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Integrating Flood Risk Management and Economic Development in the North West of England, UK

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Integrating Flood Risk Management and Economic Development in the North West of England, UK PROTECTING COMMUNITIES, PROTECTING LIVELIHOODS: INTEGRATING FLOOD RISK MANAGEMENT AND ECONOMIC DEVELOPMENT IN THE NORTH WEST OF ENGLAND, UK A thesis submitted to The University of Manchester for the degree of Doctor of Philosophy in the Faculty of Humanities 2018 Evelyn Alexis Prosser School of Environment, Education and Development Department of Planning and Environmental Management DECLARATION This dissertation is the result of my own work and includes nothing, which is the outcome of work done in collaboration except where specifically indicated in the text. No portion of the work referred to in the thesis has been submitted in support of an application for another degree or qualification of this or any other university or other institute of learning. COPYRIGHT STATEMENT I. The author of this thesis (including any appendices and/or schedules to this thesis) owns certain copyright or related rights in it (the “Copyright”) and s/he has given The University of Manchester certain rights to use such Copyright, including for administrative purposes. II. Copies of this thesis, either in full or in extracts and whether in hard or electronic copy, may be made only in accordance with the Copyright, Designs and Patents Act 1988 (as amended) and regulations issued under it or, where appropriate, in accordance with licensing agreements which the University has from time to time. This page must form part of any such copies made. III. The ownership of certain Copyright, patents, designs, trade marks and other intellectual property (the “Intellectual Property”) and any reproductions of copyright works in the thesis, for example graphs and tables (“Reproductions”), which may be described in this thesis, may not be owned by the author and may be owned by third parties. Such Intellectual Property and Reproductions cannot and must not be made available for use without the prior written permission of the owner(s) of the relevant Intellectual Property and/or Reproductions. IV. Further information on the conditions under which disclosure, publication and commercialisation of this thesis, the Copyright and any Intellectual Property University IP Policy (see http://documents.manchester.ac.uk/display.aspx?DocID=24420), in any relevant Thesis restriction declarations deposited in the University Library, The University Library’s regulations (see http://www.library.manchester.ac.uk/about/regulations/) and in The University’s policy on Presentation of Theses Signed: Evelyn Prosser Date: 07th November 2018 ABSTRACT Flooding is a natural phenomenon which has been defined simply by Arnell (2002, p. 112) as “an excess of water in a place that is normally dry”. This excess of water beyond its usual confinement causes problematic consequences to the ordinary functioning activity of society. Although water is an essential resource which sustains life, enables trade for goods and services, is functional, workable and an aesthetically pleasing asset, its presence in excess and subsequent management can threaten economic development. The flood event itself and indeed the policy approaches taken to manage the probability and consequences of flood events can come into conflict with economic development policy. Flood risk management policy has developed a reputation for creating a barrier to economic development, rather than being a tool to facilitator. Despite policy integration rising as an academic concept and a practical policy aspiration; there has been limited research which has examined the interface of flood risk management and economic development in correlation to changes in governance. This thesis explores the challenges that arise at the interface between flood risk management policy and economic development policy using a case study of the Mersey Basin with a specific focus on the city region of Greater Manchester. The research builds an understanding of this interface and the perceptions of actors across multiple scales of governance. The main challenges for policy integration include conflicts which arise between the political and economic interests of actors; the ability of actors to rebalance from the dominance of economic development policy and to articulate the drivers for policy integration; the capability and power of actors to be able to influence strategies for the long term and; the limited availability of people and financial resource to facilitate policy integration. Despite challenges being far reaching across scales of governance, the opportunities for policy integration were seen to exist especially in relation to policy integration being a facilitator to the release of funding and having a role in engaging and fulfilling goals within a wider policy discourse. CONTENTS 1. INTRODUCTION ................................................................................................... 1 1.1 PROBLEM DEFINITION ............................................................................................. 2 1.2 AIM AND OBJECTIVES ............................................................................................. 5 1.3 FLOOD EVENTS AS AN INTERNATIONAL PROBLEM .................................................... 6 1.4 ACOMMON POOL RISK ........................................................................................... 7 1.4.1 …But what is flood risk? ................................................................................ 8 1.5 DRIVERS OF FLOOD RISK....................................................................................... 11 1.6 FLOOD MANAGEMENT RATHER THAN CONTROL..................................................... 13 2. SPACES OF GOVERNANCE AND THE IMPLICATIONS FOR POLICY INTEGRATION ............................................................................................................ 16 2.1 INTRODUCTION ..................................................................................................... 17 2.2 GOVERNANCE AND ECONOMIC DEVELOPMENT ...................................................... 18 2.2.1 Spaces of Governance .................................................................................. 20 2.2.2 Integration of Policy ..................................................................................... 22 2.3 CONTINUAL REWORKING OF GOVERNANCE – WAGERS AND SCALE? ...................... 34 2.2.3 Challenges Associated with Hydrological Infrastructure .............................. 37 2.2.4 The Urban Concentration, a Focus for Experiment ...................................... 41 2.4 THE PURSUIT OF ECONOMIC DEVELOPMENT - IMPLICATIONS FOR FLOOD RISK MANAGEMENT IN THE UK ............................................................................................ 47 2.2.5 Wisdom and Foresight: Early Town Planning .............................................. 47 2.2.6 Significant Economic Stress and Land Drainage .......................................... 49 2.2.7 The First Wave Environmentalism ................................................................ 50 2.2.8 Neoliberalism and Flood Defence ................................................................ 51 2.2.9 Is the frequency of Flood Events Increasing? ............................................... 51 2.2.10 A Civil Emergency .................................................................................... 54 2.2.11 Fresh Spatial Strategies ............................................................................ 56 2.2.12 Presumption in Favour of Sustainable Development ................................. 58 2.2.13 Investing in Britain’s Future ..................................................................... 60 2.2.14 Conclusion ............................................................................................... 60 3. RESEARCH DESIGN AND METHODOLOGY ................................................. 64 3.1 INTRODUCTION ..................................................................................................... 65 3.2 COMPONENT ONE: DEFINE AND DESIGN................................................................. 67 3.2.1 Theoretical Paradigm ................................................................................... 68 3.2.2 Ontology and Epistemology .......................................................................... 69 3.2.3 The Researcher as a Multi-Cultural Subject.................................................. 70 3.2.4 Limitations of Policy Specific Research ........................................................ 75 3.3 COMPONENT TWO: DESCRIPTION AND CHARACTERISATION.................................... 77 3.3.1 International Scoping Exercise ..................................................................... 77 3.3.2 The Case Study Research Strategy ................................................................ 83 3.3.3 Scale of Analysis, the River Basin ................................................................. 85 3.3.4 The City Region of Greater Manchester ........................................................ 86 3.3.5 Localised Embedded Case Studies ................................................................ 87 3.4 COMPONENT THREE: DATA COLLECTION, INTEGRATION AND REFLECTION ............. 90 3.4.1 Methods of Data Collection and Analysis ..................................................... 91 3.4.2 The Exercise of Analysis by Coding .............................................................. 99 3.5 DRAWING TOGETHER AND ANALYSIS .................................................................. 104 4. INTERNATIONAL APPROACHES TO POLICY
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