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Understanding of and Response to Severe Flash Flooding

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Understanding of and Response to Severe Flash Flooding Understanding of and response to severe flash flooding Science Report: SC070021 Product code: SCHO0509BQAP-E-P The Environment Agency is the leading public body protecting and improving the environment in England and Wales. It’s our job to make sure that air, land and water are looked after by everyone in today’s society, so that tomorrow’s generations inherit a cleaner, healthier world. Our work includes tackling flooding and pollution incidents, reducing industry’s impacts on the environment, cleaning up rivers, coastal waters and contaminated land, and improving wildlife habitats. This report is the result of research commissioned by the Environment Agency’s Science Department and funded by the joint Environment Agency/ Defra Flood and Coastal Erosion Risk Management Research and Development Programme. Published by: Author(s): Environment Agency, Rio House, Waterside Drive, Ben Cave, Liza Cragg, Jo Gray, Prof Dennis Parker, Aztec West, Almondsbury, Bristol, BS32 4UD Katherine Pygott, Sue Tapsell Tel: 01454 624400 Fax: 01454 624409 www.environment-agency.gov.uk Dissemination Status: Publicly available ISBN: 978-1-84911-054-9 Keywords: © Environment Agency June 2009 Flash floods, rapid response catchment, public understanding, response, flood warning All rights reserved. This document may be reproduced with prior permission of the Environment Agency. Research Contractor: Halcrow Group Ltd, Burderop Park, Swindon, The views and statements expressed in this report are Wiltshire. SN4 0QD those of the author alone. The views or statements expressed in this publication do not necessarily Environment Agency’s Project Manager: represent the views of the Environment Agency and the Jacqui Cotton, Flood Risk Science Environment Agency cannot accept any responsibility for such views or statements. Collaborator(s): Ben Cave Associates, Flood Hazard Research Centre This report is printed on Cyclus Print, a 100% recycled Middlesex University stock, which is 100% post consumer waste and is totally chlorine free. Water used is treated and in most cases Science Project Number: returned to source in better condition than removed. SC070021 Further copies of this report are available from: Product Code: The Environment Agency’s National Customer Contact SCHO0509BQAP-E-P Centre by emailing: [email protected] or by telephoning 08708 506506. ii Science at the Environment Agency Science underpins the work of the Environment Agency. It provides an up-to-date understanding of the world about us and helps us to develop monitoring tools and techniques to manage our environment as efficiently and effectively as possible. The work of the Environment Agency’s Science Department is a key ingredient in the partnership between research, policy and operations that enables the Environment Agency to protect and restore our environment. The science programme focuses on five main areas of activity: Setting the agenda, by identifying where strategic science can inform our evidence- based policies, advisory and regulatory roles; Funding science, by supporting programmes, projects and people in response to long-term strategic needs, medium-term policy priorities and shorter-term operational requirements; Managing science, by ensuring that our programmes and projects are fit for purpose and executed according to international scientific standards; Carrying out science, by undertaking research – either by contracting it out to research organisations and consultancies or by doing it ourselves; Delivering information, advice, tools and techniques, by making appropriate products available to our policy and operations staff. Steve Killeen Head of Science Science Report – Understanding of and response to severe flash flooding iii Executive summary About this report This report presents the findings of a research project looking at the public’s understanding of and response to severe flash flooding. The Environment Agency commissioned the Halcrow Group, Ben Cave Associates and the Flood Hazard Research Centre at Middlesex University to undertake the research in March 2008. The overall objective of this research project was to understand people’s perceptions of severe flash flooding and what their needs are in order to make an appropriate and effective response. The research project was made up of four key stages: • A literature review (report available separately). • Two focus groups with members of the public. • One focus group with professional partners. • Telephone interviews with professional partners. The report is divided into four main chapters dealing with: understanding the term ‘flash flooding’; appropriate and effective responses to flash flooding; warnings for flash flooding; and raising awareness of flash flooding. Key findings and recommendations are presented at the end of each chapter. The final chapter of the report draws conclusions and brings the key findings and recommendations together in a table and presents them in the context of other initiatives, principally relevant recommendations in the Pitt Review (2008). Context The UK has recently experienced a number of flash floods, such as those that occurred in Boscastle in 2004 and Helmsley in 2005. Flash floods are characterised by very short times between rainfall and subsequent flooding. They can also present an extreme danger to life, property and infrastructure because of the suddenness in the rise in water level, the flow velocity and debris. Predicting, preparing for and responding to flash floods poses great challenges. The national policy context that frames this research is complex and rapidly evolving. It includes Making Space for Water (Defra (Department for Environment, Food and Rural Affairs), 2005), the Pitt Review into the lessons learnt from the 2007 floods (Pitt, 2008), the proposed National Flood Emergency Framework and the proposed Floods and Water Bill expected in the legislative programme for 2009/10. Overall findings Understanding the term flash flooding Key features of flash floods as defined by flood risk management and response agencies are: • The short lead in time involved (usually defined as less than six hours). • The short duration of the flooding. • The link to heavy rainfall. Science Report – Understanding of and response to severe flash flooding iv • Dam failure as a possible cause. • The volume and velocity of water involved. • The danger presented by debris. • The potential to cause material damage. • The urgent threat to life. There is a lack of clarity amongst the public, professional partners and the media about how flash flooding relates to surface water and ground water flooding and whether it is inherently dangerous. Individuals with experience of flash flooding demonstrate a good understanding of its key characteristics. However, those who do not have experience of high velocity floodwater and debris do not necessarily demonstrate a spontaneous understanding of the danger flash flooding presents. Appropriate and effective responses to flash flooding Whether flash flooding results in death and injury depends on the interaction of many factors. It is therefore difficult to prescribe a “one size fits all” response to flash flooding, beyond the key messages of “go to higher ground” and “do not drive”. It is also not possible to definitively state which types of building can always be considered safe during flash flooding. However some types of location should be considered unsafe, including caravans, tents, mobile homes, timber frame buildings and single storey, ground floor or basement properties. It is not possible to be specific about the amount of time the public need to evacuate an area. Nor is it possible to be specific about the amount of time professional partners need to carry out evacuations. This depends on the interaction of many factors unique to the particular incident. It is not possible to quantify a possible reduction in mortality with a minimum warning time. However, it is probable that a warning with a very short lead in time that enables people to get inside and upstairs can save lives, even if organised evacuation would not be possible within this timeframe. Warnings for flash flooding The Environment Agency’s existing warnings were considered by focus group participants to provide insufficient practical information on what to do in response to flooding. The timing, speed, velocity and depth of flooding affect how individuals are able to respond to flash flooding and can determine the emergency services’ ability to attend. Tourists and other visitors are more at risk of death and injury from flash flooding. Campers and caravaners are particularly vulnerable. Communicating this risk is potentially sensitive because of the desire of local communities to protect tourism. The warning process needs to be seen as a complex social process, rather than the issue and receipt of a warning message. Understanding how people interpret warnings helps explain why they often do not respond to warnings as those issuing warning expect and want. A warning system for flash floods could have potential negative impacts including causing undue alarm to the public, promoting “flood tourism” and creating an expectation amongst the public that warnings will always be issued in cases of flash flooding. Science Report – Understanding of and response to severe flash flooding v Unofficial warnings, including self-warning as a result of personal observations of danger signs, is an important source of warning for flash floods. The Environment Agency and
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