South West River Basin District Risk Management Plan 2015 – 2021

PART A - Background and River Basin District wide information

March 2016

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Email: [email protected]. © Environment Agency 2016 All rights reserved. This document may be reproduced with prior permission of the Environment Agency.

South West River Basin District Flood Risk Management Plan December 2015

Crackington Haven, 2004

This is a plan prepared following consultation with the following risk management authorities.

Foreword The 2013/14 and 2015/16 winter storms and flooding had significant impacts on some communities, businesses, infrastructure, rural areas and the environment. Evidence suggests there could be more extremes in the weather with a changing climate leading to more frequent and more severe flooding. During December 2015, Storms Desmond, Eva and Frank brought record breaking rainfall levels and significant flooding to some parts of the UK. Over 19,000 homes and businesses were flooded, with thousands more affected by loss of power supply and travel disruption. Existing flood defences played an essential part in protecting thousands of homes during December with 12,500 benefitting during and 10,900 during . Support is in place for affected communities, business and the agricultural sector, along with a programme of inspections and repairs to damaged defences. These December 2015 flood events have emphasised the need to be sure we have the very best possible plans in place for flood management across the whole country. Risk Management Authorities (RMAs) are committed to producing Flood Risk Management Plans (FRMPs) required by the EU Directive. This FRMP is an important part of meeting that objective and aligns with the Defra Strategy and guiding principles of the National Flood and Coastal Erosion Risk Management Strategy. The FRMP will provide the evidence to support decision making. The FRMP will also help promote a greater awareness and understanding of the risks of flooding, particularly in those communities at high risk, and encourage and enable householders, businesses and communities to take action to manage the risks. The highest priority is to reduce risk to life. Measures (actions) in individual FRMPs do not all have secured funding and are not guaranteed to be implemented. Money is allocated to all RMA measures in the same way, based on current Government policy that gives the highest priority to lives and homes. This FRMP brings together for the first time measures to address all sources of flooding in the South West. It is based on the most up-to-date information available at the point of publication. Measures in the FRMP are the starting point for RMA decision making and delivery. As part of on- going strategic planning additional measures will be included in RMAs and other partners work programmes between 2015 - 2021, although the FRMP will not be updated. FCRM strategic planning is a continuous process and informs RMA decision making and will be the basis for the 2nd cycle FRMPs. This document has been produced in consultation with professional partners. The Flood Risk Management Plan (FRMP) sets out the proposed measures to manage flood risk in the South West River Basin District from 2015 to 2021. This plan should be read in conjunction with the following:

Lead Local Flood Authority Local Strategies listed in Annex 1 In , RMAs include the Environment Agency, Lead Local Flood Authorities (LLFAs), district councils (where there are no unitary authorities), internal drainage boards, water companies and highway authorities. These RMAs work in partnership with communities to reduce the risk of flooding. The Environment Agency would like to thank the organisations listed on the previous pages for their contributions and feedback during consultation. Flood risk in England will continue to change as a result of a growing population and a changing climate. There are many ways to manage flood risk including maintaining and building new flood defences, building flood resilient homes and working more closely with nature to restore flood plains. Flood risk management planning is not new and RMAs have been able to draw on the experience of partners and earlier plans. Following the December 2015 floods, Defra announced a National Flood Resilience Review, to assess how the country can be better protected from future flooding and increasingly extreme weather events. The review is looking at climate modelling, infrastructure, resilience and future investment strategy. Government is also working to strengthen or establish partnerships in the areas most flood affected to encourage a more integrated approach to managing risk across the

i whole catchment. These partnerships are considering improvements to flood defences, upstream options to help slow the flow and surface water runoff, and how planning and design of urban areas can help reduce flood risk. They are also aiming to build stronger links between local residents, community groups and flood management planning and decision making. The resulting actions from the Local Flood Partnerships in Cumbria and Yorkshire will complement the measures in the relevant FRMPs and the learning from this approach will be shared across the country. In England, the Government is investing £2.3bn on 1,500 flood defence schemes between 2015- 2021. Investment in flood risk management infrastructure not only reduces the risks of flooding but also supports growth by helping to create new jobs, bringing confidence to areas previously affected by floods and creating and restoring habitats. The FRMP also sets out how these proposed measures can contribute to improving the environment and how they support the objectives of River Basin Management Plans (RBMPs) and specifically the South West RBMP that the Environment Agency has produced in parallel with this FRMP. Both flood risk management and river basin planning form an important part of a collaborative and integrated approach to catchment planning for water. Building on this essential work, and in the context of the Governments 25-year environment plan, we aim to move towards more integrated planning for the environment over the next cycle. This will be done on a catchment basis and will draw together and integrate objectives for flood risk management, water management, and biodiversity, with the aim of maximising the multiple benefits that can be achieved.

Mark Sitton Kent Director of Operations, West

ii Contents Glossary and abbreviations ...... v The format of the flood risk management plan ...... 1 1 What is flood risk and who manages it? ...... 3 What is the likelihood of this happening and what does this mean?...... 3 Roles and responsibilities ...... 4 Existing flood management schemes and properties protected ...... 6 Flood risk information ...... 6 Flooding from rivers and the sea ...... 6 Flooding from reservoirs ...... 7 Flooding from surface water ...... 7 2 What is a flood risk management plan? ...... 8 What is the flood risk management plan for? ...... 8 Why are flood risk management plans being prepared? ...... 8 What the plan does ...... 8 What types of flood risk are included in the flood risk management plan? ...... 10 3 How the plan has been developed ...... 12 The approach to developing flood risk management plans ...... 12 Consultation and engagement ...... 12 Objective setting ...... 13 Six year investment programme ...... 13 Long-term investment scenarios ...... 14 Flood and coastal risk management and agriculture ...... 14 Strategic Environmental Assessment and Habitats Regulations ...... 14 How flood risk management plans have been co-ordinated with river basin management planning (RBMP) ...... 15 4 How to manage risk ...... 16 National flood and coastal erosion flood risk management strategy for England...... 16 Measures for managing risk ...... 17 Flood risk management activities ...... 17 Working with communities ...... 19 Partnership working ...... 20 Catchment based approach...... 21 Internal Drainage Boards ...... 22 5 Getting to know the South West River Basin District ...... 23 Introduction ...... 23 Water ...... 23 Flood risk management systems and drainage...... 24 Climate and climate change adaptation ...... 24 Coastal erosion risk management ...... 26 Society and health ...... 27

iii Land use ...... 27 Economic activity ...... 29 Recreation and tourism ...... 29 Infrastructure ...... 29 Landscape ...... 30 Biodiversity ...... 30 Cultural heritage ...... 31 Geology ...... 31 Soil ...... 31 6 Key flood risk issues in the South West River Basin District ...... 33 Flood History ...... 34 Flood risk from rivers and the sea...... 38 Flood risk from reservoirs ...... 43 Flood risk from surface water ...... 47 Flood risk from groundwater ...... 48 Flood risk from canals ...... 49 Flood risk from sewers ...... 49 7 Sub-areas in the South West River Basin District ...... 51 Introduction ...... 51 Flood risk areas ...... 51 Management catchments ...... 52 Strategic areas ...... 52 8 Conclusions, objectives and measures to manage risk for the South West River Basin District ...... 53 Conclusions ...... 53 Objectives to manage risk in the South West river basin district ...... 55 Measures across the South West river basin district ...... 55 Flood Risk Management Plan contributing to broader benefits ...... 57 9 Implementing the plan ...... 64 The catchment based approach ...... 64 Monitoring delivery of measures ...... 64

iv Glossary and abbreviations

AP Annual Probability AONB Area of Outstanding Natural Beauty BAP Biodiversity Action Plan Catchment The watershed of a surface water river system CaBA Catchment based approach: an approach to environmental planning that focuses on local engagement and partnerships CRT Canal and River Trust CFMP Catchment flood management plan Coastal Groups Voluntary coastal defence groups made up of maritime district authorities and other bodies with coastal defence responsibilities. Cross Border Set up under The Flood Risk (Cross Border Areas) Regulations 2012 (SI No. Advisory Group 1102). A statutory group made up of representatives from SEPA, Environment (CBAG) Agency and local authorities within the cross border areas. CC County Council Cross Border Those areas designated as ‘cross border’ under The Flood Risk (Cross Border Areas Areas) Regulations 2012 (SI No. 1102). CWS County Wildlife Site DCLG Department for Communities and Local Government Defra Department for Environment, Food and Rural Affairs DC District Council EA Environment Agency EIA Environmental Impact Assessment EPR Environmental Protection Regulations EU European Union FCERM Flood and coastal erosion risk management Floods Directive The European Floods Directive (2007/60/EC) on the assessment and management of flood risks. Flood Risk Area Areas where the risk of flooding from local flood risks is significant as designated (FRA) under the Flood Risk Regulations. FRM Flood Risk Management FRMP Flood risk management plan – plan produced to deliver the requirements of the Flood Risk Regulations. Government The term government is used within this report to refer to Defra (the Department for Environment, Flood and Rural Affairs) and Welsh Government. Groundwater Occurs when water levels in the ground rise above the natural surface. Low-lying flooding areas underlain by permeable strata are particularly susceptible. Ha Hectares HLS Higher Level (Environmental) Stewardship HRA Habitats Regulations Assessment: an assessment undertaken in relation to a site designated under the Habitats and Birds Directives IDB Internal Drainage Board – a local public authority established in areas of special drainage need in England and Wales. They have permissive powers to manage water levels within their respective drainage districts. IDBs undertake works to reduce flood risk to people and property and manage water levels to meet local needs. km Kilometres LDF Local Development Framework LLFA Lead local flood authority LFRMS Local flood risk management strategy produced by LLFAs under the Flood and Water Management Act 2010. Main river A watercourse shown as such on the main river map, and for which the Environment Agency and Natural Resources Wales has responsibilities and powers MTP Medium Term Plan

v MSFW Making Space for Water NaFRA National Flood Risk Assessment National FCERM National Flood and Coastal Erosion Risk Management Strategy: these are Strategy strategies prepared under the Flood and Water Management Act 2010, by the Environment Agency for England and by Welsh Government for Wales. NNR National Nature Reserve NPPF National Planning Policy Framework NRW Natural Resources Wales. The NRW took over the functions of the Environment Agency in Wales on 1st April 2013. 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 – these were required to be published by December 2011 and were the first stage in delivering the Regulations. PU Policy Unit Ramsar Wetlands of international importance designated under the Ramsar Convention 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. Risk management Organisations that have a key role in flood and coastal erosion risk management authorities as defined by the Act. These are the Environment Agency, Natural Resources (RMAs) Wales, lead local flood authorities, district councils where there is no unitary authority, IDBs, water companies, and highways authorities. RFCCs Regional Flood and Coastal Committees River basin district These are the reporting units to the European Commission for the Water (RBD) Framework Directive and the Floods Directive. RBMP River basin management plan – plan required by the European Water Framework Directive. River flooding Occurs when water levels in a channel overwhelms the capacity of the channel. SAC Special Area of Conservation SAM Scheduled Ancient Monument SAMP System Asset Management Plan SEA Strategic environmental assessment SFRA Strategic Flood Risk Assessment SMP Shoreline management plan SPA Special Protection Area SSSI Site of Special Scientific Interest SoP Standard of protection SuDS Sustainable drainage systems Surface water Flooding from rainwater (including snow and other precipitation) which has not flooding entered a watercourse, drainage system or public sewer. SWMP Surface water management plan uFMfSW Updated Flood Map of Surface Water Flooding produced in 2013 UKCIP Climate Impact Projections WFD Water Framework Directive

vi The format of the flood risk management plan

Flood Risk Management Plans have been divided into four parts to help readers identify and access information relevant to them. This is Part A. Name Audience Summary Document For those who want a high level overview of the plan.

Part A: Background and river basin For those who need some legislative background and district wide information river basin district wide, high level information. Part B: Catchment Summaries For those who want the detail of the sub-areas and flooding statistics. This section includes the catchments based on Water Framework Directive (WFD) management catchments, Flood Risk Areas (FRAs, identified through the Preliminary Flood Risk Assessment (PFRA)) and other strategic areas across the river basin district.

Part C: Appendices For those who want to see the detailed programme of work for individual communities.

Part A, Background and river basin district wide information – sets the scene for the FRMPs - what they are, what they are for and how they have been developed. Part A goes on to describe the river basin district at that scale. The other parts of the flood risk management plan are located on gov.uk (https://www.gov.uk/government/publications/south-west-river-basin-district-flood-risk- management-plan)

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The Layout of this document

Section 1: what is flood risk and who manages it Section 1 explains what flood risk is, who is responsible for managing the risk and what their roles are. Section 2: what is a Flood Risk Management Plan Section 2 describes what a FRMP is, why they are being produced and describes the kind of information that is included in the FRMP. Section 3: how the plans have been developed Section 3 describes how, in partnership, the Environment Agency, LLFAs and other RMAs have prepared this FRMP. Section 4: how to manage risk Section 4 describes some of the terminology used, such as ’conclusions’, ’objectives’ and ‘measures’, and how they relate to FCERM. Section 5: getting to know the South West River Basin District Section 5 of the plan introduces the South West river basin district. The ‘sub-area’ that divides the river basin district further is also introduced. Section 6: key flood risk issues in the South West River Basin District The flood and coastal erosion risks are set out for the river basin district in section 6. Section 7: the sub-areas in the South West River Basin District Section 7 introduces each of the sub-areas in turn. This section outlines the catchments based on WFD management catchments, which make up the river basin district, then the Strategic Areas. Section 8: conclusions, objectives and measures for the South West River Basin District Section 8 sets out the risk conclusions, objectives and measures for the river basin district. Section 9: implementing the plan Section 9 sets out the proposals for implementing the plan, including co-ordination with the implementation of the RBMPs prepared under the WFD. Section 9 concludes with how the measures will be monitored and reported. Find out more Throughout this document you will be directed via hyperlinks to more detailed sources of information using 'find out more’ boxes.

2 of 64 PART A 1 What is flood risk and who manages it?

The Flood and Water Management Act (2010) defines flooding as any case where land not normally covered by water becomes covered by water. Flood risk is a combination of two components: the chance (or probability/likelihood) that a location will flood from any source or type of flooding, and the impact (or consequence) that the flooding would cause if it occurred. Flood risk management (FRM) is generally concerned with reducing harm, which might take the form of property damage or physical injury to people and wildlife. However, flooding can also have beneficial effects too, in particular for wetland wildlife as well as some types of agriculture that are water dependent.

Risk = Likelihood x Impact

Figure 1: What is flood risk?

Risk captures the severity of, or related consequences, produced by a flood event. The greatest impact is loss of life. Impacts can be social, economic and environmental, for example the number of properties flooded and the level of associated economic damages. The consequences of a flood depend on the level of exposure and the vulnerability of those affected. What is the likelihood of this happening and what does this mean? Probability (or chance) is a measure of the likelihood that a defined event will occur. The probability of a flood event is typically defined as the relative frequency of occurrence of that flood being equalled or exceeded. Probability can be expressed as a fraction, percentage, a decimal or description, and should always make reference to a time period. For example, the industry refers to a ‘1 in 100 chance of flooding in any given year’ or a ‘1% annual probability of flooding’, which both refer to the same likelihood. Assessing impacts of flooding prior to an event usually involves estimating the potential impact of flooding on people, property and the environment. The theoretical probability of flooding is illustrated by the Environment Agency Flood Maps, which show flood risk for rivers and the sea, surface water and reservoirs. Flood models, which are the basis for the Environment Agency’s flood maps, use uniform rainfall scenario (the same amount of rainfall falling across the country), whereas in reality rainfall rates vary greatly from one town to another. It is not possible to prevent all flooding, but there are a variety of actions which can help manage these risks and their impacts on communities. Flood risk managers must identify all potential options to manage flood risk and balance the needs of communities, the economy and the environment. RMAs should work in partnership with each other and communities to manage flood risk, ensuring that communities are part of the decision making process and understand and actively prepare for the risks. By working together, RMAs should actively seek opportunities to coordinate risk management, encourage partnership funding and deliver multiple benefits.

3 of 64 Roles and responsibilities and Table 2 show the RMAs involved in FRM in England and their roles and responsibilities. The responsibilities for managing flooding in the UK is divided between different risk management authorities (RMAs) as defined in the Flood and Water Management Act. RMAs have powers and duties to manage the different forms for flooding that can occur as shown in Table 1. The Environment Agency is responsible for taking a strategic overview of the management of all sources of flooding and coastal erosion. Following the December 2015 floods Defra is looking at how this strategic overview role can be strengthened at the catchment scale to promote a more integrated approach to managing the water environment.

Lead Local Internal Environment District Water Highways Risk Source Flood Drainage Agency Councils Company Authority Authority Board

Main River  Sea flooding 

Surface Water  

Surface Water (on or coming from the  Highway) Sewer Flooding  Ordinary Watercourse   

Groundwater  Reservoirs * * * * * * Coastal Erosion  

Strategic overview of all sources of flood risk  (and the coast)

Table 1: Summary of responsibilities for risk management authorities

*Please note RMAs have different responsibilities for reservoirs such as regulation, asset management and flood incident response

4 of 64 Table 2: Roles and responsibilities of risk management authorities and others involved in managing flood risk

Risk Management Role and responsibilities Authorities Environment Agency The Environment Agency has a strategic overview of all sources of flooding and coastal erosion (rivers, the sea, groundwater, reservoirs and surface water). Permissive powers to manage flood risk from ‘main rivers’, the sea and reservoirs. Can use enforcement powers to require landowners to take action to minimise flood risk to others. Lead Local Flood LLFA. A county council or unitary council. Permissive powers to manage flood Authority risk from surface water, ‘ordinary watercourses’ (non-main rivers) outside of internal drainage districts, and groundwater. Enforcement powers are similar to Environment Agency’s. LLFAs also manage the drainage on the majority of local highways. Water Companies United Utilities manage the sewerage and water supply networks and any flood risk arising from them. Also manage flood risk to any critical infrastructure, such as water treatment plants and pumping stations. District Council By agreement with the upper tier Lead Local Flood Authority, the District Council may do some work to manage flood risk. District Councils are the Local Planning Authority. Maritime District As District Councils, but also manage coastal erosion. As many coastal Council defences protect against both erosion and flooding from the sea, these Councils often do both in urban areas. Navigation Authorities Canal and River Trust (CRT) manage the canal network throughout the RBD except the Manchester Ship Canal and Bridgewater Canal (both Manchester Ship Canal Company). Although not a designated ‘Risk Management Authority’, CRT manages its network in a way that minimises risk of flooding. Also manages the Weaver Navigation (navigable section of the River Weaver). Riparian landowner The owner of land next to a watercourse usually owns the land to the middle of the river (unless property deeds show otherwise). This ‘riparian landowner’ is responsible for maintaining the watercourse to allow free flow. Highways England Highways England looks after the motorways and major A roads focussing on the most important national routes, while councils manage the roads serving local communities. Having information about the condition of drainage assets they hold a Drainage Data Management System (also known as HADDMS) to identify flooding issues and places at particular risk, including private property, supporting a risk based programme of drainage renewal works. Communities Individuals at risk from flooding, or having flooded, are encouraged to form a Flood Action Group or other Community Group as a focus for understanding the issues, considering improvement options and implementing solutions. Non- RMA owners of Features and structures that have been designated as a flood defence cannot flood defences be altered, removed or replaced without the consent of the responsible authority. Reservoir owners In addition to their general duty of care for the public under common law, the owners of reservoirs with an above ground capacity of 25,000 cubic metres or more have a legal duty to have their reservoirs supervised and inspected regularly by experts, in order to prevent dam failures and the dangerous flooding that could result. Reservoir owners could fall into any of the above categories listed in the table.

5 of 64 Existing flood management schemes and properties protected In some parts of the South West river basin district flood management schemes are in place to reduce flood risk. The Environment Agency Flood Map for Planning shows all flood defences built in the last five years to protect against river floods with a 1 per cent (1 in 100) chance of happening each year, or floods from the sea with a 0.5 per cent (1 in 200) chance of happening each year. It also shows some, but not all, older defences. This information has been used to produce an overview of the flood defences within the South West RBD. The South West RBD contains more than 4000 structures and 400km of defences, either maintained by the Environment Agency or local council. RMAs work in partnership with each other and communities to manage flood risk. The FRMP sets out the measures to manage flood risk across the South West RBD. However, RMAs have been undertaking a range of activities to manage flood risk for many years. Details of these activities can be found in section 6 of this document. Across the country Government is investing £2.3bn on 1,500 flood defence schemes over 2015 – 2021. Thousands of properties in the river basin district benefit from river flood risk management schemes, including homes and businesses in Braunton, Weymouth, Thomey, Moorland and Westonzoyland. Further schemes are ongoing or planned in the South West river basin district, such as in , , Starcross and Cockwood, Bridgwater, Taunton and West Bay. The Local Flood Partnerships in Cumbria and Yorkshire, set up in response to the December floods will bring together a wide range of organisations and communities to develop Flood Action Plans. These actions will complement the measures in the FRMP and the learning from this approach will be shared across the country. During December 2015 existing flood defences played an essential part in protecting thousands of homes with 12,500 benefitting during Storm Desmond and 10,900 during Storm Eva. This also provided vital time for homes and businesses to be evacuated as well as reducing the impacts. Additional temporary defences and pumps were deployed to reduce the risk to homes, businesses and infrastructure. A recovery programme of inspections and repairs to damaged defences was commenced as soon as water levels reduced. Supporting Communities that Remain at Risk is an Environment Agency project to pre -plan for the use of temporary defences. This project is a great opportunity to have prepared plans and equipment for more communities to maximise the use of the extra time flood forecasting investment has bought us in helping to protect them. Flood risk information The South West FRMP covers flood risk from rivers and the sea, reservoirs and surface water (FRAs only, as identified in PFRAs). The following section outlines flood risk classifications for the various sources. Flooding from rivers and the sea The maps and statistics within this plan relating to flooding from rivers and the sea are taken from the risk of flooding from rivers and the sea map. This map has been developed using the National Flood Risk Assessment (NaFRA). This is an assessment of flood risk for England and Wales produced using local data and expertise. It shows the chance of flooding from rivers and the sea (both along the open coast and tidal estuaries). The risk is presented as a likelihood (or chance) of flooding in any given year and divided into the following categories:  High - greater than or equal to 1 in 30 (3.3%) chance in any given year  Medium - less than 1 in 30 (3.3%) but greater than or equal to 1 in 100 (1%) chance in any given year  Low - less than 1 in 100 (1%) but greater than or equal to 1 in 1000 (0.1%) chance in any given year  Very low - less than 1 in 1000 (0.1%) chance in any given year.

6 of 64 The NaFRA takes flood defences and their condition into account and so describes the actual chance of flooding, rather than the chance if there were no defences present. Flood defences reduce the level of risk but don't completely remove it. In extreme weather they can be overtopped or fail if they are in poor condition. The NaFRA results can be used in conjunction with receptor data (number and type of properties and infrastructure) to estimate the consequences and economic damage associated with flooding from rivers and the sea. Flooding from reservoirs Reservoir flood risk maps show the area that could be flooded if a large reservoir were to fail and release the water it holds. A large reservoir is one that holds over 25,000m3. This is a worst case scenario. Flooding from surface water The maps and statistics contained in this plan are based on the Updated Flood Map for Surface Water (uFMfSW) published in December 2013. The uFMfSW assesses a range of flooding scenarios (annual probability of flooding is shown in brackets): High - 1 in 30 (3.3%) Medium - 1 in 100 (1%) Low - 1 in 1000 (0.1%) The uFMfSW replaced the ‘Areas Susceptible to Surface Water Flooding’ maps produced in 2010 by the Environment Agency.

7 of 64 2 What is a flood risk management plan?

Flood risk management plans highlight the hazards and risks from rivers, the sea, surface water, groundwater and reservoirs and set out how RMAs will work together with communities to manage flood risk. What is the flood risk management plan for? FRMPs are produced every 6 years and describe the sources and risks of flooding within a RBD and catchment. They also include information on how RMAs plan to work together with communities and businesses to manage and reduce flood risk. Over the 6 year planning cycle, the FRMP will help promote a greater awareness and understanding of the risks of flooding, particularly in those communities at high risk, and encourage and enable householders, businesses and communities to take action to manage these risks. FRMPs along with RBMPs help all those involved in managing water to make decisions that are best for people and the environment. Why are flood risk management plans being prepared? This is the first cycle of implementing the Flood Risk Regulations 2009. As a result of this legislation, LLFAs must prepare FRMPs in Flood Risk Areas, where the risk of flooding from local flood risks is significant (as identified in Preliminary Flood Risk Assessments (PFRAs)) for instance from surface water, groundwater and ordinary watercourses. The Environment Agency is required to prepare FRMPs for all of England covering flooding from main rivers, the sea and reservoirs. Further information on what is a flood risk management plan can be found on the GOV.UK website. 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 RBMPs and supporting biodiversity, habitat creation or improving water quality. The Environment Agency and LLFAs are developing FRMPs by drawing together existing information and building on existing FCERM plans such as: catchment flood management plans (CFMPs), shoreline management plans (SMPs) and local flood risk management strategies (LFRMSs) (see Figure 2) What the plan does The FRMP will help deliver the requirements of the National FCERM Strategy in England by setting out the measures to manage flood risk now and in the future. The FRMP will: help develop and promote a better understanding of flood and coastal erosion risk provide information about the economic and environmental benefits to inform decision makers identify communities with the highest risk of flooding so that investment can be targeted at those in most need Measures / actions in FRMPs do not all have secured funding and are not guaranteed to be implemented. Money is allocated to all RMA measures in the same way and is based on current Government policy that gives the highest priority to lives and homes.

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Planning Policy and Building National FCERM Policy (Defra) Regulations (DCLG) EU DIRECTIVES

Floods Directive Flood Risk Management Plans Local FCERM Strategies

Water Framework Dir River Basin Management Plans Catchment flood risk and coastal erosion management planning (CFMPs, SMPs) Long term planning for Other relevant plans Strategic flood risk all sources of flood risk The planning assessments & coastal erosion Surface Water system (local plans, Management Plans/ neighbourhood water level plans) management plans

Flood risk National FCERM Strategy assessments (England) Habitat Creation Programme

Sustainable Planning applications FCERM Schemes Infrastructure and decisions community management plans strategies / local strategic partnerships

Figure 2: Flood Risk Management Plans and their relationship to other planning initiatives (taken from the National Flood and Coastal Risk Management Strategy for England)

9 of 64 What types of flood risk are included in the flood risk management plan? The FRMP covers the flood risks that the RMAs are responsible for. The Environment Agency has worked in partnership with other RMAs to pool the information needed to develop the FRMP. Some RMAs have a statutory duty to produce a FRMP as they have areas designated as FRAs. Local surface water risk information is only included where lead local flood authorities have a statutory duty to produce a FRMP or where they have volunteered information. Those that have contributed voluntarily to this FRMP are detailed in Table 3. Areas of significant ‘local flood risk’ were identified from historic flood records and analysis of potential future flooding from surface water, groundwater and ordinary watercourses. These FRAs were designated on the basis of there being at least 30,000 people in properties at risk of flooding, or 150 critical services (for example - schools, hospitals, nursing homes, power and water services). This was as shown by surface water flood maps produced in 2010 by the Environment Agency and supplemented with data from LLFAs where available. There are no FRAs in the South West RBD.

Table 3: RMAs who have voluntarily provided information for the South West FRMP

Flood Risk Area and Voluntary LLFAs Information Isles of Scilly City Council Council Voluntary Information County Council Torbay District Council Somerset County Council North Somerset Council

Find out more

National Flood and Coastal Erosion Risk Management Strategy https://www.gov.uk/government/publications/national-flood-and-coastal-erosion-risk- management-strategy-for-england

Flood Risk Management Plan Guidance https://www.gov.uk/government/publications/flood-risk-management-plan-guidance

Flood and Coastal Change https://www.gov.uk/topic/environmental-management/flooding-coastal-change

Interactive flood maps maps.environment-agency.gov.uk

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Figure 3: Sources of flood risk information included in this FRMP

11 of 64 3 How the plan has been developed

The approach to developing flood risk management plans In 2013 the Government agreed that the preferred approach to developing FRMPs would be for the Environment Agency to work in partnership with other RMAs, in particular LLFAs, to pool information, to develop an overall plan for managing all sources of flood risk and coastal erosion. In preparing this FRMP, RMAs have built on relevant information from existing work (see Figure 2 and Table 4). Of particular importance are the LFRMSs developed by LLFAs, Catchment Flood Management Plans (CFMP) and SMPs. In drawing measures together, RMAs have revisited priorities and ensured that there is a shared understanding of the risks and how best they can be managed. The development of the FRMP is being co-ordinating with the RBMP, so that there is an integrated approach to overall water management for the benefit of people, the environment and the economy. Table 4 shows the sources of where FRMP information has been obtained. These plans remain active. The future need for CFMPs as the strategic plan for river and estuary flooding is being reviewed in 2015 and 2016. All relevant actions from the plans listed in Table 4 have been brought together in this FRMP. This is the case with CFMP actions. Irrespective of the review, the actions will be taken forward by the FRMP. The CFMP long term policies have not been carried forward. Table 4: Sources of FRMP information according to flood risk

Flood Risk Existing Plans and FRMP Information Flooding from main rivers Catchment Flood Management Plans

Flooding from the sea and along estuaries, Shoreline Management Plans coastal erosion Estuary Management Plans Flooding from reservoirs Reservoir Plans Local Flood Risk Management Strategies (see Annex 2 Flooding from surface water, groundwater of the Part C document for full details) and ordinary watercourses Surface Water Management Plans (SWMPs)

Find out more

Interactive flood maps maps.environment-agency.gov.uk

River Basin District Maps https://www.gov.uk/government/collections/river-basin-districts-flood-risk-maps

Consultation and engagement Consultation and engagement on this FRMP helped improve, inform and shape the plan. By consulting others, it is felt a better final plan has been reached. National public consultation took place from 10 October 2014 until 31 January 2015. A draft FRMP was circulated to the LLFAs in the South West RBD to allow them to provide any comments prior to a public consultation. The Liaison Panel for the South West RBMP was briefed as the FRMP developed. This panel represents a wide range of stakeholders for the key sectors and catchment partnerships including local councils, water companies, and agricultural and

12 of 64 environmental interests. Panel members share information and views between the panel and their sector/wider partnership and vice-versa. Consultation document 12h: Consultation on the draft update to the flood risk management plans - summary response document. . https://consult.environment- agency.gov.uk/portal/ho/flood/draft_frmp/consult?dm_i=1QGB,3R34C,KI58VF,DICTE,1 Consultation document 12i: https://www.gov.uk/government/consultations/update-to-the-draft- river-basin-management-plans Objective setting Flood risk management plans contain objectives for managing flood risk. Objectives are a common set of goals agreed by RMAs. They state the main ways in which work is directed to make a difference and reduce flood risk. They cover people, the economy and the environment. The objectives are split into the 3 categories to help demonstrate the balance of objectives across the plans but the categories aren’t assigned a weighting in the FRMP. Objectives are used to plan and prioritise investment programmes to target investment to the most at risk communities. Prioritisation is then done at an England wide level and takes into account the risk but also considers other factors such as cost benefits, the level of investment to date and other aspects such as the potential for external funding opportunities. The South West flood risk management plan contains 2 sets of objectives; high level river basin wide objectives, and local catchment objectives. The river basin district wide objectives outline the main areas where RMAs want to make improvements. The catchment objectives, which can differ from one area to the next but are linked to the river basin district objectives, allow risk management authorities to focus on locally important improvements. The measures tables in the appendices show which category of objective relates to each measure. The objectives in the South West FRMP are based on a combination of the social, economic and environmental objectives from existing plans (see Table 4 and Annex 2 of the Part C document) and internal discussions within the RMAs. Six year investment programme In December 2014 the government set out a 6 year plan for investment in flood and coastal erosion risk management (2015/16 to 2020/21). The latest published figures show the current funding profile of each year and the published programme can be found here. Measures from the 6 year investment programme are included in this FRMP. Each year Risk Management Authorities (local councils, Internal Drainage Boards, highway authorities, and water and sewage companies) are invited to submit details of proposed FCERM capital works to the Environment Agency. These proposals are combined with Environment Agency proposed schemes to form a programme of work. Investment in FCERM is prioritised according to government policy, and in line with the government’s National FCERM Strategy and HM Treasury Green Book on economic appraisal. Government policy gives the highest priority to lives and homes and all FCERM schemes should at least have a benefit cost ratio greater than 1:1. All FCERM schemes are prioritised against a consistent set of criteria applied to all risk management authorities (RMAs). This ensures a fair distribution of government funding based on agreed priorities, principles and needs. FCERM schemes are normally funded with Flood Defence Grant in Aid from Defra, partnership funding and Local Flood Defence Levy raised by Regional Flood and Coastal Committees. FCERM schemes can also be funded through other private contributions and local funding sources. Where FCERM projects can help to regenerate an area and support economic growth funding may also be available from other sources. This can include European Structural Investment Fund, Growth Fund through the Local Enterprise Partnership and Community Infrastructure Levy through Local Authorities. In addition to FDGiA for FCERM schemes, Internal Drainage Board activities are predominantly funded by the local beneficiaries of the water level management work they provide.

13 of 64 Long-term investment scenarios The Environment Agency’s long-term investment scenarios (LTIS) study published in December 2014, presents a new analysis of the costs and risks of flood and coastal erosion risk management in England. The study sets out the link between national investment in FCERM, and the outcomes in terms of economic risk and numbers of properties at risk. The study found that the annual economic ‘optimum’ investment need over the next 10 years is broadly in line with current expenditure (about £750 million, including public and third party contributions). The study shows that over the next 50 years optimal investment in FCERM is expected to rise by 10-20% (in present day terms). A key finding of the study is that even if average annual investment is sustained at an optimal level there will still be significant numbers of properties at high and medium flood risk in 50 years time meaning new and innovative approaches will be needed. LTIS estimates that, by 2021, the 6 year programme could reduce overall flood risk by up to 5% on the assumption that planned capital, maintenance and incident management activities are maintained. The National Flood Resilience Review is considering infrastructure and future investment strategy across England to pinpoint where defences and modelling need strengthening. This will allow us to take prompt action. Flood and coastal risk management and agriculture

Land drainage for agricultural purposes is an important element of operational activity in flood and coastal erosion risk management. Today the prime driver for Government investment in flood and coastal management is one of risk reduction to people and property, and for the protection of the environment. Investment is prioritised according to Government policy, the National Flood and Coastal Erosion Risk Management Strategy and the HM Treasury Green Book on economic appraisal. Government policy gives the highest priority to lives and homes. Agricultural drainage and water level management work continues to be important particularly in low lying areas and this work is predominantly undertaken by farmers and landowners, and where they exist, Internal Drainage Boards. The work of Internal Drainage Boards through managing water levels and maintaining watercourses and structures can also manage and reduce flood risk to people, property and infrastructure. Strategic Environmental Assessment and Habitats Regulations A Strategic Environmental Assessment (SEA) was undertaken to consider the significant environmental effects of the FRMP. Natural England, English Heritage and the Marine Management Organisation were consulted on the scope of the proposed assessment in December 2013, and the environmental report sets out the results of the SEA. The report describes the environmental effects that are significant within the RBD and identifies measures to mitigate any adverse effects. Opportunities to improve the environment are also considered. The SEA took account of the environmental effects of flood risk management measures in the FRMP. The focus was on the combined effects of the programme of protection measures across a catchment or FRA, rather than individual measures at specific locations. Using the same assessment approach for both the RBMP and FRMP allows us to compare the environmental effects directly and consider the interaction between the two plans. The likely positive impacts of the FRMP are identified in the SEA, as well as mitigation required to manage the negative effects and opportunities to deliver greater environmental benefits. Indicators are also identified that will be used to assess the effect of the plan on significant environmental receptors, taking advantage of existing monitoring that is already carried out by the Environment Agency and others. A habitats regulations assessment has been carried out on the FRMP to consider whether the plan affects internationally designated sites (Special Areas of Conservation, Special Protection Areas (SPAs) and Ramsar sites). Initial assessment suggests that significant effects are not likely.

14 of 64 How flood risk management plans have been co-ordinated with river basin management planning (RBMP) The South West flood risk management plan has been developed alongside the South West river basin management plan so that opportunities for flood risk improvements can integrate water and biodiversity objectives wherever possible and help provide other benefits to society. These benefits could include greater access to riversides, improved recreation and angling along rivers, more biodiversity and contributing to local council open space strategies. The Environment Agency has led on the development of both plans, and aims to co-ordinate work effectively and support others to do the same. Section 8 of this document provides more detail on how the flood risk management plans relate to other plans and wider policies and objectives.

Find out more

River Basin Management Plans https://www.gov.uk/government/collections/river-basin-management-plan-update

15 of 64 4 How to manage risk

Involving communities leads to more effective flood and coastal erosion risk management. All RMAs will continue to work with communities and other stakeholders to manage risk by: assessing the sources of flood risk and drawing conclusions about the risks setting out what RMAs are trying to achieve and establishing risk management objectives determining the best approach to achieving the objectives by identifying the right measures and prioritising them The conclusions, objectives and proposed measures are set out within this FRMP. During the 6 year planning cycle set out in the Flood Risk Regulations (2009), RMAs will work with partners and interested parties to: seek to secure the necessary funding, including from partners implement the measures, with clarity on what each organisation is accountable for monitor and review how the plan works RMAs will monitor and report annually on the progress of implementing the measures set out in the FRMP. RMAs will continue to work in partnership, ensuring that they can maintain a forward look of prioritised proposals for managing flood risk. The next review of the FRMP under the Flood Risk Regulations will be completed by 2021. The Local Flood Partnerships in Cumbria and Yorkshire, set up in response to the December floods will bring together a wide range of organisations and communities to develop Flood Action Plans. These actions will complement the measures in the FRMP and the learning from this approach will be shared across the country. National flood and coastal erosion flood risk management strategy for England The national FCERM strategy for England (2011) provides the overarching framework for future action by all RMAs to tackle flooding and coastal erosion risk in England. The overall aim of the strategy is to ensure the risk of flooding and coastal erosion is properly managed by using the full range of options in a co-ordinated way. It encourages more effective risk management by enabling people, communities, business, infrastructure operators and the public sector to work together to: ensure a clear understanding of the risks of flooding and coastal erosion, nationally and locally, so that investment in risk management can be prioritised more effectively; set out clear and consistent plans for risk management so that communities and businesses can make informed decisions about the management of the remaining risk; manage flood and coastal erosion risks in an appropriate way, taking account of the needs of communities and the environment; ensure that emergency plans and responses to flood incidents are effective and that communities are able to respond effectively to flood forecasts, warnings and advice; help communities to recover more quickly and effectively after incidents. The strategy recognises that difficult decisions have to be taken on where activities can and cannot be carried out at both national and local levels. As such, 6 guiding principles have been identified to help guide these decisions and the processes by which they are taken. These guiding principles are: 1. Community focus and partnership working 2. A catchment and coastal “cell” based approach 3. Sustainability 4. Proportionate, risk-based approaches

16 of 64 5. Multiple benefits 6. Beneficiaries should be encouraged to invest in risk management

This FRMP has been developed to meet the legal requirements of the Flood Risk Regulations and is influenced by the national flood and coastal erosion risk management strategy for England, in particular its guiding principles. Measures for managing risk There are different approaches to managing flood and coastal erosion risk, these are known as measures and are described below: Preventing: by avoiding putting people or the environment at risk of flooding. For example, one way of preventing risks arising would be not building homes in areas that can be flooded. Preparing: by taking actions that prepare people for flooding, for example, by improving awareness of flood risk, or by providing warning and forecasting for floods so that people can take precautions to safeguard their valuables. Protecting: by protecting people from the risk of flooding. For example, by the maintenance or refurbishment of existing defences, building new defences or incorporating property resilience measures such as using waterproof boards over doors and airbricks to reduce the damaged caused by flood water. Recovery and review: by learning from past floods and how to recover from them. For example, by improving the availability of recovery services such as providing temporary accommodation after flooding has occurred. Flood and coastal erosion risk management may require a combination of the measures outlined above. FRMPs bring together measures from existing sources, particularly CFMPs, SMPs, LFRMSs and the Medium Term Plan (MTP). The development and completion of these measures is often dependent on partnerships and the provision of funding. Flood risk management activities As identified by the national FCERM Strategy for England, managing flood risk and coastal erosion involves:  knowing when and where flooding and coastal erosion are likely to happen;  taking reasonable steps to reduce the likelihood of them happening;  forecasting and providing warnings of floods so that people, businesses, infrastructure providers and public services can take effective action to minimise the consequences of floods, and  adapting to coastal change and acting to reduce the risk to life, damage and disruption caused by flooding.

Ongoing RMA activities relating to flood and coastal risk management can be divided into the following activities. Strategic planning Strategic planning enables RMAs to prioritise flood risk management activities and ensure that investment aligns with priority areas where the risk is greatest and ensure that the best value for money is achieved. It is vital that all RMAs continue to work in partnership to agree strategic planning to manage flood and coastal erosion risk across the RBD, especially areas at risk from more than one sources of flooding. Investigations Following significant flooding, lead local flood authorities (LLFAs) will carry out and publish a flood investigation report (under Section 19 of the Flood and Water Management Act). This will consider the source(s) of flooding, how the flooding occurred, the flood extent and depth, damage to

17 of 64 property and estimate the severity of the flood. It will also identify which RMAs have relevant flood risk management functions, and whether they have exercised, or are proposing to exercise, those functions in response to the flood. The LLFA must publish the results of its investigation, and notify any RMAs.

Hydraulic modelling and hydrology Hydraulic modelling is a process of simulating what happens to river levels during periods of heavy rain. Past flood events are used to support the models’ predictions and improve their accuracy. The RMAs use these models to predict where and when flooding is expected to occur and for how long, taking into account storm intensity and duration. This also informs decisions about how flood risk could be managed. For example, refurbish or improve existing assets, construct new assets, provide planning advice to local councils highlighting risk areas to avoid inappropriate development or provide flood warnings and flood incident management.

Flood forecasting and warning In addition to the hydrology and hydraulic modelling, weather forecasts can be used to predict how river flows and levels are expected to respond to changes in weather. Rainfall and river levels provide data which informs the Environment Agency’s flood warning service and allows the issue of timely and accurate flood warnings. Computer models of weather and tide conditions predict tidal flood forecasts. Providing an accurate flood forecasting and warning service is critical in managing the consequences of flooding.

Incident planning and management The Environment Agency, local councils, water companies, Emergency Services and other utility companies all plan for incidents of many types, including flooding. These plans inform how the RMAs work together to respond to an incident and inform more strategic Multi-Agency Response Plans. Incident management exercises are used to test and improve the planed procedures. Following flood incidents partners review the plans to further improve procedures and share data. Local Resilience Forums for each of the counties oversee the collective incident planning and response, these are: Devon, Cornwall and Isles of Scilly Local Resilience Forum: https://www.dcisprepared.org.uk/web/lrf/ Bournemouth, and Local Resilience Forum: https://www.dorsetforyou.com/emergencies/bournemouth-dorset-and-Poole-local-resilience-forum- recovery-plan Avon and Somerset Local Resilience Forum: https://www.avonandsomerset.police.uk/

Maintenance RMAs carry out regular inspections and maintenance of structures (raised defences, river channel walls, culverts, outfalls and flap valves, pumping stations and flood storage reservoirs) to ensure they are ‘fit for purpose’. Clearance of some vegetation, sediment and debris from river channels and culverts is a key maintenance task, as this helps to provide enough capacity to convey flood flows. Similar activities are carried out for drains and sewers. Information from the Environment Agency assets inspections informs System Asset Management Plans (SAMPs) which are updated regularly to inform maintenance, funding requirements and asset condition. Other RMAs also maintain information relating to their assets, for example Asset Registers that are maintained by LLFAs or Asset Management Plans by the water companies.

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Figure 4 Removal of reeds to ensure conveyance on the Crooklets Stream, Cornwall Improvement works The Environment Agency produce flood maps using models to shows where properties are at risk of flooding, or where flooding has happened. These maps help us to identify communities that are at risk of flooding. The Environment Agency, in partnership with other RMAs, works with these communities to look at options to reduce the risk of flooding. The Environment Agency coordinates a 6 year investment programme which prioritises investment to improve or create new defences. Development planning and control RMAs work together to avoid inappropriate development in the floodplain. The National Planning Policy Framework (NPPF) sets out government policy on new developments, which must be applied by local planning authorities when making land use planning decisions. The Environment Agency is a statutory consultee for planning applications except for minor developments in areas at risk of flooding from rivers and the sea and large developments where flooding from rivers and the sea is very unlikely. Working in partnership as RMAs we advise developers on planning consultations in high risk areas. The final decision for development in the floodplain is made by the local planning authorities. Permitting decisions on development are an opportunity for the Local Planning Authority to integrate SuDS. Sustainable Drainage Systems Sustainable Drainage Systems (SuDS) are a way of managing surface water by reducing or delaying rainwater runoff. They aim to mimic the way rainfall drains naturally rather than conventional piped methods. This helps to manage flooding and reduce pollution and damage to the environment. Common types of SuDS are ponds which change in level with rainfall, swales (wide grass ditches), soakaways and permeable pavements (block paving, sometimes with gravel beneath). The approach to be adopted requires infiltration (allowing water to soak in to the ground) to be considered first, then attenuation (storing water at the top of the catchment) and discharge into a watercourse and only if these are impractical should attenuation with discharge to a sewer be considered. Retro-fitting of SuDS to existing buildings and land is also a way of reducing peak flows in drains/sewers and watercourses and so helping to reduce flooding and pollution. The Department for Food and Rural Affairs (Defra), along with the Department for Communities and Local Government (DCLG), are reviewing SuDS, including how they will be maintained. Enforcement RMAs may take enforcement action against a riparian owner (owner of land adjacent to or over a watercourse) to repair their structure before a possible collapse which could lead to flooding. Enforcement action is also sometimes necessary to keep access alongside watercourses clear, so that the RMAs can do maintenance and other work. Working with communities The RMAs work in partnership with communities to understand the community perspective of flooding and coastal erosion. The aim is to help communities understand and actively prepare for the risks and encourage them to have direct involvement in decision-making. Flood Action

19 of 64 Groups, or other community groups, become a clear focus for the community to bring together all the relevant information its residents and businesses may have. Working together to share knowledge, all relevant RMAs can work with communities on managing local risk. This becomes an opportunity for the RMAs to explain what steps they propose to take, talk about the likelihood of funding for any construction works, explore any other funding sources and advise residents and businesses on what they can do to help themselves. It also gives the community the opportunity to shape new proposals. Partnership working Managing flood and coastal risks and particularly local flood risks requires many organisations to work together in partnership. The main RMAs in the South West which work in this way are the Environment Agency, LLFAs, district and borough councils, highway authorities, IDBs and 5 water and sewerage providers. SW Flood Risk Managers Group of all the LLFAs Flood Risk Managers and the EA meet quarterly. There are strategic flood risk boards for Network Rail and Highway England. Maritime district councils work through Coastal Groups and the Coastal Partnerships to pursue solutions to coastal erosion and flooding. Partnership working allows organisations to pool expertise and resources to enable what they do to be as efficient and effective as possible. It encourages the sharing of knowledge, data and expertise and provides opportunities to manage cross boundary issues, ensuring consistent approaches and develop and test innovative approaches to delivery. Many LLFAs have formed their own Strategic Flood Boards/Groups. Government is also working to strengthen or establish partnerships in the areas most affected by the December 2015 floods to encourage a more integrated approach to managing risk across the whole catchment. The Local Floods Partnerships across Cumbria and Yorkshire, established after the December 2015 flooding, are a good example of this way of working. Regional Flood and Coastal Committees (RFCC) were first established in 2011 following the Flood and Water Management Act 2010, replacing the former Regional Flood Defence Committees. There are two RFCCs in the South West river basin district: the South West RFCC and the Wessex RFCC. The two South West RFCCs are responsible for managing flood risk across some 21,000km2 of . They cover some 3,700km of designated main river, 500km2 of estuary and 1,000km of coastline. The RFCCs play a key role in local funding and approving programmes of work that protect communities from flooding. The RFCCs support the Environment Agency and LLFAs in working with these communities and other partners to identify and bring in funding. The Environment Agency annually submits the MTP to the RFCC, which contains the funding bids for the Environment Agency and LLFAs for the next 6 years. The RFCC is the top of a hierarchy of other strategic flood and coastal erosion risk partnership groups in the South West river basin district. Some, but not all, of these groups are represented on the RFCC. The Somerset Rivers Authority was officially launched on January 31, 2015 as a response to the floods of winter 2013/14. Establishing the SRA was a key Action of the Somerset Levels and Moors Flood Action Plan, which was developed at the Government’s request, and signed off by the Secretary of State in March 2014. The SRA is made up with a partnership of the Environment Agency, the Internal Drainage Boards, Somerset County Council (the Lead Local Flood Authority), and the five district councils of South Somerset District Council, Mendip District Council, Taunton Deane Borough Council, Sedgemoor District Council, West Somerset District Council. It received interim funding for 2015/16 from DEFRA, the Somerset local authorities and Internal Drainage Boards to be used for enhanced maintenance work throughout Somerset. During 2015/16 it will undertake detailed planning and put in place necessary arrangements for its operations. The SRA’s purpose is to secure maintenance funding to deliver higher standards of flood protection than would be funded nationally, and to create better flood protection and resilience against further flooding by joint planning and delivery (where possible). The SRA’s remit includes the whole of Somerset, not just the flooded areas of the Levels and Moors. Somerset Water Management Partnership provides an opportunity for a group of stakeholders to meet to consider water matters of significance affecting, or with the potential to affect, the

20 of 64 communities, landscape, economy and ecology in the catchment areas of the Parrett, Brue, Axe and their tributaries. Partners include the Environment Agency, Somerset County Council (CC), Taunton Deane District Council (DC), Sedgemoor DC, National Farmers Union, Farming and Wildlife Advisory Group, Somerset Wildlife Trust, RSPB, Somerset Consortium of Drainage Boards, South West Association of Drainage Authorities, Somerset Waterways Development Trust, Wessex Water, Natural England and ‘catchment reps’ representing local communities. Mires on the Moors is a landscape scale project using a partnership approach to restore up to 4,000ha of upland blanket bogs and mires on and in pilot areas on Dartmoor using sustainable moorland management techniques. This project will help to re-establish natural stream flows in the headwaters of Dartmoor and Exmoor. The key partners involved are the Environment Agency, the National Park Authorities, South West Water and Natural England. In the context of developing an integrated approach we will be looking to align the work of these partnerships with the other activity set out in this plan over the next six years. Catchment based approach Catchment partnerships are groups of organisations with an interest in improving the environment in the local area and are led by a catchment host organisation. The partnerships work on a wide range of issues, including the water environment but also address other concerns that are not directly related to river basin management planning. The partnership group hosts in the South West River Basin District are listed in Table 5. Government is also working to strengthen or establish partnerships in the areas most affected by the December 2015 floods to encourage a more integrated approach to managing risk across the whole catchment, and will look to build on the work of successful catchment partnerships. The National Resilience Review will align closely with Defra’s work on integrated catchment-level management of the water cycle in the Government’s 25 year Environment Plan. Government’s aspirations for the next cycle of planning (now to 2021) is for more integrated catchment planning for water, where Flood and Coastal Risk Management, River Basin Management, nature conservation and land management are considered together.

Table 5: Partnership group host in South West River Basin District

Catchment Partnership Group Host West Cornwall Cornwall Wildlife Trust North & East Cornwall Cornwall Wildlife Trust Tamar Westcountry Rivers Trust Westcountry Rivers Trust and Devon Wildlife North Devon Trust on behalf of the North Devon Biosphere Reserve. South Devon AONB and the Westcountry South Devon Rivers Trust, supported by the Environment Agency East Devon Devon Wildlife Trust Farming and Wildlife Advisory Group South South and West Somerset Wessex Water and Dorset Wildlife Trust Hampshire Avon Wessex Chalk Stream and Rivers Trust

21 of 64 Internal Drainage Boards Internal Drainage Board (IDBs) are local public authorities established in areas of special drainage need in England. IDBs play an important role in managing water levels to improve drainage for agricultural land, protect wetland habitats and to reduce flood risk to people, property and infrastructure in low lying areas known as internal drainage districts. Within the South West river basin district, there are 3 IDBs: Braunton Marsh IDB Somerset Drainage Boards Consortium North Somerset Levels IDB The Floods and Water Management Act (2010) made it easier for risk management authorities to undertake work on each other’s behalf. Public sector cooperation agreements have been developed to make this happen and are being used to deliver maintenance by a partnership approach. They will help deliver value for money in operational maintenance activities and will ensure a consistent approach across the country.

22 of 64 5 Getting to know the South West River Basin District

Introduction The South West river basin district covers over 21,000km2. It includes Cornwall, Devon, Dorset, and parts of Somerset, Hampshire and Wiltshire. The district is predominantly rural, but also includes urban areas such as Exeter, Plymouth, Torquay, Bournemouth, Taunton, Bridgwater, Weston-Super-Mare and Poole. The Isles of Scilly, a group of islands 25 miles South West of Cornwall, and Lundy Island are included in the district. The district has approximately 1,000km of coastline. The South West river basin district faces a number of environmental challenges and opportunities. Many towns will experience growth and will need to adapt to accommodate for the potential impact of a changing climate.

Figure 5: Overview of the South West river basin district Water There is over 1000km of coastline and more than 1000 water bodies in the South West river basin district, including rivers, lakes, groundwater, estuaries, coastal waters and canals. Healthy waters contribute to the economic value of the South West and support industries from tourism to manufacturing. Although under less pressure than more densely populated river basin districts, the majority of heavily modified water bodies are not at their ecological potential. Physical modifications are identified as a key pressure in some areas.

23 of 64 Structures built to divert, transport and store water exist in every management catchment and change the natural flow of water - deepening, straightening and culverting channels for flood defence, drainage and navigation, as well as weirs, penstocks, tidal sluices and flood banks. These change the regulation services provided by catchments. For example, flood banks can disconnect the river from its floodplain, limiting its ability to naturally retain and store flood water, and filter sediments and pollutants. Flood risk management systems and drainage Flood risk in the South West river basin district is extremely diverse. The area is susceptible to rapid onset flooding in small steep sided, impermeable catchments in Devon, Cornwall and the uplands that drain into the Somerset Levels and Moors. Tide locking is then an issue where river systems meet the sea. This is a particular feature of the Somerset Levels and Moors, where water drains very slowly and relies on pumped drainage. The Hampshire Avon receives significant flows from chalk aquifers and these rivers react slowly to rainfall. Long periods of very wet weather result in sustained flooding. The prevailing weather pattern is for low pressure systems to cross the Atlantic Ocean from the west towards Britain. The low pressure systems build significant weather fronts as they pass over the Atlantic Ocean. The South West is the first place where these fronts hit land, resulting in increased average rainfall, with the potential for short duration intense rainfall. This can cause extreme flooding in the steep, impermeable, small catchments of Devon, Cornwall and Dorset. The most well known examples of this type of flooding are and . Many small towns and villages have a history of high impact flooding. These small catchments have been identified as Rapid Response Catchments and the Environment Agency are working with local communities to help them prepare for these events and to minimise the associated risk to life.

Figure 6: Boscastle in flood, 2004 Climate and climate change adaptation There is clear scientific evidence that global climate change is happening now. Over the past century, sea levels have risen around England and more of the winter rain has fallen in intense wet spells. Climate change can affect flood risk in several ways and the impacts will vary depending on local conditions and vulnerability. Risk management authorities should consider climate change within the development of all plans.

24 of 64 We already plan for climate change. We build climate change predictions in to the design of flood defence schemes to make sure that they are fit for the future. We will revisit this modelling after the record breaking wet weather experienced in December 2015. Wetter winters and more intense rainfall may increase river flooding and cause 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 RMAs need to be prepared for the extreme events. 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. Even small rises in sea level could add to very high tides so as to affect places a long way inland. 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. UK Government’s Flood Foresight (2014) re- endorses the findings of the 2008 foresight work, stating that in general terms climate change is likely to increase river flood risks by 2080 by between 2 and 4 times, and coastal flood risk by 4 to 10 times. Increases in the frequency of flooding would affect people’s homes and wellbeing, especially for vulnerable groups. Sea level rise is affected by 2 factors. The thermal expansion of sea water as temperature rises and the amount of water in the oceans increases as ice sheet and glaciers melt as a result of climate change. This is in combination with Isostatic rebound, the vertical movement or settling of land. The ice cap that covered the north and west of the UK melted, and retreated northwards, following the end of the last Ice Age around 12,000 years ago. The general trend is the northern and western parts of England and Scotland is lifting and south east of England is sinking. It is not possible to predict exactly how much change will happen or when. But in planning, a range of scenarios should be used for long term decisions to understand the potential range of impacts. The National Planning Policy Framework (NPPF) and Planning Practice Guidance state that local planning authorities and developers should ensure development is appropriately flood resilient and resistant, safe for its users for the development’s lifetime and will not increase flood risk overall. The changing climate is expected to increase frequency, extent and impact of flooding and the need to adapt to it. This will be recognised by Local Planning Authorities, Lead Local Flood Authorities and the Environment Agency in exercising their Development Control roles as statutory consultees. The nature of the proposal, the site and the development’s lifetime will determine what level of resilience needs to be incorporated at the time of construction and what action(s) can be deferred to be incorporated at a later date should future adaptation be required. The National Planning Policy Framework (NPPF) requires that new development is resilient to flooding for its lifetime, taking climate change into account. ‘Flood risk assessments: climate change allowances’ are the best available evidence on the likely impact of climate change on flood risk. By using this guidance for flood risk assessments and to inform the location of development and the design of associated flood risk management measures, it will help local authorities and developers comply with the NPPF. The South West river basin district has the highest average annual rainfall in England and the largest proportion of rainfall in winter months. According to UK Climate Impacts Programme UKCIP, by the 2020s winter rainfall could increase by around 20%. This would increase the number of people and properties at flood risk. Increasingly frequent and intense rainfall events, combined with fast responding catchments will be the greatest threat to the smaller catchments. The greatest threat to the lower lying catchments is from sea level rise which could increase flood risk significantly around estuaries and surrounding low-lying areas. This could potentially change the character of affected agricultural land and valuable habitat. Climate change and sea level rise pose significant challenges to managing the South West coastline. 40 locations will need to respond to significant changes to the shoreline, through erosion or permanent inundation. 37 locations will require adaptation from a combination of erosion, increasing flood risks, or impacts on infrastructure, assets or habitats. The FRMPs contain high level measures/ actions detailing how RMAs will:

25 of 64  Incorporate climate change allowances into flood risk management works. Impacts from a changing climate will be considered in plans for location-specific works to reduce flood risk from all sources  Identify where working with natural processes and natural flood management can help to reduce flood and coastal erosion risk and help towards communities becoming more resilient both adapt and become more resilient to the impacts of climate change. Measures in the FRMP will complement the outputs of the National Flood Resilience Review. The National Resilience Review will assess how the country can be better protected from future flooding and increasingly extreme weather events. The review is looking at climate modelling, infrastructure, resilience and future investment strategy. Accounting for climate change reduces the risk of flooding and provides better levels of protection but we can never eradicate the risk of flooding entirely. Coastal erosion risk management The Environment Agency has the coastal Strategic Overview in England. The coastal overview joins up coastal management activities to ensure flooding and erosion risk is managed effectively. The overview encourages authorities to work together in partnership to achieve effective management of coastal flooding and erosion risks. Work to tackle coastal erosion is the responsibility of district or unitary councils. Local authorities have operational powers relating to managing coastal erosion under the Coast Protection Act 1949 and the Flood and Water Management Act 2010. Local Authorities lead on coastal risk management activities and undertake works on sea flooding and coastal erosion where they are best placed to do so. This is undertaken in collaboration with the Environment Agency. Shoreline Management Plans (SMPs) are non-statutory, high level planning documents. They are large scale assessments of the risk associated with coastal processes, and a policy framework to reduce these risks to people and the developed, historic and natural environment in a sustainable manner. They set the strategic direction for how the coast is wanted to be managed over the next 100 years. SMPs identify the most sustainable approaches to managing coastal erosion and flooding risks in the short, medium, and long term. During the development of SMPs, a range of partners and the public were extensively consulted and involved in the decision making processes. This FRMP also draws some coastal erosion information from the Shoreline Management Plan 2 (SMP2), however, the full SMP has not been included in this FRMP. The SMP measures included in this FRMP are those that are most relevant for sea flooding and flood risk issues. You can access further information and the full SMPs here: https://www.gov.uk/government/publications/shoreline-management-plans-smps/shoreline- management-plans-smps SMPs remain the primary high level strategic planning documents on the coast, as they also contain information on coastal erosion risk management, and their content can be updated or changed using an established auditable process. These changes will be reflected in the FRMPs as they are updated on a 6 yearly cycle. These changes may be prompted by changes in the evidence base guiding management decisions in SMPs, including evidence emerging from experience of the ongoing implementation of RBMPs. In this way, the Programme of Measures in RBMPs, the action plan and information in the FRMP, and the ‘living’ SMP documents should successfully inform and read-across to each other. The Marine and Coastal Access Act 2009 established the Marine Management Organisation (MMO) to produce marine plans, administer marine licensing and manage marine fisheries in English waters. It introduced marine planning in the UK through production of a marine policy statement and more detailed marine plans setting spatial policy at a more local level. Eleven marine plans covering English waters are anticipated by 2021. Marine plans will inform and guide marine users and regulators across England, managing the sustainable development of marine industries such as wind farms and fishing, alongside the need

26 of 64 to conserve and protect marine species and habitats. At its landward extent, a marine plan will apply up to mean high water, including estuaries and the tidal extent of rivers. All public bodies making authorisation or enforcement decisions capable of affecting the marine area must do so in accordance with the Marine Policy Statement (MPS) or marine plans (where they are in place) or state reasons for not doing so. Marine licensing, administered by the MMO is the main environmental and development control system below high water. Further information can be found on the MMO web pages on GOV.UK https://www.gov.uk/government/collections/marine-planning-in-england Coastal Squeeze Flood risk and coastal erosion management measures, such as coastal flood defences, can have an impact on wetland and coastal environments and their conservation interest. As sea-levels rise, intertidal habitat in front of a flood defence can get squeezed and erode. It is therefore important that a long term plan and measures are in place to compensate for habitat losses. Measures can include habitat creation that offsets or replaces habitat losses. Risk Management and Coastal Authorities are encouraged to develop a strategic approach to the planning and delivery of any habitat creation measures that they anticipate will be required before seeking consent for plans or projects. Society and health Approximately 6% of land in the South West river basin district is built-up and this is significantly lower than the UK average. More people live outside major towns and cities compared to other parts of the country. The dispersed communities tend to experience more localised flooding. The South West river basin district has relatively small urban areas but these suffer from flooding from smaller rivers, brooks and have urban drainage issues and surface water flooding. Within the South West there are a number of urban centres. Communities such as Plymouth, Exeter, Taunton, Bridgwater and Poole have high densities of properties at risk from multiple sources of flooding. In these locations the future control of flood risk will require RMAs to work together to ensure that holistic solutions are delivered that address the risks of flooding from rivers, the sea, surface water and sewers. Small catchments combined with exposure to the Atlantic approaches can result in rapid onset flooding. This can put lives at risk in remote communities, where improving community resilience and improving flood warnings is paramount. The Isles of Scilly form a unique island community off the South West tip of Cornwall, whose remoteness contributes to their identity. Maintaining year round infrastructure links and coastal flood risk protection is a specific challenge. In some communities, waterside locations are areas of deprivation that have resulted from industrial decline or neglect. Improvements to these areas and regeneration initiatives that incorporate FRM can have multiple benefits including improving the environment and quality of life, providing employment and wider economic benefits. Land use As a rural English river basin district, agriculture and associated activities play a major role in maintaining the South West’s distinctive and varied landscape. Grassland and dairy farming dominate in the wetter western parts, with arable based farming in the drier east. Changing land use management in steep catchments can contribute to locally significant flood risk. However, learning from research evidence and listening to the experiences of those who manage the land is providing the opportunity to work in partnership to deliver beneficial outcomes in key communities. There are over 200,000ha of woodland and forests, a figure which is increasing, with upper catchments being restored to help reduce catchment response to rainfall. In the lowlands, much of the land is historically reclaimed, lying at or near sea level. Its use is heavily reliant on established manmade drainage systems, such as enlarged, perched channels,

27 of 64 pumping stations and land drainage. Long term investment in maintenance, such as clearing vegetation and dredging, are required to sustain the current land use. There is evidence that woodland measures can reduce flood flows, particularly but not only within smaller catchments. Trees help reduce flood risk in a number of ways: greater water use by trees compared to other vegetation types reduces run-off and also creates greater capacity for woodland soils to absorb rainfall during flood events; higher infiltration rates of forest soils resulting from the extensive rooting systems of trees reduces run-off to watercourses and aids interception of overland flow from adjacent land; Floodplain and riparian woodland can slow down flood flows, increase temporary storage and thereby delay the transfer of flood water downstream; soils under woodland are generally protected from erosion risk, reducing delivery of sediment to watercourses.

Therefore, ‘woodland measures’ for flood risk reduction include both targeted woodland creation, in the right place, and to the right design and woodland management such as the installation of features such as large woody debris dams to reconnect watercourses with already wooded riparian zones and floodplains. The 2011 ‘Woodland for Water’ report detailed the evidence behind these conclusions. As a result opportunity mapping to be used to identify where in the country to target woodland measures to help reduce flood risk. Priority locations fall into three categories: Floodplains – where hydraulic roughness from woodland cover slows the flow and encourages the deposition of sediment; Riparian zones – to intercept overland flow, protect river banks from erosion, and help slow the flow of water; Wider catchment planting – to protect sensitive soils from erosion, increase infiltration rates, and intercept sediment in run-off from adjacent land.

While opportunity maps can identify priority catchments where woodland creation and management can help reduce flood risk, it is important that woodland is located in the right part of the landscape and then designed and managed appropriately in order to maximise their contribution to reducing flood risk.

Figure 7: Golitha Falls

28 of 64 Economic activity The local economy is dominated by the service sector and tourism. Agriculture is the primary sector in many rural areas and is a major influence on the water environment. Other important industries include mineral mining and quarrying, and fishing. Focal points for economic growth include Weston-Super-Mare, Taunton, Bridgwater, Exeter, Plymouth, , Poole and . Growth and regeneration requires flood risk to be addressed. This also brings opportunities to demonstrate the economic value of green infrastructure and ecosystem services to these communities. Local Enterprise Partnerships are key to enabling this, by unlocking joint funding opportunities. Changes in coastal economic activity require investment to sustain historic infrastructure, such as harbours and breakwaters. Recreation and tourism The South West supports a wide range of water based recreational activities on its rivers, lakes, estuaries, coasts and canals. The river basin district has over 1,000km of coastline with 189 designated bathing waters, representing nearly half of the total in England. Much of the extensive public rights of way network is located along rivers, canals and the coast. The is a nationally recognised public right of way and draws a large number of tourists to the area. Notable tourist features include three World Heritage Sites (including the Jurassic Coast), historic market towns (many of which are centred on rivers), as well as classic English seaside resorts and traditional fishing villages. Infrastructure Flood risk affects critical infrastructure such as the , primary and trunk roads, power stations (including nuclear facilities at Hinkley Point), marinas, numerous fishing ports and major naval and maritime transport hubs. The South West river basin district has a limited arterial road network and a single railway line in and out of Devon and Cornwall. The railway network has been dramatically impacted by flooding in the past, seriously affecting rail links south of Bridgwater and west of Exeter. More recently coastal storms have impacted the mainline at Dawlish. In other locations, such as the Exe estuary and in Mounts Bay, railway embankments form part of the flood defence line. Rural public transport and airports can be significantly affected by severe weather and flooding, which can subsequently affect residents, visitors and the economy.

Figure 8: Dawlish railway line

29 of 64 Landscape Rivers, floodplains and coastlines are intimately associated with the South West landscape, including dramatic uplands, rugged coastlines, estuaries, marshes and lowlands (see Figure 10). Whilst these varied landscapes are highly valued, they are also profoundly influenced by mining, industry and development, and farming accounts for around 80% of land use. The Dartmoor and Exmoor National Parks cover some 9% of the river basin district. 12 Areas of Outstanding Natural Beauty (AONBs), covering an additional 30% of the river basin district, recognise and protect mining landscapes, moorland, sandy beaches and granite headlands. The Somerset Levels and Moors are a unique manmade wetland landscape of international importance. At its heart is the largest lowland grazing marsh system in Great Britain. A significant part is designated a SPA and a Ramsar site, which depend upon flooding for their designations. The area is also rich in archaeological sites that depend on waterlogged conditions for their preservation.

Figure 9: Topographic map of the South West river basin district Biodiversity The South West river basin district has a particularly rich diversity of wildlife and habitats. These are recognised and protected by a large network of internationally, nationally and locally designated sites. Many rivers are important salmon fisheries, while almost half of the UK's designated shellfish waters are found in the South West. 10% of the district is designated for internationally or nationally important wildlife sites. The majority of Sites of Special Scientific Interest (SSSI) in the river basin district are in favourable or recovering condition. Diffuse pollution, invasive species, flooding and coastal erosion are considered to be the key threats to these SSSIs. The coastal areas of the South West river basin district are covered by two marine plan areas (South Inshore and South West Inshore). Further offshore, are covered by the South Offshore and the South West Offshore marine plan areas.

30 of 64 Cultural heritage Cultural heritage and archaeology is of great significance in the South West river basin district. There are three World Heritage Sites in the South West RBD - Stonehenge in Wiltshire, the Mining Landscape of Cornwall and Devon, and the Jurassic Coast in Devon and Dorset. 60% of the UK’s Heritage Coast is within the South West river basin district. Numerous heritage assets are associated with the water environment, including water meadow systems, structures such as mills, bridges and canals, military maritime defences and historic boatyards. Settlements map historic links to rivers, estuaries and the sea through fishing and maritime trading or reflect the distinctive characteristics of the classic English seaside resort. Consequently many historic settlements and numerous listed buildings are vulnerable to river and tidal flooding as well as coastal change. On the Somerset Levels peat has preserved organic material, which has largely disappeared from drier parts. Geology Geologically, the South West river basin district is divided slightly to the west of the River Exe. The largely igneous and metamorphic west includes the granites of Cornwall, and higher moorland of Dartmoor and surrounding slates. These rocks have little capacity to drain groundwater, quickly becoming saturated in prolonged rain and contributing to faster responses in rivers. Historically, the west of the river basin district has a significant mining heritage, which has left a legacy of water regulation and quality related issues. In Cornwall, a major industry has developed, with the extraction of China Clay transforming the landscape. The long term restoration of this mining legacy offers the opportunity for water management in years to come. In the sedimentary east, the limestone and chalk based geology of Wiltshire and parts of Dorset are a major aquifer and can lead to groundwater flooding. Soil Soils in the river basin district broadly follow the geological pattern, with an east west split. Freely draining soils are dominant west of the River Exe, grading to clay-rich slowly draining soils and chalk and limestone soils in the east. In parts of the Somerset Levels and Moors with alluvial and lowland peat soils, drainage for agricultural purposes over centuries has reduced the level of the land. Pumped drainage now maintains the agricultural integrity of the area. The river basin districts high rainfall, steep slopes and vulnerable soils result in problems with water pollution and run-off. The most vulnerable soils include the Devon Redlands, south Hams, west Cornwall, the Vale of Taunton, the Yeovil sands and the Vale of Pewsey. Soil compaction and erosion associated with intensive agriculture is one threat identified in the National Ecosystem Assessment. Across the South West river basin district, measures aimed at retaining soil aim to reduce associated flood risk.

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Figure 10: Subsoiling carried out to relieve compaction and minimise run-off

32 of 64 6 Key flood risk issues in the South West River Basin District

The South West river basin district covers 21,000km2 of Cornwall, Isles of Scilly, Devon, Dorset and parts of Somerset, North Somerset, Hampshire and Wiltshire. This area has diverse geography and flood risk. Large urban areas include Exeter, Plymouth, Torquay, Bournemouth and Poole. However, the river basin district is predominantly rural and one of the most agriculture in England. The Devon and Cornwall peninsula is where weather systems from the Atlantic Ocean have first land impact in England. Small, steep sided catchments respond quickly to rainfall. This high impact flooding may present extreme danger associated with a sudden rise in water levels, large volumes of water, high flow velocity and debris content being carried in the water, which may affect people and infrastructure in the floodplain. While numbers of properties at risk may be relatively low compared with other areas of the country, risk to life and community disruption from flooding is significant. The uplands in Somerset generate quick run-off from short intense rainfall but the lowland areas are very flat. Rainfall run-off travels quickly from the uplands but slows and pools when it reaches the Somerset Levels and Moors. Large areas are below sea level and tide locking is a particular feature of the Somerset Levels and Moors, where water drains very slowly. Watercourses in the Hampshire Avon receive significant flows from chalk aquifers. At the catchment scale these rivers react slowly to rainfall. Long periods of very wet weather result in long periods of flooding. For Cornwall, Scilly, Poole and Christchurch Bays, the number of properties at risk from tidal flooding is set to increase threefold by 2105. Tidal flood risk will be the dominant flood risk in the river basin district. The significant challenges surrounding coastal flood risk in the South West have been clearly demonstrated over the last few years. High energy waves and storms arriving from the Atlantic can cause extensive physical damage to defences and property, including the Isles of Scilly. Balancing the increasing pressures associated with climate change and the economic benefits that come from regeneration of coastal communities will require further investment in coastal defences over the coming years. There are multiple locations where the number of properties within the tidal flood risk zone could potentially increase by more than 1,000 properties by 2105. Further communities are likely to also see dramatic increases at a community level. Climate change may lead to increasingly uncertain weather patterns, with the potential for increased rainstorm intensities. Rising sea levels and potentially stormier conditions increase flood risk and the pressure on coastal defences. Wave and wind action may increase flood risks to life and property, especially in the west of the river basin district. Communities will need to adapt to address both flood and coastal erosion risk. In parallel to FRM planning, the Environment Agency is managing river basins in relation to water quality and quantity across England. You can consider the pressures on the water environment and associated proposals using the links in this section.

33 of 64 Flood History To best manage flood risk data and knowledge from a variety of sources are needed. Records of past flooding are a vital source, such as the cause of flooding, the numbers of properties affected, extent and depth of floodwater and actions taken to mitigate impacts. Availability of this data varies. The Environment Agency use historic flood data to verify and improve models which simulate floods and these models are then used to produce maps of indicative flood risk – the extent of floods of differing severity. The information below shows larger coastal and tidal flood and fluvial flood where 30 or more properties have been affected in a single location. These have been chosen to highlight key risks and the nature of flooding across the South West river basin district, rather than a comprehensive history of flooding. More comprehensive details of past floods are listed in individual Catchment Flood Management Plans and in reports of major flood events. In early 2014 the Somerset Levels and Moors experienced widespread flooding, particularly within the Parrett and Tone river catchments. The Environment Agency estimated there were more than 65 million cubic metres of floodwater covering an area of 65 square kilometres. Residents of Northmoor (Moorland, Chadmead and Fordgate) had to leave their homes at the height of the flood and many communities were cut off by floodwater. Records of flooding go back as far as the 1600s and some of the more significant events over the last 100 years occurred in 2012, 2000, 1997, 1960 and 1929. During February 2014 there were a succession of Atlantic Storms coinciding with high tides associated with significant wave action and tidal surge in Devon and Cornwall. In total, around 100 properties experienced tidal flooding in Devon and approximately 200 properties flooded in Cornwall, predominately along the south coast. Extensive damage occurred to coastal defences. In November 2010 severe flooding occurred in Mid-Cornwall and especially Bay area following an overnight storm. In excess of 400 properties were flooded, including the Eden Project. Flooding affected St Austell, Par and (more than 50 properties), Altarnun, (40 properties), Mevagissey (100 properties) and Pentewan (15 properties). Surface water and fast flowing water resulted in damage and properties were flooded to a depth of 1.5 m. On 30 October 2008, over four hundred properties were flooded when a hail/rain storm stalled over Ottery St Mary. 187mm of rain fell in two hours, flooding more than one hundred properties in the town. A major incident was declared. Many other communities were flooded to a lesser degree, including Feniton, Rockbeare, Whimple, Newton Poppleford, Broadhembury and West Hill. The storm is thought to have had a 1 in 200 return period. 27 October 2004 a combination of high tides and severe storms caused extensive damage along the south coast, particularly in (road closures and people evacuated from their homes into the church hall), and , but also affected Lamorna, Mousehole and , , Falmouth, Flushing Penryn, Mylor Bridge, Peranarworthal, Devoran and Point, , and Tresillian, Goran Haven, Portmellon, Mevagissey and Pentewan, Par, Lostwithiel, , Seaton and at Kingsand, and . In August 2004 Boscastle was hit by serious flooding caused by an extremely rare rainfall event, after the event it was classified as a 1 in 400 yr event. Sixty properties were flooded and the risk to life was severe. A major emergency response was initiated and fortunately no lives were lost. This flood event demonstrated that while the numbers of properties at risk in small communities can be relatively low, the risk to life and community disruption caused by flooding can be severe. In autumn 2000 a succession of weather systems brought prolonged rainfall to the whole river basin district. In Dorset, Wiltshire and Hampshire the quantity and intensity of the rain that fell during this period was exceptional in many places. Significant flooding affected communities in the Dorset Stour operational catchment but greatest impact was felt in the Hampshire Avon operational catchment. Here, there was major disruption to roads for several weeks, particularly those crossing the River Avon from Salisbury to Christchurch, due to significant depth of flooding making them impassable. Downton, Fordingbridge and Ringwood were badly affected with many properties inundated with flood water for several weeks. In Somerset flooding occurred in Williton when 50 properties were affected by surface water and river flooding after periods of heavy rainfall.

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The May 1979 flood event resulted in flooding to communities across West Dorset and Dorset Stour, but the more notable event in 1979 was in December. This event resulted in extensive flooding to a number of towns in Dorset including Beaminster, , Bradpole and Weymouth, and communities within the River Stour operational catchment, notably Blandford, Sturminster Marshall, Wimborne, Bournemouth and Christchurch. Flooding was widespread across Cornwall at the end on September 1976 due to severe storms. The main communities affected included , , Camborne, Pool, Redruth area, St Ives, Penzance, , Falmouth, Truro, St Austell, Par and St Blazey, Lostwithiel and . In Polperro there was one fatality and 83 properties flooded. On 27 October 1960, over 60mm of rain fell on the already saturated Exe catchment. The resulting flow through Exeter caused flooding to one thousand homes. A second event on 3 December 1960 caused flooding to a further one thousand two hundred homes and flood depths of over 2m were recorded in the streets alongside the river. The Exeter flood alleviation scheme was constructed as a result of these floods. In July 1955 the Dorset village of Martinstown recorded 279.4mm (11 inches) of rainfall in a single day. The rainfall was centred on Martinstown but large totals were also recorded across much of Dorset, notably in the Wey Valley and Weymouth. Significant flooding occurred as a result of the rainfall, the worst affected area was Radipole in Weymouth where around 500 properties were affected. Flooding also occurred in communities in the area around Dorchester and the South Winterborne valley. In August 1952, continuous rain began falling on the Isles of Scilly during the early hours, spreading to all parts of Devon, Cornwall and Somerset by midday. 230mm of rain fell above the town of Lynmouth in Devon causing extensive flooding. Ninety-five buildings were destroyed and thirty-four people lost their lives. On the south side of Exmoor, communities were affected as far south as Exeter.

Figure 11: Coastal flooding at Dawlish

35 of 64 Table 6 Historical flood events affecting 30 or more properties in a single location. Number of properties affected shown in (). Property numbers are approximate.

Coastal and Tidal Floods:

2014 Topsham (30), Dawlish (30)

2004 Looe (30), Flushing (30), Fowey (30), St Mawes (30)

1991 Seaton, Devon (50)

1990 Appledore (50)

1989 Salcombe (50), Poole (50), Christchurch (30), West Bay (30)

1985 (30), Wadebridge (30)

1984 Barnstaple (150), Padstow (30), Wadebridge (30)

1981 Padstow (30)

1979 Seaton (Devon) (500), West Bay (30), Chiswell (30)

1978 Chiswell (30)

1976 Fowey (30)

1975 Mevagissey (30)

1974 Totnes (50)

1972 Teignmouth (50)

1942 Chiswell (150)

Fluvial Floods (from ‘main river’):

2013/14 Bournemouth and Christchurch (30)

2012 Millbrook (30)

2010 Par Moor (100), Mevagissey (50), St Blazey (50), Lostwithiel (30)

2009 St Ives (50), Taunton

2007 Compton Dundon (30)

2004 Boscastle (50),

2002 St Ives (30), Minehead (25)

Downton (30) Fordingbridge (30), Ringwood (30), Salisbury and Wilton (30), 2000 Bournemouth and Christchurch (30), Norton Fitzwarren (30), Taunton

1999 Bude (30)

1997 Pentewan (30)

1996 Seaton, Cornwall (50) , Bideford (30), Bathpool (50)

1995 Ringwood (30)

1994 Torquay (30)

1993 Polperro (50), Bude (50), Porthleven (50), Helston (50), Weymouth (30), Bideford (30)

36 of 64 1992 St Ives (50), Torquay (30)

1991 Torquay (50)

1990 Swanage (30)

1988 Truro (Jan, 50), Truro (Oct, 50), Perranporth (50)

1986 Lostwithiel (30)

1984 Barnstaple (150), Bideford (100)

1982 Gillingham (50)

1981 Bideford (50)

Newton Abbot (500), Bridport (250), Bournemouth and Christchurch (250), Bideford (100), Blandford (100), Buckfastleigh (50), Bovey Tracey (50), Beaminster (50), Ashburton (Dec, 50), Lostwithiel (50), Horrabridge (30), Sturminster Marshall (30), 1979 Ashburton (Feb, 30), Bradpole (30), Totnes (30), Wimborne (30), Weymouth (30)

1976 Polperro (50)

1974 Par (50),Ashburton (50), Millbrook (30)

1972 Honiton (30), Newton Poppleford (30)

1971 Ashburton (50)

1969 Bampton (30)

1968 Sidmouth (100), Honiton (100), East Budleigh (30), Colyton (30), Cheddar (50)

1967 Dartmouth (30)

1964 Swanage (30)

Exeter (1000), Exmouth (Sept, 500), Tiverton (500), Sidmouth (100), Colyton (100), Exmouth (Oct, 100), Lympstone (100), Bideford (50), Downton (30), Kennford (30), 1960 Dulverton (30), Dawlish (30),

1958 Bude (50)

1957 (50)

1955 Weymouth (500), Exeter (50), Truro (30)

1954 Lostwithiel (50)

1952 Lynmouth (50), Dulverton (30)

1946 Ashburton (50)

1938 Ashburton (150), Harbertonford (30)

37 of 64 Flood risk from rivers and the sea

Because of the shape of the river basin district, fluvial flooding typically occurs in a limited number of catchments as a result of storms and depressions affecting only part of the basin. Small, steep catchments will respond quickly to intense localised rainfall. Larger catchments such as in Somerset as well as the ground water fed catchments in the east will tend to respond to more prolonged rainfall. Tidal flood risk will affect all sections of the coast for a given event. However it is typically storm conditions coinciding with high water levels that will result in flooding. The exposure of the coast to the wind and wave direction therefore tends to limit the flooding to those communities with a particular aspect in any give storm event. The statistics contained in this plan are based on the National Flood Risk Assessment (NaFRA). This is an assessment of flood risk for England and Wales, produced using local data and expertise. It indicates the chance of flooding from rivers and the sea, both along the open coast and tidal estuaries. The data is presented in flood risk likelihood categories, which indicate the chance of flooding in any given year. High - greater than or equal to 1 in 30 (3.3%) chance in any given year Medium - less than 1 in 30 (3.3%) but greater than or equal to 1 in 100 (1%) chance in any given year Low - less than 1 in 100 (1%) but greater than or equal to 1 in 1,000 (0.1%) chance in any given year Very Low - these properties may have a greater than 1 in 1,000 chance of flooding in any given year if defences were not present. However, in reality, the chance of flooding is reduced below a 1 in 1,000 chance by defences, which NaFRA analysis includes. The nature and frequency of flood risk will therefore differ from community to community. The following maps and statistics therefore summarise the scale and distribution of the overall flood risk across the South West river basin district.

38 of 64 Table 7: Summary of flood risk from rivers and the sea to people, economic activity and the natural historic environment across the South West River Basin District

Total in river River and Sea basin High Medium Very low district risk risk Low risk risk Risk to people: Number of people in river basin 3,445,400 36,350 59,500 166,200 8,000 district: Number of services: 9,380 280 240 450 30

Risk to economic activity:

Number of non-residential 642,700 12,000 14,400 26,750 1,250 properties: Number of airports: 6 0 0 0 0 Length of roads (km): 2,390 40 40 80 <10 Length of railway (km): 940 70 40 80 <10 Agricultural land (ha): 1,151,750 33,750 14,800 20,350 100

Risk to the natural and historic environment: Number of EU designated bathing 74 63 1 7 0 waters within 50m: Number of EPR installations within 201 16 12 10 0 50m: Area of SAC within area (ha): 149,150 2,700 700 1,000 <50 Area of SPA within area (ha): 57,950 9,550 750 1,200 <50 Area of RAMSAR site within area 33,550 9,350 800 1,150 <50 (ha): Area of World Heritage Site within 24,800 700 100 450 <50 area (ha): Area of SSSI within area (ha): 154,000 13,300 1,850 2,550 <50 Area of Parks and Gardens within 20,050 700 250 250 <50 area (ha): Area of SAMs within area (ha): 11,700 150 50 100 <50 Number of Listed Buildings within 58,340 2,020 1,700 2,580 250 area: Number of Licensed water 4,020 640 190 140 <10 abstractions within the area:

Note: SAC - Special Area of Conservation SAMs – Scheduled Ancient Monuments SPA - Special Protection Area SSSI - Site of Special Scientific Interest RAMSAR - wetland site of international importance EPR installations - those registered under the Environmental Permitting Regulations

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Figure 12: Flood risk from rivers and the sea – Risk to people

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Figure 13: Flood risk from rivers and the sea - Risk to economic activity

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Figure 14: Flood risk from rivers and the sea - Risk to the Natural and Historic Environment

42 of 64 Flood risk from reservoirs The Environment Agency regulates large raised reservoirs with regard to flood risk and provides guidance to reservoir ‘undertakers’ to help them manage their asset. Enforcement action may then be taken to seek improvements in some circumstances. The ‘flood risk map for reservoirs’ for the South West RBD, which can be found on the gov.uk website, shows what is at risk, including people, economic activity and the environment. Under the Reservoirs Act 1975 the Environment Agency regulates all reservoirs with a capacity of 25,000 cubic metres or more, which could escape in the event of a dam failure. The Environment Agency is currently re-classifying high risk reservoirs. High-risk' reservoirs will be those reservoirs that, in the event of an uncontrolled release of water, could endanger human life. In the future the Environment Agency will continue to maintain a register of all reservoirs with a capacity of over 25,000 cubic metres, but will only fully regulate the ‘high-risk’ reservoirs. The statistics and maps below illustrate the extent of reservoir flood risk across the South West RBD. Table 8: Summary of flood risk from reservoirs to people, economic activity and the natural and historic environment across the South West River Basin District.

Total in river Reservoirs Maximum extent basin district of flooding Risk to people: Number of people in area river basin district: 3,445,400 66,250 Number of services: 9,380 250

Risk to economic activity:

Number of non-residential properties: 642,680 14,880 Number of airports: 6 0 Length of roads (km): 2,390 50 Length of railway (km): 940 60 Agricultural land (ha): 1,151,750 15,100

Risk to the natural and historic environment:

Number of EU designated bathing waters within 50m: 74 8 Number of EPR installations within 50m: 201 13 Area of SAC within area (ha): 149,150 3,350 Area of SPA within area (ha): 57,950 4,550 Area of RAMSAR site within area (ha): 33,550 2,950 Area of World Heritage Site within area (ha): 24,800 600 Area of SSSI within area (ha): 154,000 6,850 Area of Parks and Gardens within area (ha): 20,050 400 Area of Scheduled Ancient Monument within area (ha): 11,700 100 Number of Listed Buildings within area: 58,340 1,790 Number of Licensed water abstractions within the area: 4,020 270

Note: SAC - Special Area of Conservation SAMs – Scheduled Ancient Monuments SPA - Special Protection Area SSSI - Site of Special Scientific Interest RAMSAR - wetland site of international importance EPR installations - those registered under the Environmental Permitting Regulations

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Figure 15: Reservoir flood risk - Risk to people

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Figure 16: Reservoir flood risk - Risk to economic activity

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Figure 17: Reservoir flood risk - Risk to the natural and historic environment

46 of 64 Flood risk from surface water Lead Local Flood Authorities are responsible for managing the risk of flooding from surface water, defined as rainwater on the ground surface that hasn’t entered a watercourse, drain or sewer. This type of flooding can begin to occur within minutes of intense rain, so it is almost impossible to forecast for. The extent of flooding can be very variable; depending on ground levels, storm intensity and duration and on whether river levels are high enough to impede drainage into them. Problems can quickly occur in several places, and although these might be over a small area, a Local Council’s resources can quickly become stretched. It is good practice to plan for drains and watercourses becoming overwhelmed in a flood, such as by analysing the flow paths that floodwater may take. Once these are known, steps can be taken to ensure they are kept free from obstructions and to consider whether roads and open space can be used to safely channel water away. Prior to April 2015 the Environment Agency was a statutory consultee for large developments, greater than 1ha in size in flood zone 1 (i.e. in areas at low risk of flooding from rivers and the sea). However, since 15 April 2015 this duty has now passed onto the Lead Local Flood Authorities who now provide local planning authorities with comments on surface water management for new development. This includes review of sustainable drainage systems (SuDS) associated with new development. Whilst surface water flooding is not covered in detail by this FRMP, RBD wide statistics are shown for surface water flooding to provide a complete picture of flood risk at this scale. Surface water flooding is covered separately within LFRMSs (see Annex 2 of the Part C document for links to individual documents). The statistics contained in this plan are based on the Updated Flood Map for Surface Water (uFMfSW) published in December 2013. The uFMfSW assesses a range of flooding scenarios (annual probability of flooding is shown in brackets): High - 1 in 30 (3.3%) Medium - 1 in 100 (1%) Low - 1 in 1000 (0.1%) For further information about how the statistics relating to surface water are generated, please see Annex 3 of the Part C – Appendices document

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Table 9: Summary of flood risk from surface water to people, economic activity and the natural and historic environment across the South West River Basin District

Total in river Surface Water basin Medium district High risk risk Low risk Risk to people:

Number of people in river basin district: 3,445,400 25,200 41,200 188,900 Number of services: 9,380 140 160 620

Risk to economic activity:

Number of non-residential properties: 642,700 7,800 8,000 34,100 Number of airports: 6 0 0 0 Length of roads (km): 2,390 80 80 280 Length of railway (km): 940 30 30 90 Agricultural land (ha): 1,151,750 12,450 8,050 33,400

Risk to the natural and historic environment: Number of EU designated bathing waters 74 19 9 13 within 50m: Number of EPR installations within 50m: 201 81 31 41 Area of SAC within area (ha): 149,150 1,450 850 3,400 Area of SPA within area (ha): 57,950 450 400 1,950 Area of RAMSAR site within area (ha): 33,550 400 350 1,700 Area of World Heritage Site within area 24,800 250 150 550 (ha): Area of SSSI within area (ha): 154,000 2,300 1,400 5,700 Area of Parks and Gardens within area 20,050 350 200 700 (ha): Area of Scheduled Ancient Monument 11,700 50 50 200 within area (ha): Number of Listed Buildings within area: 58,340 1,170 550 1,890 Number of Licensed water abstractions 4,020 450 160 360 within the area:

Note: SAC - Special Area of Conservation SAMs – Scheduled Ancient Monuments SPA - Special Protection Area SSSI - Site of Special Scientific Interest RAMSAR - wetland site of international importance EPR installations - those registered under the Environmental Permitting Regulations Flood risk from groundwater LLFAs have powers to carry out risk management activities associated with flooding from groundwater. Flooding from groundwater can happen when the level of water within the rock or soil that makes up the land surface (known as the water table) rises. The level of the water table

48 of 64 changes with the seasons due to variations in long term rainfall and water abstraction. When the water table rises and reaches ground level, water starts to emerge on the surface and flooding can occur. Flooding from groundwater is most common in areas where the underlying bed rock is chalk, but it can also happen in locations with sand and gravel in the river valleys. In the South West river basin district, the Dorset and the Hampshire Avon catchments have a significant amount of groundwater influence arising from the underlying chalk. LLFAs work with other organisations, to manage this risk. Flood risk from canals Canals are fed by reservoirs at intervals along them to compensate for minor water losses due to leakage and evaporation and the water used as boats descend canal locks. Surface water run-off from areas near to canals also drains into them. Overflow weirs at intervals along canal banks maintain a fairly constant water level and these outfalls into watercourses passing nearby or underneath. Canals can alleviate flood risk due to the large storage volume represented by a small level increase along several kilometres of waterbody. They can also move water artificially within or between a catchment and delay the timing of flood peaks. However, canals constitute linear impoundments of significant bodies of water between locks and potential temporary closure points. Flood risk can arise if an embankment breaches where a canal is on ground above the level of nearby property, or a culvert beneath the canal collapses. The nature of this type flooding, although very rare, means that it can be serious and happens without warning. The Canal and River Trust are not a designated Risk Management Authorities within the Flood and Water Management Act, 2010 but do have responsibilities for managing their infrastructure to minimise risk to others, including during incidents. Flood risk from sewers Better outcomes and cost savings can be gained by considering flood risk from sewers and other sources together and then managing actions in an integrated manner across organisations. Across the South West priorities are aligned for the RMAs both at a strategic level through the RFCC, and as measures are investigated at a community level. This is not a mandatory requirement of FRMPs but committing to this approach allows holistic solutions to be developed. Therefore measures have been included that require this approach to be followed, and expect that future iterations of the FRMP will include measures to reduce flood risk from multiple sources for specific communities. Sewers can flood because of: 1. Hydraulic incapacity - sewers are not big enough for the flows that now enter them; 2. Other causes: a) Sewer collapse b) Sewer blockage caused by tree roots or with items that shouldn’t be flushed down toilets, or because of oil which has been poured down sinks or drains c) Loss of power supply to a pumping station, or a failure of mechanical or electrical plant Today, separate sewer systems are normally built to take away surface water and foul flows from new developments. However, there is a legacy of ‘combined sewers’ which deal with both surface water and foul drainage. These combined sewers can become overloaded during storms because development may have increased the flows entering the network - something which water companies have had very limited powers to control. New sewers are generally designed to take flows up to those with a 1 in 30 chance of happening in any year; however, some parts of the existing network lack this capacity. The water companies produce computer models to simulate how the sewerage system behaves during storms. These show where flooding from manholes may occur and where outfalls discharge

49 of 64 into rivers, affecting water quality as well as potentially increasing flood risk. These model outputs can be combined with ground level data in further analysis of possible flows and flood extent above ground. Details of past incidents and this new modelling of theoretical flood risk help form the basis of work programmes to tackle under-capacity of the sewer network. However, solutions aren’t always as simple as increasing the size of sewers. This may work in some places, but it is very expensive and can be disruptive to communities. Elsewhere, this approach could move flood flows more quickly to a wastewater treatment works or a river outfall, which could exacerbate flood risk from the watercourse beyond there. Underground storage tanks are another common solution for sewer flooding. These hold excess flows during storms, but are expensive to build. A more sustainable approach is the management of surface water at source through the use of Sustainable Drainage Systems. Choosing between these various alternatives and balancing their relative pros and cons and interactions underlines the importance of organisations working together to manage all types of flood risk. In those instances where flooding cannot be prevented altogether, flood-proofing of properties then becomes a worthwhile option. Sewer flooding above ground may still occur in such locations, but damage can be prevented or greatly reduced by measures at individual properties. These include: flood-proof doors, floating air-brick covers and non-return valves in manholes near to properties. Such measures may be installed where capital works are shown to be not cost beneficial, or where they are planned but it will be some years before completion.

Find out more

Interactive flood maps for flooding from rivers, the sea, reservoirs and surface water maps.environment-agency.gov.uk River Basin Management Plans https://www.gov.uk/government/collections/river-basin-management-plan-update Current Ecological and Chemical Status of Water Bodies maps.environment-agency.gov.uk The Environment Agency maintenance programme for rives and sea https://www.gov.uk/government/publications/river-and-coastal-maintenance-programme

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7 Sub-areas in the South West River Basin District

Introduction There are a number of sub-areas within the South West river basin district. These are shown in Figure 18 and described below. These sub-areas are described in Catchment Summaries in Part B of the FRMP. These are: Catchments (which are set out according to WFD Management Catchments) Strategic areas

Figure 18: South west river basin district and WFD Management Catchments and Strategic area Flood risk areas FRAs are identified through PFRAs as areas with potentially significant local flood risk (for example surface run-off, groundwater and ordinary watercourses). These areas require a separate FRMP however there are no FRAs within the South West river basin district.

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Management catchments Catchments are areas where engagement is focussed to enable a catchment based approach to water management. There are 9 WFD management catchments in the South West river basin district as listed below: West Cornwall and the Fal catchment North Cornwall, Seaton, Looe and Fowey catchment Tamar catchment North Devon catchment South Devon catchment East Devon catchment South and West Somerset catchment Dorset catchment Avon Hampshire catchment

Strategic areas Strategic Areas are places where it is important to consider FRM across more than one sub-area, so that interested parties can work in a co-ordinated way to set out conclusions, objectives and measures to manage flood risk. There is 1 Strategic Area in the South West river basin district: Somerset Levels and Moors strategic area

52 of 64 8 Conclusions, objectives and measures to manage risk for the South West River Basin District

This plan sets out the type of measures proposed to manage flood risk in the South West river basin district. In developing the proposed measures the RMAs contributing have: drawn conclusions from hazard and risk maps and other sources of information. This helps everyone to understand the risks or opportunities the RMAs are aiming to manage. developed FRM objectives (related to people and society, the economy and the environment) that set out the outcomes RMAs are trying to achieve. identified the likely approach to managing risk using the following categories: preventing, preparing, protecting and recovering and review. These conclusions, objectives and measures are set out for the South West river basin district. The December floods have emphasised the need to be sure we have in place and implement the very best possible plans for flood management across the whole country. In response to these floods the Government has put in place a National Flood Resilience Review and Local Flood Partnerships in Cumbria and Yorkshire. It is working to strengthen or establish partnerships in the areas most affected by the December 2015 floods to encourage a more integrated approach to managing risk across the whole catchment. The outcomes of these initiatives will strengthen partnership working and complement the flood risk measures within the Flood Risk Management Plan to further reduce flood risk and increase resilience. Conclusions Flood risk from rivers and the sea In the South West river basin district there are over 36,000 people living at high risk of flooding from rivers and the sea. Properties at risk are distributed across the district. The majority of people at risk from rivers and the sea in the South West already benefit from defences. However a significant proportion of these properties are at risk from multiple sources and the residual risks vary considerably. With climate change increasing flood risk, maintaining the level of benefit provided by existing defences, while addressing the complexity of multiple sources of flood risk forms an over arching challenge for the South West. Being a peninsula with almost 1,000km of exposed coastline means that the South West is highly vulnerable to storms and coastal flooding. These flood risks have been clearly demonstrated over the last few years. High energy waves and storms from the Atlantic can cause extensive physical damage to defences and property, including the Isles of Scilly. Somerset has large areas of floodplain with wide rivers that take a long time to respond to rainfall. In some lowland areas, such as the Somerset Levels and Moors, land is at or near sea level and is at risk of tidal flooding and river tide locking. These areas depend on raised defences to keep water out and rely on manmade drainage systems, including channels and pumping stations for drainage. Flooding in these areas can be significant and last for prolonged periods. RMAs will need to invest in upgrading coastal defences over the coming years to balance the impacts of climate change increasing sea levels with the economic benefits of regenerating coastal communities and maintaining productive agricultural land. Devon, Cornwall and West Dorset have smaller, steep catchments with fast-flowing rivers that respond rapidly. River levels can rise very quickly during intense rainfall. These are known as

53 of 64 ‘rapid response catchments’, where it’s not always possible to issue effective flood warnings. This poses a risk to life, particularly to these small or dispersed communities. Being largely rural, many people live outside major towns and cities. Unlike other river basin districts with large urban areas, there is limited potential for schemes which benefit wide areas and high numbers of people. Protecting these remote communities is challenging and improving community resilience and flood warning is a very important part of the solution. The agricultural nature has a major influence on the water environment. Learning from those who manage the land provides opportunities to work in partnership to deliver benefits to key communities. Rivers in the Avon Hampshire management catchment receive large flows from chalk aquifers. These rivers react relatively slowly to rainfall - but long periods of wet weather can result in prolonged flooding. The diversity and multiple sources of flood risk lead to community specific solutions for managing flood risk. The South West river basin district being a peninsula enables this approach. In major river systems, such as the Severn, operational catchments are part of a larger river system. Within the South West RBD every operational catchment drains directly to the sea. Therefore each catchment can have flood risk managed without impact on, or influence from, neighbouring catchments. While approaches are shared, it is typical to deliver solutions on an individual catchment basis. Partnership working at a local level with communities and the other RMAs is key to finding solutions tailored to the sources of flood risk. The detailed measures to reduce flood risk are therefore best considered at a catchment scale, and are included in this FRMP in section B. Flood risk from reservoirs There are 66,250 people, 14,880 non-residential properties, 50 km of roads, 60 km of railways, and 15,100 ha of agricultural land at risk of flooding from reservoirs in the South West River Basin District. The hazard maps show the largest area that might flood if a reservoir were to fail. The chances of a reservoir failing and causing flooding are very low; however the extent of flooding from a reservoir can be many miles from its source. This is because the local geography, such as valleys, can channel flood water long distances. The Flood Risk Maps for Reservoirs indicate large risks associated with reservoirs in North Somerset, over 16,900 people at risk within the East Devon catchment, around 3,000 people at risk from flooding from failure of a large raised reservoir within the Dorset catchment, and around 1,200 people at risk of flooding from failure of a large raised reservoir within the Hampshire Avon catchment. However, the chances of a reservoir failing and causing flooding are very low. Under the Reservoirs Act 1975 the Environment Agency regulate all large raised reservoirs. This ensures that the reservoirs are properly maintained and regulated to minimise the risk of breach or failures. Flood risk from surface water Over 25,000 people are at high risk of surface water flooding (flooding which happens when drainage systems become overloaded with high volumes of rainfall). Surface water flooding is particularly difficult to forecast and manage, due to its potentially rapid onset (flash flooding) and can be very localised. Surface water is an obvious threat in dense urban areas where large numbers of properties can be affected and where there are hazards to public safety, such as people living in basement properties, underground car parking and pedestrian and vehicular underpasses. Towns such as Plymouth, Exeter, Taunton, Bridgwater and Poole have large numbers of properties at risk from multiple sources of flooding. In these areas, RMAs need to work together to find solutions to deal with the risks of flooding from rivers, the sea, surface water and sewers. Surface water is the key risk in many rural areas where there are fewer properties, but where the ground may slope more steeply. Local Flood Risk Management Strategies produced by LLFAs provide details of locations, the nature of their risk, past history and any associated actions planned.

54 of 64 Climate change is likely to increase surface water flood risk due to higher extreme rainfall intensities, Population increase and urban creep (trend for paving of driveways and similar) will further compound this increased flood risk. Flood risk from groundwater Across most of the South West river basin district groundwater flooding is not a significant issue. The exception is in the Frome and Piddle and the West Dorset operational catchments. In these locations it is important to work with other authorities to investigate combined groundwater and fluvial flood risk and actions. As groundwater flooding is a major contributer to flood risk in these operational catchments, there is a need to improve the groundwater flood warning service. Flood risk from sewers Better outcomes and cost savings can be gained by considering flood risk from sewers and other sources together and then managing actions in an integrated manner across organisations. Across the South West priorities are aligned for the RMAs both at a strategic level through the RFCC, and as measures are investigated at a community level. This is not a mandatory requirement of FRMPs but committing to this approach allows holistic solutions to be developed. Therefore measures have been included that require this approach to be followed, and expect that future iterations of the FRMP will include measures to reduce flood risk from multiple sources for specific communities. Addressing the flood risk can have wider benefits of improving water quality and freeing up capacity within existing sewer systems. Objectives to manage risk in the South West river basin district Objectives are a common set of goals agreed by RMAs. They state the main ways in which work is directed to make a difference and reduce flood risk. The objectives in the South West are based on a combination of previous strategic goals set out in CFMPs and SMPs, consultation, and additional measures that reflect the aims of the 6 year investment programme. They cover people, the economy and the environment and have been set in discussion and consultation with other organisations and communities. Over the next 6 years the actions within the FRMP will: reduce the flood risk to people, property, critical infrastructure and services from all flood sources. enable regeneration of existing communities and businesses to strengthen economic growth. increase the resilience of the South West transport infrastructure. promote understanding of flood risk; work in partnership with communities to prepare communities and build resilience; minimise community disruption. align RMAs’ priorities enabling flood risk from multiple sources to be reduced more cost effectively. protect and work with natural river processes and restore watercourses to their natural state; work with estuarine and coastal processes to conserve and enhance natural sediment systems and physical features. promote environmental benefits and achieve WFD objectives through FRM activities; help achieve favourable condition status on designated sites; minimise disturbance to agricultural land. improve understanding of the influence of land use changes and support land use mangers to deliver beneficial practices. Measures across the South West river basin district Many measures are specific to a catchment or smaller area such as communities. However there are some important measures which apply across the entire river basin district. Below is a summary of these river basin wide measures. More detailed catchment measures are available in

55 of 64 the catchment summaries in Part B, and the full table of measures is included in Part C. Measures in FRMPs do not all have secured funding and are not guaranteed to be implemented. Money is allocated to all RMA measures in the same way and is based on current Government policy that gives the highest priority to lives and homes. Measures included are over and above RMA ‘flood risk management activities’ undertaken routinely, as explained in Section 4 – How to Manage Risk. The measures cover discrete pieces of work such as projects and campaigns.

Preventing risk: 10 measures Measures in the South West River Basin District to prevent flood risk include:  ensuring new development is appropriate, safe and does not increase flood risk elsewhere  carrying out hydraulic modelling (hydraulic modelling can tell us how deep the river water could be , if flooding occurs or the potential extent of flooding)  to improve understanding of how waves, tides and rivers affect one another  investigating ways to help communities adapt and protect critical infrastructure Preparing for risk: 5 measures Examples of measures in the South West River Basin District to prepare for risk include:  reducing flood risk through schemes and maintenance  working with communities to help them understand the risk and prepare effectively. This is particularly important in rapid response catchments, where is it not always possible to issue a flood warning in good time  informing and warning communities and business about flooding remains a priority  continuing to invest in real-time rainfall and river level data to provide a quality flood warning service Protecting from risk: 6 measures These measures reduce the likelihood of flooding affecting people and property in specific locations. Measures to protect from risk include:  improving the standard of protection at important locations at risk of river and coastal flooding (including new schemes and renovating or upgrading existing defences)  implementing individual property protection to residential properties  realigning flood banks and creating habitat Recovery and review of risk: 1 measure Measures in the South West River Basin District for recovery and review include:  continuing to carry out investigations after flooding , produce a recommendations report and help communities to recover from floods more quickly Underpinning all of the actions above is the principle that we as RMAs will work in a way which conserves the environment and enhances it where possible.

56 of 64 Flood Risk Management Plan contributing to broader benefits Links with the South West River Basin Management Plan The strategic aims, objectives and principles of the National Strategy for Flood and Coastal Erosion Risk Management are outlined in section 4. The overall aim of the strategy is ‘to ensure the risk of flooding and coastal erosion is properly managed by using the full range of options in a co-ordinated way’. The strategy promotes the development of broader benefits to communities related to flood risk management through a range of guiding principles i.e.  Community focus and partnership working  A catchment and coastal cell based approach  Sustainability  Proportionate, risk based approaches  Multiple benefits  Beneficiaries should be encouraged to invest in risk management The specific guiding principles for ‘Sustainability’ and ‘Multiple benefits’ more specifically cover how:  RMAs should manage risks in ways that take account of all impacts  FRM solutions should be adaptable to climate change  FRM solutions should enhance the environment  The ability of communities to shape risk management actions to take account of local priorities  FCRM can bring significant economic, environmental and social benefits (‘It can enhance and protect the built, rural and natural environments, cultural heritage and biodiversity..’)  FCRM should avoid damaging the environment, including the historic environment  FCRM should wherever possible work with natural processes  FCRM should always seek to provide environmental benefit as required by the Habitats, Birds and Water Framework Directives In taking forward the National Strategy for Flood and Coastal Erosion Risk Management, FRMPs have set out a range of social, economic and environmental objectives that include wider benefits alongside the delivery of FRM outcomes – see the following sections. These have been informed by considering how the FRMP relates to other plans and wider policies and objectives. In particular, how the FRMP links to the River Basin Management Plans to contribute to a more integrated approach to water management planning, and also to the priorities of Natura 2000 sites that are the subject of recent Site Improvement Plans. The following sections provide more details of this.

Links with the South West River Basin Management Plan The main aims of the EU WFD are to return rivers and the water environment to a state, as free from human influence as possible. Aspects of this include reversing some of the ways in which water bodies have been physically modified in the past, improving water quality and bio-diversity and improving the quality of bathing waters. To achieve this, work by the Water Company, farmers and business is regulated by the Environment Agency and complemented by a programme of works by the Environment Agency and others to remove some structures from rivers. The South West FRMP promotes a range of benefits that will contribute to the RBMP through re- naturalisation, water quality improvements, bathing water improvements and natural flood management. The following table summarises the WFD outcomes expected to be delivered through flood risk management programmes by the end of the cycle 2 of the RBMP by 2021:

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Table 10 RBMP outcomes related to flood risk management programmes by 2021 (from RBMP2 project list).

Type of FCERM programme actions No of Hectares of Hectares of Kilometres of actions water intertidal rivers dependent habitat protected habitat created to under EU created or help meet the Habitats/Bird improved to objectives of s Directive help meet the WFD for improved to objectives of protected help meet the WFD areas objectives of WFD

FCERM actions in Site Improvement 6 185 5 181 Plans of water dependent sites designated under the EU Habitats and Birds Directives that will deliver a WFD outcome.

FCERM actions addressing remedies 1 120 0 0 and threats to water dependent sites designated under the Wildlife and Countryside Act 1981 (SSSIs) that will deliver a WFD outcome.

FCERM actions addressing 15 264 110 1 requirements for consent of flood works such as planning, EIA, HRA etc.

2 110 50 0 FCERM actions that deliver WFD outcomes from works that contribute to the England Biodiversity Strategy.

Total 24 679 165 182

South West opportunities for linked work Guided by the Water Framework Directive the Environment Agency is looking at where previous ‘physical modifications’ to waterbodies can be reversed, such as opening up culverts and removing weirs, river channel walls and flood defences that are no longer required. Across the river basin district, there are several projects that have been successful in delivering both flood risk benefits and improvements to the wider environment. The measures can also help us deliver broader benefits, in particular to biodiversity, water and ecological quality. In parallel to flood risk management planning a number of partners, including the Environment Agency, are working together to improve the quality of the water environment through River Basin Management Planning. The Environment Agency aims to co-ordinate effectively between the FRMP and River Basin Management Plan so that all organisations can do more for the environment. The following examples demonstrate how wider environmental benefits can be achieved through effective flood risk management.

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Tamar Habitat Creation project To deliver a more efficient and effective FCRM maintenance programme the Environment Agency are investigating options to reinstate inter-tidal areas in the upper Tamar estuary. These sites were historically reclaimed, but the current benefits and drivers for maintaining the existing defences need to be reviewed. The area is of exceptional value for wildlife, natural beauty and its historic environment - recognised by designations including SAC, SPA, SSSI, CWS, AONB and World Heritage site. The project aims to prioritise those sites that restore inter-tidal floodplain as a functional habitat corridor - providing multiple benefits to protect and improve habitats, species, water quality and recreation. In doing so the project seeks to ensure climate change resilience to the designated sites. In doing so it will deliver an action from the Natura 2000 Site Improvement Plan, listed in Table 13. Agreeing a new long term management plan for the defences would enable the Environment Agency to focus investment into those communities at most risk. And, in doing so, it could deliver up to 70 hectares of inter-tidal habitat, a significant contribution to FCRMs target for habitat creation in the England Biodiversity Strategy – the compensatory habitat requirement for the Cornwall and Isles of Scilly Shoreline Management Plan.

Exe Estuary The Exe Estuary is designated as SSSI and Special Protection Area. A FCRM Strategy, completed in 2012, identified the requirement for 14ha of intertidal habitat (mudflat and saltmarsh) to compensate for coastal squeeze losses due to rising sea levels against hard defences. The Exe Estuary Habitat Delivery Project aims to deliver this habitat by 2020 and is currently investigating several locations where this might be done. It is also intended to deliver Water Framework Directive mitigation measures and contribute to Biodiversity 2020 objectives, using external funding and working in close partnership with landowners. This contributes to the actions in the Natura 2000 Site Improvement Plan, listed in Table 13.

Helston Flood Alleviation Scheme The flows through Helston before entering Loe Pool. Loe Pool is a freshwater SSSI that replaced the estuary when Loe Bar formed across the estuary mouth, preventing the sea encroaching. The Cober discharges via a tunnel under Loe Bar and when flows exceed the tunnel capacity water levels rise in the pool putting Heston at risk of flooding, requiring emergency pumping. The Environment Agency is investigating options to reduce the risk that include an emergency flood relief tunnel under Loe Bar. The proposals have been adapted to include a modified outlet structure that allows greater control of water level in Loe Pool. This would provide more flood storage in Loe Pool reducing the risk. It also allows an updated Water Level Management Plan to be developed with Natural England and the land owners, the National Trust. Integrating the environmental benefits into the flood alleviation scheme improvements has the potential to expose 10 hectares of marginal habitat around Loe Pool, as well as reducing the impact of emergency over pumping activities. By reviewing against the relevant issues identified in the RBMP further potential benefits that could be achieved include flushing of nutrients from the pool, improving fish passage and using the marginal areas to buffer pollutants, improving the overall condition of the SSSI.

Other Plans and Partnerships Table 11 sets out the key themes from a review of the main other plans and strategies that the South West FRMP would be expected to influence. The purpose of the review is to take account of the objectives of these key documents in the assessment with a view to aligning and ensuring

59 of 64 compliance of the plan with other policies and legislation. The plan review can also help to identify where other planning processes and organisations may be able to work with the FRM planning process. It is taken from the Environmental Report for the South West FRMP.

Table 11: Key influences from the plans review (from SEA Report) Category of Common themes relevant to the FRMP Key plans plan /strategy

Water and  Protection, improvement, sustainable  The national flood and coastal flood risk management and use of the water erosion risk management strategy management environment in terms of quantity and for England quality – for the benefit of the human and  Water for people and the natural environment. environment: Water resources  Flood risk management measures could strategy for England and Wales place pressure on water bodies and any  Water white paper: Water for life measure to be implemented would have to  Catchment Flood Management be Water Framework Directive compliant. Plans  An update to the South West river basin  Shoreline Management Plans management plan is being prepared in  Surface Water Management Plans parallel to the FRMP. The strategic  South West River Basin environmental assessment for the FRMP Management Plan will include a check on the alignment with the RBMP. Biodiversity  Protection and enhancement of important  Natural environment white paper: habitats and species, both from a statutory The natural choice: Securing the basis (International and National value of nature conservation designations and protected  Biodiversity 2020: A strategy for species) and through policy. England’s wildlife and ecosystem  Promotion of coherent ecological networks. services  Promotion of working with natural  Coastal squeeze: Implications for processes and sustainable flood management. The development/management. requirements of The European  Tackling the issue of non native invasive Birds and Habitats Directives. species Defra policy guidance.  Flood risk management measures could  The invasive and non-native place pressure on habitats and species, species framework strategy for and work against natural processes. Great Britain Landscape  Protection of existing sensitive landscapes  All landscapes matter (such as National Parks and AONBs)  Area of Outstanding Natural  Promotion of actions to improve water Beauty (AONB) Management quality and water quantity, protect and Plans for the 12 AONBs in the enhance habitats, and restore the wider South West landscape character.  National Park Management Plans  Flood risk management measures could (Dartmoor and Exmoor) place pressure on sensitive landscapes, and lead to changes in water quality, quantity and change in habitat type.  Flood risk management measure could protect sensitive or valued landscapes and townscapes. Climate  Long term aims for reduction of carbon  Managing the environment in a dioxide emissions including binding targets, changing climate and wide-reaching policies across all  The national flood and coastal sectors to deliver reductions. erosion risk management strategy  Requirements to adapt to climate change for England and associated threats, the need for increased resilience to climate change.  Likely increase in flooding and coastal erosion due to climate change.

60 of 64 Category of Common themes relevant to the FRMP Key plans plan /strategy

Marine and  Sustainable economic growth within the  UK Marine Policy Statement Coastal marine environment that balances benefits to society with the needs of local communities and protecting nature conservation.  Coastal flood risk management measures can enable growth  Coastal flood risk management measures would need to be in alignment with planning policies. Cultural  Sustainable development in relation to  The Government’s Statement on heritage historic assets through conservation and the Historic Environment for enhancement. England 2010  The historic environment could be affected  Heritage at Risk Register 2012: by flood risk management measures e.g. South West through the construction of new flood risk  LLFA Core Strategies management schemes, decommissioning of assets and changes in maintenance regimes etc and as such any such measures would need to be appropriately assessed. Resource  Promotion of sustainable waste and  County Council and Unitary management resource management and the protection Authority Waste and Mineral Plans and enhancement of the environment. Planning  Promotion of sustainable growth  National Planning Policy  Flood risk management measures can Framework enable growth  LLFA Core Strategies  Flood risk management measures would need to be in alignment with planning policies.  Development activities could place pressure on the water bodies and would need to be appropriately assessed and managed to ensure no detrimental effect to the water environment. Forestry  Protection, management and enhancement  Government Forestry and of woods and forests to provide economic, Woodlands Policy social and environmental benefits e.g. managing flood risk in a sustainable way, and helping to reduce water pollution

Links to South West River Basin District Designated Site Plans The FRMP aims to contribute to the specific plans of designated conservation sites and these are set out as proposed actions in specific plans and related to FCERM and the relevant RMAs. These include actions in the South West river basin district Site Improvement Plans for the European designated sites outlined in Table 13. Table 13: River basin district Natura 2000 sites that have Site Improvement Plans South West river basin district Natura 2000 sites with Site Improvement Plans

Avon River and Valley

Blackstone Point

Bracket's Coppice

Braunton Burrows

61 of 64 South West river basin district Natura 2000 sites with Site Improvement Plans

Breney Common and Goss and Tregoss Moors

Carrine Common

Chesil Beach and The Fleet

Crookhill Brick Pit

Crowdy Marsh

Culm Grasslands

Dartmoor

Dorset Heaths

East Devon Heaths

Exe Dawlish

Exmoor and Quantock Oakwoods

Exmoor Heaths

Fal and Helford

Godrevy Head to St Agnes

Holme Moor and Clean Moor

Holnest

Isles of Scilly Complex

Lundy

Newlyn Downs

Penhale Dunes

Plymouth Sound and Tamar Estuary

Polruan to Polperro

Poole Harbour

Portland-Studland and St Albans-Durlston

Quants

River Axe

River Camel

Rooksmoor

Sidmouth to West Bay

Somerset Levels and Moors

South Dartmoor Woods

South Devon Shore Dock

South Hams

The Lizard

Tintagel Marsland Clovelly Coast

West Dorset Alder Woods

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Find out more

National Planning policy Framework

https://www.gov.uk/government/publications/national-planning-policy-framework--2

River Basin Management Plans https://www.gov.uk/government/collections/river-basin-management-plan-update

63 of 64 9 Implementing the plan

Flood risk management plans (FRMPs) are produced every 6 years and describe the sources, risks and measures to manage flooding within a river basin and catchment. Implementing the measures in the FRMP will be carried out by risk management authorities (RMAs) working with partners and communities. RMAs are invited to submit details of proposed flood and coastal erosion risk management work to the Environment Agency who administer funds on behalf of the Department for Environment, Food and Rural Affairs (Defra). These proposals are combined with Environment Agency proposed schemes and local regional flood and coastal committee (RFCC) funded projects to form a programme of work. Funding is allocated in line with government policy and priorities. Not all of the measures identified will be implemented over the 6 year lifetime of this plan. Some measures require further work such as technical feasibility assessment, consultation with land and property owners, as well as assessing impacts on other river functions. Some measures may be disproportionately costly or unable to raise the necessary partnership funding to enable them to go ahead at this time. All of these issues are considered by the RFCCs, which are set up by Defra to scrutinise and approve the flood risk plans proposed by the Environment Agency (EA) and lead local flood authorities (LLFAs). There may be additional measures implemented alongside those in this plan on a national and local basis as a result of the National Flood Resilience Review and the work by the Local Flood Partnerships in Cumbria and Yorkshire. The catchment based approach The catchment based approach encourages local engagement and participation in decision- making. As this plan is implemented and monitored, further engagement will be sought with relevant catchment partnerships to deliver flood risk management outcomes and broader benefits. Monitoring delivery of measures During the planning and implementation cycle RMAs will monitor progress in delivering the measures set out in the FRMP. Progress will be reported annually to the relevant Regional Flood and Coastal Committees and the FRMP will be reviewed every 6 years, as required by the Flood Risk Regulations.

Find out more Catchment based approach https://www.gov.uk/government/publications/catchment-based-approach- improving-the-quality-of-our-water-environment

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