Bolton's Flood Risk Management Strategy

Bolton’s Flood Risk Management Strategy

Bolton’s Flood Risk Management Strategy www.bolton.gov.uk

Ringley Old Bridge over the River Irwell; built 1677. It replaced a previous bridge lost in a flood in 1673.

Bolton’s Flood Risk Management Strategy

Revision History

Revision Ref Amendments Issued to: Version 1, 20/02/13 Draft Report Consultation: Council members, Council Officers, United Utilities and Environment Agency Version 2, 23/05/13 Incorporation of comments by United Utilities & Post Consultation amendments

Version 3, 05/07/13 Addition of culvert policy, and comments from Canal and River Trust. Amendments following Flood Re announcement.

Bolton’s Flood Risk Management Strategy

Foreword by Councillor Nick Peel:

The risk of surface water flooding coupled with the predicted changes in climate present challenges we need to prepare for. Flooding when it occurs results in high economic losses, disrupts business and can hit communities hard from which they sometimes struggle to recover from. Through warning and informing the community, making sure development is appropriate for its location, flood defences and watercourses are maintained, we can prevent flooding being worse than it would otherwise be. We will work with our local partners and developers to build drainage systems that are environmentally, economically and socially sustainable.

Bolton’s Flood Risk Management Strategy

Executive Summary

There have been recent developments in the role and responsibilities of upper tier local authorities in managing flood risk. The commencement of the Flood Risk Regulations 2009 and the Flood and Water Management Act 2010 introduces new statutory roles for Bolton Council.

The Flood Risk Regulations adopts a new institutional structure for the management of flood risk. The management of local flood risk, involving flooding from surface water, ordinary watercourses, groundwater, canals, lakes and small reservoirs, is now the responsibility of Lead Local Flood Authorities such as Bolton Council.

The Flood and Water Management Act places new responsibilities on Bolton Council, the main ones being: Locally leading on flood management. Mapping and registering flood defence assets including those in private ownership. Designating third party assets. A duty to investigate the causes of flooding. The technical approval body for Sustainable Drainage Systems (SuDS). The management and maintenance of adopted SuDS systems.

Bolton Council must develop, maintain, apply and monitor a strategy for local flood risk management in its area for the following forms of flood risk: surface runoff groundwater and ordinary watercourses

This strategy sets out how Bolton Council will take on the challenges posed by flood risk by setting local objectives and stating how these will be achieved. It also reflects the needs and priorities identified by local people, business and flood risk partners.

The strategy sets out: The risk management authorities in Bolton. The flood risk management functions that may be exercised by those authorities in Bolton. The objectives for managing local flood risk. The measures proposed to achieve those objectives. How and when the measures are expected to be implemented (see appendix D) The assessment of local flood risk for the purpose of the strategy. How and when the strategy is to be reviewed. How the strategy contributes to the achievement of wider environmental objectives.

Bolton’s Flood Risk Management Strategy

Contents Page No.

1. Introduction 1

2. Legislative Context 5

3. National Strategy 11

4. Guiding Principles of the Local Strategy 13

5. Flood Risk 16

6. Future Changes to Risk 28

7. Wider Social Economic and Environmental issues 33

8. Local Flood Risk Management Strategy 42

9. Flood Risk Management Planning and Funding 56

10. Local Strategy Policies. 60

11. Local Flood Risk Strategic Objectives 63

12. Flood Risk Management Measures and Delivery Actions 64

13. Future Progress 66

Glossary

Appendices

A What are Sustainable Drainage Systems (Suds) 74 B References / Evidence Base 80 C Culvert Policy 82 D Draft Action Plan 89

Bolton’s Flood Risk Management Strategy

Figures

Figure 1.1 Map of main rivers Figure 3.1 Managing the risk of flooding Figure 5.1 Map of the Bolton Area Figure 5.2 Bolton’s hydrological connections with other areas. Figure 5.3 The Greater Manchester Flood Risk Area. Figure 5.4 Plan showing areas susceptible to groundwater flooding. Figure 5.5 Plan showing large raised reservoirs that could potentially affect Bolton. Figure 7.1 Local areas that are the most 20% deprived in England and surface water flooding hotspots Figure 7.2 Plan of Agricultural Land Classifications Figure 7.3 Hydrological connections between river outflows in Bolton and SPA and SAC sites in the Ribble and Alt, and Mersey estuaries. Figure 7.4 Designated Environmental Sites in Bolton Figure 8.1 Example data from the GM SWMP Figure 8.2 The asset management cycle Figure 8.3 Regional and Local Governance Organogram Figure 8.4 Local Governance - Bolton Council Flood Management Structure Organogram. Figure 10.1 AGMA Investigation policy

Tables

Table 5.1 Size of the Drainage Network Table 5.2 Bolton - Key Property Flooding Risk Data Table 9.1 Relevant Flood Risk Plans

Bolton’s Flood Risk Management Strategy

1.0 Introduction

Bolton’s Flood Risk Management Strategy is an important instrument to help our community understand and manage flood risk. Its focus is on flooding due to heavy rainfall, groundwater, and from small streams and ditches. It outlines our approach to reducing the risk of flooding, and its associated misery and economic damage, in a sustainable way.

Flooding is a natural phenomenon, the adverse consequences of which can be exacerbated by poor management of the landscape and the environment, such as inadequate and irregular maintenance of watercourses. The problems of flooding can be made worse if we fail to properly address managing this risk.

In England in 2009, around 5.2 million - that’s one in six – residential and commercial properties were identified as being in areas at risk of flooding from rivers, the sea and surface water. Around 1.1 million properties are in areas that would be at risk of flooding if a nearby reservoir failed.1

Flooding by its very nature is often unpredictable in location and severity. Dealing with uncertainties that are effectively out of our control can be challenging. However, flood risk is something that can be understood and its effects are generally predictable. This means that the impacts can be mitigated, up to a point, and response and recovery can be more effective and efficient.

The form of flooding we are most familiar with is from rivers overtopping their banks. Another common form is flooding along coasts from high tides and storms. Less well known and understood is rainfall related (pluvial) flooding which occurs following intense downpours that overwhelm drainage systems or when it cannot infiltrate into the ground quickly enough resulting in overland run-off. These types of floods can occur with little warning and in areas not obviously prone to flooding. Pluvial flooding is also more likely to occur in urban areas due to predominance of impermeable surfaces and the density of buildings.

To illustrate surface water flooding risk, a report by the insurer AXA2 showed that in 2007, 75% of their flood claims were as a result of surface water and in the Cumbrian floods of November 2009 less than a third of flood claims were in a designated high flood risk region.

1 Defra “National flood and coastal erosion risk management strategy for England.” 2 AXA “The True Cost of Flooding” November 2010 Bolton Council

Bolton’s Flood Risk Management Strategy

Recent experience in the UK has shown the effects of large-scale flooding in central and eastern England during summer 2007, Cumbria in 2010, and many other occurrences in previous years.

People often base their perception of flood risk on personal experience or intuition which can often deceive. Flood victims often say that they have lived in a location nearly all their lives but have not seen anything like it before. This is largely due to the infrequent nature of very large flooding events, of which people often have no experience and which may not occur in a person’s lifetime. However, when such events occur, such as in the summer of 2007, they can lead to devastating and widespread economic loss, large-scale social disruption and have negative impacts on people’s lives that can last many years. It is estimated the flooding in 2007 cost the economy £3.2 Billion3.

In 2012, the Department for Environment Food and Rural Affairs (Defra) published a report4 assessing the future risk in the UK from climate change. The assessment reviewed the evidence for over 700 potential impacts of climate change in a UK context. Detailed analysis was undertaken for over 100 of these impacts across 11 key sectors, on the basis of their likelihood, the scale of their potential consequences and the urgency with which action may be needed to address them.

Of the highest ranked threats identified, the top 5 all related to flood risk, those 5 threats are: 1. Increase in Expected Annual Damage to residential property due to flooding. 2. Ability to obtain flood insurance for residential property. 3. Effects of floods/storms on mental health. 4. Insurance industry exposure to UK flood risks. 5. Increased number of residential properties at significant risk of flooding.

The report states that flood risk is projected to increase significantly across the UK. Increases in the frequency of flooding would affect people’s homes and wellbeing, especially for vulnerable groups (e.g. those affected by poverty, older people, people in poor health and those with disabilities), and the operation of businesses and critical infrastructure systems. Annual damage to UK properties due to flooding from rivers and the sea currently totals around £1.3 billion. For England and Wales alone, the figure is projected to rise to between £2.1 billion and £12 billion by the 2080s, based on future population growth and if no adaptive action is taken.

3 Environment Agency (2010) The costs of the summer 2007 floods in England Project: SC070039/R1 4 DEFRA, Summary of the Key Findings from the UK Climate Change Risk Assessment 2012. Bolton Council

Bolton’s Flood Risk Management Strategy

Although large-scale flooding can be a once in a lifetime event and takes place over a short timeframe, the economic, environmental, and social effects on a community can be devastating and it can take many years for the community and individuals to recover. Deprived communities are often disproportionality affected by flooding as they are impacted greater by financial losses and the effect of flooding on their well-being and mental health.

As a consequence of the summer 2007 floods, and previous similar occurrences, the government put in place a review of the management of flood risk; The Pitt Review. The recommendations of the review culminated in the Flood and Water Management Act 2010. This Act gives local authorities a greater role in the management of flood risk. It also creates the role of Lead Local Flood Authority (LLFA) for local authorities.

The flood risk management responsibilities of the Council are limited to the following sources of flooding:

Surface Water Ordinary Watercourses Groundwater

1.1 Surface Water flooding:

When very intense rainfall occurs over a short period of time, water can often not get into drainage systems quick enough. This causes water to flow overland where it gathers at low spots and in hollows; this can result in flooding to properties and infrastructure. Drainage systems and watercourses can be quickly overwhelmed by rainfall which again can cause flooding when they overflow. Surface water flooding encompasses flooding from all sources due to rainfall including from canals, sewers, reservoirs and lakes.

The Council is responsible for working with various stakeholders to minimise the risk from surface water flooding, this includes: working with the highway authority to deal with the risk of flooding of the highway; the sewerage undertaker, United Utilities, to reduce the risk of flooding from overflowing sewers; and other stakeholders such as the Environment Agency.

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Bolton’s Flood Risk Management Strategy

1.2 Ordinary Watercourses

The Environment Agency keep a map of the rivers designated as “main rivers” of England (see figure 1.1 below), where watercourses are not recorded on this map they are designated as “ordinary watercourses.” Ordinary watercourses are normally the small streams and brooks that feed into larger rivers. Bolton Council as LLFA manages flood risk on ordinary watercourses, and the Environment Agency manages flood risk on main rivers.

Figure 1.1 : Map of the main rivers in Bolton

1.3 Groundwater Flooding

Groundwater flooding occurs when rainfall either locally or some distance away causes the natural water table in the ground to rise. In some locations in the country this can lead to surface flooding. In Bolton, this type of flooding is uncommon and mostly limited to flooding of basements or under-floor areas, although from time to time small-scale surface flooding has occurred when springs suddenly become active due to rainfall.

Bolton Council

Bolton’s Flood Risk Management Strategy

2.0 Legislative Context and Roles

The floods in summer 2007 proved that there were significant gaps in the powers held by various bodies in trying to reduce and respond to the risk of flooding. The government’s response to the Pitt Review included the Flood and Water Management Act 2010. This puts in place many of the changes recommended by Sir Michael Pitt in the aftermath of the 2007 floods, allowing for wider changes to the roles and responsibilities of the relevant bodies.

Following Royal Assent in April 2010 the Flood and Water Management Bill became an Act of Parliament. As a consequence, upper tier local authorities have taken on new powers and duties extending their previous responsibilities for flood risk management.

The two key drivers behind the new legislation are the review in to the summer 2007 floods by Sir Michael Pitt, most often referred to as the Pitt Review, and the other is the EU Floods Directive, which has been transposed into UK law by the Flood Risk Regulations 2009.

The Flood and Water Management Act 2010 aims to provide better, more comprehensive management of flood risk for people, homes and businesses.

The Act defines various bodies which are ‘risk management authorities’ and lists them as the following: a lead local flood authority (Bolton Council) the Environment Agency a sewerage utility company (In this area United Utilities) and a highway authority (Bolton Council and the Highways Agency)

All risk management authorities have the following new responsibilities under the provisions of the Act: A duty to cooperate with and provide information to other risk management authorities. An ability to take on flood functions from another risk management authority when agreed by both sides.

2.1 The Flood and Water Management Act 2010 (FWMA)

The legislation introduces a number of new statutory bodies and partnerships, together with new duties and powers for local authorities. These are described briefly below.

2.1.1 Lead Local Flood Authority

The role of local authorities is enhanced so that they take on responsibility for leading the co- ordination of flood risk management in their areas. The Flood and Water Management Act (FWMA) provides for this through the new role of the “lead local flood authority” (LLFA). In the Bolton area Bolton Council is the lead local flood authority.

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Bolton’s Flood Risk Management Strategy

2.1.2 Local Partnerships

The role of the LLFA is to bring together all relevant bodies to help manage local flood risk. The important roles played by highway authorities and water companies are also recognised in the Act and these bodies, together with the Environment Agency, are identified as “risk management authorities”.

The Act enables effective partnerships to be formed between the LLFA and the other relevant authorities who retain their existing powers. It requires the relevant authorities to co-operate with each other in exercising functions under the Act and they can delegate to each other. It also empowers Bolton Council or the Environment Agency to request information from others needed for our flood risk management functions.

Locally a partnership known as the Greater Manchester Flood & Water Management Board, has been formed at a city region level with United Utilities and the Environment Agency that provides an effective structure for working both regionally and locally.

Figure 2.1 : Local Flood Risk Partners and their Risk Management Functions

Surface Water Public Sewers Sea Groundwater Water Supply Main Rivers Ordinary Reservoirs Watercourses Highway Drainage

2.1.3 Flood Risk Management Strategies

The Environment Agency has developed and published a national strategy for the management of all sources of flood risk for England. The Act requires each lead local flood authority to develop, maintain, apply and monitor a strategy for local flood risk management in its area. Bolton Council will be responsible for ensuring the strategy is put in place but the local partners can agree how to develop it in the way that suits them best. The Act sets out the minimum that a local strategy must contain, and Bolton Council is required to consult on the strategy with the local risk management authorities and the public.

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Bolton’s Flood Risk Management Strategy

2.2 Local Roles and Responsibilities

Flooding Type Description Party Responsible for Managing the Risk Surface Water Flooding Flooding from intense downpours of rain that Bolton Council result in large volumes of run-off from land or when drainage systems cannot cope with the amount of rainfall. Groundwater Flooding Occurs when the ground water-table rises Bolton Council causing flooding. Highway Flooding Occurs when the highway drainage system or Bolton Council, the sewers they discharge to cannot cope with United Utilities, the amount of rainfall entering the system, or Highway Agency when gully’s become blocked. (Motorways) Ordinary Watercourses Flooding from intense downpours of rain that Bolton Council result in large volumes of run-off from land causes streams and culverts not marked on the main river map to overflow. Main River Flooding from rivers or streams on the main Environment Agency river map Reservoirs Flooding from reservoirs falling under the Environment Agency provisions of the Reservoirs Act Sewer Flooding Occurs when the amount of water entering the United Utilities sewer system exceeds its design capacity or when the system becomes blocked. Water Supply Flooding Occurs when water mains burst. United Utilities Canals Breach’s of embankments supporting canals Canal and River Trust can result in flooding. Railways Flooding from intense downpours of rain that Network Rail result in large volumes of run-off from land on to the railway or when drainage systems on the rail network cannot cope with the amount of rainfall.

It is the role of Bolton Council as the Local Flood Risk Authority to ensure the above flood risk management authorities work together to deliver improvements in flood risk management and to hold them to account.

Utility providers such as, United Utilities as sewerage and water undertaker, National Grid and Electricity North West have additional responsibilities: Planning the future development and maintenance of services. Taking account of flood risk management plans in their own planning process and ensuring their assets and systems are resilient to flood risks. Ensuring the required level of service can be maintained in the event of a flood incident.

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Bolton’s Flood Risk Management Strategy

2.2.1 Other External Partners

In addition to the flood risk authorities there will be many other external agencies and bodies we will need to create partnerships with to deliver the many aspects of flood risk management. The following list of partners have an input into flood response, or management of the water environment:

Greater Manchester Civil Contingencies and Resilience Unit Emergency Services Highway Agency The town councils of Blackrod, Horwich, and Westhoughton. Red Rose Forest Network Rail Natural England Lancashire, Manchester and North Merseyside Wildlife Trust Land Owners and Estate managers

2.3 New Duties

The FWMA introduces several new duties and powers to Bolton Council, these are outlined below.

2.3.1 Duty to act consistently with local and national strategies

The FWMA requires local flood risk management strategies to be consistent with the national strategy – in particular the guiding principles for managing flood risk set out in the National Strategy. This local strategy will build on information such as national risk assessments and will use consistent risk based approaches across different local authority areas and catchments. This local strategy will not be secondary to the national strategy, rather it will have distinct objectives to manage local flood risks important to the local communities.

2.3.2 Duty to maintain a register of flood risk assets

To clarify maintenance responsibilities and ensure greater co-ordination of information, Bolton Council will maintain a register of structures or features which they consider have a significant effect on flood risk in their area, at a minimum recording location, ownership and state of repair. The register is to be available for public inspection and regulations will be made about the content of the register and records.

The register once formed will also enable a risk based approach to indicate where inspection and maintenance regimes should be focused in order to reduce flood risk. This will require the location of assets to be considered alongside other data such as computer flood modelled data, location of critical infrastructure, property, and transport infrastructure.

Our criteria for the definition of significant is outlined in section 10.

Bolton Council

Bolton’s Flood Risk Management Strategy

2.3.3 Duty to investigate flooding incidents

To ensure greater cooperation and avoid situations where bodies do not accept responsibility, Bolton Council will investigate flooding incidents in its area (where appropriate or necessary) to identify which authorities have relevant flood risk management functions and what they have done or intend to do. Bolton Council will then be required to publish the results of any investigation, and notify any relevant authorities.

2.3.4 Ensuring local progress

The FWMA enables the local authority’s overview and scrutiny committees to hold all the risk management authorities to account. In this way, the public can be actively involved in ensuring each of these authorities perform.

2.3.5 Powers to do works to manage flood risk

The FWMA provides the LLFA with powers to do works to manage flood risk from surface runoff and groundwater. There are existing powers to do works on ordinary watercourses. Any works must be consistent with the local flood risk and water management strategy for the area.

2.3.6 Protection of privately owned flood defences (Designation of third party assets)

The FWMA provides Bolton Council, and the Environment Agency with powers to designate structures and features that affect flooding. The powers are intended to overcome the risk of a person damaging or removing a structure or feature that is on private land and which is relied on for flood risk management.

Once a feature is designated, the owner must seek consent from Bolton Council to alter, remove, or replace it. If someone does make a change to a designated feature, then the authority may issue an “enforcement notice” which will set out any steps that must be taken to restore a feature. An individual may appeal against a designation notice, refusal of consent, conditions placed on a consent or an enforcement notice.

2.3.7 The Approval Body for Sustainable Drainage Systems (SuDS)

A key aspect of reducing flood risk is the removal of the right for developers to connect to a public sewer without first exploring alternative means of surface water disposal. This is to promote the use of Sustainable Drainage systems (SuDS), the elements that make up these systems are described further in Appendix A.

SuDS aim to move away from the traditional use of conventional piped drainage systems, through the greater use of :

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Bolton’s Flood Risk Management Strategy

Permeable surfaces Swales Filter Strips Flood Storage Basins Ponds and wetlands

The use of these types of features will lead to reductions in flood risk and improvements in water quality.

The statutory requirement for SuDS in new development is contained in Schedule 3 of the FWMA; this part of the Act has yet to be enacted. Schedule 3 will establish Bolton Council as a SuDS Approving Body (the “SAB”). The SAB will have responsibility for the approval of proposed drainage systems in new developments and redevelopments. Approval must be given before the developer can commence construction.

In order to be approved, the proposed drainage system would have to meet new national standards for sustainable drainage.

The SAB will also be responsible for adopting and maintaining SuDS which serve more than one property. Bolton Council as the Highway Authority will be responsible for maintain SuDS serving public roads.

The SAB must arrange for SuDS on private property, whether they are adopted or not, to be designated under Schedule 1 to the Act as features that affect flood risk. The SAB will also be required to arrange for all approved SuDS to be included on the register of structures and features.

National Standards will set out the criteria by which the form of drainage appropriate to any particular site or development can be determined, as well as requirements for the design, construction, operation and maintenance of SuDS.

Schedule 3 of the FWMA also makes the right to connect surface water drainage from new development to the public sewerage system conditional on the surface water drainage system being approved by the SAB.

As Schedule 3 of the FWMA has yet to be commenced, the requirement for SuDS in new development outlined above is not yet a legal requirement. Defra expect to implement Schedule 3 in April 2014.

Bolton Council

Bolton’s Flood Risk Management Strategy

3.0 National Strategy

The national strategy’s overall aim is to ensure that flood risk is well-managed and co-ordinated, so that its impacts are minimised.

3.1 What is the National Strategy?

The Environment Agency and the Department for Environment, Food and Rural Affairs (Defra) have published a National flood and coastal erosion risk management strategy for England to ensure that government, the Environment Agency, local authorities, water companies, and other organisations that have a role in flood risk management understand each others’ roles and coordinate how they manage these risks. This fulfils a requirement in the Flood and Water Management Act 2010, which gave the Environment Agency a ‘strategic overview’ of flood risk management and in turn takes forward a recommendation from Sir Michael Pitt’s inquiry into the 2007 floods.

The key themes in the national strategy are set out below and give a guide to all the organisations that will work together with communities to:

• Manage the risk of flooding to people and their property. Over time, we will be able, where possible, to improve standards of protection.

• Help householders, businesses and communities better understand and manage the flood risks they face.

• Respond better to flood incidents and during recovery.

• Move the focus from national government-funded activities towards a new approach that gives more power to local people, either at an individual, community or local authority level. Local innovations and solutions will be encouraged too.

• Invest in actions that benefit communities who face the greatest risk, but who are least able to afford to help themselves.

• Put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy.

3.2 What can be done?

The National flood and coastal erosion risk management strategy for England stresses the need for risk to be managed in a co-ordinated way across river catchments, embracing the full range of practical options and helping local decision-making.

The strategy helps bring together government and the authorities who are responsible for managing these risks with the organisations, communities, and people who are at risk. In summary, the strategy encourages them to work together to:

Bolton Council

Bolton’s Flood Risk Management Strategy

• Know when and where flooding is likely to happen. Risk management authorities need to improve their understanding of the risks of flooding. They particularly need to develop a better understanding of surface water and ground water flood risk.

• Make sure that any flood risk management plans use the most up-to-date information and raise awareness of these risks among affected communities.

• Reduce the chance of harm to people and damage to the economy, environment and society by building, maintaining and improving flood erosion management infrastructure and systems, where it is affordable to do so.

• Help communities understand the risks and take action to manage them or reduce the consequences - for example, by making their properties more resilient.

• Avoid inappropriate development in areas of flood risk.

• Improve the detection and forecasting of floods and how warnings are issued, so that people, businesses and public services can take action, plan for and coordinate a rapid response to flood emergencies and promote faster recovery from flooding.

• Take opportunities to work with and enhance communities, services and the natural environment.

Figure 3.1 : Managing the risk of flooding

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Bolton’s Flood Risk Management Strategy

4.0 Guiding Principles of the Local Strategy

4.1 Guiding Principles from National to Local Strategic Aims and Objectives

Flood risk management often means that difficult decisions have to be taken on where action should and should not take place. The national strategy aims to guide these decisions locally by setting out six high level principles. These principles are centred on:

Community focus and partnership working A whole catchment based approach Sustainability Proportionate risk based approach in targeting resources Contribute multiple economic, environmental and social benefits Beneficiaries of actions encouraged to invest in risk management

4.2 Community focus and partnership working

Risk management authorities need to engage with communities to help them understand the risks, and encourage them to have direct involvement in decision-making and risk management actions. Working in partnership to develop and implement local strategies will enable better sharing of information and expertise, and the identification of efficiencies in managing risk.

4.3 A whole catchment based approach

In understanding and managing risk, it is essential to consider the impacts on other parts of the catchment. Activities must seek to avoid passing risk on to others within the catchment without prior agreement. In developing local strategies Bolton Council shall ensure that neighbouring LLFAs within catchments are involved in partnerships and decision making. Strategic plans such as Catchment Flood Management Plans (CFMPs) should be used to help set strategic priorities for local strategies. Regional Flood and Coastal Committees will have an important role in this approach.

The national strategy identifies that careful planning is required to ensure that appropriate, sustainable options are selected and that they are implemented properly. The local strategy provides an opportunity to present a clear picture of what will be done to manage risk, and bring together relevant information contained in other plans and strategies such as Catchment Flood Management Plans (CFMP), and River Basin Management Plans (RBMPs). This will help communities understand the risks they face, what they can do to manage them and how risk management authorities are working together to help manage them. They should also link with local and neighbourhood development plans.

Bolton Council

Bolton’s Flood Risk Management Strategy

4.4 Sustainability

Bolton Council shall aim to support communities by managing risks in ways that take account of all impacts of flooding (for instance on people, properties, cultural heritage, infrastructure and the local economy) and the whole-life costs of investment in risk management. Where possible, opportunities should be taken to enhance the environment and work with natural processes. Risk management measures should also be forward looking, taking account of potential risks that may arise in the future and being adaptable to climate change. Government guidance has been published by Defra setting out the link between sustainable development and risk management called “Guidance for risk management authorities on sustainable development in relation to their flood and coastal erosion risk management functions”.

When creating new or maintaining existing assets, we shall build in resilience to more extreme events that provide long term value for money and reduced whole life costs. Ensure we build resilient future proofed development, prevent inappropriate development through planning policy and achieve environmental, social and economic benefits consistent with sustainable development.

4.5 Proportionate, risk-based approaches

It is not technically, economically or environmentally feasible to prevent flooding altogether. A risk-based management approach targets resources to those areas where they have greatest effect. All aspects of risk management, including the preparation and implementation of local strategies, should be carried out in a proportionate way that reflects the size and complexity of risk. The assessment of risk should identify where the highest risks are and therefore the priorities for taking action.

4.6 Multiple benefits

As well as reducing the risks to people and property, flood risk management can bring significant economic, environmental and social benefits. In developing and implementing local strategies, Bolton Council shall help deliver broader benefits by working with natural processes where possible and seeking to provide environmental benefit, including those required by the Habitats, Birds and Water Framework Directive. Measures such as the use of SuDS to manage risk should be considered wherever possible as they can also deliver benefits for amenity, recreation, pollution reduction and water quality.

Flood risk management also has the potential to bring significant economic, environmental and social benefits. For example, sustainable drainage systems that rely on storage ponds etc provide opportunities to enhance the built environment as well as improving biodiversity and providing habitat creation. Freshwater ponds can be biodiversity hotspots and are key habitats for many of the UK’s priority species.

It is now accepted that a badly designed streetscape is in the long-term costly both economically and socially; assets are unwanted and become uncared for or vandalised; it reduces pride in an

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Bolton’s Flood Risk Management Strategy area; and impacts on any economic improvement. Local authorities should aim to deliver good resilient designs that have a long-term future. Local ponds lead to more attractive development that can enhance the desirability of an area.

It is our intention to grasp the additional opportunities in SuDs design to exploit:

Landscape design Amenity Reduce Pollution Wildlife Habitat Water Resources

A recent publication by CIRIA entitled “Water Sensitive Urban Design in the UK” suggests how to achieve the above through a process of integrating water cycle management with the built environment through planning and urban design.

New urban pond creation offers recreation and educational opportunities. Soft Landscape SuDs when used as an educational resource, can show how nature develops through the year, how reed beds function, what wildlife and birds are attracted to water, and support activities such as Pond Dipping.

4.7 Beneficiaries should be allowed and encouraged to invest in local risk management

The benefits achieved when flood risk is managed can be both localised and private, through the protection of specific individuals, communities and businesses. In developing local strategies, Bolton Council shall consider opportunities to seek alternative sources of funding for managing local flood risk rather than relying solely on government funds.

The funding regime that has been introduced by the government encourages local investment to support flood protection or reduction schemes. This is to ensure that future plans are not constrained by what funding central government could provide. The overall funding regime is designed to ensure there is the opportunity for significantly more risk management activity to take place if alternative sources of funding can be secured in each area to reflect the local benefits that would be delivered.

Bolton Council

Bolton’s Flood Risk Management Strategy

5.0 Flood Risk

An assessment of local flood risk

5.1 Local Context

Bolton developed rapidly in the 18th and 19th century’s with the development of many industries largely based around the textile trades. Much of the drainage infrastructure dates from this period when large-scale culverting of natural watercourses was undertaken to enable development and during which some of the nation’s first sewers were constructed.

By the early 20th century the town had over 200 large mills and over 25 bleach works. These industries depended heavily on water supplies and in many places in the town have shaped today’s drainage systems. There is a legacy of aging drainage infrastructure that continues to pose a risk of collapse in the borough.

Since the middle of the 20th century, the traditional manufacturing base has been completely re- shaped and other sectors have grown to replace manufacturing. Some production industries have modernised around new technology and the service sector has grown significantly.

Bolton forms part of the Manchester City Region which is a major centre for economic activity and is the focus of a significant proportion of the future development activity for the region.

The borough of Bolton is one of ten metropolitan districts in Greater Manchester. It is bounded to the north by the Lancashire districts of Chorley, and Blackburn with Darwen, and on the remaining sides by the Greater Manchester districts of Wigan, Bury and Salford.

With the exposure of the area to westerly maritime air masses and areas of high ground in the form of the West Pennine Moors, Bolton is one of the wetter parts of the Manchester region. Due to the range of topography across the borough there is also a variation in average annual rainfall from around 1000 mm in the south and west to around 1500 mm on the higher areas on Smithills Moor. In Bolton the number of rainy days per year where rainfall is more than 1mm is around 160.5

About half of the borough is built up, with the remainder being countryside, mainly in agricultural use or open moorland. The key landscape features of the borough are its moorland backdrop, remnant areas of woodland, river valleys and pastoral agricultural land. The undulating topography and rising land of the West Pennine Moors influences flood risk in the borough.

The highest point in the borough is Winter Hill to the north of the area, at a height of 456m. The lowest parts of the borough are in Kearsley in the southernmost part of the borough at around 40m above sea level.

5 Met Office: Climate data averages: [accessed 12th August 2012]

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Bolton’s Flood Risk Management Strategy

Figure 5.1 : Map of the Bolton Area

Urban development is concentrated on a spine through the town centre, leading into the rest of the Greater Manchester conurbation to the south. Bolton is the most significant town centre in the borough, with smaller town centres in Horwich, Farnworth, Westhoughton, Little Lever, and Blackrod.

The ground varies across the borough, the upland areas are generally covered in peat, there are occasional pockets of sand and gravel deposits most of which are confined to river valleys but by far the most prevalent deposit is of boulder clay. The boulder clay is varied and can be riven with bands of sand and gravel deposits, consequently, groundwater hydrology can vary considerably across even small sites.

The Bolton area contributes to three distinct river catchments: part of Horwich and Blackrod areas drain into the River Douglas which ultimately flows northwards and enters the Ribble Estuary west of Preston; parts of Blackrod, Westhoughton, and Over Hulton drain in a south-westerly direction to the Mersey Estuary via Wigan; the remainder and drains to the River Irwell which flows southwards through the administrative areas of Bury, Salford, Manchester and Trafford, then onwards to the Mersey estuary.

The figure below illustrates the interconnectivity of the hydrological links in the area. Bolton receives inflows from Chorley, Blackburn with Darwen, Rossendale and Bury. It has outflows which contribute to rivers in Wigan, West Lancashire, Salford, Manchester, Trafford and Warrington.

Bolton Council

Bolton’s Flood Risk Management Strategy

Figure 5.2 : Bolton’s hydrological connections with other areas.

We shall work locally with the city region and other adjacent local authorities to consider any impacts beyond our administrative borders. Actions and measures taken by upstream communities can have an effect on downstream communities. We need to be mindful of this when making local decisions and setting policies that both the local and regional needs are considered.

Catchment Flood Management Plans (CFMPs) have been prepared by the EA, these identify short, medium and long term aspirations for how each catchment is managed and identify actions that could be undertaken in risk and land management.

CFMPs for the North West region are available at http://www.environment-agency.gov.uk/research/planning/114513.aspx

An example of the type of policies promoted by the CFMP in the Bolton area is as follows:

Explore ways of achieving land management change to reduce run-off from the upper catchment, for example through blocking of moorland grips, creation of storage ponds, targeted woodland creation.

Bolton Council

Bolton’s Flood Risk Management Strategy

5.2 Size of the Land Drainage network

The approximate size our drainage network is as follows:

Table 5.1: Size of Drainage Network

Asset Type Quantity

Length of ordinary watercourses 351 km

Length of main river 101 km

Number of debris screens maintained by Bolton Council 109

Number of debris screens maintained by Environment Agency 26

Length of culverted watercourse 104 km

Length of culverted main river 19 km

Number of manholes on watercourses more than 920 The area of standing water (lakes, ponds etc) owned 26.4 hectares or managed by Bolton Council Number of highway gullys 57,000

Approximate length of highway drainage 175 km

Bolton Council

Bolton’s Flood Risk Management Strategy

5.3 Local Flood data

Bolton Council has for over 20 years recorded and maintained information on incidents of flooding from ordinary watercourses, surface water and groundwater in the area. The information is held in both map and database forms, these will continue to be maintained and further developed.

In recent years the Environment Agency has produced river and surface water flood risk mapping, modelling and data which is shared with local authorities. The Greater Manchester Surface Water Management Plan (GMSWMP) project has produced an updated surface water map for the Greater Manchester Area which shows the areas likely to flood during different intensities of rainfall. As part of the SWMP, UU as the sewerage undertaker for the area has shared sewer flood data with the authorities.

Using this information will help us understand the local risks and enable us to identify priorities and allocate resources.

The area contains four rapid response catchments: Eagley Brook at Eagley Middle Brook and Bessy Brook at Lostock Junction River Irwell at Kearsley River Croal at Burnden

Rapid response catchments are those that will respond quickly to intense rainfall with peak river flows occurring within a few hours. Usually these are small, steep catchments containing a large proportion of impermeable soils or urban cover. These types of catchment present challenges in terms of making accurate flood forecasting and preparing and responding to emergencies due to the short timescales involved.

Plans showing these areas are available at www.environment-agency.gov.uk

The area also contains four flood warning areas: River Irwell at Kearsley Eagley Brook at Astley Bridge Eagley Brook at Eagley Eagley Brook at Dunscar

These are areas where the flood risk is high and are so positioned in a catchment where river levels can be monitored and predictions made in advance of flooding occurring. This enables the EA to issue predictive warnings to be given in sufficient time, that preparations and actions can be undertaken before any flooding occurs.

Plans showing these areas are available at www.environment-agency.gov.uk

Bolton Council

Bolton’s Flood Risk Management Strategy

Table 5.2 : Bolton - Key Property Flooding Risk Data 6

Flood Source Rainfall Event Residential Non- Hospitals Schools Telecoms Emergency Properties Residential Sites Services Properties Surface Water 1 in 30 year annual risk (3.3 % chance per year) 300 mm depth (1) 702 358 0 5 6 0 1 in 200 year annual risk (0.5 % chance per year) 1946 780 1 12 14 1

1 in 200 year annual risk with 2563 970 1 13 18 1 climate change allowance (2) Sewer 1 in 30 annual risk (3.3 % chance per year) 184 310 0 0 5 0

River 1 in 100 year risk Not (1% chance per year) 933 374 0 0 1 available 1 in 1000 year risk Not (0.1% chance per year) 2322 699 0 4 1 available

Notes: 1. Data from the GMSWMP and only includes properties flooded to a depth of 0.3m or more. 2. Climate change scenario used in above estimate is the medium emissions scenario in 2080.

6 JBA Consulting – Greater Manchester SWMP. “Stage 1 – A Strategic Assessment of Surface Water Flood Risk” Bolton Council

Bolton’s Flood Risk Management Strategy

5.4 Preliminary Flood Risk Assessment 7

As part of the Flood Risk Regulations 2009, Bolton Council was required to undertake a Preliminary Flood Risk Assessment (PFRA). The PFRA is a high-level screening process following a pre-determined methodology to indicate whether there is a flood risk within the LLFA boundary based on past and future flood risk. The study only looked at flooding from surface water, ground water, ordinary watercourses and canals. It was undertaken in collaboration with the other AGMA local authorities.

In order to ensure a consistent national approach, Defra identified flood risk criteria and thresholds to be used for defining flood risk areas. National surface water flood maps and location data were then utilised to identify areas above the flood risk thresholds. Where clusters of these areas contained the homes of 30,000 people they were identified as indicative flood risk areas. Only ten national flood risk areas were identified in England, one of these covers the Greater Manchester area and includes approximately half the geographic area of Bolton. A map of the Greater Manchester Flood Risk Area is shown below; the map shows an area where the social and economic impact of an extreme surface water flooding event would be high, it does not mean locations within the defined area are at risk of flooding.

Figure 5.3 : The Greater Manchester Flood Risk Area.

7 JBA Consulting – Bolton Council Preliminary Flood Risk Assessment

Bolton Council

Bolton’s Flood Risk Management Strategy

The Greater Manchester cluster identified 86,500 people at risk of flooding, of which 9,800 are within the Bolton area.

As the PFRA has identified a Flood Risk Area, this triggers the next stage of the Flood Risk Regulations process. This means the authority will have to produce flood hazard maps and flood risk maps by June 2013 and flood risk management plans for at risk locations by June 2015.

Flood hazard and flood risk maps will show the likely extent, depth, direction, speed of flow and probability of possible floods and their consequences.

Flood risk management plans will set out:

What measures are proposed to reduce the adverse consequences of flooding. What measures are to be taken relating to the prevention of flooding of individuals, communities and the protection of the environment. Arrangements for forecasting and warning.

5.5 Other Forms of Flooding

5.5.1 Groundwater Flooding

Groundwater flooding occurs when water levels in rock and soil become high enough for the water to appear near to or above the ground surface. This can be as a result of rainfall either locally or some distance away. It generally occurs where there are underlying gravels or porous ground that allows water to travel and concentrate in certain areas.

In Bolton, this type of flooding is uncommon and mostly limited to small-scale flooding of basement or under-floor areas, although from time to time surface flooding has occurred when springs suddenly become active due to rainfall. The areas at most risk are often low-lying areas where the water table is more likely to be at shallow depth.

Underground coal mining in Bolton began in the Middle Ages, grew rapidly during the Industrial Revolution and ended in the 20th century. Many of the older mines predating the late 19th Century remain unrecorded. There is left a legacy of abandoned coal mines in the area. Some of these mines used pumps to control water, which ceased when the mines became abandoned, as a consequence mine water levels rose.

Groundwater flows from these mines causes pollution in the form of acidic mine water to watercourses in the area, often observed as a bright orange deposit in water. These groundwater discharges from abandoned mines can vary from seasonal trickles to substantial flows. Very occasionally flooding at ground level has occurred when groundwater discharges from abandoned mines have become active, usually following extended periods of rainfall.

The risk of flooding from mine water although possible at many locations across the borough is not a significant problem, with very few instances recorded.

Bolton Council

Bolton’s Flood Risk Management Strategy

One of the outputs from the Greater Manchester Surface Water Management Plan was to produce a map showing groundwater flood risk. The plan is reproduced below and shows areas of relative groundwater flood risk. Higher risk areas are shaded darker than lower risk areas. The plan does not show the risk of groundwater flooding from mine workings.

Figure 5.4 : Plan showing areas susceptible to groundwater flooding.

5.5.2 Canal Flooding

The risk of flooding from canals is generally low because of their regulated nature. The main source of flooding from canals results from a breach of raised canal embankments or collapse of a canal reach above culverted sections of a watercourse. Generally, the canals have a freeboard of approximately 300mm between the normal water level and canal bank and water levels are controlled by overflow structures/ sluices. This arrangement limits the opportunities of a flood risk directly from canals.

Bolton Council

Bolton’s Flood Risk Management Strategy

Sections of the Leeds and Liverpool Canal and the disused Manchester, Bolton and Bury Canal run through Bolton. Although there is little evidence of flooding from canals in Bolton, a canal breach occurred in the Manchester, Bolton and Bury Canal at Little Lever in 1936. This breach was the most serious of several breaches that occurred during the life of the canal, some being attributed to mining subsidence. Following the 1936 breach at Little Lever the canal was not repaired and the disused canal was split into three isolated sections which remain today.

There are existing raised sections of canal along the old route of the Manchester, Bolton and Bury Canal, though most are at locations where a breach would not cause damage to property. There is a 500 metre section of raised embankment in Prestolee, Kearsley that could potentially affect property should a breach occur.

No raised canal embankments that would have an effect on Bolton have been identified along the Leeds and Liverpool Canal that passes through a small section of the borough to the east of Blackrod.

5.5.3 Reservoir Flooding

Reservoirs in the UK have an extremely good safety record with no incidents resulting in the loss of life since 1925. Following the 1925 incident, parliament introduced the Reservoirs Act 1930 (which was updated in 1975) and reservoirs are now more carefully maintained. The Act covers the safety of all reservoirs in the United Kingdom that can hold at least 25,000 cubic metres of water and means reservoir flooding is very unlikely to happen.

The operation of large reservoirs is regulated by the Environment Agency (EA). The EA ensures that reservoirs are regularly inspected and essential safety work is carried out. Imminent changes to the Reservoirs Act will bring additional smaller reservoirs into the regulatory regime and make further improvements to reservoir safety in England.

Local authorities are responsible for co-ordinating emergency plans for reservoir flooding and ensuring communities are well prepared. The Greater Manchester Civil Contingencies and Resilience Unit is currently developing these plans for several significant reservoirs in collaboration with reservoir owners and other relevant bodies.

The development of emergency plans for reservoir flooding is a new responsibility for local authorities. These will take time to prepare and we have not yet prepared specific reservoir flood plans.

There are 17 large raised reservoirs within or upstream of Bolton that could potentially have a significant effect on Bolton if they were to fail or partially fail. 12 of these relate to water supply and are owned and managed by United Utilities.

Maps showing the extent of flooding from reservoirs are available on the Environment Agency website http://www.environment-agency.gov.uk/default.aspx

Bolton Council

Bolton’s Flood Risk Management Strategy

Figure 5.5 : Plan showing large raised reservoirs that could potentially affect Bolton.

5.5.4 Sewer Flooding

United Utilities (UU), the sewerage company in this area, is responsible for flooding from foul and surface water sewers. Flooding from sewers can happen when the capacity of sewers is exceeded or they become wholly or partially blocked.

UU are regulated by OFWAT the economic regulator of the water and sewerage industry in England and Wales. Many aspects of the company such as their service standards and performance are monitored by OFWAT. The company is required to maintain a DG5 register recording internal and external flooding. However, this register currently only contains a list of properties that have suffered sewer flooding (internal or external) because of hydraulic inadequacy of the sewer network. It is therefore not a register of properties at risk of sewer flooding. Currently there are 25 and 100 properties in Bolton on the internal and external DG5 register respectively (Feb 2011)8.

8 JBA Consulting. Greater Manchester Surface Water Management Plan Stage 1 – A Strategic Assessment of Surface Water Flood Risk. 2011

Bolton Council

Bolton’s Flood Risk Management Strategy

The water industry operates on a five year cycle of investment called Asset Management Plan (AMP) periods. Each AMP submission to OFWAT contains the programme of investment they intend to make over a particular future five year period. This needs to be approved by OFWAT before the business plan is put into action. Each AMP will contain a variety of projects that tackle flooding from sewers. However, establishing the need to resolve a flooding problem, identifying the suitable solution and it becoming a high enough priority for a project to be undertaken in an AMP may take many years.

Building on the partnership approach to managing flood risk Bolton Council as LLFA will work with UU (and other asset owners) to ensure that a coordinated approach is implemented when undertaking any work in an area.

UU in the last 20 years have made significant investment in Bolton to reduce flooding of property, as well as make other improvements to the environment and river water quality.

Bolton Council

Bolton’s Flood Risk Management Strategy

6.0 Future Changes to Risk

6.1 Climate Change

The long term predicted changes in climate pose the most likely changes to flood risk. It is predicted that future extreme rainfall events are more likely to occur leading to more frequent flooding events.

The GMSWMP study estimated that the number of properties in the Bolton area being at risk of surface water flooding during an extreme rainfall event between now and 2080, will increase by 1100 purely as the result of climate change.

The following is a prepared statement by Defra on Climate Change for the North West River Basin District and its likely effects on flood risk:

Climate Change Statement 9

The Evidence

There is clear scientific evidence that global climate change is happening now. It cannot be ignored.

Over the past century around the UK we have seen sea level rise and more of our winter rain falling in intense wet spells. Seasonal rainfall is highly variable. It seems to have decreased in summer and increased in winter, although winter amounts changed little in the last 50 years. Some of the changes might reflect natural variation, however the broad trends are in line with projections from climate models.

Greenhouse gas (GHG) levels in the atmosphere are likely to cause higher winter rainfall in future. Past GHG emissions mean some climate change is inevitable in the next 20-30 years. Lower emissions could reduce the amount of climate change further into the future, but changes are still projected at least as far ahead as the 2080s.

We have enough confidence in large scale climate models to say that we must plan for change. There is more uncertainty at a local scale but model results can still help us plan to adapt. For example we understand rain storms may become more intense, even if we can’t be sure about exactly where or when. By the 2080s, the latest UK climate projections (UKCP09) are that there could be around three times as many days in winter with heavy rainfall (defined as more than 25mm in a day). It is plausible that the amount of rain in extreme storms (with a 1 in 5 annual chance, or rarer) could increase locally by 40%.

9 Environment Agency. Preliminary Flood Risk Assessment (PFRA) Annexes to the final guidance. Environment Agency March 2011.

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Bolton’s Flood Risk Management Strategy

Key Projections for North West River Basin District

If emissions follow a medium future scenario, UKCP09 projected changes by the 2050s relative to the recent past are

• Winter precipitation increases of around 14% (very likely to be between 4 and 28%)

• Precipitation on the wettest day in winter up by around 11% (very unlikely to be more than 25%)

• Relative sea level at Morecambe very likely to be up between 6 and 36cm from 1990 levels (not including extra potential rises from polar ice sheet loss)

• Peak river flows in a typical catchment likely to increase between 11 and 18%

Increases in rain are projected to be greater near the coast than inland.

Implications for Flood Risk

Climate changes can affect local flood risk in several ways. Impacts will depend on local conditions and vulnerability.

Wetter winters and more of this rain falling in wet spells may increase river flooding especially in steep, rapidly responding catchments. More intense rainfall causes more surface runoff, increasing localised flooding and erosion. In turn, this may increase pressure on drains, sewers and water quality. Storm intensity in summer could increase even in drier summers, so we need to be prepared for the unexpected.

Drainage systems in the [North West River Basin] district have been modified to manage water levels and could help in adapting locally to some impacts of future climate on flooding, but may also need to be managed differently. Rising sea or river levels may also increase local flood risk inland or away from major rivers because of interactions with drains, sewers and smaller watercourses.

Where appropriate, we need local studies to understand climate impacts in detail, including effects from other factors like land use. Sustainable development and drainage will help us adapt to climate change and manage the risk of damaging floods in future.

Adapting to Change

Past emission [Sic] means some climate change is inevitable. It is essential we respond by planning ahead. We can prepare by understanding our current and future vulnerability to flooding, developing plans for increased resilience and building the capacity to adapt. Regular review and adherence to these plans is key to achieving long-term, sustainable benefits.

Bolton Council

Bolton’s Flood Risk Management Strategy

Although the broad climate change picture is clear, we have to make local decisions [incorporating some] uncertainty. We will therefore consider a range of measures and retain flexibility to adapt. This approach, embodied within flood risk appraisal guidance, will help to ensure that we do not increase our vulnerability to flooding.

Long Term Developments

It is possible that long term developments might affect the occurrence and significance of flooding. However current planning policy aims to prevent new development from increasing flood risk.

In England, the National Planning Policy Framework (NPPF) on development and flood risk aims to ensure that “Inappropriate development in areas at risk of flooding should be avoided by directing development away from areas at highest risk, but where development is necessary, making it safe without increasing flood risk elsewhere.”

Adherence to government policy ensures that new development does not increase local flood risk. However, in exceptional circumstances the Local Planning Authority may accept that flood risk can be increased contrary to government policy, usually because of the wider benefits of a new or proposed major development. Any exceptions would not be expected to increase risk to levels which are "significant" (in terms of the government's criteria).

Bolton Council

Bolton’s Flood Risk Management Strategy

6.2 Population change development and land management

The population of England is expected to increase by 10 million by 2030, most of this increase is likely to occur in the south and east of the country. However, predictions estimate that population growth in the North West will be much lower but still at around a 10% increase between 2010 and 2030. 10

Locally this will increase the need and pressures to provide new homes and infrastructure. This is in excess of an already high demand for housing, particularly social housing in the area. The present demand for housing will increase urbanisation and potentially exacerbate rapid run-off.

There may be in future considerable pressures to develop local areas that may be in zones at risk of surface water flooding. Unless development is carried out appropriately and the relevant design requirements and checks undertaken at the planning and construction stage, this could lead to increased risk of flooding by placing more people in areas at risk.

6.3 Future Insurance cover

Individuals and businesses commonly rely on taking out insurance to reduce their vulnerability to a flood. This strategy can be difficult for those on low income or in high risk areas where the premiums can become unaffordable. It is estimated that 50% of people in the lowest income decile do not have household contents insurance and therefore there is a differential effect across society on how risk is managed.11

The majority of the financial shock of a flood is absorbed by insurance companies which reduces the vulnerability of individuals and businesses. Currently there exists a "Statement of Principles" between the Association of British Insurers (ABI) and the UK government which is an agreement to generally provide flood insurance to domestic customers and businesses in high risk areas at no higher premium. This statement of principles is a short term agreement and set to lapse in June 2015.12 Following this date it is likely that an insurance scheme called “Flood Re” will begin. Flood Re is a scheme built to ensure flood insurance remains widely affordable and available, its key elements are.

Flood Re will be run and financed by insurers as a not-for- profit fund which will cover the cost of flood claims from high risk homes. Insurers will pass the flood risk element from those households deemed at high risk of flooding to the fund. Premiums for the flood risk will be calculated based on council tax banding up to a maximum limit depending on the Band. Flood Re will cover losses up to those expected in a 1 in 200 year – a year six times worse than 2007 – with Government taking primary responsibility – working with the industry and Flood Re – for distributing any available resources to Flood Re policyholders should claims exceed that level.

10 Office for National Statistics. ‘ Social Trends No.39’. (2009). 11 Environment Agency. ‘ Addressing Environmental Inequalities: Flood Risk’. (Science Report: SC020061/SR1.) (2006) 12 ABI. ‘The Future of Flood Insurance: What you need to know about Flood Re” July 2013

Bolton Council

Bolton’s Flood Risk Management Strategy

It has been a concern that potential future changes in the availability of affordable flood insurance in high risk areas may have significant effects on the social make up of areas and potentially cause property blight. Mortgages may not be able to be secured on properties at risk with the effect of reducing both demand and property prices. The Flood Re scheme will go some way to countering this effect by making flood insurance widely available.

However, high risk property owners will still pay higher premiums, but not as high as if Flood Re were not in operation. There may still be areas where the flood risk results in low property values and an increase in the proportion of rented property, which results in low income tenants and pensioners being attracted to the lower rents in the area. These are also potentially more vulnerable to the impacts of flooding.

Members of the ABI have already developed flood risk analysis tools and creating data on flood risk, so do possess some tools to assess the risk posed in an area and hence individual properties. A watching brief will need to be made on the effects of the cost and affordability of flood insurance and their subsequent effect on urban development and social composition in high risk areas.

Bolton Council

Bolton’s Flood Risk Management Strategy

7.0 Wider Social, Economic and Environmental issues

7.1 Deprived communities

Experience has shown that flooding has a disproportionate effect on deprived communities. In social housing, it is estimated that around 50% of homes do not have contents insurance13. The uninsured are also hardest hit, as the average insurance pay-out range for flood damages is £20,000 to £40,00014. As a result, many of those living in deprived areas are most likely to receive no financial aid when flooded, making recovery harder for those communities.

Several reports have shown that levels of awareness of flood risk are low among those in the lower socio-economic groups. Residents in deprived neighbourhoods are therefore likely to be less well prepared to cope in the event of a flood and with its aftermath15.

Health impacts of flooding will be more extensive in neighbourhoods already characterised by poor health. Those who suffer the greatest losses – often those on lower incomes and without insurance – may be most susceptible to psychological health effects and, by extension, physical health effects.

There is UK research which indicates that more deprived communities tend to have lower levels of social capital. Social capital refers to networks or connections among individuals, and the norms of reciprocity and trustworthiness that arise from them. International research concludes that places with low levels of social capital cope less well in the aftermath of flooding.

Densely habited urban areas offer a high risk of surface water flooding as the environment is more likely to be one made up of impermeable surfaces and buildings. They are also the same areas where deprived communities are most likely to be found. Consequently, there is an established correlation in the UK between flood risk and deprivation. Previous studies have shown that vulnerable groups are over represented in the areas at risk.

13 Pitt. Pitt Review into the lessons learnt from the 2007floods. 2008 14 AXA.’Flooding research 2010 “the true cost of flood insurance”’ . AXA 2011. 15 Environment Agency. ‘Addressing Environmental Inequalities: Flood Risk.’ (Science Report: SC020061/SR1) (2005)

Bolton Council

Bolton’s Flood Risk Management Strategy

Figure 7.1 : Local areas that are the most 20% deprived in England (blue shaded areas) and surface water flooding hotspots (boxes shaded green to red) 16

The above map shows the parts of the borough, shaded blue, that are within the 20% most deprived communities in the England, it also shows as square blocks the areas that have been identified as areas of pluvial flood risk. The map generally indicates that in Bolton, flood risk hotspots are also associated with the dense urban areas and the most deprived communities.

It is planned to work closely with the local housing associations to highlight the risk of flooding and to identify the areas that are at most risk. The national funding mechanism for addressing surface water flooding problems means there are potential sources of funding that could assist with making any identified properties flood resilient, particularly in deprived areas.

16 Deprivation map based on Rank of Index of Multiple Deprivation Score (LLSO Areas) DCLG survey 2010 and flood hotspot data from the GM SWMP.

Bolton Council

Bolton’s Flood Risk Management Strategy

7.2 Business Continuity

Business can be severely affected by flooding, anecdotal evidence suggests that some businesses close after flooding and this may then have wider impacts on the economy of a neighbourhood. Small businesses are likely to be hit harder than their larger counterparts as they are less likely to have adequate insurance, business continuity plans and computer protection. However, research has also shown that some local building repair businesses do very well after a local flood.

The average insurance pay-out to business following a claim is £60,00017, this gives an indication of the likely monetary damage a business would need to find if it were not insured. Small businesses are less likely to have insurance and so the consequence of a flood can be very damaging indeed. The loss of stock and equipment could potentially end a small business.

It is planned to work closely with local businesses to highlight the risk of flooding and to identify the businesses that are at most risk. We propose to work with identified businesses to help build business continuity plans in order that they can continue operations as soon as possible after a flood event.

7.3 The Value of Agricultural Land.

During the summer 2007 floods damages to agriculture, associated with inundation of over 40,000 hectares, accounted for about 2 percent (£50 million) of the total economic costs of the flood events18. Over 90 per cent of flood damage costs were associated with losses of farm output and additional production costs. The remainder involved damage to farm level assets such as machinery, property and infrastructure. Only about five per cent of flood damage costs (excluding damage to household property) were insured. The floods did not have a major impact on total food supply, but probably contributed to further price increases during a year of general commodity deficit at the global scale.

By its nature good quality agricultural land tends to be associated with land that regularly floods. Agricultural land is classified in a grading system of one to five with grade 1 being excellent quality and grade 5 being very poor quality land.

Bolton contains predominantly grade 3 and 4 agricultural land, no grade 1 or 2 class land exists within the area (shown on Figure 7.2 below). The national policy is focused on protecting grade 1 and 2 land, which are locations of high grade, high production agricultural land that are key to the nation’s food production and supply. Due to the type of land in the Bolton area it is unlikely that agricultural land value will be a significant consideration when undertaking flood risk management.

However, should flooding occur that causes damage to agricultural land, this may from part of an appraisal when assessing flood risk management options.

17 AXA. ‘Flooding research 2010 “the true cost of flood insurance.” 2011. 18 Environment Agency. ‘The costs of the summer 2007 floods in England.’ 2010.

Bolton Council

Bolton’s Flood Risk Management Strategy

Figure 7.2: Plan of Agricultural Land Classifications

7.4 Water Resources

The subject of water resources generally refers to the sources of fresh water that can be used for drinking water, agriculture and industry.

In future there will be a broadening gap between supply and demand due to population change and as the impacts of climate change emerge. It is estimated that by the 2050’s river flows in the late summer and early autumn could fall by over 50 per cent19.

Although better placed than other parts of the country due to the wetter weather, and existing water infrastructure, the predicted more frequent and more severe droughts may result in our water supply still being vulnerable.

19 Environment Agency. ‘ Water resources in England and Wales – current state and future pressures’

Bolton Council

Bolton’s Flood Risk Management Strategy

Several strategies are emerging to counter this threat the main one being to introduce legislative changes which allow water companies to share or trade water. However, large scale water sharing relying on pumping water in pipes to other parts of the country would be extremely costly and the amount of energy required to do this would in all likelihood make most schemes unjustifiable.

It is likely that more progress will be achieved through the use of SuDS that utilise on-site storage of water for later use, coupled with lots of small-scale localised solutions such as rainwater harvesting, and recycling grey water (bath, shower and washing-up water). This strategy supports this approach through the promotion of water re-use from SuDs in new development.

Only 15% of our household water usage is needed to be supplied at drinking water standard such as drinking cooking and hygiene uses. The rest is used for toilet flushing, watering gardens and washing cars.

Our policy in limiting the impact of stress on water resources is to: Promote SuDS that store water for re-use. Promote the re-use of grey water.

7.5 Water Framework Directive

The European Water Framework Directive (WFD) came into force in December 2000 and became part of UK law in December 2003. The Water Framework Directive (2000) is a major piece of legislation, which aims to rationalise EU water legislation to achieve an integrated system of water protection, improvement and sustainable use20.

Unlike the EU Birds and Habitats Directives which apply only to certain designated sites, the WFD applies to all surface and ground water bodies. It introduces a series of new objectives, which will govern water management and activities affecting water ‘status’: status is a measure of ecological, chemical, hydrological and morphological quality in surface waters, and groundwater quantity/chemistry. The WFD objectives include:

• Preventing deterioration in water status. • Restoring surface waters to good ecological and chemical status by 2015. • Reducing pollution from priority substances and phasing out certain priority. hazardous substances. • Achieving objectives for EU protected areas. • Contributing to mitigating the effects of floods and droughts. • Preventing and/or limiting pollution input into groundwater. • Balancing abstraction and recharge.

The Environment Agency are key to delivery of the above and working partnership with other bodies to ensure delivery of WFD objectives. However, this means that statutory bodies, such as local authorities, will potentially have a much more important role in water management, as a result of WFD implementation and our new role in flood risk management.

20 DCLG. “The implications of the EU Water Framework Directive for plans, plan making and development control”

Bolton Council

Bolton’s Flood Risk Management Strategy

The LLFA will have to ensure the following:

1. We comply with our duty to protect and enhance the water environment 2. Provide environmental benefit when undertaking works 3. Not make water bodies worse or prevent water bodies from achieving their WFD objectives 4. Ensure this plan is consistent with the local River Basin Management Plan

The North West River Basin Management Plan (NW RBMP) was published in 2009 and sets out the strategy for locally meeting the WFD objectives. The NW RBMP includes an assessment of the state of the water environment as it was in 2009, identify water bodies locations that need protection and the actions that are proposed to make improvements.

Any activities that we undertake such as; capital works, routine and non-routine maintenance need to be WFD compliant to ensure the environment is not damaged. We will need to ensure that works by third parties and works that we need to grant consent under the Land Drainage Act are subject to a WFD assessment where required. This assessment process and ensuring our own works are assessed for compliance may require additional resources.

To ensure that this strategy is WFD complaint:

We will need to demonstrate the measures we propose will not cause deterioration to water bodies (cause harm) We will need to demonstrate the measures we propose will not prevent future improvement (eg restoration) It identifies opportunities for improvement to meet WFD objective / improve ecological status (take positive action)

7.5.1 North West River Basin21

The latest climate change projections from UKCP09 indicate that the North West region may receive up to 20 per cent less rainfall in summer by the 2080's (medium emissions scenario, central estimate). The Office for National Statistics forecasts that nearly a million more people will be living in the region by 2035. Historical issues and these challenges relate to a range of specific pressures that need to be dealt with in this river basin district. The most significant are:

Diffuse pollution from rural areas – nutrients, sediments and pesticides in runoffs. Point source pollution caused by discharges from sewerage systems– an excess of organic matter which depletes the oxygen available for wildlife. Diffuse pollution from roads and urban areas – a range of pollutants related to urban areas and the transport network. Physical modification of rivers and coastline - changes to the structure of water bodies, such as for flood defence.

21 Environment Agency. ‘North West River Basin Management Plan’

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Bolton’s Flood Risk Management Strategy

Point source pollution caused by discharges from industry - a range of pollutants and chemicals related to various industries that may affect the physiology, growth, development and reproduction of aquatic organisms. Abstraction and other artificial flow regulation – problems related to taking water from rivers, reservoirs, lakes and groundwater.

7.5.2 Pollution

There are a number of major challenges posed by: high population densities and transport networks that put pressure on the water environment; and discharges from sewage works that can impact on water quality or the enjoyment of it.

As a result of our rich industrial past there is left a legacy of poor river water quality. Bolton contains a number of old contaminated sites that continue to contribute to pollution of the water environment over 100 years since they were created.

A great deal is already being done to protect and improve the water environment. However, it will take more time, effort and resources to deal with the pressures that have significantly altered and damaged the environment over the last few hundred years.

The delivery of development sites is important to achieving sustainable economic growth within the region. Managed well, this growth and regeneration will be an opportunity to make improvements to the water environment in a way that enhances people’s quality of life.

SuDS have a means of tackling pollution through varying degrees of treatment for surface water, using the natural processes of sedimentation, filtration, adsorption and biological degradation.

They reduce the amount of run-off (minimising paved areas) thus the amount of pollution. Swales and filter strips are effective at removing polluting solids through filtration and sedimentation. The vegetation traps organic and mineral particles that are then incorporated into the soil, while the vegetation takes up any nutrients. Basins and ponds treat runoff in a variety of ways:

Settlement of solids in still water - having plants in the water enhances calm conditions and promotes settlement. Adsorption by aquatic vegetation or the soil. Biological activity.

Permeable surfaces reduce pollution as the permeable fill or sub-base traps sediment, thereby cleaning up runoff.

During the industrial development of Bolton there were many heavy industries and chemical works built that deposited waste in and around the borough. Many of these sites are known, but some remain unremediated. There are certain sites where a SuDS drainage solution would be inappropriate without first undertaking a major land contamination remediation scheme to prevent contamination becoming mobilised by the SuDS drainage. The use of SuDS systems near these

Bolton Council

Bolton’s Flood Risk Management Strategy sites will need to be carefully considered if they could change the ground water flow regime or mobilise and cause the migration of contamination.

Our policy will be to encourage the use of appropriately designed SuDS to control run off at source, but ensure that the guidelines in the National Planning Policy Framework (NPPF) are followed on controlling pollution of groundwater that may arise from development of land.

7.6 Habitats Directive

The EU Habitats Directive aims to protect the wild plants, animals and habitats that make up our diverse natural environment. The directive created a network of protected areas around the European Union of national and international importance. They are called Natura 2000 sites.

These sites include: Special Areas of Conservation (SACs) - these support rare, endangered or vulnerable natural habitats, plants and animals (other than birds). Special Protection Areas (SPAs) – these support significant numbers of wild birds and their habitats.

Water draining from Bolton flows close by but does not enter any of the sites known as “Manchester Mosses” or “Rixton Clay Pits” which are designated as Habitats Directive Sites - Sites of Community Importance (SCI).

Diffuse water pollution from Bolton could potentially have an effect on either the Mersey Estuary or the Ribble & Alt Estuaries SPA/Ramsar Sites, since water from the River Croal, River Irwell, Glaze Brook & River Douglas flow away from Bolton and eventually discharge into these Estuaries.

However, prior to discharging into the estuaries all these rivers pass through many other metropolitan areas, and the estuaries are both adjacent to major conurbations. Long term improvements in tackling diffuse pollution from the Bolton area will contribute to improvements on wildlife in these estuaries, provide this is done on a catchment wide basis22.

We do need to be mindful of both the effects of diffuse and acute pollution, how these may affect internationally important habitat sites downstream, and the long-term benefits of tackling diffuse pollution through source control.

22 The Greater Manchester Ecology Unit. ‘Habitats Regulations Assessment of the Impact on European Protected Sites of Bolton Council’s Core Strategy’. 2009

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Figure 7.3: Hydrological connections between river outflows in Bolton and SPA and SAC sites in the Ribble and Alt, and Mersey estuaries.

7.6.1 Local Environmentally Important Sites

7.6.1.1 Sites of Special Scientific Interest -SSSI

A Site of Special Scientific Interest (SSSI) is a conservation designation denoting a protected area in the United Kingdom. There are six SSSI’s in or bordering the Bolton area, five of these due to their location or type are unlikely to be affected by development. Red Moss SSSI is a partially aquatic habitat to which surface water discharges are made and will be subject to further discharges for upstream development in the future. Care must be taken in future to ensure this habitat is not unduly influenced by surface water discharges.

7.6.1.2 Sites of Biological Interest – SBI

SBI is a non-statutory designation used in Greater Manchester to identify an area that is valued for its biological diversity. SBI’s have no legal protection, but do receive some protection through planning policy, and are taken into consideration when examining planning applications.

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Bolton’s Flood Risk Management Strategy

7.6.1.3 Local Nature Reserves – LNR

There are nine local nature reserves within or bordering the Bolton area. A Local Nature Reserve (or LNR) is a statutory designation made under Section 21 of the National Parks and Access to the Countryside Act 1949. All these areas are in the control of the local authority.

Figure 7.4 : Designated Environmental Sites in Bolton

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8.0 Local Flood Risk Management Strategy

8.1 The Greater Manchester Surface Water Management Plans (SWMP)

A Surface Water Management Plan (SWMP) is a plan which outlines the preferred surface water management strategy in a given location. In the context of the plan, surface water flooding is flooding from sewers, drains, groundwater, run-off from land, overflow from small watercourses and ditches that occurs as a result of heavy rainfall.

A Greater Manchester SWMP (GM-SWMP) study has been undertaken in consultation with key local partners who are responsible for surface water management and drainage in this area. The primary study partners are: the ten Greater Manchester Authorities, Association of Greater Manchester Authorities (AGMA), United Utilities and the Environment Agency. These partners are working together to understand the causes and effects of surface water flooding and agree the most cost effective way of managing surface water flood risk for the long term.

The GM-SWMP is structured around guidance issued by Defra. It is an on-going process which provides a framework for bringing together the many aspects of flood risk management, such as, forward planning of development as well as fulfilling improvements and compliance with the associated issues of water quality, ecology and requirements under the Water Framework Directive.

The GM-SWMP is currently underway which aims to establish a long-term action plan to manage surface water in the city region and should influence future capital investment, drainage maintenance, public engagement and understanding, land-use planning, emergency planning and future developments.

The first stage of the study has identified locations at an elevated risk of surface water flooding across the Greater Manchester region. Further work has been undertaken to produce outline or detailed suggested options for alleviating the risk at these locations.

The outputs from the study will be used to further inform: Flood risk management. Local development proposals. Management of water assets.

Key outputs from the study comprises flood risk data that informs, visualises and helps us better understand flood risk. Data includes flooding extents for a range of rainfall events, along with depth and velocity data. This data will enable engineers and planners make more informed decisions, and the public to visualise this risk. Next year a national surface water flood risk map will be produced that is similar to the one used in the GM study; this will be available to the public via a national website.

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Bolton’s Flood Risk Management Strategy

Figure 8.1: Example Data from the GM SWMP – Middlebrook, Horwich.

8.2 The Role of the Planning Authority

The purpose of the planning system is to help achieve sustainable development, whilst ensuring that new development delivers economic, social and environmental benefits.

The FWMA makes provision for considerable changes to the role of the LLFA in terms of planning and development control for flood risk management, partly because of the SuDS provisions, but also because the Local Planning Authority (LPA) must have regard to the Local Strategy in its non-flood risk management functions, and must act consistently when exercising its flood risk functions. Because of this, the role of the LPA in flood risk management is essential:

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Bolton’s Flood Risk Management Strategy

By planning to avoid inappropriate development in areas at risk of flooding and to direct development away from areas of highest risk. This especially applies to key infrastructure such as hospitals and other major utilities. By mitigating the surface water run-off impacts of new development on downstream areas. Planning policies tend to focus on mitigation in terms of adverse impacts from the quantity and rate of run-off. However, given the requirements of the Water Framework Directive, the mitigation of adverse water quality also needs to be considered.

8.2.1 How the Planning Authority will ensure flood risk is managed for new development

Summary overview of some of the key elements of the planning system in relation to flood risk management, including: Embedding Strategic Flood Risk Assessments into the Local Plan. Avoiding inappropriate development in the functional flood plain. Using NPPF to locate new development and regeneration according to the flood vulnerability of the intended use. Directing development first to risk areas through embedding the NPPF sequential approach into the Local Plan. Safeguarding land for critical infrastructure and agricultural use. Developing action plans, where necessary, to support sustainable spatial planning. Ensuring all plans are integrated and firmly linked to strategic policies in local plans. Promoting the use of open space for multiple use/benefits including biodiversity, public amenity and making space for flood water. Promoting sustainable water management. Consult recognised advice on planning, management and designing sustainable places. Securing funding through development for flood defence schemes.

The role of the planning authority is key to delivering the long-term objectives of flood risk management as well as the associated issues of sustainability and water resources. Only through the application of planning policy can the aims of this strategy be achieved.

In Bolton, the adopted Core Strategy already follows the principles set out above. Core Strategy policy CG1.5 reduces the risk of flooding in Bolton and other areas downstream by minimising water run-off from new development and ensuring that a sequential approach is followed, concentrating new development in areas of lowest flood risk. The Council’s Sustainable Design and Construction Supplementary Planning Document contains a section on sustainable drainage, including water use.

If Schedule 3 of the FWMA is commenced this will lead to the introduction of the SuDS Approval Board (SAB). The requirement for a developer to gain approval by the SAB before construction of a development begins, the multitude of other issues relating to planning control, and highway adoption issues, will require close co-operation between the LPA and the SAB.

The SAB will provide the data and expertise required to ensure that decisions relating to flood risk on a development are based on sound evidence.

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Bolton’s Flood Risk Management Strategy

The SAB will require early input into local plans and development master plans to ensure that proposed large developments take an in-depth examination of the opportunities for SuDS that comply with the national standards and provide other multiple benefits.

This will ensure design proposals would be approved by the SAB prior to the development being undertaken and will ensure that drainage disposal does not become an obstacle to the development plans. Due to the complexities associated with SuDS, the need for a SuDS solution may steer the overall design and layout of the development particularly on larger development sites.

8.2.2 Planning Policies – Planning Advice

The long-term building of SuDS, introduction of SWMP’s and installing flood resilience measures all have the potential to limit or reduce the number of people exposed to flooding.

The installation of sewerage systems that separate surface and foul water, with surface water going to rivers and foul to treatment, increases capacity in the sewer network, and reduces sewer flooding as rainwater does not get into the foul system. Bolton developed during a period when sewers were installed that accepted both foul and surface water, known as combined sewers. Much of the older parts of the town are likely to depend on combined sewers for the foreseeable future. Combined sewers also need overflows which spill to river during storms rather than cause flooding. This may in some areas have an impact on river water quality. If large-scale redevelopment is proposed such as in renewal areas, opportunities to re-sewer areas to introduce separate systems should be explored.

If Schedule 3 of the FWMA is commenced, it will be a requirement for developments to install SuDS. How this requirement will be applied and to what extent is currently unknown.

Commencement of Schedule 3 will also empower the SAB to withhold permission for developments to connect to a combined or surface water sewer should not all alternative methods of surface water disposal have been examined.

The FWMA introduced the potential to implement future changes to building regulations to make it a requirement to install flood resilience measures to houses when undertaking works to properties that require building control approval such as extensions to existing property.

However, there needs to be a more strategic approach to deal with development in or contributing to high flood risk areas, this might include:

In areas subject to re-development Enhanced constraints on surface water discharge rates, Demand the construction of effective SuDS, Car parking, access and finished floor levels constructed above flood level, Make topographic changes to create safe run-off routes. Promote rain water capture.

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Bolton’s Flood Risk Management Strategy

During large developments explore opportunities for the re-sewerage of areas (removal of surface water from existing sewer networks)

Previously Undeveloped areas As the above plus the construction of high quality landscaping that incorporates soft landscape SuDS.

Current economic and market conditions could result in the number of developments being low over the next 5 to 10 years which may limit progress. Bolton’s core strategy sets out the areas proposed for the location of new housing. These areas are mainly currently developed and the focus of the strategy is on urban renewal. It estimates that 80% of housing development will be on previously developed land23.

Location Percentage of new dwellings to 2026 Bolton town centre 10-20% Renewal areas 35-45% Horwich Loco Works 10-15% Outer areas 20-30%

One of the objectives is to build housing at increased densities of at least 30 dwellings per hectare. However, building at high densities will potentially narrow and limit the number SuDS solutions that can be achieved.

A further aspect of development in the above areas is that much of the land has previously had industrial uses and has a legacy of contamination. Detailed ground investigation is required to establish whether favourable ground conditions exist before promoting and infiltration SuDS solutions.

The older urban areas, such as Bolton town centre, are virtually exclusively drained to combined sewers. Often in areas such as these there is little opportunity, except where a development is very near or immediately adjacent a watercourse, to dispose of surface water other than to a combined sewer. This may limit a development site’s drainage options with regard to SuDS in some urban locations. It also highlights the need for the potential construction of new strategic surface water drainage infrastructure in some areas.

Development can lead to pressure to culvert existing open watercourses or leave existing culverts buried. However, open watercourses form an important part of the landscape, provide habitats for wildlife and allow flood water to efficiently enter the land drainage network. Culverting watercourses can increase the risk of flooding, increase routine maintenance costs and destroy wildlife habitats. Consequently we shall develop and implement a Bolton Council Culverting Policy that explains our policy regarding applications to culvert ordinary watercourses, including good practice, design principles and guidance.

23 Bolton Council. ‘Local Development Framework Bolton’s Core Strategy Development Plan Document.’ March 2011.

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Bolton’s Flood Risk Management Strategy

8.3 Bolton Council Assets

8.3.1 Maintaining and improving Flood Risk Management systems to reduce the likelihood of harm to people and damage to the economy, environment and society.

Where Bolton Council as land owner or as Highway Authority has responsibility for maintenance of assets, we shall through regular risk based inspection and monitoring of land drainage infrastructure reduce the likelihood of flooding by making sure to the best of our endeavours that assets are kept functioning. By ensuring we undertake improved monitoring and maintenance regimes, this will deliver a reduction in flood risk without undertaking capital expenditure, as assets will be less likely prone to blockage or collapse whilst operational.

Where other parties are responsible for the asset we will ensure the risk of blockages or collapse to culverts is reduced, by undertaking the work as the LLFA or by taking enforcement action.

The initial phases of work will be:

1. Creation of an inventory of assets following desk top and field surveys. 2. Assessing the economic and environmental risk posed by failure of the assets found. 3. Prioritisation of assets by flood risk and potential effect of a failure in service. 4. Scheduling regular risk based inspection and monitoring visits.

Some assets can be inspected by an officer visiting a location to make a visual survey to assess current condition and maintenance requirements. Underground assets may require more expensive CCTV or man-entry surveys.

The length of cycles between visits will be established through a risk based analysis or by following current accepted good practise. Poor condition assets may be inspected on a more frequent basis to monitor deterioration. These cycles will be constantly reviewed as more data is accumulated.

We will take an infrastructure asset management approach to the long-term maintenance of water assets. Infrastructure Asset Management is a holistic management framework that is accepted as best practise for demonstrating good stewardship of infrastructure. Its ethos is a regime of planned maintenance rather than reactive maintenance initiated by asset failure.

Its concept is one of a logical and holistic framework that draws together a plethora of information such as, condition data, asset valuation, policies and strategies, customer surveys, local plans, performance indicators, value management etc. Utilising this information decisions can be made on where to invest to gain the best rate of return, whilst providing a customer focused service. This rate of return though may not be based on purely monetary grounds and may take into account societal and environmental factors in its determination.

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The main themes of asset management can be summarised as:

Strategic Approach: A systematic process that takes a long-term view. Whole of Life: The whole-life/life-cycle of an asset is considered. Optimisation: Maximising benefits by balancing competing demands. Resource Allocation: Allocation of resources based on assessed needs. Customer Focus: Explicit consideration of customer expectations.

Asset management is a cyclical process that is constantly undertaken and monitored. The figure 8.1 below illustrates the elements of the cycle.

Figure 8.2: The asset management cycle

An Asset Management Plan for all water and land drainage assets will be drawn up to establish the process and procedures for undertaking asset management.

It is proposed to establish a programme of maintenance works that support the objectives of improving flood risk. This might range from wholesale replacement of culverts to improvement to existing debris screens.

The aim is to ultimately move to a regime where investment decisions are based on an evidence base that addresses risk rather than be founded on available resources. This will lead to better budget planning and improved project prioritisation.

As part of the objectives of this strategy we shall develop a Water Assets Management Plan in accordance with industry best practice and standards.

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Bolton’s Flood Risk Management Strategy

8.3.2 Highway Authority Drainage

Most highways contain drainage designed to take water off the surface of the highway and to transport the water so that it is discharged safely away from the road. Drainage is an important element of the highway, as it prevents water building up on the surface which could be dangerous to highway users, and it prevents water damage to the highway surface. In urban areas, the highway often relies on the public sewer network managed by UU for disposal of surface water.

Highway flooding problems can occur due to damage or blockages within the system. However, even when the system is well maintained, there may be circumstances when flooding still occurs. This could be due to exceptional rainfall or when the capacity of a public sewer is exceeded or simply the gully grating becoming blocked.

Highway flooding can often cause flooding to property where the surface water runs-off the road. To prevent this type of flooding and ensure that the highway is safe, it is essential that routine maintenance is undertaken to ensure that the drainage system is working efficiently.

Run-off from highways can, at times, be a significant polluter of watercourses. Vehicles produce heavy metal pollutants normally copper, zinc and iron as a result of wear of metallic surfaces and brakes, hydrocarbons as oils and greases as a result of leakage. Other metals may be present but these three are the most damaging to bio-systems.

After extended periods of dry weather, pollutants particularly in the form of silt, oils and metals build up on highway surfaces which can get washed into rivers in one short flush. When these conditions occur, the run-off from the highway can sometimes be very polluting. Studies have shown draining via SuDS do have a significant benefit of retaining much of the metallic, oil and grease pollution entering the environment.

As the Highway Authority, Bolton Council is also responsible for management of the highway network. Upon commencement of Schedule 3 of the FWMA, new highway drainage systems will be designed to incorporate where possible a SuDS train that will result in cleaner discharges to the water environment.

Water usually enters highway drainage systems via grids in the highway that discharge to gully pots. The main purpose of gully pots is to prevent surface run-off from carrying sediment into drains, sewers which cause blockages or restrict flow in the systems and carrying in onward to the water environment. Gully pots functions are:

By a water seal they reduce odours from sewers. They trap sediment and reduce pollutant load. They can retain oil and floating pollutants.

Failure to clean, maintain and empty gully pots can result in sediments building up to the extent that they block up and stop working, this can result in flooding on the highway or contribute to flooding from highway run-off. In addition poorly drained highways become damaged quicker and deteriorate faster and require more investment to keep them maintained.

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Bolton’s Flood Risk Management Strategy

A gully cleaning policy aimed at reducing flood risk also needs to aim at taking actions to reduce pollutants reaching the environment. This could mean targeted and more frequent cleaning of gully pots on busy roads and in particular identifying locations where the highway drainage discharges to smaller or sensitive water bodies. At these locations the effect of pollution on these water bodies is potentially damaging so careful management of gully cleaning routines need to be considered. It is proposed to undertake an in-house study and to determine a risk-based gully pot cleaning regime.

Similarly the disposal of arisings from gully cleaning contain pollutants, the disposal of such waste needs to be undertaken carefully so as to not impact on water resources. Some authorities use on-site recycling facilities that treat the waste, separate out reusable sand and reduce the quantity of waste being disposed of at waste treatment sites. Some have utilised more natural solutions such as reed bed treatment sites that treat the whole of the waste by retaining metals and removing oils.

As highway authority we will be responsible for maintaining highway drainage constructed as part of a SuDS systems, once Schedule 3 of the FWMA is commenced. It will be an important consideration in the design of these systems on how pollution can be tackled. In addition it may be possible to seek opportunities to retro-fit SuDS to existing highway drains where possible. These new SuDS highway drainage systems may not, in every case, discharge to the public sewer system, so alternative means of water disposal will need to be examined.

The construction of highway drainage systems incorporating SuDS is a new arena, and requires quite different construction techniques, standards, and materials to normal piped drainage systems. Bolton Council as Highway Authority, or in collaboration with other authorities, will need to produce a design standard to which developers can work in order to fulfil agreements for the adoption of roads.

8.4 Management of Other Assets

Key to the delivery of reduced flood risk is ensuring all flood risk assets are managed regardless of ownership. The majority of watercourses in the area are in private ownership, this does present problems as owners are often not aware of their responsibilities for maintenance and sometimes even unaware of the existence of a culverted watercourse and their associated liabilities.

Through the creation of an asset register we will ensure that asset owners are identified, made aware of their duties and responsibilities, and the register will enable effective management of these water assets. Assets on the register will be monitored by the Council to ensure they perform, are well maintained and operate effectively. By working with owners of surface water assets to undertake improved maintenance regimes, this will deliver a reduction in flood risk without owners having to undertake the large expenditure required to improve or replace culverts.

Privately owned assets that provide a protection against a significant flood risk will be designated by Bolton Council. This is a legal process under the FWMA and has been introduced to ensure that privately owned features are properly maintained and perform their function into the future. Owners of designated features are required to apply for approval to Bolton Council if they wish to

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Bolton’s Flood Risk Management Strategy alter or remove the designated feature. Bolton Council has a role in ensuring such features are properly maintained by their owners.

Bolton Council will also have a consenting role where asset owners wish to make physical changes to watercourses to enable development or other purposes. Actions such as culverting a watercourse will need to be approved by the authority to ensure these new assets do not pose an increase to flood risk. The authority has additional powers to take enforcement action against landowners who do works without consent.

Under the Land Drainage Act (LDA), Bolton Council has enforcement powers to ensure that where blockage to a watercourse has occurred that the relevant land owner undertakes work to remove the blockage. We will ensure any necessary enforcement of the LDA or FWMA is undertaken where there is a flood risk.

Bolton Council is aware that parties are often not aware of their duties and responsibilities in respect of owning watercourses and land drainage law. Consequently, we will pursue a policy of education rather than litigation when dealing with preliminary enquiries. When deciding on whether to take enforcement action officers will decide on the appropriateness and scale of any action taken against persons infringing the LDA. Any action taken will be proportional, consistent, transparent, and targeted.

8.5 Governance and Local Partnerships

8.5.1 Regional Governance Structure

Regional governance is made up of several committees and groups that work together to deliver flood risk management in this area.

The Regional Flood and Coastal Committee (RFCC) is a statutory body set up by the Environment Agency that oversees and allocates flood defence funding in the region for both Environment Agency and local government programmes.

In the city region, the Greater Manchester Flood and Water Management Board manages the GM-SWMP and agrees candidate flood defence projects prior to their consideration by the RFCC.

8.5.2 North West Regional Flood and Coastal Committee (RFCC)

The North West RFCC is responsible for reviewing flood defences in the Region and for determining how the defences will be managed in years to come.

The North West RFCC is a committee established by the Environment Agency under the Flood and Water Management Act 2010 and takes the place of the North West Flood Defence Committee (FDC). It brings together members appointed by Lead Local Flood Authorities (LLFAs) and independent members with relevant experience for three purposes:

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Bolton’s Flood Risk Management Strategy

To ensure there are coherent plans for identifying, communicating and managing flood and coastal erosion risks across catchments and shorelines.

To promote efficient, targeted and risk-based investment in flood and coastal erosion risk management that optimises value for money and benefits for local communities.

To provide a link between the Environment Agency, LLFAs, other risk management authorities, and other relevant bodies to engender mutual understanding of flood and coastal erosion risks in its area.

The Committee plays an integral part in the flood defence schemes that are developed in the North West and provides advice on how flood defence work should be managed. All meetings are open to the public.

The North West RFCC covers a geographic area encompassing the regions of Manchester, Merseyside, Lancashire, and Cumbria.

8.5.3 Greater Manchester Flood & Water Management Board

AGMA has now established the Greater Manchester Flood & Water Management Board providing governance and direction for AGMA’s flood risk management work programme. The board is made up of the Chief Planning Officers from the ten authorities with the addition of representations by the Environment Agency and United Utilities.

Current priorities include: Delivery of the GM Surface Water Management Plan. The next stages of the Preliminary Flood Risk Assessment. Establishing capacity to ensure delivery of new duties and powers. Establishing collaborative structures to facilitate joint working, communication and co- operation between districts. Establishing a strong working relationship with the RFCC.

8.5.4 The Technical Flood Risk Officers Group (T-FROG)

This group made up of technical leads from each of the ten local authorities is now well established and meeting regularly. The current focus is on planning a way forward for councils to discharge their new duties, develop skills and capacity through workshops, seeking collaborative opportunities and managing outputs from the Surface Water Management Plan.

Through our links with neighbouring authorities, the Local Government Association and other professional bodies we will share our experience and expertise, and learn from each other. Key staff will need to understand industry best practice through participation in on-going learning and training, which can be passed on to this group.

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Bolton’s Flood Risk Management Strategy

Figure 8.3 : Regional and Local Governance Organogram - 2012

Regional Flood and Coastal Committee (RFCC) Regional Governance and funding Defra appointed Chair – Cllr Derek Antrobus (Salford) Councillor Molyneux (Wigan) Councillor Andrews (Manchester) Councillor Brodsworth (Stockport)

Wider Leadership Team AGMA wide decision making

Greater Manchester Flood & Water Management Board Planning Officers Group, Lead Drainage Engineers, GM Resilience Unit Representative, EA Representative and UU Representative (Quarterly meeting)

Technical Flood Risk Officers Group District Technical Level leads and Operational managers, Planners and GM Resilience Team. Representatives from all 10 authorities.

Local scrutiny and oversight arrangements x 10 (local cabinets or executive members as appropriate) Bury, Bolton, Manchester, Oldham, Rochdale, Salford, Stockport, Tameside, Trafford, Wigan

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8.5.5 Local Governance

Bolton Council is governed by a leader and cabinet executive system. Executive Cabinet Members are given powers to act on behalf of the Council for specific functions of the authority. Any decisions made by the Member are examined at a Scrutiny Committee meeting which comprise other and opposition elected councillors.

In Bolton the relevant Executive Cabinet Member will undertake the functions of both the planning control function and engineering functions of the Council.

The Policy and Development Group will steer the policies of Bolton Council with regard to flood risk management and how we engage with other flood risk management authorities. Previous meetings have invited representatives of United Utilities, where members have closely scrutinised the local role and actions of the company. This group will provide the overview and scrutiny role in Bolton to hold all the various risk management authorities in the area to account.

The relevant head of service will have delegated authority to undertake any day to day management requirements of the FWMA.

The Greater Manchester Flood & Water Management Board will produce elected member briefing notes to inform of progress with the SWMP and give notification of any changes in the flood risk management field.

The final version of the strategy is to be approved by the PDG where the contents will be clearly explained and in particular its local relevance to other existing priorities.

There are several functions of the authority which are operationally managed by officers that provide elements of flood risk management namely:

Flood Risk Management (Engineering) Planning Control Spatial Planning and Planning Strategy Civil Contingencies Highway Authority

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Bolton’s Flood Risk Management Strategy

Figure 8.4 : Local Governance - Bolton Council Flood Management Structure Organogram.

Flood Risk Management (Engineering) Developing and Operational maintenance / updating response inspections plans, operational SAB (from 2013/14) readiness Customer Enquiries Asset Registers Consultation on FWMA duties Planning and Building Control Civil Contingencies Team / Applications GMCCRU Multi Agency Flood Response Plan Planning Business continuity Development Control Warning and Building Control Informing

Liaison on development of strategic planning documents and policy

Developing Planning Policy Documentation. Planning Advising on planning (Spatial Planning and Planning Strategy) applications. Supplementary Planning Documents LDF Sustainability Policy Strategic Planning

Flood Management Group - Co-ordination of the above activities Group Comprises: Assistant Director (Highway and Engineering) Chief Planning Officer Operational Flood Risk Management Team Leader Civil Contingencies Planning Officer (Sustainability) Greenspace Manager

Executive Cabinet Member for Environment Services and Development and Regeneration Departments.

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Bolton’s Flood Risk Management Strategy

8.6 Civil Contingencies and Resilience

The Civil Contingencies Act 2004 is one of the most relevant pieces of legislation to emergency planning for flooding. It formalises a number of duties on local authorities, the emergency services and other organisations involved (including the Environment Agency) in responding to any emergency. Amongst these are contingency planning and risk assessment for emergencies at the local level, including flooding.

The Act lists local authorities, the Environment Agency, and emergency services as 'Category 1' responders to emergencies. It places duties on these organisations to: Undertake risk assessments. Manage business continuity. Carry out emergency planning. Share information and cooperate with other responders. Warn and advise the public during times of emergency.

Local resilience forums (LRF’s) – of which the Environment Agency is a member in all regions – are responsible for developing multi-agency flood plans (MAFPs). These plans allow all responding parties to work together on an agreed co-ordinated response to flooding. Greater Manchester Civil Contingencies and Resilience Unit (GMCCRU) has completed a Multi Agency Flood Plan which sets out how a multitude of providers will respond if required and what resources they have available to draw upon in an emergency.

This has been further strengthened by the government’s commitment to developing a National Flood Emergency Framework (NFEF), which was published by Defra in 2010. The NFEF is a forward-looking policy framework for flood emergency planning and response prompted by Sir Michael Pitt in his report on the summer 2007 floods. It brings together information, guidance and policies and is a resource for those involved in flood emergency planning at local and national levels.

Effective mapping of flood risk, with improved mapping of surface water and related flood risks alongside the information on river and sea flooding risk maintained by the Environment Agency, will help support the work of the GMCCRU in making effective risk-based planning decisions.

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Bolton’s Flood Risk Management Strategy

8.7 Partnerships with United Utilities and the Environment Agency

We cannot reduce flood risk on our own, effective partnership working with others such as United Utilities and the Environment Agency are essential.

Surface water systems and watercourses are complex systems with elements having different ownerships and responsibilities. United Utilities and the Environment Agency share our common goals in relation to reducing flood risk. Effective partnership working will be required to deliver the best results for communities, and deliver multiple benefits in a cost-efficient way.

By focusing shared resources at priority areas, partnerships can effectively use limited resources to deliver improved outcomes. By identifying problems, we can develop joint solutions through joined up problem solving.

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Bolton’s Flood Risk Management Strategy

9.0 Flood Risk Planning and Funding

9.1 Flood Risk Planning and Management

Flood risk and coastal erosion management activities require careful planning to ensure that appropriate, sustainable, options are selected and that they are implemented properly. Actions should be planned effectively, for the long-term, and provide a clear picture of what will be done to manage risk and provide multiple benefits. This may include, for example, linking with other plans such as: river basin management plans (RBMP’s) and supporting biodiversity, habitat creation or improving water quality.

It is essential that communities are involved in the development of these plans and that combinations of options should be considered and selected as required so that:

The negative consequences of flood or coastal erosion are minimised. The likelihood of an event causing loss of life and damage is reduced. Opportunities to improve the environment are taken.

The following table contains some of the plans, assessments and data collection prepared by different bodies and how these contribute to understanding and planning flood risk management.

Table 9.1 : Relevant Flood Risk Plans and Data

Authority Plans / data Description Environment Strategic Plans National strategies to manage flood Agency risk River Basin Management Plans Regional plans to meet the demands of the WFD Catchment Flood Management Catchment specific plans that give Plans short, medium and long term actions to reduce flood risk Technical Guidance Technical Guidance to assist LLFA’s Flood Risk Data Procure flood risk data for analysis and studies RFCC Business Plans Ensure Consistency between national and local plans Review and approve EA plans and expenditure Bolton Council Preliminary Flood Risk Produce PFRA report to fulfil Flood Assessments Risk Regulations Local Development Framework Guides planning policy Strategic Flood Risk Assessments Local studies of flood risk for the LDF Flood Risk and Hazard Maps Produce risk and hazard maps to fulfil Flood Risk Regulations Surface Water Management Plans Local SW management strategy Reservoir Emergency Plans Manage reservoir on-site emergency plans

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Authority Plans / data Description GM Civil Multi Agency Flood Risk Plans Develop, maintain and monitor multi- Contingencies agency flood plans and Resilience Unit Reservoir Emergency Plans Manage reservoir off-site emergency plans United Utilities Sewerage Management Plans Long-term (+25 years) maintenance plans for the public sewer system Price Review 14 - Final Business Investment strategy for 2015 to 2020 Plans 2015 to 2020 Asset Management Plans Period specific investment plans

9.2 Funding of the LLFA

It was recognised that the new roles placed on local authorities would require additional resources. This need for local authorities to spend more on flood risk management was identified in the last Comprehensive Spending Review in 2007. As a result Bolton Council will receive Start- up Funding Allocation specifically for Flood Risk Management in its Local Services Support Grant Settlement in this Spending Review period (between 2011/12 and 2014/15).

This funding is being used in Bolton to:

1. Begin visually surveying all watercourses to locate and assess all flood defences and establish ownership. 2. Create a GIS database of flood and water assets. 3. Undertake the process of designating privately owned flood defence features with owners. 4. Create and maintain a database and GIS map indicating the location of third party flood defences, their owners, importance and condition data. 5. Support AGMA in the SWMP process. 6. Deliver any early local actions in the SWMP. 7. Investigate causes of flooding where appropriate. 8. Create a record of flooding events and causes. 9. Administer the consenting of changes by private owners of changes to watercourses. 10. Make drainage and flood risk comment on Planning Applications. 11. Undertake the flood risk management strategy action plan.

It will also be used to regulate and maintain publically adoptable SuDS when this part of the legislation is commenced.

9.3 Funding of Projects

In May 2011, Defra introduced a new approach to the way that funding is allocated to flood defence projects. Instead of meeting the full costs of just a limited number of schemes, the partnership approach to funding flood resilience means that government money is potentially

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Bolton’s Flood Risk Management Strategy available towards the costs of any worthwhile scheme. Funding levels are based on the numbers of households protected, the damages being prevented, and the other benefits a project would deliver. Overall, more schemes are likely to go ahead than under the previous ‘all or nothing’ approach.

Partnership Funding aims to provide improved transparency and greater certainty over potential funding levels from the general taxpayer for every flood and coastal defence project. It also aims to allow local areas to have a bigger say in what is done to protect them and puts added emphasis on providing support to those most at risk and living in the most deprived parts of the country.

These partnerships will be closely aligned to local strategies and development plans produced by local authorities, in consultation with communities. As long as minimum criteria are met, all new defences and capital maintenance projects are eligible for partnership funding, as are those protecting individual properties and managing risk from surface water and groundwater.

By partially funding projects, it will mean nationally there is potential for more projects to go ahead. However, when projects are partially funded it will require a contributory element of funding that will need to be found locally, either from the community, business or individuals.

All local authorities raise a levy from households which is included in Council Tax. This levy produces regional funding that can be used to help fund local flood risk projects which do not qualify for full central government funding. This levy funding is allocated by the RFCC to local priority projects.

The Community Infrastructure Levy (CIL) is a tariff that local authorities may charge in connection with the grant of planning permission to secure additional funding for infrastructure. The levy is a locally set fixed rate charge, based on square metres of net additional floorspace. It is payable when construction commences. The Council must then use this money for infrastructure provision across the borough, such as highways improvements, open spaces or education provision. The use of CIL for flood risk management projects is one that will be explored once the charging scheme is commenced.

Bolton Council will actively work to identify surface water flooding projects, and where suitable projects are identified, to promote and apply for funding. This may be conditional on local funding being found if only partial funding for a project can be secured.

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Bolton’s Flood Risk Management Strategy

Figure 9.1 Funding streams for local investment

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Bolton’s Flood Risk Management Strategy

10.0 Local Flood Risk Policies

The Flood and Water Management Act introduces several duties on the authority, the extent to which these duties are met and fulfilled is dependent on how we set local criteria and thresholds. These duties and the local criteria for implementing these duties are set out below:

Duty / Service Policy

Local Strategy The Act also requires a lead local flood authority to It will be our policy keep the local strategy initially under develop, maintain, apply and monitor a strategy for local biennial review. Progress reports will be monitored by an flood risk management in its area. Assistant Director in Environmental Services as and when necessary. Duty to investigate We have a duty to investigate flooding incidents in our It will be our policy to make an initial study where property area where the authority believes this to be appropriate or is flooded internally, or when critical infrastructure or necessary. The purpose is to identify which risk priority highways are affected, and another flood risk management authorities have responsibilities in terms of management authority is not already investigating. We undertaking investigation or risk management functions, will not guarantee publishing investigations where less and what they have done or intend to do. than five properties are affected. Our investigation policy is detailed in section 10.1. In some cases, it is likely that there may be a number of factors contributing to a flooding incident and some flood risk authorities may resist accepting responsibility. In this case we may have to make a detailed investigation.

The lead local flood authority will then be required to publish the results of any investigation, and notify any relevant authorities. Duty to maintain a register Locally we consider that assets whose failure in service We have a duty to maintain a register of structures or would potentially result in a flood that meets the features which we consider have a significant effect on thresholds stated in the investigation table overleaf, are flood risk in their area, at a minimum recording ownership assets that shall be included in the register. and state of repair. The register must be available for public inspection.

Ensuring Progress The Act does not require routine reporting on It will be our local policy to invite the local flood risk performance, but allows information to be requested management authorities to the Environmental Services where necessary. Scrutiny Committee to present how they meet their current functions, and details of their flood risk reduction In addition, the Act enables overview and scrutiny investment programmes, on an annual basis. committees in lead local flood authorities to hold all the risk management authorities to account. In this way, the public can be actively involved in ensuring authorities perform. Power to do works Subject to funding we will undertake work to reduce flood The Land Drainage Act provides the lead local flood risk that is consistent with the local strategy. We can authority with powers to do works to manage flood risk apply for funding to do works via Defra or RFCC local levy from surface runoff and groundwater. All works must be funding. consistent with the local flood risk management strategy for the area.

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Bolton’s Flood Risk Management Strategy

Duty / Service Policy

Enforcement of the Land Drainage Act It will be our local policy to undertake enforcement action Occasional emergency works are required where due to a where applicable and in accordance with the principles of blockage or collapse of an asset flooding occurs that is being proportional, consistent, transparent and targeted. significant and likely to continue unless repair works are undertaken. We rely upon enforcement of the Land Drainage Act to ensure land owners undertake repair works. Where the problem is significant and the land owner is not identifiable or is unwilling to undertake the work Bolton Council may undertake repair work on a recharge basis. Designation of third party assets Our local policy will be to consider that any structure or The Act provides the authority with powers to designate asset on private land that protects against (internal) structures and features that affect flooding. The powers flooding of any property, critical infrastructure or priority are intended to overcome the risk of a person damaging highways shall be designated. or removing a structure or feature that is on private land and which is relied on for flood risk management.

Once a feature is designated, the owner must seek consent from the authority to alter, remove, or replace it. If someone does make a change to a designated feature, then the authority may issue an “enforcement notice” which will set out any steps that must be taken to restore a feature. An individual may appeal against a designation notice, refusal of consent, conditions placed on a consent or an enforcement notice. Weather and Emergency Response

Recent development in flood forecasting and warning It will be our local policy to undertake an emergency have enabled authorities to plan a response to weather response on a best endeavours basis. emergencies. This has led to the authority undertaking inspection and checking for debris blockages, followed by debris clearance on culvert grilles prior to a predicted weather event on a more frequent basis. This reduces the flood risk due to blockages occurring during significant rainfall events.

However, resources at the authority are limited and an emergency response can only be undertaken on a best endeavours basis particularly during a weather emergency. This may result in some tasks not being achieved and a consequential risk of flooding occurring. Culverting of Watercourses

Watercourses are important features of the landscape and provide habitats for a wide variety of wildlife. It is Our culvert policy is included in appendix C. therefore important that watercourses and their associated habitats are protected and enhanced for the benefit of present and future generations. However, we recognise that in some circumstances culverting of watercourse is unavoidable. Consequently, a policy is required on our approach to applications to culvert watercourses.

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Bolton’s Flood Risk Management Strategy

10.1 Investigation Policy

A study into the causes of flooding will be carried out where any of the following criteria are met:

The internal flooding of one property (either domestic or business) has occurred.

Flooding to priority highways (priority highways include Motorways, A-Class roads, roads adjacent to important transportation infrastructure, hospitals, or fire and rescue facilities.)

Flooding to gardens or open space where there was a risk to life, taking into consideration land use, depth and velocity of flood water.

Where a flood occurs that meets any of the above thresholds and another risk management is not investigating the cause, or where the source of flooding is uncertain.

Having undertaken a study a formal investigation under the FWMA may be undertaken.

We do not guarantee undertaking a formal investigation unless more than five properties in the same location have been internally flooded during a single flooding event.

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Bolton’s Flood Risk Management Strategy

11.0 Our Local Flood Risk Strategic Objectives

The local strategy is not a static document, it will need to be revised by the Authority as necessary to reflect the current political, economic and environmental demands of the time. A key role of a strategy is to make the connections between the high-level strategies nationally, regionally and locally, governing the authority’s flood risk management work and the day-to-day decisions the Authority makes when managing the drainage and watercourse network.

This chapter sets out the objectives that aim to support the National Strategy, the Greater Manchester Strategy (GMS), and Bolton Council’s Community Strategy.

Economic Objectives

Reducing economic damage from flooding will make Bolton economically and socially resilient and provide a basis for growth.

To reduce annual flood damages to property and businesses. Minimise the whole life cost of water assets, whilst maintaining good service levels, and reducing insurance claims. Ensure development is resilient to meet the demands of economic and population growth.

Environmental Objectives

“A cleaner and greener Bolton is key to making our local areas more attractive.”24

The introduction of sustainable drainage systems and their associated features underpins the objectives of promoting sustainable development.

To promote sustainable drainage systems. Ensure new development is resilient to climate change. Reduce pollution in the water environment. Enhance our built heritage and landscapes.

Social Objectives

Studies have shown that flooding can have a significant impact on both physical and mental health. Deprived communities have been shown to be the hardest hit financially and in terms of health by flooding events.

To reduce the risk to life. To reduce the impact of flooding on communities, particularly in deprived areas. To promote awareness of flood risk and how it can be managed. To promote access to SuDS for recreation and amenity.

24 Bolton Council. ‘Bolton Community Strategy – Our Vision 2007 – 2017’. 2007

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Bolton’s Flood Risk Management Strategy

12.0 Flood Risk Management Measures

The following flood risk management measures have been identified which support our strategic objectives.

Studies, Assessments and Plans

1. Provide continued support to, and collaborate with other local authorities in supporting and progressing the Greater Manchester Surface Water Management Plan.

2. Prepare flood risk and flood hazard maps in accordance with the Flood Risk Regulations.

3. Prepare flood risk management plans in accordance with the Flood Risk Regulations.

4. Undertake studies to identify locations where there is high risk to: communities, business, listed buildings, heritage assets and critical infrastructure.

5. Produce a programme of improvements to mitigate flood risk.

6. Identify the parts of the road network most at risk of flooding.

7. Examine opportunities on the highway network to mitigate the risk of flooding and for reducing pollution.

8. Develop local highway adoption standards for highway SuDS.

9. Ensure that flooding emergency response procedures are kept up to date and are fit for purpose.

10. Undertake an assessment of Flood Risk Management activities to ensure that these are WFD compliant.

Development Planning and Climate Change

1. Ensure new development complies with the national standards on SuDS (when enacted).

2. Promote the use of green and blue infrastructure.

3. Ensure development and infrastructure takes account of, and is resilient to, the effects of Climate Change.

4. Improve the heritage and legacy of development through enhanced landscapes, improved quality of open spaces, and habitat creation.

5. Ensure close co-operation between the SAB and the Planning Authority.

6. Ensure the SAB has input into local plans and development master plans.

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Bolton’s Flood Risk Management Strategy

Flood Awareness and Communication

1. Communicate with residents in high flood risk areas and how they should prepare for and respond to a flood.

2. Communicate with businesses in high flood risk areas on how they can mitigate risk and what they can do to be resilient to flooding.

Asset Management and Maintenance

1. Develop a Water Asset Management Plan.

2. Utilise the latest technology to manage and maintain flood risk assets by utilising and developing mobile working technologies.

3. Mitigate any surface water flooding problems identified on key or strategic roads as far as practicable.

4. Improve our knowledge of highway drainage systems.

5. Implement improvements in the management of highway drainage.

6. Develop and implement a culverting policy for watercourses and drainage systems.

7. Work with asset owners to improve the maintenance regimes of surface water assets as this offers the greatest opportunity to reduce flood risk without capital investment.

8. Ensure co-operation with all Risk Management Authorities and other relevant stakeholders in the area during flood risk projects, so that joint opportunities to improve assets and explore ways to collectively reduce any residual flood risk.

9. Ensure any capital works or maintenance activities undertaken by the authority or by others are WFD compliant.

Land Management

1. Mitigate flood risk through changes in land management.

2. Encourage and promote the construction of SuDS that include recreational facilities, footpaths for walking, wildlife watching, cycle routes etc.

3. Utilise SuDS as an educational resource.

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Bolton’s Flood Risk Management Strategy

13.0 Future Progress

To demonstrate successful delivery of reduced flood risk in Bolton we will monitor progress, review and update where necessary this strategy.

Due to the incremental introduction of the legislation and national standards we will need to ensure that the strategy is in harmony with current and future regulations. It is planned to review this strategy in 2014/15 when it is likely that all the proposed legislation and guidance has been introduced. Future reviews may be at a longer interval.

An action plan in the form of a separate document has been produced which contains more detail on actions that support the above measures, how these are to be time-framed, funded and the means of measuring their success.

______

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Bolton’s Flood Risk Management Strategy

Glossary

ABI Association of British Insurers Act A Bill approved by both the House of Commons and the House of Lords and formally agreed to by the reigning monarch (known as Royal Assent) ADA Association of Drainage Authorities Assets Structures, or a system of structures used to manage flood risk. AGMA Association of Greater Manchester Association Aquifer Strata that holds or transmits groundwater Average Annual The average cost of flood damage per year to a receptor or development Damages caused by flooding over a long period of time. Blue Space An urban area set aside for the storage or conveyance of surface water. Bolton at Home Local Housing Association (formerly manager of the Council’s Housing stock) Building Regulations The UK Building Regulations are rules of a statutory nature to set standards for the design and construction of buildings, primarily to ensure the safety and health for people in or around those buildings, but also for purposes of energy conservation and access to and about other buildings CABE Commission for Architecture and the Built Environment Catchments An area that serves a river with rainwater, that is every part of land where the rainfall drains to a single watercourse is in the same catchment. CCTV Close Circuit Television CFMP Catchment Flood Management Plan CLA Country Land and Business Association Climate change The change in average conditions of the atmosphere near the Earth’s surface over a long period of time. Critical Installations such as national grid sub-stations, hospitals, water Infrastructure infrastructure and COMAH sites, whose failure in service would have widespread impacts. Can include transport infrastructure. Cultural heritage Buildings, structures and landscape features that have an historic value. Culvert A covered manmade structure, usually a pipe, passing under a road, embankment etc, to direct the flow of water. DCLG Department for Communities and Local Government Defences A structure that is used to reduce the probability of floodwater affecting a particular area (for example a raised embankment) Defra Department for Environment, Food and Rural Affairs Deposition The process whereby sediment is placed on the river bed or floodplain. Drainage authorities Organisations involved in water level management, including IDBs, the Environment Agency, and RFDCs. EA Environment Agency Emissions Scenario Projection of possible levels of greenhouse gas emissions throughout the twenty-first century (low, medium and high) used by UKCP09 Expected Annual The average cost of flood damage per year to a receptor or development Damage caused by flooding over a long period of time. FCERM Flood and coastal erosion risk management FDiGA Flood Defence Grant in Aid

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Bolton’s Flood Risk Management Strategy

Flood The temporary covering by water of land not normally covered with water Fluvial Flooding Flooding from overflowing rivers and streams. GIS Geographic Information System GMCCRU Greater Manchester Civil Contingencies and Resilience Unit. Green space An area within the urban environment comprising grass, trees, or other vegetation set apart for recreational or aesthetic purposes. Grey Water Wastewater generated from domestic activities such as laundry, dishwashing, and bathing, which can be recycled on-site for uses such as landscape irrigation and constructed wetlands. Groundwater Occurs when water levels in the ground rise above the natural surface. flooding Low-lying areas underlain by permeable strata are particularly susceptible. IDB Internal drainage board Important Infrastructure that supplies essential services, for example, water, energy, infrastructure communications, transport. LDA Land Drainage Authority or Land Drainage Act LDF Local Development Framework LGA Local Government Association Listed Building A building that has been placed on the Statutory List of Buildings of Special Architectural or Historic Interest. LLFA Lead local flood authority LNR Local Nature Reserve LRF Local resilience Forum LWT Lancashire Wildlife Trust Main River A watercourse shown as such on the Main River Map, and for which the Environment Agency has responsibilities and powers NFU National Farmers Union NPPF National Planning Policy Framework Ordinary All watercourses that are not designated Main River, and which are the watercourses responsibility of Local Authorities or, where they exist, IDBs. PFRA Preliminary Flood Risk Assessment Pluvial Flooding Flooding from rainfall RAMSAR sites Wetlands of international importance designated under the Ramsar Convention RBMP River Basin Management Plans Receptor Receptor refers to the entity that may be harmed by flooding either people, property, infrastructure or key services Recovery The process of rebuilding, restoring and rehabilitating the community following an emergency. Reservoir A natural or artificial lake where water is collected and stored until needed. Reservoirs can be used for irrigation, recreation, providing water supply for municipal needs, hydroelectric power or controlling water flow. Resilience The ability of the community, services, area or infrastructure to avoid being flooded or lost to erosion, or to withstand the consequences of flooding or erosion taking place.

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Return Period A return period also known as a recurrence interval is an estimate of the average interval of time between a rainfall event of a certain intensity or size. RFDC Regional flood defence committee RFCC Regional flood and coastal committee Risk Measures the significance of a potential event in terms of likelihood and impact. In the context of the Civil Contingencies Act 2004, the events in question are emergencies Risk assessment A structured and auditable process of identifying potentially significant events, assessing their likelihood and impacts, and then combining these to provide an overall assessment of risk, as a basis for further decisions and action. Risk management Organisations that have a key role in flood and coastal erosion risk authorities management as defined by the Flood and Water Management Act (2010). These are the Environment Agency, lead local flood authorities, district councils where there is no unitary authority, internal drainage boards, water companies, and highways authorities. River flooding Occurs when water levels in a channel overwhelms the capacity of the channel. RSPB Royal Society for the Protection of Birds SAC Special Area of Conservation – Defined in Habitats Directive SBI Site of Biological Interest: a non-statutory local designation that indicates an area of biological diversity. SBI’s have no legal protection. SCI Site of Community Importance – Defined in Habitats Directive SEA Strategic environmental assessment Sewerage Flooding Flooding caused by overflowing sewers SFRA Strategic Flood Risk Assessment SME Small and Medium Enterprises SPA Special Protection Area – Defined in Habitats Directive SSSI Site of Special Scientific Interest. An area of land that is of special interest by virtue of its fauna, flora, geological or physiographical / geomorphological features. SSSI’s have some legal protection. Standard of The flood event return period above which significant damage and protection possible failure of the flood defences could occur. SuDS Sustainable drainage systems Surface water Flooding from rainwater (including snow and other precipitation) which flooding has not entered a watercourse, drainage system or public sewer. SWMP Surface Water Management Plan: A Plan for managing the component of pluvial flooding directly caused by extreme rainfall or sewerage. UKCP09 United Kingdom Climate Projections 2009 UU United Utilities; the local sewerage undertaker Watercourse A channel (natural or artificial) along which water flows usually from a natural source. WFD Water Framework Directive

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Appendices

A What are Sustainable Drainage Systems (Suds) B References / Evidence Base C Culvert Policy D Flood Risk Management Action Plan

Bolton’s Flood Risk Management Strategy

Appendix A – Sustainable Drainage Systems (SuDS)

What is a SUD?

Many years of development in our towns, cities and road networks, has resulted in large areas of the country being covered in impermeable surfaces like tarmac and concrete. These areas are drained by grids, gullys and pipes which usually discharge to rivers and sewers. In heavy rainfall this leads to all the water falling on to these surfaces to quickly run-off, this can cause flooding as grids and drains are unable to capture all the rain. It can cause sewers and rivers to overflow resulting in flooding to property. Roads and car parks in dry weather can store up oils and heavy metals deposits from vehicles on the impermeable surface, which is washed off into the streams and rivers in rainfall. This can damage wildlife in the water environment.

Sustainable Drainage Systems (SuDS) aim to move away from the traditional use of conventional piped drainage systems, through the greater use of :

Permeable surfaces Swales Filter Strips Basins Ponds and wetlands

Permeable surfaces – these come a various forms, they let water that falls on them pass through to be infiltrated into the ground below or drain into underground drainage systems.

Figure A1 : A Permeable Surface

Swales – Swales are a type of drainage ditch with a vegetated surface on a gentle gradient which are mostly dry when it is not raining, normally they have a flow control

Bolton’s Flood Risk Management Strategy at the downstream end to control the outflow of water. The water's flow path, along with being a wide and shallow ditch, is designed to maximize the time water spends in the swale, which aids the trapping of pollutants and silt. They are often constructed adjacent car parks or highways to intercept vehicle pollutants.

Figure A2: A Swale

Filter Strips – filter strips usually work in association with swales, they are shallow vegetated embankments which water flows over this encourages infiltration into the ground and the deposition of pollutants.

Figure A3: A Filter Strip

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Basins – Normally dry when it is not raining, basins are used as temporary storage areas for storm water, they normally contain flow control systems which limit the amount of water that can drain away at any time.

Figure A4: A Flood storage basin

Ponds – kept in a wet state, ponds are used in the storage of storm water, have a role in treating water to make it cleaner, and in reducing flood risk by slowing storm water run-off. They are normally contain a flow control system to limit the overflow to the next downstream water-body.

Basins and ponds treat runoff in a variety of ways: settlement of solids in still water - having plants in the water enhances calm conditions and promotes settlement, adsorption by aquatic vegetation or the soil, biological activity.

Figure A6: A flood storage pond

Bolton’s Flood Risk Management Strategy

Wetlands – this is land that is saturated with water either on a permanent or seasonal basis, they can have a large amount of vegetation and promote a diverse range of wildlife habitats. They have a role in reducing pollution and in flood risk reduction.

Figure A7 : A Wetland – Darcy Lever Gravel Pits, Bolton

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Other Issues

Pollution – it is estimated that around half the oil pollution in the sea comes from inland run-off and drainage systems. The inclusion of swales, filter strips, ponds and wetlands in a drainage system can reduce the amount of pollution it discharges, therefore reducing the amount of oil reaching rivers and the sea.

Water Safety – Some people are automatic negative about water bodies being near residential communities and have concerns in respect of the safety of water environments. Best practices in the construction of ponds and basins have been established to ensure it is done to promote safety. The depth of water is kept to a limit and entry into the water is kept at a shallow gradient. This makes it easy to walk out of the water if someone was to fall in. Planting of dense waterside vegetation is also used to make it harder to access the water easily.

Figure A8 : A Safe Pond

Other sources of information on SuDS

The websites below provide further detailed information on SuDs and additional means of providing sustainable drainage.

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http://www.susdrain.org/ http://www.sepa.org.uk/water/water_regulation/regimes/pollution_control/suds.aspx http://en.wikipedia.org/wiki/Sustainable_urban_drainage_system

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Appendix B – References / Evidence Base

1. AGMA. Green Infrastructure Framework. March 2011 2. AXA Insurance. The True Cost of Flooding. November 2010 3. BIS. Foresight Flood and Coastal Defence Project Phase 1 Technical Report Drivers, scenarios and work plan. 2003 4. BIS. Foresight Project: Flood and Coastal Defence - Mid-term review. August 2012 5. Bolton Council. Local Development Framework Bolton’s Core Strategy Development Plan Document. March 2011. 6. Bolton Council. Bolton Community Strategy – Our Vision 2007 – 2017. 2007 7. CIRIA. Water Sensitive Design in the UK. 2013 8. DCLG. The implications of the EU Water Framework Directive for plans, plan making and development control. 2006 9. DEFRA. Making Space for Water. 2005. 10. DEFRA. Future Water - The Government’s water strategy for England. 2008. 11. DEFRA. What does the Flood and Water Management Act mean for Local Authorities. 2010 12. DEFRA. Guidance for risk management authorities on sustainable development in relation to their flood and coastal erosion risk management functions. 2011. 13. DEFRA. Summary of the Key Findings from the UK Climate Change Risk Assessment 2012. 2012. 14. DEFRA. Natural England Agricultural Land Classification. Online. < www.magic.Defra.gov.uk> [18/04/2012] 15. Environment Agency. Addressing Environmental Inequalities: Flood Risk.’ (Science Report: SC020061/SR1). 2006. 16. Environment Agency. Douglas CFMP. 2008 17. Environment Agency. Irwell CFMP. 2008 18. Environment Agency. Mersey Estuary CFMP. 2008 19. Environment Agency. Water resources in England and Wales – current state and future pressures. (Dec 2008) 20. Environment Agency. North West River Basin Management Plan. (2009) 21. Environment Agency. The costs of the summer 2007 floods in England (Project: SC070039/R1). (2010). 22. Environment Agency. Understanding the risks, empowering communities, building resilience. The national flood and coastal erosion risk management strategy for England. (2011) 23. Environment Agency. The national flood and coastal erosion risk management strategy for England - Summary Strategy. (2011) 24. Environment Agency. Adapting to Climate Change: Advice for Flood and Coastal Erosion Risk Management Authorities. (Sept 2011). 25. Environment Agency. Preliminary Flood Risk Assessment (PFRA) Annexes to the final guidance. March 2011.

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26. The Greater Manchester Ecology Unit. Habitats Regulations Assessment of the Impact on European Protected Sites of Bolton Council’s Core Strategy (Publication Document). 2009 27. HPA. Flooding Advice. Online. . [19th Jan 2012]. 28. JBA Consulting. Bolton Council Preliminary Flood Risk Assessment. 2011 29. JBA Consulting. Greater Manchester Surface Water Management Plan, Stage 1 – A Strategic Assessment of Surface Water Flood Risk Draft Report. November 2011 30. Joseph Rowntree Foundation. Pluvial (rain-related) flooding in urban areas: the invisible hazard. November 2011 31. Joseph Rowntree Foundation. Sustainable urban neighbourhoods: Building communities that last. 2012 32. Local Government Association. Framework to assist the development of the Local Strategy for Flood Risk Management ‘A Living Document’ 2nd Edition, November 2011. 33. Office for National Statistics. Social Trends No.39. (2009). 34. Direct Line. [Jan 2012] 35. Pitt. Pitt Review into the lessons learnt from the 2007 floods. 2008.

Other Links

National Strategy. http://www.environment-agency.gov.uk/research/policy/130073.aspx North West River Basin Management Plans http://www.environment-agency.gov.uk/research/planning/140084.aspx North West Catchment Flood Management Plans http://www.environment-agency.gov.uk/research/planning/33586.aspx Greater Manchester Strategic Flood Risk Assessment http://www.bolton.gov.uk/website/Pages/LDFEvidencebasestrategicfloodriskassessment.aspx Bolton Strategic Flood Risk Assessment http://www.bolton.gov.uk/website/Pages/LDFEvidencebasestrategicfloodriskassessment.aspx Bolton PFRA http://www.bolton.gov.uk/website/Pages/LandDrainage.aspx GM MAFP - Civil Contingencies - http://www.bolton.gov.uk/website/Pages/Civilemergenciesflooding.aspx

Legislation

The Floods and Water Management Act - http://www.legislation.gov.uk/ukpga/2010/29/contents The Floods and Water Management Act explanatory notes - http://www.legislation.gov.uk/ukpga/2010/29/pdfs/ukpgaen_20100029_en.pdf The Flood Risk Regulations - http://www.legislation.gov.uk/uksi/2009/3042/contents/made Land Drainage Act : http://www.legislation.gov.uk/ukpga/1991/59/contents

Bolton’s Flood Risk Management Strategy

Appendix C

Culvert Policy

An explanation of our policy regarding applications to culvert ordinary watercourses, and a guide to good practice and design principles. Until April 2012, the Environment Agency (EA) gave consent for works of this nature and produced extensive guidance on the subject. We have therefore adopted many of the principles and policies that the EA have worked to over the years. This policy was developed from EA Policy documents.

1.0 Purpose Bolton Council, as the Lead Local Flood Authority (LLFA), is responsible for ordinary watercourse consent applications under Section 23 of the Land Drainage Act 1991. This guidance note has been adapted from the EA’s ‘Culvert Policy’ documents and provides a detailed explanation of our view on works to watercourses, with particular regard to culverts. It is intended for use by Bolton Council officers, landowners and developers.

2.0 Introduction Watercourses fulfil many roles in today’s environment. They provide drainage for developed and agricultural land and are vital water resources, while some also have important recreational value. They are important features of the landscape and provide habitats for a wide variety of wildlife. It is therefore important that watercourses and their associated habitats are protected and enhanced for the benefit of present and future generations. Bolton Council considers it beneficial for watercourses to remain open wherever possible for both flood defence and environmental purposes. Culverting can exacerbate the risk of flooding and increase the maintenance requirements for a watercourse. It also destroys wildlife habitats, damages a natural amenity and interrupts the continuity of the linear habitat of a watercourse. Nevertheless, the Authority recognises that watercourses over which we exercise our regulatory powers pass through a wide range of land use types, from rural to industrial landscapes. Consequently, this policy accepts that in certain situations the use of culverts may be unavoidable. Conserving open watercourses is one of the Authority’s major aims and, where possible, the Authority will encourage and promote the removal of culverts in order to restore a more natural river environment. However, culverting will not be considered until other options have been thoroughly explored, for example: clear open span bridges with existing banks and bed retained; revision of site layout to incorporate an open watercourse; diversion of the watercourse in an environmentally sympathetic channel and corridor.

3.0 Legal Requirements

Bolton’s Flood Risk Management Strategy

Any culverting of a watercourse, or the alteration of an existing culvert, requires land drainage consent. On main rivers the prior written consent of the EA is required under Section 109 of the Water Resources Act 1991. On all other watercourses, consent of the Lead Local Flood Authority’s (Bolton Council) is required under Section 23 of the Land Drainage Act 1991. Highway Authorities are required under Section 339 of the Highways Act 1980 to seek the consent of the drainage authority before carrying out any works affecting a watercourse. The following works require ordinary watercourse consent from the Lead Local Flood Authority (Bolton Council) under Section 23 of the Land Drainage Act 1991: a) erect any mill dam, weir or other like obstruction to the flow of any ordinary watercourse or raise or otherwise alter any such obstruction; or b) erect a culvert in an ordinary watercourse, or c) alter a culvert in a manner that would be likely to affect the flow of an ordinary watercourse.

4.0 Authority Policy The Authority is in general opposed to the culverting of watercourses because of the adverse ecological, flood defence and other effects that are likely to arise. The Authority will therefore only approve an application to culvert a watercourse if there is no reasonably practicable alternative or if the detrimental effects of culverting would be so minor that they would not justify a more costly alternative. In all cases where it is appropriate to do so adequate mitigation must be provided for damage caused. Wherever practical the Authority will seek to have culverted watercourses restored to open channels.

5.0 Reasons for the Policy 5.1 General reasons The Authority is in general opposed to the culverting of watercourses because of the detrimental effects that are likely to arise. Such effects may be: • loss of and adverse effects on environmental features and wildlife habitat; • increased likelihood of flooding due to blockage; • increased impact of flooding; • loss of floodwater storage; • increased difficulties in providing for drainage connections; • difficulties in the repair, maintenance and replacement of culverts; • increased health and safety hazards; • reduced groundwater recharge; • Increased difficulty in detecting the origins of pollution and in monitoring water quality.

5.2 Loss of environmental features Culverting a watercourse has a detrimental impact on the environment. There is a complete loss of environmental features associated with that section of watercourse. The continuity of the river corridor is broken, adversely affecting the landscape and ecological value of the watercourse and inhibiting the migration of some species. An existing or potential amenity is lost for present and future generations.

5.2 Increased likelihood of blockages

Bolton’s Flood Risk Management Strategy

Compared with an open channel there is an increased risk of blockage once a culvert is installed. If the blockage is within the culvert, there is much greater difficulty in removing it. For these reasons many culverts have screens installed at their upstream end. These screens themselves are often prone to blockage and require frequent clearance and robust emergency procedures to ensure that they do not in themselves cause flooding. It is sometimes argued that culverting will reduce the problem of open channels subject to rubbish deposition. The Agency considers that in most cases such short- term advantages are outweighed by the overall disadvantages of culverting and that alternative means should be pursued to address the rubbish problem.

5.3 Increased impact of flooding The effect of the overland flooding that will occur when a culvert cannot cope with all the flow reaching it is often more serious than flooding from an open watercourse.

5.4 Loss of floodwater storage Open channels generally provide more storage capacity than a culvert and the detriment will be more significant in relation to longer culverts.

5.5 Increased difficulties in providing for drainage connections Drainage can be provided more easily with open watercourses into which drain connections can readily be made and the performance of drainage systems visually monitored. Outfalls within culverts are prone to blockage or, in the case of flapped outfalls, can seize up. Maintenance of these outfalls is considerably easier in open channels.

5.6 Difficulties in the repair, maintenance and replacement of culverts Culverts conceal the presence of a watercourse and can lead to development or unacceptable land-use above or near them. In many urban areas buildings have been constructed above or adjacent to culverts. This means that improving standards of flood protection or accommodating run-off from future developments could be impossible or uneconomic due to the cost of replacing or enlarging existing culverts. There have recently been cases of serious flooding caused by culverts collapsing due to large amounts of materials stockpiled above them. In urban areas consideration must be given to the need to provide alternative means to deal with flood water over and above that which can be accommodated by the culvert under design conditions. This will also provide contingency arrangements in the event of blockage of the culvert, thereby minimising the risks of flooding to property. The responsibility for the condition and maintenance of a culvert lies with the landowner or the owner of the culvert unless other agreements are in place. The responsible party must therefore ensure that the culvert and any screens remain in good condition and free from obstructions. Failure to do so could result in liability for any damage caused by flooding. Access to culverts is generally safe only with the use of special procedures and equipment, making inspection and maintenance both difficult and costly.

6.0 Consent Procedure

Bolton’s Flood Risk Management Strategy

Landowners and developers should seek our advice as early as possible on any proposal, allowing sufficient time before the intended start date. The consent application forms and details on how to apply and pay the appropriate fee are available on our website. As part of the process we will consult where appropriate various authorities including the Environment Agency, Highway Authorities and Natural England. Identifying and resolving possible problems before plans reach an advanced stage will minimise costs to all parties and will reduce the time taken to determine the application. Once determined, we will notify you of our approval or refusal in writing along with a written copy of your consent if applicable.

7.0 General Design Requirements 1. A detailed design will need to be submitted with your formal application for consent. Adequate hydraulic calculations must be submitted and include an allowance for climate change over the life time of the development. 2. The applicant should consider the environmental implications of all options for the works to determine the least environmentally damaging solution. If no other alternative is feasible, any proposed culvert length should be as short as possible and the diameter as large as possible. Depending on local circumstances we shall require a minimum culvert diameter of 600mm. 3. Culverts must be designed so they do not cause a restriction to flood flow. They must not increase the risk of flooding or prevent maintenance of the adjacent open watercourse. Consideration must also be given to overland flow paths in the event of a culvert becoming obstructed. It should be ensured that overland flows will not affect property or cause unreasonable nuisance or harm. 4. The shape of the culvert and the materials used for construction should be chosen to satisfy site-specific requirements in terms of channel hydraulics, strength and durability, and should be appropriate to the local environment. Any proprietary products shall have a design life exceeding the lifetime of the development. 5. The use of differently shaped pipes or different cross-sectional details within a culvert length should be avoided unless adequate hydraulic transitions are incorporated into the design. Such transitions are also essential where works to extend an existing culvert are proposed. 6. Appropriate inlet and outlet structures should be provided in order to ensure smooth hydraulic transition and avoid erosion. Headwall arrangements at the upstream and downstream ends of a culvert should be suitably keyed into the bed and banks of the watercourse, and should be appropriate to the local environment. 7. The responsibility for future maintenance and clearance of a culvert must be agreed and details of those responsible submitted with your application for consent. The responsibility for the maintenance of a culvert lies with the land owner or the person who owns the culvert. 8. Suitable access arrangements for maintenance should be included in the design. Access chambers must be provided at each change of direction if the culverting

Bolton’s Flood Risk Management Strategy

is not straight. Sharp bends (exceeding 45 degrees) should be avoided. Manhole spacing should be in accordance with the guidance in CIRIA Report 168 Culvert Design Guide but, due to the nature of watercourses and to facilitate maintenance, the maximum spacing between access chambers should not exceed 100 metres. 9. Inlet and outlet screens may be appropriate to prevent debris entering the culvert and causing clogging, or where there is a danger to public safety. If screens are included, they need to be sized and designed to reduce the risks of blocking, make provision for adequate cleansing and maintenance. A formal maintenance regime must be submitted with the application and agreed prior to consent. Parties with private maintenance liabilities shall be clearly stated and contact details provided. 10. In most situations it is appropriate for the inverts of culverts to be set below the existing bed level to allow for future maintenance or other works on the watercourse. It also aids the provision of a more “natural” bed to the culvert. 11. Multiple small culvert arrangements are prone to blockage by accumulation of waterborne debris at the inlet. The authority will generally refuse applications containing multiple culverts, only in exceptional circumstances where site constraints prevent a single-pipe or box-culvert option being practical, will they be accepted. Where multiple culverts are unavoidable, a minimum number of culverts should be used and cutwaters should be provided between pipes at the culvert inlet. 12. Syphons are not an acceptable option. 13. Culverts and outfall structures should be designed so that the exit velocities do not create erosion problems at the outlet and downstream. 14. On watercourses subject to severe erosion and siltation problems consideration should be given to the provision of silt traps upstream of the culvert. 15. Services (for example sewers, gas pipes, water mains etc) should not impinge into the cross-section of the culvert.

8.0 Environmental Considerations Each application for consent is considered on its own merits. Mitigation works to reduce the impact on the environment will be taken into account by the Authority when determining a consent application for culverting. Environmental mitigation for larger culverts: 1. Make the culvert slightly larger than that needed to accommodate the design flow and then position the invert of the culvert below the natural bed of the watercourse, to enable some more natural bed features to form. 2. Provide ledges running through the culvert (approximately 500 mm wide and 300 mm above normal water level) to allow for the passage of mammals. Or make provision for appropriately located mammal underpasses close to the culvert. 3. The height of the invert should not pose an obstruction to fish movement. 4. Provide structures to encourage bat roosting and bird nesting as appropriate.

Bolton’s Flood Risk Management Strategy

Environmental mitigation for smaller culverts: 1. Propose suitable environmental enhancements, for example opening up a length of previously culverted watercourse elsewhere on the site, enhancing other lengths of the watercourse, creation of a pond/marshy area, scrub/hedge planting. 2. Construct headwalls and wingwalls in ‘soft-engineering’ or natural materials in keeping with the natural channel.

9.0 Planning Application and Building Control Considerations 1. The requirement for ordinary watercourse consent is independent of the need for planning permission and the granting of planning permission does not imply or guarantee that we will grant Land Drainage consent. 2. We would normally oppose planning consent and refuse ordinary watercourse consent on conservation grounds for a development which proposes a culvert where there are reasonable alternatives. Such alternative solutions might include a revised site layout or an ecologically acceptable diversion of an open channel. 3. Buildings should not be sited over the top of new or existing culverts. Building regulations (Approved Document H) stipulate the distance from which a watercourse or sewer should be laid from new foundations. 4. We would oppose planning consent for any building over a culvert as the culvert may, in the future, need to be repaired, replaced or up-rated if conditions in the catchment change. There is also the need to maintain an overland flow route if the culvert is blocked or its capacity exceeded. 5. Consent is also required for development within a specified distance of either side of a Main River in accordance with Environment Agency Byelaws.

Bolton’s Flood Risk Management Strategy

Glossary Bridge An open span structure that carries a road, footpath, railway etc over a watercourse. Culvert A underground channel or pipeline used to continue a watercourse or drainage path under an artificial obstruction. Culverting The act of creating an underground channel or conduit. Cutwater The wedge-shaped streamlined head of a bridge pier or other structure within a watercourse channel. EA Environment Agency FWMA Flood and Water Management Act Invert The lowest internal surface or the floor of a culvert. LLFA Local Lead Flood Authority Main river All watercourses shown as such on the statutory main river maps held by the Environment Agency. Main river can include any structure or appliance for controlling or regulating the flow of water in or out of the channel. Ordinary A watercourse which does not form part of a main river. watercourse Watercourse Includes all rivers, streams, ditches, drains, cuts, dykes, sluices, sewers (other than public sewers) and passages through which water flows.

Bolton’s Flood Risk Management Strategy

Appendix D:

Flood Risk Management Action Plan

1.0 Our Local Flood Risk Strategic Objectives

Economic Objectives

Reducing economic damage from flooding will make Bolton economically and socially resilient and provide a basis for growth.

Environmental Objectives

“A cleaner and greener Bolton is key to making our local areas more attractive.”25

The introduction of sustainable drainage systems and their associated features underpins the objectives of promoting sustainable development.

To promote sustainable drainage systems. Ensure new development is resilient to climate change. Reduce pollution in the water environment. Enhance our built heritage and landscapes.

Social Objectives

To reduce the risk to life. To reduce the impact of flooding on deprived communities. To promote awareness of flood risk and how it can be managed. To promote access to SuDS for recreation and amenity.

25 Bolton Council. Bolton Community Strategy – Our Vision 2007 – 2017

Bolton’s Flood Risk Management Strategy

2.0 Statutory Requirements

The Flood and Water Management Act (FWMA) introduces new statutory duties for local lead flood authorities. They are primarily but not limited to the following:

1. Developing, maintaining, applying and monitoring a strategy for local flood risk management.

2. Acting in a manner which is consistent with the national strategy and guidance.

3. Consulting other Risk Management Authorities and the public on its strategy.

4. Publishing a summary of the strategy.

5. To investigate significant floods and publish our findings.

6. To establish and maintain a register of assets that have a significant effect on flood risk.

7. To designate natural and man-made features that affect flood risk.

8. To consent the alteration, removal or replacement of designated features.

9. To enforce the protection of designated features.

10. Enforcement of obligations to repair watercourses and bridges.

11. Enforcement of obligations to remove obstructions in watercourses.

12. To consent work in watercourses, and the creation or alteration of culverts.

13. To ensure executive arrangements by the authority include a committee to review and scrutinise the exercise by the Environment Agency and United Utilities their flood risk management functions.

There are a number of provisions of the FWMA that have yet to be enacted. These may bring additional statutory duties relating to the construction of sustainable drainage. Additional duties are also contained in the Flood Risk Regulations.

We shall fulfil the statutory duties outlined above, but our strategy shall incorporate the additional work stated below in Section 3; Flood Risk Management Measures and Section 4; The Action Plan, to support achieving the objectives of the strategy.

Section 3 lists the measures we have identified to support both our local aims and the national strategy. Section 4 lists in more detail what tasks and actions are required to fulfil the measures identified, how they are to be funded, who will undertake them, when they shall be completed by and how their success will be measured.

Bolton’s Flood Risk Management Strategy

3.0 Flood Risk Management Measures

The following flood risk management measures have been identified which support our strategic objectives.

Studies, Assessments and Plans

11. Provide continued support to, and collaborate with other local authorities in supporting and progressing the Greater Manchester Surface Water Management Plan.

12. Prepare flood risk and flood hazard maps in accordance with the Flood Risk Regulations.

13. Prepare flood risk management plans in accordance with the Flood Risk Regulations.

14. Undertake studies to identify locations where there is high risk to: communities, business, listed buildings, heritage assets and critical infrastructure.

15. Produce a programme of improvements to mitigate flood risk.

16. Identify the parts of the road network most at risk of flooding.

17. Examine opportunities on the highway network to mitigate the risk of flooding and for reducing pollution.

18. Develop local highway adoption standards for highway SuDS.

19. Ensure that flooding emergency response procedures are kept up to date and are fit for purpose.

20. Undertake an assessment of Flood Risk Management activities to ensure that these are WFD compliant.

Development Planning and Climate Change

7. Ensure new development complies with the national standards on SuDS (when enacted).

8. Promote the use of green and blue infrastructure.

9. Ensure development and infrastructure takes account of, and is resilient to, the effects of Climate Change.

10. Improve the heritage and legacy of development through enhanced landscapes, improved quality of open spaces, and habitat creation.

11. Ensure close co-operation between the SAB and the Planning Authority.

12. Ensure the SAB has input into local plans and development master plans.

Bolton’s Flood Risk Management Strategy

Flood Awareness and Communication

3. Communicate with residents in high flood risk areas and how they should prepare for and respond to a flood.

4. Communicate with businesses in high flood risk areas on how they can mitigate risk and what they can do to be resilient to flooding.

Asset Management and Maintenance

10. Develop a Water Asset Management Plan.

11. Utilise the latest technology to manage and maintain flood risk assets by utilising and developing mobile working technologies.

12. Mitigate any surface water flooding problems identified on key or strategic roads as far as practicable.

13. Improve our knowledge of highway drainage systems.

14. Implement improvements in the management of highway drainage.

15. Develop and implement a culverting policy for watercourses and drainage systems.

16. Work with asset owners to improve the maintenance regimes of surface water assets as this offers the greatest opportunity to reduce flood risk without capital investment.

17. Ensure co-operation with all Risk Management Authorities and other relevant stakeholders in the area during flood risk projects, so that joint opportunities to improve assets and explore ways to collectively reduce any residual flood risk.

18. Ensure any capital works or maintenance activities undertaken by the authority or by others are WFD compliant.

Land Management

4. Mitigate flood risk through changes in land management.

5. Encourage and promote the construction of SuDS that include recreational facilities, footpaths for walking, wildlife watching, cycle routes etc.

6. Utilise SuDS as an educational resource.

Bolton’s Flood Risk Management Strategy

4.0 The Action Plan

Studies, Assessments and Plans

Actions S1

The council and its partners will:

1. Support and collaborate on progressing the GM SWMP.

2. Prepare flood risk and flood hazard maps in accordance with the Flood Risk Regulations.

3. Prepare flood risk management plans in accordance with the Flood Risk Regulations.

Key delivery Items – Studies, Assessments and Plans (S1)

Item Cost and Who Delivery Time Frame Funding Support and collaborate on LLFA The 10 LA’s of On-going On-going progressing the GM SWMP AGMA Greater Manchester EA AGMA UU EA United Utilities Undertake flood risk and hazard EA LLFA Publication of Dec 2013 mapping (compliant with Flood EA Flood Risk and Risk Regulations) Hazard Maps Undertake Flood Management LLFA LLFA Publication of Dec 2015 Plans for areas of significant EA Flood Risk flood risk (compliant with Flood AGMA - GMCCRU Management Risk Regulations). Plans

Measuring Delivery S1

Strategic Objective met: To promote awareness of flood risk and how this can be managed. To reduce annual flood damages to property and businesses. Enhance our built heritage and landscapes. National Strategy Consistency To help communities better understand and manage the flood and coastal erosion risks they face. To manage the risk of flooding to people and their property. respond better to flood incidents and during recovery.

Indicators (and targets) Study completed in time frame.

Flexibility and phasing Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

Bolton’s Flood Risk Management Strategy

Actions S2

The council and its partners will:

4. Undertake studies to identify locations where there is high risk to: communities, business, critical infrastructure, listed buildings and heritage assets.

5. Produce a programme of improvements to mitigate flood risk.

Key delivery Items – Studies, Assessments and Plans (S2)

Item Cost and Funding Who Delivery Time Frame Undertake a study to identify LLFA budget Bolton Council Study 2013/14 deprived areas that are also at Bolton at Home Complete risk of flooding. Other Local Housing Associations Undertake a study to identify LLFA budget Bolton Council Study 2013/14 businesses at risk of surface Complete water flooding. Identify critical infrastructure at LLFA budget Schools Study 2013/14 risk of flooding and work with Utility Co.’s Complete asset owners to reduce flood Network Rail risk. TFGM Identify Listed Buildings and LLFA budget Bolton Council Study 2013/14 Heritage Assets at risk of Complete flooding. Undertake a study to identify LLFA budget Bolton Council Study 2015 areas where annual flood Complete damage is highest. Create a programme of works LLFA budget. Bolton Council Outline 2015/16 to reduce risk in areas where programme annual flood damage is created greatest.

Measuring Delivery S2

Strategic Objective met: To reduce annual flood damages to property and businesses. To reduce the impact of flooding on communities, particularly in deprived areas. National Strategy Consistency Manage the risk of flooding and coastal erosion to people and their property. help householders, businesses and communities better understand and manage the flood and coastal erosion risks they face. To invest in actions that benefit communities who face the greatest risk, but who are least able to afford to help themselves. Indicators (and targets) Studies completed in time frame Flexibility and phasing Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

Bolton’s Flood Risk Management Strategy

Actions S3

The council and its partners will:

6. Identify the parts of the road network most at risk of flooding.

7. Examine opportunities on the highway network to mitigate the risk of flooding and reducing pollution.

8. Develop local highway adoption standards for highway SuDS.

Key delivery Items – Studies, Assessments and Plans (S3)

Item Cost and Who Delivery Time Frame Funding Undertake a study to identify LLFA budget Bolton Council Completion of 2013/14 roads at significant risk of SW study. flooding. Undertake a study of silt levels Highway Bolton Council Completion of 2016 and the fate of highway Authority study discharge to the environment to budget inform a review of the gulley cleaning and road sweeping regime and standards, with a focus on flood risk reduction and pollution reduction. Alter highway design process to Highway Bolton Council Highway 2014 introduce stormwater attenuation Authority As Highway Design Process in all future highway schemes Authority altered. where appropriate, and to ensure schemes are WFD compliant. Undertake a study into the LLFA Bolton Council as Completion of 2016 existing highway drainage Highway LLFA study system to identify opportunities Authority Bolton Council as for the retro-fitting of SuDS to HA reduce flood and pollution risk. Develop highway adoption Highway Bolton Council Standard Dependent on standards and specification for Authority As Highway completed and enactment of the construction of highway budget Authority approved SuDS drainage SuDS systems on legislation adoptable roads.

Measuring Delivery S3 Strategic Objective met: To reduce annual flood damages to property and businesses. Reduce pollution in the water environment. To reduce the risk to life. National Strategy Consistency To manage the risk of flooding and coastal erosion to people and their property. And, where possible, to improve standards of protection. To put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy. respond better to flood incidents and during recovery, and to coastal erosion. Indicators (and targets) Studies completed in time frame Flexibility and phasing

Bolton’s Flood Risk Management Strategy

Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

Actions S4

The council and its partners will:

9. Ensure that flooding emergency response procedures are kept up to date and are fit for purpose.

Key delivery Items – Studies, Assessments and Plans (S2)

Item Cost and Who Delivery Time Frame Funding Undertake a review of LLFA LLFA Review 2013/14 emergency response GMCCRU completed procedures

Measuring Delivery S4

Strategic Objective met: To reduce the risk to life. To reduce the impact of flooding on communities, particularly in deprived areas.

National Strategy Consistency respond better to flood incidents and during recovery.

Indicators (and targets) Study completed in time frame

Flexibility and phasing Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

Bolton’s Flood Risk Management Strategy

Actions S5

The council and its partners will:

10. Undertake an assessment of Flood Risk Management activities to ensure that these are WFD compliant.

Key delivery Items – Studies, Assessments and Plans (S2)

Item Cost and Who Delivery Time Frame Funding Undertake an assessment of LLFA LLFA Review 2014/15 Flood Risk Management completed activities to ensure they are WFD complaint

Measuring Delivery S5

Strategic Objective met: Reduce pollution in the water environment. Enhance our built heritage and landscapes.

National Strategy Consistency put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy.

Indicators (and targets) Study completed in time frame

Flexibility and phasing Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

Bolton’s Flood Risk Management Strategy

Development Planning and Climate Change

Actions DP1

The council and its partners will:

1. Ensure new development complies with the national standards on SuDS (when enacted).

2. Promote the use of green and blue infrastructure.

Key delivery Items – Development Planning (DP1)

Item Cost and Who Delivery Time Frame Funding Through the application of LLFA Bolton Council On Planning On-going planning policies and Application suitable drainage constraints ensure new development reduces the likelihood of flooding in Bolton, and to minimises potential flooding to areas downstream.

Encourage developers to LLFA budget Bolton Council On Construction On-going implement soft landscape SuDS solutions and to promote infiltration solutions where appropriate

Require properties to be built LLFA Bolton Council On Construction On-going with finished ground floor EA Developers level, access and car EA parking to be above a set flood level. Support and promote the Developers Developers On Construction Dependent on creation of attractive green Bolton Council enactment of and blue infrastructure in Housing associations SuDS new development. legislation Promote pollution reducing LLFA Bolton Council On Construction Dependent on SuDS for the disposal of Developers enactment of highway drainage on new Bolton Council as SuDS development Highway Authority legislation

Measuring Delivery DP1

Strategic Objective met: To reduce annual flood damages to property and businesses. Ensure development is resilient to meet the demands of economic and population growth. To promote sustainable drainage systems. Reduce pollution in the water environment. Enhance our built heritage and landscapes National Strategy Consistency

Bolton’s Flood Risk Management Strategy

To manage the risk of flooding and coastal erosion to people and their property. And, where possible, to improve standards of protection. To put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy. Indicators (and targets) Dependent on construction activity

Flexibility and phasing Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

Actions DP2

The council and its partners will:

3. Ensure development and infrastructure takes account of, and is resilient to, the effects of Climate Change

Key delivery Items – Development Planning (DP2)

Item Cost and Who Delivery Time Frame Funding Climate Change adaptation - Developers Developers On Construction On-going Ensure all drainage designs Bolton Council as take into account the LLFA predicted changes in climate over the lifetime of the development Climate Change adaptation Developers Developers On Construction Dependent on – Include drought resistant Bolton Council as enactment of planting in SuDS. LLFA SuDS legislation Climate Change mitigation - Developers Developers On Construction Dependent on Encourage the use of Bolton Council as enactment of recycled materials / LLFA SuDS aggregates in construction of legislation SuDS.

Measuring Delivery DP2

Strategic Objective met: To reduce annual flood damages to property and businesses. Ensure development is resilient to meet the demands of economic and population growth. Ensure new development is resilient to climate change. National Strategy Consistency To put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy. Indicators (and targets) Number of SuDS created and adopted

Flexibility and phasing Dependent on future development activity

Bolton’s Flood Risk Management Strategy

Actions DP3

The council and its partners will:

4. Improve the heritage and legacy of development through enhanced landscapes, improved quality of open spaces, and habitat creation.

Key delivery Items – Planning Development (DP3)

Item Cost and Who Delivery Time Frame Funding Promote improved open Developers Developers On Dependent on spaces through the use of Bolton Council Construction enactment of green space and blue space SuDS as part of SuDS. legislation Improved biodiversity through Developers Developers On Dependent on habitat creation Bolton Council Construction enactment of SuDS legislation Encourage suitable planting Developers Developers On Dependent on and trees within SuDS Bolton Council Construction enactment of systems SuDS legislation

Measuring Delivery DP3

Strategic Objective met: To promote sustainable drainage systems. Enhance our built heritage and landscapes

National Strategy Consistency To manage the risk of flooding and coastal erosion to people and their property. And, where possible, to improve standards of protection. To put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy.

Indicators (and targets) Number of SuDS containing green or blue infrastructure adopted Flexibility and phasing Dependent on future development activity

100

Bolton’s Flood Risk Management Strategy

Actions DP4

The council and its partners will:

5. Ensure close co-operation between the SAB and the Planning Authority.

6. Ensure the SAB has input into local plans and development master plans.

Key delivery Items – Development Planning (DP4)

Item Cost and Who Delivery Time Frame Funding Establish a process with LLFA s Bolton Council as Process On-going planners to ensure close LLFA established cooperation prior to and Oct 2012 during planning process Input into local development LLFA Bolton Council Input into On-going master plans and site master plan development plans development

Measuring Delivery DP4

Indicators (and targets) Number of SuDS created and adopted

Flexibility and phasing Dependent on future development activity

101

Bolton’s Flood Risk Management Strategy

Flood Awareness and Communication

Actions F1

The council and its partners will:

1. Communicate with residents in high flood risk areas and how they should prepare for and respond to a flood.

Key Delivery Items – Flood Awareness and Communication (F1)

Item Cost and Who Delivery Time Frame Funding Inform residents of flood risk LLFA budget Bolton Council Publication of 2014/15 EA flood risk maps. Advise residents at risk of LLFA budget Bolton Council Produce 2014/15 surface water flooding on Bolton at Home advice note. health risks during and after Other Local floods. In particular any Housing deprived communities. Associations EA Raise the awareness of LLFA budget Bolton Council Produce 2015/13 need for household private sector Bolton at Home advice note. insurance. finance Other Local Housing Associations

Measuring Delivery F1

Strategic Objective met: To promote awareness of flood risk and how this can be managed To reduce the impact of flooding on communities, particularly in deprived areas. National Strategy Consistency To help communities better understand and manage the flood and coastal erosion risks they face.

Indicators (and targets) Surface water flood risk maps risk published on publicly accessible website.

Flexibility and phasing Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

102

Bolton’s Flood Risk Management Strategy

Actions F2

The council and its partners will:

2. Communicate with businesses in high flood risk areas and how what they can do to be resilient to flooding.

Key delivery Items – Flood Awareness and Communication (F2)

Item Cost and Who Delivery Time Frame Funding Give advice on risk and LLFA budget Bolton Council Publication of 2014/15 mitigation measures to advice note and targeted businesses at risk contact with of flooding. businesses. Encourage uptake of flood LLFA budget Bolton Council Publication of 2014/15 resilience measures by advice note and businesses at risk contact with businesses. Awareness of the LLFA budget Bolton Council Publication of 2014/15 importance of flood advice note and insurance in the business contact with community businesses.

Measuring Delivery F2

Strategic Objective met: To reduce annual flood damages to property and businesses. To promote awareness of flood risk and how this can be managed National Strategy Consistency To help householders, businesses and communities better understand and manage the flood and coastal erosion risks they face. To invest in actions that benefit communities who face the greatest risk, but who are least able to afford to help themselves.

Indicators (and targets) Advice or letter drop to businesses at risk of surface water flooding

Flexibility and phasing Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

103

Bolton’s Flood Risk Management Strategy

Asset Management and Maintenance

Actions AM1

The council and its partners will:

1. Develop a Water Asset Management Plan.

2. Utilise the latest technology to manage and maintain flood risk assets by utilising and developing mobile working technologies.

Key delivery Items – Asset Management and Maintenance (AM1)

Item Cost and Who Delivery Time Frame Funding Develop a Water Asset LLFA LLFA Publication of 2014/15 Management Plan Plan Create a programme of LLFA LLFA Delivery of 2013/14/15 water asset access and RFCC programme. safety improvements. FDGIA CBPP Utilise the latest advances in LLFA budget Bolton Council Continuous On-going new technology to deliver development flood risk management effectively and efficiently. In-house development of a LLFA budget Bolton Council Continuous On-going mobile working applications development to assist in the inspection of assets and the collection of asset data in order to deliver an efficient service

Measuring Delivery AM1

Strategic Objective met: Minimise the whole life cost of assets, whilst maintaining good service levels, and reducing insurance claims. To reduce annual flood damages to property and businesses. To reduce the risk to life. National Strategy Consistency To manage the risk of flooding and coastal erosion to people and their property. Over time, we will be able, where possible, to improve standards of protection. Invest in actions that benefit communities who face the greatest risk. put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy. Indicators (and targets) Completion of Plan Flexibility and phasing Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

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Bolton’s Flood Risk Management Strategy

Actions AM2

The council and its partners will:

3. Mitigate any surface water flooding problems identified on key or strategic roads as far as practicable. 4. Improve our knowledge of highway drainage systems. 5. Implement improvements in the management of highway drainage.

Key delivery Items – Asset Management and Maintenance (AM2)

Item Cost and Who Delivery Time Frame Funding Resolve any flooding problems Highway Bolton Council Programme of On-going identified on key roads Authority improvement budget works. Improve knowledge, location Highway Bolton Council Programme of On-going and condition of highway Authority asset data drainage systems budget collection and condition assessments undertaken Improved data management Highway Bolton Council Creation of 2014/15 through the creation of a Authority database highway drainage spatial budget database. Implement a policy of upgrading Highway Bolton Council Completion of 2014/15 gully pots and gratings to Authority Asset modern standards where a flood budget Management risk is identified. Plan and input into highway capital programme Implement an efficient and flood Highway Bolton Council Completion of 2016 focused risk based highway Authority study gully cleaning and road budget sweeping regime based on flood LLFA budget risk and silt deposition rates

Measuring Delivery AM2

Strategic Objective met: To reduce annual flood damages to property and businesses. Minimise the whole life cost of assets, whilst maintaining good service levels, and reducing insurance claims. To reduce the risk to life. National Strategy Consistency To manage the risk of flooding and coastal erosion to people and their property. And, where possible, to improve standards of protection. To put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy. respond better to flood incidents and during recovery, and to coastal erosion. To invest in actions that benefit communities who face the greatest risk, but who are least able to afford to help themselves. Indicators (and targets) Programmes implemented.

Flexibility and phasing

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Bolton’s Flood Risk Management Strategy

Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

Actions AM3

The council and its partners will:

6. Develop and implement a culverting policy for watercourses and drainage systems.

7. Work with asset owners to improve the maintenance regimes of surface water assets as this offers the greatest opportunity to reduce flood risk without capital investment.

Key delivery Items – Asset Management and Maintenance (AM3)

Item Cost and Who Delivery Time Frame Funding Develop and implement a LLFA Bolton Council Policy Approval 2013/14 culverting policy Planning EA Identify asset owners and agree LLFA Bolton Council Maintenance On-going risk based maintenance regimes Regimes agreed with asset owners Communication with Risk LLFA Bolton Council Regular On-going Management Authorities in the Environment planning area so that opportunities for Agency meetings with partnership working are United Utilities Risk explored. Management Authorities

Measuring Delivery AM3

Strategic Objective met: To reduce annual flood damages to property and businesses. Minimise the whole life cost of assets, whilst maintaining good service levels, and reducing insurance claims. To reduce the risk to life. National Strategy Consistency To manage the risk of flooding and coastal erosion to people and their property. And, where possible, to improve standards of protection. To put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy. To invest in actions that benefit communities who face the greatest risk, but who are least able to afford to help themselves. Indicators (and targets) Programmes implemented. Flexibility and phasing Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

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Bolton’s Flood Risk Management Strategy

Actions AM4

The council and its partners will:

9. Ensure any capital works or maintenance activities undertaken by the authority or by others are WFD compliant.

Key delivery Items – Asset Management and Maintenance (AM4)

Item Cost and Who Delivery Time Frame Funding Develop capacity and processes LLFA Bolton Council WFD From 2015 to enable WFD assessments to assessments be undertaken being undertaken Ensure any capital or LLFA Bolton Council Works From 2015 maintenance activities compliant with undertaken are WFD compliant. WFD

Measuring Delivery AM4

Strategic Objective met: Reduce pollution in the water environment. Enhance our built heritage and landscapes.

National Strategy Consistency To put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy.

Indicators (and targets) Programmes implemented.

Flexibility and phasing Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

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Bolton’s Flood Risk Management Strategy

Land Management

Policy L1

The council and its partners will:

1. Mitigation of flood risk through changes in Land Management

Key delivery Items – Land Management (L1)

Item Cost and Funding Who Delivery Time Frame Management of the Bolton LLFA budget public Bolton Council Project 2020 Council estate to promote sector finance Greenspace Dependent. pond and wetland Management management Encourage means of LLFA budget public / Bolton Council as Project Pilot study In achieving land private sector finance landowner Dependent. Progress. management change to United Utilities as On-going. reduce run-off in upland landowner areas Landowners Encourage targeted LLFA budget public / Bolton Council Project 2025 woodland creation to private sector finance Red Rose Forest Dependent. reduce the rate of run-off from steep ground

Measuring Delivery L1

Strategic Objective met: To reduce annual flood damages to property and businesses. To promote sustainable drainage systems. Enhance the best of our built heritage and landscapes National Strategy Consistency To manage the risk of flooding and coastal erosion to people and their property. And, where possible, to improve standards of protection. To put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy.

Indicators (and targets) Changes in land management made. Moorland grips or woodland created. Flexibility and phasing Future LLFA funding may be variable, but these actions allow for changes in phasing and specific outcomes.

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Bolton’s Flood Risk Management Strategy

Actions L2

The council and its partners will:

2. Encourage and promote the construction of SuDS that include recreational facilities, footpaths for walking, wildlife watching, cycle routes etc.

3. Utilise SuDS as an educational resource.

Key Delivery Items – Land Management (L2)

Item Cost and Funding Who Delivery Time Frame Creation of SuDS that Developers Bolton Council On Dependent on include recreational facilities Developers Construction enactment of SuDS legislation Explore opportunities to visit LLFA budget Bolton Council On Dependent on local schools to educate on GM Ecology unit Construction enactment of SuDS, flood risk, pollution, SuDS habitat creation and water legislation safety

Measuring Delivery L2

Strategic Objective met: To promote sustainable drainage systems. To promote access to SuDs for recreation and amenity. To promote awareness of flood risk and how this can be managed

National Strategy Consistency To put sustainability at the heart of the actions we take, so that we work with nature and benefit the environment, people and the economy.

Indicators (and targets) Number of SuDS schemes incorporating recreational facilities Utilise SuDS systems used as an educational resource Presentations to local schools on flood risk and SuDS

Flexibility and phasing The construction of Suds is dependent on the commencement of legislation and housing market conditions, so outcomes are currently uncertain.

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