Workshop on Flood Risk Management measures & links to EU WFD November 11-12, 2015, Zagreb, Croatia

ACTIVE FLOOD DEFENCE IN CROATIA: regulatory framework, roles & responsibilities

Zoran Đurokovi ć, M.Sc.C.E. Croatian Waters Main Flood Protection Centre Head of Main Centre ∗ Climate change has intensified in recent years worldwide, including Croatia ∗ Extremely dry and wet periods have been alternating frequently in the last approximately 15 years ∗ Damage from extreme hydrological events is increasing ∗ “Average” or “normal” years are becoming increasingly rarer ∗ The frequency of high water waves and extreme water levels including floods is increasing ∗ There are almost no longer any rules concerning the occurrence of high water waves ∗ Forecasting climate models indicate increasingly frequent extreme climate events, both globally and locally ∗ Only in the last 15 years or so, the major part of the Croatian territory has experienced frequent extreme hydrological events which caused droughts in the years 2000, 2003, 2011 and 2012, but also floods in the years 2002, 2004, 2005, 2006, 2009, 2010, 2012, 2013, 2014 and 2015 ∗ Heavy damage is recorded, primarily in agriculture, but settlements, infrastructure and industrial facilities are also at risk ∗ Still, unlike in many other countries, major fatalities and disastrous damage in the urban areas have been avoided in Croatia ∗ Floods are natural phenomena which cannot be completely prevented. However, flood risks can be reduced to an acceptable level through constant development of flood defense systems and construction of water protection and regulation structures and implementation of flood defense measures ∗ Large highland regions with heavy rainfall, wide valleys of lowland watercourses, big towns and valuable assets in the areas potentially at risk, and partially insufficiently developed protective systems, make Croatia rather vulnerable to floods ∗ Around 15% of the Croatian mainland is under potential flood risk

∗ The major part of the mainland is protected from floods but at different levels of safety

The Vuka R. – Danube R., Vukovar, June 2013 ∗ As of late, floods occur even where no one expects them ∗ Increasing high water events and new maximum water levels are recorded on many watercourses (Mura, Sava, Kupa, Korana, Mrežnica, Glina, Sunja, Ilova, Orljava,…)

The Mura River, 2005 ∗ For that reason, Hrvatske vode has initiated large-scale activities in order to address the hot spots, i.e. reconstruct and extend particular parts of the flood defence system, as well as in order to construct new water regulation and protection structures for the purpose of further development of the flood defence system

∗ 3,935 km of watercourses of first order ∗ 17,000 km of watercourses of second order ∗ 4,100 km of dikes ∗ 60 multipurpose reservoirs with a total volume of 1.0 billion m 3 ∗ 44 upland retarding basins ∗ 5 large natural retarding basins with a total volume exceeding 2.0 billion m 3 (Odransko polje, Lonjsko polje, Mokro polje, Zelenik, and Kopački rit) ∗ 3 large flood relief canals (Sava-Odra, Lonja-Strug, Kupa-Kupa) ∗ 2 connecting canals (Zelina-Lonja-Glogovnica-Česma, Ilova-Pakra) ∗ 900 km of lateral canals ∗ 9 drainage tunnels in the total length of app. 17.3 km ∗ Plenty minor water regulation and protection structures

∗ In flood defence, great importance is given to the preservation of extensive floodplains or natural retarding basins in Croatia which receive large volumes of floodwaters, thus reducing the flood risk FLOOD DEFENCE IN CROATIA

Bodies responsible for flood defence: ∗ Ministry of Agriculture ∗ Hrvatske vode (Croatian Waters) ∗ Companies certified for works in implementation of preventive, regular and emergency flood defence ∗ National Meteorological and Hydrological Service (DHMZ) ∗ National Protection and Rescue Directorate ∗ Units of local and regional self-government ∗ Other competent state administration bodies

∗ Pursuant to the Water Act, flood defence is managed by Hrvatske vode ∗ Flood defence activities are emergency service ∗ Operational flood risk management and immediate implementation of flood defence measures are regulated by: - National Flood Defence Plan - Master Flood Defence Implementation Plan - Flood Defence Implementation Plans for defended areas ∗ Hrvatske vode also drafts planning documents for flood protection foreseen by the Water Act: - Flood Risk Management Plan - River Basin Management Plan - Long-Term Programme for Construction of Water Regulation and Protection Structures and Amelioration Structures (adopted by the Croatian Government) NATIONAL FLOOD DEFENCE PLAN ∗ The National Flood Defence Plan is adopted by the Government.

∗ It regulates: - Territorial units for flood defence - Flood defence stages - Flood defence measures - Bodies responsible for flood defence - Management of flood defence, incl. obligations and rights of the flood defence managers - Contents of flood defence implementation plans - An early warning system and a communications system MASTER FLOOD DEFENCE IMPLEMENTATION PLAN (July 2015) ∗ The Master Flood Defence Implementation Plan and the Flood Defence Implementation Plans for defended areas in Croatia are adopted by Hrvatske vode.

∗ The Master Plan is publicly available at the website of HV (www.voda.hr ) ∗ It contains: - Overview of territorial units for immediate implementation of flood defence measures (including the numbers and references of sections and other required data) in the defended areas by sectors and the associated water protection facilities on which flood defence measures or measures for protection from ice on watercourses are implemented - Section-specific water levels at which state of alert, regular and emergency flood defence, and state of emergency are proclaimed - Criteria for defence from ice on watercourses - The deployment of flood defence managers and their deputies from Hrvatske vode, and of legal entities and their managers and deputies registered for the activities of flood defence and defence from ice on watercourses, as well as the deployment of flood defence managers from legal entities managing dams and reservoirs - Obligations of the Croatian Meteorological and Hydrological Service (DHMZ) to collect and submit data, forecasts and warnings about hydrometeorological phenomena significant for flood defence - Instructions for the preparation of reports on the implemented flood defence measures - A map delineating the borders of defended areas. SECTORS AND DEFENDED AREAS FOR FLOOD DEFENCE IMPLEMENTATION Defended areas

Sectors and borders of defended areas in Croatia FLOOD DEFENCE IMPLEMENTATION ∗ Flood defence in the Republic of Croatia is implemented in territorial units for flood defence: - River basin districts - Sectors - Defended areas - Sections ∗ The Republic of Croatia is divided in 2 river basin districts, 6 sectors and 34 defended areas ∗ Defended areas are divided in several sections FLOOD DEFENCE IMPLEMENTATION ∗ River basin districts are territorial units for planning and reporting within flood risk management ∗ Flood risk is estimated, flood hazard maps and flood risk maps are prepared, flood risk management plans are made on the level of a river basin district ∗ Water Act defines the Danube River Basin and the Adriatic Sea Basin, borders between river basin districts are determined by the Government of the Republic of Croatia ∗ Sectors are main operative territorial units for flood defence implementation ∗ Coordination and operative management of flood defence is conducted on the sector level in all defended areas within sector borders FLOOD DEFENCE IMPLEMENTATION ∗ Defended areas are basic units for flood defence implementation ∗ Operative flood defence management is conducted in the level of defended areas, orders by the main Flood Defence Centre and from the sector level are implemented, and in case there is no order, independent action during flood defence is provided ∗ Sections are the lowest territorial units within defended areas where in case flood danger occurs states are monitored and flood defence is directly implemented on water protection structures ∗ Number and references of individual sections are defined by the Master Flood Defence Implementation Plan EXTRACT FROM MASTER FLOOD DEFENCE IMPLEMENTATION PLAN (July 2015) MAIN FLOOD DEFENCE CENTER ∗ The Main Flood Defence Centre (MFDC) is established as the central organizational unit of Hrvatske vode for the management of regular and emergency flood defence on the national level. ∗ The MFDC is the place of central management and main coordination and the place where a flood defence communications and notification system is established . ∗ The MFDC provides expert and technical support to the general manager of flood defence. ∗ The MFDC is seated in the headquarters of Hrvatske vode in Zagreb; ∗ The MFDC includes flood defence centres on the level of all 6 sectors on the territory of the Republic of Croatia. FLOOD DEFENCE MANAGEMENT

∗ Flood defence is managed by the general manager of flood defence, the manager of the Main Flood Defence Centre, and managers of flood defence by territorial units (sectors, defended areas and sections) ∗ General manager of flood defence is General Manager of Hrvatske vode ∗ Each sector, defended area and each individual section has its flood defence manager and his/her deputy ∗ The deployment of appointed flood defence managers and their deputies forms an integral part of the Master Flood Defence Implementation Plan. STAGES OF FLOOD DEFENCE

∗ Master Flood Defence Implementation Plan establishes the relevant water levels and criteria for declaring flood defence measures for each section. ∗ There are four stages of flood defence depending on the water level: 1. State of alert 2. Regular flood defence 3. Emergency flood defence 4. State of emergency Normal state

- planning and maintenance of water systems and water structures - planning and construction, reconstruction and extension of water protection and regulation structures - supervision of the existing facilities that are part of the flood defence system - provision of a designated flood storage area in multipurpose reservoirs State of alert State of alert precedes the declared regular flood protection measures, and in principle starts when water from the watercourse channel starts to overflow into a regulated inundation

-Regular inspection of the water regulation and protection structures to ensure they are in a good working condition - Regular inspection of the condition of the watercourse channel to ensure that there is a controlled and risk-free high water flow Regular flood defence The beginning and end of regular flood defence in individual sections of the watercourse is declared by the decision of the defended area flood defence manager - flood defence section managers are on continuous duty service and so are defence centres and communication systems - order is given to deploy the legal person carrying out flood defence works in endangered area - according to the order given by defended area flood defence manager emergency works are conducted on the existing water structures and watercourses if necessary. Emergency flood defence -The beginning and end of emergency flood defence in individual sections of a watercourse is declared with a decision by the sector flood defence manager when the water or flow levels reach the level indicated in the Master Flood Defence Implementation Plan - Sections are monitored continuously 24 hours. - 24-hour duty in the flood defence centre is established. - Critical spots in the flood defence system are urgently repaired. - Activities are coordinated with the Rescue and Protection Headquarters and the National Protection and Rescue Directorate. State of emergency - The beginning and end of the state of emergency in individual sections of a watercourse is declared with a decision by the sector flood defence manager when the water or flow levels reach the level indicated in the Master Flood Defence Implementation Plan - Highest degree of flood defence measures when there is an immediate risk of a breach, collapse or overflow of the water protection structures - All necessary measures are conducted on the water protection structures as during emergency flood defence measures IMPLEMENTATION OF FLOOD DEFENCE MEASURES ∗ Flood defence can be preventive, regular and emergency ∗ Preventive flood defence includes regular maintenance works on waters and water protection structures for the purpose of reducing the flood occurrence risk ∗ Regular and emergency flood defence includes measures taken immediately before the flood hazard, during the flood hazard and immediately after cessation of the hazard in order to reduce potential flood damage ∗ By application of regulations from the Public Procurement Act Hrvatske vode assign the immediate implementation of preventive, regular and emergency flood defence to the legal person that fulfils special requirements for performing flood defence activities in an individual defended area for the period of 4 years ∗ The legal person performing flood defence activities is required at any moment, upon the call from Hrvatske vode, unconditionally and without the right to objection, to participate in terms of all available manpower, equipment and material means during implementation of flood defence measures in a defended area where they are deployed, and if necessary to respond in terms of manpower and equipment in the implementation of flood defence measures in other defended areas as well ACTIVE FLOOD DEFENCE

February 2014 rainfall deviating from the multi-annual average (source: DHMZ) NATURAL RETENTION AREAS AND FLOOD DEFENCE SYSTEM OF SREDNJE POSAVLJE

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2 1 – Jankomir spillway 2 – Sluice gate Prevlaka 3 – Palanjek spillway 4 – Sluice gate Trebež 5 – Southern dike 7 3 6 – Eastern dike 5 7 – Odra River mouth

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Karlovac, Gornje Mekušje Kupa, Letovani ć Kupa, Letovani ć Kupa, Letovani ć

∗ Due to overlapping and long-lasting water waves on the Kupa and Sava Rivers, the flow of the Kupa River, which enters the Sava in the town of Sisak, was retarded ∗ Its direct consequence was that the natural retarding basin of Odransko polje was filled to capacity, receiving more than 300 million m 3 of water - Parts of the settlements on the border of Odransko polje were flooded - Large water volumes spread over vast areas all the way to Čička Poljana and Velika Gorica, lying in the immediate vicinity of the City of Zagreb

Sisak, bridge on Odra R. The Odra entering the Kupa in the town of Sisak (high waters entering Odransko polje)

Kupa Odransko polje – Čička Poljana Odransko polje – satellite view Odransko polje – satellite view Prevlaka sluice gate – Sava waters released into natural retention areas of Lonjsko polje Palanjek spillway (Sava waters released into Lonjsko polje) Lonjsko polje retarding basin – old southern dike Lonjsko polje retarding basin – old southern dike Lonjsko polje retarding basin – old southern dike ∗ Due to the release of large volumes of water and inflow from the natural watercourses, the Lonjsko polje retention basin was soon filled to capacity (500 million m3) ∗ For that reason, the eastern dike of the Lonjsko polje retention basin was cut off as an emergency measure, thus releasing the excess water volumes into the natural retention basins of Mokro polje Water flowing over from Lonjsko polje RB into Opeka RB, which belongs to the system of Mokro polje RB Opeka retarding basin – settlement of Kraljeva Velika Opeka retarding basin – provisional earth embankment protecting the settlement of Bukovica

Trebež

Elevating the dike of the Opeka RB to protect the settlement of Puska Dike of RB Opeka (Puska)

∗ In order to ensure efficient flood protection all competent authorities within the protection and rescue system need to cooperate, including local and regional self-government units and the National Protection and Rescue Directorate that is, according to the National Flood Defence Plan, the bearer of basic authorities in the area of protection against disasters and major catastrophes, including those caused by floods. Sop Bukevski, September 2010

Čička Poljana, September 2010 Letovani ć, September 2014 ∗ National Protection and Rescue Directorate implements all necessary measures in organizing disaster management in accordance with the regulations of the Protection and Rescue Act and the Rescue and Protection Plan on the territory of the Republic of Croatia Protection and Rescue Headquarters of the Republic of Croatia in Sisak ∗ Other participants can also be deployed through the National Protection and Rescue Directorate (NPRD), as well as local and regional self- government units’ Protection and Rescue Headquarters, i.e. based on decision issued by head of local and regional self-government units on the obligation to participate imposed on certain legal persons and citizens from endangered areas. ∗ Operative cooperation between Hrvatske vode, regional units’ Protection and Rescue Headquarters and the National Protection and Rescue Directorate enables better coordination and successful use of all forces in the field, with a clear division of tasks and competences, thus achieving better operative efficiency of forces in the field. Apart from local and regional cooperation, the Protection and Rescue Headquarters of the Republic of Croatia holds sessions in order to better prepare and coordinate flood defence on the national level. ∗ According to the Communications’ Protocol between NPRD 112 centers and flood defence centers and the conclusion by Protection and Rescue Headquarters of the Republic of Croatia, members of the Croatian Army can also be deployed for flood defence, which has proven to be very important for the overall success of the implementation of flood defence measures.

∗ The perimeters of the flood defence system were not breached thanks to active flood management and implementation of flood defence measures ∗ Weather forecasts were closely monitored, on the basis of which necessary decisions were timely made ∗ Numerous interventions on water protection and regulation structures were made in order to ensure stability ∗ Water management structures were actively controlled and the existing retarding capacities were fully exploited, once again confirming the exceptional value of the system of natural retarding basins of Odransko polje, Lonjsko polje and Mokro polje ∗ The retarding basins mentioned above have received around 1.5 billion m 3 of water, thus significantly contributing to reduced flood risks and directly impacting successful implementation of flood defence measures ∗ In addition to further extension of the flood defence system (elevating and building new dikes, sluice gates, etc.), efforts will be made to additionally increase the capacities of the natural retarding basins which have been proven crucial for flood defence purposes Old and new southern dikes of Lonjsko polje retarding basin connected (increased retarding capacity) Trebež sluice gate – releasing water and Lonjsko polje RB emptying into the Sava R.

Lonjsko polje

Sava River. CONCLUSION ∗ In light of long-term forecasts it is to be expected that the trend of climate changes and extreme hydrological events will continue. Therefore adaptation to such phenomena is a must, requiring urgent repairs, reconstruction and construction of individual dike sections, as well as other water regulation and protection structures, along with continuous improvement of the implementation of flood defence measures and development of flood defence system in the sense of reducing the risk of flood occurrence and flood consequences ∗ It is also necessary to further improve inter-state water-management cooperation through better information exchange and joint development of new hydrological models for the purpose of better forecasting, monitoring and evacuating water waves, as well as timely preparation and implementation of flood defence measures in endangered areas. ∗ Apart from continuous investments in the construction of new and reconstruction of existing flood defence systems, it is also necessary to continue improving the direct implementation of flood defence measures within a water management system, and develop cooperation with all other participants that are deployed if necessary by the Protection and Rescue Headquarters and the National Protection and Rescue Directorate in the implementation of flood defence measures (armed forces, firefighter and police forces, civil protection, Croatian Mountain Rescue Service, Red Cross…) THANK YOU FOR YOUR ATTENTION