition to the audit of the financial statements, the Local Government Auditor has a duty under the 2005 Order to be satisfied that Council have made proper arrangements for securing economy, efficiency and effectiveness in its use of its resources.
2.19. For 2016‐17 we plan to update the Questionnaire that we issued, and Councils completed, in 2016. We will review the questionnaire responses and perform some additional work in area considered to be higher risk. The main financial audit work will also feed into the risk assessment and conclusions of arrangements in place.
2.20. Conclusions regarding proper arrangements will be noted in the Annual Audit Letter and any recommendations for improvement will be included in the Report to those Charged with Governance.
Page 12 3 Audit Strategy: Derry City and Strabane District Council 2016‐2017
3 Significant Risks
Risks of material misstatement in the financial statements
3.1. As part of our work to develop the audit plan, we have identified the following significant risks of material misstatement. A significant risk is an identified and assessed risk of material misstatement that, in the auditor’s judgement, requires special audit consideration.
Significant Risk Audit Response City of Derry Airport (CODA): There We will consider the work undertaken by continues to be uncertainty regarding the the Council to secure a Public Service going concern status of the Airport. This Obligation (PSO) in respect of the airport. may impact upon the group accounts for We will review the going concern status of the Council, disclosures within the the airport during final accounts work and financial statements and potential assess whether it impacts on the Council’s provisions in respect of both closing costs closing financial position. and carrying value of airport assets.
Presumed Risks 3.2. Under ISA 240, there is a presumed significant risk of material misstatement owing to fraud arising from management override of controls. We will address this risk through our testing of journals, estimates and through a review of any significant or unusual transactions in the year. 3.3. There is also a presumed risk of fraud in revenue recognition, albeit rebuttable. We have not rebutted this risk; we will consider this risk particularly in respect of council’s cash collection systems. We will look at the controls in place over cash systems and perform a cyclical review of establishments that collect revenue in cash receipts. Risks to Proper Arrangements in place to secure economy, efficiency and effectiveness 3.4. Under the Code of Audit Practice we are also required to perform an initial assessment of significant risks to the conclusion on proper arrangements in place to secure economy efficiency and effectiveness in the use of its resources. Our initial assessment indicates no particular audit risk; however as noted below we will be considering procurement as a risk factor and this may impact on the proper arrangements outcome within the Council.
Other risk factors
3.5. In addition to the significant risks we have identified above, we have also identified a number of other risk factors. We do not consider these to represent a significant risk of material misstatement in the financial statements but are matters which we will continue to monitor and respond to as appropriate throughout the audit. These areas include: Procurement. Several procurement propriety issues have been brought to our attention by whistleblowers in previous years. These have been investigated by Council and a number of improvements to existing procurement controls have been recommended. We will review progress in implementing these controls and also undertake some controls and substantive work in this area on a limited sample basis. As per above we will also be considering procurement as part of our proper arrangements work.
Provisions. The Council has a number of material provisions in its financial statements, including landfill, single status, redundancy payments and claims management liabilities. While the Council appears to have robust controls to ensure these are both complete and appropriately valued, with any estimated figure there is always a risk of
Page 13 4 Audit Strategy: Derry City and Strabane District Council 2016‐2017
material inaccuracy. We will review these areas during our audit.
North West Regional Development Group‐ we understand this is funded by both a Northern Ireland Department and a Republic of Ireland civil service Department. This is a new source of ring fenced income / spend for council and therefore there maybe some teething issues with the embedding of controls. We note too that some of the spend will be for projects in the Republic of Ireland and thus it will be important to ensure the legality of such transactions for Council. We understand that this spend is not subject to a separate audit and therefore we will review the controls in this area, sample test spend and also review the disclosures in the financial statements.
Review of risks of material misstatement in the financial statements or arrangements in place
3.6. New risks may arise during the audit that could affect our audit opinion or our conclusions on proper arrangements in place to secure economy efficiency and effectiveness in the use of resources. Therefore we will continue to keep our risk assessment and audit approach under review and we will report any significant changes to the audit work planned to those charged with governance.
Page 14 5 Audit Strategy: Derry City and Strabane District Council 2016‐2017
4 Further matters of interest
4.1. The paragraphs below identify some areas impacted by new guidance, or other important matters, that Councils should note for the preparation of the financial statements and facilitating the completion of the audit.
Remuneration Report
4.2. The Local Government (Accounts and Audit) Regulations (Northern Ireland) 2015 requires large local government bodies to produce a Remuneration Report. Guidance on the format of this report has been issued by the Department in a circular (LG 30/15).
4.3. The Remuneration Report contains a link on Councils’ websites to information on members’ allowances and expenses. The data on members’ allowances and expenses should be audited alongside the main Remuneration Report. Therefore the information that is intended to be published on members’ allowances and expenses should be submitted to the Local Government Auditor at the same time as the Statement of Accounts.
Statement of Accounts Publication Deadline
4.4. The Local Government (Accounts and Audit) Regulations (Northern Ireland) 2015 prescribes the statement of accounts timetable and gives a deadline as no later than 30 September for signing, approval and publication of the statement of accounts with the report by the Local Government Auditor. The signed and approved statement of accounts should be sent as soon as possible to NIAO. Once received by NIAO, there are final audit procedures required before they can be presented to the Local Government Auditor for certification. This should be taken into consideration when setting dates for the meetings to consider and approve the statements of accounts.
Where an audit of accounts has not been concluded before the 30 September the Council must publish (which must include publication on the Council’s website) as soon as reasonably practicable on or after that date a notice stating that it has not been able to approve the accounts and its reasons for this.
Performance Improvement
4.5 The Local Government (Northern Ireland) Act 2014 prescribes responsibilities for the Local Government Auditor regarding the audit and assessment of performance improvement arrangements in Councils. The scope of this work is communicated to Councils separately in line with the timetable set out in legislation.
Changes to the Code of Practice on Local Authority Accounting
4.6 There is a new requirement to include an Expenditure and Funding Analysis (EFA) in the Narrative Report following the ‘Telling the Story’ review of the presentation of local authority financial statements. This new analysis compares a council’s performance on the basis of expenditure measured under proper accounting practices with statutory defined charges to the General Fund. It aims to distinguish expenditure funded from the collection of rates.
4.7 There is also a new reporting format for the Comprehensive Income and Expenditure Statement and the Movement in Reserves outlined in the Code. However, the EFA and new reporting format will not be adopted in Northern Ireland until 2017‐18. The Department will issue a Direction in this respect in due course.
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4.8 We note there is no statutory requirement the format of the Narrative Report for Northern Ireland Councils although the Department can make directions in this respect. However, we recommend as a matter of good practice that councils consider adopting the approach outlined in the Code for English local authorities and follow the principles in the Financial Reporting Council’s (FRC) “Guidance on the Strategic Report”. One of the objectives of the guidance is to encourage narrative information in annual reports to be presented in a way that enables bodies to best ‘tell their story’ while remaining within statutory requirements.
4.9 The FRC guidance includes elements prescribed by the Companies Act 2006 for a Strategic Report. This includes a description of the entity’s strategy, objectives and business model; an explanation of the main trends and factors affecting the entity; a description of its principal risks and uncertainties; an analysis of the development and performance of the business; and an analysis using key performance indicators. Disclosures about the environment, employees, social, community and human rights issues are also recommended when material.
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5 Audit timetable, staffing and fees
Timetable and fees 5.1. The Council is required to comply with the legislative timetable for producing and publishing audited financial statements. 5.2. Key target dates are:
Event Date Agreed Interim audit testing to commence 16 January 2017 Submission of Chief Financial Officer approved 30 June 2017 accounts Appointed dates for exercise of rights under Articles 30 August 2017 to 14 September 17 & 18 of the 2005 Order 2017 (see Annex 1 paragraph 5) Final audit testing to commence 17 July 2017 Draft Report to those charged with governance 11 September 2017 Audit Committee / Council meeting (TBC) 14 September 2017 The Council provides signed Financial Statements and 19 September 2017 Letter of Representation Financial Statements to be certified 25 September 2017 Final Report to those charged with Governance issued 27 October 2017 Annual Audit Letter 27 October 2017
5.3. The estimated normal recurring audit fee for the Council account is likely to be £55,000. However, this year there is also an additional transaction stream ‐ the North West Regional Development group, which may necessitate an additional fee of around £3k. 5.4. Completion of our audit in line with the timetable and fee is dependent upon: Derry City and Strabane District Council delivering on 30 June 2017 a complete Statement of Accounts of sufficient quality that have been subject to appropriate internal review. Derry City and Strabane District Council delivering good quality supporting documentation and evidence, within the agreed timetable; and Appropriate client staff being available during the audit. Staffing 5.5. The following NIAO staff will be involved in the audit:
TITLE NAME RESPONSIBILITIES Assignment Director Colette Kane Overall responsibility for the audit Assignment Manager Stephen Knox Day to day responsibility of the audit and the audit team Lead Auditor Aileen Ruddy Detailed planning, conduct and
Page 17 8 Audit Strategy: Derry City and Strabane District Council 2016‐2017
supervision of the audit testing Team members Peter Mallon/ Audit testing Emma Taggart
Page 18 9 Annex 1: Scope of the audit, respective responsibilities and other matters
Scope of the audit
1. Our audit of the financial statements will be carried out in accordance with International Standards on Auditing (UK & Ireland) (ISAs) issued by the Auditing Practices Board (APB), taking into account the UK Auditing Practice Board’s Practice Note 10 (Revised): Audit of Financial Statements in Public Sector Bodies in the United Kingdom (Revised). These standards represent best practice in auditing and aim to promote uniformity of practice throughout the world, thereby increasing public confidence in the audit process. 2. Our audit procedures are designed primarily to provide an opinion on whether the financial statements provide a true and fair view of the position at 31 March 2017 and the activities reported for the year then ended. 3. In addition we have a professional responsibility to report if the financial statements do not comply in any material respect with the Code and the Accounts Direction and other relevant guidance issued by the Department for Communities. We therefore review the quality, effectiveness and transparency of the accounting practices and financial reporting. This includes consideration of the appropriateness of accounting policies, accounting estimates and judgements and the adequacy of disclosures affected by unusual or non‐recurring transactions recognised during the period. 4. As part of our audit we will review the information contained in the Narrative Report. Certain information given in the Narrative Report and parts of the Remuneration Report are subject to our audit opinion. Other information in the Narrative Report is reviewed only to the extent that we confirm that it is consistent with the financial statements and our understanding of the business. We also review the overall balance and clarity of information contained in the Narrative Report. 5. The Local Government (Accounts and Audit) Regulations (Northern Ireland) 2015 requires the Derry City and Strabane District Council to give notice, by publication on its website, of the date from which the accounts and other documents are available for public inspection and the date from which the exercise of rights under Article 17 and 18 of the Order may be exercised. We will hear and carefully consider representations by, and objections from, interested parties concerning the Derry City and Strabane District Council’s accounts. In conducting our audit, when appropriate, we will consider the lawfulness of items of account, the conduct of members and officers, instances where it appears a loss may have arisen and our other statutory duties as Local Government Auditor.
6. The Code of Audit Practice issued by the Local Government Auditor extends to not only the audit of financial statements but also to aspects of financial and corporate arrangements to secure the economic, efficient and effective use of resources. The Code can be viewed on the NIAO website (www.niauditoffice.gov.uk).
7. We will provide the Derry City and Strabane District Council with a Report to those Charged with Governance containing observations and recommendations on significant matters that have arisen in the course of the audit. After the completion of the audit we will issue an Annual Audit Letter to the Derry City and Strabane District Council. Annual Governance Statement 8. We will also review the Annual Governance Statement to ensure it complies with the Code and Department for Communities guidance and that the statement fairly reflects our understanding of the state of internal control systems within the entity during the year. Respective Responsibilities in the preparation of the financial statements 9. In line with Auditing Standards we are required to agree the respective responsibilities of the Local Government Auditor, the Council’s Chief Financial Officer and the NIAO. These
Page 19 10 Annex 1: Scope of the audit, respective responsibilities and other matters
responsibilities are set out in the Statement of Responsibilities of Local Government Auditors and Local Government Bodies issued by the Local Government Auditor. The Statement of Responsibilities can be viewed on the NIAO website (www.niauditoffice.gov.uk). 10. The audit of the financial statements does not relieve management or those charged with governance of their responsibilities. Preparation of the financial statements 11. The primary responsibility for the preparation of the financial statements and the legality of transactions lies with the Derry City and Strabane District Council. 12. The financial statements should be prepared in accordance with the Code of Practice for Local Authority Accounting 2016‐17 and the directions issued by the Department for Communities. Legal requirements under Accounts and Audit Regulations 13. The main requirements under the Local Government (Accounts and Audit) Regulations (NI) 2015 are included in Guidance issued by the Department for Communities in LG 30/15. Supporting Records 14. All relevant general ledger transactions should be processed to allow trial balances to be made available for audit purposes along with the draft financial statements. Amendments made to trial balances after the books are closed and the accounts are submitted for audit should be discussed with NIAO staff and be supported by approvals and other underlying documentation. Further adjustments may be required as a result of our audit findings. 15. We will require access to schedules and documentation which support the figures and disclosures within the financial statements. We expect the draft accounts to have been subject to a thorough review by management before they are submitted for audit. 16. On receipt of the financial statements we will review them and the supporting schedules to ensure they are of sufficient quality for the audit to proceed per the timetable agreed. NIAO produce some checklists for this purpose and recommend it as a useful reference point for management’s own review. Fraud 17. The primary responsibility for the detection of fraud rests with management. Their role in the detection of fraud is an extension of their role in preventing fraudulent activity. The Chief Financial Officer is responsible for establishing a sound system of internal control designed to support the achievement of Derry City and Strabane District Council policies, aims and objectives and to manage the risks facing the organisation; this includes the risk of fraud. 18. Our audit is designed to provide reasonable assurance that the financial statements (as a whole) are free from material misstatement, whether caused by fraud or error. We are not responsible for preventing fraud or corruption, although our audit may serve to act as a deterrent. 19. We are required to make inquiries of those charged with governance in respect of their oversight responsibility for: Management’s assessment of the risk that the financial statements may be materially misstated owing to fraud, including the nature, extent and frequency of such assessments;
Management’s process for identifying and responding to the risks of fraud, including any specific risks of fraud that management has identified or that has been brought to its attention;
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Management’s communication to the Audit Committee (and others charged with governance) on its processes for identifying and responding to the risks of fraud;
Management’s communication, if any, to its employees on its views about business practices and ethical behaviour; and
Whether management has any knowledge of any actual, suspected or alleged fraud. Communication of audit matters 20. ISA 260: Communication with those charged with governance provides guidance for communication during the audit cycle. 21. The principles of this ISA are embodied in the NIAO audit approach. These include the provision of this strategy document, wash‐up meetings, after audit visits to communicate findings, and the provision of a Report to those Charged with Governance at the completion of the audit setting out observations and recommendations on significant matters which have arisen during the course of the audit. 22. In addition, the ISA states that ‘the auditor shall communicate with those charged with governance significant difficulties, if any, encountered during the audit’. Significant difficulties would include delays in management providing required information, the unavailability of expected information and restrictions imposed on the auditor by management. We will consider if any issues we have in performing our audit represents significant difficulties. If we encounter significant difficulties we must report these to those charged with governance, documenting how they have been resolved. 23. ISA 265: Communicating deficiencies in internal control to those charged with governance and management places a responsibility on the auditor to communicate appropriately to those charged with governance and management deficiencies in internal control that the auditor has identified in an audit of financial statements. We will report significant deficiencies in writing to those charged with governance and management. Whole of Government Accounts 24. Derry City and Strabane District Council has been designated for inclusion in the Whole of Government Accounts (WGA) by DoF under section 15(1) of the Government Resources and Accounts Act (Northern Ireland) 2001. As such, Derry City and Strabane District Council is required to provide a WGA return to DoF as directed. 25. The Derry City and Strabane District Council is deemed by DoF to be a ‘WGA Minor Body’ and as such has limited reporting requirements and does not require an audit of the WGA returns. Minor Body status is subject to review each year. Personal Data 26. The processing of personal data for audit purposes will be completed in accordance with the requirements of the Data Protection Act 1998. We have procedures in place to ensure that the security of personal data is safeguarded at all stages of the audit process. We will notify you in the Executive Summary of the Report to those charged with Governance of action taken to return, retain or destroy any personal data processed for audit purposes. Assembly of certified audit files 27. International Standard on Quality Control (UK and Ireland) 1 (ISQC1): Quality control for firms that perform audits provides guidance on the assembly of completed audit files. We are dedicated to achieving quality throughout our audit process. ISQC1 suggests that 60 days is sufficient time to assemble the files and also states that firms should have “policies and procedures designed to maintain the confidentiality, safe custody, integrity, accessibility and retrievability of engagement documentation”.
Page 21 12 Annex 1: Scope of the audit, respective responsibilities and other matters
28. As part of our office procedures we operate a structured approach to storing the completed audit files within 60 days of certification thereby demonstrating compliance with ISQC1 requirements (which are echoed in ISA 230: Audit documentation). Therefore we will request that management responses to our Report to those charged with Governance are agreed within 60 days of certification. Independence 29. The NIAO complies with relevant ethical requirements regarding independence and has developed important safeguards and procedures in order to ensure our independence and objectivity. These are set out in Annex 2 below: NIAO quality standards and independence. We will reconfirm our independence and objectivity for the year ended 31 March 2017 in our Report to those Charged with Governance.
Page 22 13 Annex 2: NIAO quality standards and independence
Audit quality 1. Auditing Standards require that we communicate at least annually with each body we audit on how we maintain our audit quality and our independence. 2. Quality is strongly embedded in the NIAO culture and manifests itself through: Continued Professional Development (CPD) – all professional staff are expected to maintain a level of CPD each year across the range of professional, management and personal effectiveness training and development; and specialist skills – our audit team can call as necessary on the NIAO in‐house Audit Policy Branch. 3. We have well established review procedures to ensure that appropriate audit work is undertaken efficiently and in accordance with International Standards on Auditing: all planning decisions and fieldwork are reviewed by NIAO management and directorate; all significant matters are dealt with promptly and will be raised with Derry City and Strabane District Council management as necessary; and progress on the audit is monitored on a continuous basis to ensure that the work is completed efficiently, effectively, to time and within budget. We have well established review procedures to ensure that appropriate audit work is undertaken efficiently and in accordance with International Standards on Auditing. 4. In addition, the NIAO has additional procedures for high risk audits, which include the review of key judgements by an NIAO Director who is fully independent of the audit team. 5. Each year the NIAO executes a programme of post‐certification internal Quality Control Reviews. The objective of these reviews is to establish whether sufficient and appropriate evidence has been collected and evaluated and whether the NIAO’s financial audits comply with professional standards and internal policies. 6. To seek an external view, the other UK public audit agencies conduct external Quality Control Reviews on a sample of our post‐certified audit files. The results of the Quality Control Reviews are regularly brought to the attention of all staff. Independence policies and safeguards 7. The NIAO is independent of government and differs from other professional audit bodies in that it has additional public service responsibilities. 8. All public sector bodies are required to observe high standards of probity in the management of their affairs, and the Committee on Standards in Public Life has identified seven key principles which should be followed: selflessness; integrity; objectivity; accountability; openness; honesty; and leadership. The combination of professional ethics and public sector principles therefore places the NIAO in a unique position. 9. These principles underpin the work of the NIAO, in particular: Accountability ‐ everything done by those who work in the NIAO must be able to stand the test of assembly scrutiny, public judgements on propriety, and professional codes of conduct; Probity ‐ there should be an absolute standard of honesty and integrity in handling NIAO work and resources; and
Page 23 14 Annex 2: NIAO quality standards and independence
Objectivity and Impartiality ‐ The Local Government Auditor a member of the NIAO staff. The head of NIAO is the Comptroller and Auditor General and his independence is secured in statute. This underlines the need for all NIAO staff to be objective and impartial in our work, including accurate, fair and balanced reporting. 10. We need to apply these values to retain our credibility with the Assembly, local government bodies and other stakeholders in our work and therefore a code of conduct is issued annually for all staff to complete a return confirming that they have complied with its provisions.
Page 24 15
Page 25 16 This page is intentionally left blank Agenda Item 8
Title of Report: Officer Presenting: Emergency Planning Officer Western Emergency Preparedness Group Multi-Agency Flood Response Plan Author: Emergency Planning Officer
1 Purpose of Report/Recommendations
1.1 To seek Members endorsement and provide Members with an overview of the contents of the Western Emergency Preparedness Group Multi Agency Flood Plan which was finalised in December 2016. Refer to Appendix 2.
2 Background 2.1 This plan details the pre-planned response, as a result of a Met Office weather warning for rainfall being issued. It outlines the graduated incident and co- ordinated multi-agency response to a potential or actual flooding event in the Western Emergency Preparedness Group (WEPG) area. It details roles and responsibilities and actions that each organisation should take at each different impact level. The implementation of the plan is based on the multi-agency co- ordination as detailed within the Civil Contingencies Group (NI) Protocols.
3 Key Issues
3.1 The Plan sets out the principal roles & responsibilities of Council(s) which include:
o Communication with other responders and the public; o Facilitation of the co-ordination of the Recovery phase; o Activation of the Councils’ Emergency Plan if necessary; o Advise on environmental issues such as public health matters; o Emergency Support Centre provision; o Administration of DfC Severe Inconvenience Payment if the Scheme of Emergency Financial Assistance (SEFA) is activated by the Department; o Co-ordination of Risk Assessment activities; and o Provide a liaison officer to the Tactical Co-Ordinating Group and Strategic Co-ordinating Group as required.
4 Financial, Equality, Legal, HR, Improvement and other Implications
Page 27 4.1 The Council Emergency Planning Officer and the Western Emergency Planning Co- ordinator work in liaison with the emergency services and other relevant organisations on a multi-agency planning and response basis, via the WEPG.
5 Recommendations 5.1 It is recommended that Members endorse the WEPG Multi-Agency Flood Plan to ensure the continued commitment of Derry City & Strabane District Council in working with other agencies to plan, respond and recover from all types of emergencies/major incidents.
Background Papers
Appendix 2: WEPG Multi-Agency Flood Plan.
Page 28 Western Emergency Preparedness Group
MULTI-AGENCY FLOOD PLAN
OPERATIONAL FLOOD PLAN
‘Flooding - you can’t prevent it but, you can better prepare for it.’
VER V Page 29 AMENDMENT RECORD
Please ensure that this record is maintained to keep the contents up-to-date
Version Date Description of Alterations October 2016 Version approved by SCEP November 2016 Amended to include WEPG information and approval sought via theWEPG Flooding & Severe Weather Group December 2016 Discussion at WEPG to seek endorsement December 2016 Approval at WEPG Meeting. Add in links to Rivers Agency Flood Maps and hydrometric sites ( Section 1.7). Uploaded to RD January 2017 Amended to include Clady River Level Alert Station January 2017 Amended to include Public Health Agency role detail February 2017 Amended to include additional Clady River and Colebrooke Level Alert information
GLOSSARY OF TERMS
CAC Community Assistance Centre CCG (NI) Civil Contingencies Group NI CCPB Civil Contingencies Policy Branch CRT Coastguard Rescue Team DAERA Department of Agriculture, Environment & Rural Affairs DfC Department for Communities DfI Department for Infrastructure
2 Page 30 EPCO Emergency Planning Co-ordination Officer EPG Emergency Preparedness Group FLG Flood Liaison Group FSSG Flood Strategy Steering Group FSWWG Flooding & Severe Weather Working Group LGD Lead Government Department MARF Multi-Agency Recovery Forum MCA Maritime & Coastguard Agency MIMMS Major Incident Medical Management and Support MOACC Met Office Advisor Civil Contingencies NIAS Northern Ireland Ambulance Service NICCMA NI Central Crisis Management Arrangements NIFRS Northern Ireland Fire & Rescue Service NSWWS National Severe Weather Warning Service PEDU Performance Efficiency Development Unit PSNI Police Service of Northern Ireland RCRG Regional Community Resilience Group SAR Search and Rescue SFRA Significant Flood Risk Area SITREPS Situation Reports TEO The Executive Office Riparian – the interface between a water course and the adjacent land. A Riparian Owner, under common law is the owner of any watercourse within or adjacent to the boundaries of their property.
Riparian Owner Responsibilities - riparian owner responsibilities include the maintenance of the bank and bed of their section of watercourse, in order to avoid any obstruction of flow in the watercourse.
Drainage Agencies – DfI Rivers Agency, NI Water, DfI TransportNI
TABLE OF CONTENTS
CHAPTER NUMBER DETAIL PAGE NUMBER Chapter 1 Introduction 5
Chapter 2 Weather Monitoring & Flood Risk 8 Assessment Chapter 3 Co-ordination 13
Chapter 4 Multi-Agency Response 16
3 Page 31 Chapter 5 Vulnerable Individuals & Sites 17
Chapter 6 Evacuation 18
Chapter 7 Sandbag Provision 19
Chapter 8 Stand-down, Handover and 20 Recovery Appendices 21-62
Appendix 1: Map of the WEPG area
Appendix 2: Framework for co-ordination of Flooding Emeregencies
Appendix 3: Teleconference Protocol
Appendix 4: Roles & Responsibilities
Appendix 5: Organisational Roles relevant to Flood Warning Impact
Appendix 6: Vulnerable sites in WEPG area identified by the Risk Assessment
Appendix 7: Mutual Aid Agreement ( Draft)
Appendix 8: Flood Risk Areas in the WEPG Area.Action Cards for Flood Risk Areas and Sectors of Omagh.Area of Study based on the Flood Risk Management Plans. Alert Station Information
Appendix 9: Community and Multi- Agency Sandbag Locations
Appendix 10: Transport NI Guidance on the distribution of sandbags
Appendix 11: Rivers Agency Guidance on the Distribution of Sandbags
Appendix 12: Public Advice information relevant to flooding properties
1.0 INTRODUCTION 1.1 Purpose
General Information
1.1 Introduction This Multi Agency Flood Response Plan has been developed by the Flooding and Severe Weather Working Group of the Western Emergency Preparedness Group (EPG) whose membership includes:
Police Service of Northern Northern Ireland Ambulance Northern Ireland Fire & Rescue Ireland Service Service
4 Page 32 HM Coastguard Derry City & Strabane Rivers Agency Met Office District Council NI Water BT Fermanagh & Omagh District NI Housing Executive Red Cross Council Other relevant organisations Mid Ulster District Council
1.2 Aim This plan aims to detail the pre-planned response, as a result of a National Severe Weather Warning for rainfall being issued which will result in significant flooding impact. It outlines the graduated incident and co-ordinated inter-agency response to a potential or actual flooding event in the Western EPG area (see map of the area covered at Appendix 1).
1.3 Objectives The objectives of the plan are to: Identify activation triggers for responding to a heavy rainfall warning or flooding incident Document the actions to be taken on receipt of a heavy rainfall warning or flooding incident Set out the process for a co-ordinated response including the graduated incident management of a potential or actual flooding event Ensure a common understanding of the potential impacts of a major flooding event in the EPG area and act as a reference document for all the agencies involved to provide a pre-planned response at various levels of flood risk Detail areas most at risk from flooding Detail organisational information relating to role, responsibility, response and resources for flooding.
1.4 Detail of the plan Details in the plan concentrate on the operational aspects of emergency flood response, e.g. protecting life and property and managing the flooding response and recovery phases. Reference is made where appropriate to relevant emergency planning procedures. However, the plan does not cover these procedures in detail as existing emergency plans within organisations and government agencies already adequately cover these. The actions of each organisation are listed under Appendix 4 of this plan but as every situation is different these are more of a reference rather than a compulsory list of activities.
1.5 Types of flooding events The main types of flooding event referred to in this plan are:-
TYPES FLUVIAL (River) PLUVIAL (surface water) GROUNDWATER (High water table) OUT OF SEWER (Due to infrastructure issues of capacity or functionality to the Sewerage Network).
1.6 Levels of flooding emergencies Flooding emergencies have varying impacts and consequences, and range from a local incident to one having an impact across the region. These emergencies can be split into three broad categories based on the level of strategic co- ordination at central government level required to manage the response. These are detailed in Appendix 2 - “Framework for co-ordination of Flooding Emergencies”.
1.7 Risk of Flooding Flooding hotspots in the Western EPG area have been identified by liaison with the drainage agencies, Rivers Agencys Flood Maps NI, https://www.infrastructure-ni.gov.uk/articles/contents-flood-maps-ni and the Flood Risk Management Plans. This can be found at Appendix 8. Across Northern Ireland there are 160 river level instruments that can provide “near real time” information regarding water levels at a number of rivers. These can be accessed at: http://netview.ott.com/Rivers_Agency_Hydrometric_Network/
5 Page 33 1.8 Linkages to other Multi-Agency Documents This document outlines the arrangements for responding to a Flooding Incident in the Western EPG area to ensure that a co-ordinated response is provided from all the agencies involved. A separate Coastal Flood Plan exists to cover the risk of Coastal Flooding in the area.
This document is complementary to the Northern Ireland over-arching emergency plans and protocols and the range of single agency and multi-agency plans which exist in the Western EPG area as shown on the diagram below:
Northern Ireland Civil Contingencies Framework & NI Multi-Agency Plans e.g. local co-ordination, escalation, vulnerable people, fuel, epizootic disease, pandemic flu etc.
Emergency Multi-Agency Emergency Public Contacts Emergency Support Centres Information & Directory Response Media Framework Generic Voluntary & Mass Fatalities Recovery Telecommunications Business EPG TBC TBC TBC Capabilities Multi- TBC Agency Specific Local Protocols Plans Coastal Severe Weather Hazard Flooding for Specific Flooding TBC Hazards TBC
Offsite plans e.g. Other key sites Site Community Airports/Ports COMAH, (template plan Emergency Plans Specific reservoirs available)
Internal Organisational Major Incident Mutual Aid Operational Business Plans Plans and Service Continuity Plans Plans Plans
*Those listed as TBC do not currently exist in any format
This plan has been used as a template for each of the Emergency Preparedness Groups in Northern Ireland. The five plans combine to provide a multi agency flood response plan for all the areas at risk of flooding in Northern Ireland.
1.9 Validation and Training The validation of this plan should be included in the ongoing exercise programme for the Western Emergency Preparedness Group.
Upon agreement of the plan at a multi-agency level, individual organisations should conduct a Training Needs Analysis to identify any training required within their organisation to ensure the delivery of their responsibilities within the plan.
1.10 Ownership and Review This is a multi-agency plan which was produced by the Western Emergency Preparedness Group Flooding & Severe Weather Working Group. This document will be subject to continuous review by this group and will be updated to reflect learning from incidents and exercises and any amendments to best practice. The plan will be reviewed after each activation and in whole every three years.
While each organisation will make very best efforts to anticipate and mitigate the possibility of flooding by carrying out the various actions incumbent on them, it must be recognised that natural events can occur on some occasions with little or no specific warning and may result in consequences that are not easily foreseen or avoided. This plan is a reflection
6 Page 34 of the way the organisations will strive to work together on a voluntary basis. They are neither a binding agreement nor a contract.
2.0 WEATHER MONITORING AND FLOOD RISK ASSESSMENT
2.1 Introduction A key component of a successful multi-agency flood plan is the monitoring of and response to severe weather warnings and any potential or actual flooding as a result of the severe weather.
The Met Office monitors the weather 24/7 and 365 days per year. On some occasions, severe weather events are identified which may bring a risk to life and /or property and which will necessitate some form of multi- agency flood response.
The National Severe Weather Warning Service (NSWWS) is the mechanism through which the Met Office warns the public and responding agencies when such weather is expected.
7 Page 35 During the spring of 2011 and following extensive consultation with the public and responders the Met Office made a number of significant changes to the NSWWS. The most significant of these being that the NSWWS became an entirely impact based warning service – no longer tied solely to meteorological thresholds.
2.2 Warning Methodology The Met Office will assess the likelihood of an impact causing event occurring. This will be assessed as Very Low, Low, Medium or High.
The potential impact will then be assessed as either Very Low Impact, Low Impact, Medium Impact or High Impact. The event will then be plotted on an impact matrix – an example of which is below and available on the Met Office website (when a warning is valid) at http://www.metoffice.gov.uk/weather/uk/uk_forecast_warnings.html (Figure 1).
Impact Matrix
We then plot them on the risk matrix
L HIGH I K E
L MED I H
O LOW O D VERY LOW VERY LOW MEDIUM HIGH LOW IMPACT
Then assign a colour to the warning which is a combination of potential impact and likelihood
© Crown copyright Met Office
Figure 1
8 Page 36 Severe Weather Warnings Colour Codes
NO SEVERE WEATHER EXPECTED Keep up to date with latest forecast
BE AWARE Remain alert and keep up to date with latest forecast
BE PREPARED Remain vigilant, keep up to date with latest forecast and take precautions where possible TAKE ACTION Remain extra vigilant, keep up to date with latest forecast. Follow orders and any advice given by authorities and be prepared for extraordinary measures
© Crown copyright Met Office Figure 2
In addition to the Impact matrix above (figure 1) the Met Office will also provide a forecaster assessment of the warning. This will explain why the warning has been issued and discuss briefly where any uncertainty lies e.g. timing/spatial extent etc. It will be in clear, non-technical language.
2.3 Other Terminology & Graphics - Issues more than 24 hours before an event will be referred to as Alerts. - Issues less than 24 hours before an event will be referred to as Warnings. NB: All issues whether more or less than 24 hours before an event will be referred to as a Warning from later this year (2016).
Forecasters are encouraged, where at all possible to issue warnings during normal working hours.
Low impact Yellow level warnings will continue to be web-based only and should be accessed by responders as part of the normal risk assessment protocols and horizon scanning on a regular basis. It is recommended that responders check the Met Office website at the beginning of the working day and again around lunch-time for any updates. This of course also needs to take place at weekends and on public holidays. Medium or high impact yellow warnings (column 3 or 4 on the matrix) are, since September 2014 now ‘pushed’ to responders via whichever method they have selected to receive warnings (email /SMS text message etc).
Amber and Red warnings will be issued or ‘pushed’ to responders.
In order to assist with the likely impact of a particular event the Met Office have developed a series of tables, available to the public and responders detailing the likely impacts associated with Very Low, Low, Medium and High Impact events. The public impact matrix is available on the Met Office website at http://www.metoffice.gov.uk/weather/uk/advice/ .
A table for responders has also been developed and a suggested likely level of response. The section pertaining to heavy rain has been reproduced here. It is stressed though that this advice is not prescriptive and is for guidance only to aid decision making.
9 Page 37 Table: Potential impacts associated with heavy rain for responders.
Impact Level Very Low Low Medium High Impact and Localised Localised Flooding of Widespread advice flooding of low- flooding of homes and flooding of associated with lying land and homes and businesses. homes and rain. susceptible businesses and businesses. roads. susceptible Danger to life roads from fast Danger to life A few transport flowing/deep from fast routes affected. Some transport water. flowing/deep routes and travel water. Road conditions services Damage to affected with affected. Some buildings/ Extensive localised spray journeys require structures. damage to and some longer travel and/or collapse standing water. times. Transport routes of buildings/ and travel structures Road conditions services affected by affected. Longer Transport routes spray and journey times and travel standing water. expected. Some services road closures. disrupted for a Localised and prolonged short term Difficult road period. Long disruption to conditions due travel delays. utilities and to spray and services standing water Widespread road closures. Interruption to utilities and Dangerous services. driving conditions due Some to spray and communities standing water. temporarily inaccessible due Prolonged to flooded disruption to or access routes. loss of utilities and services
Communities become cut off for a prolonged period, perhaps several days, due to flooded access routes.
Note particularly that medium impacts from flooding (column 3 events on the matrix) can occur with yellow ‘be aware’ warnings. It simply means that the likelihood is somewhat lower. So while the colour of the warning gives a general idea of advice (Be aware, Be Prepared etc) the position of a warning on the matrix may also give important information as to what level of impacts are possible and subsequently the potential response that may be required.
10 Page 38 Example of Map representation of warnings on Met Office Website:
Below is an example of how such alerts and / or warnings will be displayed on the Met Office website. It can be seen that Council level boundaries have now been included on the map. This will assist responders in assessing where the most significant impacts are expected.
Figure 3
2.4 Weather And Warnings Summary While the Met Office will endeavour to warn as far in advance as possible of severe or extreme weather events, the vagaries of the atmosphere mean on some rare occasions warnings of such weather events will be short notice. This is particularly the case for summer time flash flood (thunderstorm) events where disruption is often very localised and on some occasions limited to a very specific geographical area within a council area – perhaps even limited to a specific community development.
2.5 Met Office Advisor Civil Contingencies (MOACC) The Met Office has a countrywide network of Civil Contingency Advisors (MOACC) who monitor the weather and deliver the Public Weather Service in their regions of responsibility. The MOACC in Northern Ireland is available during normal working hours Monday to Friday and on a best endeavours basis outside normal working hours both at night and weekends. Where at all possible the MOACC is available to liaise closely with the responding agencies ahead of, during and in the aftermath of severe weather events.
2.6 Regional, Sub-Regional & Local Severe Weather Teleconferencing Facility On some occasions, when significant disruption is deemed possible or likely, the MOACC or another Agency will initiate a Regional Teleconference of responding agencies. Depending on the identified issues, this may be at a local/sub-regional level or may be at a regional level. In keeping with recent CCG(NI) protocols for local level response and escalation of the multi-agency response (2014) – the teleconference may start at a local level and be escalated in accordance with laid down procedures either to a regional teleconference or indeed to a level, if necessary which involves or may necessitate a central government response. Where a regional teleconference occurs, local multi-agency conference calls may occur afterwards.
Where possible, this teleconference will be in a reasonable time frame before any potentially disruptive event. It may involve personnel from the emergency services, drainage agencies, local and central government, utility operators and others as applicable.
11 Page 39 The teleconference will allow contributions from all the relevant agencies and facilitate discussions regarding each agencies anticipated response and preparation. It is anticipated that on occasions when teleconferencing occurs, information will be cascaded down to individual councils by the relevant EPCO via a sub-regional conference call to include the councils within their EPG area. Following this, local multi-agency conference calls may occur.
A teleconference protocol and an example agenda is provided at Appendix 3.
2.7 Flooding Incidents – Emergency Response Co-ordination The Met Office will issue where possible a severe weather warning and may subject to consultation with other relevant agencies ask for the Council or PSNI to facilitate a multi-agency conference call. All relevant agencies will be asked to participate in this call and detail their arrangements for possible flooding including where relevant placing their staff on stand by or pre deploying.
It is vital to quickly establish early dialogue in order to assess the combined multi-agency response based upon the severe weather warning issued by the Met Office.
12 Page 40 3.0 CO-ORDINATION
FLOODING OR THE 3.1 Definition of a major flooding event (Local,RISK OF Level FLOODING 1 or Level 2). A major flooding event is one where thereHAS is widespreadBEEN IDENTIFIED flooding that is beyond the response capability of the three drainage agencies and involves the flooding of a significant number of properties, a threat of death or serious injury, or significant disruption to key parts of the area’s infrastructure. Issues that may arises include:
Evacuation of residential properties Can flood Initial rescueMinor and Event treatment of a large numberresponding of casualties or evacuees Rivers Agency, NI agency Handling a large volume of enquiriesY from both the public and the media Water or Transport NI manage response? The distributionresponds of sandbags to protect business, residential properties and critical infrastructure The closure of major roads and diversion of traffic.
This plan deals with those major flooding events whereN the consequences are such that the Drainage Agencies alone cannot deal with the event. In these circumstances a wider multi-agency response will be required and therefore multi-agency co-ordination will be necessaryMulti-agency co-to address issues such as: ordination is required Prioritising requests where there is a risk to life LG contacted and Prioritising resourcesPSNI contacted to vulnerable groups and individuals facilitates multi- Prioritising supportand facilitateswhere numerous locations have been flooded agency co-ordination multi-agency co- Is there risk – (LOCAL Event) Y to life? e.g. Providing practicalordination support - LOCAL such as flood defence coastalequipment N Providing humanitarian assistance such as emergencyflooding support centres.
3.2 Co-ordination The Framework for Co-ordination of Flooding Emergencies in Appendix 2 sets
out the provision of expertise and co-ordinationHas risk to life arrangements to the 4 levels of Y been flooding emergency. identified?
The general arrangements for multi-agency co-ordination are outlined in the ‘CCG(NI) Protocol forLOCAL Escalation Event LG facilitates LOCAL Eventof the Multi-AgencyIs Response’Regional and the ‘CCG(NI) Protocol for Multi-Agency Co-ordination of Local Level PSNI facilitates Is Regional multi-agency Response and Recovery’.co- These protocols allow for multi-agency assessment, co-co-ordination, communication, multi-agency N ordination Y PSNI / LG Convenes Y N co-ordination the development of a common information pictureRegional andMeeting the escalation of co-ordinationordination to regional and strategic co-ordination required? required? levels.
When the emergency situation has stabilised and the requirement moves to the co-ordination of recovery measures, the PSNI, if involved will hand over co-ordination to the relevant local Council(s). The Has the potential for mechanism for this handover is outlined in theescalation EPG to Multi-Agencya Level 1 Recovery plan. (draft) Emergency been identified? The flow diagram below outlines the key elements in terms of coordination of all major incidents. Y
Has the need for escalation been Assessment Group may agreed? convene (including via “In a coastal or other very significant teleconference) to flood event, the situation may escalate facilitate decision directly from Local to Level 2/3 making
Yes - Level 1 Yes - Level 2/3 3.3 Multi-agency conference call/meeting The topics to be discussed and/or agreed by all organisations during the multi-agency conference call/meeting include: LEVEL 1 Event LEVEL 2/3 Event Provision of anDfI update Chairs onMeeting relevant information, alerts and recommendationsTEO invokes from the all NI organisations Central Crisis DfI is LGD – DfI MERP Activated Management Arrangements Local / Tactical co-ordination DfI MERP Activated 13 continues in support of strategic Page 41 Local / Tactical co-ordination continues layer above. Escalation to in support of strategic layer above. Level 2/3
Has risk to life subsequently been identified? Agreement of the co-ordination arrangements which need to be established i.e. conference call, co-location, level of co-ordinating group Whether a warning needs issued to the public and what the content of this should be Availability or resources of each of the agencies and any requests for assistance that should be made What pre-deployment (if any) is required Whether an evacuation of area(s) at risk is required. If so, what locations? What individuals and groups are most vulnerable? A risk assessment should be conducted and needs should be prioritised in line with the Vulnerable People’s Protocol (Refer to Section 5). What arrangements will be put in place to assist them? Record and communicate all decisions. What support arrangements are required to be pre-agreed, placed on standby or pre-deployed including rescue resources, cordons and emergency support centres Closure of any areas to prevent public access and consideration of any additional security/monitoring arrangements required in evacuated areas Whether any further escalation is required i.e. strategic group or request for the NI Central Crisis Management Arrangements (NICCMA).
3.4 Multi-agency Co-ordination Centre If the decision is made to establish a multi-agency Tactical Co-ordinating Group for this EPG area it will be located atone of the 4 designated multi agency emergeicy co-ordination centres . The roles and responsibilities of the Tactical Co-ordinating Group are outlined in the W EPG Multi-Agency Responders Framework.
3.5 Escalation and Regional Co-ordination
If multiple Tactical Co-ordinating Groups are established across Northern Ireland requiring Strategic co- ordination for Level 1 events DfI can activate a Strategic Co-ordinating Group at Department for Infrastructure Headquarters, Clarence Court, 10-18 Adelaide Street, Belfast, BT2 8GB.
If it is deemed necessary to escalate further in a Level 2 or 3 emergency and establish a Strategic Co-ordinating Group for the regional level and the NICCMA arrangements are required this escalation will be in line with the Civil Contingencies Group (NI) protocols for mulit agency co-ordination of local level response and recovery and the protocol for escalation of the multi-agency response.
4.0 MULTI-AGENCY RESPONSE
4.1 Organisations & Agencies Involved
14 Page 42 The following organisations may be involved in the response to a major flooding event. Property owners are listed as it is their responsibility to protect their own property from flooding.
Rivers Agency NI Water TransportNI Department for Infrastructure NI Fire & Rescue Service Local Council(s) PSNI HM Coastguard NIAS Northern Ireland Electricity Networks British Telecom NI Housing Executive Public Health Agency/Health & Social Care Board Local Health & Social Care Trust(s) The Executive Office Voluntary organisations such as British Red Cross Media and public information services Property owners
Detailed roles and responsibilities are provided in Appendix 4 and Appendix 5.
4.2 Flooding Incident Line Drainage Agency response efforts will be directed in accordance with reports received through the flooding incident line.
The single number – 0300 2000 100 - provides the public with one point of contact to report that their property or area is flooded or flooding. The number is available 24 hours a day and will provide a service to the citizen where they can call and report a flood. The call will be logged and passed to the relevant drainage agency (Rivers Agency, Transport NI, NI Water).
15 Page 43 5.0 VULNERABLE INDIVIDUALS AND SITES
5.1 Vulnerable Individuals In line with the CCG(NI) Vulnerable People Protocol, at the outset of the response detailed consideration must be given to who would be vulnerable in these circumstances or may become so.
Local Health & Social Care Trusts maintains a list of individuals in receipt of social services support and various utilities organisations maintain critical care lists of people who may require additional assistance. These organisations should review their lists for the at risk areas and identify any individuals who would require additional assistance in these circumstances. A list of assistance required should then be discussed and arranged with the relevant agencies.
Note - In the interest of patient safety, data protection can be overridden although details of the patient’s medical condition would not be shared unless it could be demonstrated that it was in the best interest of the patient.
Where possible in the time frame and with the available resources, door to door visits should be undertaken in the areas at risk to provide guidance to residents and to identify any individual requiring additional assistance. Any requests for assistance should be fed back to the Tactical Co-ordinating Group to aid planning.
5.2 Vulnerable Sites Vulnerable sites within the areas at risk as identified by the WEPG Flooding & Severe Weather Group have been provided in Appendix 6. These sites should be contacted, advised of the risk and their response documented in relation to the actions they plan to take and any assistance they are seeking.
16 Page 44 6.0 EVACUATION
During some flooding instances it may be necessary to advise the public to leave their homes. The PSNI will usually co-ordinate the evacuation of properties, on advice from the responding agencies and define the area to be evacuated. In ALL cases the multi agency emergency support centre protocols should be invoked.
The relevant local Council(s) and Health & Social Services Care Trust(s) should be contacted with the following information if available:
The approximate number of evacuees Where the evacuees are coming from Other possible incidents of flooding in the area Any special needs of the evacuees, i.e. will any care home, nurseries or hospitals be evacuated?
It should be noted that the PSNI do not have the power to insist that evacuation must take place. Also, the security of evacuated premises is the responsibility of the local police.
PSNI can establish their Casualty Bureau service if there are large numbers of casualities or fatalities in relation to the flooding. Evacuees will be encouraged to make contact with their friends and family. Evacuee details will be taken within the Emergency Support Centres.
6.1 Evacuation and shelter Evacuation will be discussed if appropriate, at the first multi-agency meeting. If not considered immediately necessary it will need to be regularly reviewed thereafter.
6.2 Evacuation Process PSNI will co-ordinate the evacuation and it will begin in the areas at most immediate risk and then extend away from the risk. The numbers of residents, rendezvous points, evacuation routes and pick-up points need to be considered for each area.
All agencies should be aware that roads which may be required for transporting their own staff or evacuees may not be passable.
6.3 Refusal to evacuate Residents should be encouraged to leave as early as possible. However, it is quite common that some householders decline to leave their premises, for example some senior citizens and some householders with pets. It should be pointed out to these residents that if the situation worsens they may want to change their minds in which circumstances they may be putting themselves and others at risk especially in cases where they need assistance from one of the emergency services. However, it should be borne in mind that the decision to evacuate is a matter of choice for the resident.
6.4 Commercial concerns and industrial premises Businesses in the area are likely to be very keen to protect or move valuable stock from the risk. It is their responsibility to assess the risk and take whatever action they consider necessary.
17 Page 45 7.0 SANDBAG PROVISION
7.1 Drainage Agencies Sandbag Provision The Drainage Agencies have a limited supply of sandbags that are used primarily for the protection of vulnerable residential properties and critical infrastructure.
Sandbags will not be provided for protecting gardens, outbuildings or other structures that are not habitable. The Drainage Agencies, with assistance from local Councils within the local EPG area (if required and available) will, wherever possible, deliver sandbags to persons with a justified need so as far as resources and circumstances allow. Where sandbags are provided these become the responsibility of the person receiving them and the Agency/Council accepts no responsibility for putting the bags in place. The Flood Liaison Group (consisting of the three Drainage Agencies) have an agreement regarding the collection of sandbags.
Note: Transport NIs’ priority in relation to issuing of sandbags for the instances described above, will be to mitigate the impact of roads related flooding as far as practicable. In such circumstances sandbags will only be provided where there is an imminent risk of flooding and deemed as an appropriate measure by TransportNI staff. Requests for assistance/sandbags from other agencies will be acted upon depending on existing priorities in relation to roads related flooding. Sandbags will generally not be provided to anyone who calls in person to TransportNI depots or offices.
The TransportNI internal guidance on the distribution of sandbags is shown at Appendix 10.
7.2 Council /NIHE Sandbag Provision A stock of sandbags may also be kept at Council or NIHE premises. These are primarily used in flooding incidents where Council/NIHE property is at risk.
They also form part of the stocks held for major civil emergencies and can be released to the Drainage Agencies for general use to the public in major flooding incidents.
7.3 Sandbag Provision to RCRG Sites Sandbag stores may also be pre deployed as part of Coummity Resilence initiatives/ agreements. A number of residents have access to open these stores to access sandbags for individual or community ‘self-help’.
7.4 Property owners own flood protection measures Property owners concerned about protecting their property can purchase Sandbags and other flood protection measures. These are normally available from local builders’ merchants but householders may require expert advice on what protection measures are appropriate for their properties.
7.5 Mutual Aid agreements Mutual Aid agreements may be agreed between relevant agencies. For example, further details with regard to Council Support is provided in Appendix 7 Mutual Aid Agreement between Rivers Agency, Transport NI, Northern Ireland Water and Local Government covering arrangements for Mutual Aid in the supply and deployment of agreed resources in the event of flooding.
7.6 Sandbag Locations Sandbag locations throughout NI area are detailed on Resilience Direct. This information is stored in the Regional Community Resilience Group’s folder.
18 Page 46 8.0 STAND-DOWN, HANDOVER AND RECOVERY 8.1 Stand-down/handover In conjunction with the multi-agency partners, the local Council/PSNI/DfI will determine when it is appropriate to stand-down the response and/or discuss a handover to the recovery phase.
Where the PSNI is co-ordinating the initial response and recovery issues, the handover of co-ordination responsibility to the local Council for the recovery phase can occur by agreement at the most appropriate juncture. Where multi-agency co-ordination is already being provided by the local Council then they will retain this responsibility for the recovery phase to completion.
8.2 Recovery The WEPG Recovery Plan will outline the process for co-ordinating the multi-agency recovery effort. ( currently in draft form). To facilitate planning a Multi-Agency Recovery Forum (MARF) should be established early in the response by the local Council(s).
Advice for residents returning to flood damaged homes is provided in the Household flood plan. This information is stored in the Regional Community Resilience Group’s folder.
19 Page 47 Appendix 1: MAP OF THE WEPG AREA
WEPG Area represented by the
20 Page 48 Appendix 2: FRAMEWORK FOR CO-ORDINATION OF FLOODING EMERGENCIES
NB. This is currently being updated to reflect the changes to central and local government and a new version will be included in due course.
Introduction
1. The purpose of this paper is to set out a Framework for the provision of expertise and co-ordination of the multi- agency response to, and recovery from, flooding emergencies, as required under Action 5 of the CCG(NI) Resilience Programme.
2. The Framework relates only to flooding scenarios which constitute emergencies as defined in the NI Civil Contingencies Framework ie “an event or situation which threatens serious damage to human welfare, the environment or the security of Northern Ireland or the United Kingdom as a whole”. In the context of flooding “serious damage” is where a number of organisations are required to act to prevent, reduce, control or mitigate the emergency’s effects, or otherwise take action, and are unable to do this without changing the deployment of their resources or acquiring additional resources.
3. In line with the definition of emergency the Framework does not address day to day incidents that organisations deal with within their normal operational procedures and resources such as those minor flooding incidents that occur throughout the year, the consequences of which are managed effectively by the Drainage Agencies and NI Fire and Rescue Service (NIFRS) acting alone as provided for by the Flood Strategy Steering Group (FSSG) Best Practice Guidelines.
4. Given the nature of some flooding emergencies it is important that the Framework is applied flexibly, depending on prevailing circumstances, and in accordance with the duration of the different phases of the emergency. In some cases, especially flash / surface water flooding, the actual flood response phase can be of very short duration but the resultant damage will mean that most of the focus will be on the recovery phase.
5. This Framework is built on established core civil contingencies principles and consequently while designed to be used as a free standing document, it should be read in conjunction with the wider body of civil contingencies guidance eg ‘A Guide to Emergency Planning Arrangements in Northern Ireland’; the ‘NI Civil Contingencies Framework’; and key civil contingencies protocols and procedures eg the NI Central Crisis Management Arrangements Protocol; and the CCG(NI) Protocols for Multi-Agency Co-ordination of Local Level Response and Recovery; for Escalation of the Multi-Agency Response; and for Collaborative Communications.
6. This Framework recognises the difficulties associated with the response to flooding emergencies, not least that a large number of public service organisations are involved in managing the consequences of flooding and so there is a need effectively to inform and co-ordinate this multi-agency effort.
Lead Arrangements
7. While the response to, and recovery from, the emergency will require many organisations each delivering their own responsibilities and functions the role of the Lead Government Department (LGD) is a key one. In terms of response the LGD is the department with the expert knowledge of the primary cause of the emergency ie flooding which can apply this knowledge to inform the response by formulating a prognosis, so allowing other emergency responders to understand the implications for their sectors/areas of responsibility and to take action accordingly.
8. Having access to this expertise is of paramount importance to the multi-agency response. However, the situation for flooding is complicated in that LGD designation varies between the Department of Agriculture and Rural Development (DARD) and the Department for Regional Development (DRD) depending on the nature of the flood emergency in question. This is compounded by the fact that in the early stages of a flooding emergency it can be difficult to identify the source of the flooding and consequently to determine where lead
21 Page 49 responsibility should lie. LGD responsibilities and designations are set out in the ‘Guide to Emergency Planning Arrangements in Northern Ireland’.
9. The PEDU Report – ‘Review of Response to Flooding on 27th and 28th June 2012’ recognised this difficulty, and in so doing recommended that consideration should be given to the consolidation of all the flood response organisations under one departmental ambit. Pending a final outcome on this recommendation there is a need to agree an interim solution in the form of a default arrangement for LGD for flooding.
10. In recognition of the need to have a clearly identifiable LGD from the early stages of the emergency response, DARD has agreed to act as the default LGD for the response in the first instance to all flooding emergencies. All concerned accept that Lead status will be transferred as soon as there is evidence that the flooding incident is as a result of surface water and primarily relating to DRD’s or Northern Ireland Water’s infrastructure.
11. There is a difference between lead for the response and lead for the recovery. While in some cases the LGD can be the same for both response and recovery, it is likely in the case of flooding that a different department will take on the lead role for recovery. In such circumstances agreement will be reached between the two departments on the timing and manner of the handover.
12. The LGD can also be responsible for the co-ordination of the multi-agency response, but only where it is appropriate to do so based on the level of the emergency in question. The levels of emergency and the associated arrangements for co-ordination are set out below.
Levels of Flooding Emergency
13. Flooding emergencies cover a broad spectrum with varying impacts and consequences, and range from a purely local incident to one having an impact across the region. These emergencies can be split into three broad categories based on the level of strategic co-ordination at central government level required to manage the response. The co-ordination arrangements for each of these categories are considered below. Escalation of the response to the strategic level is determined in accordance with the terms of the CCG(NI) Protocol for Escalation of the Multi-Agency Response.
Co-ordination Arrangements
Local Level 14. When the flooding is confined to a discrete local area, and/or where the scale and impact of its consequences do not necessitate strategic management by central government, tactical co-ordination of the multi-agency response and recovery will be delivered in accordance with the terms of the CCG(NI) Protocol for Multi-Agency Co- ordination of Local Level Response and Recovery. This provides that the Police Service of Northern Ireland (PSNI) will co-ordinate the initial multi-agency response to the flooding in circumstances where there is a perceived major and imminent threat to life. Otherwise, the co-ordination function will be facilitated by the relevant District Council or LGEMG. If it is considered more appropriate, a representative of the LGD (acting as necessary through its agencies) may chair these co-ordination meetings during the response phase. In any case, the LGD (again through its agencies) will have a key role in providing information and expertise at these meetings.
15. Co-ordination of the recovery will be facilitated by the District Councils. The chair of the multi-agency group co-ordinating the immediate response will agree with the district council when and how this responsibility will be transferred.
Level 1 – Significant Flooding 16. At this level, strategic management by central government is required to deal with the impact of the flooding. Strategic co-ordination is provided by the LGD which, under default arrangements, will be DfI Rivers Agency unless or until Lead status has been transferred to DRD due to the cause of the flooding event.
22 Page 50 Level 2 - Serious Flooding 17. At this level, strategic management by central government is required to deal with the scale and impact of the flooding. DfI as LGD can request support from OFMDFM whereby strategic co-ordination will be facilitated through NICCMA. Otherwise the need for NICCMA to be invoked will have been determined under the terms of the CCG(NI) Protocol for Escalation of the Multi-Agency Response.
18. The LGD will play a key role in CCG(NI) meetings in terms of the provision of information and expertise on the flooding.
Triggers and Activation 19. The initial response to flooding will be at local level. Initial notification of flooding is most likely to come to the Flooding Incident Line, the emergency services or directly to one of the Drainage Agencies. On receipt of notification, and if the scale of flooding is such that some form of multi-agency co-ordination is required, either the PSNI or the relevant District Council (or LGEMG if regional) can convene multi-agency conference calls/meetings to initiate co-ordination of the response and make an assessment of the actual and projected scale of the emergency.
20. The need for escalation will be assessed in accordance with the terms of the Protocol for Escalation of the Multi-Agency Response. The outcome of this assessment will be used to determine whether strategic co- ordination through central crisis management arrangements either by the LGD (Level 1 – Significant emergencies) or by NICCMA (Level 2 – Serious/Level 3 – Catastrophic emergencies) should be invoked.
Review and Lessons Learned 21. It is the responsibility of each organisation involved in the response to flooding to review its actions in a structured manner after the event to identify any lessons learned and to revise its plans accordingly. The LGD will ensure that a multi-agency review is carried out. Implications for multi-agency plans must be identified and an action plan put in place to deliver any necessary improvements.
22. Where central government co-ordination through NICCMA was invoked, CCPB will ensure that a multi-agency review is carried out, the implications for multi-agency plans are identified and that an action plan for improvement is put in place.
Flood Responsibilities Matrix 22. Responsibilities for the discharge of these arrangements are set out in the Flood Responsibilities Matrix at Annex A. The matrix has been designed as a quick reference guide which cross references the core functions of the emergency planning cycle (y axis) with the levels of emergency (x axis) so that each cell identifies the organisation with the responsibility for delivery of that function.
OFMDFM September 2014
23 Page 51 FLOOD RESPONSIBILITIES MATRIX – RESPONSE-Annex A
5. REVIEW Local Government or Lead Department NICCMA (CCG(NI)) PSNI This involves (depending on which facilitation of a multi- organisation Supported by PSNI / Chaired by agency review of the co-ordinated the Local Government. OFMDFM and collective response response). supported by Lead (may link with review Government of the recovery). Supported by Lead Department(s) and Department other key responders. 4. CO- Local Government DARD/ Rivers NICCMA (CCG(NI)) ORDINATION Agency (Strategic RESPONSE (where (Strategic Co-ordination) duration of response OR Co-ordination) Chaired by phase permits) Default in the first OFMDFM and instance with transfer supported by Lead C This involves co- to DRD as Government O ordination of the PSNI appropriate. Department(s) and R response to an (where there is a other key responders. E emergency which has perceived major and Local Level Local Level occurred or is imminent threat to Co-ordination Co-ordination F anticipated. It does life). continues in support continues in support U not include recovery of the strategic layer of the strategic layer N or restoration of above above C normality. T 3. PROVISION OF DARD /Rivers DARD /Rivers DARD / Rivers I EXPERTISE Agency Agency Agency O Default in the first Default in the first Default in the first N This is to inform the instance with transfer instance with transfer instance with transfer S management of the to DRD as to DRD as to DRD as response. appropriate. appropriate. appropriate. 2. DARD /Rivers DARD /Rivers NICCMA (CCG(NI)) COMMUNICATION Agency Default in the Agency Chaired by first instance with Default in the first OFMDFM and Co-ordination of transfer to DRD as instance with transfer supported by Lead communication prior appropriate. to DRD as Government to and during an appropriate. Department(s) and emergency. Supported by PSNI / other key responders. Local Government / Supported by PSNI / NIFRS Local Government/ NIFRS 1. PREPARATION DARD /Rivers DARD /Rivers DARD /Rivers Agency Agency Supported as Agency Supported as This involves Supported as necessary by other necessary by other facilitating ongoing necessary by other key responders. key responders. multi-agency key responders. planning to prepare for emergencies. Local Level 1 Significant Level 2 Serious / Level 3 Catastrophic LEVELS OF EMERGENCY
NOTE: The default LGD for the response phase is DARD Rivers Agency but will be reassigned as appropriate. A different department will co-ordinate the recovery
24 Page 52 Appendix 3 – AUDIO CONFERENCE PROTOCOL
The Audio Conference call protocol has been taken from the Severe Weather Sub Regional Communications Strategy, June 2013.
Participants will be invited to join the Western EPG sub-regional conference call and will be provided with dial in details.
The Chairperson (Council Chief Executive/EPCO) will set out ground rules for the audio conference: Identify chairperson Identify participants Only one person should speak at anytime No side conversations or idle chatter Adopt a professional approach at all times Use mute facility when not speaking if there is background noise (*6 on telephone key pad) Be clear and concise
When joining a teleconference call please give name and role/function when prompted. After all the participants have joined the teleconference call, the Chairperson can do a ‘Conference Roll Call’ by entering #1 on the telephone keypad.
Before commencing the teleconference virtual meeting, the Chairperson should state what the meeting objectives are and clarify appropriate expected input from other participants and expected duration of call. Participants wanting to speak during the teleconference call must wait for a quiet period to announce themselves by giving their name and if appropriate role/function. Participants should indicate when appropriate if they are -
Remaining on the call Temporarily leaving the call and expected time of return Leaving the teleconference call
At the end of the teleconference call, the Chairperson should summarise agreed actions etc.
3.1 KEY ROLES DURING THE CONFERENCE CALL
Met Office Advisor Civil Contingencies to outline the nature of the warning and add relevant local detail.
Audio Conference Chair Invite participants to comment on the likely impact on their services and ask them to share mitigating actions. Agree if further audio conference meetings are required and if so decide timings.
Participants Carry out actions as agreed in the conference call.
.
25 Page 53 3.2 PARTICIPANTS
See Western EPG Contacts Directory. This is included on the WEPG Resilence Direct Folder
1. District Council(s) where applicable 2. Met Office 3. Police Service of Northern Ireland 4. Northern Ireland Fire and Rescue Service 5. Northern Ireland Ambulance Service 6. Maritime & Coastguard Agency 7. BT Northern Ireland 8. Northern Ireland Electricity Networks 9. Translink 10. Northern Ireland Housing Executive 11. Rivers Agency 12. NI Water 13. Transport NI 14. Local Health & Social Care Trust 15. Public Health Agency (H&SC Board) 16. British Red Cross 17. Flooding Incident Line 18. The Executive Office CCPB 19. DfC Local Government Division 20. Department of Education 21. Department for the Economy (DfE) 22. Executive Information Service (EIS) 23. Land and Property Services (LPS) 24. Department for Infrastructure (DfI) 25. ESB ( in the event of high levels in Lough Erne)
26 Page 54 3.3 SUGGESTED AGENDA FOR SEVERE WEATHER EVENT CONFERENCE CALL (extracted from Annex B of the CCG (NI) Protocol for Multi Agency Co-ordination of local Level Response & Recovery)
MEETING OF THE MULTI-AGENCY CO-ORDINATION GROUP o Introduction of attendees, roles and responsibilities (as required)
o Declaration of items for urgent attention
------
Break out time to address items for urgent attention (if required)
------
1. Review and agree minutes of previous meeting
2. Purpose of Meeting
3. Assessment of Situation : Update from Relevant Organisations
4. Determine/Anticipate Impacts (Weather update and likely impact)
5. Vulnerabilities. Infrastructure, Vulnerable Premises/Persons, ( Cross Reference with Apeendix 6)
6. Co-ordination. Responsibility for Co-ordination, Co-ordination Centre, Assessment of requirements
7. Setting Objectives. Mission and Task objectives. (Long, medium and short term)
8. Responses. Capacity of lead departments and agencies, requirements for mutual aid, sources of mutual aid, anticipation of other needs. Sources of support (Personnel/Equipment)
9. Media / Information to the Public/ Elected members/. Multi-agency lead for communication (Warning and Informing)
10. Next Steps : Actions and Timescales for Delivery (Need for Escalation?)
11. AOB
12. Time of Next Meeting
Additional Considerarion for Western EPG Area : - Cross Border impacts. Need to liaise with counterparts on a Cross Border basis - Regional Community Resilience Contacts and Community Resilience Plans in DCSDC - Activation of Welfare Assistance Telephone number for isolated residents in FODC
27 Page 55 3.4 SUGGESTED STRATEGIC AIMS AND OBJECTIVES
Strategic Intention Notification in relation to:
Incident:
Date:
Time:
The current agreed priorities of the Strategic Co-ordinating Group are as follows:
Preserve and protect life Preserve public health and public safety Mitigate and minimise the impact of the incident Inform the public and maintain public confidence Prevent, detect and deter crime Assist an early return to normality Safeguard the environment Facilitate and inform judicial, public, technical and other enquiries Relieve suffering Maintain normal services at an appropriate level Contain the emergency, limiting its escalation and spread
28 Page 56 3.5 AUDIO CONFERENCING CONTROLS
The default teleconference details for the Western EPG are as follows:
Operator assistance: Connects you with a live Conferencing operator
Conference help menu: Lists all of the touchtone commands available to you
Mute your line: Reduce background noise on the call if you are in a noisy environment; to unmute your line, press * 6 again
Chairperson-only commands
Play roll call: Plays back the recorded names of the participants on your call
Participant count: Counts the number of participants on your call
Stop message: Interrupts any audio prompt or recorded announcement
Initiate dial-out facility: Allows the chairperson to dial out to a new participant
Volume equaliser: Adjusts the volume on your audio call
Mute/unmute all: Allows you to mute the lines of all participants. Use when making a presentation; to unmute all lines, press * 5 again
Mute your line: Reduce background noise on the call if you are in a noisy environment; to unmute your line, press * 6 again
Lock/unlock your conference: To control your meeting and ensure no one else can enter you can lock your conference call; to unlock your line, press * 7 again
Record start/stop: Instantly record your Local Authorities MeetMe call and download the recording after your call to archive or save the recording for future use *
Conference continuation: Allows participants to remain in a conference once the chairperson hangs up
End conference: At the end of your conference press ## and then hang up. This ensures that all participant lines are disconnected, preventing unexpected charges and enhancing the security of your account.
29 Page 57 Appendix 4-ROLES & RESPONSIBILITIES
4.1 DfI RIVERS AGENCY
Rivers Agency will fulfil the following duties:-
Assess risk from flooding following weather warnings Participate in conference calling and coordinate with other responders Strategic co-ordination response to Level 1 emergencies Attend Strategic and Tactical Co-ordinating Group meetings if required Carry out pre-emptive measures where practical Place staff on call if necessary Respond to flooding where there is a risk to life and property Recover sand bags on request Carry out debriefing exercises where required Share information on resources and share resources with other responders where possible Inform and co-operate with local Council(s) Agree press releases and provide spokesperson if required.
4.2 NI WATER
The priorities of a water company in a flood situation are to ensure that customers have access to clean, safe drinking water supplies, that sewers continue to operate at optimal capacity, even if swamped by flood waters, and to protect the company’s assets. Preventing key pumping stations from becoming engulfed with flood water and keeping them in operation means that flood water is kept off the streets as much as possible.
The Water Company’s role in response to flooding includes the following: Respond to a severe weather warning from the Met Office by putting critical staff and contractors on high alert Monitor storm water level-alarms in critical sewage pumping stations 24 hours a day from telemetry centres in Belfast and Altnagelvin Nominated staff shall be available to implement the drainage agencies Flood Protocol (Best Practice Guidelines – applicable to small/medium flooding events) Provide a 24/7 point of contact for partner organisation Alert, or inform other organisations as agreed locally Manage the technical fix of the water infrastructure Provide advice on water and wastewater issues to other agencies Provide alternative drinking water supplies Alert Regulators, Local Emergency Preparedeness Group, Health Sector and partners Use appropriate mechanisms and local media to warn and inform public Carry out local dissemination of prohibition notices in affected areas Provide a Liaison Officer at the relevant Tactical and Strategic Coordinating Groups Provide local responders with all relevant information; scale of problem, timescales and water quality information Liaise with Health Sector on appropriate measures to mitigate health risks Provide analytical and scientific services Liaise with other water companies Ensure prioritisation of vulnerable customers and maintain customer support. Strategic co-ordination response to Level 1 emergencies (through DfI)
30 Page 58 4.3 DfI TRANSPORT NI
The priorities of DfI Transport NI are to deal with the impact of roads related flooding as far as practicable.
Transport NI’s role in response to flooding includes the following:
Maintain a safe road network Erect flood warning signs on the highway Organise roads closures and traffic diversions Clear blockages in highway drainage systems Take action to protect property from flooding by water from the highway where there is a failure of the highway drainage system Support the joint response Removal of debris / detritus from the highway once the flood has subsided. Strategic co-ordination response to Level 1 emergencies
4.4 DISTRICT COUNCIL
The principal roles & responsibilities of the local Council(s) are:-
Communication with other responders and the public Facilitation of pre-flood conference calls and conference calls if required during the flooding response in the event of non risk to life situations Facilitate the co-ordination of the Recovery phase Activation of the Councils’ Emergency Plan if necessary Advise on environmental issues such as public health matters Street cleansing and bulky waste collection Emergency Support Centre provision Community assistance centre organisation & facilitation (One Stop Shop/Advice Centre) Administration of DfC Severe Inconvenience Payment if the Scheme of Emergency Financial Assistance (SEFA) is activated by the Department Provision of resources if available and requested by other agencies, as per Article 29 of the Local Government (NI) Order 2005 Part 3 (Miscellaneous – Powers of District Councils in Relation to Emergencies) SITREPS during response to DfC Local Government Department Co-ordination of Risk Assessment activities (for inclusion in Appendix 8 of this plan) Provide a liason officer to the Tactical Co-Ordinating Group and Strategic Co-ordinating Group as required. Provide debrief reports & attend debriefs Organise multi-agency debrief.
4.5 POLICE SERVICE OF NORTHERN IRELAND
The core responsibilities of the PSNI under the Police (Northern Ireland) Act 2000 are to:-
Protect life and property Preserve order Prevent the commission of offences Where an offence has been committed to take measures to bring the offender to justice.
Where police co-ordinate the response they will, where appropriate, request the activation of Emergency Support Centres through the Western EPG Emergency Support Centre Protocols.
Where a flooding incident results in fatalities the PSNI, as agents of HM Coroner, will carry out any subsequent investigation into the death(s).
31 Page 59 PSNI have limited resources to respond to flooding incidents. Local commanders will deploy police resources in an appropriate manner in the prevailing circumstances.
4.6 MARITIME COASTGUARD AGENCY (MCA)
MCA primary responsibilities as regards emergency response are:
To coordinate civil maritime SAR within the UK SAR Region (including on the coast and on certain inland waters) To provide some of the response assets, including the Coastguard Rescue Service To assist MCA colleagues in maritime counter-pollution work.
Flood response
MCA will also assist other emergency responders inland where possible, in keeping with the ethos of UKSAR and of the Civil Contingencies Act 2004. However, this assistance is secondary to their primary tasks. If there is a clash of resource requirements for example, the primary responsibilities will take precedence, both in terms of planning and of response.
Work in flood waters of any type carries specific and sometimes severe risks. Flood waters can be heavily contaminated with chemicals, sewage, debris etc: unprotected rescuers are at high risk of injury or illness. Flood hydrology and hazards need to be fully understood by those working in flood waters or they run a high risk of becoming casualties themselves. In general, MCA personnel are not trained in this specialist area of emergency response work, and Coastguard Rescue Teams (CRT) are usually not equipped to respond to such incidents.
There are specific exceptions to this general position. Some Coastguard personnel have been trained and equipped to operate in defined areas of high flood risk. These officers may operate up to, but not beyond, the level to which they have been trained, equipped and formally accredited. Officers may operate only within defined geographical areas. Other Coastguard personnel, who have not been trained and equipped to enter flood water, ‘swift’ water, etc, must not do so.
On the other hand, MCA has a great deal to offer to an integrated emergency response in such incidents, always provided that their ability to fulfill their primary responsibilities is not impaired. Examples of this include:
Communications – have a reliable and robust communications network which can be used to assist other services, especially as regards coordinating maritime rescue assets being used inland; Helicopter landing sites – CRTs are equipped and trained to set up and staff landing sites in support of helicopter operations; Search – CRTs are well equipped for, and trained in, land search operations; Basic first aid / evacuation – CRTs are trained in basic first aid, casualty care, stretcher evacuation and staffing casualty landing sites. Teams can be used to treat and evacuate those being brought out of areas of flooding or to evacuate the vulnerable from the threat of flooding. This is an important support role which frees up dedicated flood teams to remain in the flood area; Rope rescue – CRTs can provide rope rescue within the protocols; Water rescue – CRTs can provide water rescue within protocols; Logistics -manpower, 4x4 transport, lighting, communications (radio and public address systems) and generators.
32 Page 60 4.7 NORTHERN IRELAND FIRE AND RESCUE SERVICE
NIFRS has a statutory duty to respond to flooding incidents . Article 5 of The Fire and Rescue Services (Emergencies) Order (Northern Ireland) 2011 states that for:
SERIOUS FLOODING
The Board shall make provision for the purpose of —
(a) Rescuing people trapped, or likely to become trapped, by water, and
(b) Protecting them from serious harm, in the event of serious flooding.
In addition to statutory duties, NIFRS may, as part of a multi-agency approach, deploy resources in a risk based manner to;
Mitigate environmental damage Protect critical infrastructure Render humanitarian assistance.
NIFRS Capabilities
In order to fulfil this role NIFRS has disposal range of response options i.e.
1. Specialist Flood Rescue Response Teams NIFRS has specially trained flood rescue response teams, with varying degrees of capability based on national DEFRA standards, in a number of locations across Northern Ireland. These teams can be deployed in response to flooding incidents or pre-deployed in response to at risk areas based on weather warnings and conditions to any location.
2. Pumps A variety of pumps with varying capacities based across all of its stations.These range from hand-portable electric pumps up to high volume pumps capable of moving significant quantities of water over considerable distnaces.
3. All-Terrain Vehicles A number of all-terrain vehicles with the ability to respond to low level flood areas are also available to support the maintenance of normal service delivery.
The NIFRS will respond to any incident where there is a risk to life, or there is likely to be a risk to life. NIFRS will liaise with all responding agencies as part of an intergrated emergency response during flooding.
4.8 NORTHERN IRELAND AMBULANCE SERVICE
The Northern Ireland Ambulance Service, roles and responsibilities are
To save life in conjunction with the other emergency services To react proactively to any flood warnings in respect of NIAS Staff, property and equipment To manage any major incident using MIMMS (Major Incident Medical Management and Support) principles To maintain emergency cover throughout the Northern Ireland Ambulance Service area, and return to a state of normality at the earliest time To attend multi-agency meetings at all levels when appropriate To cooperate with other emergency services to provide a coordinated response.
33 Page 61 4.9 NORTHERN IRELAND HOUSING EXECUTIVE
The Housing Executive role in a major flooding event is to respond and assist in recovery as follows:
Repair and assistance to tenants as a social landlord Emergency holding repairs to private dwellings where requested under the Scheme for Emergency House Repairs (NI) Order 1991 Homelessness and temporary accommodation as determined by the Housing (NI) Order 1988 (after hours service provided by the local Health & Social Care Trust) Assisting in Emergency Support Centres or Community Assistance Centres where housing advice is required Provide advice to the Public To assist in any multi-agency response to a major flooding incident Attend Community Assistance Centres where required.
4.10 PUBLIC HEALTH AGENCY
The PHA is a multi-disciplinary, multi-professional body with a strong regional and local presence.
Regarding flood incidents, the PHA will:- Attend relevant multi-agency command, control and coordination meetings; Offer specific public health expertise to other responders and the general public regarding the public health risks of flooding and subsequent clean up and recovery; Where required set up and initially chair a scientific and technical advice cell that coordinates advice to the strategic coordinating group.
4.11 LOCAL HEALTH AND SOCIAL CARE TRUST(S)
The principal actions of the local Health & Social Care Trust(s) are:-
Provide for the general welfare of attendees at the Emergency Support Centre or other location where evacuees are sheltering Maintain a register of people attending an ESC so they can, provide support and services to individuals/families whilst at the centre Gather information in relation to the people who attend to assist in identifying, notifying and reuniting attendees with their next of kin Provide, where appropriate on-going support/advice after the incident/event Support for vulnerable individuals and providing details. Assist police with the documentation process.
4.12 THE EXECUTIVE OFFICE
The Executive Office (TEO) would be involved in a flooding response only where the impacts of the flooding are serious and are such as to require NI Central Crisis Management Arrangements (NICCMA) to be activated.
The NICCMA are activated as required to co-ordinate the strategic response across the NI departments and other responders to provide an interface with other emergency co-ordination bodies in Northern Ireland and at the United Kingdom level.
When requested, Situation Reports from the local multi-agency response group should be passed to the NICCMA Central Operations Room. The Local Council can also forward this to the DfC Local Government Division.
34 Page 62 4.13 NORTHERN IRELAND ELECTRICITY NETWORKS
The principal actions of NIE Networks are to:-
Attend to emergencies relating to their service at properties where life could be put at risk as a result of flooding Attend to flooding emergencies at its own service installations Provide an emergency response during flooding Support joint response Advise on reconnection.
4.14 BRITISH TELECOM
The principal actions of BT are:-
Attend to emergencies relating to their service at properties where life could be put at risk as a result of flooding Attend to flooding emergencies at its own service installations Provide an emergency response during flooding Support joint response Advise on the state of the telecoms network.
4.15 MEDIA AND PUBLIC INFORMATION
The Western EPG Public Information & Media Plan provides summary of the co-ordination arrangements for warning and informing the public and working with the media.
4.16 VOLUNTARY ORGANISATIONS
If required a range of voluntary organisations can be contacted for support. These organisations include:
British Red Cross Salvation Army St John Ambulance Radio Amateurs Emergency Network (Raynet) USPCA RNLI (via Coastguard). 4x4 Club Operators Search & Rescue Teams
Search & Rescue Voluntary organisations will be activated and co-ordinated by the relevant emergency service. A number of voluntary organisations have direct agreements to support a statutory or utility organisation and will be tasked by them as necessary. They can also be activated by the local HSCT, council or the Emergency Services if required.
4.17 PROPERTY OWNERS
In the event of flooding or the risk of flooding the public will be advised that they should take the following actions.
Take flood protection measures Move to a safe area if life is at risk Prevent water from entering the property if possible Switch off electricity at mains Move valuable possessions upstairs away from areas liable to be flooded Keep important contact numbers and important documents in a safe place. 35 Page 63 4.18 LOUGH NEAGH RESCUE
The principal actions of Lough Neagh Rescue are:
Support the MCA where required Provide boats and manpower where possible Assist in rescue and evacuation
4.19 BRITISH RED CROSS
Red Cross direct assistance to communities at risk of flooding. Red Cross can deploy, in partnership with Emergency Planning multi-agency partners:
4x 4 Capability – to transport people, equipment, essential supplies e.g. food, water, medication. FESS Capability - rapid response, self-contained vehicles o supporting people’s welfare and responding to on-going needs e.g. food, clothing/shelter/psycho - social support/transport/signposting o Community hub and information point
Psychosocial Support - general welfare and psycho-social to people before and after a flooding event First Aid Teams - support at scene, patient transfer & triage, emergency support centres.
36 Page 64 Appendix 5-ORGANISATIONAL ROLES RELEVANT TO FLOOD WARNING IMPACT
The following pages are intended to be used as a quick checklist of the roles of each organisation at different warning stages. The checklists are to be used as guidance by organisations as a basis for the response to flooding. It may be necessary to invoke the Emergency Plan for each organisation at different stages than is detailed here. In addition the unpredictability of the weather and flooding situation may mean that organisations may have to respond differently than is outlined in the guidance.
All agencies are required to monitor the weather at all times.
Checklist Be Aware (Low Impact) Responders Responsibilities Met Office Monitor the weather All other agencies Monitor weather reports from PWSA Monitor the situation and respond as required if deemed necessary Notify and key appropriate personal up-to-date
Checklist Be Prepared (Medium Impact) Responders Responsibilities Met Office Monitor the weather Communicate where appropriate with all relevant agencies Where considered necessary instigate a multi-agency conference call PSNI Monitor calls to control rooms for reports of flooding Monitor the weather reports from PWSA Participate in multi-agency conference calls if required NIFRS Participate in multi-agency conference calls / liaison meetings if required Assess the impact of relevant flooding information and take action where necessary in accordance with statutory responsibility. NIAS Provide assistance as needed following liaison Attend multi-agency control room if established Monitor the weather situation MCA Monitor the weather Situation Any request for assistance referred through Duty Area Officer DfI Rivers Agency Inform operational staff of potential for flooding Carry out pre-emptive measures to clear grills in vulnerable locations Participate in multi-agency conference calls if required Monitor River levels and alert other responders if levels are rising Check stocks of resources Monitor the weather situation Default Lead co-ordination of communication (to be transferred to Transport NI as appropriate) DfI TransportNI Participate in conference call where required Alert staff on the potential for flooding and put on stand- by if applicable Carry out pre-emptive measures and gulley cleaning Liaise with police on possible road closures
37 Page 65 Monitor the weather situation Ensure stocks of sand bags / signs are available Possible lead co-ordination of communication (When transferred from Rivers Agency as appropriate) NI Water Participate in conference call where required Check all relevant pumping stations are operational Inform all front-line response staff and contractors of possible need to respond out-of-hours Alert NIW Customer Relations Centre Alert NIW Information Office Alert NIW Work Control Centre Monitor the weather situation Ensure stocks of sandbags are available to protect NIW assets Local Council(s) Facilitate multi-agency conference call at sub-regional level for non-threat to life emergencies (CEO/EPCO) Attend SCG/TCG if established Set up a multi-agency control room if required Arrange for delivery of sandbags to mitigate flooding of council properties Ensure all staff are aware of the potential for flooding Monitor the weather situation NIE Networks Participate in conference call where required Monitor the weather situation Place key personnel on alert BT Participate in conference call where required Monitor the weather situation Alert BT teams Provide assessment on state of telecoms network NIHE Participate in conference call where required Consider putting contractors on stand-by Monitor the weather situation Alert staff on the potential for flooding PHA Participate in multi-agency conference calls if required Alert relevant staff on the potential for flooding and put on stand-by if applicable Monitor the weather situation Local Health & Social Services Participate in conference call where required Care Trust(s) Alert relevant staff on the potential for flooding and put on stand-by if applicable TEO Participate in conference call where required Monitor the situation Keep appropriate personnel advised
38 Page 66 Checklist Take Action (High Impact) Responders Responsibilities Met Office Monitor the weather Communicate where appropriate with all relevant agencies Where considered necessary instigate an appropriate multi-agency conference call PSNI Co-ordination of multi-agency tactical response where there is a threat to life Participate in multi-agency conference calls if required Consider activation of appropriate command structures Monitor calls to control rooms for reports of flooding Send liaison officer to multi-agency control room if established (if possible) Monitor the weather reports from PWSA NIFRS Participate in multi-agency conference call / liaison meetings if required Assess the impact of relevant flooding information and take action where necessary in accordance with statutory responsibility. Liaise with other responders to ensure a coordinated multi-agency response.
NIAS Arrange the most appropriate means of transport of those injured The treatment of persons injured Participate in multi-agency conference calls if required Send liaison officer to multi-agency control room if established (if possible) Monitor the weather situation MCA Participate in multi-agency conference calls if required Monitor the weather situation Any request for assistance referred through Duty Area Officer DfI Rivers Agency Default lead for Strategic co-ordination of response phase for Level 1 Significant Events (to be transferred to Transport NI as appropriate) Participate in multi-agency conference calls if required Place staff on-call for out-of-hours response Increase number of call handlers in regional offices Carry out further checks at vulnerable locations Activate emergency plan following calls from the public Respond as necessary Liaise with other responders to provide co-ordinated response Participate in multi-agency conference calls if required Monitor River levels and alert other responders if levels are rising Monitor the weather situation Facilitate strategic De-brief of Level 1 emergencies where appropriate. DfI TransportNI Possible lead for Strategic co-ordination of response phase for Level 1 Significant Events (when transferred 39 Page 67 from Rivers Agency as appropriate) Participate in conference call where required Activate emergency plan following calls from the public Liaise with other responders to provide co-ordinated response Liaise with police on possible road closures Monitor the weather situation Facilitate strategic De-brief of Level 1 emergencies where appropriate. NI Water Activate emergency plan if applicable Increase number of call handlers in Customer Relations Centre Monitor telemetry alarms at NIW assets Carry out further checks at vulnerable locations Alert all front-line response staff and contractors to need to respond Liaise with other responders to provide co-ordinated response Participate in multi-agency conference calls if required Monitor the weather situation Deploy sand-bags to protect NIW assets as required Local Council(s) Initiate and facilitate multi-agency conference call at sub-regional level for non-threat to life emergencies Activate emergency plan (in part or full) when contacted by external agencies Provide Emergency Support Centre(s) if required Attend SCG/TCG if established Set up a multi-agency control room if required Arrange for delivery of sandbags to mitigate flooding of council properties Contact key staff to alert them of the situation Provide assistance to other flood responders if requested Monitor the weather situation NIE Networks Participate in conference call where required Monitor the weather situation Place key personnel on alert Mobilise duty incident team Open incident centres as required BT Participate in conference call where required Monitor the weather situation Provide assessment on state of telecoms network Provide assistance via National Emergency Linkline (non-public emergency contact – see EPG contacts directory for details) PHA Participate in multi-agency conference calls if required Monitor the weather situation NIHE Participate in conference call where required Activate emergency plan Monitor the weather situation Alert staff on flooding situation Local Health & Social Care Trust(s) Participate in conference call where required Provide staff at Emergency Support Centre if opened 40 Page 68 TEO Lead for Strategic co-ordination of response phase for Level 2 Serious and Level 3 Catastrophic events Consider need to establish the NI Central Crisis Management Arrangements Monitor the emergency and consequences as appropriate Participate in conference call where required
Checklist Flood Water Receeding (Recovery) Responders Responsibilities Met Office Provide reports on significant events PSNI Attend debriefs Attend Community Assistance Centre if appropriate NIFRS Participate in the multi-agency recovery plan in accordance with statutory duty. May deploy, as part of a multi-agency approach, resources in a risk based manner to; Mitigate environmental damage Re-instate critical infrastructure Render humanitarian assistance. Participate in multi-agency debrief proces NIAS Attend debriefs MCA Attend debriefs following involvement DfI Rivers Agency Facilitate debrief of Level 1 Significant Events Attend debriefs Monitor River levels Provide a report on River Flood levels at peak Collect sandbags on request DfI TransportNI Facilitate debrief of Level 1 Significant Events Assess damage to infrastructure and carry out repairs/ clean up Assist council with clean-up Provide reports Attend Community Assistance Centre if appropriate Collect sandbags on request NI Water Attend debriefs Assess damage to infrastructure and carry out technical repairs Provide reports Collect sandbags deployed by, or on behalf of, NIW Local Council(s) Provide Community Assistance Centre for public to get advice and information from key agencies Continue clean-up and co-ordination of recovery Administration of Inconvenience/hardship payment if applicable Facilitate multi-agency debrief for local level events NIE Networks Continue recovery operations Re-instatement of infrastructure Attend debriefs Provide reports Attend CAC if applicable BT Continue recovery operations Re-instatement of infrastructure
41 Page 69 Attend debriefs Provide reports PHA Attend debriefs if required NIHE Attend Community Assistance Centre Organise the re-housing of homeless Maintenance and repair of damaged homes Local Health & Social Services Care Attend Community Assistance Centres Trust(s) Attend debriefs TEO Co-ordinate/monitor recovery process as appropriate Facilitate strategic debrief of Level 2 Serious and Level 3 Catastrophic events
42 Page 70 Appendix 6-VULNERABLE SITES WITHIN WEPG AREA IDENTIFIED BY THE RISK ASSESSMENT
(Cross Reference with Agenda Item 5 from Multi Agency Co-ordination Group Meeting: (Section 3.3)
Vulnerable sites Details Location Infrastructure Motorways A/B Roads Railways & Stations Bus Stations Utilities Gas lines Water Supply Infrastructure Waste Water Treatment Works Electricity Cables/Substations Telecommunications infrastructure Health Hospitals Doctors Surgeries Retirement Homes Education Schools Colleges/Universities Nurseries Emergency Services Fire Stations Police Stations Ambulance Stations Work Places Shopping Centres Offices Factories Residential Areas Estates Farms
43 Page 71 Appendix 7-MUTUAL AID AGREEMENT BETWEEN RIVERS AGENCY, TRANSPORT NI, NORTHERN IRELAND WATER AND LOCAL GOVERNMENT COVERING ARRANGEMENTS FOR MUTUAL AID IN THE SUPPLY AND DEPLOYMENT OF AGREED RESOURCES IN THE EVENT OF FLOODING (draft) 1. PURPOSE
1.1. This agreement may be activated in the event of an imminent threat of an emergency situation or following warning of a severe weather event.
2. ROLES OF TRANSPORT NI, DfI RIVERS AGENCY AND NIW
2.1. To undertake prior planning in conjunction with local government:
to determine the most appropriate storage locations for sandbags
to determine the numbers to be stored in those locations
to determine the means of re-supply for each location
to liaise and assist councils with advice and pre-planning to enable councils to meet relevant health and safety obligations. 2.2. To hold, in locations agreed for each organisation, the stocks of sandbags which they deem necessary for the protection of any infrastructure which it may be their statutory responsibility to provide or maintain.
2.3. To hold an additional, agreed, stock of sandbags for civil contingencies that can be made available for distribution to the public where property is in imminent danger.
2.4. To provide, in pre-agreed locations stocks of sand bags, accessible to the public under arrangements developed and agreed with relevant communities and with local government. To replenish these stocks as necessary.
2.5. To alert councils if assistance may be, or is, required.
2.6. To provide/assist briefing of council staff as may be required and to coordinate the activities undertaken by council staff deployed in support of that organisation.
2.7. To allow access for council(s) vehicles and staff to depots/store for the purposes of filling, collection or transport and supply of sandbags or any other duties as may have been agreed.
3. ROLES OF LOCAL GOVERNMENT
3.1. Councils may, where resources are available, deploy staff and equipment in support of Rivers Agency, Transport NI and NIW. Functions may include:
Storing a supply of sandbags which can be mobilised.
Provision of staff and equipment to support other organisations.
Support in filling, transport and delivery of sandbags to locations agreed with the requesting organisations.
Provision of assistance in other council areas.
3.2. Councils may assist requesting organisations to support the activities of any community self-help activity. 44 Page 72 3.3. Councils will make suitable arrangements for the health and safety of staff, ensuring, in conjunction with the relevant agencies, adequate pre-planning risk assessment, appropriate staff selection, training, briefing and equipping for the agreed tasks.
3.4. The planning templates attached as Appendices will be completed sub-regionally in conjunction with relevant organisations, and will detail equipment, resources and relevant locations within each council area.
4. ACTIVATION / ALERT ARRANGEMENTS
4.1. If mutual aid assistance is likely to be required, notice should be given by organisations to councils as early as is feasible to enable appropriate planning
4.2. Key contact details for each of the organisations and councils will be contained in the local EPG Emergency Contacts Directory which is updated on a bi-annual basis.
4.3. Detailed activation procedures will be agreed in advance with each organisation.
5. IMPLEMENTATION
5.1. Call Handling. There is insufficient capacity in councils to set up telephone or other response networks and to receive calls directly from the public. Flooding Incident Line will provide a data collection and call- logging service and will pass this information to one of the three flood response agencies under protocols agreed with them.
5.2. Responses. Any of the three flood response agencies/organisations may invoke the mutual aid agreement when deemed necessary, but will retain the communication and data interpretation responsibility, collating calls for assistance from Flooding Incident Line and, as far as possible, under agreed plans, requesting that councils provide personnel and vehicles to move pre-agreed sandbags to pre-agreed flood risk locations from which the public may collect them for laying at their properties. Circumstances may require flexibility in response, but pre-planning of responses should take place wherever possible and be subject of detailed discussion.
5.3. Planning. Sub-regional cross-agency discussions will determine, for each council area, the most probable locations of flooding and allow some estimation of degrees of risk. Sandbag stocks and storage locations will be agreed based on that data. Geographical areas of responsibility of each organisation and of the relevant council may be agreed based upon estimates of resource availability and other relevant factors. Each organisation will then ensure internal preparations and plans are completed including necessary risk assessments.
5.4. Staff selection and training. Each agency will select staff, based upon appropriate criteria, to fill, load and deliver sandbags to required locations. Staff will be trained in manual handling, will be briefed on plans for deployment, on the pre-planned areas of responsibility and on the correct actions to take when handling and delivering sandbags to locations including, where necessary, routes and parking areas. Flood response agencies will assist or adviseas appropriate in this training process and in the identification of equipment needs. Council staff will not be asked to enter flooded areas, nor will they be asked to lay sandbags at individual households.
5.5. Other locations. Where flooding is imminent, or occurs, in areas for which pre-planning has not been undertaken, the general operating principles will remain the same, but staff will be briefed specifically before deployment on the particular circumstances of the incident and may be accompanied by flood response agency staff if the situation so requires.
45 Page 73 6. LIMITATIONS
6.1. During significant flood events resource pressures may be experienced by flood response organisations and by co-responders including councils. This agreement does not replace, to any extent, the NICCMA escalation protocols that may be utilised to re-assess priorities, controls and assistance.
6.2. For ensure health and safety and to make sure that priorities for the distribution of sandbags are maintained, members of the public are not to be permitted to collect sandbags from within any of organisations’ depots unless specific arrangements are made for this purpose.
7. TERMS AND CONDITIONS
7.1. The Mutual Aid Agreement shall commence on 1 ******** 2014 and shall remain in place for a period of three years unless terminated under term 4 below
7.2. Any of the agencies may seek amendments to the Mutual Aid Agreement at any time.
7.3. Subject to the consent of all parties, the Mutual Aid Agreement may subsequently be extended by further periods of up to 3 years.
7.4. The Mutual Aid Agreement may be terminated by any party by formal written notice.
46 Page 74 Appendix 8 –FLOOD RISK AREAS IN THE WESTERN EPG AREA
Flooding hotspots in the Western EPG area have been identified in conjuction with an analysis of the Rivers Agency’s Flood Maps and the Flood Risk management plans. The Western EPG Flooding and Severe weather Group have developed a hotspot register which outlines locations where there has been historical flooding and no engineering solution has been developed to prevent future flooding. Action cards have also been developed for 2 locations which are regarded as flood risk areas. These are Whitewalls and an area on the Moyola. Areas within Omagh Town Centre have also been considered as flood risk areas and some work has been progressed to ensure the responders are aware of the population/assets/vunarabilties in these areas. These action cards and the sections for Omagh are attached in Appendix 8.1. Rivers Agency have also identified significant flood risk areas and areas requiring further investigation as part of their Flood Risk Management Plans.These are detailed in Appendix 8.2 Alert Stations are located in 7 locations across the Western EPG area. These are detailed in Appendix 8.3
8.1 Action Cards for Flood Risk Areas and Sectors of Omagh Town
Clooney Road Action Card
Whitewalls Action Card
47 Page 75 Flood Sector Tables For Omagh Town
Sector 1 Crevenagh Rd to Swinging Bars Roundabout
Sector 2 Harold McAuley Nursing Home
48 Page 76 Sector 3 Campsie
Sector 4 Omagh Town Centre
Sector 5 Derry Road, Gortmore Gardens, Hunter’s Crescent to Poe Bridge ( including Beltany Mews & Mullaghmena Meadows)
49 Page 77 -
Appendix 8.2-Areas of study in Northern Ireland based on the Flood Risk Management Plans
Areas of Study within the Neagh Bann Flood Risk Management Plan District
Significant Flood Risk Areas: None identified within the Western EPG area
Areas for Further Investigation: Ballygawley,Castledawson,Coalisland, Cookstown, Dungannon, Moneymore, Maghera, Magherafelt, Moneymore.
Areas of Study within the North West Flood Risk Management Plan District
Significant Flood Risk Areas: Londonderry, Omagh, Strabane
Areas for Further Investigation: Ballinamallard, Ballymagorry,Beragh,Castlederg,Coolkeeragh ( power station) Eglinton, Enniskillen,Fintona, Lisbellaw, Maguiresbridge,New Buildings,Newtownstewart, Sion Mills
50 Page 78 Appendix 8.3 Telemetric Sites within the Western EPG Area
51 Page 79 52 Page 80 53 Page 81 Alert Receivers: Charlotte Daly
54 Page 82 Alert Receivers: Martin Daly
55 Page 83 56 Page 84 57 Page 85 Appendix 9.0-MULTI-AGENCY SANDBAG LOCATIONS (Please refer to Regional Community Resilience Group’s Resilent Direct Folder)
58 Page 86 Appendix 10 – TRANSPORT NI GUIDANCE ON THE DISTRIBUTION OF SANDBAGS
To ensure a fair and equitable treatment of requests for sandbags, the following guidance should be adopted for the provision and distribution of sandbags:
59 Page 87 a. Each Section Office should determine the level of sandbags to be held in Depots for emergency purposes and ensure that this level is maintained throughout the year. Filled sandbags should be stored indoors if possible. b. When significant roads related flooding is adequately dealt with, sandbags can be deployed to known flooding locations or where there is imminent danger to property, if requested. c. Requests will generally be dealt with in the order they are received. However, in times of serious widespread flooding events, the distribution of sandbags will need to be prioritised according to severity, risk, location and available resources. Distribution should be assessed with regards to the following priorities:
1. To assist the emergency services as appropriate.
2. To protect property.
Although no guarantee can be given that sandbags can be delivered within a specific timescale, TransportNI will endeavour to respond to most requests on a priority basis within available resources. d. Delivery of sandbags will normally be to the nearest point of access to a property from the public road. Further manoeuvring of the sandbags within the boundaries of a property and placement will be the responsibility of the property owner. e. Members of the public must not be permitted to collect sandbags from within any Depot for health and safety reasons and to ensure that priorities for the distribution of sandbags are dealt with in an appropriate manner.
f. Local Emergency Plans for each Section Office must include details of where additional sand bags can be sourced to cope with periods of exceptional weather e.g. Rivers Agency, Council Depots etc. g. Sandbags should not be provided for the future protection of vulnerable properties or to properties whose owner thinks they may flood sometime in the future, except in the cases of known road related flooding locations. h. TransportNI will aim to advise recipients that they will be responsible for the placing and disposal of sandbags. However exceptional circumstances may prevail where upon request, TransportNI may consider their removal, particularly in cases where the sand-bags are deemed to be contaminated through no direct cause of the recipient. i. The primary responsibility to protect property lies with the owner of that property and in flood risk areas owners should be encouraged to make arrangements to protect themselves and their properties.
60 Page 88 Appendix 11- RIVERS AGENCY GUIDANCE ON THE DISTRIBUTION OF SANDBAGS
TECHNICAL GUIDANCE NOTE
TGN 4
Date: 2 March 2012
Provision and Delivery of Sandbags and other Temporary Flood Protection Measures in Flooding Emergencies
Rivers Agency, subject to availability of resources and competing priorities, will endeavour to provide temporary flood protection, including delivery and placing of sandbags, to locations where there is an imminent risk to life or risk of significant damage to property from flooding.
Similarly, subject to availability of resources and competing priorities, Rivers Agency may retrieve and dispose of used sandbags when the flood risk has subsided and where this is considered to be beyond the reasonable capabilities of the occupiers of property affected or threatened by flooding.
Rivers Agency, by arrangement with local authorities or other competent bodies, will arrange for the provision of sandbag stores at agreed locations considered to be at particular risk of flooding. Access to such stores will be restricted by arrangement between Rivers Agency and the local authority or competent body in question.
For reasons of health & safety and to avoid public liability claims, sandbags or any other material or equipment required for temporary flood protection should not be distributed directly to members of the public from Rivers Agency depots or stores.
61 Page 89 Appendix 12
The following page contains information which can be displayed in affected areas during flooding or posted on the Council Website. Community Resilence information can be found at https://www.nidirect.gov.uk/articles/what- do-if-flood-happens
62 Page 90 Agenda Item 9
Title of Report: Officer Presenting: Emergency Planning Officer Review of Winter Flooding Author: Emergency Planning Officer
1 Purpose of Report/Recommendations
1.1 To seek Members endorsement and provide Members with an overview of the content and recommendations made by Alan Strong, in his report “Review of Winter Flooding (Northern Ireland) 2015-2016” – refer to Appendix 4.
2 Background
2.1 This report was published on the 30th November 2016. The purpose of the report was to enable DARD, to capture issues identified during the flooding experienced in parts of NI between November 2015 and January 2016.
3 Key Issues 3.1 The report outlines five commendations which all helped contribute to the multi- agency response and produced a 10 “C” plan, which are referred to as concepts. These are outlined in detail in the Alan Strong report and a summary report prepared by the Emergency Planning Coordinator for the Western Emergency Preparedness Group is included at Appendix 3. The 10 “C” plan refers to: -
Commission; Crops; Communications; Collaboration of Staff and Resources; Connection; Civil Contingency Systems; Catchment Modelling; Community Resilience Groups; Connecting Resources; and Curricula of all education sectors.
3.2 The report also identifies 10 resilient issues. A summary of key points included in each of these resilient issues is also outlined in Appendix 3. These are:
Human Interaction; Resilient Communications; Resilient Community Networks; Resilient Hydraulics; Page 91 Resilient Rivers & Infrastructure; Resilient Weather Data; Resilient Emergency Planning; Resilient Flood Economics; Resilient Land use; Resilient Catchments; and Resilient Farmers.
3.3 There are several areas within the review that require Council consideration. These include: 3.4 Resilient Communities: Reference is made to the use of the general power of competence to progress and potentially resource this work. Clarity is required, in the first instance to check if this is accurate and also if Councils are the organisations best placed to resource such work. 3.5 Resilient Hydraulics. Residents often query the timetable for maintenance of rivers. This recommendation may help to progress an improvement in frequency of maintenance. This is also emphasised in 5.5 of the Review, where river maintenance frequency is recommended to be considered for performance rather than economic reasons. 3.6 Resilient Rivers & Infrastructure: The recommendation to investigate the need for a comprehensive survey on the impact of rivers on adjacent infrastructure and bridge structures could be a useful trigger to initiate work on bridges, such as Clady, in the absence of immediate flood alleviation actions 3.7 Resilient Rivers & Infrastructure: Road and farm access safety is recommended for consideration and this is a useful recommendation for those, particularly in more rural areas where residents may experience disruption for longer periods of time 3.8 Resilient Flood Economies: Recommends the progression of a study into the economic impact of flooding. This was previously proposed by Fermanagh & Omagh DC in January 2016. This recommendation may aid the securing of funding. 3.9 Resilient Flood Economies: Recommendation relates to the development of a future SEFA scheme and considers both farming and businesses. Local government understood that the SEFA Scheme published in April 2016 was a one off Scheme and would not be repeated. There were significant difficulties encountered with criteria for both elements of the Scheme and with administration of the Scheme. 3.10 Resilient Farmers. There is a proposal to establish pilot farming resilience groups. Whilst it is recognised in the review that these will be industry led, SOLACE is referenced as a partner. 3.11 C6 of Report provides an overview of Civil Contingencies Systems: The Cross Border Emergency Management Group is referenced with the recommendation that cross border liaison is highly desirable. Presently there are no Rivers Agency or Office of Public Works input into this group and if this group is to be used as a conduit to increase cross border liaison for flood emergency planning and response, it would require additional resourcing.
Page 92 3.12 The summary attached in Appendix 3 is being provided for information. The report stated that the review period should be no later than December 2018. It is noted that there is a need to publish an action plan to implement the recommendations in this review and the provision of regular progress updates to all stakeholders. Councils must be consulted during the development of any action plan and included in the determination of time scales and assignment of lead agencies.
4 Financial, Equality, Legal, HR, Improvement and other Implications 4.1 None identified
5 Recommendations 5.1 It is recommended that the Council write to the Department for Infrastructure (DFI) asking for details and timeline regarding the preparation of an associated action plan to take forward the recommendations in the Strong Report and to establish the governance arrangements that will be put in place regarding delivery of an Emergency Action Plan.
Background Papers
Appendix 3: Summary of Strong Report
Appendix 4: Strong Report
Page 93 This page is intentionally left blank Strong Report:
“Review of Winter Flooding (Northern Ireland) 2015-2016”
Published: 30th November 2016
Potential Impact for WEPG
Purpose: to enable DARD, or its successor, to capture issues identified during the flooding experienced in parts of NI between November 2015 and January 2016.
Headline Commendations
The report outlines five commendations which all helped contribute to the multi- agency response. These are:
1. Distinct leadership, on the ground and in the media by Minister and Rivers Agency Chief Executive; 2. Notable support and guidance by the Ulster Farmers Union for its members across the province; 3. Strong resilience, in the face of adversity and medium to long-term disruption, by many in the rural community; 4. Vision to engage with Natural Flood Management Systems; 5. Sustained efforts by Emergency Planning Groups, Community Resilience Groups and Service providers over a 14-week period.
10 “C” Plan
The review also produced a ‘One Concept and a 10 C-Plan’ where the one concept or overarching approach of “Resilience links to Risk though the appropriate and sustained allocation of Resource” (referred to throughout the report as the R: R: R Nexus). The 10 C’s are as follows:
C1: Commission: Procurement of a Hydraulic Model of Lough Neagh flows, leading to a review of the statutory water levels in Lough Neagh;
C2: Crops: Increased research and development work, through DAERA, to examine crop performance and potential for alternative land uses in floodplains;
1 Page 95 C3: Communications: Seek greater clarity in messages which deal with ‘Flood Warning’, ‘Severity and frequency of floods’ and the ‘Flooding Incident Line prompts’;
C4: Collaboration of Staff and Resources: Seek greater integration of multi- agency working including innovative solutions for staff and resource shortages, initially at Departmental level. Sharing of skills and responsibilities is highly desirable in an interdepartmental work area;
C5: Connection: with and support for farmers in areas of potential flooding to be enhanced through the investigation of a new Farming Resilience Group (FRG) model, ideally led by the agriculture industry;
C6: Civil Contingency Systems: review connections and develop a (more visible) suitable management organogram to facilitate the integration of departmental Major Emergency Response Plan(s), Emergency Planning Coordinating Officers and Community Resilience Groups, ensuring adequate policies and efficient delivery. Cross-border liaison is highly desirable, with due attention to checks across Preparedness, Co-ordination, Response, Communication and Recovery;
C7: Catchment Modelling: investigate and develop an Integrated Catchment Wide Model (ICWM) to simulate the activities of an entire catchment and interrogate possible new or additional uses/applications. The consolidated ICWM has the possibility to be re-used on several catchments, to bring integration across economic, environmental and social aspects and promote the use of Natural Flood Management techniques. Included may be a review of maintenance work programmes to ensure that key rivers and/or ‘designated watercourses’ continue to function effectively;
C8: Community Resilience Groups: enhancement of arguably the “jewel in the crown” for survival of many aspects during extended flooding; greater support for the management, materials and sustainability is needed to ensure that the CRG network grows and matures as well as being an integral part of rural society;
C9: Connecting Resources requires a mature and broad interpretation of the role of Resources in the RRR Nexus, to include capital and operational funds, knowledge, research and experience-informed decisions as well as fit-for-purpose
2 Page 96 systems for Flood Risk Management. An increased need for Resources in the form of Funding will emerge;
C10: Curricula of all education sectors (primary, secondary, tertiary) should include and be made aware of Emergency Planning, using Flood Risk Management and allied activities as key exemplars. Gaining public confidence is central to the acceptability of this Review and to an improved response to any further severe flooding.
Resilient Issues Identified
The report also identifies 10 resilient issues. Below is a summary of the recommendations made within each of these issues.
5.1 Human Interaction: Training up DFI staff from Roads to supplement Rivers staff. Increase collaboration of merged emerged functions across flooding response and extreme weather roads protection, with DfI. Consideration to widening this resource to other departments.
5.2 Resilient Communications: Produce & publish a Flood Information CD for new councillors to include, who does what and when, likely environmental and social impacts, role of key agencies.
5.3 Resilient Community Networks: Recognise that community resilience efforts needs to be appropriately resourced, if warning and informing, as part of a wider community resilience programme, is to continue. States that councils are empowered to engage with local communities through “General Power of Competence” (NI Assembly 2014) and in accordance with the Assembly Ministerial Code, and may use this power to work with others to provide cost effective services and facilities in new ways which could meet the needs of local communities in flood emergency planning.
Greater support required for Community Resilience Groups and proper resourcing of emergency and community planning.
Consolidation of post to lead and co-ordinate the EPCO work, administered by SOLACE.
3 Page 97 Consolidation of EPCO Management and the Cross Border Emergency Management Group.
5.4 Resilient Hydraulics: Review of Lough Neagh Water Controls, in the form of an investigation; An in depth review of the operating regime for the Neagh/Bann system to ensure that the arrangements and parameters for its management are adequate to meet modern day needs.
Consider small scale actions in the Erne system such as minor changes in gates’ operation to provide greater pre Winter floods protection and ongoing regular maintenance of rivers and tributaries.
Consolidation of the status and management of the Lough Neagh development Trust, to capture the differing interests and retain the environmental designations.
5.5 Resilient Rivers & Infrastructure: River maintenance frequency to be considered for performance rather than economic reasons.
Investigate the need for a comprehensive survey on the “impact of rivers on adjacent infrastructure and bridge structures”
Road and farm access safety, during extreme flooding, must be considered
5.6 Resilient Weather Data: Consider the establishment of a government owned company which provides weather data and analysis.
Establish a NI based centre for Resilience, to monitor a range of resilience issues, develop research and inform decision makers
Educate people about climate change and flooding, including educational programme in schools.
5.7 Resilient Emergency Planning: Civil Contingency systems and protocols to be reviewed in light of flooding emergency and considering UK Flooding legislation.
Funding secured for long term appointment of a regional co-ordination of the work of the EPCOs.
Ensuring that emergency planning and delivery remain central in the full integration of the Floods Directive and a possible Floods Bill.
4 Page 98 5.8 Resilient Flood Economics: Development of a model contract for a study on the economic impact of flooding to include a broad range of criteria, and allow this model /programme to be applied to other areas. This work was initiated in FODC and aimed to address the losses in physical, infrastructural, financial and possibly, even in human capital, as a result of reductions in economic activity and losses of capital in a wide variety of categories and sectors. This has not been progressed due to absence of funding.
Development of a future SEFA (Scheme of Emergency Financial Assistance) which operates on the principle of proportionality with awards relating to farm or business size and not applying a flat rate for all applicant.
Infrastructure engineered solution to include list of key projects drawn up with full costing attached.
5.9 Resilient Land use: AFBI develop its applied research and investigation on “Impact of flooding on farm and horticulture businesses” through DAERA.
Community planning and land use planning are seen as collaborative to prevent further floodplain development.
5.10 Resilient Catchments: Develop rational messaging on the “communication of severe storms” to the public.
5.11 Resilient Farmers: Establish pilot Farming Resilience Groups (FRG) through industry leadership. The concept of FRG needs to find a home, possibly under the general power of competence empowering councils to make a difference and the community planning function within the new local councils. It is pertinent that the following authorities make an initial evaluation with the view of establishing a pilot FRG: Agriculture Industry, SOLACE, DAERA, DFI, UFU and an independent chair to seek progress and secure funding.
Implementation of Recommendations
Although the report stated that the review period should be no later than December 2018, it is noted that there is a need to publish an action plan to implement the recommendations in this review and the provision of regular progress updates to all stakeholders. It is suggested that Figure 6.5 included within the Strong Review is
5 Page 99 used as the basis for developing a reporting mechanism and amended to assign responsibility to the lead agency and allocate timescales to each action. It is anticipated that there will be cross departmental activity in order to address these actions.
Council Considerations
There are several areas within the review that require council consideration. These include:
5.3 Resilient Communities: Reference is made to the use of the general power of competence to progress and potentially resource this work. Clarity is required, in the first instance to check if this is accurate and also if councils are the organisations best placed to resource such work.
5.4 Resilient Hydraulics. The timetable for maintenance of rivers is often queried by the public. This may help to progress an improvement in frequency of maintenance. This is also emphasised in 5.5 of the Review, where river maintenance frequency is recommended to be considered for performance rather than economic reasons. Increased maintenance scheduling upstream of the grilles could also be included within this recommendation.
5.5 Resilient Rivers & Infrastructure: The recommendation to investigate the need for a comprehensive survey on the impact of rivers on adjacent infrastructure and bridge structures could be a useful trigger to initiate work on bridges in Omagh and Clady, in the absence of flood alleviation schemes.
5.5 Resilient Rivers & Infrastructure: Road and farm access safety is recommended for consideration. Another useful recommendation for those, particularly in the areas where residents are cut off for prolonged periods of time. In the majority of cases these are private laneways, and as adjacent roads are continually raised, the problem worsens.
5.8 Resilient Flood Economies: Recommends the progression of a study into the economic impact of flooding as proposed by FODC in January 2016. This recommendation may aid the securing of funding.
5.8 Resilient Flood Economies: Recommendation relates to the development of a future SEFA scheme and considers both farming and businesses. Local government understood that the SEFA Scheme published in April 2016 was a one off Scheme and would not be repeated. There were significant difficulties encountered with criteria for both elements of the Scheme and with administration of the Scheme. Important to ask for clarification on this point.
6 Page 100 5.11 Resilient Farmers. There is a proposal to establish pilot farming resilience groups. Whilst it is recognised in the review that these will be industry led, SOLACE is referenced as a partner.
C6: Civil Contingencies Systems: The Cross Border Emergency Management Group is referenced with the recommendation that cross border liaison is highly desirable. Presently there are no Rivers Agency or Office of Public Works input into this group and if this group is to be seen as a conduit to increase cross border liaison for flood emergency planning and response, it would require resourcing.
Other: Councils must be consulted during the development of any action plan and included in the determination of time scales and assignment of lead agencies.
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STRONG REPORT
“Review of Winter Flooding” (Northern Ireland) 2015-2016
Independent Review
W Alan Strong MBE CEng FICE Chairman, Drainage Council NI
November 2016
Page 103
The Report is the property of the Department for Infrastructure, Northern Ireland Assembly
The Report can be accessed on the Department for Infrastructure website at: https://www.infrastructure-ni.gov.uk/publications/alan-strongs-report-review-winter-flooding- northern-ireland-2015-2016
Hard copies can be obtained by contacting Rivers Agency at:
Postal Address: Rivers Agency Hydebank 4 Hospital Road Ballydollaghan Belfast BT8 8JP
Telephone Number: 028 9025 3355
E-mail: [email protected]
REVIEWER:-
W Alan Strong MBE, CEng FICE
Chair, Drainage Council for N Ireland
Visiting Professor in Civil Engineering, Ulster University; formerly Academic Lead for Civil Engineering, Ulster University.
Chartered Engineer; Chartered Environmentalist; and Fellow of the Institution of Civil Engineers
1 Page 104 Flooding Review Content
TITLE Page No. Executive Summary 3 Stakeholders – ‘Who spoke (or wrote) up’ 10 Facts - Flood Review – ‘Say it in Numbers’ 11 1. Introduction - ‘What’s it about’ 14 2. Flood Reviewing - ‘Where we have come from’ 27 3. Regional Review of Winter Flooding De-Brief (March 2016) - ‘What they first 30 said’ 4. Flooding Review Methodology - ‘How the job was tackled’ 36 5. Identification of Resilient Issues 42 5A. Human Interaction 5.1 Resilient Staff 43 5.2 Resilient Communications 46 5.3 Resilient Community Network 49 5B. Science and Engineering 5.4 Resilient Hydraulics (Loughs Neagh and Erne) 54 5.5 Resilient Rivers and Infrastructure 59 5.6 Resilient Weather Data 64 5C. Governance 5.7 Resilient Emergency Planning 68 5.8 Resilient Flood Economics 72 5D. Agriculture and Land 5.9 Resilient Land Use 76 5.10 Resilient Catchments 80 5.11 Resilient Farmers 84 6. Commentary on Resilient Issues 87 7. Conclusions and Recommendations - ‘Where’s it heading?’ 95 Acknowledgements 102 Bibliography 104 ANNEX 1 - Farm Case Study (Finance) 107 ANNEX 2 - Farm Case Study (Agriculture) 112 ANNEX 3 - Proposed Catchment Wide Model (CWM) 115 ANNEX 4 - Emergency Planning, Protocols and Procedures 119 ANNEX 5 – Proposal for ‘Farming Resilience Group (FRG)’ 128
2 Page 105 EXECUTIVE SUMMARY
Purpose The ‘Review of Winter Flooding 2015-16’ was commissioned by Michelle O’Neill MLA (Minister of the Department of Agriculture and Rural Development (DARD)) in March 2016, following a period of severe rain and subsequent flooding in the period from November 2015 to January 2016.
The purpose of the review was to enable DARD or its successor, to capture issues identified during the flooding experienced in parts of Northern Ireland in that flooding period. In essence, the Review will: Consider the causes of the flooding; Conduct a regional debrief into the multi-agency emergency response; Consider the current management and operating regime to control water levels for Lough Neagh; and Consider the issues faced by those affected by the flooding.
Context The Review initially placed Winter Flooding in the wider contexts of the Global, European, National and Regional scenes. It made particular reference to high level drivers such as the UN Sustainable Development Goals, European Directives addressing Water and Flooding, and key UK Statements such as the Pitt Review (2009), the National Flood Resilience Review (2016) and the recently published Climate Change Risk Assessment (CCRA) Report 2017. The Regional context was articulated through the NI Departmental plans on Flood Risk Management and the Long Term Water Strategy.
Appraisal Rationale An early identification of the concept of ‘linking the Resilience of a system with its Risk of survival, and how this relationship could be enhanced or reduced by application of Resources’ was adopted, and this became an over-arching rationale for appraisal of Winter Flooding issues. This was referred to as the Resilience-Risk-Resource (R:R:R) Nexus.
3 Page 106 The adopted descriptors were: Resilience: ‘an ability to recover from or adjust easily to misfortune or change’; Risk: ‘probability of occurrence of an unwanted event multiplied by the consequence (loss) of the event; three types of loss are people, property and efficacy; and Resource: ‘a stock or supply of money, materials, knowledge, staff, and other assets that can be drawn on by a person or organisation in order to function effectively’.
This Nexus, when all three elements are in balance, is shown diagrammatically as follows:
R:R:R Nexus
Resilience Resource Resilience Risk
Resources Risk
Flood Reviewing – ‘Where we have come from’ A brief look back at the Performance and Efficiency Delivery Unit (PEDU) report from 2012, and earlier reports, allowed this Review to see what had been done by Government and specifically DARD and Rivers Agency following the 2 day storm period in Belfast in late June 2012. The development of flood warning and informing proposals, a scheme of individual property protection and the delivery of a large scale emergency planning exercise were significant outcomes.
Similarly, a review of the NIAO Report (2016), entitled ‘The Rivers Agency: Flood Prevention and Management’, identified that there was a high level of assurance that there had been significant improvements in the management of flood risk in recent years. Matters that were praised by NIAO included Rivers Agency’s Flood Risk Management Strategy that was in line with the EU Floods Directive requirements, and its developed Strategic Flood Map and Detailed Flood Maps. Development of the business case for the £1 million Homeowner
4 Page 107 Flood Protection Grant Scheme, subsequently launched in January 2016, was aimed at residential properties located within high-risk flood areas. However, Rivers Agency was criticised for the majority of projects finished either late, over budget or both in the last five years, despite investing nearly £33 million in the construction of new flood defence assets. However, recommendations were acknowledged on how to improve this delivery and provide value for money.
Review Methodology As this was an evidence-based study, there were a range of mechanisms adopted to obtain facts, secure comment and translate these into coherent and consolidated views. An initial capture of input from many of the Emergency Responders was obtained from both written comments and a large De-Briefing session; this identified a range of Key Issues.
The subsequent round of stakeholder engagements included meetings with over 45 Groups involving over 300 people, written input from over 50 correspondents; these views were representative of a broad range of interested parties covering farming, engineering, environment and governance.
Views and comments were triangulated with literature; this also led to the identification of eleven discrete areas of investigation. In order to apply a systematic approach, these were each analysed against a Resilient Beam in which the positive impacts were set against negative influences in order to establish what was needed to obtain a balance – these balancing elements became the Balancing Actions, leading on to key Recommendations, while ‘good practice’ constituted the Commendations. Typically, this was shown as:
- ve Com + ve A A A 1 1 1 Balance
The Fulcrum of each beam was a statement of what was expected from that issue in the long-term.
5 Page 108 Commentary on Resilient Issues A detailed analysis, following the Methodology rigorously, produced the following Resilient Issue Beam configurations: ‘Human Interaction’ STAFF COMMUNICATIONS COMMUNITY NETWORKS
‘Science and Engineering’ HYDRAULICS RIVERS and WEATHER DATA INFRASTRUCTURE
‘Governance’ EMERGENCY PLANNING FLOOD ECONOMICS
‘Agriculture and Land’ LAND USE CATCHMENTS FARMERS
Each of the Issues had at least 15 items of stakeholder evidence which were interpreted into 4 or 5 positive and 4 or 5 negative impacts; this resulted in an overall configuration for each issue as shown above; it is noted that a Beam which is dominated by ‘positive inputs’ will lean to the right, coloured Red (e.g. Community Networks), while those with dominant negative inputs will lean to the left, coloured Blue (e.g. Hydraulics); hence those in a neutral position, coloured in Black (e.g. Staff), indicated balance during the Winter Flooding. Also each Issue was awarded at least one item of Commendation for ‘evidence of good practice’
6 Page 109 and a number of Recommendations for ‘work that should be applied or investigated to provide greater balance’. These amounted to 50 Balancing Actions.
In summary, it is noted that three issues were in balance (in Black); three were positive (in Red), and five were negative (in Blue). This appraisal was influenced by a desire to identify the R:R:R Nexus and therefore to derive Headline Recommendations.
Headline Commendations Five Commendations were each lauded in at least one or more of the Resilience Issues sections: Comm1: Distinct leadership, on the ground and in the media by Minister and Rivers Agency Chief Executive; Comm2: Notable support and guidance by the Ulster Farmers Union for its members across the province; Comm3: Strong resilience, in the face of adversity and medium to long-term disruption, by many in the rural community; Comm4: Vision to engage with Natural Flood Management Systems; Comm5: Sustained efforts by Emergency Planning Groups, Community Resilience Groups and Service providers over a 14 week period.
Headline Recommendations The Review produced a ‘One Concept and a 10 C-Plan’ as follows:
One Concept and a 10 C-Plan: One Concept or Overarching Approach of “Resilience links to Risk though the appropriate and sustained allocation of Resource” (R:R:R Nexus).
10 C-Plan, based on R:R:R Nexus Concept: C1: Commission: Procurement of a Hydraulic Model of Lough Neagh flows, leading to a review of the statutory water levels in Lough Neagh; C2: Crops: Increased research and development work, through DAERA, to examine crop performance and potential for alternative land uses in floodplains;
7 Page 110 C3: Communications: Seek greater clarity in messages which deal with ‘Flood Warning’, ‘Severity and frequency of floods’ and the ‘Flooding Incident Line prompts’; C4: Collaboration of Staff and Resources: Seek greater integration of multi-agency working including innovative solutions for staff and resource shortages, initially at Departmental level. Sharing of skills and responsibilities is highly desirable in an inter- departmental work area; C5: Connection: with and support for farmers in areas of potential flooding to be enhanced through the investigation of a new Farming Resilience Group (FRG) model, ideally led by the agriculture industry; C6: Civil Contingency Systems: review connections and develop a (more visible) suitable management organogram to facilitate the integration of departmental Major Emergency Response Plan(s), Emergency Planning Coordinating Officers and Community Resilience Groups, ensuring adequate policies and efficient delivery. Cross-border liaison is highly desirable, with due attention to checks across Preparedness, Co-ordination, Response, Communication and Recovery; C7: Catchment Modelling: investigate and develop an Integrated Catchment Wide Model (ICWM) to simulate the activities of an entire catchment and interrogate possible new or additional uses/applications. The consolidated ICWM has the possibility to be re-used on several catchments, to bring integration across economic, environmental and social aspects and promote the use of Natural Flood Management techniques. Included may be a review of maintenance work programmes to ensure that key rivers and/or ‘designated watercourses’ continue to function effectively; C8: Community Resilience Groups: enhancement of arguably the ’jewel in the crown’ for survival of many aspects during extended flooding; greater support for the management, materials and sustainability is needed to ensure that the CRG network grows and matures as well as being an integral part of rural society; C9: Connecting Resources requires a mature and broad interpretation of the role of Resources in the RRR Nexus, to include capital and operational funds, knowledge, research and experience-informed decisions as well as fit-for-purpose systems for Flood Risk Management. An increased need for Resources in the form of FUNDING will emerge; and
8 Page 111 C10: Curricula of all education sectors (primary, secondary, tertiary) should include and be made aware of Emergency Planning, using Flood Risk Management and allied activities as key exemplars. Gaining Public Confidence is central to the acceptability of this Review and to an improved response to any further severe flooding.
It is finally recommended that the outputs of this Review, covered by the 10 C-Plan and the Balancing Actions in each Resilience Issue section, should be evaluated independently within a 2-year period, say December 2018. It should also be subject to the normal NI Assembly Ministerial and Committee scrutiny.
The Reviewer acknowledges the immense help and co-operation of many Stakeholders, Rivers Agency Staff and Ulster University colleagues.
W Alan Strong MBE CEng FICE Chairman NI Drainage Council Visiting Professor, Ulster University e. [email protected]
9 Page 112 Key Stakeholders –‘Who Spoke (or Wrote) up?’
RESILIENT ISSUE STAKEHOLDERS Staff RA HQ RA Regions Blue Lights DfI Policy UFU Erne UFU U Bann UFU L Bann RCRG SOLACE Section Communications Minister DfI and DARD RA HQ RCRG Met Office UFU Fintona CRG DAERA - Corp. Academic Consumer Council O’Neill Press Offices Services (K Cronin) Community Networks RA HQ Staff RCRG Emergency Fintona CRG Red Cross Farmers Politicians (U CCG Academic SOLACE Planning Co- Bann) (K Cronin) ordinators Emergency Planning DfI Emergency SOLACE RA HQ Blue Lights Consumer NI Water DfI Corporate Translink Transport NI Planning Co- (J McKee) (PSNI, NIAS, Council Services ordinators NIFRS) Hydraulics RA Regional RA HQ Waterways Toome Eel Civil Edge Movanagher B McAfee U Bann L. Neagh Group Staff Ireland Fisheries Engineering Watersports Fish Farm (Aghadowey) Councillors and Professionals Farmers Rivers 113 Page Operation Waterways Linen Green Kinnego RA HQ Toome Eel Edge Movanagher RA Coleraine Area Loughs Agency Farmers Ireland Management Businesses Fisheries Watersports Fish Farm Weather Data Climate NI Met Office Academic RA HQ NI Water Movanagher Translink Transport NI Belfast City (P Biglarbeigi) (J McKee) Fish Farm Council Land Use DAERA UFU Erne UFU U Bann + UFU L Bann CAFRE Civil Engineering CNCC Blue-Green Cities Sustainable NIEA + NIEL Crop Growers Research Professionals Research Land Management Farmers UFU HQ UFU Erne UFU U Bann UFU L Bann DAERA CAFRE U Bann DARD Dairy Individual Farmers Councillors Consultant Catchments Council for NI Fresh Water NIEA Civil Climate NI UFU DAERA CAFRE Edge Salmon Fisheries Nature Taskforce Engineering Watersports Conservation Professionals and Countryside Economics RA HQ Belfast City Emergency Red Cross DARD/DAERA DEFRA Civil Dairy Consultant Honourable Retail Traders Council Planning Corporate Contingency The Irish Coordinators Services Group (CCG) Society Broader Issues DEFRA SEPA Natural EPG’s ‘Blue Lights’ – DARD/DAERA RA HQ Staff Institution of Civil Building Local (NI) Councils Resources Wales NIFRS, PSNI, Corporate Engineers Research NIAS Services Establishment
10
Facts - ‘Say it in Numbers’
Did you know that: A. In this evidence-based investigation, the Reviewer: Spoke with 300+ Stakeholders Hosted 110 Stakeholder-Issue Encounters Sought out and met 45 Stakeholder Groups Received 56 written submissions, comprising evidence or comments on substantive and relevant matters Largest meeting was with 24 farmers; smallest was two ‘one-to-one’s’ and occurred with a Householder and an Environmentalist
B. The extent of winter Flooding is described by: More than 3,300 hectares of land were flooded, as determined by satellite imagery Farming costs for only re-seeding and/or loss of production was excessive, primarily in Lough Neagh and Lough Erne catchments 174 Domestic Properties suffered from flooding 176 properties were protected from flooding by the ‘emergency response actions of the emergency services, drainage agencies and voluntary sector’ 100’s of homes were protected from flooding by existing flood defence structures 36 Commercial Properties were badly flooded 55+ roads were closed due to extreme flooding The Rail line between Belfast and Dublin was closed due to extreme flooding 15 consecutive School-days were lost in parts of the Erne and Neagh basins due to inability of School buses to drive on inundated roads Total cost to deal with Winter Flooding over the phases of Preparedness, Co- ordination, Response, Communication and Recovery was estimated at £12.6m Personal pain and stress cannot be accounted for in monetary terms Upper Lough Erne water levels were about 1m above prescribed upper limit and 140mm below 2009 peak levels
11 Page 114 Lough Neagh water levels were just over 1m above prescribed upper limit, and highest level since 1928
C. Extreme Weather Statistics: Winter Rainfall arose from 4 consecutive storms, from November 2015 to January 2016 Rainfall in Northern Ireland in November and December was 164% and 193% respectively above the ‘30 year average’ Met Office (Nov. 2015) predicted: “GB and NI to be affected by 3 months of storms as the biggest Super El Nino in 144 years was about to hit the UK”, and this was a remarkably accurate prediction 2015/16 was the ‘wettest winter on record for over 100 years’, as recorded by the Met Office' The ‘wettest December since records began 1838’ 'as recorded by the Armagh Observatory'
D. 2015/16 Winter Storm details: Storm Name Date named Date of impact on UK and/or Ireland
Abigail 10 November 2015 12 - 13 November 2015
Barney 16 November 2015 17 - 18 November 2015
Clodagh 28 November 2015 29 November 2015
Desmond 4 December 2015 5 - 6 December 2015
Eva 22 December 2015 24 December 2015
Frank 28 December 2015 29 - 30 December 2015
Gertrude 28 January 2016 29 January 2016
Henry 30 January 2016 1 - 2 February 2016
Imogen 7 February 2016 8 February 2016
12 Page 115 E. Storm Names These were allocated alternatively by the UK Met Office and its Irish counterpart Met Eireann Names were female and male alternatively, and were decided after the public had made suggestions by email To be given a name, a storm must usually be a deep low forecast to require yellow, amber or red warnings with the potential to cause either medium or high impact. A yellow warning comes into place when you should ‘be aware’ of potential severe weather in the coming days. Amber means ‘be prepared’ and red means ‘take action’ The 2016/17 Meteorological Storm season commences on 31 October; designation of a storm will not just be based on wind speed. Met Office will now also include, as storm systems, weather which brings impact from rain and snow Agreed names for 2016/17 Floods, if required, are: A - Angus B - Barbara C - Conor D - Doris E - Ewan F - Fleur G - Gabriel H – Holly
13 Page 116 1. INTRODUCTION – ‘WHERE IS THE ACTION?’
1.1 General The purpose of this Flooding Review Report is to enable DARD, or its successor, to capture issues identified during the flooding experienced in parts of Northern Ireland between November 2015 and January 2016. This brief is expanded upon on Section 1.8 and in Chapter 4.
The earth faces many variables and changes which have neither a rhythm nor an exact reason, other than that change has been observed and can be expected; rainwater, flooding and sunshine is seen as an example of this uncertainty. Scientists and Engineers would want to analyse these changes and inform society of the frequency and consequences of such dramatic changes, using a range of professional skills and predictive tools, and therein lays the challenge for those with responsibility for Flood Risk Management.
In this Flooding Review Report, the author did not have the luxury of all these specialist skills, but set out to gather evidence in a systematic manner from a range of stakeholders who had some direct involvement or influence with Winter Flooding 2015/16. While the brief did not require a deep appraisal on this multi-discipline study on Flooding, there was a considerable amount of evidence provided through the stakeholders, and this was corroborated or altered through examination of similar sources and in literature. This approach is described in the Methodology chapter as I set out to engage with a wide range of views, avoid ‘author prejudice’ and triangulate opinions and facts in such a way that the Report could bring increased clarity to the complexities and identify improvements which could ‘improve flooding response’ and ‘increase public confidence’. Looking forward was therefore a key driver for this Report, using back-casting to develop fore-casting.
The concepts of Triangulation are explained in detail later, while the clarification of which matters needed more attention was scoped out by identification of ‘those issues which needed attention in order to minimise further disruption or uncertainty if left unattended’; these critical matters were labelled as ‘Resilient Issues’, as each needed to maintain stability of its Resilient Beam.
14 Page 117
This document sits in the context of previous flooding reviews, and in the more recent Nov. 2015 – Feb. 2016 flooding events. The significance of this series of events is captured in this quotation from the Environment Agency (UK):
"Storms Desmond, Eva and Frank disrupted communities across northern parts of the UK, with Desmond alone costing the UK more than £5bn.” (EA 2016)
There have been a series of compelling statements, strategies, reports and commentaries on ‘the impact of flooding and how to alleviate it’; while these are helpful and informative, there is a risk of information over-load; therefore this report is not a chronological record of all that took place, nor is it an exhaustive examination of all the Policy material on Flood Risk Management, but it simply highlights a sample of key drivers which serve to set the scene and assist in the wider integrative analysis.
To begin with, I wish to set the wider Global, European, National and Regional context scene.
1.2 Global The UN Sustainable Development Strategy, as described in ‘Our Common Future’, known as the Brundtland Report (1987), was the work of the World Commission on Environment and Development for the U.N. General Assembly. It was designed to examine global environment and development to the year 2000 to re-assess critical problems, to formulate realistic proposals for solving them, and to raise the level of understanding and commitment to the issues of environment and development. The Report advocated the growth of economies based on policies that do not harm, and can even enhance, the environment. The commission recognises that the time has come for a marriage of economy and ecology, in order to ensure the growth of human progress through development without bankrupting the resources of future generations.
Sustainable Development Goals (SDG) effectively brought clarity to the Brundtland Report by focusing on global needs and challenges across the triple bottom line of
15 Page 118 Economic Stability, Environmental Enhancement and Social Inclusion. The SDG’s (paraphrased below) cover 17 thematic goals, with associated key performance indicators.
UN Sustainable Development Goals (SDG) 2015 1. End poverty in all its forms 2. End hunger, achieve food security , everywhere improved nutrition, promote sustainable agriculture 3. Ensure healthy lives and promote 4. Ensure inclusive and equitable quality well-being for all at all ages education and promote lifelong learning opportunities for all 5. Achieve gender equality and 6. Ensure availability and sustainable empower all women and girls management of water and sanitation for all 7. Ensure access to affordable, 8. Promote sustained, inclusive and reliable, sustainable and modern sustainable economic growth, full and energy for all productive employment and decent work for all 9. Promote sustained, inclusive and 10. Reduce inequality within and among sustainable economic growth, full countries and productive employment and decent work for all 11. Make cities and human 12. Ensure sustainable consumption and settlements inclusive, safe, production patterns resilient and sustainable 13. Take urgent action to combat 14. Conserve and sustainably use the oceans, climate change and its impacts seas and marine resources for sustainable development 15. Protect, restore and promote 16. Promote peaceful and inclusive societies sustainable use of terrestrial for sustainable development, provide ecosystems, sustainably manage access to justice for all and build effective, forests, combat desertification, accountable and inclusive institutions at all and halt and reverse land levels degradation and halt biodiversity loss 17. Strengthen the means of implementation and revitalize the global partnership for sustainable development
It is argued that four of these SDG’s (shown shaded above) relate to the concern over climatic change, food security and agriculture, water management and sustainable materials
16 Page 119 consumption and protection. Hence the matter of Flood Risk Management plays a part in meeting or solving, in some way, these lofty international goals and aspirations.
1.3 European In this Flood Risk Management context, there are many statements, white papers etc., but these two Directives are the most relevant:
European Water Framework Directive. In the array of directives, strategies, statements, communications and papers of the European Union the Water Framework Directive (2000/60/EC) set out “To establish a Community Framework for the protection of inland surface waters, coastal waters and groundwater, in order to prevent and reduce pollution, promote sustainable water use, protect the aquatic environment, improve that status of aquatic ecosystems and mitigate the effects of floods and droughts”. It had the key emphases of Catchment Management Planning, River Basin Modelling and the Cost of Compliance.
European Flood Directive. The Directive (2007/60/EC[1]) is legislation on the assessment and management of flood risks. It prescribes a three-step procedure: a. Preliminary Flood Risk Assessment, to consider impacts on human health and life, the environment, cultural heritage and economic activity, with a legislative completion date of December 2011; b. Risk Assessment, used to identify the areas at significant risk which will then be modelled in order to produce flood hazard and risk maps, to be in place by December 2013 and include detail on the flood extent, depth and level for three risk scenarios (high, medium and low probability); and c. Flood Risk Management Plans, to indicate to policy makers, developers, and the public the nature of the risk and the measures proposed to manage these risks. Plans are to focus on prevention, protection and preparedness, and to take into account the relevant environmental objectives of the 'Water Framework Directive'.
17 Page 120 1.4 National The UK Pitt Review (2007) by Sir Michael Pitt was hailed as ‘one of the widest ranging policy reviews of our time’. Sir Michael Pitt called for urgent and fundamental changes in the way that Britain is adapting to the increased risk of flooding and called on the Government to set out publicly how it will make rapid progress, and be held to account, on improving the country’s flood resilience. Sir Michael, having received over 1,000 written submissions, consulted widely and visited communities to see for himself the extraordinary hardship so many families across the country faced, said: a. “Research published as part of my report today shows that the risk of flooding continues to escalate; making the events that shattered so many communities last year an ever increasing threat; b. I urge the Government to show leadership and urgently set out the process and timescale for improving resilience in the UK. The recommendations in my report are realistic and affordable and should be made a priority. Waiting for another serious event is a dangerous ‘strategy of luck’; we need to act now to protect our future; c. The Government should: i. Establish a Cabinet Committee dedicated to tackling the risk of flooding, bringing flooding in line with other major risks such as pandemic flu and terrorism; ii. Publish monthly summaries of progress during the recovery phase of major flooding events, including number of households still displaced; iii. Ensure proper resourcing of flood resilience measures, with above inflation increases every spending review; iv. Establish a National Resilience Forum to facilitate national level planning for flooding and other emergencies; v. Have pre-planned, rather than ad-hoc, financial arrangements in place for responding to the financial burden of exceptional emergencies; vi. Publish an action plan to implement the recommendations in this review, with regular progress updates”. d. He had concerns about the quality and availability of flood risk information currently available to emergency responders and the public;
18 Page 121 e. “We need to be more willing to tell people the truth about risk. The current lack of clarity and transparency has the potential to put not only people’s homes, but lives in jeopardy; f. People purchasing a property in a flood risk area should be made aware of the potential for flooding so they can make informed choices, including on taking out insurance. While the current flood code system needs to be simplified, with earlier and more personalised warnings issued jointly by the Met Office and Environment Agency that say what they mean and give clear advice.”
The UK National Flood Resilience Review (2016) was commissioned by Rt. Hon Ben Gummer (Minister for the Cabinet Office and Paymaster General) and Rt. Hon Andrea Leadsom (Secretary of State for Department of Environment, Food and Rural Affairs); it was researched and written by the National Flood Resilience Review Group, comprising representatives from nine Government Departments, and supported by several Expert Advisors. The extensive study was focused on three key elements: o Programme of work to improve understanding of the fluvial and coastal flood risk in England; this arose partly due to the concern of how weather has been traditionally expressed in terms of ‘rainfall return periods’ which was confusing; hence the testing of weather scenarios has led to Environment Agency Extreme Flood Outlines constituting a good representation of plausible severe fluvial and tidal flooding; o Using these Extreme Flood Outlines to test the resilience of key local infrastructure assets, such as energy, water, health, transport and telecommunications, on which services to our communities and businesses depend; o Focus on making this key infrastructure resilient to the level of flooding portrayed in the Extreme Flood Outlines; this examined the potential for industry to buy and use temporary defences to defend a significant proportion of key local infrastructure rapidly and effectively against extreme flood conditions before it is made as resilient as is feasible; work with the relevant utilities, regulators and government departments will develop and implement plans for temporary improvements to resilience in line with those already available in the electricity
19 Page 122 supply industry. These plans will ensure that the utilities obtain stock-piles of temporary defences in advance, and have ready site-specific plans for deploying them where appropriate and possible, if and when serious floods occur this coming winter.
The Climate Change Risk Assessment (CCRA) Report 2017, was published by the UK Committee on Climate Change in September 2016, and provides a balanced response to the risks of dangerous climate change, and is independent, evidence-based advice to the UK and Devolved Governments and Parliaments; there is a bespoke Northern Ireland report. Key comments from CCRA 2017 for Northern Ireland: o Climate change is happening now. Globally, 14 of the 15 hottest years on record have occurred since 2000; o Impacts of climate change are already being felt in the UK, and urgent action is required to address climate-related risks; o It sets out the most urgent risks and opportunities arising for the UK from climate change; o Report is the result of over three years of work involving hundreds of leading scientists and experts from the public and private sectors and civil society; risk assessment has been peer reviewed by UK and international specialists; o Changes to the UK climate are likely to include periods of too much or too little water, increasing average and extreme temperatures, and sea level rise; o Report concludes that the most urgent risks for the UK resulting from these changes are: . Flooding and coastal change risks to communities, businesses and infrastructure; . Risks to health, wellbeing and productivity from high temperatures; . Risk of shortages in the public water supply, and water for agriculture, energy generation and industry, with impacts on freshwater ecology; . Risks to natural capital, including terrestrial, coastal, marine and freshwater ecosystems, soils and biodiversity; . Risks to domestic and international food production and trade;
20 Page 123 . Risks of new and emerging pests and diseases, and invasive non-native species, affecting people, plants and animals; o Opportunities for the UK from climate change include: . UK agriculture and forestry may be able to increase production with warmer weather and longer growing seasons, if constraints such as water availability and soil fertility are managed; . There may be economic opportunities for UK businesses from an increase in global demand for adaptation-related goods and services, such as engineering and insurance.
National Needs Assessment (NNA) – A Vision for UK Infrastructure (October 2016) by the Institution of Civil Engineers (ICE) made specific reference to Flood Management: o Main challenge for the sector is to devise optimal investment strategy for flood risk infrastructure; this is likely to take the form of an enhanced whole systems (EWS) approach comprised of a portfolio of structural and non-structural measures to maximally reduce risks; o More rounded approach taken to river basin management; e.g. allow certain rivers to flood to relieve downstream pressures and to the reconfiguration of urban areas, including the installation of green infrastructure to better manage runoff, rain water harvesting and sustainable urban drainage schemes; o Review of the responsibilities for flood risk management and a funding model that shifts the onus of paying for flood defences away from the public purse; possible move to the privatisation of flood defence infrastructure with a mechanism for revenue funding to a body which is incentivised and regulated, following the example of the privatisation of the water industry.
1.5 Regional Northern Ireland Assembly ‘Programme for Government (PfG)’ (2016) recommends a ‘bottom-up approach’ as it seeks inter-departmental responses to a number of outcomes. The Framework contains 14 strategic outcomes
21 Page 124 which, taken together, set a clear direction of travel and enable continuous improvement on the essential components of societal wellbeing. They touch on every aspect of government, including the attainment of good health and education, economic success and confident and peaceful communities. In addition to merely fulfilling our statutory obligations, we will in future be able to target those things that make real improvements to the quality of life for the citizen. It is speculated that a joined-approach to address issues such as Flooding impact and Alleviation can contribute to some of the outcomes, especially when risk is reduced and resilience is increased.
‘Building our Quality of life by ICE Northern Ireland Manifesto 2016’, is the most recent in a series of strategic documents issued by ICE NI, in which it highlights the key elements of infrastructure which need attention or are critical to ‘quality of life’; it is based on the premise that ‘we think differently about how we fund and procure projects, what areas are most in need and how we attract and develop our best people’. This Manifesto categorises its recommendations via Delivery, Resilience and Skills.
ICE State of the Nation Report 2014: Flood Management section made the following comments: o ICE recognised that with the implementation of the Floods Directive and lessons learned from recent flooding events, there has been a significant change in the approach to flood risk management. o These advancements, including flood mapping and improved community engagement, have resulted in a more joined-up approach to the protection of people, property and vital infrastructure, as well as planning for, responding to, and recovering from flood events. o Recommendations included: One government body should have overall authority for flooding; Education for the public and business owners, along with timely flood warnings to allow them to defend their properties; All development must be designed for extreme events when drainage infrastructure is overwhelmed.
22 Page 125 Flood Risk Management Plans o Flood Fisk Management Plans for Northern Ireland have been produced by DfI Rivers to comply with the requirements of the European Union Directive on managing flood risk (2007/60/EC) (Floods Directive) which was transposed to local legislation through The Water Environment (Floods Directive) Regulations (Northern Ireland) 2009; o The completed Plans were published in December 2015 in accordance with EU requirements. They highlight the flood hazards and risks, in the 20 most significant flood risk areas in Northern Ireland, from flooding from rivers, the sea, surface water and reservoirs. The Plans identify the flood risk management measures that are to be undertaken over the next 6 years, 2015- 2021, and set out how the relevant authorities will work together and with communities to reduce the flood risks; o As well as implementation of the measures over the current 6 year cycle, Plans are to be reviewed and so work will soon commence on the 2nd cycle Preliminary Flood Risk Assessment, an early stage in Plan development, which must be completed by December 2018.
Long Term Water Strategy o ‘Sustainable Water - A Long-Term Water Strategy for Northern Ireland (2015-2040)’ was agreed by the Executive and published in March 2016. The Strategy sets out a range of initiatives to deliver the Executive’s long-term goal of a sustainable water sector in Northern Ireland. It encourages a sustainable and integrated approach to managing all our water needs, focusing on Economic Development and Growth, Affordability, Environmental Improvement and Compliance, Flood Risk Management and Sustainable Service Delivery; o The Long-Term Water Strategy aims to: create a more sustainable water sector where all water related activities can co- exist without compromising the environment or increasing flood risk; consolidate and bring together all policies that affect the water sector; progress delivery of difficult cross-cutting policies such as water efficiency, surface water management and water and sewerage funding and regulation;
23 Page 126 inform the development and delivery of the Executive’s River Basin Management Plans, Flood Risk Management Plans and proposed Marine Plan; provide strategic direction and a framework for long-term investment plans to encourage the delivery of sustainable initiatives with longer pay back periods; and ensure existing water and sewerage infrastructure and investment proposals inform future planning decisions.
Flood Reviews – Northern Ireland. Several reviews have been carried out by Government Agencies or Departments in the last decade, and these are summarised in Chapter 2 Flood Reviewing - ‘Where we have come from’.
1.6 Winter Flooding (Nov 2015 – February 2016) Context Widespread flooding occurred in several areas at various levels over the period from early December 2015 to early February 2016. Road networks and properties around Lough Erne, Lough Neagh, River Blackwater, River Finn, River Sillees and River Quiggery were affected and communities in Aughnacloy, Lisnaskea, Kesh, Omagh, Clady, Strabane, Dungannon, Fintona, Coalisland and Castlederg were impacted. Significant areas, circa 7,000 hectares (unconfirmed) of farmland, primarily in river floodplains, were inundated with fluvial water which had over-spilt from rivers. This extreme flooding was caused by three consecutive storms, Desmond, Eva and Frank.
1.7 Commentary An appraisal of these statements, reports or commentaries from the four jurisdictions of Global, European, National and Regional identifies several common themes relating to Flood Risk Management, and also finds areas of governance which are of concern.
1.7.1 The common areas of concern are: A. Identifying and expressing Risk in ways that both professionals, members of society and decision makers can understand and respond to; B. Defining and changing the Resilience of many aspects of Flooding Infrastructure or Support Systems;
24 Page 127 C. Describing types of Resource which are needed to deliver sufficient and efficient Flood Risk Management systems, in the broadest sense. D. A desire to manage the (often unpredictable) variables of flood management so that there is confidence in the processes, high level and adequate support and mutual respect across all the key stakeholders.
1.7.2 Three over-arching elements emerge which need addressed and developed, with the test that they can be applied to many aspects of Flood Risk Management. They are: . Resilience: ‘an ability to recover from or adjust easily to misfortune or change’ Risk: ‘probability of occurrence of an unwanted event multiplied by the consequence (loss) of the event’; three types of loss are people, property and efficacy Resource: ‘a stock or supply of money, materials, staff, knowledge, skills and other assets that can be drawn on by a person or organisation in order to function effectively’
1.8 Flooding Review 2016 Explanation and Connectivity This Review arose on the request of the DARD Minister, Michelle O’Neill MLA, and Officials and had the initial Purpose and Scope as follows: . Purpose: The purpose of the review is to enable DARD to capture issues identified during the flooding experienced in parts of Northern Ireland between November 2015 and January 2016; . Scope: The review will: Consider the causes of the flooding; Conduct a regional debrief into the multi-agency emergency response; Consider the current management and operating regime to control water levels for Lough Neagh; and Consider the issues faced by those affected by the flooding.
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This initial brief, along with logistics and administration support, was expanded out for clarity by the Author in conjunction with the Minister and Officials, and this agreed Commission is detailed in Chapter 4 Methodology.
It became evident to the Reviewer that the need to triangulate the evidence of a disparate range of stakeholders required an appraisal of the context, literature and background to Flood Risk Management; hence the detail in this chapter was vital in identifying a structured systematic methodology and led to a holistic and integrative approach to the Review Report. The Methodology chapter takes this approach forward.
26 Page 129 2. FLOOD REVIEWING – ‘WHERE WE HAVE COME FROM’
There have been a number of Flood Reviews in recent years. It was not an objective of this Flooding Review (2015-16) to review all previous flooding commentaries and reviews.
However, it was considered valuable to reflect briefly on the more recent reviews, namely the Performance and Efficiency Delivery Unit (PEDU) Report (2012) and the Northern Ireland Audit Office Report (2016).
2.1 PEDU Reporting Following the significant flooding that occurred in Belfast on the 27th and 28th June 2012 the Executive, at its meeting on 5 July 2012, agreed that the Performance and Efficiency Delivery Unit (PEDU) should be asked to review the response of the government agencies.
Approximately 1600 homes were flooded as a result of approximately 44mm of rain that fell in 3 hours in the evening of the 27th June.
The PEDU report made 12 recommendations, one of which related to the consideration of a number of recommendations arising from earlier reports. This brought the total number of recommendations to 31.
All 31 recommendations have now been addressed through the work of a number of Departments and organisations and these have, for the most part, provided a solid basis for the improvements in the emergency response to flooding, which has been evident in recent years. Notable recommendations that have realised positive benefits include: the development of flood warning and informing proposals for Northern Ireland; developing a scheme of individual property protection; delivery of a large scale emergency planning exercise, Eluvies 2, to clarify roles and responsibilities in relation to the emergency response to coastal flooding.
It is also worth noting that working through these recommendations has also improved the co-ordination between organisations and a better understanding of roles and capabilities.
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The establishment of DARD, as the ‘Lead Government Department (LGD) for the Co- ordination of the Emergency Response to Flooding’, occurred in 2014. This was a further positive development to enable a more effective response to flooding by government. Key elements in delivering this new responsibility include planning for emergencies, co- ordination, communication and the provision of flood related expertise to other responding organisations.
The LGD responsibility by DARD passed to the Department for Infrastructure (DfI) in May 2016, as a result of the review of the NI Government Departments. All of the Drainage Organisations are now part of DfI, and this opportunity for enhanced co-operation fulfils a recommendation of the PEDU report that all the Flood Response Agencies should be within a single departmental ambit.
2.2 Northern Ireland Audit Office Reporting This NIAO Report (2016) was entitled ‘The Rivers Agency: Flood Prevention and Management’ see: https://www.niauditoffice.gov.uk/publication/rivers-agency-flood- prevention-and-management.
A summary of the content is as follows: 2.2.1 The Northern Ireland Audit Office (NIAO) carried out a ‘value for money’ audit on Rivers Agency over the last 2 years. 2.2.2 The Comptroller and Auditor General from NIAO published the report on 13 September 2016. 2.2.3 The report provides a high level of assurance that there have been significant improvements in the management of flood risk in recent years; however, it does identify some areas where improvement is required. 2.2.4 Main Findings The Rivers Agency’s Flood Risk Management Strategy is in line with the EU Floods Directive requirements, and the developed Strategic Flood Map and Detailed Flood Maps are fit for purpose.
28 Page 131 The Rivers Agency’s flood maps are useful for development planning, promoting and designing resilience measures, and flood defence project prioritisation. The Rivers Agency has made these maps available to the public, allowing them to check if they are in a flood prone area. (https://mapping.infrastructure-ni.gov.uklFloodMapsNl/index.aspx) There are effective structures, guidance and protocols in place to allow stakeholders to collaborate during flooding incidents which are routinely tested to identify improvements. Improvements to the weather warning arrangements within Northern Ireland will mainly benefit river flood warning. The Flooding Incident Line continues to be improved but the call abandonment rate, which peaked in 2012 at 27 per cent, remained high at 16 per cent in 2015. There is therefore scope to improve the performance of the Flooding Incident Line. Each year the Rivers Agency commits around £80,000 to improve resilience to flooding, especially in areas subject to repetitive flooding. The Rivers Agency also developed the business case for the £1 million Homeowner Flood Protection Grant Scheme, launched in January 2016, aimed at residential properties located within high-risk flood areas unlikely to benefit from publicly funded flood solutions, within five years of their application. Over the last five years, the Rivers Agency has invested nearly £33 million in the construction of new flood defence assets. However, the majority of projects finished either late, over budget or both. Rivers Agency has made recommendations on how to improve their delivery and value for money. However, it will take a number of years to determine if these recommendations will reduce cost overruns and time delays.
29 Page 132 3. REGIONAL REVIEW OF WINTER FLOODING DE-BRIEF (16 MARCH 2016) - ‘WHAT THEY SAID FIRST’
This key De-Briefing session was held in Loughry College, Cookstown on Wednesday 16 March, 2016 at 9.30am – 4.30pm. The context of the day had been established though the submission of Feedback templates by all the key agencies and organisations which had been involved with the Winter Flooding.
Clarification: The record of this De-Briefing session was made by Kieran Brazier (DARD Civil Servant) and his staff, and is a fair record of a day of considerable interaction. It is written in the style to suit the dynamics of the day. Also it is noted that the Departmental labels were those in place on that day, but some have subsequently changed due to a re-alignment of the NI Executive Departments.
3.1 Attendance Table 1 Table 2 Table 3 Table 4 Jonathan McKee Eugene Cunningham Joan McCaffrey Owen McGivern (ABC B Council) (F&O Council) (RA HQ) David Porter Claire Carleton (BCC) Juliet Coulter Sean O’Neill (RA HQ) (M&EA B Council) William Irwin (MLA) Michael Patterson Kieran Connolly Graeme Anderson (BCC) (L&C B Council) (RA HQ) Sydney Anderson (MLA) Gillian Topping (ABC) Ray Hall Jim Martin (RA HQ) (MU Council) Kieran Brazier (RA) Liam Hannaway (NM&D Mark Kelso (MU Jackie Gregg (DRD) D Council) Council) Alan Strong (Reviewer) Davy Neill (BCC) Perry Donaldson (A&N Diane McKain & John B Council) Wylie (Met Office) Table 5 Table 6 Table 7 Table 8 Tracey Teague (DARD Henry Robinson Lex McCoubrey (PSNI) Barclay Bell (Ulster Corporate) (Transport NI) Farmers Union) Moya Haughey (DARD) Linda MacHugh (DRD) Huw Morgan (MoD) Kerry Daggett (BT) Ronan Henry (DARD Eilis Ferguson (DRD) Maurice Rafferty (NI Robert McKissick (NIE) PO) Fire and Rescue) Lynda Lowe (DARD) Andrew Law (NI Water) Johnny McArthur (NIAS) Rodney Ballentine (NIE) Susan Topping (DARD) David McCullough (NI Paddy Simpson (NIAS) Tony Stitt (NI Housing Water) Executive) Steven Millar Steven McDowell Joanne McKenna Kate Cairns (Ulster (DARD) (NIEA) (British Red Cross) Farmers Union) Jeff Glass (DoE) Julie Cuming David Brown (Ulster (OFMDFM) Farmers Union) Richard Knox (Translink) Matthew Harrison UFU)
30 Page 133 The De-Brief Session was facilitated by Alan Strong (newly appointed Winter Flooding Reviewer), as well as presentations by David Porter (RA Chief Executive), Jonathan McKee (RA Director of Development) and John Wylie (Met Office). The following information has been collated and summarised in no particular order of importance.
3.2 What Went Well 3.2.1 Preparation in planning proved vital in the ability to deliver as follows:
Contact Directories Networks Conference calls Clear awareness of roles Good processes that Positive use of flood and responsibilities worked maps Local Knowledge Timely communications Good multi-agency communications, co- operation and co- ordination Situational awareness Appetite to do it right, by Self-help/mutual aid all involved ethos 3.2.2. Overall co-ordination plus the collegiate/community approach. Willingness of people to step up to the mark even when roles and responsibilities were blurred. 3.2.3 Communication – quality of focus on hot spots, potential impacts, dynamic shared information. Pre-declaration of Level 1. Good communications between core Department and Rivers Agency delivered early with all angles covered in terms of briefings for Ministers, Committees, Top Management, Stakeholders, Public and Press. Good ‘Lines to Take’ communications. 3.2.4 The positive leadership, roles and responsibilities that Rivers Agency assumed as Lead Government Department (LGD). Decisive and clear leadership from Rivers Agency. David Porter’s visibility, confident approach, professionalism and his use of layman’s language. 3.2.5 Activation of LGD role. Note that it takes resourcing especially over a holiday period. 3.2.6 Community Resilience Pilots were very pro-active and ensured that these areas were prepared. This only worked in areas where the lead resident and the multi- agency partners had developed a relationship.
31 Page 134 3.2.7 Multi-Agency Conference Calls – these were extremely valuable in ensuring joint decision making. Positive sharing of information. Excellent information impact i.e. telemetrics. 3.2.8 Good Will – Going the Extra Mile – Mutual respect built on previous experiences and relationships between agencies. Intangible benefits but peoples resilience is less likely to responds as effectively during a prolonged periods of flooding. 3.2.9 Weather forecasting (Met Office) – before and during event was excellent. Tracking storms provided more accurate information. The new storm naming process was valuable. Seasonal forecasting improved the planning process. 3.2.10 Positive measures put in place to help householders and farmers in Enniskillen and Lough Neagh areas. Pumping was put into action quickly.
3.3. Challenges 3.3.1 Lack of uniformity in Civil Contingency Group NI protocols, some based on assumptions, need to factor in Local Government change both at Council and Departmental levels. New council areas need to ensure they have reviewed and have their emergency plans and protocols completed and up to date. 3.3.2 Formalise and fund structures. The lack of certainty and resilience in local government around proper funding and the need for adequate resource needs to be clear. Lack of capital investment. 3.3.3 Improve staff resources in terms of having a resilient, experienced, trained people available in emergencies. However, be mindful of ‘Burn Out’, good will of staff and work life balance. Note the impact of Voluntary Exit Scheme in terms of loss of experience and knowledge. 3.3.4 Flooding Incident Line – improvement required as follows: a. Fully resourced and staffed throughout an emergency; b. ‘Quality of Live’ information needs to improve such as access to sandbags; c. Citizen accesses are confusing such as the requirement of post codes when reporting floods; and d. The process of using the Flooding Incident Line should be promoted making it more visible to the public.
32 Page 135 3.3.5 Develop Communications – suggestions for improvement are as follows: Ability to disseminate communication to the media, timeliness, strategic messages etc. Information demands – note that the continuous demands on Rivers Agency staff to supply information has a knock-on effect in terms of the demands of actually dealing with the floods on the ground. More autonomy at multi-agency partners level to disseminate sub-regional communications to media through local press releases. Suggest a bank of ‘Lines to Take’ is made available. Manage public expectations through timely clear media statements. Getting the messages out as early as possible at all level i.e. NI wide, Regional and Local (street level) to manage public expectations. Consider Media/Press Conferences on a daily basis. Messages should be disseminated using all types of communication channels including social media. Information capturing e.g. utilise Spatial (NI) and Resilience Direct - all data of homes, schools, roads, welfare assistance and infrastructure impact, this should be pre-loaded and available for future flooding incidents. This will improve multi-agency situational awareness and avoid duplication. 3.3.6 NI Executive needs to show strategic ownership. Possible appointment of Minister for Resilience. 3.3.7 Acceptance that this type of exceptional weather is now a more frequent event. As a consequence resources and strategic emergency planning should be the norm. Rural Proofing – this flooding had a negative impact on rural communities and rural dwellers as a result they felt extremely disadvantaged. Remember that it’s not just about houses, 7,500 acres of farm land flooded for 2-3 months with approximate £2.7 million uninsured loss to the farming community. Not forgetting animal health and welfare issues and possible pollution from fallen animals, silage effluent etc. Promote a closer relationship between rural dwellers and rural business owners. 3.3.8 Investigate if there is budget resource/financial support available to rural dwellers/communities through EU Solidarity Fund.
33 Page 136 3.3.9 Lough Neagh - consider opening gates sooner. Consider commissioning a Jeremy Benn Associates (JBA) Style Report (done for L Erne) for Lough Neagh. Action should be taken on the JBA Lough Erne Report. 3.3.10 The lack of co-ordination of volunteers and volunteering Group (SAR) who self deployed resulted in poor use of assets. The volunteers are a value adding asset which should be embraced for civil protection as it is for search and rescue. 3.3.11 Conflicting boundaries i.e. the challenge is how to link the 11 Local Authorities and 5 Emergency Planning Groups (EPG’s) as opposed to Policing, Fire Service and Health Authorities. Co-terminus areas are best. 3.3.12 Consider single platform for mapping system that is kept up to date and that all emergency personnel have access to. 3.3.13 LGD Toolkit – need to revise in light of events and also to agree the use of Tele- conference minutes in place of SITREPs (Situation Report) and CRIPs (Common Recognised Information Picture).
3.4 Consensus-Building Exercise A Consensus-Building Exercise, facilitated by the Reviewer, involved interaction among delegates, selection and prioritisation of ‘issues that needed fixed or replaced’. Consensus was established, through interaction of delegates and voting rights for each person, on the ‘Challenges needing attention’. The Reviewer clarified that this was only a starting point for the Winter Flooding Review and could be skewed by the balance of those present.
Ranking ‘Challenge needing attention’ Points Allocated 1 More Staff (retaining same) 28 2 Multi-Agency Structures (Permanent and Funded) 27 Improved Community Resilience (Engagement and 3 22 Independence) 4 Civil Contingency Agency Legislation 18 5= Increase Funding for Flood Risk 15 5= JBA Style Report for Lough Neagh (Review Stat Lough Levels) 15 7= Action on (JBA) Lough Erne Report 12 7= Better IT Systems 12
34 Page 137 Ranking ‘Challenge needing attention’ Points Allocated 9 Appoint Minister for Resilience (NI Executive Ownership) 6 10 Uniform EPG Protocols Across NI 6 Better Communications (Flood Incident, Weather and 11 5 Localised) Reduce Bureaucracy – Clarify boundaries between DCs and 12 4 EPGs 13 Better Flood Line System 3 14 River Bann (Lower) – Deepen and Widen 3 15 Learn from Other (e.g. Scotland) 1 16= Local Government = 1st Responder 0 16= Infrastructure Costs are Not the Deciding Factor 0 16= Reduce to 3 EPGs (ring-fenced funding) 0
35 Page 138 4. METHODOLOGY – ‘HOW THE JOB WAS TACKLED’
4.1 Introduction This Flooding Review was established with the following Objectives, which were an enhancement of the original brief, and agreed with the Minister and her Officials: 1. To engage with the formal DARD/Rivers Agency ‘Regional Review of Winter Flooding (Nov, 2015 – Jan., 2016)’, using its prompt controls of Preparedness, Co-ordination, Response, Communication and Recovery. This will allow the Department to: a. Capture issues in relation to the causes of the widespread flooding experienced from November 2015 to January 2016; b. Conduct a regional debrief into the multi-agency emergency response; c. Consider the current management and operating regimes to control water levels in Lough Neagh and detail the Review arrangements; 2. To investigate correlations between alleged Climate Change, Flood Water Management, Water Control structures and Warning systems, in the context of Risk Assessment; 3. To appraise the impacts of the Flooding across a number of receptors and parties, addressing issues such as Quality of Life/Wellbeing, Stakeholders’ Responses, Inter- Departmental collaboration, Staff and Systems Resilience, Communication Networks; 4. To triangulate Review elements and findings across Policy, Practice (past and present) and future Strategy; and 5. To draw up and present Recommendations to the DARD Minister (or similar) and Rivers Agency.
4.2 High Level Methodology It was agreed that the Flooding Report outcomes would be evidence-based. The following draft methodology was initially agreed in March 2016, and was subject to availability of Stakeholders and to the extent of emerging findings, as well as giving due attention to previous similar reviews.
36 Page 139 Objective Methodology *Sources Barriers Key dates No. All Literature Review of PfG; UN; IPCC; RA; NI Limited Access; Feb – July Policies, Reports and Water; Environment Scaling of 2016 Outcomes Agency; Professional literature to NI journals 1. Manage formal Review Process driven by RA; Securing buy-in 16 March (with others); seek Consensus Building from broad 2016 consensus views through process by Author range of Stakeholders stakeholders 2. Correlate ‘Technical NI Water, Climate NI; Obtaining April – July Literature’ material with NIEA, DRD; EPA, EA; sufficient 2016 expert opinion; set in Professional Bodies: ICE, engagement context of Water CIWEM, RICS; use of and ‘considered Framework Directive; sustainable evidence’ hold structured technologies interviews; collaborate with EA et al 3. Correlate ‘Social Science Key Stakeholder groups Describing the April – July and Governance – UFU, NGO’s, Local Flooding 2016 Literature’ with Expert Authorities, Commerce, impacts in opinion; hold structured Urban Groups; CBI; SIB, social, economic interviews to identify or Government and consolidate social impact Departments; RA Staff environmental of flooding events terms 4. Desktop review of Using summary of Finding August- linkages across: i. Policy, findings to seek an sufficient and October Flood Management enhancement of meaningful 2016 Practice and Future Flooding Knowledge connectivity to Flood Mitigation and and Understanding engage fully and Adaptation equally with Experts 5. Draft Review Report; Review findings; liaison Sufficient time September- identify 6 (min) – 10 with RA, DARD and and full November (max) key Other key Decision appreciation of 2016 recommendations Makers all issues (including Policy, Governance and Economic implications) * Subject to availability
4.3 Detailed approach to information capture and revised Methodology 4.3.1 During the early phases of Literature Review and the initial Stakeholder Session (March 2016), it became evident that the Review was best served by a systematic approach to a number of discrete issues, some of which may be inter-connected, whilst retaining the evidence-based approach. However, this did not dictate that the Review followed the pattern of previous reports. Also at this stage, early findings
37 Page 140 identified the over-arching themes of Resilience, Risk and Resource, and these became a constant in reviewing the discrete issues.
4.3.2 The identification of discrete issues to be reviewed was an interactive process; an open mind to the importance or significance of issues and the potential to develop actions and recommendations allowed flexibility throughout the study. It was also decided that some issues were best served by ‘Commendations’ for satisfactory outcomes, thereby giving due recognition to positive outcomes as well as Recommendations for deferred or future outcomes needed, falling in line with current NI Programme for Government ‘bottom up and top down’ thinking.
4.3.3 Following this alternative approach to Review reporting, the concept of each discrete issue was addressed systematically by identification of ‘Resilient Issue Beams’, being described as “an issue which sits in the balance, depends on positive and/or less helpful inputs, and requires a form of balance in order to secure Resilience for the future”. In addition, each Resilient Issue must be supported by a range of inputs, from Stakeholders, Reports and Literature.
The Resilient Beam Issue approach gained approval from Stakeholders and is represented diagrammatically as follows:
+ ve - ve
Com
A B C 1 2 3 Balance
F
38 Page 141 Resilience Beam Nomenclature:
+ ve Represents a positive or helpful contribution to the Resilient Issue
Identifies the positive element or input which adds/contributes to the A security of this Resilient Issue
Represents a negative or unhelpful contribution to the Resilient Issue - ve
1 Identifies the less satisfactory element or input which reduces/contributes to the insecurity of this Resilient Issue
The Fulcrum of the Resilient Issue beam; it identifies what is the critical
F driver(s) for this Resilient Issue to be kept in balance; e.g. Legislation, Policy, Expectation, International trend etc.
Actions which are required to secure this Resilient Beam Issue in balance, Balance by accounting for the positive and negative influences; these therefore provide Balancing Actions for each Resilient Action, and form the basis for the Review Recommendations.
Com Actions or processes which have already contributed to the security of this Resilient Issue, thereby providing ‘Commendations of good practice’ for the Review.
It should be noted that a Resilience Issue Beam which leans to the ‘+ve side’ is one which is dominated by positive influences, while the reverse is the case for those dominated by negative influences.
4.3.4 Triangulation of information is central to this Methodology, and aligns with the requirement of Objective 4 above. This approach sought to consolidate the
39 Page 142 (differing) views of Stakeholders and collaborate with the views expressed in Literature (Reports, Policies, Journal papers etc.) in order to confirm and affirm the Resilient Issues status; this also avoided bias towards one or another group or stakeholder, and prevented the Author’s views or that of the Client being dominant. Typically, this is represented diagrammatically as follows:
View 1
Resilient Issue
View 2 View
3
4.3.5 This Review sought the views of many Stakeholders and Literature. While most were captured into summaries or notes, this Report only gives a precis of those views, and acknowledges the contributors. These precis statements were normally agreed with each stakeholder at the conclusion of that session.
4.3.6 This congested approach is recorded in a standard ‘Flooding Review Issues Template’, on which each Resilient Issue can be adequately described and articulated in a systematic way. Where this is not possible and when further comment or explanation is needed, the Discussion chapter grasps these additional points. The ‘Flooding Review Response Template’ is shown in outline below:
40 Page 143 FLOODING REVIEW RESPONSE TEMPLATE
Resilient Issue: Status of Issue:
Stakeholders providing Evidence to this Issue (ideally aligning with positive and negative aspects of the Resilient Issues Views given, and in Triangulation Views; [identified by abbreviated title]: Summary of evidence:
+ +
+ +
+ +
Triangulation:
Resilient Issue Beam:
Commentary
Commendations Balancing Actions
41 Page 144 5. IDENTIFICATION OF RESILIENT ISSUES
A review of literature, strategies and previous Flooding Review reports led to an initial scoping of possible Resilient Issues which satisfied the description of a Resilient Issue, see 4.3.3 above.
Subsequent gathering of evidence from a range of Stakeholders allowed a consolidation of 11 resilience issues, categorised into 4 sectors, as follows:
RESILIENT ISSUES
‘Human Interaction’
STAFF COMMUNICATIONS COMMUNITY NETWORKS
‘Science and Engineering’ HYDRAULICS RIVERS and WEATHER DATA INFRASTRUCTURE ‘Governance’
EMERGENCY PLANNING FLOOD ECONOMICS
‘Agriculture and Land’
LAND USE CATCHMENTS FARMERS
42 Page 145 5A. Human Interaction
5.1 RESILIENT STAFF
RESILIENT STAFF Status of Issue: Medium Term (~ 1 year) Stakeholders providing Evidence to this Issue (ideally aligning with positive and negative aspects of the Resilient Issues Views given, and in Triangulation Views): Rivers Agency Head Office Staff [RA HQ] Rivers Agency Regional Staff (Bann and Fermanagh) [RA Reg.] Department for Infrastructure Water Policy [DfI WP] PSNI, NI Fire and Rescue Service; NI Ambulance Service [Blue Lights] Ulster Farmers Union (Upper Bann Group) [UFU U Bann] Ulster Farmers Union (Erne Group) [UFU Erne] Ulster Farmers Union (Aghadowey Group) [UFU L Bann] Regional Community Resilience Group [RCRG] SOLACE representatives (R Wilson and L Hanratty) [Solace] Summary of evidence: Separate and equal challenges for HQ and Regional Staff Regional Staff could repeat marathon (14 week) Flood Alleviation and maintenance duties Regional Staff felt rewarded and recognised by RA HQ Regional Staff had immense respect for RA Chief Executive and HQ Staff Some evidence of Multi-Agency working Timely visits and intervention by Minister Michelle O’Neill MLA (DARD Minister) Strong bond of loyalty and mutual support among Regional Staff Good relationships on the ground with Blue Lights NICS Voluntary Exit Scheme would probably reduce capacity, knowledge and capability to meet regional needs; NICS Voluntary Exit Scheme, and other unfilled posts, caused staff reduction: Omagh (40 down to 33), Fermanagh (36 down to 23), Armagh (49 down to 40) = 23% staff reduction RA HQ Staff were stretched to the limit in carrying out a range of functions – managing, giving strategic guidance, responding to Ministers, District Councils and Departmental Emergency Planning protocols and Press Calls Flood response is a welcome statutory duty for NI Fire and Rescue Service Some RA Equipment was ‘at its limit in capacity and condition’, due to age and usage Hint of ‘limited willingness’ to repeat another Marathon Flood event Confusion about lines of communication from Flood Incident Line alerts – who, when, what follow up? Potential stronger links with Transport NI Operative staff and Winter Weather responses Underlying current of Staff Stress and ‘health at risk’ Frustration that ‘not all immediate tasks could be done’
43 Page 146 The award to Rivers Agency of the Northern Ireland Civil Service, ‘Customer Service Award’ for its work during the winter flooding’, was a positive reflection on all those who supported flood relief Triangulation: View 1
Rivers Agency Staff
Customer and Farming Resilient Staff Community
View 2 View 3 Emergency Preparedness and Policy
Resilient Staff Beam:
- ve + ve COM
A B C D 1 2 3 4 Balance A
F
A Willing and Capable Staff 1 Insufficient and untrained B Staff trained and Staff experienced 2 Staff stress and health risk C Mature Flooding 3 RA Equipment at limit or Response leadership obsolete D Staff are rewarded and 4 RA HQ Staff load not Recognised shared
F: ‘Expectation of sustained flood maintenance and alleviation staff service; strategic and operational capability to lead and deliver professional flooding incident response’ Commentary Staff Resilience is one of those ‘elephants in the room’ of Flood Alleviation as it is assumed that Resources are in place and that ‘it is all about being able to deliver Preparedness, Co-ordination and Response’; however the issue of Staff having to be on-the-ball for 14 weeks of continuous rain and its resulting flooding is only Part 1; Part 2 is about Recovery - take both parts together and the evidence revealed a deep sense of ‘Could do it again, but would we?’. This was echoed by all three viewpoints; nevertheless, the formidable efforts by all RA Staff were notable and were
44 Page 147 complemented by the other Agencies and complimented at the Regional Review De-Brief (March 2016). It is vital to note the considerable stress and human sacrifice made by both HQ and Regional RA staff, frequently working 16+ hour days, missing family events and willingly giving time and expertise. This ‘at risk’ service must be enhanced before the ‘inevitable return of flooding in some scale’ (quote Regional Staff) Commendations (COM): Impressive leadership by David Porter (RA Chief Executive) in fronting-up in the Media and giving a strategic lead, ably supported by RA HQ Staff; Clear political leadership by Minister O’Neill; Painstaking attention to duty and strong work ethic by RA Regional staff; Winning the Northern Ireland Civil Service, ‘Customer Service Award’ Balancing Actions (Balance): Enhance Staff quota for ‘flood event response’ as result of a full audit of staff needs (at all levels); Evaluate the possibilities of ‘Training up DfI staff from Roads to supplement Rivers staff’; Increase collaboration of Merged Emergency Functions across Flooding Response and Extreme Weather Roads protection, within DfI; Inspect condition and quantity of all Flood Response equipment and invest for future events.
45 Page 148 5.2 RESILIENT COMMUNICATIONS
RESILIENT COMMUNICATIONS Status of Issue: Short Term (~ 3 months) Stakeholders providing Evidence to this Issue: Minister Michelle O’Neill MLA Department for Infrastructure and DRD Press Offices [PO] Rivers Agency HQ Staff [RA HQ] Regional Community Resilience Group [RCRG] Meteorological Office [Met Office] Ulster Farmers [UFU] Fintona Community Resilience Group [FCRG] DARD Policy Branch (currently DAERA [DARD] Academic Research (K Cronin) [Academia] Summary of evidence: Good Tag-team approach to Media Flood Messages by Minister O’Neill and D Porter (RA CE) Minister O’Neill provided ‘public confidence’ from media outputs Met Office provided a sustained service though Media and in conjunction with Rivers Agency Weather forecasts were best for immediate (24 hour) messages, but could not be considered to be accurate for any forecast into a further 3-5 days Flooding Incident Line outputs were helpful to RA Regional Staff Flooding Incident Line outputs were confusing to local Councillors Flood warnings were communicated effectively through TV and Radio bulletins, but needed a more systematic approach Local Flood warnings depended on 5 Regional EPCOs and on Local Community Resilience Group (CRG) leaders Use of texting for informal Flood Warnings worked well at local level only, when phone network signal was sufficient An emergence of Twitter Messaging was promising, but not perceived as the ‘ideal solution’, due to restricted phone and broadband signals in rural areas Suspicion existed on ‘detail of media outlets was not always trusted as it did not reflect accuracy of facts’ Any media reference to ‘storm return periods in 1 in x year language’ was not helpful, as this was not used by RA Staff during Flooding period Need to find new way of describing ‘risk and impact of flooding’ Not all Local Authority Councillors were fully aware of the Flood Communications networks and methods Dramatic flooding stories in the media served to educate the public, but also generated a ‘damage limitation’ approach by Government staff in order to prevent any unnecessary or unjustified concerns
46 Page 149 Release of Press Statements could have been faster, but needed agreement by all relevant departments or agencies NI Water confirmed that the multi-agency approach during Flooding was in line with its evolving emergency planning approach Media coverage of flooding was generally accurate All stakeholders agreed that the human element of any flooding emergency was of primary importance Triangulation:
View 1 Government Press Offices
Farming and Regional
Community Resilient Communications
View 2 View 3
Academic Literature and Research
Resilient Communications Beam:
- ve + ve
COM
Balance A B C D E 1 2 3 4 5 A A
F A Strong TV and Radio 1 Flood Warning lost in Messages poor Phone signals B Flood Incident Line was 2 Social media may not accurate reach ‘those at risk’ C Public had confidence in 3 (Media) Flood frequency RA Staff and Minister (1/x yrs.’ - not helpful D Volunteers in CRGs - 4 FIL – messaging system vital for warnings was not always clear E Local knowledge was 5 Who takes ‘first steps’ vital after Flood Warning?
F: ‘Efficient and effective communication to ensure that all at risk are alerted in a timely fashion in suitable language’
47 Page 150 Commentary Resilient Communications need to be maintained across a range of parties, using language that is consistent, heard in a timely fashion and instantly understood. This consistency and effectiveness was achieved in the media by Minister and RA Chief Executive; this was strongly endorsed and confirmed by the Press Office. The roles of local councillors, alongside RA Regional, were not fully understood, thereby occasionally causing confusion. Public and its representatives were not well served by hints of ‘storm long return period’ descriptions, implying that ‘these were infrequent/unusual events and would not be repeated soon’; while it was not RA policy to use ‘Storm Return periods’ to describe the severity of events, the media has traditionally sought this style of description. While much work had been done on refreshing the FIL messages and prompt questions, there was still frustration by the public, and what happened to the messages.
Commendations (COM): Sustained and effective national media messaging by Minister and RA Chief Executive, with suitable balance of general and technical content Impressive voluntary roles played by CRG leaders
Balancing Actions (Balance): Seek greater clarity in messages which deal with ‘Flood Warning’, ‘Severity and frequency of floods’ and the ‘Flooding Incident Line prompts’ Support CRGs though training, effective message networks and equipment as required; Learn more about use of Social Media through research and corroborate with DEFRA, and in line with emerging Departmental ‘social media’ development Develop ‘Flood Warning’ nomenclature to reflect likely impacts and not by a ‘time return period’ e.g. “Flood will cause extensive land flooding up to 19xx levels” Further develop FIL systems and refresh Flood Warning Literature Produce and publish a Flood Information CD for new Councillors to include - Who does What and When, likely environmental and social impacts, role of key agencies.
48 Page 151 5.3 RESILIENT COMMUNITY NETWORKS
RESILIENT COMMUNITY NETWORKS Status of Issue: Short Term (< 1 years) Stakeholders providing Evidence to this Issue: Ulster Farmers Union [UFU] Local Authorities [LA] Emergency Planning Coordinating Officers [EPCOs] Consumer Council [CC] Red Cross [RC] Civil Contingency Group NI [CCG NI] ‘Blue Lights’ [BL] Regional Community Resilience Group [RCRG] Fintona Community Resilience Group [F-RCG] Rivers Agency [RA] Civil Contingencies Group Policy Branch TEO [CCG] SOLACE [S] Community and Political Representatives [P] Summary of evidence: The award to Rivers Agency of the Northern Ireland Civil Service, ‘Customer Service Award’ for its work during the winter flooding’, was a positive reflection on all those who supported flood relief and strove to protect Community Resilience Regional Community Resilience Group (RCRG) was formed in Jan 2013 under the joint chairmanship of RA and Local Government to bring partner organisations together to develop a ‘Community Resilience Delivery Programme’ across the region; membership of RCRG has expanded to include Belfast City Council; the four district council groupings responsible for civil contingencies matters at sub-regional level; Belfast Resilience; PSNI; NIFRS; NI Water; the Met Office; Roads Service; Red Cross, the Consumer Council and NIE Purpose of RCRG is to work on multi-agency basis to facilitate consistent, prioritised and focussed planning and preparation for community response and recovery activities to help pre-identified communities, known as Community Resilience Groups (CRG), deal with emergency incidents Initial engagement with 10 communities, at known flood risk, via RCRG, resulted in work to: i. raise awareness of flood risk issues; ii. establish effective community self-help; iii. develop communication structures; iv. promote provision of local sand-bag storage The 10 community pilot was reviewed by Consumer Council, supported by Red Cross, who found that it was largely successful; notable points identified: i. River alerts have been installed, where appropriate, with registered text alert recipients; ii. 7 out of 10 communities have an ‘agreed community emergency plan’; iii. All 10 communities have designated community lead contacts; iv. flood warden scheme is being trialled; v. 13No. sandbag stores (nearly all) installed; vi. 10No. nominated community leads have registered for Met Office
49 Page 152 Hazard Manager service to improve ability to respond to flooding The CC Review highlighted considerations on how this work can be refined, concluding that ‘as much of the RCRG work was resourced through goodwill and commitment of its members’, it would need to be appropriately resourced going forward if warning and informing, as part of a wider community resilience programme, is to continue CCG (NI) also endorsed that this RCRG work and status of CRGs should continue Benefits of RCRG and the CRGs work was evidenced during the winter flooding winter, when communities were activated and preparedness actions were taken in advance 5 Emergency Planning Groups (EPGs) exist in NI and each has an EPCO who are employees of local councils, though the posts are funded by central Government; scope of the Emergency Planning Groups is currently under review with a view to possibly reconciling them with the 3 PSNI areas; Red Cross is represented on all 5 Groups Local councils are empowered to engage with local communities through ‘General Power of Competence’ (NI Assembly 2014) and in accordance with the Assembly Ministerial Code, using this power to work with others to provide cost-effective services and facilities in new ways to meet the needs of local communities, in flood emergency planning The 5 EPCOs are very committed and capable in roles of advocacy, leadership, guidance and planning; they advised that facilitating the CRG groups is resource intensive and arguably too focussed on flooding, with suggestion that the scope of the groups should be widened to include community planning and should be more risk based; The CRGs are active, highly thought of, but possibly restricted by a sustained community involvement, also reflected in views from the CRGs The development of CRGs is possibly driven by need, with West-based groups being more pro- active e.g. Bereagh, Fintona and Coalisland, and further groups in developmental stage RCRG has identified 20 suitable locations/CRGs in the Floods Directive Flood Risk Management Plans for NI; work is also underway to expand the group’s activities to engage with communities in relation to severe weather, particularly snow and ice related issues - an initial location being considered is the Dromara area Winter flooding has resulted in 15 additional communities being identified that require support in becoming more flood-resilient; giving a total of 45 communities that are now programmed for engagement, if the necessary resources are allocated Funding is a big issue with Community Networks; EPCOs felt that the level of bureaucracy made it very difficult for public to make applications and the systems were disproportionate to the level of funding; procedures to apply for the Homeowner Protection Scheme should have been in place generically as they are unambiguous Levels of support post-emergency quickly dissipate, leaving individuals and communities to fend for themselves Parallels were drawn with a Red Cross research report into the aftermath of flooding in Greater Belfast from 2007 to 2009, entitled ‘Living in Fear of the Rain’; Report suggested: i. medium and long term effects of flooding are similar to impact of crime - both introduce a fear that it will happen again; ii. Level of anxiety and stress, post flooding, on communities is
50 Page 153 palpable with increased attendance at GP surgeries and ill health; iii. communities affected are constantly on alert and continuously looking at weather reports; iv. some individuals are reluctant to leave their homes, even during the summer, for fear of flooding in their absence There were calls for more help, post-flooding, for emotional resilience and well-being - Morpeth (England) is an exemplar CRGs spoke openly about their experiences and commented: i. willingness to help others in the local community, citing strong bonds being developed cross-community in times of need; ii. concern that CRGs rely on the leadership of a very small number of genuine engagers to sustain the service; iii. saw winter snow and flooding as similar painful experiences; iv. frustration at not having all the resources to assist in protecting domestic properties; v. applauded the Home Safety system for flood and water protection; vi. limited access to innovative material usage such as plastic; vii. ‘dirty jobs’ of cleaning up and removing damaged or un-useable sandbags; viii. genuine application of principles of Symbiosis and Community Engagement in which members of the public brought their equipment and skills for the ‘betterment of others’ Most of the local authorities or ‘super councils’ also had Emergency Co-ordination staff who gave local support, and brought valuable help and local knowledge to the 5 ECCOs NIFRS proactively made contact with communities by boat and wading through flood water to ensure that residents were OK; this enabled them to compile a map of the worst affected areas. This proved to be very valuable and was shared with other organisations – very supportive and knowledge of Community Networks The development of Cross Border Emergency Management Group (CBEMG), with purpose of ‘acting as a multi-agency group in emergency management on a cross border basis’; its laudable and welcomed objectives related to: i. acting as a multi-agency emergency planning group for the statutory agencies in NI and RoI; ii. enhancing cross border co-operation and resilience in Emergency Management and Civil Protection; iii. developing joint protocols, training and the sharing of information in line with the parent emergency management framework documents; iv. strengthening and coordinating cross border emergency management for risk assessment, prevention, preparedness, mitigation and response; v. furthering the development of a support network between the respective agencies; vi. ensuring the interoperability of major emergency plans and response arrangements A schematic of the CBEMG is shown in ANNEX 4 Role of local councillors in Community Networks was viewed in a range of ways – ‘Very Helpful and Supportive ’ to ‘No real value other than Publicity for Council and Party’ Potential to develop a ‘Farming Resilience Group’ base on the lines of CRGs, but with industrial support
51 Page 154 Triangulation:
View 1 Community Network Systems
Communities and Resilient Representatives Community Networks
View 2 View 3
Academic Literature and Research
Resilient Community Networks Beam:
- ve + ve
COM 1 2 3 4 5 Balance A B C D E A A
F
1 Limited capacity within RCG’s A Strong EPCO support for
2 Lack of sustained funding Community Networks
for CRGs B Growing roles and functions
3 Insufficient coping for CRGs with advance
systems for those stressed planning
by flooding C RCRG have deep awareness of
4 Farmer Resilience Group human effects of flooding
potential not exploited D CBEMG has sound rationale
5 Inadequate support on and potential
the post-flooding and E Good RCG exemplars, built
Recovery phase round committed leaders
F: ‘Community Resilient Networks support those who need assistance in times of emergency, need or disruption to normal life’
52 Page 155 Commentary “Community Resilience – Resilient Communities”, regardless of the subject of the phrase, is a concept that has been around for a long time as people have congregated into groupings, allegiances, parishes, villages, teams, corporations; frequently there have been common themes or aspirations or goals to drive on the concept. In the case of Winter Flooding and Emergencies, the drive was to basically survive the ravages of severe rainfall and probable flooding in a cold winter; the EPCOs, CRGs and local emergency planning staff, assisted by the multi-discipline RCRG and the Blue Light services, all worked together to ease the pain and retain community well-being. However, the undertone of stress, fear, blocked roads, loss of business, lack of funds etc. continued to cause community distress. The existing systems were stretched but gave adequate support, while additional funding could have been used to minimise even further the anxiety.
Commendations (COM): Rivers Agency won the Northern Ireland Civil Service, ‘Customer Service Award’ for its work during the winter flooding’ – a true reflection on all who were engaged Community Resilience Groups have emerged as an essential part of Emergency Planning
Balancing Actions (Balance): Greater support for the management, materials and sustainability of CRGs to ensure that the CRG network grows and matures as well as being an integral part of rural society; Proper resourcing of emergency and community planning and the introduction of legislation that places a clear requirement on all stakeholders to play their part Consolidation of post to lead and co-ordinate the EPCOP work, administered by Solace More emphasis on post flooding support for communities, especially in stress relief Consolidation of EPCO management and the Cross Border Emergency Management Group.
53 Page 156 5B. Science and Engineering
5.4 RESILIENT HYDRAULICS
RESILIENT HYDRAULICS Status of Issue: (L Neagh and L Erne) Long Term (> 3 years) Stakeholders providing Evidence to this Issue: Loughs Neagh Users Groups [LN – U] UFU Erne Farmers [UFU – E] UFU Upper Bann Farmers [UFU - UB] UFU Lower Bann Farmers [UFU - LB] Kinnego Marina Employers [KM] Lough Neagh (Eel) Fishermen’s Co-operative Society Ltd [LN F] Waterways Ireland [WWI] Civil Engineering Group [CEG] Rivers Agency HQ [RA] Rivers Agency Coleraine Staff [RA - C] Lough Neagh Agencies Summary of evidence: Lough Neagh: Area - 151 sq. miles (392 km2); largest lake in Ireland, the 15th largest freshwater lake in European Union; ranked 31st in ‘ largest lakes of Europe’ L Neagh: catchment area (4,550 km2); 9% in RoI and 91% in NI; 43% of the land area of NI drains to lough; it flows out northwards to Sea via the Lower Bann Lough Neagh catchment drains 43% of land area (NI) + some border areas in RoI Upper Bann Farmers and Marina Industry wanted ‘lowering of Lough Neagh levels’, faster release to Lower Bann and more warning L Neagh water levels are controlled by Rivers Agency via Toome flood gates at head of Lower Bann; further controlled in Lower Bann by two sets of flood gates: Portna (near Kilrea) and Cutts (Coleraine) RA is required to regulate and control water levels, as far as climatic conditions allow, in L Neagh within a365 specified range: 12.45 metres to 12.60 metres (OD); see L Neagh Levels Scheme (1955) L Neagh serves a number of interests across angling, fisheries, boating and sailing, recreation, wastewater disposal, aggregate supply, etc.; is owned by Earl Shaftesbury L Neagh has several designations: Area of Scientific Interest (1965) re-designated ASSI (1992); Ramsar Site - 1973 due to large numbers of wintering wildfowl; 8 Nature Reserves; Special Protection Area (1998) under EC Habitats legislation In extreme rainfall (Storms Clodagh to Frank) L Neagh received circa 1000 m3/sec and released circa 300 m3/sec to Lower Bann – hence flooding onto the floodplain High level inflows to L Neagh, during Winter Flooding, were: R. Ballinderry - 171.9 m3/s;
54 Page 157 R. Blackwater - 196.6 m3/s; R. Maine - 233.0 m3/s; R. Moyola - 119.9 m3/s; R. Sixmilewater - 104.7 m3/s; R. Upper Bann (Moyallan) - 101.9 m3/s; Total Inflow - 928 m3/s High level outflow from L Neagh to R. Lower Bann was: 382 m3/s Movanagher Fish Farm (supplies government owned public angling estates) – typically 600k trout on site; annual running cost - £400k; vulnerable to Lower Lough flooding Eel Fisheries Co-operative (£3m annual turnover, with no central funding) owns the eel fishing rights on L. Neagh, and rights to all “scale” fishing on Lough Brown Eel fishery (season: May – Nov.,) is non-profit making; other parts of the business are profit making; 250 Brown Eel self-employed fishermen on the Lough - 110 are licensed boat owners Silver (older) Eels leave the Lough for the Sargasso Sea to breed during autumn; success relies on a strong, high flow of water in Lower Bann combined with moonless nights, which can be compromised by extreme flooding; Co-operative - legally required by EU Eel Management Plan (2007) to allow 40% of Silver Eels to escape to Sargasso; remaining 60% is caught by Co-op. at its fisheries on the Lower Bann and sold to market, mainly in Europe Scale fish include – trout, pollan, roach, bream and pike. The Co-operative acquired the fishing rights in 1992 Co-op. acknowledges and accepts Rivers Agency responsibilities for monitoring Lough and river levels for all stakeholders – this view is widely accepted; in turn, it is opposed to any proposals to lower water levels on the Lough as this would impact adversely on ability of fishermen to access the Lough from their quays Co-op. has no responsibility to maintain fishermen’s quays; this lies with RA Farmers: L Neagh to be lowered in summer/autumn to enable better detainment of ‘inevitable water from winter rainstorms’ There is no engineering solution which could possibly reduce the level of flooding on Lough Neagh; however an hydraulic model could investigate the possible adjustments of Gates etc. to optimise the Lough and Rivers performance ‘Need for a co-ordinated approach to ownership and management of the Lough’ Lough Erne is in two, upper (38km2) and lower (111km2), joined by the River Erne. Lough has several islands, historical sites, significant wildlife and numerous boating or sailing facilities Upper Lough is a ‘Special Area of Conservation in Northern Ireland’ Lower Lough is larger and popular with sailors and tourists, shores being lined with slipways, jetties, bars and restaurants Water level control in Erne is undertaken by RA in conjunction with ESB in the RoI, as in 1950 agreement, when R. Erne was harnessed for hydroelectric power Water levels in Upper and Lower Lough Erne are managed by control structures at Portora (Enniskillen), Cliff (near Belleek) and Ballyshannon in RoI Rapid draw down of water levels in the Upper Lough Erne is prevented by the restricted capacity of the inter-lough channel section at Portora, Enniskillen Rivers Agency (for Department for Infrastructure), has responsibility for managing the Lough Erne Estate - mainly bed and soil of Upper and Lower Lough Erne and foreshore, which was
55 Page 158 created as a result of previously lowered lough levels Review of Lough Erne Operating Regime” Report (2013) following 2009 floods, considered 4 alternative options for improvements to the management or the physical make-up of the Erne System, including earlier autumn reduction of water levels; none lead to major reductions in the levels, frequency or duration of floods (Erne) Flooding Taskforce (2009 and later) Report concluded: a. not economically or environmentally feasible to increase system capacity to a level where extreme flooding events e.g. Nov. 2009, could be prevented; b. not feasible to significantly reduce existing water levels, given the detrimental impact on natural environment and water based tourism; c. capacity of the inter lough and Belleek Channel channels, are major restricting factor in water discharge from the Erne System “Ongoing concern about hydraulics of Erne Connecting channel (no work done since 1954) due to need to get water away quicker” WWI, responsible for navigation on Erne System, as well as Ireland's other navigable waterways, has fixed assets on Erne e.g. jetties and slipways; during flooding, many were under water or not accessible; inspections being done to assess for structural damage due to flooding or siltation Loss of recreation amenity was not an issue as flooding was in winter months; much different story if it occurred in summer due to many boats registered on L. Erne Upper Erne Catchment flooding was about 6” lower in 2016 than in 2009, with therefore less area flooded, but over a longer period – this prolonged length of time floodwater stayed on land did the damage to grassland. Farmers were prepared to accept flooding but not the length of time floodwater remained on the land Specific concerns expressed about River Sillees causing problem in Boho, as it could not drain into Upper Lough as allegedly its entrance was silted up, causing flooding to roads To the contrary, the Boho area is in a natural floodplain, and it is unfortunate flooding is due to incapacity in the river channel – hence silt does not cause flooding; there is no affordable or justifiable reason to carry out works Transport NI had raised or repaired 5 key roads, 3 of which cross the Lough; 55 roads in total had been closed Extensive areas flooded, estimated from satellite imagery at approx. 3000 acres (Erne) and 5000 acres (Bann/Neagh) RA Lough water levels only online on Mondays to Fridays; insufficient for farmers Farmers believe reasons for flooding were a combination of: i. Climate Change and excessive rainfall; ii. Late or inadequate lowering of water levels at Upper Erne and L Neagh Sluices; iii. Lack of de-silting in river or entry to loughs; iv. Irregular or inefficient maintenance of Rivers De-silting or dredging had significant environmental impacts
56 Page 159 Triangulation:
View 1
Loughs’ Neighbours and Users
RA and WWI Resilient Hydraulics Staff Engineers
View 3 View 2
Academic Literature and Research
Resilient Hydraulics Beam:
COM
D E A B C Balance A A - ve 5 2 3 4 + ve 1
F
1 Floodplains damaged
and slow to recover A Control Gates in Lower Bann operated to 1955 2 Erne Roads flooded and scheme levels not safe B Navigation channels were 3 River maintenance kept open queried by farmers C Current settings suit 4 Portora channel - not fishing/angling in Neagh enough flow to Lower D Erne agreements on flows Erne were honoured 5 Toome Gates - not E Interest groups did not enough flow to Lower want change Bann
F: ‘Expectation that loughs can capture all flood waters or have capacity to act as a reservoir to minimise flooding onto floodplains during extreme events’ Commentary The multi-use and demands on Lough Neagh is surely symbolic of this ‘largest Irish lake’; however this accolade does not mask the tension across industry, environmentalists, water suppliers and
57 Page 160 wastewater dischargers, fishing experts and aqua-life, as well as the very visible need to manage rainfall and river-water flows, both in and out of the Lough. These competing demands are partly enshrined in agreements around the operation of Control Gates at Toome, Portna and The Cutts. Suspicion by those who work in industry or farming in the floodplains, both in the Upper and Lower Bann area, about gate operation, need for dredging and river maintenance was exacerbated during this Winter Flooding period. A ‘Do Nothing’ option cannot work; review of Lough Water levels, against the competing needs of users is a minimum answer. There is no engineering solution which could reduce the level of flooding on Lough Neagh; however a hydraulic model could investigate the possible adjustments of Gates etc. to optimise the Lough and Rivers performance. Therefore the Author, as an Engineer, remained unconvinced of the real benefits of building an hydraulic model of the flows in and out of Lough Neagh, but was ‘damned if he did suggest a model, and damned if he did not’. The ‘flat’ Erne system is idyllic to tourists, but has constant needs to manage the watercourses and loughs to prevent flooding rippling upstream due to any minor change in river performance downstream. The comprehensive JBA Study confirmed this conundrum, but does not prevent or excuse the need to continually monitor water levels, prepare better for winter rains and continue to give attention to river maintenance. There is very limited long-term possibility that major capital funding would be justified for major enlarging and/or re-aligning of the critical Belleek and inter-lough channels, and this was rigorously examined in the ‘Review of Lough Erne Operating Regime Report (JBA Consulting) in December 2013. Environmental designations in both basins are well earned, and should not be compromised, but should be set alongside genuine hydraulic challenges in the ultimate need to provide Resources which enhance ‘quality of life’ for all. Greater understanding of ownership of Lough Neagh and the common issues for Upper and Lower Erne group can only assist in better communications and more active support. Recommendations in Resilient Catchment and Resilient Farmers address this organisational matter. Commendations (COM): Gates on Lough Neagh and along the Lower Bann were operated in accordance with agreements Fishing Industry survived in difficult circumstances Balancing Actions (Balance): Review of Lough Neagh Water Controls, in the form of an investigation: ’An in-depth review of the operating regime for the Neagh/Bann system to ensure that the arrangements and parameters for its management are adequate to meet modern day needs’ In recognition of the integrity of the ‘Review of Lough Erne Operating Regime’ Report (2013), continue to consider small scale actions in the Erne System such as minor changes in Gates’ operation to provide greater pre-winter floods protection and ongoing regular maintenance of rivers and tributaries Consolidation of the status and management of the Lough Neagh Development Trust, to capture the differing interests and retain the environmental designations
58 Page 161 5.5 RESILIENT RIVERS AND INFRASTRUCTURE
RESILIENT RIVERS and INFRASTRUCTURE Status of Issue: Medium Term (< 2 years) Stakeholders providing Evidence to this Issue: UFU Erne Farmers [UFU – E] UFU Upper Bann Farmers [UFU - UB] Upper Bann Councillors Linen Green Ltd and Neptune Group (Parent Company) [LG] UFU Lower Bann Farmers [UFU - LB] Edge Watersports [Recreation] Movanagher Fish Farm Civil Engineering Group [CEG] Rivers Agency [RA] Rivers Agency Regions [RA-R] Waterways Ireland [WWI] UFU Erne Farmers [UFU – E] Summary of evidence: The Erne catchment has the two major Loughs, connected by an inter-lough channel (22km long); the catchment is integral with a complex maze of wide river channels Lough Neagh is fed by over 300km of tributaries including the Rivers Main, Six Mile Water, Upper Bann, Blackwater, Ballinderry and Moyola, and discharges its outflow via the Lower Bann out to the Sea at Coleraine Rivers Agency [RA] has a network of 161 active hydrometric stations to measure water levels; these are normally given on an external website Environmental Considerations are central to the function of RA, requiring environmentally sensitive practices when carrying out work on all rivers; enhancement aims to increase its environmental value by improving the habitat for fish numbers; rivers’ drainage and flood alleviation should not damage river status River Restoration aims to return a watercourse to its pre-disturbed state, but can be hindered by permanent changes in land use or urban development Typical river rehabilitation and enhancement measures include flood banks removed or set back from watercourse, restoration of meanders and natural channel depth/width, addition of gravels within salmonid rivers, native riverside tree planting, creation of berms, backwaters and different channel profiles WWI is the Statutory Navigation Authority for the Lower Bann, the Erne Navigation and the Shannon Erne Navigation; it has a keen interest in flows and levels on navigable channels and reserves the right to approve/reject proposals that impact Farmers are concerned about river water flow and ability to handle heavy rainstorms; they acknowledge the essential function of the floodplains, but argue that river maintenance, de- silting, dredging and cleaning are vital to the river operation
59 Page 162 River or lake dredging can drastically affect large colonies of species, and disrupt biodiversity with long-term consequences Some farmers believe that there is an over-emphasis on the environmental requirements for watercourses at the detriment of ‘releasing water flows’ Numerous examples of ‘alleged flooding’ due to ‘lack of river maintenance or de-silting’; countered by RA Staff Out-of-river or floodplain flooding also resulted in urban damage. e.g. Clady, Strabane, Fintona, Aughnacloy Linen Green Shopping Village, Moygashel experienced heavy flooding, affecting all 31 outlet shopping units, on Sunday 6 December 2015, which ‘was to be its first ever Sunday trading in the lead up to Christmas and a lot of time, energy and money had been invested in getting the Village ready’. Flooding was caused by a blocked grille; while the total cost cannot be calculated accurately, there were building repair and refurbishment costs Urban waste (plastic, timber, gadgets) deposits from flooded rivers onto adjacent land causes farmers considerable time to clear, to avoid equipment and crop damage Regular cleaning or repair of River Grilles was sustained over the Flood period, but clearage of trees, debris and waste in watercourses after the storms was not completed immediately Rural river maintenance is typically ‘once per six years’ on a rolling cycle Recreation businesses and users have differing perspectives on river operation, mainly in Lower Bann: i. Product Development review (2016) of Lower Bann reflects interests of key stakeholders; ii. main issue is management of water levels; iii. in the past stakeholders were not alerted to gate movements; iv. communications have improved greatly and are more sympathetic to river users’ needs; v. misconceptions of how the river levels are managed persists; vi. need for more sophisticated means of communicating gate operation to key stakeholders; vii. operation of gates in summer allows river levels to fall and in autumn, gates opened resulting in higher flow and bank erosion; viii. Build-up of silt in the river - costly to remove £300k flood-induced damage to water-based recreation industry that depends on river usage; typically loss of £3k per month per business Need to recognise economic and recreation value of Lower Bann and balance this with the needs of other river and lough users Significant research indicates that natural and man-made flood protection systems need to work together to protect the environment and let nature manage water flows Reduce flood risk through rewilding; re-creation of flood meadows and making woody or leaky dams, tree planting and improved soil management has reduced river flow and flooding by 1+% in Cumbria Lanes, roads and vehicles damaged by floods, with Transport NI repairing public roads and farmers bearing cost of lane refurbishment, not always to original standard due to expense Road transport disruption was worst in the west – 55 No. roads were closed, which was more than in 2009, but normally same roads were affected Road and land safety is ‘holding on by a thin thread’- cannot be neglected – several ‘accidents
60 Page 163 waiting to happen’, due to vehicles travelling on water inundated roads without any signage Transport NI committed staff, time and knowledge to maintain ‘vehicle and person access’ during storm period ‘Risk to Masonry Arch Bridges due to flooding’ was considered in 2009, but no further surveys or repair programmes were developed £1.25m was spent raising Fermanagh roads after 2009 flooding; flooded again in 2015/16 but not to the same level. i.e. roads were passable with care Trains do not operate when water is above track level; Buses do not access closed roads; Translink has its own weather forecasting, specific to trains (leaf fall etc.) but otherwise rely on being alerted by Rivers Agency - has good communication channel with Rivers Agency- culverts/monitoring of water levels Considerable loss of revenue due to trains/buses not running, especially on Belfast/Dublin route as customers do not return if part journey requires bus; Scarva/Poynzpass had track most badly affected with 12 days of disrupted service - engineering solution exists but the estimated capital cost is circa £14m – not affordable; School transport was badly affected Possible (unconfirmed) damage to adjacent underground services such as Tele-comms, Electricity, Watermains, Sewers due to reflective cracking or subsidence Flooding coincided with ‘loss of power’ due to bad weather, putting further stress on the Emergency systems
Triangulation:
View 1 RA Systems
Farms and Resilient Rivers and Industry Infrastructure
View 2 View 3
Academic Literature
and Research
61 Page 164 Resilient Rivers and Infrastructure Beam:
- ve + ve
COM
1 2 3 4 5 Balance A B C D E A A
F
1 Several villages flooded A River Grilles were cleaned and transport disrupted during storms 2 Road damage gave B Rivers operated naturally, danger to drivers using floodplains 3 1 blocked grille caused C RA manage rivers and flooding at Linen Green lakes efficiently Outlet D Emergency Services 4 Silting caused some (NIFRS) monitored out-of- flooding river flooding 5 Lower Bann Water E Desire to initiate ‘natural sports – business flood management’ setback
F: ‘Rivers exist to convey normal and extreme water flows, and naturally depend on their floodplains in that function; they provide a means and place for several uses and users to be facilitated in a mutually respectful way, in tandem and support of adjacent infrastructure’ Commentary Rivers should and can be allowed to operate in their normal mode of carrying water in their channels or extended floodplains in order to cater for excessive rain water. However when rivers spill water onto land due to all grilles or structures being in full operation, there can be excessive damage; such a dilemma occurred when the Achilles heel of ‘grilles blocked’ caused excessive damage at Linen Green Shopping Centre. This raises a bigger issue of the cause and effect of rivers spilling water; hence the maintenance and operations of rivers, to keep waterways clear, cannot ever be neglected, whether by silting or debris deposits, even though there was no clear evidence that any flooding occurred for these reasons. Also the breakdown of adjacent infrastructure such as roads, bridges and services could be a ‘sleeping giant’. Economic impact of loss of school and public transport infrastructure cannot be ignored. Commendations (COM): Most Grilles were kept open or repaired during extended flooding period Roads were kept passable despite considerable risk to vehicles and people Balancing Actions (Balance): River Maintenance frequency to be considered for performance rather than economic reasons
62 Page 165 Investigate the need for a comprehensive survey on ‘the impact of rivers on adjacent infrastructure and bridge structures’ Rivers are recognised as a central function within a Catchment (See Chapter 5.10), and become integral with a more holistic appraisal and development of each catchment Road and farm access safety, during extreme flooding, must be considered.
63 Page 166
5.6 RESILIENT WEATHER DATA Status of Issue: RESILIENT WEATHER DATA Long Term (> 3 years) Stakeholders providing Evidence to this Issue: Climate NI [CNI] Meteorological Office [Met] Academia [Aca] Rivers Agency [RA] Ulster Farmers Union [UFU] NI Water [NIW] Civil Engineering Group [CEG] Translink [T] Transport NI [TNI] Belfast City Council [BCC] Summary of evidence: Debate on ‘is climate change real and man-induced’ was contentious issue with several contributors, as it was perceived to be directly linked to Weather Data Paris Climate Conference (COP21) in Dec., 2015, for the first time in 20 years of UN negotiations, agreed a legally binding and universal agreement on climate, and to keep global warming below 2oC Debate on the development of Climate Change legislation such as a Bill or Act is ongoing, with strong support for it by a number of professional bodies and member organisations Northern Ireland’s biodiversity is internationally important with 20,000 species found in its terrestrial, freshwater, coastal and marine habitats; NI is one of the most geologically diverse areas of the planet – key factor in understanding its biodiversity Climate change poses risks to NI’s soils, farming, freshwater resources, natural carbon stores, marine ecosystems, wildlife and habitats; more action is called for to build resilience to these risks More evidence is sought to fully understand other climate change risks that are likely to be important for NI’s natural environment, including potential changes in agricultural and forestry productivity and land suitability as well as impacts on freshwater and marine ecosystems Group set up to try and understand risks associated with climate change on an all-Ireland basis; RoI - more information available – National risk register available High proportion of NI land is constrained in its use due to climatic conditions, primarily in the uplands Warming climate allows for a potential expansion of land used for agriculture and forestry; many areas that are currently marginal for cultivation due to climatic limitations could experience an improvement in land capability NI Climate Change Adaptation Programme, based on risk assessments, responds with plan
64 Page 167 which addresses risks identified and is wider than government departments; efficiency of programme/plans will be judged on how it deals with extreme weather events and resilience to flooding or other weather events Met Office provides a Public Weather Service, servicing government and the people; this costs approx. £80m per annum for processes required to provide a forecast; it is part of Department of Business, Innovation and Skills (UK Government); information and data for formulation of statistics, provided via the Public Weather Service, is free; more detailed data has a charge Severe weather warnings are issued via National Severe Weather Warning Service; warnings are by colour (red, amber and green) depending on combination of both the likelihood of the event happening and the impact the event may have Met Office ‘Flood Forecasting Centre’, a joint venture between EA and Met, provides flood risk guidance for England and Wales, based in Exeter; this role is performed by SEPA in Scotland; EA and SEPA are responsible for issuing flood warnings for areas at risk of flooding for rivers and/or the sea in their regions No flood warning capability in NI; Met works with Rivers Agency and provides heavy rain warnings. RA uses HYRAD information and monitors flows on rivers to provide input to blue light organisations Possible merit in having an all-Ireland weather forecasting system; links with Met Eireann in Storm naming was effective Winter Warning short-term forecasts (1-5 days) was accurate and helpful; longer period outlooks suggested ‘wetter than average 3 months’ but risk assessment on impact was difficult Rainfall associated with Storm Frank (late Dec.) was correctly identified as a ‘game changer’, resulting in escalation of co-ordination to Level 1 Government needs a common vocabulary on flood warning – use of colours to emphasis severity; needs to be consistent; examples of how others are communicating flood risk: Insurance Co’s, Red Cross, Joseph Rowntree Foundation Multi-agency engagement was ‘more than adequate’, but all parties are needed and saying the same thing; delay in joint press statements negated some benefit of ‘rapid weather warnings’ Strong leadership from RA in building teams and getting ‘right messages out’ Rivers Agency Flood Maps are based on sound hydrological and weather data; they have been developed to provide a general overview of the flood risk in NI, with main aim to increase awareness among public, local authorities and other organisations, of the likelihood of flooding and to encourage them to take appropriate action to manage risk. They contain a suite of detailed flood hazard maps that have been produced in accordance with the requirements of the EU Floods Directive. These maps have been prepared for areas that have been determined by government to be at significant risk of flooding and are an important step that will lead to the development of flood risk management plans for these areas
65 Page 168 Civil Engineers support the concept of Climate Change, recognise the need for accurate weather data and the analysis of Weather Station rain data to predict long-term storm return periods and seek to use data for both fluvial and surface water flows and design scenarios Translink has its own weather forecasting, externally purchased and specific to trains e.g. leaf fall, but also relies on alert by Rivers Agency, via Met Office A case was made for a RA-Met Office arrangement in which all weather data was held in- government for benefit of all Departments. Triangulation:
View 1 Met Office; Climate NI
RA Staff and Resilient Weather Systems Data
View 2 View 3
Academic Literature and Research
Resilient Weather Data Beam:
COM
1 2 3 4 5 Balance A B C D E
- ve A A + ve
F
1 No All-Ireland Weather A Met Office predictions (1-5 data predictions or analysis days) accurate
2 Expectation for accurate B Met Office predictions (1-3
long-term weather months) helpful
predictions C Strong RA-Met Office
3 No central Resilience communications
Centre D Multi-Agency awareness of
4 Weather data usage not Climate Change risks
maximised E Flood Maps – sound vehicle to
5 CC and Weather Risk needs give application of weather
developed data
F: “Weather data should provide accurate short-term predictions and long-term trends, based on sound analysis and applicable to a range of users”
66 Page 169 Commentary “More than a billion people will be at risk from flooding caused by climate change in just a few decades' time” warned the charity, Christian Aid. It says that huge numbers of people in coastal cities could be exposed to rising seas, flooding, extreme weather and storm surges by 2060.” (Nov 2016). The strong links between Rivers Agency and its host Department and the Met Office augured well for the accurate, timely and succinct weather predictions. The public attuned well to the weather nomenclature, but the issue of Press statements was not always as fluid. There is a community of scientists and engineers who are fully engaging with the climate change debate, how to interpret it and how industry, agriculture and society might responds to it. This report cannot possibly categorise all the arguments, but accepts that there is, at least, a ‘Changing Climate’ and suggests that a better and cleaner environment is a minimum and just reward for climate change mitigation and adaptation practices; therefore there needs to be deeper understanding of the risks, resilience and resource implications. Education, as always, can play a vital part in all aspects of the ‘greenhouse gas - global warming – changing climate – weather – forecasting – analysis – food security etc.’ roles and correlations, by developing understanding, investigating linkages and applying information to a range of users Commendations (COM): Weather service by Met Office was consistent and accurate Flood Maps, provided by Rivers Agency, are helpful to many parties Balancing Actions (Balance): Consider the establishment of a government-owned company which provides weather data and analysis, links with Climate Change Risk Assessment as well as Mitigation and Adaptation measures, and produces reports specific to several sectors e.g. Infrastructure, Health, Agriculture, Sport Establish a NI-based Centre for Resilience, to monitor a range of resilience issues, develop research and inform Decision Makers Educate people about climate change and flooding, including educational programme in schools relating to flooding, probability, forecasting, games etc.
67 Page 170 5C. Governance
5.7 RESILIENT EMERGENCY PLANNING
Status of Issue: RESILIENT EMERGENCY PLANNING Medium Term (< 2 years) Stakeholders providing Evidence to this Issue: UFU [UFU] Local Authorities [LA] Emergency Planning Co-ordinators [EPCOs] Red Cross [RC] ‘Blue Lights’ [BL] Consumer Council [CC] DAERA Corporate Services [DAERA] Regional Community Resilience Group [RCRG] Rivers Agency [RA] Civil Contingency Group Policy Branch TEO [CCG] SOLACE [S] NI Water [NIW] Translink [T] Transport NI [TNI] Summary of evidence: The NI ‘Civil Contingencies Framework’ provides a structure around emergency planning, explained through guides to Emergency Planning, Risk Assessment, Emergency Plan Preparation and Evacuation The Civil Contingencies Group (CCG) co-ordinates the response across the NI Departments and provides an interface with other emergency co-ordination bodies in NI and at UK level The Major Emergency Response Plan (MERP), owned by DARD at the time of Winter Flooding, is a comprehensive suite of guidance, covering Triggers and Activation Procedures, Lead Department Arrangements, NI Central Crisis Management Arrangements, DARD Strategy Group (Gold), Tactical and Operational Responsibilities (Silver and Bronze), Communications Room, Staff Welfare, External Communications, Contacts, Recovery, Stand-down and Training DARD is required to assume lead Department responsibilities in the following circumstances: animal, plant and fish diseases; farm animal welfare; flooding (fluvial and coastal), via Rivers Agency; forest fires on Forest Service owned land and animal feed safety incidents DARD, as Lead Government Department (LGD) facilitated multi-agency co-ordination of the strategic response to the Level 1 flooding emergency (significant). It acted as co-ordinator for overall Government response, providing leadership, resources and policy support to those responding to flooding; this lead role was considered by Top Management Group/Strategy Group and approved by the Permanent Secretary All Core Functions for each ‘Level of Emergency’ were adhered to satisfactorily – see Part A of
68 Page 171 Annex 4 below Strong support and confidence was expressed in the DARD/Rivers Agency LGD Roles and Responsibilities as described in Parts B and C in Annex 4 below The LGD toolkit was identified for review after the Flooding All Response Departments and agencies benefitted from a ‘walk-through exercise’ in Sept 2015 as vital preparation for the emergency Escalation to Level 1 Emergency was satisfactory due to good working relationships between DARD Core, RA, and Local authorities, with conference calls being a valuable asset Effective development of CCG protocols, along with DARD MERP’s and RA experience must be constantly reviewed, especially after a major event DAERA has developed the ‘agricultural commodities contingency plan in an emergency or incident affecting the agriculture commodities sector’ to help ensure the ongoing production, processing and trade of agricultural commodities originating from, or being further processed, in Northern Ireland, through technical and policy advice and stakeholder engagement; it describes roles of relevant bodies and individuals in the event of an emergency or incident, such as severe weather – this back-up plan was not needed SOLACE Northern Ireland, an Irish Branch of the Society of Local Authority Chief Executives and Senior Managers (UK),was well represented by Roger Wilson (Chief Executive, Armagh City, Banbridge and Craigavon) and Liam Hannaway (Chief Executive, Newry Mourne and Down) in their roles in escalation of flooding to Level 1; shared Chair responsibilities of Inter- Region meeting to review Level 1 response SOLACE co-ordinate the work of the 5No. Emergency Planning Co-ordinators, and has recently secured funding from NICS for a ‘Manager for this EPC function’, with uncertainty about its long-term security Each of the 11No. NI ‘new super councils’ had its Emergency Planning staff to supplement the work of the 5No. Regional EPC’s, and this staff resource layer was beneficial during flooding emergency SOLACE was concerned about the need for a mixture of ‘flood warning communication streams’, and saw a greater role for each DC to manage its social media systems SOLACE commended the use of ‘Resilience Direct’ website as a suitable platform or communicating across agencies during emergency SOLACE recommended the retention of regular dialogue between the Councils and RA et al, suggesting a ‘Flood Review Report update to all Council members’ PSNI reported that: i. Flooding had little impact on operations and less than anticipated; ii. Communication at local level with other ‘blue light’ organisations was continuous throughout the flooding events; iii. Able to service all 999 calls that it received over period - expected as crime levels in Fermanagh were low; iv. Was involved in both local and regional conference calls, and both worked well; v. Local Emergency Preparedness Group worked well in Fermanagh area NIAS reported: i. Little flooding impact on its service; ii. but, Some disruption as access to patients was difficult; iii. Involvement in conference calls was good; iv. No stats available on
69 Page 172 ‘number of vulnerable clients accessing the service’; v. Rural communities appear to be more resilient though this can be problematic as they tend not to seek help until it becomes an emergency NIFRS reported: i. it has statutory responsibility to rescue people from floods; ii. It has 216 staff trained in flood and water rescue; iii. It is normally first responders for flooding, partly as it takes time for RA staff to attend, if it is out of hours; iv. It took part in all conference calls; v. Received 103 emergency calls and completed 80 rescues, mostly in the West, at a cost of circa £30k; vi. 12 rescues occurred in Strabane; vii. Fermanagh Council established a helpline - NIFRS and Red Cross assisted people in need by delivering prescriptions, provisions and assisting medical teams visiting sick; viii. Service proactively made contact with communities by boat and wading through flood water to ensure that residents were OK - this enabled them to compile a map of the worst affected areas, proved to be valuable and shared with other organisations; ix. Infrastructure/roads problems in Fermanagh can make access difficult; ‘this needs to be addressed’ RA and the RCRG were highly complimented during and after flooding incidents Some concerns, or compliments, were expressed by several parties about: i. Flooding incident Line - capacity issues; ii. Emergency planning procedures - much improved; iii. EPCOs are vital but need to be properly resourced + long term funding secured; iv. Most, but not all, local authorities adhere to civil contingences framework; v. Need to address Emergency Planning through a Floods Bill and/or Civil Contingencies Act NI; vi. More lessons to be learned from ‘Emergency response and recovery‘ documents in UK Cabinet Office and Scottish Parliament European Floods Directive (2007/60/EC) is about ‘protecting the community from the risk and impact of flooding’; it’s a new approach to managing flood risk on a catchment wide scale Incident management lessons - learned from NI Water; will be facilitated in new DfI Triangulation:
View 1 Emergency Planning Systems
Communities and Service Providers Resilient Emergency Planning
View 3 View 2
Academia and Literature
70 Page 173 Resilient Emergency Planning Beam:
- ve + ve
COM
1 2 3 4 5 Balance A B C D E
A A
F 1 Farmers or UFU not formally A Robust Civil Contingency involved Framework
2 Lack of total joined up B Multi-agency working at all levels
approach C RA Staff and Systems were fit-
3 Lack of certainty for Regional for-purpose
Co-ordination D Move to DfI gives more linking
4 Some uncertainty about EP opportunities
Roles E NIFRS gave sustained and hands-
5 No evidence of EP being on help
disseminated to other areas
F: ‘Emergency Planning serves to minimise risk and increase resilience of systems and processes by providing guidance during an emergency, ensuring that people and resources are managed in a safe and secure manner’. Commentary Emergency Planning can be bogged down in protocols that are either too complicated or are not relevant to the specific subject; these NI Government systems have been developed on the joint approach of being systems-driven and borne out of previous experience. This is mainly why they worked well in the hands of willing and capable staff. The robustness of the systems or the staff willingness cannot be taken for granted; hence the need to seek continuous improvement. The NIFRS optimises this desire to find new ways by its pro-active review of the on-the-ground operations and its quest for more functional processes. The elephants in the room of this ‘very safe’ Resilient issue are the possibility of immense staff reductions and the complacency to ‘not embed lessons learned’ well before there could be another emergency. Commendations (COM): Multi-agency working was evident and successful RA Staff led through RCRG, Conference Calls and co-ordination of agencies Balancing Actions (Balance): Civil contingency systems and protocols to be reviewed in light of flooding emergency, UK Flooding legislation and advent of new Department for Infrastructure Funding secured for long-term appointment of a ‘Regional Co-ordination of the work of the EPCOs’, through SOLACE or others Appraise the impact of Staff reduction on systems Ensure that Emergency Planning and delivery remain central in the full integration of the Floods Directive and possible Floods Bill
71 Page 174 5.8 RESILIENT FLOOD ECONOMICS
RESILIENT FLOOD ECONOMICS Status of Issue: Medium Term (< 2 years) Stakeholders providing Evidence to this Issue: All of the Stakeholders, who contributed to the other Resilient Sections, gave some indication of economic matters related to the ‘economic impact of flooding’; in addition, there was some correspondence received to supplement the Stakeholder content. Summary of evidence: Evidence for this Resilient Flood Economics section was drawn from all the other ten Resilient Themes, so is not duplicated again. In summary, the NI Assembly secured and spent £1.3m for flooding on preventative measures and preparing for future incidents. The three departments (DRD, DARD and DoE) worked closely together.
The major emerging Resilient Flood Economics themes or issues which were affected by Winter Flooding are:
A. Farms and Buildings The Scheme of Emergency Financial Assistance (SEFA) to District Councils to cover Flooding in Small Businesses and Non Domestic Properties was issued on April 2016 SEFA indicated that the Department would reimburse councils for expenditure resulting from immediate action after the emergency situation (7 Nov., 2015 to 31 Jan 2016). Eligible expenditure included: i. payments to individual small businesses, recreational and community facilities and places of worship ii. payments to individual farm businesses in connection with farm land only; iii direct costs incurred by councils; iv. services contracted out (indirect costs) SEFA farm payments were typically up to £1000; this was conditional on all of these being met: i. only farmland which is actively farmed and part of the 2016 Single Application Form (SAF); ii. farmland within the specified areas in townlands around south and south east Lough Neagh and Upper Lough Erne; iii. those farmlands within the specified townlands and have been underwater for at least 14 days within the Nov 2015 – Jan 2016 period; iv. farm businesses where the area of flooding was 10% or more of the total land actively farmed The SEFA £1000 was an offer of practical assistance to farm businesses, small businesses, recreational and community facilities and places of worship that have suffered severe inconvenience; it is not a compensation payment The SEFA payment was considered to be unfair in that all eligible farms, regardless of size, received the same payment – this was therefore disproportionate to the need Factual and anecdotal evidence of financial stress experienced by farmers who had not planned or could not deal with the exceptional costs associated with retaining a farm which normally depends on the grass or silage yield from its fields; ANNEX 1 is an example of this situation There has been allegedly ‘very slow administration’ of the farm payments
72 Page 175 Fermanagh and Omagh District Council has initiated an ‘Economic Impact of Flooding Study’, using Fermanagh as its pilot area; this work will address the losses in physical, infrastructural, financial and, possibly, even in human capital, as a result of reductions in economic activity and losses of capital in a wide variety of categories and sectors. This detailed proposal has not yet been financed by the Executive
B. Domestic Support CRGs are not properly funded; the allocation of a standard resource kit, to include basic tools, Sandbags, protective clothing, signage etc. in a suitable weatherproof shed or unit is needed The pilot Homeowner Flood Protection Grant Scheme (NI) was awarded £1m by the Executive in early 2016; it is a government Scheme, designed to encourage owners of residential properties that have flooded before and/or are located within known flood-prone areas, to modify their properties to make them more resistant to flooding, and is specifically aimed at residential properties that have had internal flooding in the past Rivers Agency has developed a demonstration Home Protection Scheme The Home Owner Flood Protection Grant, if approved, covers 90% of costs, up to £10k (max), of the total survey and estimated installation; a successful homeowner is required to make a 10% contribution of the survey and estimated installation costs, and any additional cost above £10k and this involves an initial ‘up-front’ payment of £50 towards the cost of the specialist survey
C. Insurance Flood Re helps people who live in flood risk areas to get affordable home insurance and was launched on 4 April 2016; it is not a home insurer itself, but works with existing insurance companies to helps them offer more affordable flood insurance to those in areas at risk of flooding; only people who live in flood risk areas will benefit from Flood Re, and even then it will depend on how much they pay for the flooding part of their home insurance Flood Re only applies to domestic property (urban or rural) built after 2009; it would not apply to farm buildings or other commercial property. It has not yet made a notable impact in N Ireland Farmers cannot normally obtain insurance cover for their land. D. Commercial Buildings Loss of income and earnings, insurance cost as well repair and refurbishment from flooding at Linen Green shopping has not yet been established, but is considered to be circa £15m loss Factual and anecdotal evidence of ‘considerable loss of income’ by small business enterprises and retail outlets in rural villages and towns due to ‘effects of winter Flooding e.g. One Retail Outlet had its Christmas income reduced by 40% due to loss of footfall and/or blocked or water-logged roads
73 Page 176 E. Infrastructure £1.25m was spent raising Fermanagh roads after 2009 flooding; flooded again in 2015/16 but not to the same level. i.e. roads were passable with care, but some ‘raised roads’ were not effective in preventing water from submerging roads, so further expenditure will be required Trains do not operate when water is above track level; Buses do not access closed roads hence, considerable loss of revenue due to trains/buses not running, especially on Belfast/Dublin - engineering solution exists but the estimated capital cost is circa £14m – not affordable School transport was badly affected; Costs cannot yet be estimated Repair of (unconfirmed) damage to adjacent underground services such as Tele-comms, Electricity, Water mains, Sewers due to reflective cracking or subsidence, need to be costed Masonry Arch Bridge damage or vulnerability not known, and could be expensive to repair or replace Triangulation:
View 1 Government Funding Systems
Business and Resilient Flood Industry Economics
View 3 View 2
Literature and Reports
Resilient Flood Economics Beam:
- ve + ve
COM
A B
Balance
2 3 4 1
F
74 Page 177
1 Lack of funds for several A Timely NIA support of aspects: £1.3m for flood prevention CRGs, farmland and support insurance, bridge and B Homeowner Flood road infrastructure etc. Protection Grant Scheme 2 Full costing of flooding and Demonstration Kit impact not known
3 Cost-benefit analysis of
flood prevention
unknown
4 SEFA Award scheme
was complex
F: ‘Flood economics allows a full explanation of the implications of flood damage and alleviation, accounting for an integrated approach across all key stakeholders’
Commentary Costing of the impact of flooding is clearly the domain of several users – not just construction replacement costs, but loss of earnings, reduction in trade, negative health impacts, and effects of external issues such as tourism and industry, never mind education and recreation. Flood Economics cannot be taken in isolation as one aspect, but must include a Whole Life Costing to assist in decision making and give a full appreciation of capex and opex. The total bill for a ‘full return to the status before flooding’ in not yet known and does not have a clear set of metrics through which to measure it in a multi-discipline environment. Commendations (COM): Homeowner Flood Protection Grant Scheme Balancing Actions (Balance): Development of a model contract for ‘A Study on the Economic Impact of Flooding’ to include a broad range of criteria, and allow this model contact or programme to be applied to other areas Develop a future ‘Scheme of Emergency Financial Assistance’ which operates on the principle of proportionality’ with awards relating to farm or business size, and not applying a flat rate for all applicants Realistic costing and methodology to develop sustained solutions, including use of Natural Resource Management, to minimise flooding risk Infrastructure engineered solution list of key projects drawn up with full costing attached Support for Education, Research and Development in areas of ‘potential increased knowledge and application’ e.g. costing models, re-wilding, infrastructure replacement Cost Benefit Analysis
75 Page 178 5D. Agriculture and Land
5.9 RESILIENT LAND USE
Status of Issue: RESILIENT LAND USE Long Term (> 3 years) Stakeholders providing Evidence to this Issue: Ulster Farmers Union [UFU] UFU Erne Farmers [UFU - F] UFU Upper Bann Farmers [UFU - UB] UFU Lower Bann Farmers [UFU - LB] Council for Nature Conservation and the Countryside [CNCC] CAFRE Development Service [CAFRE] Civil Engineering Group [CEG] Northern Ireland Environment Agency [NIEA] Sustainable Land Management – Dr J Gilliland [JG] Summary of evidence: ‘Going for Growth’ is a key NI Executive strategic action plan for the agri-food sector (£4b sales annually; 10% private sector employment) ‘Delivering Our Future, Valuing Our Soils: A Sustainable Agricultural Land Management Strategy for Northern Ireland’ – critical evaluation of future Land Use Management of agricultural land needs addressed, as i. grass utilisation is significantly below optimal levels; ii. < 10% of farmland has current soil analysis; iii. 64% of our soils are not at optimum pH; iv. circa 30% of agricultural land is let in short-term Conacre, which denies tenants security and impedes long term planning Seek greater linkages and synergies in activities of flooding alleviation (RA) and snow clearance (TNI) CAFRE Development Advisers (40No.) and Veterinary Services support farms - good but limited Scheme for Emergency Financial Assistance (SEFA) for small businesses and non-domestic properties - welcome and limited; best spent (£1k per farm) on large scale flood alleviation; payment was not proportionate to land area. Risk of losing SFP CAFRE Survey revealed ryegrass death, weed ingress; extensive reseeding was required on farms substantially affected by the extreme flooding event, which significantly reduced the area available for grazing and silage production during the spring and summer months, in some instances necessitating destocking (cattle) - resulting in the prospect of long term negative impacts on farm business performance Farm Debris/Urban Waste deposition - stones, sticks, bottles, reeds, roots, timber, plastic, glass; clearance vital for fields to be used for grass and silage; possible damage to equipment and silage contamination Lough Neagh water levels were initially low prior to the Storms, but this did not prevent
76 Page 179 sustained flooding Specialist horticultural land suffered - reduced crops and lack of key nutrients Designated drains on the Upper Bann need to be regularly maintained; farmers speculated that ‘environmental interests were preventing the drains from being cleared’ EU Solidarity Fund possible funding for farmers. Brexit development may prevent UFU continues to engage with farmers, research, lobbying politicians Food Security is being compromised by poor-yielding land in the floodplain; evidence of small pockets of ‘alternative crop ‘usage Farmers were generally stoical about flooding; see 5.11 ‘Resilient Farmers’ CAFRE supports the Agri-Food sector through industry training, knowledge and technology transfer, benchmarking and business development planning Dredging exemplars from England raise expectations for Erne, and Bann catchments Flood-induced reduction in wildlife and biodiversity is a concern Good response and impact by ‘blue lights’, noting sustained work by NIFRS Lanes, roads and vehicles damaged by floods, but not perceived as a land matter Land must be seen as a food provider, protector of habitats, place for recreation Agriculture seen as both contributor to and mitigation solution to ‘climate change’ Road transport disruption was worst in the west - 55 Roads were closed, which was more than 2009 but many of same roads were impacted again, therefore were vulnerable Road and land safety is ‘holding on by a thin thread’- cannot be neglected £1.25m was spent raising Fermanagh roads after 2009 flooding; flooded again in 2015/16 but not to the same level. i.e. roads were passable with care Triangulation:
View 1 Environmentalists and Engineers
Farmers and UFU Resilient Land Use
View 3 View 2
Academic Literature and Research
77 Page 180 Resilient Land Use Beam:
- ve + ve
COM C D E A B Balance A A 5 2 3 4 1
F
1 Land flood-damaged A Sound Farm Advising and slow to recover system in place
2 Roads and transport B Sustainable Agri-Land
hubs not safe Management Strategy
3 Urban Waste carry over C Land Management is ‘a
after flooding way of life’ and essential
4 Inadequate research on D A few examples of
flood-stressed land alternative crop usage
5 Wildlife and habitats E UFU lobbying for farmland
damaged support and solutions
F: ‘Expectation of well-drained land, rivers and loughs operating within their floodplains and land capable of providing a living for the agriculture industry’ Commentary Land Use is seen as the domain of the farming community, but it would do well to seek and obtain extensive help through Research, from the new DAERA Report on ‘Sustainable Agricultural Land Management’ and in conjunction with the Business Development sector. Farmers are sometimes unsure or unconvinced about the benefits and planning for engaging in alternative activities such as new crops, forestation or diversification into horticulture; this is surely an option for some farmers. Undoubtedly, some farmland has suffered frequently from water inundation, resulting in stress to both land and farmer – these wider issues are dealt with in Resilient Catchments and Resilient Farmers. Things never stand still - there is a new paradigm in the (community) planning sphere and in the agriculture industry. The sector, led and advised by UFU, CAFRE, AFBI and others needs to engage fully and contribute as the key stakeholders. Commendations (COM): New ‘Delivering Our Future, Valuing Our Soils: A Sustainable Agricultural Land Management Strategy for Northern Ireland’ Farming and farmers retain their commitment to the land, down the generations Balancing Actions (Balance): AFBI develop its applied research and investigation on ‘Impact of Flooding on farm and horticulture businesses’, through DAERA Full soil analysis is carried out to develop greater understanding of Catchment performance
78 Page 181 (see 5.10 Resilient Catchments’ and Annex 3) Community Planning and Land Use Planning are seen as collaborative to prevent any further floodplain development. Farmers and UFU must be seen as the key stakeholders Incentives and schemes are developed at Departmental level to support use of alternative crops, re-forestation and horticultural development Niche land use for unusual or historic buildings such as those with ‘Listed status’ need to be re-considered, to ensure legacy and heritage are preserved and not compartmentalised Farm Insurance to be considered by the wider industry
79 Page 182 5.10 RESILIENT CATCHMENTS
Status of Issue: RESILIENT CATCHMENTS Long Term (> 3 years) Stakeholders providing Evidence to this Issue: Ulster Farmers Union [UFU] Edge Watersports [Recreation] Civil Engineering Group [CEG] DFI Water Policy [DfI W] Council for Nature Conservation and the Countryside [CNCC] N Ireland Fresh Water Taskforce [FWT] Waterways Ireland [WWI] Ulster University Academics [A] NI Environment Agency [NIEA] CAFRE’s Development Service[CAFRE] Climate NI and Institution of Civil Engineers [CNI and ICE] EA, SEPA and Natural Resources Wales Summary of evidence: Flooding alleviation has been normally provided with (hard) engineering solutions Off-line storage may prevent flash floods impacts and protect stream/ loughs/land Sustainable Drainage systems are developing a track record, but not all clients readily accept the ‘whole life costing’ Rivers Agency Flood Maps play key role in catchment planning Planning permission should not be given to any inappropriate floodplain developments Environmentalists and engineers need to have an awareness of flooding potential and post- flooding expectations Improved description of flood frequency is needed by all users, avoiding a ‘1 in x year storm’ nomenclature; probability theory can help, but education also has a role Risk of flooding is linked to the resilience of the catchment, and this needs to be better understood, ideally using mathematical modelling and terminology Modelling of catchments, ideally including a lough or lake, is needed The European Water Framework Directive, as a legal requirement and sister directive to the ‘Floods Directive’, provides a framework for river basin modelling, and has been a significant driver in integration of water related standards Catchment development is at the heart of the Sustainable Water - A Long-Term Water Strategy for Northern Ireland (2015-2040)– see Sections 2B, 2C, 2E Examine Mitigation phase before Adaptation in River/Lough re-engineering; Key measures of success in protecting users from land flooding include Integrated Catchment approach, inclusion of Climate Change trends and impact, expected levels of protection, value of future proofing of Land Use Planning 3 types of water management in NI: a. Water Quantity b. Water Quality c. Water as a
80 Page 183 Resource (NI Water, Industry, Agriculture, Leisure); co-ordinate these into single appraisal + multi-stakeholder usage to avoid single solution approach: Integrated Catchment Plans using Natural Flood Management (NFM) techniques and covering Habitats, Water Quality etc. and reference CBA, storage options, Floods Directive, Reservoir Act, Urban Flooding, use of soft engineering solutions such as SuDS Blue Green Cities approach by RA, seeks to use natural flood management as solution in ‘1st cycle Flood Risk Management Plan’; managed in DfI Water and Drainage Policy as part of new departmental structure (2016) Ecological status of catchments in decline; biodiversity declines will lead to subsequent declines in ecosystem functioning and ecosystem stability Significant research indicates that natural and man-made flood protection systems need to work together to protect the environment and let nature manage water flows NI Water Sustainable Catchment Management Plan (SCaMP), has objective to improve the quality and reliability of the raw water received at NI Water’s raw water abstraction points through sustainable catchment based solutions that focus on protecting the natural environment through achieving favourable conditions and habitat improvement ‘Reduce flood risk through rewilding’, such as recreation of flood meadows and making woody or leaky dams, tree planting and improved soil management has reduced river flow and flooding by 1+% in Cumbria Planting trees and woods on farms, often referred to as re-wilding, can protect water and manage water quality/quantity Water Recreation has a key part to play in any catchment to meet social needs, provide employment and develop water-based skills on a prestigious river. ‘Green light to 1000km of greenways’ Infrastructure Minister Chris Hazzard (Nov ‘16); paths, for use by walkers, runners and cyclists, to be traffic free and use disused railways, riverside paths, abandoned canal towpaths or flood embankments, reinventing them for use by future generations State of the Environment (NI) Report (2016) clarifies the need for greater integration and measurement of Catchment Uses Catchment Development - useful tool, HARMONISE (A Holistic Approach to Resilience and Systematic Actions to Make Large Scale Built Infrastructure Secure), a project funded from EU’s Seventh Framework Programme for research, technological development: www.harmonise.eu
81 Page 184 Triangulation:
View 1 Environmentalists
Engineers and Resilient Water Policy Catchments
View 2 View 3
Academic Literature and Research
Resilient Catchment Beam:
- ve + ve COM D E B C A A A Balance 5 3 4 1 2
F
1 Flood protection – A Engineers desire to adopt costly on cash and hard and soft flood nature defence solutions 2 Biodiversity and ecology B SuDs can mitigate flash in decline flood impacts 3 Recreation can damage C Blue Green Cities catchments
4 Upland catchment D Food security depend on
impact unknown catchment management
5 Fluvial and surface E SCaMP: small and effective
flooding confused plus ‘leaky dams’
F: ‘Catchments are treated as a means and place for several uses and users to be accommodated in a mutually respectful way; sustainable development as a driver allowing economic, environmental and social interests to exist in balance’.
82 Page 185 Commentary Each catchment has its unique features, often described by its topography and landscape, with its main river being the central spine with several functions, none less than that it receives rainfall and surface runoff water in variable and unpredicted intensities. Resilient catchments are also the provider and receptor of many species, some of which are in danger of becoming extinct. In the midst of these dilemma, is the desire to protect humanity, and this has frequently been achieved by the construction of hard and necessary structures to protect properties and land against flooding. There is an increased awareness and appreciation, between the Engineering and Scientific groupings, of the benefit of a mixture of soft (natural) and hard (man-made) flood alleviation solutions, and this will reduce risk of breakdown of systems in the catchment. This integrated approach can extend to greenways as well as the evaluation of the impact and role of separate elements and users of a catchment; the quest is to mitigate flooding impacts in harmony with nature, while pursuing suitable development of each catchment. Broader integrative thinking and Resources will be needed. Commendations (COM): Operation and positive value of RA Flood Maps Small scale catchment SCaMP working for NI Water Alignment of thinking across Engineering and Environmental experts on need for ‘Integrated Catchment Planning’ Balancing Actions (Balance): Commission an Integrated Catchment Wide Model (pilot) – see ANNEX 3 Promote Natural Flood Management techniques as an option in all flood alleviation schemes Review work of CNCC and FWT with view to linking and remedying the role of Catchment Planning as a possible contributor to ecosystem decline Develop rational messaging on the ‘communication of severe storms’ to the public Review or develop tools to describe natural flood management, alongside engineering structures, in economic and environmental terms.
83 Page 186 5.11 RESILIENT FARMERS
RESILIENT FARMERS Status of Issue: Medium Term (1-2 years) Stakeholders providing Evidence to this Issue: Ulster Farmers Union [UFU] UFU Erne Farmers [UFU - F] UFU Upper Bann Farmers [UFU - UB] UFU Lower Bann Farmers [UFU - LB] NI Ambulance Service [NIAS] NI Fire and Rescue Service [NIFRS] Police Service NI [PSNI] Rural Support (NI) [RS] DARD (CAFRE’s Development Advisers and Veterinary Service) Summary of evidence: Farmers have immense pride and generational responsibility in their farms Farmers were tolerant of flooding but the prolonged winter flooding period was a severe test Risk to life; fear of fatalities or death if similar flooding happens again Farmers used tractors and 4-by-4 vehicles to help neighbours, take children to school and generally assist NIFRS used boats, waders and equipment to assist domestic householders and farmers Feelings of community isolated, and some lack of confidence in Authorities Councils were prepared and Rivers Agency provided sandbags, pumps and staff Family Stress included children, especially relating to school attendance; also elderly with carers not able to access households for 5 weeks Farmers’ concern over insurance issues Financial stress due to loss of crops and silage, knock-on effect for next year’s fodder, cattle not able to graze after winter flooding in Spring – need to purchase feed, silage and rent grazing land Harnessing the capacity of the affected community as a resource Importance of local knowledge in assisting community resilience Farmers need to develop even greater risk awareness and an acceptance of risk Promotion of adaptive capacity through ‘Property Level Protection’ Flood insurance needed as a resilience tool Tension between farmers from different catchments over ’levels of help’ Farmers wanted to find sources of help and be able to help, but felt dis-engaged Few farmers favoured diversification of land use, mainly through future uncertainty or lack of knowledge of flood-resistant crops CAFRE Development Advisers (40No.) and Veterinary Services support farms - good but limited; Scheme for Emergency Financial Assistance (SEFA) for small businesses and non-domestic
84 Page 187 properties - welcome and limited; best spent (£1k per farm) on large scale flood alleviation; payment was not proportionate to land area; risk of losing SFP; and challenge to manage applicants expectations Confusion on who can apply for SEFA grant brought more uncertainty What happens after Brexit? UFU continues to engage with farmers, research, lobbying politicians Farmers were generally stoical about flooding Financial stress was taking its toll on farmers, but few were willing to give details; Case Study 1 (Annex 1) gave real-time data on costs and the impact; Case Study 2 (Annex 2) indicated the impact of flooded land on people and communities Some farmers were annoyed with Minister stating that ‘for natural floodplains there was not always an engineering solution and people may have to live with flooding’ Few farmers had availed of the services of CAFRE for training and up-skilling Dredging examples in England have raised expectations for Erne, and Bann catchments; Farmers concerned for Flood-induced reduction in wildlife Good liaison with ‘blue lights’; effective daily work by NIFRS Farm Health and Safety came under greater focus during flooding due to flooded properties, land and road access Triangulation:
View 1 Regulators
Farmers Resilient Farmers
View 2 View 3
Academic Literature and Research
85 Page 188 Resilient Farmers Beam:
- ve + ve
COM D E A B C A Balance A 5 2 3 4 1
F A Sound Advice from Rural
Support
1 Farmers stressed B CAFRE support if
2 Limited financial requested
support C Land Management is ‘a
3 Doubt over Brexit way of life’ and essential
Impact D Pockets of innovative or
4 Flooding Impact severe alternative farming
5 Generational concerns E UFU lobbies and supports farmers
F: ‘Farming is seen as essential to employment, food yield and society, while farmers have job security and can retain family heritage and tradition’ Commentary Farming and its farmers are a way of life, embedded in generations, wedded to the land and feeling ‘more stress than ever’, brought on by Winter Flooding in a time of uncertainty, poor prices and the uncertain future after Brexit. Help is available through UFU and Rural Support, while the emergency services provide timely help during flooding. However, there is no easy way to overcome the stress of financial loss, family pressures and the ‘almost inevitability of more storms to come’. There needs to be a greater understanding of risk so that the resilience of the farming families can be improved with appropriate resources to include financial aid, guidance, support, full appreciation of challenges and (eventually) greater confidence in the Flood Risk Management systems and operators. Commendations (COM): Valuable support for Farmers by UFU and Rural Support Northern Ireland Farmers retain their commitment to the land, down the generations and to their local communities, as well as providing vital knowledge and information Balancing Actions (Balance): Establish Pilot Farming Resilience Group through Industry leadership – see ANNEX 5 Systems remain vigilant about the well-being of farmers and their families Incentivise farmers to investigate land use diversification, alternative crops, re-forestation and horticultural development Farmers are upskilled on key farm-related activities Farm and Farmers’ Safety retains necessary guidance and public information support, especially for times of emergency
86 Page 189 6. COMMENTARY ON RESILIENT ISSUES
The content of each of the Resilient Issue sections (Chapter 5.1 – 5.11) is self-explanatory. Each draws on a number of key stakeholder engagements, along with correspondence and literature.
6.1 Benefit of Resilient Issues approach The analysis of these ‘presentations or books of evidence’ involved a number of processes by the Reviewer. In summary, these were: i. Developing a precis of each Stakeholder meeting, with the assistance, in most cases, of Rivers Agency administration; ii. Categorising each evidence statement into one or more of the ‘Resilience Issues’ iii. Obtaining contra or alternative views to earlier Stakeholders, in order to acquire a broad and balanced input to each Issue section; iv. Summarising the content of each Stakeholder Meeting record into key evidence; v. Triangulating these views with Academic Literature and/or Government Reports and Strategies; vi. Corralling this ranging body of evidence into significant elements on which the Resilient Issue depends, either positively or negatively; vii. Selecting actions which could lead to a more balanced situation for that Resilient Issue by balancing its Resilient Beam; therefore referring to these as ‘Balancing Actions’; and viii. Identifying ‘items of good practice’ and noting these as Commendations.
These processes brought consistency of approach and served to categorise the breadth of issues created by Winter Flooding. In turn, the 11 issues were listed under 4 Headings of: Human Interaction, Science & Engineering, Governance and Agriculture & Land. The 4 headline categories have assisted in addressing Winter Flooding across the aspects of Society, Science, Legislation and Natural Environment, thereby addressing the initial international context of Sustainable Development.
87 Page 190 This bottom-up approach has assisted in reviewing the Winter Flooding impacts from a range of perspectives and allocating responsibilities in a joined-up fashion, primarily by attaching actions/recommendations and challenging the Department for Infrastructure to respond, alongside other Departments as appropriate.
6.2 Resilience – Risk - Resource (RRR) Nexus This RRR Nexus is demonstrated in the following Figures:
RESILIENCE
RISK Figure 6.1: Risk v. Resilience Linear Relationship
R:R:R Nexus
Resilience Resource Resilience Risk
Resources Risk
Figure 6.2: Resilience, Risk & Resource in Balance
88 Page 191 Resource Depletion
Resource
Resilience Resilience
Risk
Risk Resources
Figure 6.3: Resource Depletion leading to Risk Increase and Resilience Reduction
Resource Enhancement Resilience
Risk
Resources Resource Resilience
Risk
Figure 6.4: Resource Enhancement leading to Risk Reduction and Resilience Increase
This RRR Concept brings a balanced appraisal of any issue, and is applied to the Winter Flooding challenges.
6.3 Consolidation of the Resilience Beams and RRR Nexus Linking Resilient Beam balancing actions and the RRR Nexus approach can be reconciled by taking the major issue(s) and identifying what ‘Resource’ is needed to reduce the Risk associated with that issue, while increasing its Resilience or Sustainability. It is fully acknowledged that this is not an exact scientific approach, but goes some way towards rationalising Winter Flooding Impact Mitigation and Adaptation solutions through an integrated and future-looking process.
89 Page 192 Following the Programme for Government (2016) methodology of ‘Output Driven with Input Data’, the following table suggests an allocation of outputs, in the sense of Resources, for each Resilient Issue.
The alignment of the Resilient Beam and RRR nexus is as follows: Resilience is linked to the Resilient Beam Fulcrum Risk is linked to the balance between Positive and Negative impacts on the Beam Resource is directly related to the Balancing Actions for each Beam
Figure 6.5 elaborates on these Linkages
90 Page 193 RISK associated with Resilient Issue Desirable level of RESILIENCE RESOURCE needed to achieve adequate or greater Resilience potential loss of Resilience Resilient Staff “Expectation of sustained Loss of Service at both 1. Enhance Staff quota for ‘flood event response’ as result of a full audit of flood maintenance and managerial and operational staff needs (at all levels) alleviation staff service; levels; non-delivery of 2. Evaluate the possibilities of ‘Training up DfI staff from Roads to strategic and operational essential provision supplement River staff’ capability to lead and deliver 3. Increase collaboration of Merge Emergency Functions across Flooding professional flooding incident Response and Extreme Weather Roads protection, within DfI response” 4. Inspect condition and quantity of all Flood Response equipment and invest for future events Resilient “Efficient and effective Frustrated and uninformed 1. Seek greater clarity in messages which deal with ‘Flood Warning’, Communications communication to ensure that public; industry living in fear ‘Severity and frequency of floods’ and the ‘Flooding Incident Line prompts’ all at risk are alerted in while not obtaining suitable 2. Support CRGs though training, effective message networks and Page 194 Page a timely fashion in suitable messaging equipment as required language” 3. Learn more about use of Social Media through research and corroborate with DEFRA, and in line with emerging Departmental ‘social media’ development 4. Develop ‘Flood Warning’ nomenclature to reflect likely impacts and not by a ‘time return period’ e.g. “Flood will cause extensive land flooding up to 19xx levels” 5. Further develop FIL systems and refresh Flood Warning Literature 6. Produce and publish a Flood Information CD for new Councillors to include - Who does What and When, likely environmental and social impacts, role of key agencies Resilient “Community Resilient Loss of help when it was 1. Greater support for the management, materials and sustainability of Community Networks support those who expected and most needed – CRGs to ensure that the CRG network grows and matures as well as being Networks need assistance in times of possible risk to life an integral part of rural society emergency, need or disruption 2. Proper resourcing of emergency and community planning and the to normal life” introduction of legislation that places a clear requirement on all stakeholders to play their part 3. Consolidation of the new post to lead and co-ordinate the EPC work, administered by Solace 4. More emphasis on post flooding well-being support for communities,
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RISK associated with Resilient Issue Desirable level of RESILIENCE RESOURCE needed to achieve adequate or greater Resilience potential loss of Resilience especially in stress relief 5. Consolidation of EPCO management and the Cross Border Emergency Management Group Resilient “Expectation that loughs can Flooding increases as effects 1. Review of Lough Neagh Water Controls, in the form of an investigation: Hydraulics capture all flood waters or of ‘changing climate’ ’An in-depth review of the operating regime for the Neagh/Bann system to have capacity to act as a become more common ensure that the arrangements and parameters for its management are reservoir to minimise flooding adequate to meet modern day needs’ onto floodplains during 2. In recognition of the integrity of the ‘Review of Lough Erne Operating extreme events” Regime’ Report (2013), continue to consider small scale actions in the Erne System such as minor changes in Gates’ operation to provide greater pre- winter floods protection, ongoing regular maintenance of rivers and tributaries
Page 195 Page 3. Consolidation of the status & management of the Lough Neagh Development Trust, to capture the differing interests and retain the environmental designations Resilient Rivers “Rivers exist to convey normal River threaten or start to 1. River Maintenance frequency to be considered for performance rather & Infrastructure and extreme water flows, and flood/overspill beyond their than economic reasons naturally depend on their natural floodplains 2. Investigate the need for a comprehensive survey on ‘the impact of rivers floodplains in that function; on adjacent infrastructure and bridge structures’ they provide a means and 3. Rivers are recognised as a central function within a Catchment (See place for several uses and Chapter 5.10), and become integral with a more holistic appraisal and users to be facilitated in a development of each catchment mutually respectful way, in 4. Road and farm access safety, during extreme flooding, must be tandem and support of considered adjacent infrastructure” Resilient “Weather data should provide Weather expectation and 1. Consider the establishment of a government-owned company which Weather Data accurate short-term forecasting returns to being provides weather data and analysis, links with Climate Change Risk predictions and long-term a gamble without adequate Assessment as well as Mitigation and Adaptation measures, and produces trends, based on sound scientific data and intelligent reports specific to several sectors e.g. Infrastructure, Health, Agriculture, analysis and applicable to a analysis Sport range of users” 2. Establish a NI-based Centre for Resilience, to monitor a range of
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RISK associated with Resilient Issue Desirable level of RESILIENCE RESOURCE needed to achieve adequate or greater Resilience potential loss of Resilience resilience issues, develop research and inform Decision Makers 3. Educate people about climate change and flooding, including educational programme in schools relating to flooding, probability, forecasting, games etc. Resilient ‘Emergency Planning serves to Structure become confused, 1. Civil contingency systems and protocols to be reviewed in light of Emergency minimise risk and increase responsibility is ill-defined flooding emergency, UK Flooding legislation and advent of new Planning resilience of systems and and there is ‘an accident Department for Infrastructure processes by providing waiting to happen’ 2. Funding secured for long-term appointment of a ‘Regional Co-ordination guidance during an of the work of the EPCOs’, through SOLACE or others emergency, ensuring that 3. Appraise the impact of Staff reduction on systems people and resources are 4. Ensure that Emergency Planning and delivery remain central in the full Page 196 Page managed in a safe and secure integration of the Floods Directive and possible Floods Bill manner’ Resilient Flood ‘Flood economics allows a full Impact of flooding is not 1. Development of a model contract for ‘A Study on the Economic Impact Economics explanation of the understood, with possible of Flooding’ to include a broad range of criteria, and allow this model implications of flood damage consequences of contact or programme to be applied to other areas and alleviation, accounting for misinformed allocation of 2. Develop a future ‘Scheme of Emergency Financial Assistance’ which an integrated approach across Resources, including funding operates on the principle of proportionality’ with awards relating to arm or all key stakeholders’ business size, and not applying a flat rate for all applicants 3. Realistic costing and methodology to develop sustained solutions, including use of Natural Resource Management, to minimise flooding risk 4. Infrastructure engineered solution list of key projects drawn up with full costing attached 5. Support for Education, Research & Development in areas of ‘potential increased knowledge and application’ e.g. costing models, re-wilding, infrastructure replacement Cost Benefit Analysis. Resilient Land ‘Expectation of well-drained Land management is poorly 1. AFBI develops its applied research and investigation on ‘Impact of Use land, rivers and loughs executed, crops fail and Flooding on farm and horticulture businesses’, through DAERA, and operating within their livestock are compromised possibly CAFRE floodplains and land capable 2. Full soil analysis is carried out to develop greater understanding of of providing a living for the Catchment performance (see 5.10 Resilient Catchments’ and Annex 3)
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RISK associated with Resilient Issue Desirable level of RESILIENCE RESOURCE needed to achieve adequate or greater Resilience potential loss of Resilience agriculture industry’ 3. Community Planning and Land Use Planning are seen as collaborative to prevent any further floodplain development. Farmers and UFU must be seen as the key stakeholders 4. Incentives and schemes are developed at Departmental level to support use of alternative crops, re-forestation and horticultural development 5. Niche land use for unusual or historic buildings such as those with ‘Listed status’ need to be re-considered, to ensure legacy and heritage are preserved and not compartmentalised 6. Farm Insurance to be considered by the wider industry Resilient ‘Catchments are treated as a Catchment management is 1 Commission an Integrated Catchment Wide Model (pilot) Catchments means and place for several not co-ordinated, 2. Promote Natural Flood Management’ techniques as an option in all uses and users to be biodiversity is damaged and flood alleviation schemes
Page 197 Page accommodated in a mutually there ceases to be a 3. Review work of CNCC and FWT with view to linking and remedying the respectful way; sustainable reasonable yield of crop and role of Catchment Planning as a possible contributor to ecosystem decline development as a driver income from the catchment 4. Develop rational messaging on the ‘communication of severe storms’ to allowing economic, the public environmental and social 5. Review or develop tools to describe natural flood management, interests to exist in balance’ alongside engineering structures, in economic and environmental terms. Resilient Farmers ‘Farming is seen as essential to Farming declines as a 1. Establish Pilot Farming Resilience Group through Industry leadership – employment, food yield and vocation and an essential see ANNEX 5 society, while farmers have part of rural society 2. Systems remain vigilant about the well-being of farmers and their job security and can retain families family heritage and tradition’ 3. Incentivise farmers to investigate land use diversification, alternative crops, re-forestation and horticultural development 4. Farmers are upskilled on key farm-related activities 5. Farm and Farmers’ Safety retains necessary guidance and public information support, especially for times of emergency Figure 6.5 Resilience – Risk – Resource Nexus application to reaching solutions for improvement in Winter Flooding Response.
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7. CONCLUSIONS AND RECOMMENDATIONS – ‘WHERE’S IT HEADING?’
7.1 Conclusions This Review has captured or described a range of elements as drivers (e.g. strategies, policies, and legislation), activities (e.g. work programmes, initiatives, and schemes) and evaluations (e.g. reports, reviews, action plans) which directly relate to Flood Risk Management. None of these elements were found to be unsatisfactory, albeit several aspects could be improved. In the emergency situation of the winter of 2015/16, this outcome was adequate, akin to ‘Very Good, but could have done better’.
A deeper review, or evaluation, found that several systems worked in isolation e.g. ‘Farmers were not aware of the detailed responses by Emergency Services’; or ‘Rumours about payments were exaggerated causing raised expectations, possibly leading to stress, when it did not happen’ etc. This led to a need to identify how ownership could be better understood and operated, and the need to better links between Risk, Resilience and Resources. Forward planning was critical to this Nexus.
In the review of the 11 ‘Resilient Issues’, it was evident that each could do with greater Resource (stock or supply of money, materials, staff, and other assets), in order to create better performance and manage more integration and accountability. This is explained in Chapter 6 Commentary.
The comprehensive review of literature and documents from across the jurisdictions of Global, Regional and Local confirmed that this relatively new Nexus of Risk : Resilience : Resource was a valid concept on which to build new and improved integration for Flood Risk Management.
For completeness, the R-R-R Nexus is summarised as the Concept of: Resilience of Systems, People and Resource; Risk assessment of actions, activities, anticipated events; and
95 Page 198 Resource allocation to provide balance and enhancement across Resilience: Risk Nexus (Resource includes systems, funding, skills development, education, research).
R:R:R Nexus
Resilience Resource Resilience Risk
Resources Risk
Resilience : Risk : Resource Nexus Diagram
Against this RRR Nexus, there were notable contributions, referred to throughout the Report as Commendations, and there were areas of work or activities which needed further attention, referred to as Balancing Actions.
7.2 Commendations The following Commendations were each lauded in at least one or more of the Resilience Issues sections, and are worthy of special mention in this highlights chapter: Comm1: Distinct leadership, on the ground and in the media by Minister and Rivers Agency Chief Executive; Comm2: Notable support and guidance by the Ulster Farmers Union for its members across the province; Comm3: Strong resilience, in the face of adversity and medium to long-term disruption, by many in the rural community; Comm4: Vision to engage with Natural Flood Management Systems; and Comm5: Sustained efforts by Emergency Planning Groups, Community Resilience Groups and Service providers over a 14 week period.
96 Page 199 7.3 Performance Summary The Resilient Beam performance of each issue is informative and helpful in identifying the success and ‘work still to be done’. It should be noted again that a Beam which is dominated by ‘positive inputs’ will lean to the right, coloured Red (e.g. Community Networks), while those with dominant negative inputs will lean to the left, coloured Blue (e.g. Hydraulics); hence those in a neutral position, coloured in Black (e.g. Staff), indicated balance during the Winter Flooding. These analyses are captured in this table of Beams below:
‘Human Interaction’
STAFF COMMUNICATIONS COMMUNITY NETWORKS
‘Science and Engineering’
HYDRAULICS RIVERS and INFRASTRUCTURE WEATHER DATA
‘Governance’
EMERGENCY PLANNING FLOOD ECONOMICS
‘Agriculture and Land’
LAND USE CATCHMENTS FARMERS
Each of the Issues had typically 15-30 items of stakeholder evidence which were interpreted into 4 or 5 positive and 4 or 5 negative impacts; this resulted in an overall configuration for each issue as shown above. Also each Issue was awarded at least one item of Commendation for ‘evidence of good practice’ and a number of Balancing Actions for ‘work
97 Page 200 that should be applied or investigated to provide greater balance. These amounted to 50 Balancing Actions.
In summary, it is noted that three issues were in balance (in Black); three were positive (in Red), and five were negative (in Blue). This appraisal was influenced by a desire to identify the R:R:R Nexus and therefore to derive Headline Recommendations.
7.4 Recommendations From each of the eleven ‘Resilient Issues’, it was identified that there are a small number of key Recommendations, following on from the overall evidence presented. The Reviewer advises that the host Department should inspect these as well as all of the Balancing actions.
The following high level recommendations are given to bring focus and direction to the overall Review Report:
One Concept and a 10 C-Plan:
One Concept or Overarching Approach of “Resilience links to Risk though the appropriate and sustained allocation of Resource”
98 Page 201
10 C-Plan, based on R:R:R Nexus Concept: C1: Commission: Procurement of a Hydraulic Model of Lough Neagh flows, leading to a review of the statutory water levels in Lough Neagh; C2: Crops: Increased research and development work, through DAERA, to examine crop performance and potential for alternative land uses in floodplains; C3: Communications: Seek greater clarity in messages which deal with ‘Flood Warning’, ‘Severity and frequency of floods’ and the ‘Flooding Incident Line prompts’; C4: Collaboration of Staff and Resources: Seek greater integration of multi-agency working including innovative solutions for staff and resource shortages, initially at Departmental level. Sharing of skills and responsibilities is highly desirable in an inter-departmental work area; C5: Connection: with and support for farmers in areas of potential flooding to be enhanced through the investigation of a new Farming Resilience Group (FRG) model, ideally led by the agriculture industry; C6: Civil Contingency Systems: review connections and develop a (more visible) suitable management organogram to facilitate the integration of departmental Major Emergency Response Plan(s), Emergency Planning Coordinating Officers and Community Resilience Groups, ensuring adequate policies and efficient delivery. Cross-border liaison is highly desirable, with due attention to checks across Preparedness, Co-ordination, Response, Communication and Recovery; C7: Catchment Modelling: investigate and develop an Integrated Catchment Wide Model (ICWM) to simulate the activities of an entire catchment and interrogate possible new or additional uses/applications. The consolidated ICWM has the possibility to be re-used on several catchments, to bring integration across economic, environmental and social aspects and promote the use of Natural Flood Management techniques. Included may be a review of maintenance work programmes to ensure that key rivers and/or ‘designated watercourses’ continue to function effectively; C8: Community Resilience Groups: enhancement of arguably the ’jewel in the crown’ for survival of many aspects during extended flooding; greater support for
99 Page 202 the management, materials and sustainability is needed to ensure that the CRG network grows and matures as well as being an integral part of rural society; C9: Connecting Resources requires a mature and broad interpretation of the role of Resources in the RRR Nexus, to include capital and operational funds, knowledge, research and experience-informed decisions as well as fit-for-purpose systems for Flood Risk Management. An increased need for Resources in the form of FUNDING will emerge; C10: Curricula of all education sectors (primary, secondary, tertiary) should include and be made aware of Emergency Planning, using Flood Risk Management and allied activities as key exemplars. Gaining Public Confidence is central to the acceptability of this Review and to an improved response to any further severe flooding.
In Summary:
5 1 Concept Commendations 10 Recommendations
50 Balancing Actions
It is finally recommended that the outputs of this Review, covered by the 10 C-Plan and the sectional items in each Resilience Issue section, should be evaluated independently within a 2-year period, say December 2018. It should also be subject to the normal NI Assembly Ministerial and Committee scrutiny.
7.5 ACTION PLAN – ‘Who could do what?’ The Reviewer did not seek nor receive sufficient evidence to allocate responsibilities for the Recommendations.
100 Page 203 These recommendations arise at two levels in this Report: a. Headline Recommendations in 7.1 – 7.4 above - Conclusions and Recommendations ‘Where’s it Heading’; these constitute 5 Commendations and the 10 part C-Plan; b. Sub-Recommendations, within each Resilient Issue section of Chapter 5, as they are pertinent to that issue alone; these total to 50No. Sub-Recommendations.
The apportionment of responsibility for both levels of Recommendations lies with the Department for Infrastructure; it is anticipated that there will also be cross-Departmental activity in order to address the holistic and integrating aspects of Winter Flooding Response. This table links the Headline Recommendations with each Resilience Issue and shows a genuine response to an overall aspiration of ‘Increased Public Confidence’.
Resilient Grouping Resilient Issue Headline Recommendations Overall
Resilient Staff C4 - Multi-Agency Working ‘HUMAN Resilient C3 - Flood Messaging Clarity 1
INTERACTION’ Communications Nexus as a a as Nexus
Resilient Community C8 – Community Resilience - Networks Group support for growth Resilient Hydraulics C1 - Lough Neagh Hydraulic
Model and Water Level
‘Use of RRR of ‘Use
‘SCIENCE and Determination
ENGINEERING’ Resilient Rivers and C7 - ‘Integrated Catchment and
Infrastructure Wide Model’ development
ENCE ENCE
Resilient Weather Data C3 - Flood Messaging Clarity 2 D Resilient Emergency C6 - Emergency Response
‘GOVERNANCE’ Planning Integration to progress’ guide Resilient Flood Economics C9 - Flood Risk Management funding Resilient Land Use C2 - Land and Crop ‘AGRICULTURE and Development Research
LAND’ Resilient Catchments C7 - ‘Integrated Catchment
INCREASED PUBLIC CONFI PUBLIC INCREASED
Wide Model’ development -
Resilient Farmers C5 - Farmer Resilience Groups C10
W Alan Strong MBE CEng FICE Chairman NI Drainage Council Visiting Professor, Ulster University e. [email protected]
101 Page 204 ACKNOWLEDGMENTS
W Alan Strong, as Flooding Review Independent Author, wishes to sincerely thank all of those who have given so freely of their time and expertise in meetings, correspondence, advice and support in soliciting Stakeholders’ views, analysing inputs and writing this Report, in the period March – November 2016. Those who assisted in many ways fall into four equally important categories:
A. Employer Approval and Acknowledgement Professor Ian Montgomery, Professor Philip Griffiths [Ulster University]
B. Administration, logistics and document construction: Kieran Brazier, Roisin Rice (nee Gilchrist), Mary McKeown, Kathy Maskey, Shona Adamson, Shaun Donnelly [Rivers Agency] Elizabeth McKeown, Dr Rodney McDermott, Pearl Bartley [Ulster University]
C. Government Commissioning, Advice and Progression Monitoring Michelle O’Neill MLA (DARD Minister) – initial engagement; Chris Hazzard MLA (Department for Infrastructure Minister) – Receiving of Report David Porter [Chief Executive, Rivers Agency]
D. Stakeholder Views Jonathan McKee, Graeme Anderson, Owen McGivern [Rivers Agency HQ] Barclay Bell, Ivor Ferguson, Kate Cairns [UFU HQ] Alan Cooper and Sam Philips (AECOM), Alan Skates and Julie Templeton (Atkins Global), Andrew Jackson (RPS), Tommy Stevenson (WDR and RT Taggart), Bill Gowdy and Stephen Blockwell (NI Water), Brian Mullan (WWI) [Civil Engineering Group] David Neill (Belfast CC), Joan McCaffrey (Fermanagh and Omagh DC), Eugene Cunningham (Armagh City, Banbridge and Craigavon BC), Joanne McKenna (Red Cross) [Emergency Preparedness Group] Ryan Gough ( Armagh), Tommy O’Neill (Omagh), Alistair Payne (Armagh), Michael McCreesh (Armagh), Malachy Loughran (Armagh), George Thompson (Fermanagh), Paul McDonald (Fermanagh), Robert Taylor (Fermanagh), Mike O’Gorman (Omagh), Donal McGill (Omagh), Martin Kelly (Omagh) [Rivers Agency Regional Staff] Brian Mullan, Joe Gillespie, Stephen Forrest [Waterways Ireland] Kerry Anderson [NIEA] Jim Shaw and Eleanor Glendinning (Met Office, Scotland), Jane McCullagh (Climate NI), Pardis Biglarbeigi (Ulster University) [Climate Change Group] George Sloan, Andrew Sloan, Matthew Harrison, Nigel Rainey, Seamus Donnelly, Joe Mulholland, Pat Smith, Andrew Hayes, Barclay Bell, Kate Cairns [Upper Bann Farmers’ Delegation] Ivor Ferguson and Kate Cairns (UFU), Alec McQuillan and Andy Law (NI Water),David Neill (Belfast CC), Graham Smith (Consumer Council) [Personal Impact Group]
102 Page 205 Albert Foster (Host), David Brown (Local UFU representative), Douglas Rowe (former UFU President), Stephen Johnston, Geoffrey Read, David Jordan, Barry Read, Robert Kettyle, Henry Mayne, Andy Wilson, Michael Reihill, Bertie Swann and Albert McClelland; Barcley Bell, Ivor Ferguson and Kate Cairns (UFU) [Lough Erne Farmers’ Delegation] Eric Long [CAFRE] Lex McCoubrey (Police Service of NI - PSNI); Jeremy Cowen (NI Ambulance Service - NIAS); Mark Deeney (NI Fire and Rescue Service -NIFRS) [Emergency Services] Ronan Henry (DAERA), Clair Baxter (DE, formerly DRD), Carol Duffy (NI Water) [Media Group] Keith Jagelman, Julie Cuming [Civil Contingency Policy Branch, TEO] Steven Millar, Michael McLean [DAERA Group] Stephen McCabe (NIEL), John Martin (RSPB), Robbie Marshall (Ulster angling) [Freshwater Taskforce] Fionnuala McEldowney (Linen Green Ltd.), Doug Jarvie (Neptune Group) [Linen Green Shopping Village] Pat Close [Lough Neagh Fishermen’s Co-operative Society Ltd.] Conor Loughry, Henry Robinson [Transport NI West] Liam Hannaway, Roger Wilson [SOLACE Group] Julian Orford, Sue Christie, Emily Smyth [CNCC] Paddy Brow [DfI ‘Living with Water’ Programme] Brendan Hegarty (Chief Executive) and members of Fermanagh and Omagh District Council John Kane [Senior Fisheries Officer, DAERA] Diane McKain, John Wylie [NI Met. Office, Aldergrove] Tracey Teague [DAERA Corporate Services] Peadar Davis, Kate Cronin, Rodney McDermott, Jill Stephenson [Ulster University Academics] Dan and Kate McQuillan [Crabtree Cottage] Ian Frazer (L Neagh Regeneration Association), Conor Jordan (L Neagh Partnership), John Palmer (Lisburn and Castlereagh City Council), Arnold Hatch (Armagh City, Banbridge and Craigavon Borough Council) [All linked to Lough Neagh Development Trust] Members of the Drainage Council NI Environment Agency, Scottish Environment Protection Agency, Natural Resources Wales Senior staff [Members of National Flood Review Meeting] De-Briefing Session at Loughrey College – 53 delegates
I am truly grateful for all of your help, advice, documentation and support.
W Alan Strong November 2016
103 Page 206 BIBLIOGRAPHY
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Walker, Ross, et al. Floodplain management in Australia: Best Practice Principals and Guidelines. Collingwood : CSIRO Publishing, 2000
106 Page 209 ANNEX 1
CASE STUDY 1: Impact of prolonged flooding on a Dairy Farm Finances.
This information was provided to the Report Author in confidence by a Dairy Consultant, who provided the detail with the full agreement of the farmer and landowner; all references to either the Dairy Consultant or Farmer are removed for copyright reasons and to preserve the anonymity of both parties.
The Author fully acknowledges the willing co-operation of Consultant and Farmer, expressed his gratitude and wishes the Farmer a full recovery and well-being in his undoubted pursuit and passion for being a successful farmer.
Topic: Economic impact of prolonged field flooding on A Dairy Farm Business, based in the Upper Bann Catchment in the Upper Bann Floodplain
Case Study style: Exact words and written comment by Dairy Consultant
“Following our recent meeting at this farm, I’m writing to you with supplementary information as promised. Our discussion focused on the financial implications of flooding on the farm business – the affects were a combination of direct factors such as grass sward deterioration, and indirect consequences such as extended housing of animals/additional fodder requirement. The farm is situated in the Lough Neagh basin; much of the land is adjacent to the Upper Bann River.
The farm has 120 dairy cows along with replacement heifers and beef cattle. The holding is owned/operated by the family with casual labour employed when necessary. Like many other dairy farms in N. Ireland, the farm has invested in recent years in additional facilities e.g. slurry storage, cattle housing, silos; the cattle based enterprises are entirely dependent on grass as the forage, either as grazing or conserved as silage.
107 Page 210 The farm had approximately 100 acres underwater for a period of 4 months (Nov 15 to Feb 16). The fields affected included 50 acres for cow grazing of which 10 acres grazed by drystock and 40 acres normally cut for silage. The flooding had a major physical impact on the farm as follows: significant quantities of detritus left by flooding (silt/plastic/timber/vegetation); ground compaction caused by weight of water, over 1.8m in places, over an extended period; almost complete loss of grass sward; and loss of nutrients in soil after period due to prolonged leaching.
These issues have a negative impact on farm productivity and will therefore impact on overall farm viability, with short and long term consequences. The financial effects are outlined below;
The following comments are also relevant: Cows would have been grazed this year from mid-April – given the lack of available grass, cows will be housed for at least an additional 6 weeks whilst swards are re- established; The additional silage required, combined with extra concentrate feeding, over and above typical supplementary feed given to cows at grass, will add significantly to costs; The extra silage fed during the extended housing period is in addition to the silage forfeited due to flooding on 40 acres land. Assuming 8t/acre (1st cut silage crop), this equates to approx. 320t (estimated £25/t); The extra housing necessitates both additional workload in relation to managing animals and also extra expense e.g., bedding; and Re-seeding 100 acres land will incur significant expense – these costs include cultivation, grass seed and fertiliser – a conservative figure for these items is £110/acre.
108 Page 211 In summary, the cost implications of the flooding are as follows; £ Cow concentrate 5kg x 50days x 100milkers x £215/t = 5,375 Extra silage fed 100 cows x 42kg x 50 days x £25/t = 5,250 Reduced silage area 40 acres x 8t/acre x £25/t = 8,000 Reseeding 100 acres x £110/acre = 11,000 Bedding cost = 500 Bank interest charge = 1,500 Total £31,625
Comment: Whilst the costs shown are significant, they probably underestimate the actual amounts incurred; assuming 120 cows averaging 7,000lts pa, the extra expenses amount to almost 4ppl. Given that the base price paid last month by the farm’s milk purchaser was 17.2ppl, 4ppl represents a major proportion of farm turnover. Milk price in N. Ireland has been falling since spring 2014; it peaked at over 30ppl and has averaged 24ppl in the last 10 years. If current milk prices persist, many dairy farmers will be forced to exit the industry. The issue of flooding on this farm poses a significant threat to the long-term viability of the business.
The areas highlighted represent the physical/financial consequences of flooding to the farm. We should not underestimate the significant stress caused to the farm family, particularly in light of the current financial backdrop to the dairy sector.”
Reviewer’s Comment: a. Costs for re-seeding above are significantly less than those advised by CAFRE, as the family undertake most farm fieldwork themselves; therefore the costs quoted reflect direct expenses only and do not include an allowance for machinery use, labour or time spent). The following extract from the CAFRE document ‘Improving Soil and Sward Performance ‘ (2013), CAFRE, Greenmount Campus, ISBN: 978-1-84807-398-2 , gives 3 levels of Re-Seeding costs:
109 Page 212
Reseeding with Reseeding with Sward Renovation ploughing minimal cultivation by stitching-in (overseeding) £/Ha £/acre £/ £/acre £/acre£ Total £ 6 281 6H 265 /4 187 9 5a H6 Reliability 4 H 4 Moderate - high a1 Moderate Rate of 9 Ri Very Modera improvement 4 ag rapid (2-3 te (3-6 ph months) months) i These CAFRE costs cover soil analysis,d spraying, ploughing, seeding, fertiliser and lime (2-4 months) additions, pest/disease control; b. By selecting the median value of £265/acre, the ‘Cost implications table above is altered by an additional £155 (£265 less £110) per acre; hence the total cost will increase by £15,500 (100 acres x £155); c. The Total Cost to this individual farmer is now calculated to be [£31,625 + £15,500] = £47,125 d. Land compaction has a major impact on land productivity – reduced crop yields and reduced fertiliser efficiency are proven issues directly affecting farm viability; there are also significant environmental consequences due to increased emissions of ammonia/nitrous oxide, increased surface run-off (main source of phosphate contamination of UK waterways) and soil erosion. e. The client was clearly stressed during a farm visit, evidenced by nervousness, ‘arguably early re-seeding of hard ground that had been submerged in water for approx. 10 weeks’. f. The generational element of farming was evident with a younger farmer (client) showing concern for his father who currently lived on the Farm but had less input;
110 Page 213 g. There is a sense of ‘absolute despondency’ in that the cost of retaining farm stock greatly outweighed any income, and Flooding was a contributing factor giving a ‘sense of inevitability that storms would re-occur’. h. This brief and accurate Case Study draws out the ‘plight of a farmer who relies heavily on land which is predominately in the floodplain of a major river, which is subject to periodic severe flooding’; there is personal stress and financial instability.
111 Page 214 ANNEX 2
CASE STUDY 2: Impact of prolonged flooding on Farm Performance.
A. Context. This information was provided to the Report Author by an interested, articulate and professional farmer; it was agreed that his name be kept anonymous for confidentiality reasons. This story was chosen as it was clearly based on a number of attributes of the farmer: - Experience - Depth of understanding - Awareness of river hydraulics, lough performance - Ability in, and forward thinking about, farm management - Knowledge of weather, rainfall and seasonal systems and variations
B. Facts. The Farm: - Situated in the Upper Bann Catchment, and in the Floodplain of the River Bann - Subject to seasonal winter flooding which has become more regular and prolonged in last 10 years - 150 acres of which 120 acres were normally used for grass, grazing and silage - Improvements over the years ensured 120 acres of grassland was of good condition and yielding efficiently - Ravaged in the Winter of 2015/16, when the 120 acres of land was reduced to 20 acres of viable crop land for a minimum of 10 weeks - Land is/was an important habitat for many species of wildlife which were displaced/died due to flooding
112 Page 215 The Farmer: - Remained fully aware of the likely impact of any rainstorm by regularly accessing the Met Office Weather Forecasts and checking on the Rivers Agency Flood Maps and Flood Warning messages - Provided agricultural vehicle transport assistance for 6 vehicles and for local children to get to school as roads and lanes were unpassable for 3 weeks - Was a third generation famer and had invested heavily and wisely into an efficiently run farm - Estimated, without exact details given, that he incurred £30k in additional cost or loss of income, due to this demanding Winter Weather 2015-16 period - Has grave concerns about the management and operation of the Toome Sluice Gates in their role of managing the Lough Neagh water levels; “even within the existing statutory Lough Level limits, the water levels could be managed better - levels are always towards the upper limit, unless there is significant spells of drought, and could be managed more towards the lower limits and more responsive to weather predictions” (Quote) - Is concerned that current statutory lough levels are outdated and would like to see an independent review of statutory lough levels and management - Continues to review the viability of farming in a Floodplain if there remains uncertainty on the Lough Levels and its capacity to receive more of the flood waters - Recently had a farm incident in which it was essential to have urgent medical attention; he speculated that this could not have happened during 3 weeks of the Winter Flood! - Recognises that the continuing trend of ‘climate change impacts’ and the probable impact on ‘increased intensity and frequency of severe flash flooding’ will only add to the stress on floodplain land and the possibility of farming it in a financially attractive manner - Reviews the future, if any, of ‘farming in a traditional manner’
113 Page 216
C. Reviewer Comments a. It was possible to corroborate most facts with other agencies, and find them to be accurate; b. There was concern about this Farmer’s appreciation of the dilemma of ‘managing Lough Neagh water levels to meet the statutory requirements and the needs of other stakeholders’, so it is not possible to agree with the comments on the Toome Sluice Operation provided by the Farmer; c. The Farmer was a regular source of hands-on and local information to all government agencies - this is most valuable; d. This case study demonstrates the frustration by floodplain farmers about the systems and processes in place to support them; e. Could there be more Farming Community involvement through volunteering, contract work allocated for maintenance, or in giving advice?
The Reviewer fully acknowledged the willing co-operation of the Farmer and how he expressed his openness. The Reviewer wished the Farmer a full recovery in pursuit of retaining his farming legacy and returning to the operation of a successful farm.
114 Page 217 ANNEX 3
Proposal to Develop an Integrated Catchment Wide Model (ICWM)
Background: Managing water flows from the top to bottom of river catchments helps to reduce flood risk, in many cases more cost-effectively than simply building flood defences in towns, villages or settlements. Early trials in the UK are encouraging for smaller river catchments: there is sufficient evidence to roll-out ‘catchment scale’ approaches for a far greater number of small river basins. Rivers Agency and other bodies need more evidence on how effective these measures might be at a larger scale.
This proposal is made on the desire to develop a tool or model which will take into consideration several elements of a catchment. Lessons from the Blue-Green Cities Research Project and River Restoration Centre can assist. The proposal is drafted into a set of research and development Objectives to include rationale, methodology, operational plan, potential users and benefits, as follows:
1. ICWM Aim: To develop a generic mathematical model which will allow a holistic appraisal of the performance and interaction of several elements of a catchment, with the intention of transferring this ICWM approach to several other catchments while using the river course as the centre or subject of the model.
2. ICWM Objectives. The model will plan to: a. Select a modest sized catchment which has a range of users and stakeholders; b. Investigate and describe the range of users and their driving legislation; c. Interrogate the possible inter-action and impacts between these users; d. Construct a mathematical model which reflects the range of users and their inter- action; e. Calibrate the ICWM model using live data from the catchment; f. Evaluate the possible impact of new or additional users in that catchment; g. Consolidate the ICWM Model so that it can be transferred to evaluate the performance of other catchments.
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3. ICWM Approach and model is based on: a. Concepts of Sustainable Development, employing environmental enhancement, social engagement and economic stability in equal measure; b. Principles of ‘Natural Flood Management’, using a range of techniques or interventions such as sustainable drainage, water storage, Low-level bunds, tree planting or re-forestation, restoration of woody debris dams in streams or tributaries, wetlands restoration, biodiversity and landscape enhancement, etc. c. Desire to understand water quantity (flooding) issues alongside water quality profiles, land use planning, biodiversity value and measures, business and recreation demands, fisheries development, water storage initiatives, renewable energy exploitation, health and wellbeing concerns, response to climatic variations, soil conditioning, environmental impacts; d. Attention to key drivers such as Water Framework Directive, Rivers Classification, Habitats Directive, Planning Laws and Planning Policy Statements, Community Planning, Historic and Listed Buildings; e. Need to develop a deeper understanding of catchment performance and rhythm, seasonally and into the future; f. Appreciation that the ICWM model will allow a range of investigations which have previously been done on a ‘single theme approach’; g. Inter-departmental and cross-discipline thinking.
4. ICWM Operational Plan must negotiate and sustain the following engagement: a. Lead Government Department to scope out the ICWM supply and negotiate/obtain funding for ICWM; DfI is the preferred department; b. Establish a ICWM Management Team/Board to direct the initial scoping description and to oversee the development; membership needs to reflect the breadth of catchment users and have experience of applying legislative drivers and working on inter-disciplinary projects; appropriate reporting mechanisms are essential; c. Consider the use of ‘The Harmonise Handbook’ (The Harmonise Consortia) Educational Tool as a framework through which the range of variables can be
116 Page 219 examined – based on HARMONISE (A Holistic Approach to Resilience and Systematic Actions to Make Large Scale Built Infrastructure Secure), a project funded from EU’s Seventh Framework Programme for research, technological development and demonstration under grant agreement no 312013; visit www.harmonise.eu; d. Procure a service provider who can work to ‘time and budget, with expertise/experience in modelling as well as an appreciation across the natural and built environment nexus; the concept of ‘model design and build’ should be applied; e. Set targets for delivery to ensure that the ICWM can be applied in the operation and development of other catchments; f. Ensure that the ICWM Model has a maintenance service agreement built in.
5. ICWM Timeframe It is expected that the following draft timeframe can be applied:
KEY PERFORMANCE DATE ACTIVITY PROVIDER INDICATOR January 2017 Minister(s) and Departmental staff Get buy in from Department(s) scope out + Key ICWM Lead Executive or agree ICWM Descriptor February 2017 Minister appoint a 5-7 ICWM Lead and Establish a coherent and person ICWM Board Minister secure cross-disciplinary team (balanced, public and members by private) invitation; reflect agencies and users March 2017 Minister aligns ICWM Minster + ICWM Rationale established with PfG Output(s) and Lead + Executive and cross-departmental secures Budget engagement June 2017 Procure services of ICWM Departmental Attract interest from Development Consultant staff, ICWM Lead international and CPD practitioners and secure ‘value for money’ and expert service provider December 2017 ICWM Consultant reports ICWM Consultant Progress targets agreed on a 2-monthly basis, and delivered with 1st Model iteration designed March 2018 ICWM Model calibrated ICWM Consultant Progress targets agreed and iterations displayed and delivered
117 Page 220 KEY PERFORMANCE DATE ACTIVITY PROVIDER INDICATOR June 2018 ICWM Model ICWM Consultant Progress targets agreed consolidated and applied and delivered to a 2nd catchment ICWM Evaluation by independent assessor September 2018 ICWM Model fully ICWM Consultant Progress targets agreed operational in suitable ICWM Board sign and delivered media with ‘User’s off on evaluation Application of ICWM Manual ‘and 5 (min) model to other Departmental staff situations trained
118 Page 221 ANNEX 4 EMERGENCY PLANNING PROTOCOLS and PROCEDURES
A. FLOOD RESPONSIBILITIES MATRIX – RESPONSE (as defined by DARD in Winter 2015/16)
5. REVIEW Local Government Lead Department NICCMA (CCG(NI)) or PSNI This involves (depending on facilitation of a multi- which organisation Supported by PSNI / Chaired by OFMDFM agency review of the co-ordinated the Local Government. and supported by Lead collective response response). Government (may link with review Department(s) and of the recovery). Supported by Lead other key responders. Department 4. CO-ORDINATION Local Government DARD/ Rivers Agency NICCMA (CCG(NI)) RESPONSE (where (Strategic (Strategic duration of response Co-ordination) Co-ordination) phase permits) OR Default in the first Chaired by OFMDFM instance with transfer and supported by Lead This involves co- to DRD as appropriate. Government C ordination of the Department(s) and O response to an PSNI other key responders. R emergency which has (where there is a Local Level Local Level E occurred or is perceived major Co-ordination Co-ordination anticipated. It does not and imminent continues in support of continues in support of F include recovery or threat to life). the strategic layer the strategic layer U restoration of above above N normality. C 3. PROVISION OF DARD /Rivers DARD /Rivers Agency DARD / Rivers Agency T EXPERTISE Agency Default in the first Default in the first I Default in the first instance with transfer instance with transfer O This is to inform the instance with to DRD as appropriate. to DRD as appropriate. N management of the transfer to DRD as S response. appropriate. 2. COMMUNICATION DARD /Rivers DARD /Rivers Agency NICCMA (CCG(NI)) Agency Default in Default in the first Chaired by OFMDFM Co-ordination of the first instance instance with transfer and supported by Lead communication prior to with transfer to to DRD as appropriate. Government and during an DRD as appropriate. Department(s) and emergency. Supported by PSNI / other key responders. Supported by PSNI / Local Government/ Local Government / NIFRS NIFRS
119 Page 222 1. PREPARATION DARD /Rivers DARD /Rivers Agency DARD /Rivers Agency Agency Supported as necessary Supported as necessary This involves facilitating Supported as by other key by other key ongoing multi-agency necessary by other responders. responders. planning to prepare for key responders. emergencies. Local Level 1 Significant Level 2 Serious / Level 3 Catastrophic
LEVELS OF EMERGENCY
B. DARD / RIVERS AGENCY LEAD GOVERNMENT DEPARTMENT ROLES AND RESPONSIBILITIES
ROLE RIVERS AGENCY DARD Preparing for • Develop LGD arrangements • Develop, review and communicate Flooding • Develop, review and communicate DARD Major Emergency Response Plan Flood Emergency Plans. (MERP). • Facilitate multi-agency planning to • Test MERP and the interaction with RA prepare for emergencies. and other organisations in relation to • Test Plans through exercises or live LGD responsibility for emergencies. events. • Admin support for location arrangements for LGD coordinating roles. When Flooding • Liaise with the Met Office on weather • Use Rivers Agency Reports to anticipate Is Forecast and UKCMF on tide forecasts. events (and their likely scale) as far as • Provide flood information and expertise possible to provide triggers for the right to co-responders (Annex C). levels of preparedness in NICS. • Notify DARD Core, to facilitate • Initiate communications across NICS, LGD/MERP shadow mode including press offices as necessary, • Initiate Media engagement using LTT liaising with RA on issuing LTT (Annex C). • Initiate preparation of situation reports • Contact Community RCRG Leads. (Sit-Reps). • Assess with Rivers Agency, level of admin and IT support necessary. When Flooding • Provide support to Gold, Silver and • Collate Rivers Agency and other Happens Bronze commands. organisations (see list at Annex D) Sit- • Provide flood information and expertise Reps into CRIP summaries. to co-responders (Annex C). • Distribute these CRIP reports at agreed • Provide situation reports (Sit-Reps) and intervals to those identified at Annex E other briefings to DARD and OGDs. • Advise DARD Senior Management, • Liaise with RCRG leads. Ministers, CCPB and other Government • Support Ministerial visits. Departments / agencies on the • Work with CCPB and Local Government developing scale of events. in escalating or de-escalating the central • Ensure effective communications with Government response. NICS, using LTT Annex C for media • Work closely with DARD Core in fulfilling engagement, and updating NIDirect
120 Page 223 ROLE RIVERS AGENCY DARD LGD function. website • Engage with either regional Local Government or PSNI Co-ordination of the event to deal with regional, strategic or political decisions needed to aid response. • Facilitate Ministerial and other VIP visits to the affected areas. • Ensure that clear responsibilities established and team in place to oversee Recovery phase. When Flooding • Support follow-up Ministerial visits. • Advice on follow-up Ministerial/VIP Subsides • Media engagement as appropriate. visits. Post-Flood • Where DARD Rivers Agency is LGD in • Provide support and secretariat to Review the response to a level 1 event facilitate Rivers Agency in reviewing the multi-agency review of collective response. response to the emergency. • Ensure arrangements are in place to • Take forward identified ‘lessons identify any ‘lessons learned’ and learned’ and follow-up action. monitor implementation process through Action Plans.
C. DARD/Rivers Agency, in their Lead Government Department responsibility role for certain Core Functions, has delivered ‘Lines to Take’ (LTT) for each stage in any flooding emergency:
LTT - PREPARATION Rivers Agency’s preparedness remains consistent throughout the year as heavy rainfall events can occur at any time, winter or summer, indeed over the past few years the greatest impacts have occurred during the summer months. Rivers Agency staff will be placed on-call in anticipation of the need for any potential response to flooding throughout the [e.g. winter / summer/week-end] period. As we face the winter, there’s always an increased risk of adverse weather, which could lead to flooding conditions. Rivers Agency constantly monitors any potential adverse weather conditions, particularly in relation to flooding, throughout the winter / summer period. We have an agreement with the Met Office to provide a broad assessment of ground conditions and river levels which will enable the Met Office to assess the potential impacts of any heavy rainfall warning.
121 Page 224 Maintenance of inlet grilles to culverts will continue as necessary in order to reduce the potential impacts of flooding. We would ask the public not to dump material into watercourses which may be drawn down to trash grilles during heavy rain, leading to increased flood risk. Rivers Agency is in close contact with colleagues in the Met Office and UKCMF (UK Coastal Monitoring and Forecasting) in relation to monitoring the current potential coastal surge situation. The Agency will work with co-emergency responders to inform an appropriate response. Rivers Agency’s flooding emergency duty officer and flooding officer rotas will continue to operate to facilitate an out-of-hours response to flooding related incidents.
LTT COMMUNICATION As Lead Government Department for flooding, DARD/Rivers Agency meets regularly with other departments, local councils and agencies who also respond to flooding, in planning and preparing for flooding emergencies. Best Practice Guidelines exist among the 3 Flood Responding Agencies (FRAs) and NI Fire and Rescue Service and these provide clear roles and responsibilities with those organisations. As part of any wider Government response to severe weather, Rivers Agency will actively participate in local and regional discussions. This will help us and others to assess what actions are needed by way of response to this flooding. The drainage agencies will do their utmost to minimise the impact of flooding, but it is important to remember that on occasions, intense heavy rainfall can overwhelm drainage systems. Rivers Agency has strong links with the Met Office and the UK Coastal Monitoring Forecasting Service (UKCMF) and has agreed processes in place for preparing for and dealing with flooding emergencies. Anyone wanting to report a flooding emergency should contact the Flooding Incident Line on 0300 2000 100.
122 Page 225 LTT PROVISION OF EXPERTISE Rivers Agency is the statutory drainage authority for Northern Ireland and the Competent Authority for the implementation of the EU Floods Directive. This provides the legislative basis for the Agency’s flood risk management role. In light of this the Agency is recognised as having appropriate expertise in managing flood risk and mitigating the effects of flooding. Because of the significant risk to life, PSNI is leading the coordination of the response to recent major flooding but Rivers Agency is providing the technical expertise to determine which areas may be worst affected. It is very simplistic to suggest that now that all drainage agencies are located within one department that it would solve all flooding problems. The fact remains that extreme rainfall, as witnessed in recent days, will overwhelm infrastructure and that is the reality of the situation. Since the PEDU report was published in 2012, DARD has been at the forefront of leading initiatives such as developing systems of flood warning and informing and a programme of community engagement and these have been well received. In taking forward this very important work, the Department has received whole-hearted support from a range of partners including DRD, Local Government, the Emergency Services and Voluntary Sector groups. Since the publication of the PEDU report, there has been clear evidence of improved levels of co-operation and collaboration between Rivers Agency and other partners. This has been reflected, not only in the development of solutions to flooding problems in vulnerable areas, but also in ongoing work in relation to community engagement, emergency planning and the development of the Flooding Incident Line (0300 2000 100).
LTT RESPONSE CO-ORDINATION Rivers Agency is leading the response to this major flooding emergency because it is mainly river-related and because [for example the Agency’s river defences were overwhelmed during the peak of the flood]. Coordination of response to recent flooding has been passed over to DRD because the incidents relate mainly to surface water drainage systems which belong to TransportNI.
123 Page 226 Rivers Agency staff responded to a major burst water main, but coordination of the emergency response has been handed over to NI Water which is the agency responsible. We maintain very close links with Met Office colleagues throughout the year and obviously that level of engagement is stepped up at times like this when there is the likelihood of flooding as a result of heavy downpours/prolonged heavy rainfall. Government agencies have been preparing for this event for some time. Preparations have included: o Clearing gullies and grilles; o Putting staff on stand-by; o Arranging for sandbags to be made available to people most likely to be at risk; o Engaging with communities at known flood risk; and o Providing expertise to other co-emergency responders, to allow appropriate forward deployment of resources. In addition we continue to engage closely with the Met Office and we are monitoring the situation very closely. The response agencies are aware of the distress suffered by the people who were affected by flooding. The sheer amount and persistence of the rain overwhelmed drainage systems. Our first priority has been to respond to those who need assistance. After that we need to examine what viable and practical steps could be taken to reduce the risk of flooding in this area in the future.
LTT SUDDEN HEAVY DOWNPOUR The drainage agencies have staff out on the ground who are working very hard to help those whose homes have been flooded. Our priority at this stage is to try and establish the cause of the flooding and make sure that whatever assistance we can provide is made available as quickly as possible.
124 Page 227 LTT REVIEW Along with the other flood response agencies, Rivers Agency is currently reviewing the recent flooding and will determine what actions will be necessary to reduce future flood risk and which organisations will take these measures forward. Rivers Agency and its co-emergency responders have commenced a multi-agency review of recent major flooding. This will include an assessment of the extent of flooding, properties affected and the preparedness and performance of the respective agencies and the Flooding Incident Line. Rivers Agency will be recommending that an independent review into the recent serious flooding is carried out in order to determine whether improved response would mitigate the flood risk or whether infrastructure upgrading is required. A key message here is that Government cannot prevent all flooding. For example when we experience the type of sudden, heavy rainfall that we saw here in June 2012, there will be flooding. This is because the sheer intensity of the rainfall will exceed the design capacity of drainage infrastructure – in other words, the drainage systems are not designed to cope with that volume of water in a short space of time. All departments are facing budget pressures. We continue to use our allocations to provide the maximum benefit in terms of managing flood risk. If Pressed – Obviously we look to improve our efficiency and rationalise our approach in terms of managing the budget pressure, however, with less money the scope to undertake the same level of maintenance will prove difficult.
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D. Cross Border Emergency Management Group (CBEMG)
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127 Page 230 ANNEX 5
Proposal for a Model ‘Farming Resilience Group (FRG)’
The concept of Community Resilience Groups (CRG) has been established internationally and has been applied to good effect across Northern Ireland with the potential for forty five groups to be fully mobilised.
A. Background There is a plethora of advice and legislation built around the Community Resilience Networks or Groups, grounded in the Northern Ireland Civil Contingencies Framework.
The key drivers are associated with: Guide to Emergency Planning Arrangements in Northern Ireland Guide to Risk Assessment in Northern Ireland Guide to Plan Preparation Guide to Evacuation in Northern Ireland Northern Ireland Standards in Civil Protection (2001)
In addition, access to the following is important: UK Emergency Response Planning Police Service of Northern Ireland (PSNI) NI Ambulance Service NI Fire and Rescue Service Maritime and Coastguard Agency Met Office Severe Weather Public Health Agency for Northern Ireland Northern Ireland Environment Agency (NIEA)
Rivers Agency, along with the Emergency Preparedness Co-ordinators, through the Regional Community Resilience Group, has developed a strong and effective network of Community Groups.
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B. Development of Farming Resilience Groups (FRG) The advent of CRGs has proved beneficial in the time of emergencies, especially during extreme flooding; however the rural and often widely spread out farming communities do not benefit tangibly from the work of CRGs.
It is proposed to develop a model Farming Resilience Group as a pilot for a possible enlargement of this new FRG concept.
The FRG will be based on the CRG model, and may have similar structures.
In addition it is recognised that the FRG could bring further assistance and maturity to each farming community, in times of emergency, as it seeks to: Work closely with all the statutory and support agencies and organisations Provide a source of mutual help Co-ordinate local rural activity Facilitate joint use of Machinery and Equipment, such as Pumps, Hoses, and Generators Use principles of Symbiosis, in the sharing of different resources Help with organising re-skilling and up-skilling of the farming community Be an essential vehicle and conduit for emergency communications Provide and/or manage common use of Animal and Resource storage Be a means or tracking system of identifying those in ‘extreme stress’ Identify need for and ways of providing family and educational support Evaluate the potential for a ‘Co-operative Organisation’ approach Share transport Be a link for Agriculture and Farming to Councils and Councillors Consider being a means of obtaining funding and education Develop improvement for communication with EPC’s Provide or secure genuine emergency assistance e.g. pregnancy help, care help, link with NIFRS etc.
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C. Way ahead This concept of FRG’s need to find a home; under ‘The General Power of Competence Empowering councils to make a difference’ and the new Community Planning function within the new Local councils, it is pertinent that the following authorities make an initial evaluation with the view to establishing a Pilot FRG: Agriculture Industry, in lead role SOLACE, to represent the 11No. District councils DAERA to represent the agriculture brief DfI to represent Rivers and Roads UFU to represent the Farmers An independent chair to seek progress and secure funding.
130 Page 233 This page is intentionally left blank Agenda Item 10 Title of Report: Officer Presenting: Emergency Planning Officer Role of Elected Members Author: Emergency Planning Officer
1. Purpose of Report/Recommendations
1.1 The purpose of this report is to provide members with an overview of what their role is in the event of an emergency.
1.2 A presentation providing more detail on Council’s role in emergency planning and the role of elected members will be delivered to the Committee by the Western Emergency Preparedness Group’s Emergency Planning Co-ordinator and the Council’s Emergency Planning Officer.
2 Background
2.1 The Senior Leadership Team participated in a desk top exercise on the 8th December 2016 to validate the council’s integrated emergency management arrangements. One of the actions arising from this exercise was to provide awareness training for all elected members.
3 Key Issues
3.1 The role of elected members during the response to an emergency situation can be key in determining the public perception of the Council’s response.
3.2 Elected members will often be aware of vulnerabilities within their own community and can provide an essential source of information to the council and multi- agency co-ordination effort. It is important that this information is input in a way that aids the efficiency of multi-agency response.
3.3 There are normally three phases to an emergency: - planning, response and recovery.
In the planning phase, members can encourage communities to prepare for emergencies and become involved in community resilience initiatives. They can also provide key information about community risks & resources, if known.
During the response phases, members can help to pass information to constituents, keep situations calm and bring assurance to the public. They can engage with responders and agree to feed into a consistent, co-ordinated media message. Page 235 In the recovery stage, members can assist with humanitarian assistance and recovery of infrastructure and communities, helping to bring focus to the repair and reconstruction needs of the affected community.
4 Financial, Equality, Legal, HR, Improvement and other Implications
4.1 There are no Financial, Equality, Legal HR, Improvement or any other implications arising from this report.
5 Recommendations
5.1 It is recommended that Members note the content of the attached guidance in Appendix 5.
Background Papers
Appendix 5: Guidance for Elected Members in the Event of an Emergency
Page 236 The Role of Elected Members in the Event of an Emergency Context The NI Civil Contingencies Framework (2005) defines a major incident as an emergency that requires the special mobilisation and organisation by one or more of the emergency services and supporting organisations for: An event that arises with or without warning. An event that affects more people that can be dealt with under normal circumstances. An event or situation which threatens serious damage to human welfare or the environment. War or terrorism which threatens serious damage to security.
Introduction If an emergency were to occur within the Council area which leads to the Integrated Emergency Management Plan being invoked, there will be great pressure placed on the Council.
Councils have an obligation under national agreements or protocols to provide support to emergency services and other public services e.g. Department of Agriculture, Environment & Rural Affairs, Rivers Agency, Western Health and Social Care Trust in dealing with the consequences of an emergency.
The role of the elected members within this period can be key in determining the public perception of the Council’s response to the situation.
To ensure the response of the Council and other responding agencies with which it works is consistent, cohesive and professional, it is essential that clear lines of responsibility are defined and addressed by all involved.
Purpose The purpose of this document is to clarify the role of elected members in the Council’s response to an emergency and to give some guidance as to how they can assist.
Local Political leadership In emergencies, Councillors' civic leadership role in their own districts and communities is critical. Councillors will often be aware of vulnerabilities within their own community and can input this information in a controlled way into the emergency response process.
Page 237 Activation Reliable information in the early stages of an emergency can be difficult to obtain and it is often better for the CEO to have a clear overview of the situation before contacting members directly.
In the majority of incidents most people who are evacuated during an emergency will make their own accommodation arrangements, by going to stay with friends or family.
But, there may be a small number of people who for whatever reason are unable to do this. In this situation the Council works closely with the Western Health and Social Care Trust to provide them with temporary accommodation by opening certain Council premises such as Leisure centres as emergency support (rest) centres.
In the Council’s Integrated Emergency Management Plan a number of Council owned buildings are identified as potential rest centres, and procedures established to enable the Council's senior management team to authorise their being made available in an emergency in a controlled manner. Furthermore, several community buildings have been identified through the development of community resilience plans.
In addition, the Council has a duty to continue to deliver its essential services. The Council has developed business continuity arrangements to ensure it can achieve this.
The Role of Councillors after Activation There are normally three phases to an emergency; planning, response and recovery. In the recovery phase, command and control will transfer from the Emergency Responders to the Council. At this stage and during the restoration of normality, Councillors have a key role to play dependent upon the scale, Councillors could become involved with proposing regeneration issues, involvement in the management of any appeals funds and memorials and bringing focus to the repair and reconstruction needs of the affected community.
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