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York Flood Inquiry

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York Flood Inquiry 1 2 Foreword On Boxing Day 2015, the city of York experienced exceptional flooding. Readers of this Report will be familiar with photographs and footage of York showing abandoned properties, marooned cars, residents being rescued from their homes in boats and Chinook helicopters airlifting equipment to repair the Foss Barrier. The problems did not recede as quickly as the water, many people were unable to return home for months whilst their houses were being repaired and businesses were put out of action for months on end. Even now, York is working to return to normal. In April 2016, I was appointed by City of York Council (CYC) as Chair of its independent Inquiry into the Boxing Day floods. Technical flooding expertise has been provided by the appointed panel members, Tom Toole and Laurence Waterhouse. Mr. Toole has had an extensive career in the Water Industry and he retired in late 2010 from his role as Associate Director/Commercial Director for the Arup UK Water Business. In the latter years of his career his experience enabled him to act as an Independent Expert Witness on many water related disputes. Mr. Waterhouse is the Technical Director of Flood Risk and Climate Change at Consulting Engineers Pell Frischmann. He is a past Chairman of the National Flood Forum and a Member of the United Nations Expert Panel on Climate Change Adaptation. He has over 40 years’ experience as a chartered surveyor specialising in flood protection. Over the last seven months the Inquiry Panel has held public meetings, considered over 50 written submissions and sent out a questionnaire to flood affected residents and businesses. The Panel has spoken with councillors and officers from the (CYC) and consulted widely with the Environment Agency (EA) and other Risk Management Agencies (RMAs). Throughout, we have referred to the terms of reference that the (CYC) provided and have given priority to the interests of those affected by the floods. The Inquiry Panel has heard evidence from those that were directly affected by the flooding and from people who play a strategic role in shaping flood management. We heard a wide range of different views and ideas including some contradictory thoughts. We have done our best in the report to reflect the differing opinions. During the emergency, York residents relayed examples of the emergency services and other organisations working together, saving lives and protecting property. I hope that we have been able 3 to capture how the Boxing Day flood impacted on the people and businesses of York as well as to highlight some of the issues that arise from flooding and how they impact on York in particular. The fortitude of the people of York in the face of the adversity presented by the Boxing Day 2015 floods cannot be overstated. Flood risk management is a very complex issue and the causes of flooding are multiple and varied. For example, the Government Agencies alone have 982 publications1 on the topic of flooding and flood risk management. Responsibility for flood management and the emergency response are split between local and national bodies which creates further complexity and means that good working relationships across these organisations are essential. We recognise the inevitability that York will flood again and any solutions need to be forward looking. They cannot simply address the current problems. The organisations we consulted were focussed on working together to make improvements to the planning and protection measures for York. There is an openness about future flood risk and this should be encouraged so that everybody can understand the risks and work collectively to increase the resilience of residents and businesses so they are better prepared to recover more quickly from flooding. York is benefiting from a £17 million upgrading of the Foss Barrier with a further £45 million of Government funding to be invested in other schemes to reduce the impact of flooding. On 17 November 2016 the EA produced a publication called “How we’re reducing the risk of flooding for York4” which sets out the proposals. The proposals remain open for consultation and now is the time that we, as a community can shape the flood protection future of York. The Inquiry has made a number of recommendations; we understand that not everybody will agree with them. Some of the recommendations are not straightforward but the Panel hope these proposals are fulfilled. Only then can we work towards our shared aim of ensuring York emerges better prepared and more resilient to cope with the increasing challenges that climate change, with the likelihood of more frequent and intense periods of heavy rainfall, will bring to the city. 1 https://www.gov.uk/government/publications?keywords=flood&publication_filter_option=all&topics%5B%5D =all&departments%5B%5D=all&official_document_status=all&world_locations%5B%5D=all&from_date=&to_ date= 4 https://www.gov.uk/government/news/five-year-plan-to-reduce-flood-risk-in-york 4 I would like to thank everyone who has helped us with the Inquiry and given their time so generously. This includes the expert panel members who have worked hard providing much needed technical support and ideas having focused throughout on the best interests of the community. Although we reached agreement on all matters the ultimate responsibility for the contents of this Report lies with me. Angharad Davies Chair of the York Independent Flood Inquiry 5 Glossary ABI Association of British Insurers AOD Above Ordnance Datum the internationally recognised standard value for sea level set at zero BIBA British Insurance Brokers’ Association CYC City of York Council DEFRA Department of Environment, Fisheries and Rural Affairs EA The Environment Agency EFRA The Environment, Food and Rural Affairs Committee FOI Freedom of Information Request FFC Flood Forecasting Centre FSB Federation of Small Businesses HART Humanitarian Aid Relief Trust ICT Information and Communications Technology IDBs Internal Drainage Boards. Statutory bodies created to manage land drainage in areas of special drainage need LLFA Lead Local Flood Authority LTA Long Term Average MIRT Major Incident Response Team MIY Make it York NFRR National Flood Resilience Review NCIC National Climate Information Centre NPPF National Planning Policy Framework NRA National Risk Assessment - document produced every two years by the Government assess the risks of civil emergencies facing people in the UK NYLRF North Yorkshire Local Resilience Forum RMA Risk Management Authority SMEs Small and Medium Sized Enterprises SMRT Scarborough and Ryedale Mountain Rescue Team SUDS Sustainable Drainage Systems 6 TRCF Two Ridings Community Foundation YAS Yorkshire Ambulance Service YWS Yorkshire Water Services 7 Table of Contents Foreword ..................................................................................................................................... 3 Glossary ....................................................................................................................................... 6 Executive Summary.................................................................................................................... 10 Terms of Reference .................................................................................................................... 20 S 19 Flood Investigation Requirement .......................................................................................... 21 Public Response.......................................................................................................................... 22 York’s Flood History .................................................................................................................... 24 Installation of Flood Defences ................................................................................................. 24 Properties at Risk.................................................................................................................... 25 Rainfall and Catchment Conditions .............................................................................................. 26 How the Boxing Day floods unfolded ....................................................................................... 29 Emergency Planning and Emergency Response............................................................................. 31 Civil Contingencies Act 2004................................................................................................ 31 Local Emergency Planning ....................................................................................................... 32 Emergency Response .............................................................................................................. 34 The Environment Agency (EA) ................................................................................................. 35 The Foss Barrier.................................................................................................................. 36 Barrier Operation ............................................................................................................... 38 Boxing Day flood................................................................................................................. 38 Was the decision to open the barrier the correct decision? ................................................... 40 Flood Warnings .................................................................................................................
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