Old High Level Targets
Important note: these targets were replaced by a new agreed set from 1 April 2005. Please note that these High Level Targets were agreed in 1999 by the then Ministry of Agriculture, Fisheries and Food (MAFF). Following changes to the machinery of Government in 2001, the Department for Environment, Food and Rural Affairs (Defra) took over MAFF's responsibility for flood and coastal erosion risk management. The printed version of this information still refers to MAFF throughout and most references to MAFF below have had to be retained for strict historical accuracy. For practical purposes, these references can be read as meaning Defra. Likewise, references to the Department of the Environment, Transport and the Regions (DETR) should be read as referring to the Office of the Deputy Prime Minister (ODPM). Please bear in mind that this information was published in 2000 and significant changes to flood risk management are currently being implemented as a result of the Government's Flood and Coastal Defence Funding Review. |
Following recommendations by the Agriculture Select Committee (replaced by the Environment, Food and Rural Affairs Committee) in its Sixth Report of the 1997-98 Session (Flood and Coastal Defence), MAFF published a set of High Level Targets for the flood and coastal defence operating authorities. The targets are intended to facilitate a more certain delivery of the Government's national policy aim and strategy for flood and coastal defence in England.
The targets were published in November 1999 and took effect from 1 April 2000. They generally relate to the provision and collection of information, the preparation of policy statements and ensuring arrangements are in place to gather details about the status of flood defences and allow for their inspection. The aim is to encourage, share and build on best practice and achieve a greater consistency in approach by all authorities in their flood defence activities. Published alongside the targets was an elaboration of the Environment Agency’s flood defence supervisory duty.
Target 1 requires the operating authorities to produce a publicly available policy statement setting out their approach to flood and coastal defence. The Department has produced a template (at the end of this page) to assist authorities in producing this statement.
Please note the Department has since agreed three Service Delivery Agreement (SDA) targets with HM Treasury as part of Spending Review 2002.
High Level Target Progress Reports
| Target 1 | Policy Statements | April
2002 (44kb)
|
|
| Target 2 | Provision of flood warnings | April
2005
(766kb) February 2004 (1,770kb)May 2002 (284kb)February 2002 (118kb)
|
|
| Target 3 | Emergency exercises and emergency plans | April
2005(975kb) January 2004 (287kb)February 2002 (242kb)
|
|
| Target 5 | Flood defence inspections and assessment of flood risk | April
2005(266kb) June 2004 (180kb)
|
|
| Target 8 | Shoreline Management Plans | December 2002(20kb) | |
| Target 9 | Biodiversity | April
2006
(89kb) April 2005 (167kb)November 2001 (48kb)
|
|
| Target 10 | Water Level Management Plans | July
2002(90kb)
|
|
| Target 11 | Coastal Habitat Management Plans (CHaMPs) | April
2004(93kb)
|
|
| Target 12 | Development and Flood Risk | January
2005 April 2004 (1,098kb)July 2002 (319kb)
(revised report) |
|
| Target 14 | IDB Administration and Membership | 2004
(1,200kb) 2003
(800 kb) |
The information below was released in a published document in November 1999.
Announcement of High Level Targets
- Foreword by Elliot Morley MP
- Part 1: Introduction
- Part 2: MAFF aims and objectives
- Part 3: Approach adopted
- Part 4: Targets
- Target 1 - Policy statements
- Target 2 - Provision of flood warnings
- Target 3 - Emergency exercises and emergency plans
- Target 4 - National Flood and Coastal Defence Database
- Target 5 - Flood defence inspections and assessment of flood risk
- Target 6 - Coast protection inspections and assessment of coastal erosion risk
- Target 7 - Expenditure programmes
- Target 8 - Shoreline Management Plans (SMPs)
- Target 9 - Biodiversity
- Target 10 - Water Level Management Plans (WLMPs)
- Target 11 - Coastal Habitat Management Plans (CHaMPs)
- Target 12 - Development in areas at risk of flooding
- Target 13 - Development in areas at risk of coastal erosion
- Target 14 - IDB Administration and Membership
- Environment Agency's elaboration of its supervisory duty
Foreword by Elliot Morley MP
I am acutely aware of the importance of flood and coastal defence for the country. We are an island nation whose coasts and river systems are regularly challenged by storms and other severe weather. Many of us rely on flood and coastal defences for protection of our lives and the possessions we hold dear and if defences are in danger of being breached, we want to be warned so that we can take the necessary action. Flood and coastal defences also play an important role in maintaining our national way of life. They protect important infrastructure and other economic assets. Many wildlife habitats of international importance rely on such defences.
When the Agriculture Select Committee produced its report on flood and coastal defence in August 1998, they were generally supportive of the Government’s policies and approach to flood and coastal defence. They did, however, express concern that mechanisms were not in place to ensure that the policy and approach were delivered by the operating authorities "on the ground". As a response to this concern, we are putting into place the targets set out in this paper. The targets are mainly - but not exclusively - directed at the flood and coastal defence operating authorities and cover many of the most important issues in the delivery of the service. They complement work that the Environment Agency has undertaken in response to my call for a seamless and integrated service of flood forecasting, warning and response.
I have been impressed at the degree of support that there has been for the concept of targets, both within the operating authorities and among other bodies with an interest in flood and coastal defence. The targets have been drawn up following extensive consultation, and they have been agreed with representatives of the operating authorities. I particularly welcome the very positive spirit in which the operating authorities have approached the establishment of targets, the great co-operation they have given the Ministry in their development, and their evident commitment to implement them.
The document also contains the Environment Agency’s elaboration of its flood defence supervisory duty. This has been produced in parallel to the targets, and is designed to complement them. It too has been agreed with representatives of the other operating authorities.
We will be monitoring achievement of targets, and keeping them under review. There are significant reporting requirements and I shall be ensuring that Parliament is kept informed of developments. Meanwhile, I commend them to all those involved in flood and coastal defence.
[signed]
Elliot Morley MP
Minister for Fisheries and the Countryside
Ministry of Agriculture, Fisheries and Food
November 1999
Part 1: Introduction
1.1 This paper contains high level targets for flood and coastal defence which will operate from 1 April 2000.
1.2 In August 1998 the Agriculture Select Committee published its report on flood and coastal defence. The Government response, published in October 1998, inter alia committed MAFF to prepare a series of high level targets which will be necessary in order to deliver its flood and coastal defence aims and objectives. A set of interim targets were published in May 1999 along with a first elaboration of the Environment Agency’s general flood defence supervisory duty.
1.3 In publishing interim targets, MAFF undertook to produce more comprehensive targets to operate from 1 April 2000. The targets in this document fulfil that commitment and have been produced following wide consultation with relevant organisations.
1.4 The targets in this document supersede the interim targets published in May 1999. Where relevant they reflect the elaboration of the Environment Agency’s supervisory duty and work flowing from the Agency’s Action Plan for implementing the Independent Report on the Easter 1998 Floods (the "Bye Report"). As the principal operating authority, and with its general flood defence supervisory responsibilities, the Environment Agency will have a key role in achievement of these targets, through advice to operating authorities, monitoring and reporting.
1.5 In considering the targets, the following definitions might be helpful:
- flood defences are defences for the alleviation of flooding whether from rivers or the sea;
- coastal defence is an overarching term that includes both defence from flooding from the sea, and coast protection;
- coast protection are measures to protect the land against erosion and encroachment by the sea;
- critical ordinary watercourses are watercourses that are not classified as "main river" but which the Environment Agency and other operating authorities agree are critical because they have the potential to put at risk from flooding large numbers of people and property.
1.6 The targets include requirements to report to MAFF and others on a number of matters. The intention is that reports will be published, so providing greater openness and accountability in the provision of the flood and coastal defence service.
Part 2: MAFF aims and objectives
2.1 The adoption of a series of targets provides a framework for ensuring and demonstrating delivery of the Government’s stated policy aims and objectives for flood and coastal defence, as set out in the 1993 Strategy for Flood and Coastal Defence in England and Wales. The stated policy aim of MAFF and the National Assembly for Wales (NAW) is:
To reduce the risk to people and the developed and natural environment from flooding and coastal erosion by encouraging the provision of technically, environmentally and economically sound and sustainable defence measures.
2.2 The key objectives to achieve the policy are:
- To encourage the provision of adequate and cost effective flood warning systems.
- To encourage the provision of adequate, economically, technically and environmentally sound and sustainable flood and coastal defence measures.
- To discourage inappropriate development in areas at risk from flooding and coastal erosion.
2.3 MAFF’s published policy aim and targets are carried forward to its Public Service Agreement (PSA), the target for which is:
By March 2000, publish targets for flood and coastal defence operating authorities which will ensure the effective delivery of sustainable flood defence and coast protection policies and prevent loss of life through flooding (including by timely and effective warning systems).
2.4 The linked Output and Performance Measures are:
- The number of lives lost through flooding.
- The aggregate benefit:cost ratio for grant aided flood and coastal defence schemes [the aim is to achieve 5:1 or better].
Part 3: Approach adopted
3.1 The targets in this document are intended to facilitate a more certain delivery of national policies and objectives for flood and coastal defence. In particular, operating authorities are being asked to provide policy statements setting out how they will contribute to the delivery of these aims and objectives. The targets also put in place arrangements for a more systematic gathering of information about the nature and status of defences thus facilitating assessment of the integrity of defences and the taking of any necessary remedial action. Reports will be published.
3.2 The aim is to build on best practice, assisting operating authorities to undertake activities that can reasonably be required of them in safeguarding human life as well as economic and environmental assets. Some targets flow from agreed actions following the "Bye Report" for which additional specific funding has already been made available.
3.3 The targets in this paper apply primarily to flood and coastal defence operating authorities. However, some targets apply to local authorities in their capacity as local planning authorities and also as bodies responsible for emergency planning. There are also targets applicable to English Nature. The targets have been prepared in consultation with the Environment Agency, the Local Government Association and the Association of Drainage Authorities, as well as with the Home Office, Department of the Environment, Transport and the Regions, English Nature and other relevant statutory and non-statutory organisations.
3.4 These targets are dynamic; they will be kept under review and updated as necessary. In particular, MAFF is undertaking further research into the economic impacts of flooding and coastal erosion, which might lead to a revision of the Ministry targets and, in turn, revised targets for operating authorities. MAFF aims and objectives will also need to be reviewed in the forthcoming Government Spending Review, leading to a review of targets.
3.5 These targets need to be read alongside the legislation applicable to flood and coastal defence operating authorities, all other statutory requirements including those relating to the environment, and guidance issued by MAFF and other Government Departments.
Part 4: Targets
4.1 The primary aim of targets is to ensure a more certain delivery of MAFF’s stated policy aims and objectives for flood and coastal defence and this is directly reflected in the following target. The statements will relate to the area covered by the operating authority and are expected to include general information about the nature of flood and erosion risks in the area including what is defended; where appropriate, the plans for mitigation of that risk, including management and inspection of existing works, and any new works. Statements should also cover issues such as how best practice will be adopted and shared; policies on developer contributions; and commitments to comply with sustainability policies and environmental obligations and targets.
4.2 Local authority statements will be expected additionally to cover their approach to flood and coastal defence aspects of emergency planning and development control, as well as flood warning and advice to local planning authorities.
4.3 The Environment Agency statement will be expected to cover the arrangements for ensuring that local authorities are informed about potential flood risks, so that these can be reflected in their emergency plans and in advice on development control.
4.4 MAFF has produced a template for completing these statements.
| Target 1 - Policy statements | By when | By whom |
|---|---|---|
| A. Produce, and copy to Environment Agency, MAFF and DETR, a publicly available policy statement setting out plans for delivering the Government’s policy aims and objectives. | 31 March 2001 | All operating authorities |
| B. Report to MAFF and DETR on: (i) completion of these policy statements; and (ii) information collated from them. |
30 September 2001 and subsequently by agreement with MAFF | Environment Agency |
Flood warning and emergency response
4.5 The first MAFF objective for flood and coastal defence is:
to encourage the provision of adequate and cost effective flood warning systems.
4.6 An interim target was for the Environment Agency to produce, by March 2000, "an agreed target for provision of flood warning in terms of population and areas covered". This target is incorporated below. It will be for the Agency, working through flood defence committees, to develop and implement the programme of works to achieve this target. The provision of flood warning systems remains MAFF’s highest priority for the provision of grant.
| Target 2 - Provision of flood warnings | By when | By whom | |||||||||||||||
|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|
|
|||||||||||||||||
4.7 The following targets relate to emergency exercises to test emergency plans, rolling forward and expanding the relevant interim targets. The targets are designed to be complementary to the "standards approach" that Home Office is promulgating with local authority emergency planning departments.
| Target 3 - Emergency exercises and emergency plans | By when | By whom |
|---|---|---|
| A. Arrange, in conjunction with local authorities, emergency services and other partners, a programme of flood emergency exercises at national, regional and local levels. A national exercise, and an exercise in each Agency region and local area should be conducted by 31 December 2001 (after the introduction of new flood warning codes) and at not more than three-yearly intervals thereafter. | Annually from 1 January 2001 | Environment Agency |
B. Report to MAFF on:
|
Annually from 1 January 2001 | Environment Agency |
Provision of flood and coastal defence measures
4.8 The second MAFF objective is:
To encourage the provision of adequate, economically, technically and environmentally sound and sustainable flood and coastal defence measures.
4.9 It is not appropriate to set specific targets for the provision of flood and coastal defences. Operating authorities work within a legislative framework that is essentially permissive. MAFF has already provided guidance to operating authorities on the factors which influence investment decisions though final responsibility rests with them, taking account of such guidance and other factors including the availability of resources.
4.10 Consideration will, however, be given later to the establishment of appropriate targets in the light of the results of research, currently being undertaken, on the economic benefits of flood and coastal defence.
4.11 The following targets 4-7 are linked. They build on the creation and maintenance of a new National Flood and Coastal Defence Database managed by the Environment Agency from September 2000 (the subject of interim targets). They roll forward and develop various interim targets, particularly for ensuring that information on the database is updated, that defences on the database are inspected, that flooding or erosion risks are assessed, and that appropriate action is taken to ensure the defects are remedied, and that work programmes are provided. In setting these targets account has been taken of the further elaboration of the Environment Agency’s general flood defence supervisory role, and the fact that the Agency, while maintaining information about coast protection works on its database, does not have statutory responsibility for coast protection.
4.12 The database is currently being developed by the Agency and details of the structure and the information that it will contain are still under consideration. Particular consideration will be given to structuring the data so that eventually all assets which protect a particular risk area can be readily identified and any changes to the risk profile of each area readily evaluated. The database should also include information on important assets (eg environmental or economic) that are within risk areas. Consideration should also be given to including the facility for monitoring losses or gains in habitats covered by Biodiversity Action Plans as a result of flood and coastal defence operations (Target 9B).
| Target 4 - National Flood and Coastal Defence Database | By when | By whom |
|---|---|---|
| A. Develop a National Flood and Coastal Defence Database and maintain it thereafter. The database should include information from other operating authorities (Target 4B) and on assets which provide a flood and coastal defence service that are in private or other ownership. | 1 September 2000 | Environment Agency (in partnership with other operating authorities) |
| B. Provide the Environment Agency with information on flood and coastal defence assets that are the responsibility of the operating authority. Such information should be in an agreed format and provided in the first instance by September 2000, and updated within one month of completion of any significant change, including creation, alteration, destruction or abandonment. | 1 September 2000 and ongoing thereafter | All operating authorities |
| C. Reach agreement with the other operating authorities on the means by which private defences will be identified and incorporated in the database. | 1 April 2000 | Environment Agency |
| D. Provide timely information from the database to other operating authorities to fulfil their obligations. The detail and frequency of such reports to be agreed, as necessary. | From 1 January 2001 | Environment Agency |
| Target 5 - Flood defence inspections and assessment of flood risk | By when | By whom |
|---|---|---|
A. Ensure that a programme is in place for the
regular1 inspection (whether by the Agency or the relevant operating
authority following an agreed approach) of:
|
Annually from 1 April 2000 | Environment Agency |
| B. Report to MAFF on its assessment of the risk of
flooding and the action taken or proposed (eg to remedy the deficiency, adapt
to a lower standard of defence, abandon the defence) indicating also if it is
proposed to use enforcement powers or adopt a defence operated by others.
Reports should also set out a national picture of the status of defences and
action taken to remedy deficiencies highlighted in previous years’
reports. In producing reports, the Agency should draw on information from
inter alia inspections, policy statements (Target 1) and the database
(Target 4). (This to reflect the necessary phasing adopting a risk-based assessment. By April 2002 agree with other operating authorities a programme to complete comprehensive reporting.) |
Annually from 1 April 2001 | Environment Agency |
| Target 6 - Coast protection inspections and assessment of coastal erosion risk | By when | By whom |
|---|---|---|
| A. Ensure that a programme is in place for the
regular1 inspection of all coast protection assets included in the
database, including those which are in private or other ownership. 1The frequency of inspection should be risk based, taking account of factors such as the status, nature and significance of the defence. |
Annually from 1 April 2000 | Coast protection authorities through Coastal Defence Groups |
| B. Report to MAFF on its assessment of the risk of
coastal erosion from those assets. The report will also set out the action
taken (eg to remedy the deficiency, adapt to a lower standard of defence,
abandon defence) saying also if it is proposed to use enforcement powers or
adopt a defence operated by others. Reports will also detail progress on
remedying deficiencies highlighted in previous years’ reports. In
producing reports, the Groups should draw on information from inter alia
inspections, policy statements (Target 1) and the database (Target 4). (This to reflect the necessary phasing adopting a risk-based assessment with comprehensive reporting from April 2002.) |
Annually from 1 April 2001 |
| Target 7 - Expenditure programmes | By when | By whom |
|---|---|---|
| Provide to MAFF a prioritised forward programme of capital and maintenance work for the assets on the database. This should cover the current and following 3 year period. Where appropriate, programmes should include proposed expenditure on any assets in third party or other ownership. | Annually from 1 April 2000 | All operating authorities |
4.13 Shoreline Management Plans (SMPs) have been promoted by MAFF as a means for ensuring that coastal defences are planned in a strategic manner and in consultation with relevant interests. The interim target was for SMPs to be completed for the coastline of England by 31 December 1999. However, SMPs are intended to be "living" documents and subject to regular review and updating leading to the following target.
| Target 8 - Shoreline Management Plans (SMPs) | By when | By whom |
|---|---|---|
Flowing from the policy statement in Target 1,
have in place, and provide to MAFF, a programme for:
|
December 2001 | Relevant operating authorities |
4.14 MAFF is committed to playing its part in wider Government policies for the protection of the environment and biodiversity, and acknowledges that flood and coastal defence measures can play a significant part in this. As a minimum, flood and coastal defence measures must be environmentally sound. However, operating authorities are positively encouraged to seek and consider opportunities for environmental enhancement when selecting flood and coastal defence options at a strategic level and in developing schemes. In addition, operating authorities are subject to specific statutory obligations and targets (including measures to protect SACs, SPAs, Ramsar sites and SSSIs). It is intended that, through the policy statements (Target 1), operating authorities will acknowledge these requirements, and also set out the arrangements that they have in place for compliance to protect and enhance the environment when carrying out works. The following, more specific targets, will also apply.
| Target 9 - Biodiversity | By when | By whom |
|---|---|---|
A. In addition to statutory obligations, when
carrying out flood and coastal defence works aim:
|
Ongoing | All operating authorities |
| B. Report to the Environment Agency on all losses and gains of habitats covered by Biodiversity Action Plans as a result of their flood and coastal defence operations. | Annually from 1 April 2001 | All operating authorities |
| C. Report to MAFF on the collated information from Target 9B. | Annually from 1 July 2001 | Environment Agency |
| Target 10 - Water Level Management Plans (WLMPs) | By when | By whom |
|---|---|---|
A. In partnership with English Nature, complete
WLMPs:
|
30 March 2000 31 Dec 2000 |
Relevant operating authority |
| B. Have in place a programme for implementing and reviewing WLMPs (flowing from the policy statement in Target 1). | 1 April 2001 | Relevant operating authority |
| C. Report to MAFF on operating authorities’ progress in implementing and reviewing WLMPs against their published programme. | Annually from 1 April 2002 | Environment Agency |
| Target 11 - Coastal Habitat Management Plans (CHaMPs) | By when | By whom |
|---|---|---|
| A. Identify sites where a CHaMP is needed and
produce a programme for their completion. (NB Consideration is currently being given to the arrangements for inland sites covered by the Habitats Directive. Appropriate targets will be set in due course.) |
31 December 2000 | English Nature (in partnership with the Environment Agency and other operating authorities). |
| B. Report to MAFF on progress in CHaMP completion. | Annually from 1 April 2002 |
Development control
4.15 MAFF’s third objective for flood and coastal defence is:
To discourage inappropriate development in areas at risk from flooding and coastal erosion.
4.16 The Environment Agency is a statutory consultee in the preparation of development plans, while guidance to local planning authorities (contained within DoE Circular 30/92 "Development and Flood Risk", NB now replaced by ODPM Planning Policy Guidance Note 25 (PPG 25): Development and Flood Risk) encourages local authorities to use their planning powers to guide development away from areas that may be affected by flooding, or which would itself increase flood risks or interfere with flood control works or maintenance. Following recommendations from the Agriculture Select Committee in its report on flood and coastal defence, this guidance was reviewed and updated by DETR. The revised guidance is also expected to emphasise the need to seek contributions from developers towards the cost of flood and coastal defence works necessary as a result of the development. The following targets are complementary to that guidance to LPAs on development in the flood plain and to the Agency’s revised internal guidance on the advice to local authorities on development in the flood plain (an interim target). There are also targets relating to development in areas at risk of coastal erosion.
| Target 12 - Development in areas at risk of flooding | By when | By whom |
|---|---|---|
Report to MAFF and DETR on:
(This target does not preclude the Agency from taking immediate and relevant action, eg to request Ministerial call-in of particularly significant cases.)(i) the Agency sustained objections on flood risk grounds; and |
Annually from June 2000 | Environment Agency (in partnership with local planning authorities) |
| Target 13 - Development in areas at risk of coastal erosion | By when | By whom |
|---|---|---|
Report to MAFF and DETR on:
|
From June 2000 | Coast protection authorities through Coastal Defence Groups |
Funding and administration
4.17 In its response to the Agriculture Select Committee report on flood and coastal defence, the Government did not accept that changes should be made to the present institutional arrangements for flood and coastal defence. It did, however, agree that a joint MAFF/DETR review should be conducted on the funding mechanisms and this is currently under way. It has been decided that another commitment in relation to the ASC report, consideration of the future need for local flood defence committees (LFDCs), should follow the funding review.
4.18 The following targets are intended to bring about improvements in the present arrangements for IDB administration and membership.
| Target 14 - IDB Administration and Membership | By when | By whom |
|---|---|---|
A. Produce and distribute to IDBs guidance on:
|
1 June 2000 | Association of Drainage Authorities in conjunction with MAFF, Environment Agency and LGA |
| B. Report to MAFF on progress in implementing this guidance. | Annually from 1 June 2001 |
Association of Drainage Authorities |
Ministry of Agriculture, Fisheries and
Food
Flood and Coastal Defence with Emergencies Division
November 1999
TEMPLATE FOR USE IN PREPARING POLICY STATEMENTS
Please note, this template is also available as a
PDF document
for better printing. The worked example is also available as a
Word 2000 document
for operating authorities to use when drawing up their own policy statements.
Introduction to the Template
(i) In November 1999, following Ministerial agreement with the Environment Agency, the Local Government Association and the Association of Drainage Authorities, Defra (then MAFF) published a number of High Level Targets for flood and coastal defence operating authorities. The Targets are designed to ensure a more certain delivery by operating authorities of the Government's policy aims and objectives. Target 1 requires operating authorities to produce a policy statement which sets out their plans for delivering the Government's policy aim and objectives.
(ii) While flood and coastal defence legislation is generally permissive, it is expected that all operating authorities will exercise their powers, and respond to flood and coastal defence risks, in a responsible way. To this end, the Government expects policy statements to be produced by all flood and coastal defence operating authorities, ie:
- the Environment Agency (nationally, plus separate statements for each executive Flood Defence Committee area);
- each Internal Drainage Board (IDB); and
- each local authority.
(iii) This template is designed to assist operating authorities in producing the policy statements. It sets out what should be covered in the statement and provides a worked example (for a fictional district council). Statements will necessarily vary between the different types of authority and the aim is to provide an indication, not a prescription, of what should be covered and how (including an indication of the expected scope, detail and length of statements). It would be very helpful if statements could follow as closely as possible the pattern in this template, not least to assist the Environment Agency in fulfilling the requirement on them in Target 1B.
(iv) The template and worked example have been produced in consultation with ODPM (then DETR), the operating authorities (the Environment Agency, Local Government Association and the Association of Drainage Authorities) and a large number of interested organisations.
(v) To assist operating authorities in producing their own statements, this document (including the worked example) can be emailed to you - please contact Daniel Skerten in Defra (see address below or email info-fm@defra.gsi.gov.uk), specifying the format required (Word 97 or 2000).
(vi) When the statement has been produced, the operating authority should make it available to the public in their area, and send a copy to each of the following:
| Daniel Skerten Department for Environment, Food and Rural Affairs Area 3D Ergon House Horseferry Road London SW1P 2AL Tel: (020) 7238 6164 |
David Brook Office of the Deputy Prime Minister Zone 4/A3 Eland House Bressenden Place London SW1E 5DU Tel: (020) 7890 3842 |
David Rooke Head of Flood Defence Environment Agency Rio House 710-715 Waterside Drive Aztec West Almondsbury Bristol BS12 4UD Tel: (01454) 624 400 |
Where the operating authority's area straddles the border between England and Wales, the statement should also be copied to:
| Peter Jones Welsh Assembly Government Cathays Park Cardiff CF10 3NQ Tel: (02920) 823 176 |
In addition …
- · The Environment Agency should send a copy of their statement to district councils and IDBs within the area covered by the statement.
- · IDBs should send a copy of their statement to district councils which cover the drainage district.
- · Local authorities should send a copy of their statements to any IDBs that are within their district.
TEMPLATE FOR THE POLICY STATEMENT
1. Introduction
1.1 This section should set out the background to High Level Targets and in particular Target 1, ie that each operating authority should produce policy statements which establish the link between the Government's aims and objectives and demonstrate how these are being implemented in the local area. The worked example provides suggested wording.
2. How the operating authority will deliver the Government's policy aim and objectives
2.1 This section should set out the operating authority's policy and approach to flood and coastal defence as it relates to the Government's policy aim and objectives. Operating authorities have different flood and coastal defence responsibilities depending on both their nature and location. The following sets out what should be covered for each different type of operating authority.
2.2 The Environment Agency should state their policy as to
how they will:
|
2.3 Internal Drainage Boards should state their policy as
to how they will:
|
2.4 Inland local authorities should state their policy as
to how they will:
|
2.5 Coastal local authorities should state their policy as
to how they will:
|
3. The operating authority's assessment of the risk of flooding and coastal erosion in their area and how they will reduce or manage that risk
3.1 This should build on section 2 to set out the operating authority's assessment of the flooding and coastal erosion risk in their area, and how they will reduce or manage that risk. In drafting this section, operating authorities will need to have regard to:
- their responsibilities as an operating authority; and
- the particular watercourses (and, if relevant, coastline) in the area.
3.2 The Department recognises that some operating authorities may not have the necessary information to provide detailed assessments of flood and coastal erosion risk in their area. However they should give the best possible indication of the main areas at risk, drawing on currently available information (such as Environment Agency flood plain maps, results of inspections, and history of flooding and erosion in the area).
3.3 When setting out their policy for reducing the risk of flooding or coastal erosion, operating authorities will need to bear in mind that it is not possible to eliminate all risks. Additionally, there are likely to be circumstances where the operating authorities decide that it would not be economically, technically or environmentally sound to undertake works to reduce risk. In such circumstances it may be necessary to manage the risk in order to reduce the impact, perhaps by improved flood warning. The policy statement should set out alternative (or complementary) approaches that the operating authority plans to adopt. Note that, while the approach to capital and maintenance projects should be stated, a detailed schedule of works is not required.
3.4 The policy statement should also set out briefly the operating authority's plans for managing and inspecting the defences for which it is responsible, making special reference to any critical ordinary watercourses (see paragraph 3.6 of worked example for definition). Reference should also be made to any strategic studies that the operating authority plans to undertake or participate in.
3.5 Local authorities should, drawing on their general policy as stated in section 2, say how their planning control policies will address the flooding and coastal erosion risks.
4. Partnerships and review of the policy statement
4.1 The statement should conclude with a reference to the partnerships that exist in flood and coastal defence provision, including the role for members of the public.
4.2 Finally, there should be a commitment to review the statement, revising and re-issuing as necessary. Defra strongly recommends that the first review takes place after no longer than three years.
Flood Management Division
Department for Environment, Food and Rural Affairs
June 2000
"WORKED EXAMPLE" OF A POLICY STATEMENT
Note: while the following example is written using a fictional district council, it is intended that the same structure and wording will be adopted by other types of operating authority, including Environment Agency Areas and IDBs.
HAMPSON DISTRICT COUNCIL
POLICY STATEMENT ON FLOOD AND COASTAL DEFENCE
1. INTRODUCTION
Purpose
1.1 This policy statement has been prepared by Hampson District Council to provide a public statement of the Council's approach to flood and coastal defence in its area.
Background
1.2 The Department for Environment, Food and Rural Affairs (Defra) has policy responsibility for flood and coastal defence in England. However, delivery is the responsibility of a number of flood and coastal defence operating authorities ie the Environment Agency, local authorities and internal drainage boards. Responsibilities differ according to the type of operating authority and Hampson DC's responsibilities are set out in paragraphs 3.1 and 3.2 below.
1.3 The Government has published a policy aim and three objectives for flood and coastal defence1. To ensure a more certain delivery of the aim and objectives by the individual operating authorities the Government has published a series of high level targets2. The first target requires each operating authority to publish a policy statement setting out their plans for delivering the Government's policy aim and objectives in their area. This will include their assessment of flooding and coastal erosion risk in their area, and the plans for reducing or managing that risk.
1.4 This policy statement fulfils that requirement. Copies are also available from the Council's offices at [address] and on the Internet at [address]. We are also providing a copy to:
- the Department for Environment, Food and Rural Affairs;
- the Office of the Deputy Prime Minister;
- the Environment Agency.
- [the XYZ Internal Drainage Board [if there were an IDB in the Council's area]]
- [the National Assembly for Wales [if the operating authority straddled the England/Wales border]]
2. HOW THE COUNCIL WILL DELIVER THE GOVERNMENT'S POLICY AIM AND OBJECTIVES
2.1 Hampson DC acknowledges and supports the Government's aim and objectives for flood and coastal defence (as set out below). Our policy and approach will be consistent with them, as follows:
- Government's policy aim:
- To reduce the risk to people and the developed and natural environment from flooding and coastal erosion by encouraging the provision of technically, environmentally and economically sound and sustainable defence measures.
Section 3 below sets out our plans for reducing or managing the risk of flooding and coastal erosion risk in the Council's area.
- Objective (a):
- To encourage the provision of adequate and cost effective flood warning systems.
Provision of flood warning systems is the responsibility of the Environment Agency. However, Hampson DC recognises its related and important role in emergency planning and response. We will therefore:
- ensure that our emergency response plans include appropriate arrangements for flooding emergencies and that such plans are reviewed, in consultation with the Environment Agency, at least every two years;
- maintain an awareness of the Environment Agency's flood warning dissemination plan for our area and contribute to its implementation as necessary; and
- play an agreed role in any flood warning emergency exercises organised by the Environment Agency covering our area.
- Objective (b):
- To encourage the provision of adequate, economically, technically and environmentally sound and sustainable flood and coastal defence measures.
Hampson DC will:
- provide an adequate, economically, technically and environmentally sound approach to providing the flood and coastal defence service. We will:
- adopt a strategic approach to provision of flood and coastal defences, particularly by assessing any potentially wider effects of proposed defences. To this end we will continue to play a full role in Shoreline Management Plans, and Local Environment Agency Plans, for our area;
- aim to provide sustainable flood and coastal defences which provide social and/or economic benefits to people whilst taking account of natural processes and which avoid committing future generations to inappropriate defence options;
- ensure work is carried out in accordance with best practice and to deliver best value for money including (a) keeping up-to-date with policy and technical developments in flood and coastal defence, in particular by reference to Defra guidance, other Government publications and relevant technical manuals; (b) consulting the Environment Agency on flood defence options to ensure that best practice is adopted and shared; and (c) using appropriately qualified experts to advise on analysis and design of works or programmes of management;
- consider alternative approaches to funding, such as Public Private Partnerships;
- where appropriate seek contributions from developers or other direct beneficiaries of works, in accordance with the Office of the Deputy Prime Minister's Planning Policy Guidance Note 25.
- ensure that appropriate maintenance regimes are in place for flood and coastal defences for which the Council takes responsibility;
- inform landowners of what responsibilities for maintenance rest with them (see paragraph 3.1 below);
- make publicly available the Council's expenditure plans for flood and coastal defence maintenance and capital works [say how].
- play a positive role in fulfilling our statutory and other responsibilities for furthering nature conservation, including achievement of the Government's environmental obligations and targets. In particular we will:
- fulfil our responsibilities in relation to nationally and internationally important conservation areas, under the Wildlife and Countryside Act 1981 and as a competent authority under the terms of the Conservation (Natural Habitats &c.) Regulations 1994 [NB this applies equally to EA, local authorities and IDBs];
- co-operate with English Nature and the Environment Agency in completing and implementing Coastal Habitat Management Plans (CHaMPs) covering our area, drawing on English Nature/Environment Agency guidance for plan production;
- when carrying out flood and coastal defence works, seek opportunities for environmental enhancement, and aim to avoid damage to environmental interest and to ensure no net loss to habitats covered by Biodiversity Action Plans. We will monitor all losses and gains of such habitats as a result of these operations and report on them annually to the Environment Agency; and
- ensure that, for those Water Level Management Plans where we are the lead operating authority, we work in partnership with English Nature to complete, implement and review Plans in accordance with Defra guidance on plan completion and the timetables set out in Defra High Level Targets.
- Objective (c):
- To discourage inappropriate development in areas at risk from flooding and coastal erosion.
As the local planning authority for our area, Hampson DC will take account of flooding and coastal erosion risks in all matters relating to development control, including development plans and individual planning applications, in accordance with Planning Policy Guidance Notes 20 and 25.
3. OUR ASSESSMENT OF THE RISK OF FLOODING AND COASTAL EROSION IN OUR AREA AND WHAT WE WILL DO TO REDUCE OR MANAGE THAT RISK
Flood and coastal defence responsibilities
3.1 Apart from certain obligations to protect internationally important habitats under the EC Habitats Directive, all flood and coastal defence works are undertaken under permissive powers. This means that operating authorities, such as Hampson District Council, are not obliged to carry out flood and coastal defence works. It is also important to note that the Council does not normally accept responsibility for maintenance of flood defences on private land; this is the responsibility of the landowner.
3.2 Hampson District Council is the relevant operating authority for:
- flood defences on ordinary watercourses which are not within the area of an internal drainage board; and
- coast protection (ie measures against coastal erosion) on all frontages in the authority's area.
3.3 The flood and coastal defences that are owned or managed by the Council are detailed in our return for the National Flood and Coastal Defence Database which is maintained by the Environment Agency.
3.4 The Environment Agency is the relevant operating authority for flood defences on designated main rivers. Culverts under roads are generally the responsibility of the relevant Highways Authority (County Council or Highways Agency).
Assessment of flood risk
3.5 There are 21 km of ordinary watercourses for which Hampson DC is the relevant operating authority. These are all of the watercourses in the Council's area except the River [X], between [location] and [location] which is designated as main river and thus the responsibility of the Environment Agency. There is no internal drainage board operating in the Council's area.
3.6 We have agreed with the Environment Agency that within the Council's area there are 5 km of "critical ordinary watercourses" (ie watercourses which are not classified as "main river" but which the Council has agreed with the Environment Agency to be critical because they have the potential to put at risk from flooding large numbers of people and property). The watercourses concerned are the non main river sections of the River [X], and all of the River [Y].
3.7 Based on historical flooding information, coupled with the Environment Agency's indicative flood plain maps, the Council has carried out an assessment of the risk of flooding from the ordinary watercourses in our area. The main areas at risk of flooding are the town of [location] and the village of [location]. In addition, Council inspections show there to be significant deficiencies in the river walls at [location] creating an increased flood risk to the town. We also found that the River [Z] at [location] is subject to a build up of silt which, if not cleared regularly, will significant reduce the flow so as to increase the risk of flooding at [location]. The Council is satisfied that there are minimal risks to human life created by these flood risks from ordinary watercourses, but emphasises the need for the Environment Agency's flood warnings to be heeded, where these are provided (see below).
Action to reduce or manage flood risks
3.8 The main means by which flood risks will be managed is through the Environment Agency's flood warning dissemination plan of [date]. This makes arrangements for warnings to be provided in [locations] within this Council's area, including individual warnings to high risk properties. [NB, all areas within the Council's area covered by the plan should be listed, regardless of whether they are on main river or ordinary watercourses.] Hampson DC has included plans for responding to both major and minor flooding in its emergency planning procedures and has arrangements for cascading warnings received from the Environment Agency to relevant Council services.
3.9 The Council has a programme in place to inspect the state of:
- flood defences (whether or not owned by the Council) on all ordinary watercourses; and
- all critical ordinary watercourses and related culverts.
3.10 The Council will ensure that regular maintenance is carried out on the flood defences and channels which we own, or for which we accept responsibility, so that they operate at optimum efficiency. Where the responsibility for maintenance rests with a landowner, we will aim to secure co-operation in ensuring appropriate maintenance takes place, drawing on enforcement powers if necessary.
3.11 The Council's major capital work plan is to carry out flood alleviation works at [location] in [year]. We are also taking action to repair the river walls at [location] in [year] and in our maintenance programme we will give priority to clearing the excess silt in the River [Z] in [year].
3.12 By following Government guidance in Planning Policy Guidance Note 25 on development in flood risk areas, the Council, acting as a local planning authority, will ensure that risks are further minimised. This includes measures for ensuring sustainable urban drainage systems to control surface water run off.
Assessment of coastal erosion risks
3.13 As identified in the 1998 Shoreline Management Plan, of the 24 km of shoreline in the Council's area, 14 km is defended against erosion. The remaining frontage consists of natural cliff (6 km) and shingle bank (4 km).
3.14 Risks of erosion of the defended frontage at [location] are low although there is ongoing risk of local instability in the cliffs behind the promenade. Elsewhere on the undefended coast, erosion rates average 1-2 metres per year (see 1998 SMP for details).
Action to reduce or manage coastal erosion risks
3.15 The Council operates a programme of routine beach management for the protected frontage consisting of annual reprofiling and occasional recharge. This is carried out under the 1999 Beach Management Plan agreed with Defra and supported with grant aid. On the undefended length, warning notices are maintained in areas of public access on both cliff top and beach. Our management regime takes into account the most recent predictions of the impact of climate change as set out in the 1998 SMP.
4. PARTNERSHIPS AND REVIEW OF THIS POLICY STATEMENT
4.1 The Council has set out its policy and approach to flood and coastal defence. We recognise the need to work in partnership with central Government and other operating authorities. Our local population also has an important part to play, in recognising the vital importance of watercourses in controlling flood risk and the need to avoid blockages, whether by dumping rubbish or obstructing flows in other ways. We ask members of the public to let us know of any problems which might increase the risk of flooding or coastal erosion.
4.2 Hampson DC intend to review this policy statement in three years' time, when it will be revised and reissued as necessary. Meanwhile, the Council welcomes any comments on the approach and policies set out in this statement.
References
1Strategy for Flood and Coastal Defence in England and Wales MAFF and Welsh Office, September 1993
2High Level Targets for Flood and Coastal Defence Operating Authorities and Elaboration of the Environment Agency's Flood Defence Supervisory Duty MAFF, November 1999
Other references from the policy statement, for example to the relevant Shoreline Management Plan.
Page last modified: 6
April 2006
Page published: 29 June 2001