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transcript
The National Flood Emergency Framework For England
www.defra.co.uk
Civil Contingencies Secretariat
Contents
Section 1: IntroductiontotheNationalFloodEmergencyFramework
Section 2: Whatemergencyplannersandrespondersneedtoknowaboutnationalemergencymanagement
Section 3: Whatemergencyplannersandrespondersneedtoknowaboutthelegalframework
Section 4: Whatemergencyplannersandresponderscanexpectfromcentralgovernment
Section 5: Toolsforfloodemergencyplannersandresponders
Section 6: Theimportanceofmulti-agencyplanning
Section 7: Goodcommunicationsareessential:planhowyouwillcommunicateduringanincident
Section 8: Importantaspectsoffloodpreparedness
Section 9: Reservoirsafety
Section 10: Dealingwiththeconsequencesofflooding–healthandenvironmentalconsiderations
Section 11: Floodrescue
Section 12: DetailedguidanceondevelopingaMulti-AgencyFloodPlan(MAFP)
Part One: Understandingfloodemergencyplanningandresponse
Part Two: BeingPrepared
Part Three: Detailedplanningforfloodemergencies
Part one: Understandingfloodemergencyplanningandresponse
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Section 1:IntroductiontotheNationalFloodEmergencyFramework
■■ Flooding–aconstanthazard
■■ Floodinghappens!
■■ Somerecentexamples
– Cumbria2009
– Summer2007
– Otherseriousfloodingevents
■■ NationalFloodEmergencyFramework–whatit’sfor
■■ AframeworkforEngland
■■ NationalFloodEmergencyFramework–whatit’snotfor
■■ NationalFloodEmergencyFramework–who’sitfor?
■■ NationalFloodEmergencyFramework–whatwewanttoachieve
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Flooding – a constant hazard
Floodingisaconstanthazardtolifeandproperty.Weknowfromthe Environment Agency’s national assessment of flood risk(publishedJune2009)that:
■■ oneinsixhomesinEnglandisatriskofflooding;
■■ over2.4millionpropertiesareatriskoffloodingfromriversortheseainEngland,ofwhichnearlyhalfamillionareatsignificantrisk;and
■■ onemillionofthesearealsovulnerabletosurfacewaterflooding,withafurther2.8millionpropertiessusceptibletosurfacewaterfloodingalone.
Aswellasfloodingfromrivers,theseaandsurfacewater,therearesignificantrisksforsomecommunitiesfromgroundwaterfloodingandwaterfromfailedoroverflowingreservoirs.ThescopeofthisNationalFloodEmergencyFrameworkextendstotheseriskstoo.
Flooding happens!
Floodinghappens.Ithappensmanytimeseachyear–oftentopeople,communitiesandbusinessesthathavesufferedfromfloodinginthepast.Itsseverityhasrangedfromminorinconveniencetodestructionofproperties,businesses,livelihoodsandnormalfamilylife.
NopartofEnglandcanexpecttoescapetheimpactoffloodingentirely.Aswellasthepotentialtocauseseriousharmtohumanhealthandpropertydamage,floodingthreatenswidersocialandeconomicdamageanddisruption.Butitisdifficulttoforecastitsexacttimingortheprecisenatureofitsimpact.Thisuncertaintyisoneofthemainchallengesforpolicymakersandplanners.Measurestopreventandcontrolfloodingrequirecoordinatednational,regionalandlocaleffortandcooperation.
Some recent examples
Cumbria 2009
SeriousfloodingaffectedmanypartsofCumbriainNovember2009.Thisfollowedheavyandsustainedrainfallof12.3inchesin24hours,whichisthehighesteverintheUnitedKingdom.Around1,800propertieswerefloodedwiththeworstaffectedareasbeingCockermouth,Keswick,Workington,KendalandUlverston.Around1,500peopleneededtobeevacuatedfromtheirhomesorbusinesses.Infrastructurewasbadlyaffectedwith6bridgeslostintheCumbriaarea,andanumberofroadandfootbridgesclosedbecauseofconcernsabouttheirstability.PCBillBarkerwasswepttohisdeathwhileonduty.ThepicturebelowgivesanaerialviewoftheextentoffloodinginCockermouth,Cumbria.
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Summer 2007
FloodingaffectedmanypartsofEnglandinthesummerof2007.Thewettestsummersincerecordsbegan,withextremelevelsofrainfallcompressedintorelativelyshortperiodsoftime,caused55,000propertiestobeflooded.Around7,000peoplewererescuedfromthefloodwatersbytheemergencyservicesand13peopledied.
ThefloodsalsosawthelargestlossofessentialservicessinceWorldWarII,withalmosthalfamillionpeoplewithoutmainswaterorelectricity.Transportnetworksfailed,adambreachwasnarrowlyavertedandemergencyfacilitieswereputoutofaction.Tensofthousandsofpeoplewererenderedhomeless,andsomebusinesseswereputoutofactionformonthsonend.
Other serious flooding events
Overthelastdecadethesehaveincludedthefollowing:
■■ Theautumnof2000wasthenthewettestsincerecordsbeganin1766.TheheaviestrainfallthatseasonwasacrossEnglandandWales,withatotalof489mmfallingbetweenSeptemberandNovember;themostextremerainfallwasinOctober,whichresultedinextensiveflooding.UKinsuranceclaimsarisingfromthatseason’sfloodsaddeduptoaround£1billion.ManyofthesameareasofsouthernUKfloodedagaininearly2003.
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■■ Inthesummerof2004aflashfloodinBoscastle,Cornwall,wascausedbyaround200mmofrainfallinginjust4hours.Morethan150peoplehadtobeairliftedtosafetyand50-60carswerewashedaway–around£50millionofdamagewascaused.
■■ AnotherextremeeventtookplaceinJanuary2005,when100mmofrainfellaroundCarlisleinCumbria.Sointensewastherainthatsurface-waterdrainagecouldnotcopeandfloodingbegan.Thefloodcausedlocalpowercutsandinterruptedboththelandlineandmobilephonesystems.
■■ Thesameyear,2005,sawasimilareventontheNorthYorkshiremoors.Afteraweekendheatwave,onthenightofSunday19JuneNorthYorkshirehadthebestpartofamonth’sworthofrainin3hours.Onefast-flowingfloodthatwentthroughthevillagesofThirlby,HelmsleyandHawnbywascausedby27mmofrainthatfellinjust15minutes.Thefloodwasinplaces2metresdeepanditcarriedcarsalongwithit.
■■ InSeptember2008floodinginMorpethwascausedby150mmofrain(6inches)–3months’worth–fallingontosaturatedgroundandfullrivercatchments.Around1,000homesandbusinesseswereaffectedbythefloodingandnearly250familiestookadvantageofrescuecentresandtemporaryaccommodation.
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National Flood Emergency Framework – what it’s for
ThisFrameworksetsouttheGovernment’sstrategicapproachtoachievingtheaimssetoutbelowandisintendedforusebyallthoseinvolvedinplanningforandrespondingtofloodingfrom:
■■ thesea;
■■ rivers;
■■ surfacewater;
■■ groundwater;and
■■ reservoirs.
TheconceptofaNationalFloodEmergencyFrameworkwaspromotedbySirMichaelPittinhisreportonthesummer2007floods.Itspurposeistoprovideaforwardlookingpolicyframeworkforfloodemergencyplanningandresponse.Itbringstogetherinformation,guidanceandkeypoliciesandisaresourceforallinvolvedinfloodemergencyplanningatnational,regionalandlocallevels.Itisacommonandstrategicreferencepointforfloodplanningandresponseforalltiersofgovernmentandforresponderorganisations.
Moreprecisely,thepurposeoftheFrameworkisto:
■■ ensuredeliverybodiesunderstandtheirrespectiverolesandresponsibilities;
■■ giveallplayersinanemergencyfloodingsituationacommonpointofreference-bringingtogetherinformation,guidanceandkeypoliciesinasingleplanningdocument;
■■ establishclearthresholdsforemergencyresponsearrangements;
■■ placeproperemphasisonthemulti-agencyapproachtomanagingfloodingevents;
■■ provideclarityonthemeansofimprovingresilienceandminimisingtheimpactoffloodingevents;
■■ provideabasisforindividualresponderstodevelopandreviewtheirownplans;and
■■ bealong-termassetthatwillprovidethebasisforcontinuousimprovementinfloodemergencymanagement.
Italsoprovidesanationalframeworkwithinwhichorganisationsresponsibleforplanning,deliveringorsupportinglocalresponsesshoulddevelopandmaintainintegratedoperationalarrangementsthatareflexibleenoughtorespondtolocalneedsandcircumstances,whilstprovidingthewiderdegreeofconsistencynecessaryforaneffective,sustainableandequitablenationalapproach.
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TheFrameworkwillevolveandimproveovertime,asitistestedbyrealeventsandexercises.WewanttheFrameworktohelpimproveresiliencetoseverefloodingincidentsinEnglandbyprovidingacommonandstrategicreferencepointforfloodplanningandresponse-foralltiersofgovernmentandresponseorganisations.WewanttheFrameworktostrengthenresilienceandresponsetoactualorpotentialseriousand/ordisruptiveflooding.Inshortthekeyoutcomeswewillwanttoseeare:
■■ anationthatismoreresilienttofuturefloodingevents;
■■ responsestofloodingeventsthatarejudgedtobeeffective;and
■■ improvedunderstandingbyallofthewiderimpactsofflooding.
A framework for England
ItisaNationalFloodEmergencyFrameworkforEngland.ButithasbeendesignedtotakeaccountoffloodemergencyplanningandresponseinotherpartsoftheUnitedKingdom,forwhichthedevolvedadministrationshaveresponsibility.Eachofthedevolvedadministrationshavetools,information,adviceandguidancethatyoumight,onoccasions,wanttoreferto.
Ready ScotlandcontainsadviceonhowmembersofthepublicinScotlandcanprepareforallkindsofemergenciesanddisruptiveevents,includingsevere weather.ItincludeslinkstotheScottish Environment Protection Agency’sflooding pages.
TheWelshAssemblyGovernmentisresponsiblefordevelopingflood and coastal risk management policy in WalesandlargelyfundsfloodandcoastalactivitiesundertakenbyoperatingauthoritiesacrossWales.Wales PreparedcontainsinformationontheplansforrespondingtoemergenciesinWales.
TheRivers Agency in Northern Ireland andNI DirectwebsitescontainadviceonhowmembersofthepublicinNorthernIrelandcanreducetheimpactoffloodingontheirhomesandbusinesses.DetailsofhowtoreportafloodingemergencytotheNorthernIrelandFloodingIncidentLinearealsogiven.
National Flood Emergency Framework – what it’s not for
ThisFrameworkprovidesinformationandplanningassumptionstoinformandencouragecontingencyplanning.Butitisnotintendedtoprovidedetailedoperationalguidanceforindividualemergencyplannersorresponders.
ThescopeoftheFrameworkdoesnotextendtorecoveryfromfloodingemergencies.Thereisspecificnationalguidanceonrecoveryfromemergencies,whichcanbeaccessedviathe Cabinet Office’s UK Resilience web resources.
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Thisplancoversfloodingfromartificialwaterways/canals.Butinpractice,suchfloodingincidentswouldnormallybelocalisedemergencyincidents.SoBritishWaterways,whichmanagessome2,200milesofwaterways,hasitsownemergencyplansinplacewhichincludedealingwiththebreachofacanalorreservoirembankment.IthasplansthatincludearrangementsforliaisonwithLocalResilienceForums(LRF)andCategory1and2responders(includingemergencyservices).
National Flood Emergency Framework – who’s it for?
ThisinitialversionoftheFrameworkisintendedprimarilyforthoseresponsiblefordevelopingpoliciesandstrategiesorcoordinating,managing,maintainingortestingcontingencyarrangementsforrespondingtoflooding.But,additionally,itwillbeofinteresttothoseseekinggeneralinformationoranoverviewoftheUK’sgeneralpreparednessfor,andplannedresponseto,afloodemergency.
National Flood Emergency Framework – what we want to achieve
Inplanningandpreparingforafloodingemergency,theGovernment’sstrategicobjectivesareto:
■■ protecthumanlifeandalleviatesuffering;and,asfaraspossible,propertyandtheenvironment;
■■ supportthecontinuityofeverydayactivityandtherestorationofdisruptedservicesattheearliestopportunity;and
■■ upholdtheruleoflawandthedemocraticprocess.
TheNationalFloodEmergencyFrameworkisintendedtofocusisonthefirstofthese.Indoingso,itcoversthedevelopment,maintenance,testingand,whennecessary,implementationofoperationalresponsearrangementsthatare:
■■ abletorespondpromptlytoanychangesinalertlevels;
■■ developedonanintegratedbasis,combininglocalflexibilitywithnationalconsistencyandequity;
■■ capableofimplementationinaflexible,phased,sustainableandproportionateway;
■■ basedonthebestavailablescientificevidence;
■■ basedonexistingservices,systemsandprocesseswhereverpossible,augmenting,adaptingandcomplementingthemasnecessarytomeettheuniquechallengesofafloodemergency;
■■ understoodby,andacceptableto,emergencyplannersandresponders;
■■ designedtopromotetheearliestpossiblereturntonormality.
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■■ Whatyouneedtoknowaboutnationalemergencymanagement
– Managingacrisis-fromlocalemergencytonationalcatastrophe
– Nationalemergencymanagement:CabinetOfficeBriefingRooms(COBR)
■■ Flooding–localornational?
– Workingcollectivelyattheregionalleveltoplanfor,andrespondto,flooding:RegionalResilienceForums
– Workingcollectivelyattheregionalleveltoplanfor,andrespondto,flooding:RegionalCoordinatingGroupsandRegionalCivilContingenciesCommittees(RCCCs)
■■ Internationalassistancemechanisms
Section 2:Whatemergencyplannersandrespondersneedtoknowaboutnationalemergencymanagement
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What you need to know about national emergency management
Anemergency(ordisruptivechallenge)asdefinedintheCivil Contingencies Act 2004isasituationorseriesofeventsthatthreatensorcausesseriousdamagetohumanwelfare,theenvironmentorsecurityintheUnitedKingdom.
Managinganyemergencycomprisesthreemainphases:
■■ preparation(pre-planning);
■■ response(mitigatinganimmediateriskorstoppingthingsgettingworse);and
■■ recovery(alonger-termactivityofrebuilding,restoringandrehabilitatingthecommunity).
Theresponsephasecomprisestwoseparatebutclosely-relatedandoftenoverlappingchallenges:crisismanagementandconsequence(orimpact)management.Thesearebothdesignedtocontrolandminimisetheimmediatechallengesarisingfromanincident.
Crisismanagementinvolvesthephaseoftheresponsethatattemptstopreventoravertanimminentemergency,alongwithworkthatputsinplaceprotectiveorothermeasurestomitigatetheeffectsofanemergency,preventfurtherdamageordisruptionandsecurethescene.Italsoincludesactionstakentoaddresstheimmediateeffectsofanincident–andmayincludemanaginghostagesituations,fightingfires,searchandrescue,caringforthedeadandinjured,providingpublichealthadvice,evacuatingthoseatriskanddisseminatingpublicinformation.Thedurationofthecrisismanagementphasecanvaryfromafewhoursorafewdaystoafewmonths(forexampleinthecaseofanoutbreakofananimaldisease)untilthesituationisbroughtundercontrol.
Consequencemanagementusuallytakeplaceinparalleltocrisismanagementandisconcernedwithstepstakentopreventtheimpactofanincidentescalating.Itincludesmanagingwiderconsequencesandservicessuchasrestoringtransportnetworksorelectricitysupplies,managingcommunityrelationships,andprovidingsheltertodisplacedpersons.
Managing a crisis - from local emergency to national catastrophe
ThelocalresponseisthebasicbuildingblockoftheresponsetoanyemergencyintheUK.Emergencies(ormajorincidents)areroutinelyhandledbytheemergencyservicesandotherlocalresponderswithouttheneedforanysignificantcentralgovernmentinvolvement.Suchemergenciesmayincludemajorroadcrashes,localisedfloodingandmanyindustrialaccidents.Thepolicewillnormallytaketheleadinco-ordinatingthelocalresponsewhereacrimehasbeencommitted,orifthereisathreattopublicsafety.
InEngland,theprimaryresponsibilityforplanningforandrespondingtoanymajoremergencyrestswithlocalorganisations,actingindividuallyandcollectivelythroughLocalResilienceForums
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(LRFs)andStrategicCoordinationGroups(SCGs).Publicandprivateorganisationsneedtoworkwithandthroughtheirlocalforumtodevelopplansformaintainingcriticalservicesandbusinesscontinuityduringafloodingemergencyandtorespondtothewiderchallengesthatwillresult.
Alist of LRFsandtheircontactdetailscanbefoundontheUKResiliencewebsite.
Thelocalmulti-agencyresponseisco-ordinatedthroughaStrategicCo-ordinatingGroup(SCG)locatedintheStrategicCo-ordinationCentre(SCC).Thechairofthegroup,whetherapoliceleadorLocalAuthorityChiefExecutive,isoftenknownastheGoldCommander.
Theprincipleofsubsidiarityemphasisestheimportanceoflocaldecisionmakingsupported,wherenecessary,byco-ordinationatahigherlevel.Inordertoaidplanning,furtherunderstanding,andprovideguidancetorespondersandcentralgovernmentplannersonwhentheymightexpectcentralgovernmentinvolvementinrespondingtoanincident,threebroadtypes(orlevels)ofemergencyhavebeenidentifiedwhicharelikelytorequiredirectcentralgovernmentengagement.
ThefulldetailcanbefoundintheConcept of Operations (or CONOPS)–thespecificarrangementsfortheresponsetoanemergencyrequiringco-ordinatedUKcentralgovernmentaction–whichcanbefoundontheCabinetOffice’swebsite.But,insummary,theseare:
Significantemergency(Level1)-requirescentralgovernmentinvolvementorsupport,primarilyfromaleadgovernmentdepartment(LGD),oradevolvedadministration,alongsidetheworkoftheemergencyservices,localauthoritiesandotherorganisations.Thereis,however,noactualorpotentialrequirementforfast,inter-departmental/agency,decisionmakingwhichmightnecessitatetheactivationofthecollectivecentralgovernmentresponse(seebelow),althoughinafewcasestheremaybevalueinusingtheCabinetOfficeBriefingRooms(COBR)complex–seebelowformoreonCOBR-tofacilitatethebriefingofseniorofficialsandministersontheemergencyanditsmanagement.
Examplesofemergenciesonthisscalecouldincludemostsevereweather-relatedproblems.
Seriousemergency(Level2)-isonewhichhas,orthreatens,awideandprolongedimpactrequiringsustainedcentralgovernmentco-ordinationandsupportfromanumberofdepartmentsandagencies,usuallyincludingtheregionaltierinEnglandandwhereappropriate,thedevolvedadministrations.Thecentralgovernmentresponsetosuchanemergencywouldbeco-ordinatedfromtheCabinetOfficeBriefingRooms(COBR),undertheleadershipoftheleadgovernmentdepartment.
Examplesofanemergencyatthislevelcouldincludewidespreadurbanflooding.
Catastrophicemergency(Level3)–isonewhichhasanexceptionallyhighandpotentiallywidespreadimpactandrequiresimmediatecentralgovernmentdirectionandsupport,suchasamajornaturaldisaster,9/11scaleterroristattackintheUK,oraChernobyl-scaleindustrialaccident.Characteristicsmightincludeatop-downresponseincircumstanceswherethelocalresponsehadbeenoverwhelmed,ortheuseofemergencypowerswhererequiredtodirecttheresponseorrequisitionassetsandresources.ThePrimeMinisterwouldleadthenationalresponsefromCOBR.Fortunately,theUKhashadnorecentexperienceofaLevel3emergency,butitisimportanttobepreparedforsuchaneventshouldtheneedarise.
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Figure 2.1:Emergencylevels
National Coverage
Cross-Region
Cross-Force
Local response with GO providing two-way channel to central
Govt/LGD
Serious - Level 1LGD led central response.
COBR not involved
Significant - Level 2 Co-ordinated central response led by LGD
from COBR
Catastrophic - Level 3Central direction
from COBR
Single Scene
Regional Coverage
Localresponse
only
Impact
Minimal Parliamentary Interest significant parliamentary interest dominating party/national debate
Minimal LGD operational Interest through RRT/RO LGD crisis centre collective response central direction
Minimal LGD policy Interest monitoring through RRT LGD actively involved strategic challenge overwhelming
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National emergency management: Cabinet Office Briefing Rooms (COBR)
Insomeinstances,thescaleorcomplexityofanemergencyissuchthatsomedegreeofcentralgovernmentsupportorco-ordinationbecomesnecessary.AdesignatedLeadGovernmentDepartment(LGD)or,whereappropriate,adevolvedadministrationwouldbemaderesponsiblefortheoverallmanagementofthecentralgovernmentresponse.Inthemostseriouscases,thecentralgovernmentresponsewouldbeco-ordinatedthroughtheCabinetOfficeBriefingRooms(COBR).
COBRwouldbeactivatedinordertofacilitaterapidco-ordinationofthecentralgovernmentresponseandeffectivedecision-making.Inpractice,theactualresponsetoaspecificemergencywouldneedtotakeintoaccountthenatureofthechallengeandothercircumstancesatthetime.
Ministersandseniorofficials,asappropriate,fromrelevantUKgovernmentdepartmentsandagencies,alongwithrepresentativesfromotherorganisations,asnecessary,arebroughttogetherinCOBRtoensureacommonappreciationofthesituationandtofacilitateeffectiveandtimelydecisionmaking.
WhereCOBRisactivatedinresponsetoano-noticeincident,itsdefaultstrategicobjectivesareto:
■■ protecthumanlife(and,asfaraspossible,propertyandtheenvironment);andalleviatesuffering;
■■ supportthecontinuityofeverydayactivityandtherestorationofdisruptedservicesattheearliestopportunity;and
■■ upholdtheruleoflawandthedemocraticprocess.
TheCOBRstructureisdesignedtobeflexibletoadapttothecircumstancesathand.TheCabinetOfficewould,inconsultationwiththeleadgovernmentdepartment,decideonwhichcomponentsshouldbeactivatedandhowtheymightbestbeused.ItwouldalsoprovidetheSecretariatsupportandensurethatbusinessismanagedeffectivelyacrossallareasofactivityinresponsetotheemergency.
Inpractice,thestartofanemergencywouldalsobethepointatwhichthoughtsshouldturntoconsequencemanagementandtherecoveryworkthatwillbeneededoncetheimmediatedangershavepassed–provided,ofcoursethatthatdoesnotslowdowntheresponseitself.SoanImpactManagementGroup(IMG)maybeformallyestablishedbycentralgovernmentwherethereisaddedvalueinhandlingseparatelytheinputtoconsequencemanagementactivity.TheIMGwouldprovidedetailedco-ordinatedadviceonallaspectsoftheGovernment’scontributiontotheemergencyresponseandwouldensurethatarecoverystrategy,includingestablishmentofaRecoveryGroup,isputintoplaceandendorsed.OnceaRecoveryGroupisestablished,theroleoftheIMGinrecoverywouldcease.ThistransitionwouldtakeplaceinconsultationwiththeCabinetOfficeandtherelevantLeadGovernmentDepartments.
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Flooding – local or national?
Thetableoverleaf(figure2.2)givesabroadindicationofwherefloodingeventsmatchuptonationalCONOPS.ButexperiencehasshownthatthemediaandpoliticalresponsetofloodingeventscanescalatebeyondthelevelofinvolvementwhichDefra,asLeadGovernmentDepartment,mightbeexpectedtohaveifCONOPSistheonlyreference.Inpractice,factorssuchasmediaresponse,numberofpropertiesflooded,depthoffloodingandimpactoncriticalinfrastructurewilldeterminetheleveltheemergencyresponseandLeadGovernmentDepartmentinvolvementandrole.
Forexample,theeventatBoscastlein2004wouldbeclassedas“local”ontheCONOPSscale,butittriggeredmajormediainterestand,consequently,significantactivityacrossGovernment.Thesummer2007floodsmightwellberegardedasLevel2,but,inpractice,itwasthePrimeMinisterwhochairedmostCOBRmeetings.A1953typeflood(whenover300diedandtherewaswidespreaddestructionoverlargeareas)mightbeclassedasaLevel3event.Sotoomightafuturemajortidalsurge,ordamfailureaffectingamajorconurbationorcriticalinfrastructure.
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Figure 2.2: CONOPSlevelsemergency
Level of emergency
Description Levelofengagement
3: Catastrophic Ahighandpotentiallywidespreadimpactandrequiresimmediatecentralgovernmentdirectionandsupportsuchasa9/11scaleterroristattackintheUK,oraChernobylscaleindustrialaccident.
Floodingexample:floodsaffectinganumberofregions;thousandsofdisplacedpersons;seriousdamagetocriticalinfrastructure.
COBR/CivilContingenciesCommittee.PrimeMinisterornominatedSecretaryofStateleadsintheeventofacatastrophicincidentrequiringtheinvolvementofcentralgovernmentfromtheoutsettodeliveraneffectiveresponse,orwhereEmergencyPowersareinvoked
2: Serious Has,orthreatens,awideandprolongedimpactrequiringsustainedcentralgovernmentco-ordinationandsupportfrommanydepartmentsandagencies.
Floodingexample:floodsinmorethanoneregion;hundredsofdisplacedpersons;actual,orriskof,criticalinfrastructuredisruptions.
Responseco-ordinatedfromtheCabinetOfficeBriefingRoom(COBR)bytheLeadGovernmentDepartment.Thecrisisresponsemayrequiredeploymentofwidergovernmentresources.TheCivilContingenciesSecretariat(CCS)providessupportonimpactmanagementandrecoveryissues.
1: Significant Hasanarrowerfocuse.g.prisonriots,severeweatheroraterroristattackwithlimitedconsequences.
Floodingexample:floodswidespreadacrossaregion,somedisplacedpersons,potentialrisktocriticalinfrastructure.
TheLeadGovernmentDepartmentMinisterrunsthecrisisresponsefromtheirpremisesusingtheirownemergencyfacilitiesasappropriate.TheCivilContingenciesSecretariat(CSS)advisesasandwhennecessary.
Local Eventswhichareroutinelyhandledbytheemergencyserviceswithlocalgovernment,suchasroadcrashes,localisedfloodingorindustrialaccidents.
Floodingexample:localflooding;smallscaleevacuation;norisktocriticalinfrastructure.
Nosignificantcentralgovernmentinvolvement.Normallybeledbythepolice/Goldcommanderforlargeremergencies.
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Working collectively at the regional level to plan for, and respond to, flooding: Regional Resilience Forums
RegionalResilienceForums(RRFs)havebeenformedtobringtogetherkeyplayersfromwithineachregion,suchaslocalauthorities,centralgovernmentagencies,thearmedforces,andtheemergencyservices.TheroleoftheRRFsistoimprovecommunicationacrossandbetweentheregions;betweentheregionsandcentralgovernment;andbetweentheregionanditslocalresponders.Theyarealsotheretosupportplanningforaresponsecapabilityandprovidemulti-agencystrategicdirectiontocivilprotectionplanningineachregion.Theyhaveaparticularvaluetoaddinfocusingonplanningforwiderconsequencesofincidentsandthemeansforaneffectivereturntonormality.
RRFsworkcloselywithLocalResilienceForums(LRFs)toensurethatpreparednessworkisco-ordinatedacrosstheregion.Thebuildingblocksoftheresponsetoacrisiswillalmostalwaysbelocalplansdevelopedatalocallevel.TheroleoftheRRFisinhelpingtoensurethatlocalplansaredevelopedwheretheyneedtobe,andthattheyworkwellwithother,neighbouring,plans.Theremayalsobespecificareaswherearegionalplanisdeveloped–buildingonscalablelocalplanstogeneratearegion-wideresponsetoacrisis.
Working collectively at the regional level to plan for, and respond to, flooding: Regional Coordinating Groups and Regional Civil Contingencies Committees
RegionalResilienceForumshavenoroletoplayintheoperationalresponsetoemergencies.Theremay,however,beexceptionalcircumstancesinwhichthescaleandgeographicalextentofanincidentrequirestheresponseandrecoveryefforttobeco-ordinatedataregionallevel.
ARegionalCoordinatingGroup(RCG)ismostlikelytobeestablishedwhenanincidentaffectsthreeormorepoliceforceareas,orhasthepotentialtodoso.Insuchcircumstances,theLeadGovernmentDepartment(inconsultationwiththeCabinetOfficeandCLG)may,onitsowninitiative,orattherequestoflocalresponders,conveneaRCGinordertobringtogetherappropriaterepresentativesfromlocalStrategicCoordinatingGroups,orotherrelevantorganisations
Inthemostseriouscircumstances,theremaybeaneedtoconveneaRegionalCivilContingenciesCommittee(RCCC)tosupportresponseandrecoveryactivityacrosstheregion.Thiswouldnormallyonlyhappenwherethelocalresponsehasbeen,ormaybe,overwhelmed,orwherethereisaneedforaconsistent,structuredapproachnormallyacrosstwoormoreregions
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TheroleofanRCGorRCCCwouldbeto:
■■ collateandmaintainastrategicpictureoftheevolvingsituationwithintheregion,withaparticular(butnotexclusive)focusonconsequencemanagementandrecoveryissues;
■■ assesswhetherthereareanyissueswhichcannotberesolvedatalocallevel;
■■ facilitatemutualaidarrangementswithintheregionand,wherenecessary,betweenregions;
■■ ensureaneffectiveflowofcommunicationbetweenlocal,regionalandnationallevels,includingtheco-ordinationofreportstothenationallevelontheresponseandrecoveryeffort;
■■ raisetoanationallevelanyissuesthatcannotberesolvedatalocalorregionallevel;
■■ ensurethatthenationalinputtoresponseandrecoveryisco-ordinatedwiththelocalandregionalefforts;
■■ guidethedeploymentofscarceresourcesacrosstheregionbyidentifyingregionalpriorities;and
■■ provide,whereappropriate,aregionalspokesperson.
TheRCG/RCCCwouldnotinterfereinlocalcommandandcontrolarrangements.Butitmightinformthedeploymentofnationalresources–itmight,forexample,takeaviewontheneedformilitaryaidandonprioritieswithintheregionforsuchaidifandwhengranted.
International assistance mechanisms
TheCabinetOfficeistheUK’snationalpointofcontactforEUandNATOcivilprotectionarrangements.Theseincludemutualaidarrangementsthatcanbeusedintheeventofadisastertoshareinformationandfacilitaterequestsandoffersofassistance.IntheeventofadisasterwhichoverwhelmsUKresponsecapabilities,COBRcouldconsidertheneedforinternationalassistanceandoffersreceived.
TheEU Civil Protection Mechanismisalegalframeworkenablingparticipatingstates(the27EUMemberStates,plusNorway,Iceland,LichtensteinandCroatia)toprovideassistancetoeachotherandtothirdcountriesindisasters.TheMechanism’sscopeincludestheEuropeanCommission’sMonitoring and Information Centre(MIC)asameansofmatchingrequeststooffersofassistanceinternationallythroughtheCommonEmergencyCrisisandInformationSystem(CECIS),aweb-basedinformationsharingsystem.
TheNATO Euro-Atlantic Disaster Response Co-ordination Centre(EADRCC),liketheEUMIC,co-ordinatesresponsestodisastersintheEuroAtlanticPartnershipCouncil(EAPC)areaandisafocalpointforinformationsharingamongEAPCcountries.
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Section 3:Whatemergencyplannersandrespondersneedtoknowaboutthelegalframework
■■ TheCivilContingenciesAct2004
– Part1oftheCCA
– Part2oftheCCA(EmergencyPowers)
– WanttoknowmoreabouttheCCA?References
■■ TheReservoirsAct1975
– RequirementsoftheReservoirsAct1975
– EnforcementoftheReservoirsAct1975
– TheeffectoftheFloodandWaterManagementAct2010:changestotheReservoirsAct
– WanttoknowmoreabouttheReservoirsAct?References
22 Part1-UnderstandingFloodEmergencyPlanningandResponse
Thereareanumberofimportantpiecesoflegislationthatimpactonfloodemergencyplanningandresponse.Thekeyones,coveredinthissection,are:
■■ The Civil Contingencies Act 2004;and
■■ The Reservoirs Act 1975.
TheReservoirsAct1975ActwasamendedbytheFlood and Water Management Act 2010.Theamendmentsinthe2010Acthaveyettobecommenced,sodonotcurrentlyhaveeffect.
The Civil Contingencies Act 2004
TheCivil Contingencies Act 2004(CCA),andaccompanyingnon-legislativemeasures,deliversasingleframeworkforcivilprotectionintheUnitedKingdomcapableofmeetingthechallengesofthetwenty-firstcentury.TheActisseparatedintotwosubstantiveparts:localarrangementsforcivilprotection(Part 1)andemergencypowers(Part 2).TheCabinetOfficeisreviewingPart1oftheCivilContingenciesAct.
Part 1 of the CCA
Part1oftheActandsupportingRegulationsandstatutoryguidanceestablishaclearsetofrolesandresponsibilitiesforthoseinvolvedinemergencypreparationandresponseatthelocallevel.TheActdivideslocalrespondersintotwocategories,imposingadifferentsetofdutiesoneach.
ThoseinCategory1areorganisationsatthecoreoftheresponsetomostemergencies(e.g.emergencyservices,localauthorities,NHSbodies).Category1respondersaresubjecttothefullsetofcivilprotectionduties.Theyarerequiredto:
■■ assesstheriskofemergenciesoccurringandusethistoinformcontingencyplanning;
■■ putinplaceemergencyplans;
■■ putinplaceBusinessContinuityManagementarrangements;
■■ putinplacearrangementstomakeinformationavailabletothepublicaboutcivilprotectionmattersandmaintainarrangementstowarn,informandadvisethepublicintheeventofanemergency;
■■ provideadviceandassistancetobusinessesandvoluntaryorganisationsaboutbusinesscontinuitymanagement(LocalAuthoritiesonly);
■■ shareinformationwithotherlocalresponderstoenhanceco-ordination;and
■■ co-operatewithotherlocalresponderstoenhanceco-ordinationandefficiency.
23NationalFloodEmergencyFrameworkForEngland
Category2organisations(e.g.HealthandSafetyExecutive,transportandutilitycompanies)areregardedas“co-operatingbodies”andarelesslikelytobeinvolvedintheheartofplanningworkbutwillbeheavilyinvolvedinincidentsthataffecttheirsector.Category2responderssharethelasttwodutieslistedabovewithotherCategory1and2responders.Thatis,theymust:
■■ shareinformationwithotherlocalresponderstoenhanceco-ordination;and
■■ co-operatewithotherlocalresponderstoenhanceco-ordinationandefficiency.
TheCivil Contingencies Act 2004 (Contingency Planning) Regulations 2005establishtheLocalResilienceForum,theprincipalmechanismformulti-agencyresiliencework.Category1and2organisationscometogethertoformLocalResilienceForums(basedonpoliceareas)whichhelpco-ordinationandco-operationbetweenrespondersatthelocallevel.
ThebulkofPart1oftheActwasbroughtintoforceinNovember2005(thedutyonlocalauthoritiestoprovideadviceandassistancetobusinessandvoluntaryorganisationsaboutbusinesscontinuitymanagementcommencedinMay2006).
Part 2 of the CCA (Emergency Powers)
Part2oftheCCAupdatesthe1920EmergencyPowersActtoreflectthedevelopmentsintheinterveningyearsandthecurrentandfutureriskprofile.Itallowsforthemakingoftemporaryspeciallegislation(emergencyregulations)tohelpdealwiththemostseriousofemergencies.Theuseofemergencypowersisalastresortoptionandplanningarrangementsatthelocallevelshouldnotassumethatemergencypowerswillbemadeavailable.Theiruseissubjecttoarobustsetofsafeguards-theycanonlybedeployedinexceptionalcircumstances.Theso-called‘triplelock’ensuresemergencypowerswillonlybeavailableif:
■■ anemergencythatthreatensseriousdamagetohumanwelfare,theenvironmentorsecurityhasoccurred,isoccurringorisabouttooccur;
■■ itisnecessarytomakeprovisionurgentlyinordertoresolvetheemergencyasexistingpowersareinsufficientanditisnotpossibletobringforwardaBillintheusualwaybecauseoftheneedtoacturgently;and
■■ emergencyregulationsareproportionatetotheaspectoreffectoftheemergencytheyaredirectedat.
Inaddition,emergencyregulations:
■■ cannotprohibitorenabletheprohibitionin,oranyactivityinconnectionwith,astrikeorotherindustrialaction;
■■ cannotinstigateanyformofmilitaryconscription;
24 Part1-UnderstandingFloodEmergencyPlanningandResponse
■■ cannotalteranyaspectofcriminalprocedures;
■■ cannotcreateanynewoffenceotherthanbreachoftheregulationsthemselves;
■■ mustbecompatiblewiththeHumanRightsActandEUlaw;and
■■ areopentochallengeinthecourts.
Emergencypowerscanbeusedonaregionaland/ordevolvedadministrationbasis.TheCCAalsorequirestheappointmentofa‘RegionalNominatedCoordinator’(‘EmergencyCoordinator’inthedevolvedadministrations).Ifemergencypowersareused,he/shewillactasthefocalpointforco-ordinationofresponseeffortsattheregionalordevolvedadministrationlevel.
Want to know more about the CCA? References
YoucanfindoutmuchmoreabouttheCivilContingenciesActontheCabinet Office’s UK Resilience web pages.Specificreferencematerialyoumaywanttoaccessfromtimetotimeincludes:
■■ Civil Contingencies Act, A Short Guide(broaddescriptionofbothPart1andPart2oftheCCA);
■■ Civil Contingencies Act, 2004;
■■ Explanatory notes to the CCA;
■■ Civil Contingencies Act 2004 (Contingency Planning) Regulations 2005;
■■ Civil Contingencies Act 2004 (Contingency Planning) Regulations 2005, Explanatory Memorandum;
■■ Emergency Preparedness, Guidance on Part 1 of the Civil Contingencies Act 2004,itsassociatedRegulationsandnon-statutoryarrangements;and
■■ Details of CCA arrangements in place in the Devolved Administrationsandlinkstotheirwebsites.
The Reservoirs Act 1975
SafetylegislationforreservoirsintheUnitedKingdomwasfirstintroducedin1930afterseveralreservoirdisastershadresultedinlossoflife.ThisActwassupersededbytheReservoirs Act 1975,whichtodayprovidesthelegalframeworktoensurethesafetyoflargeraisedreservoirsandappliestoreservoirsthatholdatleast25,000cubicmetresofwaterabovenaturalgroundlevel.
25NationalFloodEmergencyFrameworkForEngland
Requirements of the Reservoirs Act 1975
UndertheReservoirsAct,reservoirowners(Undertakers)haveultimateresponsibilityforthesafetyoftheirreservoirs.TheymustappointaPanelEngineer(aspecialistcivilengineerwhoisqualifiedandexperiencedinreservoirsafety)tocontinuouslysupervisethereservoir(SupervisingEngineer)andtocarryoutperiodicinspections(InspectingEngineer).APanelEngineermustalsobeappointedtodesignandconstructanewreservoirorrepairormakechangestoanexistingreservoir(ConstructionEngineer).
Aperiodicinspection,byanInspectingEngineer,isrequiredeverytenyearsormorefrequentlyifnecessary.Asaresultofthatinspection,asafeoperatingregimewillbespecifiedandworksrequiredintheinterestsofsafetymayberecommended.
ASupervisingEngineerisrequiredtosupervisetheoperationandmaintenanceofthereservoirandproduceanannualstatement.TheSupervisingEngineercanrecommendthataperiodicinspectioniscarriedout.
Forreservoirsbelowthethresholdof25,000cubicmetres,regulationismanagedbytheHealthandSafetyExecutive(undertheHealthandSafetyatWork(etc)Act1974)andLocalAuthorities(undertheBuildingAct1984).
Enforcement of the Reservoirs Act 1975
Priorto1stOctober2004theenforcementoftheActinEnglandandWaleswastheresponsibilityof136LocalAuthorities.ThisroleattractedvaryingresponsesfromtheLocalAuthorities,oftencoordinatedbydifferentdepartments.ThisledtoaninconsistentapplicationoftheActandhighlightedtheneedforconsistencyofregulationtobeprovidedbyasinglebody.ThisrequirementwasrecognisedbyanindustryreviewoftheReservoirsAct1975andreportedtogovernmentandpubliclyviatheBritishDamSocietyin1996.
TheEnvironmentAgencyisnowresponsiblefortheenforcementoftheReservoirsAct1975inEnglandandWales.The Water Act 2003transferredthisresponsibilityfromlocalauthoritiesfrom1October2004.
AstheEnforcementAuthority,theEnvironmentAgencyisresponsiblefor:
■■ maintainingaregisterofreservoirs,andmakingthisinformationavailabletothepublic;
■■ ensuringthattheUndertakerhasappointedaSupervisingEngineer;
■■ ensuringthattheUndertakercommissionsregularinspectionsofthereservoirbyanInspectingEngineer;
■■ enforcingtheReservoirsAct1975byinfluencing,warning,cautioningandultimatelyprosecutingnon-compliantUndertakers;
26 Part1-UnderstandingFloodEmergencyPlanningandResponse
■■ commissioningessentialworksrequiredintheInterestsofSafetyintheeventofnon-complianceandrecoupingfullcostsincurredfromtheUndertaker;
■■ producingaBiennialReporttotheDepartmentforEnvironment,FoodandRuralAffairs(Defra)andtotheWelshAssemblyGovernment;and
■■ actinginanemergencyiftheUndertakercannotbefound.
The effect of the Flood and Water Management Act 2010: changes to the Reservoirs Act
TheReservoirsAct1975ActwasamendedbytheFlood and Water Management Act 2010.Theamendmentsinthe2010Acthaveyettobecommenced,sodonotcurrentlyhaveeffect,butwhencommencedtheywill:
■■ placearequirementforallreservoirsaboveaminimumvolumecapacity(reducedto10,000cubicmetresfrom25,000cubicmetres)tobeincludedonanEnvironmentAgencyregister;
■■ requiretheEnvironmentAgencytoclassifyeachrelevantreservoiraccordingtowhethertheyposeathreattohumanlife,ormeettechnicalconditions(tobespecified)whichineffectmeantheriskisnegligible;
■■ specifythedutiesofreservoirundertakers;and
■■ specifypanelengineers’dutiesinrelationtothesereservoirsbasedonthelevelofrisk.
Want to know more about the Reservoirs Act? References
SpecificreferencematerialontheReservoirsAct1975thatyoumaywanttoaccessfromtimetotimeincludes:
■■ thefulltextoftheReservoirs Act 1975;
■■ thefull text of the amendments in Schedule 4 of the Flood and Water Management Act 2010; and
■■ Various information on the Reservoirs Act 1975 and reservoir safety on the Environment Agency’s website.
27NationalFloodEmergencyFrameworkForEngland
■■ Whatyoucanexpectfromcentralgovernmentandwhodoeswhat
■■ Whatyoucanexpectfromcentralgovernmentgenerally
– WhatyoucanexpectfromDefraastheLeadGovernmentDepartmentforflooding
– WhatyoucanexpectfromtheGovernmentOfficesfortheRegions
– WhatyoucanexpectfromtheDepartmentforCommunitiesandLocalGovernment
– WhatyoucanexpectfromtheEnvironmentAgency
– WhatyoucanexpectfromtheFloodForecastingCentre
– WhatyoucanexpectfromtheMetOffice
– WhatyoucanexpectfromtheDepartmentofHealth
– WhatyoucanexpectfromtheHealthProtectionAgency
– WhatyoucanexpectfromtheDepartmentforTransport
– WhatyoucanexpectfromtheHighwaysAgency
– WhatyoucanexpectfromtheDepartmentforBusiness,InnovationandSkills
– WhatyoucanexpectfromtheDepartmentforEnergyandClimateChange
– WhatyoucanexpectfromtheMinistryofDefence
■■ Nationalemergencymanagement:workingwiththedevolved
administrations
Section 4:Whatemergencyplannersandresponderscanexpectfromcentralgovernment
28 Part1-UnderstandingFloodEmergencyPlanningandResponse
What you can expect from central government and who does what
Seriousfloodingemergenciesrequireco-ordinatedmulti-agencyresponses,clearlinesofdemarcationandquickdecisionmaking–oftenbyindividualorganisationsbutsometimescollectively.Centralgovernmentdepartments,andtheiragencies,contributetothosemulti-agencyresponsesbuthavedifferentrolestoplay,basedontheirpolicyresponsibilities,expertise,experienceandpowers.
ThissectionoftheNationalFloodEmergencyFrameworkisdesignedtohelpemergencyplannersandrespondersunderstandthedivisionofresponsibilitieswithincentralgovernmentanditsagenciesandtohelpyoutoknowwheretogoforinformation,adviceandassistance.
What you can expect from central government generally
Nationalfloodingemergenciesrequirecentralgovernmenttoworksingularlyandcollectively.Collectively,theoverallstrategicobjectivesofthegovernment’sinvolvementaretoensurethatitwill:
■■ reactwithspeedanddecisiveness;
■■ respectlocalknowledgeanddecision-makingwhereverpossible,withoutlosingsightofthenationalstrategy;
■■ prioritiseaccesstoscarcenationalresources;
■■ usedataandinformationmanagementsystemstogainanationalpictureandsupportdecisionmaking,withoutoverburdeningfront-lineresponders;
■■ basepolicydecisionsonthebestavailablescienceandensurethattheprocessesforprovidingscientificadvicearewidelyunderstoodandtrusted;
■■ drawonexistinglegislationtorespondeffectivelytotheevent,andconsidertheneedforadditionalpowers;
■■ applyriskassessmentmethodologyandcostbenefitanalysiswithinanappropriateeconomicmodeltoinformdecision-making;
■■ workwithinternationalpartnerstoshareinformationandrequestassistanceifnecessary;and
■■ explainpolicies,plansandpracticesbycommunicatingwithinterestedparties(includingthepublic)comprehensively,clearlyandconsistentlyinatransparentandopenwaythataddressesnationalandlocalconcernswhileencouragingandlisteningtofeedback.
29NationalFloodEmergencyFrameworkForEngland
What you can expect from Defra as the Lead Government Department for flooding
WithinUKcentralgovernment,departmentsdelivertheirresponsibilities(generallythroughlocalagencies)andareaccountabletoParliamentfortheireffectivedelivery.Thisincludeseffectivelymanagingemergenciesaffectingtheirresponsibilities.Onedepartment–theLeadGovernmentDepartment(LGD)-usuallytakesoverallresponsibilityforassessingthesituation,ensuringthatMinistersarebriefed,handlingmediaandparliamentaryinterest,andprovidingco-ordinatedpolicyandothersupportasnecessarytolocalresponders.OthergovernmentdepartmentswillprovidesupporttotheLGDtoensureaco-ordinatedresponse;however,individualdepartmentswillremainresponsible,includingtoParliament,fortheirparticularpolicyareas.
DefraistheLeadGovernmentDepartmentforfloodemergenciesinEngland.TheCabinetOfficedocumentThe Lead Government Department and its role – Guidance and Best Practicesetsouttherequirementsforhandlinganevent.
Figure 4.1:RoleoftheLeadGovernmentDepartment
Role of the Lead Government Department
Maintain a state of readiness.
Thisentails:
■■ buildinguptheDepartment’sresiliencetoshocksanditscapacitytoleadtheresponse;
■■ identifyingandmaintainingthecapabilitiesthatlocalrespondersandthoseateachlevelofcrisismanagementcancallupon;
■■ maintainingpress/publicinformationcontacts,sothattheDepartmentisinapositiontoeffectivelyco-ordinatethepress/publicinformationeffortduringacrisis;
■■ planningforandleadingnegotiationswiththeTreasuryforanynecessaryadditionalfunds;and
■■ keepingawareofthechangingsetofrisks,threatsandvulnerabilitieswhichbearuponitsfieldsofresponsibility.
30 Part1-UnderstandingFloodEmergencyPlanningandResponse
Move into action immediately an emergency arises, where central government co-ordination is required
Thisentails:
■■ actingasthefocalpointforcommunicationbetweencentralgovernmentandthemulti-agencystrategicco-ordinatinggroup(s)ontheground;
■■ producingabrief,accuratesituationreportsonthenatureandscaleoftheemergencyandahandlingplan;
■■ drawinguponandapplyingtherelevantcapabilitiesapplicabletotheemergencyinhand;
■■ takingwhateverexecutivedecisionsandactionsareneededfromthecentretohandletheemergencyortohelpthelocalresponderstodealwithit;
■■ actingasthefocalpointforinformationflows;
■■ co-ordinatinganddisseminatinginformationforthepublicandthemediaatthenationallevel;
■■ accountingtoParliamentandleadinginthesubmissionofevidencetoanysubsequentgovernment-appointedinquiry;and
■■ learningandsharingthelessonsfromtheemergency.
Inlinewiththearrangementsforapplicationofthecentralgovernmentmachinery,Defrawillnormallyco-ordinatethecross-governmentresponsetolowerlevelnationalfloodingevents(serious–level1(seesection2))andwillhandleitwithintheDepartment.Level2events(significant)willstillbeco-ordinatedbyDefrabutthroughCOBR.Moreseriousevents(level3-catastrophic)willbefullyescalatedtocentralco-ordinationbytheCivilContingenciesSecretariat,withDefrasupport,withinCOBR.
Deframaintainsa24hour,7dayaweeksystemdutyrotaforreceivingreportsofpossibleoractualflooding,withcloseworkingbetweentheDefraDutyOfficerandtheEnvironmentAgency.Defra’spermanentemergenciesteamtakestheleadwhenseriousfloodingisimminentorhasalreadyhappened(intheeventofunexpectedsevereweatherforexample)andmaintainscloseliaisonwiththeEnvironmentAgency’sincidentteams.
DefrahasadedicatedEmergencyOperationsCentre(EOC)locatedinLondon,withpermanentlyavailableITandcommunicationscapabilities.
AswellashavingaLeadDepartmentrole,DefrastaffmustalsoconsidertheimpactsofapotentialoractualfloodingemergencyonwiderDefrapolicyinterests,includinganimalwelfare,farmbusinesses,countrysideaccess,watersupplyandruralcommunities.SoitisimportantthatallrelevantpolicyleadsinDefraareengagedintheemergencyresponseto:
31NationalFloodEmergencyFrameworkForEngland
■■ assesstheimpactofthefloodingfortheirpolicyarea;
■■ dischargetheirnormalpolicyandregulatoryresponsibilitiesthroughouttheresponsetotheemergency;
■■ co-ordinatetheirresponseactivitieswithstakeholdersbothinsideandoutsideDefra;
■■ disseminateinformationabouttheirspecificactivities;and
■■ contributetocross-Defraco-ordination.
Animportantaspectofanyfloodingeventisthebringingofemergencyoperationstoaclose.Defra(andothergovernmentdepartments)willbegintoscaledowntheirinvolvementintheresponseassoonasMinistersaresatisfiedthatitisprudenttodoso.Thisislikelytodependon:
■■ theimmediateemergencyhavingpassed;
■■ satisfactorycross-governmentrecoveryarrangementsbeinginplace;
■■ localresourcesbeingadequatetomanagethesituation;and
■■ formalarrangementsbeinginplacetolearnlessonsfromthefloods.
TheDepartmentforCommunitiesandLocalGovernmentistheLeadGovernmentDepartmentforfloodrecovery(seeseparateentrylaterinthissection).
AnotherimportantaspectofDefra’sLeadDepartmentroleistoensurethatfloodemergencymanagementprocessesareexercisedatanappropriatefrequency.
ThefollowingtableprovidesasummaryofwhatyoucanexpectfromDefra.
Figure 4.2:WhatyoucanexpectofDefra
Stage Defra actions
Preparing for flooding
■■ EnsuringthatstructuresandresourcesareinplacesothatthattheFloodManagementteamandotherpartsofDefracanplaytheirpartinrespondingtoafloodingevent.
■■ EncouragingLocalResilienceForums(LRFs)toprepareappropriateemergencyplansforfloodingandprovidingguidance.
■■ Ensuringcentralgovernmenthasappropriatenationalplanningassumptionsforflooding.
■■ Planningandparticipatinginemergencyexercises.
32 Part1-UnderstandingFloodEmergencyPlanningandResponse
Stage Defra actions
When flooding is forecast
■■ UsingFloodForecastingCentre,EnvironmentAgencyandMetOfficereportstoanticipateevents(andtheirlikelyscale)asfaraspossible–and,onthatbasis,raiselevelsofpreparednessincentralgovernment.
■■ Initiatingcommunicationsacrosscentralgovernment,includingpressofficesandprovidingsituationreports.
When flooding happens
■■ AdvisingDefraSeniorManagement,Ministers,othergovernmentdepartmentsandagenciesonthedevelopingscaleofevents.
■■ EnsuringeffectivecommunicationswithParliament,thenewsmediaandothers.
■■ CollectingbriefingontheimpactsofthefloodingonallDefrainterests.
■■ WorkingwithCabinetOfficeonescalatingorde-escalatingthecentralgovernmentresponse.
■■ Co-ordinatingthecross-governmentandmulti-agencyresponsetotheflooding.
■■ FacilitatingMinisterialandotherVIPvisitstotheaffectedareas.
■■ Ensuringthatclearresponsibilitiesareestablishedforoverseeingrecoveryandaftermathissues.
When flooding subsides
■■ LiaisingwiththeDepartmentforCommunitiesandLocalGovernment(CLG)onrecoverymatters.
■■ Advisingonfollow-upMinisterial/VIPvisits.
■■ Ensuringarrangementsareinplaceforidentifyinganylessonstobelearned.
What you can expect from the Government Offices for the Regions
heUKcentralgovernmentresponseandsupportduringanemergencyisprovidedthroughanumberofdifferentorganisationsandagenciesincludingUKcentralgovernmentdepartments,theGovernmentOfficesinEngland,DevolvedAdministrationsandlocalresponsepartners.
TheGovernmenthasannounceditsintentioninprincipletoabolishtheGovernmentOfficesfortheregions,subjecttothesatisfactoryresolutionofconsequentialissues.Thefinaldecisionsonthefuture,includingarrangementsfortransferofon-goingfunctions,willbemadeattheendoftheSpendingReviewintheautumn.Inmakingtheannouncement,theGovernmentnotedthatsomeGovernmentOfficefunctions,suchasarrangementsforresilienceandcivilcontingencies,willneedtocontinue.
33NationalFloodEmergencyFrameworkForEngland
Untilnewarrangementsareputinplace,theGovernmentOffices(GOs)willrepresentcentralgovernmentintheEnglishregions,bringingtogetherstaffandactivitiesfromthevariousgovernmentdepartmentsoperatingineachregion.RegionalResilienceTeams(RRTs)havebeenestablishedwithineachoftheGOstoco-ordinatetheresponseofthewholeGOduringanemergency.TheyareresponsibleforactivatingRegionalOperationCentreswhererequired,supportinglocalresponseandrecoveryefforts,andensuringthatthereisanaccuratepictureofthesituationintheirregion.
RRTsarethefirstplacethatgovernmentdepartmentsturntoforsituationreportsonfloodingemergencies.RRTsinturnlooktolocalrespondersforthisinformation.Inordertoensureaneffectivetwo-wayflowofinformationbetweenlocalrespondersandcentralgovernmentinanemergency,GOsmayplaceaGovernmentLiaisonOfficer(GLO)withinthelocalStrategicCoordinatingGroup(SCG)setuptomanageanemergency.
Informationflowsmustbetwo-wayhowever.SogovernmentdepartmentsmayuseGOstocascadeinformationandguidancetolocalresponders.TheGOshavesubstantialknowledgeandexperienceoftheworkingsofcentralgovernmentandsoprovideavaluablefirstportofcallforadviceandguidance.
Themechanismsforalerting,mobilisingandinformationsharingbetweenlocalrespondersandtheGOwillbesetoutinRegionalResponsePlans,agreedforeachregion.Theplanswilloutlineproceduresfor:activatingtheemergencymanagementfacilitiesintheGO;whennecessary,activatingRegionalCoordinatingGroupsand/orRegionalCivilContingenciesCommittee(seesectiontwoformoreonRCGsandRCCCs);andcommunicatingwiththelocallevel,otherregionsandcentralgovernment.
GOscanprovideparticularsupportinrelationtoconsequencemanagement-wherethescaleandnatureofafloodingincidentissuchthattheeffectsarelikelytobefeltoutsidetheimmediatelocalityormayoverwhelmthelocalresponse-andinareassuchasarrangingMinisterialorVIPvisits.TheyworkcloselywiththeCentralOfficeofInformation(COI)intheregionsand,withtheirlinkstogovernmentdepartments,canhelplocalresponderstoensurethatacoordinatedandcoherentmessageisgiventothepublic.
GOsplayanimportantroleincross-regionalco-ordination,liaisingwithotherGOsand/ortheDevolvedAdministrations(DAs)tosupporttheresponseeffortduringfloodingemergenciesaffectingmorethanoneregionorspanningtheborderwithScotlandorWales.
What you can expect from the Department for Communities and Local Government
Duringamajorincident,theDepartmentforCommunitiesandLocalGovernment(CLG)willliaisewiththeRegionalResilienceTeamsand:
■■ updatethemondecisionsmadeatCOBR;
■■ actasaconduitforinformationsentfromalocalandregionalleveltocentralgovernment;and
34 Part1-UnderstandingFloodEmergencyPlanningandResponse
■■ representregionalviewsatCOBRasnecessary,ensuringthatregionalsituationreportsarefedintonationalreportingmechanisms.
CLGalsohasakeyroleinco-ordinatingFireServiceAssetsataNationalLevel.CatastrophicandlargescaleincidentsplacesignificantdemandsonlocalFireandRescueServicesandhaveoftenrequiredanationalco-ordinatedresponsefromacrossthecountry.TheNational Co-ordination and Advisory Framework(NCAF)providessupportandadvicetotheFireandRescueServicesandCentralGovernmentduringincidentsthatareofnationalsignificanceand/orrequirenationalco-ordination.
CLG'sChiefFireandRescueAdviser(CFRA)willberesponsiblefortheco-ordinationandadvisoryframeworkstructureduringincidentsofnationalsignificanceand/orrequirenationalco-ordination.
DuringactivationtheCLGEmergencyRoomwillbeconsideredasthehuboftheNCAFarrangementsandwillprovidesupportfortheChiefFireandRescueAdviser(CFRA)andtheCLGResilienceTeam.
CLGhasaspecificroleintherecoveryphasefromafloodingemergency,wherecentralgovernmentco-ordinationisrequired,CLGwilltakeontheroleofLeadGovernmentDepartmentforrecovery.InthisroleCLGwill:
■■ actasthefocalpointforcommunicationbetweencentralgovernmentandthemulti-agencyrecoveryco-ordinatinggroup(s)atlocallevel;
■■ agree,acrossgovernment,clearaimsandobjectivesfortherecoveryprocess,includingcriteriaforstandingdownrecoverymechanismsandstructures;
■■ ensurethatrecoveryissuesareidentifiedandactedonduringtheresponsephaseofanemergencyandthatthereisasmoothandeffectivehandoverfromresponsetorecovery;
■■ producebrief,accuratesituationreportsonthenatureandscaleoftheemergency;
■■ produceahandlingplanassoonaspossible;
■■ drawuponandapplytherelevantcapabilitiesapplicabletorecoveryfromtheemergencyinhandand,ifrequired,co-ordinatethesupportneededfromothergovernmentdepartmentsandagenciesthroughCOBR;
■■ useitsauthoritydecisivelytotakewhateverexecutivedecisionsandactionsareneededfromthecentretohelpthelocalresponderstodealwithit;
■■ co-ordinateanddisseminateinformationforthepublicandthemediaatthenationallevel,collaboratingwithothergovernmentdepartments,includingtheNewsCo-ordinationCentrewhenactivatedandtheCivilContingenciesSecretariat;
■■ accounttoParliamentandleadinthesubmissionofevidencetoanysubsequentgovernment-appointedinquiry;and
35NationalFloodEmergencyFrameworkForEngland
■■ learnandsharethelessonsfromtheemergency.
What you can expect from the Environment Agency
TheEnvironmentAgencyistheprincipalfloodriskmanagementoperatingauthorityinEnglandandWales,withpowerstoprovidemeasurestoreducetheriskoffloodingonriversandtidalwatersandtoprovideastrategicoverviewoncoastalerosion-soontoextendtofloodingfromotherinlandsources.
Incarryingoutthisrole,andwithparticularregardtofloodemergencyplanning,theAgencywill:
■■ communicatetheriskoffloodingtoincreasetheawarenessofpeopleliving,workingandtravellinginfloodriskareassothattheycantakestepstopreparethemselvesandtheirpropertiesforflooding;
■■ workwithcivilcontingencypartnersandcriticalnationalinfrastructureoperatorstohelpthemunderstandtheriskoffloodingintheirlocality,byprovidingflooddataandmappingandtohelpthemtodevelopfloodresponseplanswhererequired;
■■ workwithspatialplannersandadvisedevelopersonimprovingthedevelopmentoflocationssothatfloodresistance,resilienceandsafeaccessandescapeareputinplace;
■■ provideanddevelopfloodforecastingandwarningservices,currentlyforfluvialandcoastalflooding,sothatpriornoticeoffloodingcanbeprovidedtocivilcontingencypartners,businessandthepublic;
■■ operateitsflooddefencessothatprotectionfromfloodingcanbeputinplace;and
■■ provideoperationalsupporttootherresponseorganisationswhereresourcesallow.
What you can expect from the Flood Forecasting Centre
TheFloodForecastingCentre(FFC)isapartnershipbetweentheEnvironmentAgencyandtheMetOffice,combiningtheorganisations’meteorologyandhydrologyexpertisetoforecastforriver,tidalandcoastalflooding,aswellasextremerainfallwhichmayleadtosurfacewaterflooding.
Withadedicatedteaminonenationalcentre,theFFCprovidesthebestpossibleintelligenceandsupporttoexistingEnvironmentAgencyfloodwarningsandMetOfficeweatherwarningservicesforEnglandandWales.Bycombiningknowledgeandexperience,theFFChasimprovedtheabilitytodelivercountrywidelongerleadtimefloodalertsandmoreaccurate,targetedinformationtoCategory 1 and 2 responders.Thiswillprovidepeopleinareasatriskoffloodingwithmoretimetoprotectthemselvesandtheirhomesfromtheeffectsofflooding.
MoredetailedinformationonfloodpredictiontoolsisincludedelsewhereintheNationalFloodEmergencyFramework.ButthefollowingprovidesasummaryoftheFFC’smainservices.
36 Part1-UnderstandingFloodEmergencyPlanningandResponse
Extreme Rainfall Alert (ERA) Service-thisistoalertemergencyrespondersinEnglandandWalestothepossibilityofurbansurfacewaterfloodingasaresultofextremerainfall.Thealertisissuedatcountyleveltohelplocalresponseorganisationsmanagethepotentialimpactsofflooding.
ERAsareissuedwhentheprobabilityofextremerainfallis20%orgreaterfortheaffectedcounty,withupdatesandcancellationstoalertsasandwhenrequired.Whenthereisbetweena10%and20%probabilityofextremerainfall,extremerainfallguidanceisincorporatedintheFloodGuidanceStatementreferredtobelow.
TheFFChasproducedanERA Services User Guidetohelpitscustomersinterprettheinformationtheyreceiveandputitintorelevantcontextfortheirareas.
AnyCategory1or2respondercanregisterfortheERAServicebycalling03001234501oremailingffcenquiries@environment-agency.gov.ukwiththeirnameandorganisationcontactdetails.
The Flood Guidance Statement–thisprovidesinformationforCategory1and2responderstohelpthemwiththeirplanningdecisions.ItpresentsanoverviewofthefloodriskacrossEnglandandWalesoverfivedaysandidentifiespossiblesevereweather,whichcouldcausefloodingandsignificantdisruptiontonormallife.
Statementsareissueddailyatthefollowingtimes:
■■ verylowandlowrisksituations—10.30hrs;
■■ mediumrisksituations—10.30and15.00hrs;and
■■ highrisksituations—10.30,15.00and20.00hrsand/orasagreedwithNationalIncidentRooms.
SeethisSample Flood Guidance Statement.
TheFFChasproducedaFlood Guidance Statement User Guidetohelpitscustomersinterprettheinformationtheyreceiveandputitintorelevantcontextfortheirregions.
AnyCategory1or2respondercanregister onlinetoreceivedailyFloodGuidanceStatementsorbycalling03001234501oremailing ffcenquiries@environment-agency.gov.ukwiththeirname,organisationandcontactdetails.
Web Service-TheFFC’sWebServiceprovidessecuredeliveryofinformationtotheemergencyresponsecommunityinEnglandandWales.Productsaremadeavailabletoregisteredusersinoneeasytoaccessandsecurelocation.
TheserviceiscurrentlyavailabletoallNationalSevereWeatherWarningService(NSWWS)usersviatheirexistinglogindetails,aswellastoCategory1and2responderswhowishtosignup.ToregisterfortheWebServicecontacttheFFCon03001234501
37NationalFloodEmergencyFrameworkForEngland
What you can expect from the Met Office
TheMetOfficeistheofficialsourceofmeteorologicalinformationintheUK.Witharesilient24/7capabilityitprovidesanumberofservicesthathelpauthoritiespreparefor,andrespondto,floodemergencies.
TheMetofficewillprovidebriefingsonthemeteorologicalsituationtoGovernment(includingCOBRwhenactivated–seesection2)asrequiredandwilldeployateamofregionallybasedPublicWeatherService(PWS)Advisorstoworkwiththeemergencyplanningcommunityto:
■■ discusspredictedorongoingsevereweathereventstohelpemergencyrespondersassesstheriskintheirparticularareaandputpreparationsinplacetomitigatetheimpacts;
■■ ensureemergencymanagementteamsareawareofallothermeteorologicalfactorswhichcouldaffecttheincidentandtheirpotentialimpact;
■■ ensuretheconsistencyofmeteorologicalinformationandthatallresponderswithintheCommandandControlCentreusethisinformation;
■■ interpretthisinformationfortheresponderswhererequired;
■■ sourceotherscientificadviceavailablefromtheMetOfficeandactasapointofcontactbetweentheMetOfficeandtheresponders,therebyfreeinguptheresponders’resourcesandallowingthemtofocusonincidentmanagement;and
■■ ifrequiredandappropriate,arrangeforroutineforecastsandotherinformationtobesuppliedtoaidtherecoveryphase.
TheMetOfficewillalsoprovidespecificadditionalinformationviaanEmergencySupportWebsitetoenableeffectivedecisionmakingduringanevent.
WeatherinformationandtheNationalSevereWeatherWarningServiceareavailabletothepublicthroughtheMet Office websiteandtelevisionbroadcasts.
TheMetOfficealsohasanEmergency Support service-afree-at-point-of-useservice,designedmainlyforCategory1and2Responderstoaidtheworkofincidentmanagementteamsindealingwithavarietyofenvironmentalemergenciessituations,includingflooding.TheserviceisdesignedtosupplementtheroleofthePWSAdvisorsinprovidingconsistentweatherrelatedinformationandinterpretationfortheUKEmergencyResponsecommunity.
38 Part1-UnderstandingFloodEmergencyPlanningandResponse
TheEmergencySupportserviceisweb-basedandprovidestwotypesofinformation:
■■ up-to-dateobservationsandforecastinformation,automaticallyupdated,including:
–– rainfallradardata;
–– real-timerain-gaugeobservations;
–– forecastrainfalldata;
–– windobservations;
–– forecastwinddata;
–– severeweatherwarnings;and
–– lightningdetectioninformation.
■■ emergencyevent-specificcontent:
–– specificallygeneratedproductsandguidancerelevanttoaparticularemergencyevent.
TheEmergencySupportserviceshouldonlybeusedinconjunctionwiththeadviceofaPWSAdvisor.Whileitisdesignedtoprovideaneasy-to-access,up-to-datesourceofinformation,aPWSAdvisorshouldbeconsultedforadviceoninterpretationandguidanceonthemostappropriateresponse.
What you can expect from the Department of Health
Intheeventofawidespreadfloodemergency,theDepartmentofHealthwillinitiateanddirectthegovernmenthealthresponse,providingspecialistadviceandinformationtoMinisters,othergovernmentdepartmentsandrespondingorganisations.Itwillalsoberesponsiblefortheeffectivenessofthehealthresponse.
What you can expect from the Health Protection Agency
TheHealthProtectionAgency(HPA)inEngland–workinginconjunctionwithitsequivalentpublichealthorganisationsinthedevolvedadministrations–istheleadagencyresponsibleforprovidingpublichealthadvicetotheDepartmentofHealthandsupportingallaspectsofthepublichealthresponsetoafloodingemergency.Seesection10formoreonthehealthconsequencesofflooding.
What you can expect from the Department for Transport
TheDepartmentforTransport(DfT)workswithalltransportoperatorstoensurethattheyareawareoftheimplicationsofafloodingemergencyandtoensurethatfacilitiesandcommunicationchannelsareinplacetomeetanyadditionalrequirementsthatmaybeplaceduponthem.
39NationalFloodEmergencyFrameworkForEngland
What you can expect from the Highways Agency
TheHighwaysAgencyisresponsibleforoperating,maintainingandimprovingthestrategicroadnetworkinEnglandonbehalfoftheSecretaryofStateforTransport.TheHighwaysAgencynetworkisrecognisedasoneofthesafestandmostefficientroadsystemsoperatingintheworldtoday.Butsevereweathercanhaveasignificantandnegativeimpactupontrafficflowswhichcanresultindelays,thedurationofwhichcanbeinfluencedbyawholehostofvariables.
Themosteffectivewayofrelievingserioustrafficcongestionistoemployrecognisedincidentmanagementtechniquesandattempttoclearincidentsasquicklyaspossible.Thereareoccasions,however,whereseverecongestionandextendeddelaysareunavoidablewhichcanleadtothetravellingpublicbeingstrandedonthenetwork.Forthatreason,theHighwaysAgencyhaspublishedanArea Management Memorandum on Emergency Customer Welfare.This2partpolicyprovidesastructuredapproachtotheprovisionofemergencywelfareforpersons,petsandlivestockwhobecomeunavoidablydetainedandstrandedontheHighwaysAgencynetwork.
What you can expect from the Department for Business, Innovation and Skills
TheDepartmentforBusiness,InnovationandSkills(BIS)engageswiththetelecommunicationsandpostalservicesindustrytoensuretheyhaveadequateplansinplacetorespondtoanemergency.Forfloodrelatedemergenciesaffectingthesesectors,BISwillfeedintothegovernmentresponseandactasacommunicationchannelbetweentheseindustriesandcentralgovernment.
What you can expect from the Department for Energy and Climate Change
TheDepartmentofEnergyandClimateChange(DECC)workscloselywiththeenergysectorstoensurethatindustryrecognisetheimpactanemergencywouldhaveontheUKandtoensuretheyhaveplansinplacetodealwithsuchsituations, sothatanydisruptiontoconsumersisminimised.Shoulditbecomenecessary,theDepartmentandindustry,inconsultationwithotherstakeholders,wouldintroducearangeofmeasurestoensurethemaintenanceofessentialsuppliesandservices.
40 Part1-UnderstandingFloodEmergencyPlanningandResponse
What you can expect from the Ministry of Defence
ArmedForcessupporttocivilresiliencecanbedividedintotwocategories:
■■ Niche capabilities.Theseareassignedwhen,intheviewofDefenceMinisters,itisinthenationalinteresttodevotespecificArmedForcesandMODassetstospecificoperationsintheUK,eitherinwholeorinpart.TheseassetsareidentifiedinDefencePlanningAssumptionsandareguaranteed;theyinclude:
–– aUK-basedandUK-focussedCommandandControlstructure;
–– anExplosiveOrdnanceDisposalandChemicalBiologicalRadiologicalandNuclearrender-safecapability;
–– anairsurveillance,policinganddefencesystem;
–– FisheryProtectionvessels;
–– aCounterTerrorismcapability;and
–– aSearchandRescuecapability.
■■ Augmentation Capabilities.Whencivilcontingenciesarise,itispossibletodeploythearmedforcesinsupportofthecivilauthoritiesifDefenceMinistersconsideritappropriate.ResilienceplannersshouldnotmakeassumptionsaboutthecriteriaforaDefenceMinister’sdecisioninadvanceandshouldnotmakeassumptionsaboutthelevelofmilitarydeploymentwhichwilldependonthedegreetowhichtheregularandreserveforcesarecommittedoverseas.
ItistypicallytheseaugmentationcapabilitiesthattheMODwouldexpecttodeployinfloodemergencysituationswhereassistancemightinclude:
–– surgepersonnel-thecapabilitytoprovidegeneraldutiespersonnel.
–– logisticadvice-SirMichaelPitt’srecommendation47calledforasmallnumberoftrainedArmedForcespersonnelwhocanbedeployedtoadviseGoldCommandsonlogisticsduringwide-areacivilemergenciesand,workingwithCabinetOffice,identifyasuitablemechanismfordeployment.Logisticsadvicewillbeprovidedwithintheexistingstrategic(MoD)structureandatregionallevelbyJointRegionalLiaisonOfficersorregionallogisticsstaff,dependingonscaleandrequirements.
–– engineering-thetotalstockofengineeringequipmentheldbytheArmedForcesintheUKislikelytobelessthanthatnormallyavailableinamedium-sizedtown-Althoughexpertiseandassetscouldbemadeavailable.
–– estate-elementsoftheDefenceEstatecouldbemadeavailableifappropriatetoprovidehardstandings,storage,logisticshubsetc.
41NationalFloodEmergencyFrameworkForEngland
Ingeneraltermsgovernmentwouldexpectcivilresponderstohavethecapabilitiestodealwithmostfloodingemergencies,withthemainDefenceeffortbeingwiththeplanningandpreparingforthosehazardsandthreatsatthehighestcategoriesintheNationalRiskRegister.
National emergency management: working with the devolved administrations
ThebalanceofactivitybetweenUKcentralgovernmentandthedevolvedadministrationswilldependonthenatureoftheemergencyandthetermsofthedevolutionsettlements,thatbeing:
■■ whethertheincidentaffectsScotland,Walesand/orNorthernIreland;and
■■ whethertheresponsetotheemergencyincludesactivitywithinthecompetenceoftheadministration.
ThedevolvedadministrationswillmirrormanyofthetasksoftheUKcentralcrisismechanismaswellasfulfillingthesametasksastheEnglishregionalstructures.Ineverycase,theprecisebalanceofactivitywilldependonthecompetenceofthedevolvedadministrationinvolved(i.e.thetermsoftheirdevolutionsettlement)andthenatureoftheincident.
IftheemergencytakesplaceinScotland,WalesorNorthernIrelandandrelatestoadevolvedmatter,thedevolvedadministrationwillbethenominatedLeadGovernmentDepartment.Floodingisadevolvedmatter.IftheemergencyoccursinEnglandbuthascross-borderimplicationsfordevolvedissuestherelevantdevolvedadministrationwillleadonthisaspectintheirterritoryandprovideadviceandsupportasnecessarytotheUKgovernmentsothateffectscanbeunderstoodandpotentialmitigationmeasuresconsidered.
Inareasofreservedresponsibility,theUKGovernmentLeadGovernmentDepartmentwillleadtheresponseinthedevolvedareasworkingcloselywiththerelevantdevolvedadministration.Inpractice,evenwhereformalaccountabilityrestswithUKministersandWestminster,thedevolvedlegislatureswillexpecttobebriefedondevelopmentswherethesesignificantlyaffecttheirterritory.Likewise,devolvedministerswillbeexpectedtocommentbynationalandlocalmedianecessitatingcloseco-operationandinformationsharingbetweenUKdepartmentsandtheircounterpartsinthedevolvedadministrations.TheUKterritorialdepartments–ScotlandOffice,WalesOfficeandNorthernIrelandOffice–canplayanimportantroleinfacilitatingthisprocess.Thedevolvedadministrationsmaintaintheirownfacilitiestosupporttheirresponsetoemergencieswithintheircompetenceoraffectingtheirterritory.
42 Part1-UnderstandingFloodEmergencyPlanningandResponse
Section 5:Toolsforfloodemergencyplannersandresponders
■■ Overview
■■ DailyFloodGuidanceStatements:vitalinformationforfloodemergency
plannersandresponders
■■ Forecastingpossiblesurfacewaterflooding:theFFC’sExtremeRainfall
Alert(ERA)Service
■■ Publicfloodwarnings
■■ MetOfficesevereandextremeweatherwarnings
■■ HazardManager
■■ Riverandsealevelsontheinternet
– Howtouseriverandsealevelsontheinternet
■■ Decisionsupportforfloodplannersandresponders-EAFloodAdvisory
Service
■■ Othertools:UKresiliencewebsite
■■ Othertools:NationalResilienceExtranet
43NationalFloodEmergencyFrameworkForEngland
Overview
Onethemostdifficulttasksforemergencyplannersandrespondersisknowingwhentoact.Inthecaseofflooding,thereareanumberoffactorsthatyouneedtotakeaccountof.Andit’sinevitablethatadegreeofjudgement,basedonacombinationofdataandinstinct,willbeneeded.
Buttheextenttowhichfloodemergencyplannersandrespondersneedtoapplyjudgementisgraduallydeclining.SinceApril2009,thenewFlood Forecasting CentrehasprovidedavaluablenewtooltoovercometheproblemsofconvertingMetOfficeweatherinformationandEnvironmentAgencyhydrologicalinformationintofloodriskassessments.AndtheEnvironmentAgency’sFloodAdvisoryService,detailsofwhichcanbefoundinthissection,isintendedtohelpplannersandresponderavoidmuchoftheguessworkassociatedwithfloodforecastsandwarnings.
Figure 5.1:Decisionsupport–overviewofproductstoconsider
Product Deliverer Relevant to which types of flooding?
Importance
Daily Flood Guidance Statements
FloodForecastingCentre
All High–triggerforaction
Extreme Rainfall Alert
FloodForecastingCentre
Surfacewater High–triggerforaction
Public Flood Warnings
EnvironmentAgency Riverandcoastal High–triggerforaction
Severe/Extreme Weather Warnings
MetOffice All Medium–keepwatch
River and sea levels on the internet
EnvironmentAgency Riverandcoastal Medium–keepwatch
Highways Agency website
HighwaysAgency All Low–consequenceofflooding
Rail disruptions NationalRailEnquiries
All Low–consequenceofflooding
44 Part1-UnderstandingFloodEmergencyPlanningandResponse
Daily Flood Guidance Statements: vital information for flood emergency planners and responders
TheFloodForecastingCentre(FFC)issuesdailyFloodGuidanceStatementsthatprovideinformationforCategory1and2responderstohelpthemwiththeirplanningdecisions.ItpresentsanoverviewofthefloodriskacrossEnglandandWalesoverfivedaysandidentifiespossiblesevereweather,whichcouldcausefloodingandsignificantdisruptiontonormallife.
Statementsareissueddailyatthefollowingtimes:
■■ verylowandlowrisksituations—10.30hrs;
■■ mediumrisksituations—10.30and15.00hrs;and
■■ highrisksituations—10.30,15.00and20.00hrsand/orasagreedwithNationalIncidentRooms.
ASample Flood Guidance StatementcanbeviewedontheFFCwebsite.
FloodGuidanceStatementsprovidecountylevelinformationfordaysonetothreeandaregionalscaleillustrationoftherisklevelfordaysfourandfive.Theypresentanassessmentoftheprobabilityandimpactoffloodingbasedonmeteorologicalinformationandanunderstandingofthesituationacrossrivercatchmentsandthecoast.
TheassessmentofdailyfloodriskforEnglandandWalesprovidescolour-codedmapsshowingthelevelsofriskofamajorfloodeventhappeningforeachdayofafivedayperiod.Thecolour-codingisbasedonthefollowingkey.
45NationalFloodEmergencyFrameworkForEngland
Figure 5.2:FloodGuidanceStatementcolourkey
Key Very low risk Low risk Medium risk High risk
River & coastal flooding
Probabilityofoneormoreofthefollowingimpactsoccurringfromriversorthesea:
■■ extremedangertolife
■■ considerablenumbersofpeopleaffected
■■ significantimpactoncapacityofCat1&2respondersorthepublictoeffectivelyrespond
■■ approx>100propertieswillflood
■■ severeimpactoninfrastructure
■■ failureorovertoppingofdefencesexpected
<20% ≥20%to<40% ≥40%to<60% ≥60%
Extreme rainfall
ProbabilitythatERAthresholdswillbemet,leadingtopossiblesurfacewaterflooding.
<10% ≥10%to<20% ≥20%to<60% ≥60%
Suggested actions ■■ Businessasusual
■■ Considerliaisingwithpartnerorganisations
■■ Beawareofthelatestweather/floodwarningsandalerts
■■ Considerliaisingwithpartnerorganisations
■■ Consultsurfacewaterfloodmapsandlocalflood
46 Part1-UnderstandingFloodEmergencyPlanningandResponse
Floodsaredifficulttoforecastsincetheexpectedweatherisjustonefactor.Toidentifyandassigntherisklevel,theFFCtakesintoaccountanassessmentof:
■■ theprobabilityofasevereorextremeweathereventoccurring(low20-40%,medium40-60%,high60%orgreater);
■■ recentweatherconditions–whethertheeventisshortlyafteranearlierperiodofprolongedrainorotherhighimpactweatherevent;
■■ indicativeknowledgeabouttheconditionofthecatchmentswithintheareasatrisk–howsaturatedthecatchmentsare,howhightheriversareandtheunderlyingconditions;
■■ spatialandtemporalextentoftheevent–whetheritisexpectedtobeshortandlocalisedorwillaffectalargegeographicalareaoverseveralhours;
■■ timingoftheevent–whetheritcoincideswithamajorsport,otheroutdooractivityornationalholiday;and
■■ impactoffluvialflowandspringtides–ifamajorfluvialeventisbeingassessed,whetherriveroutflowwilloccurataperiodofhigh(spring)tides.
RisklevelsareagreedonadailybasiswitheachEnvironmentAgencyregionviaForecastingDutyOfficers(forriverandcoastalflooding)andwiththechiefforecasterattheMetOffice(forprobabilitiesofextremerainfall).
AllCategory1and2responderscanregistertoreceivetheFloodGuidanceStatement.Tostartreceivingthem,calltheFFCon03001234501;oremailffcenquiries@environment-agency.gov.uk;orsignuponlineatwww.ffc-environment-agency.metoffice.gov.uk.
TheFFChasproducedafullerFlood Guidance Statement User Guidetohelpitscustomersinterprettheinformationtheyreceiveandputitintorelevantcontextfortheirregions.
Forecasting possible surface water flooding: the FFC’s Extreme Rainfall Alert (ERA) Service
Surfacewaterfloodinghappensasadirectresultofextremerainfall.Itdiffersfromriverfloodinginthatitcanhappenbeforewaterentersariverorwatercourse,orwherenoneexists.Advancewarningisdifficultasitcanhappenveryquicklywhenthelevelofrainfallismorethandrainscanhandle.Theeffectofitsimpactdependsonlocallandscapesandlocalconditionssuchasthestateofculverts.
TheERAServiceisdesignedtoalertemergencyrespondersinEnglandandWalestothepossibilityofsurfacewaterfloodingasaresultofextremerainfall.Thealertisissuedatcountyleveltohelplocalresponseorganisationsmanagethepotentialimpactsofflooding.Theprimarybeneficiaries
47NationalFloodEmergencyFrameworkForEngland
oftheERAServiceareCategory1and2responders.TheServiceisdesignedtohelpresponderstaketherightactionandreducetheimpactofsurfacewaterflooding,whichwillultimatelyimprovepublicsafetyandreducedisruption.Benefitsinclude:
■■ impactsonroadnetwork,localtransportandassociatedservicesminimised;
■■ localauthoritiesandutilitycompaniesbetterinformedtomanagetheirresponsetosurfacewaterflooding;
■■ staffandresourcesdeployedandmanagedmoreeffectively;
■■ equipment,suchassandbags,mobilisedanddeployedinadvance;and
■■ communicationteamsbetterinformedandpreparedtohandlemediaandpublicresponse.
AnERAcantaketwoforms:
■■ ERA Guidance—incorporatedintheFloodGuidanceStatementissueddailyat10.30hourswhenthereisbetweena10%and20%chanceofextremerainfall.
■■ ERA Alert—issuedwhenthereismorethana20%chanceofextremerainfallforaparticularcountyorcounties.
AlertsmaybeissuedwithoutbeingprecededbyGuidanceinarapidlydevelopingsituation.Similarly,GuidancewillnotalwaysbefollowedbyanAlert,forexampleifweatherconditionsimprove.
AnyCategory1or2respondercanregisterfortheERAServicebycalling03001234501oremailingffcenquiries@environment-agency.gov.uk.Itisafreeservice.Theseservicesareissuedviaemail,auto-voicemail,SMSorfax(thoughERAguidanceisnotavailablebyemailatpresent).
TheFFChasproducedafullerERA Services User Guidetohelpitscustomersinterprettheinformationtheyreceiveandputitintorelevantcontextfortheirareas.
Public Flood Warnings
TheEnvironmentAgency(EA)operatesafloodwarningserviceinareasatriskoffloodingfromriversandthesea.Iffloodingisforecast,warningsareissuedusingasetoffoureasilyrecognisablecodes.
EA’scodesformpartofitsstagedfloodwarningservice.FloodwatchesandwarningsareissueddirectlyfromFloodlineWarningsDirect(Seesection7formoreonFloodlinewarningsDirectorFWD).Theyaretargetedtospecificareasandtellpeopletheyareatriskofpossiblefloodingand
48 Part1-UnderstandingFloodEmergencyPlanningandResponse
Flood Watch
What it means
Floodingoflowlyinglandandroadsisexpected.Beaware,beprepared,watchout.
What to do
■■ Monitorlocalnewsandweatherforecasts.
■■ Beawareofwaterlevelsnearyou.
■■ Bepreparedtoactonyourfloodplan.
■■ Checkonthesafetyofpetsandlivestock.
■■ Chargeyourmobilephone.
Flood Warning
What it means
Floodingofhomesandbusinessesisexpected.Actnow!
What to do
■■ Movecars,pets,food,valuablesandimportantdocumentstosafety.
■■ Getfloodprotectionequipmentinplace.
■■ Turnoffgas,electricityandwatersuppliesifsafetodoso.
■■ Bepreparedtoevacuateyourhome.
■■ Protectyourself,yourfamilyandhelpothers.
■■ Actonyourfloodplan.
Severe Flood Warning
What it means Severefloodingisexpected.Thereisextremedangertolifeandproperty.
Actnow!
What to do
■■ Collectthingsyouneedforevacuation.
■■ Turnoffgas,electricityandwatersuppliesifsafetodoso.
■■ Stayinahighplacewithameansofescape.
■■ Avoidelectricitysources.
■■ Avoidwalkingordrivingthroughfloodwater.
■■ Indangercall999immediately.
■■ Listentoemergencyservices.
■■ Actonyourfloodplan.
All Clear
What it means Floodwatchesorwarningsarenolongerinforceforthisarea.
What to do
■■ Keeplisteningtoweatherreports.
■■ Onlyreturntoevacuatedbuildingsifyouaretolditissafe.
■■ Bewaresharpobjectsandpollutioninfloodwater.
■■ Ifyourpropertyorbelongingsaredamaged,contactyourinsurancecompany.Asktheiradvicebeforestartingtocleanup.
Figure 5.3:EnvironmentAgencyFloodWarningCodes
49NationalFloodEmergencyFrameworkForEngland
needtobealertandstayvigilant.Peoplechoosewhetherornottoreceivethisinformation.Allpropertiesinfloodwarningareasareencouragedtosignupforthisservice.FloodlineandEA’swebsitecontainuptodateinformationonthesituation.
Floodplannersandrespondersareabletoreceiveautomatedemailsummariesofthefloodwarningsinforcetailoredtotheirlocalarea.Thesesummariesareinadditiontoindividualfloodwarningsandwillonlybesentwhentherearefloodwarningsinforceforthelocalarea.YourlocalEnvironmentAgencyofficecanprovidedetailsofhowtosign-upforthisservice.
Met Office severe and extreme weather warnings
TheMetOfficewebsiteincludespublicweatherinformation,includingsevereandextremeweatherwarnings.Theseincludewarningsforheavyrain,heavysnowandstrongwinds–allfactorsthatcansignificantlyaffectfloodrisk.Severeweatherwarningsoccurfrequently,particularlyinwinter.Extremeweatherwarningsarerarehowever.
Detailedsevere weather warningsareavailableatcounty/unitaryauthoritylevelforuptofivedaysahead.Theyareintheformofadvisories,earlywarningsand/orflashwarnings.
■■ Advisories-advisoriesareissuedby1100dailyasroutineandindicateconfidenceofexpectedsevereorextremeweather.Earlyandflashwarningssupersedeadvisorieswhenconfidencelevelsare60%orgreater;
■■ Earlywarnings-anearlywarningofsevereweatherwillnormallybeissueduptoseveraldaysinadvancewhenevertheoverallriskofwidespreaddisruptioninanyUKregionis60%orgreater;and
■■ Flashwarnings-Flashwarningsofsevereweatherareissuedwhenconfidenceofaneventreachingspecified criteriaisabove80%,andshouldgiveaminimumoftwohoursnotice.Warningsareissuedforeveryaffectedcountyorunitaryauthority.
50 Part1-UnderstandingFloodEmergencyPlanningandResponse
Thefollowingtablesillustratethecriteriaforadvisories,earlyandflashwarningsandthepredictedimpactandpublicadvice.
Figure 5.4: Criteriaforweatherwarnings
Severe weather
Colour and risk levels for severe weather events (can often occur, particularly in winter)
Green Yellow Amber
Warning None Advisory Early Flash
Risk
Very
low
<20%
Low
≥20%
<40%
Moderate
≥40%<60%
High
≥60%<80%
Veryhigh
≥80%
HeadlineNosevereweather
expected
Moderateriskof
severeweather
Highriskofsevere
weather
Severeweatheris
imminentorisoccurring
Impact
Moderateriskof
somedamage
toinfrastructure
andlocal
disruption
Highriskthat
therewillbe
somedamageto
infrastructureand
localdisruption
Veryhighriskthatthere
willbesomedamageto
infrastructureandlocal
disruption
Advice
Ensureyou
accessthelatest
weatherforecast
Remainvigilantand
ensureyouaccess
thelatestweather
forecast
Ensureyouaccessthe
latestweatherforecast
andtakeprecautions
wherepossible
51NationalFloodEmergencyFrameworkForEngland
Extreme weather
Colour and risk levels for extreme weather events (these are rare)
Green Yellow Amber Red
Warning None Advisory Advisory Early Flash
RiskVerylow
<20%
Low
≥20%<40%
Moderate
≥40%<60%
High
≥60%<80%
Veryhigh
≥80%
Headline
Noextreme
weather
expected
Lowrisk
ofextreme
weather
Moderaterisk
ofextreme
weather
Highrisk
ofextreme
weather
Extreme
weatheris
imminentor
occurring
Impact
Lowrisk
ofmajor
damageto
infrastructure
andthe
environment
Moderate
riskofmajor
damageto
infrastructure
andthe
environment
Highrisk
ofmajor
damageto
infrastructure
andthe
environment.
Casualtiesare
possible
Major
damageto
infrastructure
andthe
environment
islikely.
Casualtiesare
possible
Advice
Ensureyou
accessthe
latestweather
forecast
Remainvigilant
andensure
youaccessthe
latestweather
forecast
Remainextra
vigilantand
accessthe
latestweather
forecast.Be
awareofrisks
thatmightbe
unavoidable.
Followany
advicegivenby
authorities
Remainextra
vigilantand
accessthe
latestweather
forecast.
Followorders
andany
advicegiven
byauthorities
underall
circumstances
andbe
preparedfor
extraordinary
measures
52 Part1-UnderstandingFloodEmergencyPlanningandResponse
Hazard Manager
HazardManagerisaMetOfficeone-stopinformationsourcefortheemergencyresponsecommunity,allowingaccesstoallservicesinonelocation,usingasingleusernameandpassword.HazardManagerprovides:
■■ aone-stopinformationsource;
■■ apassword-protectedwebportaldedicatedtoCategory1and2responders;
■■ improvedvisualisationandamapviewer;
■■ singleusernameandpasswordtoaccessallservices;
■■ automaticpasswordresetting;and
■■ individualloginarrangements.
SomeMetOfficeandFFCproductshavealreadymovedtoHazardManager.Theremainingwillbemigratedacrossovertime.
AnyonewhoworksforaCategory1orCategory2responderorganisationcanaccessHazardManager(withsomeoftheservicesrestrictedtoapprovedusers).Beforeyoucanaccesstheserviceyouwillneedtoregister.
River and sea levels on the internet
TheEnvironmentAgency(EA)websiteprovidesemergencyplannersandresponderswithnearrealtimeinformationaboutriverandsealevels.
EAhasmonitoringstationsacrossEnglandandWalesthatmeasurethelevelofrivers,lakes,seaandgroundwater.MostofthemeasurementsaretakenelectronicallyandautomaticallysenttodatabasesusedbytheAgency’sforecastingsystems.ThesewaterlevelmeasurementsforriversandtheseaarenowsentstraighttotheEAwebsiteandpublishedonline.Theinformationisupdateddaily,andinsomecases,whenwaterlevelsarehigh,theinformationisupdatedmoreregularly.
Havinguptodateinformationonlocalwaterlevelswillhelppeoplelivinginfloodriskareasbebetterinformedaboutthesituationanddecidewhatactionstotakeasthewaterlevelschange.Thisinformationwillalsobenefitpeoplethatuseriversforrecreationsuchasanglersandboaters.Itwillhelplocalauthoritiesidentifywhereraisedwaterlevelscouldresultinproblemswithsurfacewaterflooding,soitshouldbeanimportantcomponentoftheinformationsetthatemergencyplannersandresponderswillusetohelpinformdecisionsandactionswhendealingwithfloodingfromriversandthesea.
53NationalFloodEmergencyFrameworkForEngland
How to use river and sea levels on the internet
Peopleareablevisitthefloods section of Environment Agency’s websitetoaccessriverandsealevelsfreeofcharge.
Userswillbegivenanationalmap(seefigure5.5)andwillberequiredtoeitherclickontheEnvironmentAgencyregiontheyareinterestedinorclickthelinktogettextonlyinformation.
Figure 5.5: Nationalriverlevelsmap
OncetheuserhasclickedontheEnvironmentAgencyRegiontheyareinterestedin,theywillbeshownamapsimilartothatshownbelow(figure5.6).Theywillthenneedtoclickonthelocationtheyareinterestedinonthemap.ThiswilltakethemdowntotherelevantEnvironmentAgencyArea.
54 Part1-UnderstandingFloodEmergencyPlanningandResponse
Figure 5.6:Regionalriverlevelsmap
UsersarethenshownamapoftheEnvironmentAgencyAreafeaturingriversandurbanareas(figure5.7).Usersthenneedtoclickonthelocationtheyareinterestedinanddrilldowntotherelevantrivercatchment.
55NationalFloodEmergencyFrameworkForEngland
Figure 5.7:Riverlevelsareamap
Usersarethenshownmapsoftherivercatchment(figure5.8).Themapsshowrivers,urbanareasandtheriverlevelstations(greendots).Usersthenneedtoclickontheriverlevelstation(greendot)theyareinterestedin.
56 Part1-UnderstandingFloodEmergencyPlanningandResponse
Figure 5.8: Riverlevelscatchmentmap
Onceauserhasclickedontheriverlevelstationtheyareinterestedintheywillbeshownthefollowinginformationforthatparticularstation(seefigure5.9):
■■ asummaryprovidingcontextualinformationaboutthesituation;
■■ riverlevel‘thermometer’–whichshowsthecurrentwaterlevelataparticularpointandincludesinformationtoputthisincontext(suchasthehighestlevelrecordedandthelevelwherefloodingispossible);
■■ ahydrograph-showingtherecentwaterlevelsoverthelast48hours,alongwithinformationtohelpputtheseincontext;
■■ stationdatawhichprovidesdetailssuchasthestationname,stationidentifier,watercourse,andwhenthesitewasopened;and
■■ floodwarnings-whenthereisoneormorefloodwarninginforce,alinkwillappeardirectinguserstotheEnvironmentAgency’sonlinelivefloodwarninginformation.
57NationalFloodEmergencyFrameworkForEngland
Figure 5.9:Riverlevelsstationdetails
Decision support for flood planners and responders - EA Flood Advisory Service
Thenumberandcomplexityoffactorsthatfloodplannersandrespondersmustpayattentiontoissuchthatitisverydifficulttobeabletomaketherightcallattherighttimeintermsofactivatingyourfloodplan.
Toaddressthis,theEnvironmentAgencyhasintroducedaFloodAdvisoryServiceforlocalpartners.TheservicewillinvolveajointteleconferencechairedbyyourlocalEnvironmentAgencyrepresentative,withtheassistanceofyourPublicWeatherService(PWS)Advisorwherepossible.Thismaybecalled,forexample,whentheFloodGuidanceStatementishighlightedasamber(mediumfloodrisk)orthereissignificantfloodriskinyourarea.Theservicewillprovidemoreco-ordinatedandconsistentinformationforpartnersondevelopingfloodrisk.
58 Part1-UnderstandingFloodEmergencyPlanningandResponse
YoucanaccessfulldetailsoftheteleconferencenumberandotherimportantinformationfromyourlocalEnvironmentAgencycontactsorPWSAdvisor.
Other tools: UK resilience website
TheUKresiliencewebsiteexiststoprovidearesourceforcivilprotectionpractitioners,supportingtheworkwhichgoesonacrosstheUnitedKingdomtoimproveemergencypreparedness.AssuchitprovidesgreaterdetailonsomeofthematerialincludedinthisNationalFloodEmergencyFramework.Ithastwomainsections:
■■ theEmergency Preparedness sectionhasadviceforpractitionersonthepre-emergencyphase,withgenericmaterialonkeyframeworksliketheCivil Contingencies ActanddisciplineslikeRisk AssessmentandBusiness Continuity;italsocontainsdetailsoftheUKGovernmentCapabilities ProgrammeandasectiononResilient Telecommunications;
■■ theEmergency Response & Recovery sectionhasadviceforpractitionersonthepost-emergencyphase,withgenericmaterialonkeyframeworkssuchastheCentral Government’s Concept of OperationsandLead Government Department principle,andtheNational Recovery Guidance;ItalsocontainsdetailsoftheCentral Government Emergency Response Training programme.
Other tools: National Resilience Extranet
TheNationalResilienceExtranet(NRE)isasoftwarepackagewith3levelsofserviceavailablethroughsubscription.TheNREprovidesabrowser-basedtooltoenableefficientandsecure(accreditedtoRESTRICTEDlevel)exchangeofinformationduringbothroutineplanningandresponsetoemergencies.Thetoolprovidesreadyaccesstocentrallystoredinformationincludingtemplatesandgoodpracticeguidance,andenablestimelycommunicationofdocumentssuchasCommonlyRecognisedInformationPictures(CRIPs)andSituationalReports(SitReps).
TheNREisdesignedtosupportstrategiccollaborationbetweenpartnerslocally,regionallyandwithcentralgovernment,includingtheDevolvedAdministrations.Italsosupportsapplicationsforincidentmanagement.Itsoverallaimsare:
■■ toprovideasecuresoftwaresolutionthatwilllinktheresiliencecommunitytogetheratalllevelsfromcentralgovernmenttoregional/localresponders;
■■ toshareRESTRICTEDdocuments;
■■ tosupportcollaborativeworking;
■■ toprovidealevelof“standardisation”andinteroperability;
59NationalFloodEmergencyFrameworkForEngland
■■ toenabletimelycommunicationandsharingofinformation;and
■■ toprovideaneasilyaccessiblelibraryoftemplatesandinformation.
TheNREcanbeaccessedviaanystandardInternetconnectionbutrequiresadherencetoconnectionguidance.
Therearethreelevelsofbuy-in.Thebasic,day-to-dayinformationsharingcollaborativeworkingpackageincludessectionson:
■■ documentstorageandtemplates;
■■ calendarandon-linebooking;
■■ situationreports;
■■ newsroom;
■■ brokeragefacility;
■■ messagestorage;
■■ discussionboards;
■■ instantmessenger;
■■ eventsinformation;and
■■ contacts.
ThenextlevelEmergencyInformationManagementPackageaddsonamessagelogfacility;afacilitytodepositemergencyplans;ataskssection;andanincidentlogfacility.
ThehighestleveladdsacommerciallyavailableGeographicInformationSystem(GIS)Package.
GettheNREbycontacting:NREenquiries@cabinet-office.x.gsi.gov.uk.
Part two: Beingprepared
NationalFloodEmergencyFrameworkForEngland 61
Section 6:TheImportanceofmulti-agencyplanning
■■ Planningforall
■■ EmergencyplanningattheUKGovernmentlevel
■■ Emergencyplanningatthelocallevel
■■ Helpwithyourmulti-agencyplanning
■■ Whyhavespecificfloodplans?
■■ Focusyourplanning
Part2-BeingPrepared62
Planning for all
TheGovernmentwouldliketoseeallorganisationshaveeffective,well-practisedemergencyplansinplace–planstoreducetheriskofemergenciesoccurring;andplanstoreduce,controlormitigatetheeffectsoftheemergency.
Emergency planning at the UK Government level
TheUKGovernmentCapabilitiesProgrammeisthecoreframeworkthroughwhichtheGovernmentisseekingtobuildresilienceacrossallpartsoftheUnitedKingdom.TheprogrammeusesriskassessmentoverafiveyearperiodtoidentifythegenericcapabilitiesthatunderpintheUK’sresiliencetodisruptivechallenges,andensuresthateachoftheseisdeveloped.Thesecapabilitiesincludedealingwithmasscasualtiesandfatalities,responsetochemical,biological,radiologicalornuclearincidents,provisionofessentialservicesandwarningandinformingthepublic.
TheGovernmenthasinplaceaco-ordinatedcross-governmentalexerciseprogrammecoveringacomprehensiverangeofdomesticdisruptivechallenges,includingaccidents,naturaldisastersandactsofterrorism.TheprogrammeisdesignedtotestrigorouslytheconceptofoperationsfromthecoordinatedcentralresponsethroughtherangeofLeadGovernmentDepartmentresponsibilitiesandtheinvolvementoftheDevolvedAdministrations,totheregionaltierandlocalresponders.ThesenationalprocessesfeedintotheDevolvedAdministrations,regionalandlocallevelstoensurefullyintegratedemergencyplanningatalllevelsthroughouttheUK.
Emergency planning at the local level
EmergencyplanningisattheheartofthecivilprotectiondutyonCategory1respondersundertheCivil Contingencies Act 2004.TheActrequiresCategory1responderstomaintainplansforpreventingemergencies;reducing,controllingormitigatingtheeffectsofemergencies;andtakingotheractionintheeventofemergencies.Theseshoulddrawonriskassessmentsandshouldhaveregardforthearrangementstowarn,informandadvisethepublicatthetimeofanemergency.
Plansmustcontainaprocedurefordeterminingwhetheranemergencyhasoccurred;provisionfortrainingkeystaff;andprovisionforexercisingtheplantoensureitiseffective.Proceduresshouldalsobeputinplacetoensurethattheplanisreviewedperiodicallyandkeptuptodate.
Category1respondersshouldinvolveCategory2responders-andorganisationswhicharenotsubjecttotheAct’srequirements-asappropriatethroughouttheplanningprocess.Category1respondersarerequiredtohaveregardtotheactivitiesofrelevantvoluntaryorganisationswhendevelopingplans.
Category1respondersalsohaveastatutorydutytopublishtheiremergencyplans,totheextentnecessaryordesirableforthepurposeofdealingwithanemergency.
NationalFloodEmergencyFrameworkForEngland 63
Help with your multi-agency planning
Governmenthasdrawnupguidanceformulti-agencyfloodplanning,basedongoodpracticefromarangeofexistingplans,guidanceanddocumentsandlessonslearnedfromrealfloodingeventsandexercises.Theguidanceformspart12oftheNationalFloodEmergencyFramework.
ThisguidanceshouldbeusedbyLRFstoundertakefloodresponseplanning,includingrecoveryplanningwhereitrelatestoflooding.Itcontainsexamplesofhowtosetoutthevariouscomponentsofafloodplan,allofwhichhavebeendrawnfromcurrentgoodpracticeintheUK.Theguidanceisprovidedtoaidthepreparationofamulti-agencyfloodplan,butshouldbeagoodsourceofinformation,adviceandguidanceforanyindividualbusinessoragencylookingtocompleteafloodplan.
TheguidanceisaimedatLRFsandtheemergencyplansthatflowfromitarenormallydesignedspecificallyforLRFmemberorganisations.Butwithremovalofanysensitiveand/orconfidentialinformation,thoseplanscouldbemadesuitableforwiderorgeneralpublication,whereLRFswishtoprovidesuchpublicinformation.
Why have specific flood plans?
TheCivil Contingencies Act 2004requiresCategoryOneResponderstohaveplansinplacetorespondtoallemergencies.Emergencyplansmaytaketheformofeithergenericplansthatdescribearesponsetoawiderangeofpossiblescenarios(e.g.LocalResilienceForum(LRF)IncidentPlan)orspecificplansthatdealwithaparticularkindofemergency(e.g.animaldiseaseorEvacuationandSheltering).ManyLRFswillprobablyhavebothtypesdependingonhowemergencyplanninghasevolvedinthearea.Theremayalsobearea-wideplans(e.g.atcounty-level)orsite/localareaspecificplans(e.g.district,wardorparish).
FormanypartsofEnglandandWales,floodingposesasignificantriskandiswell-recognisedwithinmanyCommunityRiskRegisters.LRFsareencouragedtodevelopaspecificfloodplantobothcomplementotherplansandtoprovidemoredetailtogenericMajorIncidentPlansorStrategicEmergencyResponsePlans.Thereasonforhavingaspecificfloodplanisbecauseofthecomplexnatureoffloodingandtheconsequencesthatarise,requiringacomprehensiveandoftensustainedresponsefromawiderangeoforganisations.TheguidanceisthereforegearedtowardhelpingLRFstocollectivelydevelopaMulti-AgencyFloodPlan.
Part2-BeingPrepared64
Focus your planning
Plansshouldfocusonatleastthreekeygroupingsofpeople:thevulnerable;victims(includingsurvivors,familyandfriends)andresponderpersonnel.
Vulnerablepeoplemaybelessabletohelpthemselvesinanemergencythanself-reliantpeople.Thosewhoarevulnerablewillvarydependingonthenatureoftheemergency,butplansshouldconsider:thosewithmobilitydifficulties(e.g.thosewithphysicaldisabilitiesorpregnantwomen);thosewithmentalhealthdifficulties;andotherswhoaredependent,suchaschildren.
Victimsofanemergency,includenotonlythosedirectlyaffectedbutalsothosewho,asfamilyandfriends,sufferbereavementortheanxietyofnotknowingwhathashappened.
Responderpersonnelshouldalsobeconsidered.Planssometimesplaceunrealisticexpectationsonmanagementandpersonnel.Organisationsshouldensuretheirplansgivedueconsiderationtothewelfareoftheirownpersonnel.Forinstance,theemergencyserviceshavehealthandsafetyprocedureswhichdetermineshiftpatternsandcheckforlevelsofstress.
Organisationsshouldaimtomaintainplansforreducing,controllingormitigatingtheeffectsofanemergency.Themainbulkofplanningshouldconsiderhowtominimisetheeffectsofanemergency,startingwiththeimpactoftheevent(e.g.alertingprocedures)andlookingatremedialactionsthatcanbetakentoreduceeffects.Forexample,theemergencyservicesmaybeabletostemtheemergencyatsourcebyfightingfires,combatingthereleaseoftoxicchemicalsortheextentoffloods.Theevacuationofpeoplemaybeonedirectinterventionwhichcanmitigatetheeffectsofsomeemergencies.Recoveryplansshouldalsobedevelopedtoreducetheeffectsoftheemergencyandensurelongtermrecovery.TheNational Recovery Guidanceprovidesmoredetailonrecoveryissues.
Notallactionstobetakeninpreparingforanemergencyaredirectlyconcernedwithcontrolling,reducingormitigatingitseffects.Emergencyplanningshouldlookbeyondtheimmediateresponseandlongtermrecoveryissuesandlookalsoatsecondaryimpacts.Forexample,thewaveofreactiontoanemergencycanbequiteoverwhelmingintermsofmediaattentionandpublicresponse.Plansmayneedtoconsiderhowtohandlethisincreasedinterest.
Asobviousasitsounds,emergencyplansshouldincludeproceduresfordeterminingwhetheranemergencyhasoccurred,andwhentoactivatetheplaninresponsetoanemergency.Thisshouldincludeidentifyinganappropriatelytrainedpersonwhowilltakethedecision,inconsultationwithothers,onwhenanemergencyhasoccurred.
Themaintenanceofplansinvolvesmorethanjusttheirpreparation.Onceaplanhasbeenprepared,itmustbemaintainedsystematicallytoensureitremainsup-to-dateandfitforpurposeatanytimeifanemergencyoccurs.
NationalFloodEmergencyFrameworkForEngland 65
Itmaybethatmultipleorganisationscandevelopajointemergencyplanwherethepartnersagreethat,forasuccessfulcombinedresponse,theyneedaformalsetofproceduresgoverningthemall.Forexample,intheeventthatevacuationisrequired,thepolicewouldneedcarefullypre-plannedco-operationfromvariousotherorganisationssuchasfireandambulanceservicesandthelocalauthority,aswellasinvolvementofotherssuchastransportorganisations.
Part2-BeingPrepared66
Section 7:Goodcommunicationsareessential:planhowyouwillcommunicateduringanincident
■■ Theimportanceofcommunications
■■ It’syourdutytocommunicate!
■■ Whatinformationisneededwhen?
■■ Communicatingviathemediaatthenationallevel
■■ Workingwiththemediaatthelocallevel
■■ Planningtocommunicatewiththepublic
– Warningthepublicdirectly
– FloodlineWarningsDirect
– Whatshouldyoutellthepublic?
NationalFloodEmergencyFrameworkForEngland 67
The importance of communications
TheGovernmentbelievescommunicatingwiththepublicaboutemergenciesisessential.ThePreparing for Emergenciesbookletisakeyexampleofeffortstoraisepublicawarenessaboutrisksandpreparednessforanumberoftypesofemergency.Awell-informedpublicisbetterabletorespondtoanemergencyandtominimisetheimpactoftheemergencyonthecommunity.Byinformingthepublicasbesttheycan,allorganisationswillbuildtheirtrust.Partofthisisalsoavoidingunnecessaryalarm.
Communicationsarrangementsbetweenallagenciesrespondingtoafloodneedtobeplannedfor,asfloodingoftencausesfailureoftelecommunicationssystems.TheseplansshouldbeincludedinLocalResilienceForumtelecommunicationsplans,wheretheyexist,orotherwiseintheMulti-AgencyFloodPlan(seesection12).Allagenciesshouldassumethattelecommunicationsmaybecompromisedduringfloodeventsandincludeprovisionfordealingwithfailure.
It’s your duty to communicate!
TheCivil Contingencies Act 2004(CCA)placesadutyonCategory1responderstocommunicatewiththepublic.Thisisbasedonthebeliefthatawell-informedpublicisbetterabletorespondtoanemergencyandtominimisetheimpactoftheemergencyonthecommunity.TheActincludespublicawarenessandwarningandinformingastwodistinctlegalduties–advisingthepublicofrisksbeforeanemergency;andwarningandkeepingtheminformedintheeventofanemergency.
TheStatutoryguidanceEmergency Preparednessdetailstherequirementsofthelegislationandgivesgoodpracticeguidanceonhowonhowresponderscancarryouttheirdutiestocomplywiththelegislation.Chapter7relatestoCommunicatingwiththePublic.
What information is needed when?
Organisationsengagedinwarningandinformingwillneedtothinkcarefullyaboutwhatinformationdifferentaudienceswillwant,andwhen,inanemergency.
Forinstance,immediatelywhenanemergencyoccurs,andduringthefirsthour...
Part2-BeingPrepared68
Figure 7.1: Communicationsguide
The PUBLIC NEEDS:
■■ basicdetailsoftheincident-what,where,when(andwho,whyandhow,ifpossible);
■■ toknowtheimplicationsforhealthandwelfare;
■■ adviceandguidance(e.g.stayindoors,symptoms,preparingforevacuation);and
■■ reassurance(ifnecessary).
The PUBLIC WANTS to know:
■■ otherpracticalimplicationssuchastheeffectontraffic,powersupplies,telephones,watersupplies,etc;
■■ ahelplinenumber;and
■■ whatisbeingdonetoresolvethesituation.
BROADCASTERS will REQUIRE:
■■ well-thought-outandjoined-uparrangementsbetweentheemergencyservices,localauthorityandotherorganisations,capableofprovidingagreedinformationatspeed;
■■ animmediatetelephonecontact;and
■■ amediarendezvouspointatthescene.
Communicating via the media at the national level
Anaccurate,timelyandconsistentflowofinformationtothepublicandotherkeystakeholdersisessentialtomaintainingconfidenceintheresponsetoanemergencyandforinfluencingpublicbehaviour.TheLeadGovernmentDepartment’spressofficewillleadonpublicpresentationinsupportoftheleadministerandgovernment.However,whereanemergencyhaswiderangingimpactsorgivesrisetoconsiderablepublicandmediainterest,aNewsCo-ordinationCell(NCC)maybeactivated.ThisisalwaysinplacewheneverCOBRisactivated,butmayalsobestoodupinsupportoftheleadgovernmentdepartmentinresponsetoalevel1emergency(seesection2fordetailsonlevelsofemergency).
TheNewsCo-ordinationCellcanbeactivatedatvariouslevelsdependingonthenatureanddemandsoftheemergency.Thedutiescaninclude:
■■ advisingtheleaddepartmentonmediahandling;
NationalFloodEmergencyFrameworkForEngland 69
■■ compilingandmaintaininga‘toplinesbrief’summarisingthekeyfactsandmessagesfordistributiontoministersandothersinvolvedintheresponseatanationalandlocallevel;
■■ briefingCOBRmeetingsonmediahandling;
■■ developinginconjunctionwithlocalrespondersandgovernmentdepartmentsacoherentpublicinformationstrategyforconsiderationbyCOBR;
■■ establishingafullyfunctioningcross-governmentmediacentreundertheleadershipoftheleaddepartmentandsupportingthepolicydirectionfromCOBR.
WhenestablishedtheNCCwillhandleallrequeststogovernmentforinformationontheemergencyandco-ordinaterequestsforinterviewswithMinisters.
Decisionsonthelevelofsupportrequiredfromthemediaco-ordinationrole,includingactivationoftheNCC,willbetakenbytheCabinetOfficeinconsultationwiththeLeadGovernmentDepartmentandthePrimeMinister.Wherethereisasignificantdevolveddimension,aninformationofficerfromtherelevantdevolvedadministrationwillalsonormallyjointheNCC.Thedevolvedadministrationswillprovide24/7coverattheirEmergencyCo-ordinationCentres,wherenecessary,andlinkintothepressteamsatalocalStrategicCoordinatingGroupandtheNCC.
Working with the media at the local level
Allorganisationsshouldbefamiliarwiththemediaorganisationsandoutletsintheirownareas,andshouldaimtodevelopgoodrelationswiththem.ThereisaconsiderableamountofadviceonhowtoachievethisintheBBC’s - Connecting in a Crisisinitiative.
Itisclearthatpoorcommunicationscanbedamaging.Thedamagedonetopublicconfidencebythereleaseofinconsistentandcontradictorymessagescanbehardtorepair.Similarly,greatdamagecanbedonebyspeculationaboutcausesorfuturedevelopments.Itisbettertosaywhensomethingisnotknownthantoguess,particularlyifthisisgoingtoraisethehopesoftheaffectedpublic-forexample,aboutwhentheycanreturntotheirhomes.
Thekeytoeffectivecommunicationviathemediaisgettingthemessagerightfortherightaudience.Howinformationandadvicearedeliveredcangreatlyaffecthowtheyarereceived.Organisationsshouldgivecarefulthoughtaheadofanyemergencyaboutwhomayactastheirofficialspokespeopleandundertakemediainterviewsandensurethosepeoplehavesuitabletraining.Otherpublic-facingpeopleintheorganisationshouldhaveabasiclevelofinformationsothattheycanhandleinquiriesconfidently.
Part2-BeingPrepared70
Planning to communicate with the public
Insomecircumstances,itwillbecentralgovernmentthatfirstprovideswarningthatanemergencyisabouttooccurorisoccurring.Therearewellestablishedprocessestowarnandinformthepublicaboutthewholerangeofpossibleemergencies.
TheEnvironmentAgencyorganisepublicawarenesscampaigns,arrangeforthebroadcastingofmessagesandprovideadviceofwhattodobeforeduringandafterafloodevent.ThereisalotoffloodinginformationontheAgency’swebsiteincludingasearchfacilityonpostcodestoseeifpropertiesareinafloodriskarea.Nevertheless,it’simportantthatotheremergencyplannersandrespondershavecollectivelyagreedplansonhowtheywillraisethepublic’sawarenesspriortoanincidentabouttheriskoffloodingandhowtheymaybeaffectedbyfloods.Suchplansneedtoincludearrangementstocommunicatewithcertainvulnerablepeoplewhoaredependentupontheirtelephonelines(e.g.dialysispatients)andhowtheyaredealtwithifthenetworkfails.
Nosinglecommunicationssystemwillbethesolutiontoallsituationsorachieveanabsolutelyresilientalertingcapability.Avarietyofmethodswillalwaysbenecessarytoalertthelargestproportionofthetargetaudienceorassesstheirneeds.Usingdifferentmethodswillalsohelptoalertvulnerablegroups(e.g.hardofhearing,elderly,transientpopulationetc).Localrespondersneedtoassesswhichmethodsaremostsuitableinagivensituation,takingintoaccountlocalcircumstancesandthisshouldfeatureinemergencyplans,includingfloodemergencyplans,preparedbyLocalResilienceForums.
Warning the public directly
Themethodsavailabletodeliverurgentinformationtomembersofthepublicareextremelyvaried.Optionsthatshouldbeconsidered,dependingonthecircumstances,include:
■■ mobilisingofficerstogoroundonfootandknockondoors;
■■ fromcarorhelicopter,byloudhailerorotheramplifiedmeans;
■■ mediaannouncements;
■■ electronic/variablemessageboards,e.g.attheroadside;
■■ announcementsinpublicbuildings,shoppingcentres,sportsvenues,transportsystems,etc.;
■■ automatedtelephone/fax/e-mail/textmessagestosubscribers;and
■■ sitesirens.
Door–knockingandsimilarlowtechnologymethodswillbethemostresilienttodisruptiontotelecommunicationsandpower.OrganisationssuchasPolicegivingdirectinstructionstothepublic,orbuildingmanagerscommunicatingwiththeirtenants,allowsthepublictoreceive
NationalFloodEmergencyFrameworkForEngland 71
messagesfromaknown(andgenerallytrusted)source.Atthesametime,Category1respondersneedtobeawarethatdoor-knockingmayrequirelargenumbersofpersonnelforittobeeffective,whichmaybedifficulttosustainforanythingotherthanshortperiods.Theyalsoneedtohaveregardtohealthandsafetyimplicationstoensurethatanydoorknockingtakesplacewellbeforefloodingisexpected.
Floodline Warnings Direct
TheEnvironmentAgencyoperatesafloodwarningserviceinareasatriskoffloodingfromriversandthesea.Iffloodingisforecast,warningsareissuedusingasetoffoureasilyrecognisablecodes.
Part2-BeingPrepared72
Flood Watch
What it means
Floodingoflowlyinglandandroadsisexpected.Beaware,beprepared,watchout.
What to do
■■ Monitorlocalnewsandweatherforecasts.
■■ Beawareofwaterlevelsnearyou.
■■ Bepreparedtoactonyourfloodplan.
■■ Checkonthesafetyofpetsandlivestock.
■■ Chargeyourmobilephone.
Flood Warning
What it means
Floodingofhomesandbusinessesisexpected.Actnow!
What to do
■■ Movecars,pets,food,valuablesandimportantdocumentstosafety.
■■ Getfloodprotectionequipmentinplace.
■■ Turnoffgas,electricityandwatersuppliesifsafetodoso.
■■ Bepreparedtoevacuateyourhome.
■■ Protectyourself,yourfamilyandhelpothers.
■■ Actonyourfloodplan.
Severe Flood Warning
What it means Severefloodingisexpected.Thereisextremedangertolifeandproperty.
Actnow!
What to do
■■ Collectthingsyouneedforevacuation.
■■ Turnoffgas,electricityandwatersuppliesifsafetodoso.
■■ Stayinahighplacewithameansofescape.
■■ Avoidelectricitysources.
■■ Avoidwalkingordrivingthroughfloodwater.
■■ Indangercall999immediately.
■■ Listentoemergencyservices.
■■ Actonyourfloodplan.
All Clear
What it means
Floodwatchesorwarningsarenolongerinforceforthisarea.
What to do
■■ Keeplisteningtoweatherreports.
■■ Onlyreturntoevacuatedbuildingsifyouaretolditissafe.
■■ Bewaresharpobjectsandpollutioninfloodwater.
■■ Ifyourpropertyorbelongingsaredamaged,contactyourinsurancecompany.Asktheiradvicebeforestartingtocleanup.
Figure 7.2: Floodwarningcodes
NationalFloodEmergencyFrameworkForEngland 73
TheEnvironmentAgency'scodesformpartofitsstagedfloodwarningservice.FloodwatchesandwarningsareissueddirectlyfromFloodlineWarningsDirect.Theyaretargetedtospecificareasandtellpeopletheyareatriskofpossiblefloodingandneedtobealertandstayvigilant.Peoplechoosewhetherornottoreceivethisinformation.Allpropertiesinfloodwarningareasareencouragedtosignupforthisservice.FloodlineandEA’swebsitecontainuptodateinformationonthesituation.
Floodplannersandrespondersareabletoreceiveautomatedemailsummariesofthefloodwarningsinforcetailoredtotheirlocalarea.Thesesummariesareinadditiontoindividualfloodwarningsandwillonlybesentwhentherearefloodwarningsinforceforthelocalarea.YourlocalEnvironmentAgencyofficecanprovidedetailsofhowtosign-upforthisservice.
What should you tell the public?
TheEnvironmentAgencyhaspreparedgeneralpublicadvice,whichisreproducedhere.Inshort,beforefloodinghappensyoumaywanttoensurethatyoureinforcethekeyEAmessages:
Figure 7.3:Floodwarningkeymessages
If flooding is predicted
■■ Packasmallbagwithessentialbelongingsandincludewarmclothes,torch(checkbatteries),radio(winduporbatterypowered),food,water,otherdrink,mobilephone(preinputusefulnumbers),anymedicinesthatyoumightneedtotake,anyimportantdocumentsthatyouhaveandafirstaidkit.Keepthisbageasilyaccessible.
■■ Collectpersonalbelongings,includinginsuranceandbankdetails,andessentialtelephonenumberstogether,andkeeptheminawaterproofbag.
■■ Movepeople,pets,valuablesandsentimentalitemsupstairsorinahighplacedownstairs.
■■ Keepaseparatelistofusefultelephonenumberstohand(thisshouldincludeyourlocalCouncil,yourinsurancecompanyandFloodline–0845988188).
■■ FindoutwhereandhowtoturnoffyourGasandElectricity.Ensurethatyouswitchitoffiffloodingisimminentbeforeevacuating.
■■ Ifpossible,moveelectricalequipmentandfurnitureupstairs.
■■ Anyfurniturethatyoucannotmoveupstairs,trytoraisewelloffthefloor.
■■ Alertneighboursandassisttheelderly,infirmandthosewithsmallchildren.
■■ Blockdoorwaysandairbricks.
■■ Avoidwalkinganddrivingthroughfloodwater,therecouldbehiddenhazards.
Part2-BeingPrepared74
■■ KeepuptodatewithlocalradioforfurtherinformationandannouncementsandviaFloodline08459881188.
■■ ContinuetolistentosituationupdatesonyourlocalradioandviaFloodline08459881188.
■■ Keepdryandoutoffloodwaterifpossible
■■ Stayinyourproperty,ifsafetodoso,untiladvisedotherwisebytheemergencyservicesorthefloodwaterhasreceded.
■■ Donotwalkordrivethroughflowingfloodwater.
■■ Ifitisnecessarytowalkthroughshallowfloodwater,takecareforhiddenholes,obstaclesorotherhazards
■■ Donotwalkonriverbanks,seadefencesorcrossbridgesovertorrentialrivers.
■■ Avoidcontactwithfloodwaterandwashanyexposedpartsbeforehandlingfoodorattendingtowounds.
■■ Ifpossible,moveelectricalequipmentandfurnitureupstairs.
If evacuation becomes necessary
■■ Staycalmanddonotpanic.
■■ Policeofficersand/orotherofficialswilltrytovisitallpropertiesatrisktoadviseontherequirementtoevacuate.
■■ Ifroadconditionspermit,movevehiclestounaffectedareasandaskfriends/familyifyoucansharetheirparkingfacilities.
■■ Youwillhearaboutyourevacuationpointfortransportandthelocationofthereceptioncentreeitherverballyorbyaleaflet.
■■ Trytocheckthatanyelderly/vulnerablefamilymembersorneighboursknowabouttheevacuation.
■■ Trytoinformfamilymembers/friendsastowhereyouareevacuating.
■■ Listentotheadviceoftheauthoritiesandfollowanyinstructionstoleaveaproperty.
NationalFloodEmergencyFrameworkForEngland 75
After a flood / returning home
■■ Contactyourinsurersassoonaspossibleandfollowtheiradvice.Mostinsurershavea24hrhelpline.Donotthrowawaydamagedgoodsuntilyourinsurerhasauthorisedyoutodoso.Itisagoodideatotakephotographsofthedamage.
■■ Checkthesafetyofelectricityandgasbeforeuse.Aqualifiedelectricianneedstocheckanyelectricalequipmentandcircuitsthathavebeenexposedtofloodwater.
■■ Avoidcontactwithanyremainingfloodwateroritemshavinghadcontactwithfloodwaterunlesswearingprotectivegloves/clothing.
■■ Boilalltapwateruntilitisdeclaredsafebythewatersupplycompany
■■ Washyoursandyourchildren’shandsfrequentlywithbottledwaterifyoursupplyhasnotbeendeclaredfitforuse.Disinfectanychildren’stoys.
■■ Disposeofanycontaminatedfood,includingtinnedfood,defrostedfood,andpackagedfoodthathavebeenexposedtofloodwater.
■■ Seekmedicalassistanceifanyhealthissuesappear,especiallyflulikesymptoms.
■■ Ventilateyourpropertywhilsttakingcareforsecurity.
■■ Donotthrowrubbishandfurnitureoutdoors;waitforanorganisedcollection.
■■ Duringthesehardtimes,bogus/cowboybuilders/tradersarefrequentlyofferingtheirservices.Makesurethatyougetawrittenquotationthatisonletterheadedpaperwithalandlinecontactnumberandaddress.
Part2-BeingPrepared76
Section 8:Importantaspectsoffloodpreparedness
■■ Think,especially,aboutvulnerablepeople
– It’syourduty
– Identifyingvulnerabilityandcommunicatingthroughotherorganisations
■■ Infrastructureandflooding
– FloodWarningsforInfrastructure(FWFI)service
■■ EvacuationandShelteringofPeople
■■ Mutualaid
– Localauthoritymutualaidguidance
– Co-ordinateoffersofmaterialhelp
– Rolesandresponsibilities
■■ Workingwiththevoluntarysector
– Recognitionofcollaborativearrangements
– Issuesforconsideration
■■ Businesscontinuity
■■ Dealingwithfatalitiesandinjuries
– Fatalities
– RolesandResponsibilities
■■ Sandbags
– Adviseresidentsandbusinesseshowtoobtainandusesandbags
NationalFloodEmergencyFrameworkForEngland 77
Think, especially, about vulnerable people
Theguidanceondevelopingamulti-AgencyFloodPlan(seesection12ofthisFramework)providesdetailedrecommendationsforsharinginformationaboutvulnerablepeopleinvariousfacilities.
Moregenerally,theCabinetOfficehaspublishedabookleton Identifying People Who Are Vulnerable in a Crisis: Guidance for Emergency Planners and Responders.Theguidanceisintendedforthedevelopmentoflocalactionplansforidentifyinggroupsofpeoplewhomaybevulnerableinanemergency.Itisprimarilyintendedforthosewhoareinvolvedinlocalemergencyplanningforvulnerablegroups,particularlythosewithinaLocalResilienceForum(LRF).
Theguidanceisbasedaroundfourkeystagesofestablishinganemergencyplanforidentifyingpeoplewhoarevulnerableinacrisis:
■■ Buildingnetworks-Themosteffectivewaytoidentifyvulnerablepeopleistoworkwiththosewhoarebestplacedtohaveup-to-daterecordsofindividualsandwhowillbeawareoftheirneeds.Thismayrangefromcarehomes(olderpeople)tothelocalhotelindustry(tourists).
■■ Creatinglistsoflists-Itwouldbeimpossibletomaintainacentralup-to-datelistofvulnerablepeople.Thereforeitisrecommendedthatlistsoforganisationsandestablishmentsaremade,whocanthenbecontactedintheeventofanemergencytoproviderelevantinformation.
■■ Agreeingdatasharingprotocolsandactivationtriggers-Oncerelevantagencieshavebeenidentifiedandnetworksdeveloped,agreeddatasharingprocedurescanbeputinplace,whichshouldhavetheflexibilitytoadjusttochangingcircumstanceswithclearagreedtriggersbetweenresponders.
■■ Determiningthescaleandrequirements-Bybuildingnetworksandagreeingdatasharingprotocols,thepotentialscaleofrequirementsofvulnerablepeoplecanbeestimatedinadvanceofanemergency,withoutdivulginginformationaboutindividuals.Thisinformationcanthenfeedintoemergencyplanningintermsofresourcesandequipment.
It’s your duty
ThestatutoryguidanceEmergency PreparednesssetsouttheresponsibilitiesonCategory1responders(withthecooperationofCategory2responders)toplanforandmeettheneedsofthosewhomaybevulnerableinemergencies.Inthiscontext,byvulnerablepeoplewemeanthosewhoarelessabletohelpthemselvesinanemergency:
■■ Makingandmaintainingplansforreducing,controllingormitigatingtheeffectsofanemergency.
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■■ Warning&Informing-Chapter7oftheCabinetOfficeguidanceshowshowtheneedsofvulnerablepersons,includingthosewhomayhavedifficultyunderstandingwarningandinformingmessages,needtobetakenintoconsiderationbythoseCategory1responderswithleadresponsibilityforcommunicatingwiththepublic,bothinpublicawarenessprogrammesandinacrisis.Arrangementswillneedtoaddresshowinformationandassistancecanbemanagedbylocalauthoritiesandhealthauthoritieswhoareinregularcontactwithvulnerableindividuals.
■■ Businesscontinuity-Chapter8oftheCabinetOfficeguidancesetsouttheresponsibilityoflocalauthoritiestoprovideadviceandassistancetothoseundertakingcommercialactivitiesandtovoluntaryorganisationsintheirareas,inrelationtobusinesscontinuitymanagementinanemergency.Thisisa‘light-touch’dutybutrespondersmayconsiderincludingadviceontheidentificationofpersonswhomaybevulnerableinanemergency.Buildingcommunityresiliencethroughgoodbusinesscontinuityplanningwillhelpreducerelianceonpublicsectorbodiesintheeventofanemergency,enablingCategory1and2responderstofocustheirresourcesonthemostvulnerable.
Theemphasisfallssignificantlyuponlocalauthoritydepartments(mostnotablyemergencyplanningandsocialcare)andtheirpartnerhealthauthoritiestomeettheplanningandresponseneedofthesestatutoryresponsibilities,mostofwhichapplytoinformationdisseminationorwarningandinformingcampaigns.
OtherlegislationmayinteractwithresponsibilitiesundertheCivilContingenciesAct-inparticulartheDisability Discrimination Act.
Identifying vulnerability and communicating through other organisations
Thefollowingtablewillhelpyouthinkaboutwhomightbecategorisedasvulnerable,forthepurposesofyouremergencyplanning.
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Figure 8.1: Potentiallyvulnerablepeople/groups
Potentially Vulnerable Individual/Group
Examples and Notes Target through the following organisations/agencies
Children Wherechildrenareconcerned,whilstatschooltheschoolauthoritieshavedutyofcareresponsibilities.Certainschoolsmayrequiremoreattentionthanothers.
LEAschoolsthroughLocalAuthorities,andnon-LEAschoolsthroughtheirgoverningbodyorproprietor.
Crèches/playgroups/nurseries
Older People Certainsectionsoftheelderlycommunityincludingthoseofillhealthrequiringregularmedicationand/ormedicalsupportequipment
ResidentialCareHomes
HelptheAged
AdultSocialCare
NursingHomes
Mobility impaired Forexample:wheelchairusers;leginjuries(e.g.oncrutches);bedridden/nonmovers;slowmovers.
ResidentialCareHomes
Charities
Healthserviceproviders
LocalHealthAuthoritiesMental/cognitive function impaired
Forexample:developmentaldisabilities;clinicalpsychiatricneeds;learningdisabilities.
Sensory impaired Forexample:blindorreducedsight;deaf;speechandothercommunicationimpaired.
Charitiese.g.theDeafCouncil
Localgroups
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Potentially Vulnerable Individual/Group
Examples and Notes Target through the following organisations/agencies
Temporarily or
permanently ill
Potentiallyalargegroupencompassingnotonlythosethatneedregularmedicalattention(e.g.dialysis,oxygenoracontinuoussupplyofdrugs),butthosewithchronicillnessesthatmaybeexacerbatedordestabilisedintheeventofevacuation,orbecauseprescriptiondrugswereleftbehind.
GPsurgeries
Otherhealthproviders(public,privateorcharitablehospitalsetc.)
Communitynurses
Individuals supported by health or local authorities
Socialservices
GPsurgeries
Individuals cared for by
relatives
GPsurgeries
Carersgroups
Homeless Shelters,soupkitchens
Pregnant women GPsurgeries
Minority language
speakers
CommunityGroups
JobCentrePlus
Tourists Transportandtravelcompanies
Hoteliers
Travelling community Localauthoritytravellerservices
Policeliaisonofficer
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Infrastructure and flooding
TheCabinetOfficecross-sectorprogrammetoimprovetheresilienceofcriticalinfrastructureandessentialservicestoseveredisruptionbynaturalhazardsisintendedtoestablishashared,consistent,proportionateandrisk-basedapproachtodeliveringreductionsinvulnerabilityoveranumberofyears.Oneoftheearlyproductsofthatwork-The Strategic Framework and Policy Statement on Improving the Resilience of Critical Infrastructure to Disruption from Natural Hazards-setsouttheproposedpolicyintent,scope,aims,timescalesandworkstreamsoftheprogramme.
Atpresent,theframeworkdoesn’tincludepracticalhelpforemergencyplannersinthisarea.Theadviceisthattheymaywishtoengagewithassetownersintheirareatodiscusstheproposedresiliencestandardswithintheframework.Thereareanumberofpoliciesbeingdevelopedthatshouldbeofdirectassistanceinthefuture-forexampleoninformationsharingtoclarifyLRFs'accesstoinformationoncriticalsitesandexpectationsofwhatshouldbedonewiththeinformation.
Flood Warnings for Infrastructure service
Flood Warnings for Infrastructure(FWFI)isawayofissuingfloodwarningstoinfrastructureownersandoperators.Aninfrastructureoperatorisanyorganisationwhichownsoroperatesfixedassetsornetworks.Thisweb-basedserviceisoperatedfortheEnvironmentAgencybyapprovedproviders.
FWFIworksbymatchingassetsatriskoffloodingwithEnvironmentAgencyfloodwarningareas.Anassetcouldbeanysitespecificequipmentordevelopmentsuchassewagetreatmentworks,telephoneexchange,anofficeordepot.Theservicealsoappliestotransportnetworkssuchasmotorway,roadandrailinfrastructure.
ThestatusofallEnvironmentAgencyfloodwarningsisupdatedevery15minutes.TheFWFIsystemautomaticallyupdatesthefloodwarningstatusofeachregisteredassetwithinthefloodwarningareas.TheinfrastructureoperatorcanthenlogintoFWFIandviewthefloodwarningstatusfortheirregisteredassets.Thisapproachallowsuserstoconcentrateonthefloodresponserequiredspecificallyfortheirownassets.
Anynumberofstaffdesignatedbytheassetowneroroperatorcanaccessthesystemusingpersonalisedusernamesandpasswords.Aswellasprovidingthelatestfloodwarningstatusateachasset,thesystemcangiveusersinformationabouttheasset,locationmapsanddetailsoftheEnvironmentAgencyAreaandIncidentRoomsinthearea.
Whenthefirstassetreachesfloodwatchorfloodwarningstatus,ane-mailalertissenttostaffdesignatedbytheregistrant.Thisalertcanalsobeintegratedwiththeregistrant'sowninternalsystemstoraiseawarenessthatoneormoreassetisatriskfromflooding.Thealertpromptsstafftologintothesystemandtaketherelevantaction.Whenstafflogin,theyseealistoftheir
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assetswiththefloodwarningstatusclearlyshown.Theassetsathighestriskoffloodingalwaysappearatthetopofthislist.Userscanaddasmuchdetailtotheseassetsastheywish-suchaslocation,uniqueidentificationreferences,anddescriptions.
Whenassetsarenolongeratriskoffloodingandthesystemshows‘allclear’status,ane-mailissent.
AnyoperatorwithsitespecificassetsoraninfrastructurenetworkcansignuptoFWFIandbenefitfromamoretailoredfloodwarningservice.Theserviceischargeable.
Evacuation and Sheltering of People
Thepurposeofevacuationistomovepeople,andwhereappropriateotherlivingcreatures,awayfromanactualorpotentialdangertoasaferplace.Thereismoreonevacuationandshelteringinsection12.
Evacuationplanningshouldbebespoketolocalrisksandcircumstancesandwillrequiretheinvolvementofmanydifferentorganisations.ItisthereforeprimarilyanissueforlocalresponseorganisationsandLocalResilienceForums,whomayhaveanevacuationsub-grouporganisedtomanagethisplanning.
Evacuation and Shelter GuidancehasbeenwrittenbytheCabinetOfficetoassistorganisationsindevelopingtheirevacuationplans.Thisguidanceisintendedtohelprespondersscopetheissuesanddeveloptheirownevacuationandshelterplansthatcanbeusedtorespondtoawiderangeofscenariosproportionatetotheriskstheirparticularcommunitiesface.Itcovers:
■■ therangeofevacuationandshelterscenariosthatplannersshouldconsider;
■■ theresponsibilitiesofkeyorganisations;
■■ legalandotherconsiderationstobetakenintoaccount;and
■■ examplesofgoodpractice.
Mutual aid
SuccessfulresponsetoemergenciesintheUKhasdemonstratedthatjointworkingandsupportcanresolveverydifficultproblemsthatfallacrossorganisationalboundaries.Largescaleeventshaveshownthatsingleorganisationsactingalonecannotresolvethemyriadofproblemscausedbywhatmight,atfirstsight,appeartoberelativelysimpleemergenciescausedbyasinglesource.
MutualaidcanbedefinedasanarrangementbetweenCategory1and2respondersandotherorganisationswithinthesamesectororacrosssectorsandacrossboundaries,toprovide
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assistancewithadditionalresourceduringanemergency,whichmayoverwhelmtheresourcesofanindividualorganisation.AlthoughtheCivil Contingencies Act 2004laysdowndutiesregardingbi-lateralco-operation,thatshouldnotbeseentorestrictrespondersworkingclosely.
WhilethereisnoUKwidepolicyspecificallyrelatingdirectlytomutualaid,manyareassuchaspolice,fire,NHSandlocalauthoritieshaveinter(andintra)agencymutualaidprotocolsinplace.Someoftheseareformal,butmanyareinformal.
Formalprotocolsdetailhoweachpartnerwillundertakeorallocateresponsibilitiestodelivertasks.Protocolsmaycovermattersofbroadagreementordetailsforworkingtogether,includinghowtohandovertasksorobtainadditionalresources.Protocolsmayormaynotbelegallybindingdependinguponthenatureoftheagreementbetweentheparties.
Local authority mutual aid guidance
TheCivilContingenciesSecretariatincollaborationwiththeLocalGovernmentAssociation(LGA)andtheSocietyofLocalAuthorityChiefExecutivesandSeniorManagers(SOLACE)hasproducedashortguidetosupportlocalauthoritiesindevelopingeffectivemutualaidarrangements.Mutual Aid: a short guide for local authoritiesoffersadviceonarangeofpracticalconsiderationsandprovidesageneralframeworkthatcanbedevelopedbyauthoritiestosatisfylocalrequirements.
Co-ordinate offers of material help
Asignificantpartcanbeplayedbythevoluntarysectorandothers.Forexample,theRedCrossmayworkwithlocalauthoritysocialservicestoopenrestcentresanddealwiththeneedsofdisplacedpeople.Andlocalbusinessesmightworkwiththeemergencyservicesregardingevacuationplansforindustrialestates,shoppingcentreetc.TheNationalVoluntarySectorCivilProtectionForum,inpartnershipwiththeCivilContingenciesSecretariat,hasproducedaVoluntary Sector Engagement Guidance NotewhichprovidessomesuggestionstosupportCategory1respondersandtheirvoluntarysectorpartnerswhenconsideringcollaborativearrangements.
Moregenerally,itislikelythatmanyoffersofhelpwillarrivefromthegeneralpublic,businesses,charities,voluntaryagenciesandothersbothduringtheresponseandrecoveryphase.Somewillbeofpracticalassistance.Otherswillbeofphysicalgoodsforthosedirectlyaffected.
Considerationshouldbegivento:
■■ procedurestoregisterandco-ordinateoffersofhelp;
■■ formingapaneltoassessneedsandthedistributionofdonatedhelp;
■■ identifyingstorageareas;and
■■ adisposalmechanismforunuseddonations.
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Roles and responsibilities
LocalResilienceForums(LRFs)arewellplacedtofacilitatetheprovisionofformalmutualaidagreementsbetweenitsmembers.RegionalResilienceForums(RRFs)canalsobeusedforfacilitatingwidermutualaidagreements,e.g.betweenalllocalauthoritiesinaregion.
MutualAidarrangementsexistwithinandbetweenmanyofthevoluntarysectororganisations.Intheeventofamajoremergency,voluntarysectorsupportmaybeaccessedthroughtheheadofficesoftherelevantvoluntaryorganisationsorthroughtheVoluntary Sector Civil Protection ForumortheNationalVoluntaryAidSocieties’EmergencyCommittee(NVASEC).
Linkswiththevoluntarysectorwillnormallybeco-ordinatedthroughthelocalauthoritiesinanarea-oftenthroughasub-groupoftheLocalResilienceForum–andactivationandco-ordinationarrangementsforvoluntarysectorinvolvementinbothresponseandrecoveryphasesshouldbeformalisedaspartofemergencyplanningwork.
Working with the voluntary sector
Thevoluntarysectorhasanimportantroletoplayinsupportingthestatutoryservicesinresponsetomanyemergencies.Experienceshowsthatactiveengagementofthevoluntarysectorinemergencypreparednessworksuchasplanning,training,andexercising,willenablethemtobemoreeffectiveintheeventofanemergency.
Planningforandrespondingtoemergenciesisprimarilydeliveredatthelocallevel.Therefore,theengagementofthevoluntarysectorincivilprotectionismosteffectivelymanagedatthelocallevel,supplementedbyregionalco-ordinationandanationalpolicyframework.
The Civil Contingencies Act 2004establishesastatutoryframeworkforcivilprotectionatthelocallevel,settingoutaclearsetofrolesandresponsibilitiesforlocalresponders.TheAct’ssupporting RegulationsrequirethatCategory1responders“haveregard”totheactivitiesofcertainvoluntaryorganisationsinthecourseofcarryingouttheiremergencyandbusinesscontinuityplanningduties.(moredetailcanbefoundinChapter 14 of Emergency Preparedness).
ThishascreatedanexpectationthatCategory1responderswillmakethemostoftheresourcesandexpertisethatthevoluntarysectorcanoffer,puttingthisrelationshiponamorerobustandlong-termfooting.
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Recognition of collaborative arrangements
Byestablishingthemostappropriateorganisationalframework,thevoluntarysectorcanbeproperlyfactoredintotheplanningprocess.Soundco-operationthroughtheLocalResilienceForum(LRF)processesanddirectlywithindividualCategory1respondersshouldbebasedonanagreedframeworkthatcanleadtoaneffectivestructure.Thisstructureneedstosuitlocalcircumstances,beunderstoodbyallconcernedandhaveclearlyidentifiedpointsofcontact.Arrangementsmustbekeptuptodatebyregularformalandinformalcontact.
Effectiveengagementofthevoluntarysectoratalocallevelwillalsofacilitateamoreeffectiveengagementandresponseintheeventofregional,nationalandinternationalemergencies.
InordertoensurethatarrangementsarefullyunderstoodandrecognisedbyalltheorganisationsinvolvedinpartnershipsbetweentheCategory1respondersandvoluntaryorganisations,itmaybeworthconsideringhowtoorganisethesearrangementsinawaythatbestsuitsthenatureofthepartnership.Thiscouldbedoneinanumberofways:
■■ servicelevelagreements;
■■ memorandaofunderstanding;
■■ establishingprotocols;and/or
■■ formallyreflectingarrangementswithinactualplans.
Issues for consideration
Thereareanumberofelementsthatneedtobeconsideredforinclusionincollaborativearrangementsinordertoensurethattheexpectationsofeachorganisationareunderstoodfullyandmeteffectively.
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Figure 8.2:Considerationswhenworkingwiththevoluntarysector
Element Issues for consideration
Existing arrangements
■■ Whatexistingarrangementshasthevoluntaryorganisationenteredinto?
■■ Whatprioritywillthenewpartnershipbegiven?
■■ Willtheotherarrangementshaveanyimpactonthelevelofsupportthevoluntaryorganisationisabletoprovidei.e.ifthereareduplicatedemands?
■■ Areexistingarrangementsformale.g.MOU,contract?
■■ Isthecontributionoftheorganisationincludedinexistinglocalplans?
Personnel ■■ Whatisthepersonnelcapacityofthevoluntaryorganisationi.e.numbers,skills?
■■ Istheestimateoftheemergencyresponserealistic?
■■ Wouldthecapacitybeimpactedbytimeofday,dayofweek,natureofemergency?
■■ Istheorganisationabletocallonamutualaidfacility?
Services and activities
■■ Whattypesofservicesand/oractivitiesdoestheorganisationprovide?
■■ Dotheseservicesand/oractivitiesrespondtoalikelyneedinanemergency?
■■ Dotheseservicesand/oractivitiescomplementorsupplementsimilarservicesand/oractivitiesprovidedbyanotherorganisation?
■■ Isthereflexibilityintheorganisation’semergencyresponsecapability?
Payment of Costs
■■ WilltheCategory1responderbeexpectedtomeetorcontributetocostsincurredbythevoluntaryorganisationduring:
i.Theplanningphasee.g.volunteers’involvementintrainingandexercising.
ii.Theresponsephasee.g.iftheemergencyisaprotractedone.
iii.Therecoverystagee.g.aftercare–HumanitarianAssistanceCentre.
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Element Issues for consideration
Insurance ■■ Doesthevoluntaryorganisationprovideinsuranceforitsvolunteersonadailybasis?Doesitprovideinsuranceforitsvolunteersinanemergencyresponse;ifsoisthecoverappropriate/adequate?
■■ DoestheCategory1responder’sinsurancecoverincludevolunteersundertakingtasksonitsbehalf?
Training and Exercising
■■ Whattrainingprogrammesdoesthevoluntaryorganisationhaveinplace?
■■ Whatadditionaljoint-trainingwouldthevoluntaryorganisationand/orCategory1responderswanttoundertake?
■■ Couldvoluntaryorganisationscontributetothedeliveryoftraining?
■■ Towhatextentwouldthevoluntaryorganisationbeinvolvedinexerciseprogrammesi.e.planning,operation,reviewandevaluation?
■■ Willtherebeassistancewithfundingforthecostsoftrainingandinclusioninexercises?
■■ Isthereanyopportunityforinternal/externalaccreditationofstandardsintraining?
Business continuity ThepurposeofBusinessContinuityistoensurethecontinuanceof‘MissionCritical’activitiesoforganisationsandbusinessesduringadisruptivechallenge.
BusinessContinuityManagementisaholisticmanagementprocessthatidentifiespotentialthreatstoanorganisationandtheimpactstobusinessoperationsthatthosethreats,ifrealised,mightcause.Itprovidesaframeworkforbuildingorganisationalresiliencewiththecapabilityforaneffectiveresponsethatsafeguardstheinterestsofkeystakeholders,reputation,brandandvalue-creatingactivities.
Theobjectiveistocontinuethecriticalactivitiesofanorganizationandfacilitatethereturntopre-incidentlevelsoflostpositionorinformationwithinthedefinedmaximumtolerableperiodofdisruption.
Thefollowingdocuments/webpageshavebeenwrittenbytheCabinetOfficetoassistorganisationsindevelopingtheirevacuationplans:
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■■ Business Continuity Toolkit-Thisguidanceisintendedtoprovideagroundingtoanysizeoforganisationorbusinessinthekeyareasofunderstanding‘BusinessContinuityManagement’andofferguidanceinaroutemaptoputtinginplaceBusinessContinuityPlans.
■■ Cabinet Office / Business Continuity Web Pages-Thesepagesintroducebusinesscontinuityandofferfurtherareasforexplorationinthevariousstrandsofthesubject.
■■ Emergency Planning College / Business Continuity Training Pages-ThesepagesofferdetailsontrainingandcoursesopentoallsectorstobuildanddevelopskillswithinBusinessContinuityManagement.
■■ AdviceforBusinesses-ThesepagesofferanarrayofpracticalandvariedadviceonbusinesscontinuitymanagementandlinkintotheBusinessContinuityToolkitandtheNationalRiskRegister.
■■ NationalRiskRegister-TheNationalRiskRegisterorNRRsetsouttheCabinetOfficeassessmentofthelikelihoodandpotentialimpactofarangeofdifferentrisksthatmaydirectlyaffecttheUK.TheNRRhasachapterdedicatedto‘ConsiderationsforOrganisations’.TheNRRisaclassifieddocument.
Dealing with fatalities and injuries
Amassfatalityincidentisdefinedasanyincidentwherethenumberoffatalitiesisgreaterthannormallocalarrangementscanmanage.Anyplanfordealingwithfatalitiesneedstobeintegratedwithallaspectsoftheresponseandrecoveryfromsuchsituationsandincidents.
Itislikelythatyourmulti-agencyfloodplanwillbeseparatefrom,butcomplementaryto,yourplanfordealingwithmassfatalitiesandinjuries.
Fatalities
TheMassFatalitiesWorkstream(undertheCivilContingenciesSecretariatCapabilitiesProgramme)aimstobuildgenericcapabilitytodealwithlargescaleeventsinvolvinglargenumbersoffatalitiesbothintheUKandoverseas.Insuchcasesthereisaneedtoensureintegrityofidentificationofthedeceasedwhilstbalancingtheneedsoffamiliesandanyinvestigation.
Roles and Responsibilities
Thelocalauthorityisresponsibleforestablishingandequippingmortuariesthatarerequiredinamassfatalitiesemergency.LocalAuthoritiesareencouragedtousemutualaidarrangements,wherenecessary,tofulfillthisresponsibility.Thelocalauthorityisresponsibleforalertingsocialservices,theEnvironmentAgencyandcallingonsupportfromfaithleadersandthevoluntarysectortoassistinwelfareprovisionforfamilyandfriendsofthedeceased.
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SocialServiceswillliaisewiththepoliceFamilyLiaisonCo-ordinatortoassesstheneedfortraumasupportstaffandothertangiblesupportforfamiliesandfriendswhoviewthedeceasedand/orneedtodealwithfuneralarrangements.
ThelocalauthoritywillusuallyappointandsupportaMortuaryFacilitiesManager.Thisappointmentmaybeachievedbyutilizingtheprinciplesofmutualaid.TheLocalAuthoritywithinwhoseareathemortuaryissituated(unlessotherwiseagreed)willassistinmattersrelatingto:
■■ themanagementofallsub-contractedservices(unlessstatedasotherwiseinagreementscontainedwithintheNationalEmergencyMortuaryArrangements);
■■ publichealth;
■■ Health&Safety;
■■ hazardouswastecollection;
■■ themanagementofeffluentdischargesinconsultationwiththewaterservice,utilityproviderandtheEnvironmentAgency;
■■ refusecollection;
■■ cleaningandroad-sweeping;
■■ theprovisionofgardenandlandscapingservices;and
■■ theupkeepandappearanceofallpublicareaswithinthemortuary.
Itisrecognisedthatlocalplansmightbeinsufficienttocopewithlargescaleevents,andsosub-regionalorregionalresponsemassfatalityplansmightberequired.RegionalResilienceForumsshouldengagewithlocalauthoritiesintheirareatoagreethescaleofplanningrequired.
TheHomeOfficeistheLeadGovernmentDepartmentonmassfatalities.Inrecognitionthataregionalresponsemaybecomeoverwhelmed,theHomeOfficehaveworkedwiththeRegionalResilienceForumsandthedevolvedadministrationstoestablishnationalcapabilitytodealwithmassfatalityincidents.RequestsforcentralassistancemustbeputtotheHomeOfficeMassFatalitiesSection.Nationalapprovalisrequiredsothatcentralresourcescanbetrackedagainstthepotentialforfurtherincidents.
ItistheresponsibilityoftheCoronertoestablishcauseofdeath,circumstancesandidentificationofabody.Ifanincidentcrossesmorethanonecoroner’sjurisdiction,aleadcoronerwillhavetobeidentified.Thecoronerwilldecideifpostmortemsarerequiredtoestablishdeath.Coronersshouldhaveemergencyplanstodealwithmultipledeathsthatmayimpactonnormalworkingarrangements.
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Sandbags
Traditionally,sandbagshavebeenusedtoblockdoorways,drainsandotheropeningsintopropertiesaswellastoweigh-downmanholecovers,gardenfurnitureandtoblocksink,toiletandbathdrainstopreventwaterbackingup.Usedproperly,sandbagscanbeveryeffectivesincethey:
■■ cankeepwateroutforshortperiodswhichcanbeimprovedbyusingtheminconjunctionwithplasticsheeting;
■■ canfilteroutsomemuddysedimentsfoundinfloodwaters;and
■■ arecheapandeasytoobtain.
However,sandbagsarerelativelyineffectivewhencomparedtopurpose-designedfloodprotectionproducts.Someofthepitfallsare:
■■ ittakestwopeopletofillthem(unlessyouhaveasandbagfillingmachine);
■■ theytaketimetofill(approximatelyonehourtofill12sandbags);
■■ theycanbedifficulttohandle;
■■ layingthemcanbeverytime-consuming;
■■ sackingmaterialisbiodegradableandwillperishifleftinplaceforalongtime;
■■ itisdifficulttoplacesandbagsinwaterandparticularlyinrunningwater;and
■■ sandbagsdoseepwaterevenwhenwell-stackedandtroddenintoplace.
Asaresult,theEnvironmentAgencystronglyencouragestheuseofpurposemadefloodprotectionproducts,suchasfloodboards,non-returnvalvesforplumbingandairbrickcovers.
Advise resident and businesses how to obtain sandbags
Somelocalauthoritieswillprovidesandbagsinafloodemergency.Butnotallaregeareduptodosototheextentthatmaybenecessary.Soit’simportanttoensureresidentsandbusinessesknowwhattheycanexpectfromlocalauthoritiesandothers,andwhattheyoughttodoforthemselves.
TheEnvironmentAgencyhaspublishedSandbags and how to use them properly for flood protection.Itisimportantthatyourcommunitiesknowwhattheycanexpect,andthatthosewhohaveresponsibilityforsandbagging,oradvisingothersonhowtodoitareawareoftheadvice.
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■■ TheReservoirsAct1975
■■ Publicattitudestoreservoirsafety
■■ Planningforreservoirfailures
– On-sitereservoirfloodplans
– Off-sitereservoirfloodplans
– WhotoWarnandInform–PublicInformationZones
– Whatinformationandwhen?
– Informingmethods
– Ensuringyourcommunicationsarerobustandfitforpurpose
– Emergencywarningmethods
■■ Handlingthemedia
Section 9:Reservoirfloodsafety
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TherehavebeennofatalitiesintheUKfromreservoirfailuresincethe1920sand,acrossthecountryasawhole,thelikelihoodofindividualdamfailureisverylow.However,thepotentialimpactofafailurecanbehigh.
The Reservoirs Act 1975
SafetylegislationforreservoirsintheUnitedKingdomwasfirstintroducedin1930afterseveralreservoirdisastershadresultedinlossoflife.ThiswassupersededbytheReservoirs Act 1975,whichtodayprovidesthelegalframeworktoensurethesafetyoflargeraisedreservoirsandappliestoreservoirsthatholdatleast25,000cubicmetresofwaterabovenaturalgroundlevel.
UndertheReservoirsAct1975,reservoirowners(Undertakers)haveultimateresponsibilityforthesafetyoftheirreservoirs.TheymustappointaPanelEngineer(aspecialistcivilengineerwhoisqualifiedandexperiencedinreservoirsafety)tocontinuouslysupervisethereservoir(SupervisingEngineer)andtocarryoutperiodicinspections(InspectingEngineer).APanelEngineermustalsobeappointedtodesignandconstructanewreservoirorrepairormakechangestoanexistingreservoir(ConstructionEngineer).
Aperiodicinspection,byanInspectingEngineer,isrequiredeverytenyearsormorefrequentlyifnecessary.Asaresultofthatinspection,asafeoperatingregimewillbespecifiedandworksrequired‘intheinterestsofsafety’mayberecommended.
ASupervisingEngineerisrequiredtosupervisetheoperationandmaintenanceofthereservoirandproduceanannualstatement.TheSupervisingEngineercanrecommendthataperiodicinspectioniscarriedout.
Forreservoirsbelowthethresholdof25,000cubicmetresregulationismanagedbytheHealthandSafetyExecutive(undertheHealthandSafetyatWork(etc)Act1974)andLocalAuthorities(undertheBuildingAct1984).
FormoreontheReservoirsAct,includingenforcement,seesection3onthelegalframework.
Public attitudes to reservoir safety
Insummer2009,theEnvironmentAgencycommissionedatotalof10extendedgroupdiscussionswithresidentslivingwithinthefloodzonesof5reservoirsinEngland,forwhichoutlinefloodmapshadalreadybeencreated.
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Insummarytheconclusionsofthegroupdiscussionswereasfollows:
■■ therewaslowawarenessandunderstandingofreservoirs;
■■ therewasdifficultygraspinghowtheyposeafloodriskfrom“failure”;
■■ awarenessandperceptionsofriskareinfluencedby:
–– typeofcommunity/residents:longtermresidentshavelivedsafelywiththereservoirandseelessrisk;
–– typeofreservoir:tendencytoviewfamiliartypeassaferthananother;
–– differentperceptionsofsmallsailing“lake”,ratherthanbigobviousreservoir;
–– typeofundertaker:trustinwatercompaniesbutconcernthataprivateownermaycutcornersoninspectionandmaintenance;and
–– topographyandproximity:hardertoimaginea“wallofwater”inaflatterarea,andperceptionthatonlythoseclosetothereservoirareatrisk.
Afterdiscussion,therewasstrongrecognitionoftheneedfortransparencytoinformresidentsofthepossibleriskandforaveryclearandconsistentlistofkeyinformationthatshouldbeprovidedinaletterorleaflet:
■■ basicinformationonstatusandsafetyatlocalreservoirs;
■■ reassurancethatinspectionsandmaintenanceproceduresarefollowedandenforced;
■■ confirmationthatemergencyresponseplanisinplace;
■■ detailsofevacuationroutesandlocations;
■■ impactofreservoirriskonhomeinsurance;
■■ contactdetailsforgeneralqueriesandforemergencysituations;and
■■ detailsofwherefurtherinformationcanbefound.
Therewasageneralconsensusthatmapsshouldbeavailable.
Planning for reservoir failures
The2007summerflooding,andtheconsequentPittReview,identifiedshortcomingsintheReservoirsAct1975andreservoiremergencypreparednessandresponse.ThethreatofabreachoftheUlleyDaminSouthYorkshirereinforcedtheneedtoamendtheActandtoensurethattheresiliencecommunitywasbetterprepared.Partofthosepreparationsneedtoincludecollaborativeworkingbetweenthelocalauthorityandtheemergencyservices,whoshouldfacilitateeffectivecommunicationsforthewholecommunity.Ajointcommunicationismoreeffectiveatgettinginformationacrosstothecommunityaswellasbeingamoreefficientuseofresources.
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Onthespecificplanningthatreservoirowners/usersandLRFsshoulddo,theGovernmenthas,todate,soughttoaddressthatintwoways:
On-site reservoir flood plans
InJanuary2010thethenGovernmentconsultedonaproposaltointroducealegalrequirementforreservoirundertakerstoproduceareservoirfloodplan.
Theproposalswouldmeanthatownersoroperatorsofatleastthe100highestriskreservoirsaroundthecountrywouldberequiredtoproduceafloodplan.Thesereservoirsarenomorelikelytofailthananyothers,butareconsideredtobe“highestrisk”onthebasisofthenumberofpeoplepotentiallyaffectedifthereservoirwastofail.
Theplanswouldinclude:
■■ areservoirfloodmap,toprovideanindicationoftheareasthatcouldbefloodedintheworstcasescenarioifadamfailscompletely;
■■ keyrolesandresponsibilitiesforstaffworkingatthereservoir;
■■ descriptionsoftheengineeringandoperationalcharacteristicsofthedam;
■■ detailedactionstotakeinresponsetoapotentialuncontrolledreleaseofwater;
■■ acommunicationsplantoactivatetheoff-siteemergencyresponse;and
■■ arangeofothermeasures.
Undertheproposals,reservoirownerswouldhaveayeartocompletetheirreservoirfloodplans.TheywouldbelegallyrequiredtocomplyandtheEnvironmentAgencywouldhavethepowertoprosecuteforfailuretodoso.
AlthoughtheGovernmenthasyettotakedecisionsonimplementationoftheseproposalsreservoirownersshouldbeencouragedtoadoptthesegoodpracticesmorewidely,inliaisonwithLocalResilienceForumsandthelocalcommunitieswhowouldbeaffectedbyreservoirfailure.
Off-site reservoir flood plans
TheEnvironmentAgencyhasproducedhighlevelfloodmapsfortheapproximately2,100reservoirscoveredbytheReservoirsAct.Basedonthese,theGovernmentwouldliketoseethetop-tierlocalauthorityinwhichareservoirissitedco-ordinateproductionandmaintenanceofthecounterpartoff-siteplan,engagingothersLocalResilienceForummembersasrequired(anddownstreamLocalResilienceForumswhereapplicable)aswellasthereservoirundertaker.Bothwarningthepublicintheeventofanemergencyandinformingthepublicinadvance(andpossiblysubsequenttoanevent)shouldbecarriedoutinliaisonwithreservoirundertakers.
NationalFloodEmergencyFrameworkForEngland 95
Adjoiningtoptierlocalauthoritiesshouldliaisewitheachothertoensurethatmessagingand,asfaraspracticable,formatareconsistentwhencommunicating.Forexample,whereapropertyisinthefloodzoneofmorethanonereservoirandthosereservoirsareindifferenttoptierauthoritiesareas,localauthoritiesshouldensurethattheinformationgivenisessentiallythesameandgiveninasimilarformattoreducethepotentialforconfusion.
Who to warn and inform – Public Information Zones
Planningforreservoirfailureisnecessarilybasedonfloodmaps,showingthelikelyextentofanyflooding.ItisrecommendedthatthemapsshouldbeusedtodesignatePublicInformationZones,comprisingallthosewhowouldbeaffectedwithintwohoursofthefailurewithintheextentofthewettedarea;andallthosewithinwhatthemapsshowastheextremeHazardzone.
Thosetoconsidertargetingspecificallywithinanfloodzoneandotherswhoneedfurtherinformationinclude;
■■ allthoseatriskgenerally;
■■ groupswhomayhaveparticularneeds(vulnerablegroups/individuals);
■■ infrastructureoperators;
■■ allCategory1and2responders;and
■■ vulnerablesites-suchasholidaycamps,industrialestates,schoolsetc.
DownstreamLRFsmayalsoneedtobepartofaninformationsharingprotocol
What information and when?
Thoseengagedinwarningandinformingthepublicwillneedtothinkcarefullyaboutwhatinformationdifferentaudienceswillwant,andwhen.Specificinformationwillbeneededinanemergencyandmoregeneralawarenessinformationshouldbesharedwiththepublicpriortoanyemergency.
Aswellasclearinstructions,relevanttotheaudience,thefrequencyofthecommunicationsshouldbeconsideredtoensurethatcommunityawarenessismaintained.Communicationsshouldprovidesiteandemergencyplanningunitcontactdetailsforhandlingissuesorconcernsfromthecommunityandsetouttheproceduresthatyouhaveinplacefordealingwithqueriesandconcerns/complaints.
Warningandinformingmaterialshouldalsorefertocentralwebsiteswheremoreinformationcanbefound.
Informing methods
Themethodsavailabletodeliverimportantandurgentinformationtomembersofthepublicareextremelyvaried.Forinformingprior toanemergencymethodstoconsidershouldinclude(butnotnecessarilybelimitedto):
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■■ mailshots(letters,laminatedcards,calendarsetc.)mediacampaign(localpressorradioforexample);
■■ informationinpubliclibrariesandcounciloffices;
■■ websites(suchasLRF/localauthorityones);and
■■ meetingswithcommunitygroups,housingassociations,etc.
Whenusingmailingsmakecleartheimportanceoftheinformationcontainedtoreducethepossibilityofitbeingthrownawayasjunkmail.Inmailings,considerincludingwithanyletteracard/laminateoftheemergencyinstructionsandcontactnumbers.Peoplearelesslikelytothrowtheseaway.
Itisworthconsideringincludingreservoirfailurewithinbroaderpreparednesscommunityliaisonevents.Sucheventsgivethelocalcommunityanopportunitytoraisequeriesandtheirconcerns.Theyprovideusefulfeedbackontheeffectivenessofcommunicationsandprovideanopportunitytoreassurethepublicofthesafetyrecordandthesite’sbeneficialroleinthecommunity.Thesegroupsworkwellwhenthereisrepresentationfromthesite,thelocalauthority(e.g.emergencyplanning/businesscontinuityadvisors),emergencyservices,residents,businessesandlocalrepresentatives.
Messagesneedtobeconsistentandpresentedinaconsistentway.Thelevelofdetailshouldbeproportionatetotheriskandimpact.Peoplearelikelytowanttobetold:
■■ thelevelofrisk–bothgenericandsitespecific–andwhyactionisbeingtakennow;
■■ whattheconsequencesofadambreachwouldbe;
■■ impactonanyplanningapplications;
■■ thecurrentsafetyrecordandanysafetymeasuresinplace;
■■ whattheresponderswoulddointheeventofanemergency;
■■ howtheywillreceiveinformationintheeventofanemergency;
■■ triggerpoints;
■■ whattheyshoulddowiththeinformationtheyhavebeengiven;
■■ evacuationroutesandwhethercarsshouldbeusedornot;
■■ safeareas;
■■ howtoprepareforanevacuation(tyingintocommunityresilience);
■■ existenceandlocationofreceptioncentresand/orrestcentres;
■■ anticipatedlevelofdamage/propertiesatriskofdemolition;and
■■ sourceof/reasonfortherisk:particularlyimportantwheremorethanonereservoirmightaffectthem.
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Decisionswillneedtobemadeastowhatitispracticalandsensibletocommunicateandreasonswhysomeinformationisnotbeingrelayed,ifthatisthecase.
Themainpurposeofcommunicationswiththoseinthefloodzoneistoavoid,orminimisetheeffectofanemergency.Thelocalcommunitymustbeawareofandunderstandtheemergencyinstructionssothattheycantakeeffectiveaction.Communicationsandinstructionsmustbeclearandrelevantforthewholecommunity,includingthosewhoarepartially-sighted,hardofhearing,elderly,residents,employers,landlords,workers,schools,hospitals,shopsandcommuters.
Siteowners/undertakersandLocalAuthoritiesshouldworktogethertoensurethatarrangementstocommunicatewithresidents,localbusinessesandthewidercommunityarecraftedinsuchawayastoensurelocalbusinessneedsaremet;makingprovisionwhereappropriateforjointcommunicationswithrelevantbodies.
Ensuring your communications are robust and fit for purpose
Guidance on reservoir emergencies: warning and informing the publicincludestemplatesthatcanbeusedasthebasisforyourPublicinformationmaterial.Ifyoudonotusethetemplateorifyouproduceanyadditionalcommunicationsmaterialitisrecommendedthatitshouldcontainthefollowing:
■■ nameofreservoirandagenciesinvolvedinplanningandpotentiallyresponseevident;
■■ verybriefhistoryofreservoirandpurposeitserves;
■■ indicationoftherisk;
■■ briefdescriptionofthetypeoffloodingareservoirfailurecouldcause-i.e.deepfast-movingwaterinsomeareas;
■■ statementthatthereisnoincreaseinriskandwhytheworkisbeingdonenow;
■■ indicationofhowpeoplearelikelytobecontacted;
■■ dosanddon’ts;
■■ evacuationrouteswhereavailable;
■■ listingofcommunicationrouteslikelytobeaffected(roadclosures,trainandbusroutes);and
■■ wheretofindoutmoreinformationbothduringandpriorto(e.g.localradiointheeventandEAorLRFwebsitespriorto)anevent
YoushouldalsofollowtheguidancegiveninChapter7oftheCivilContingenciesActguidance,EmergencyPreparedness,WarningandInformingthePublic.
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Emergency warning methods
Themethodsavailabletodeliverimportanturgentinformationtomembersofthepublicareextremelyvariedandsomedependontheavailabilityofpowersuppliesortelephonelines.Somemayrequirecarefulconsiderationoftheriskstohumanlifeandhealth,incaseatthetimeofanemergencystafformembersofthepublicareexposedtodangerwhiletheyarewarningorbeingwarned.
Forwarningintheeventofanemergency,methodstoconsidershouldinclude(butnotnecessarilybelimitedto):
■■ mobilisingofficerstogoroundonfootandknockondoorswithevacuationcards(wheretimeandsafetyconsiderationsallow);
■■ fromcarorhelicopter,byloudhailerorotheramplifiedmeans;
■■ mediaannouncements;
■■ announcementsinpublicbuildings,shoppingcentres,sportsvenues,transportsystems,etc.;
■■ automatedtelephone/fax/e-mail/textmessageswherepracticable;
■■ informationinpubliclibrariesandcounciloffices;
■■ websites;
■■ meetingswithcommunitygroups,housingassociations,etc.;and
■■ electronic/variablemessageboards,e.g.attheroadsideoronmotorways.
Handling the media
Themediamaybepresentinlargenumbersfromanearlystageofareservoiremergency,arrivinglocallywithinhours,andseekinginformationprobablybeforetheemergencyservicesco-ordinatedresponseisoperational.Theywillattempttogetasclosetothesiteaspossible,insearchofinformationandimages.Theywillbeequippedwithup-to-datecommunicationstechnologyseekinginformationforimmediatebroadcastandtoreportingdeadlines.Mostimportantly,theyarelikelytoprovidethemosteffectiveandresilientmethodofquicklyreachinglargenumbersofpeople.
Intheeventof,orinadvanceof,amajorpotentialoractualemergency,arrangementsshouldbeputinplacetoco-ordinatetheresponsetothemedia.Thefollowingshouldalsobeconsidered:
■■ establishmentofamediabriefingcentre(MBC);
■■ responderorganisationsprovidingagreedmediabriefingontheirownareasofresponsibilitythroughtheMBC;
NationalFloodEmergencyFrameworkForEngland 99
■■ developmentofamediastrategytoprovideaclearframeworkforpressofficersandreportersdetailingtheregularityofpressconferences,briefings,locationsetc.;
■■ systemstoensurethatpressreleasesfromthevariousorganisationscanbesharedandagreedpriortoissue;
■■ howanongoingstreamofinformationmightbecollatedinordertomeettheneedsofthebroadcastmedia;and
■■ arrangementsforupdatinginformationonorganisations’websitesor,whereavailable,forthemulti-agencymajorincidentwebsitetobe‘switchedon’.
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Section 10:Dealingwiththeconsequencesofflooding–healthandenvironmentalconsiderations
■■ Floodingcanseriouslydamagehealth
■■ Healthprotection
■■ HealthandSafetyconsiderations
■■ Floodingcanseriouslydamagetheenvironment
■■ Disposingofanimalby-products:fallenstock&otheranimalcarcases
– Fallencattleagedover24monthsneedtobetested
– NationalFallenStockScheme
– Horses
NationalFloodEmergencyFrameworkForEngland 101
Flooding can seriously damage health
Drowningistheclearestandmostimmediatehealthriskduringfloods.Seriousinjurycanalsobecausedbyfallingintofast-flowingwaterorfromhiddendangersunderthewater,suchasmissingmanholecovers.
Thereisalsoaseriousdangerposedbycarbonmonoxidefumesfromtheuseofgeneratorsandotherfuel-poweredequipmentbroughtindoorstodryoutbuildings.
Donotunderestimatethestressandstrainofbeingfloodedandcleaningupafterfloods.Taketimetoconsideraffectedindividuals'mentalhealthandwell-being.Donotoverdoitwhencleaningup,andrememberthattiredness,difficultysleepingandanxietyarenormalinthesecircumstances.
Health protection
Intheeventofmajorfloods,theHealthProtectionAgency(HPA)workswithlocalagencies,includingtheNHS,police,localgovernmentandtheEnvironmentAgencytoprovideexpertadviceonprotectingthehealthofthelocalcommunity,particularlyfrommicrobiologicalandchemicalhazards.LocalHealthProtectionUnits,liaisingwithnationaladviserswhospecialiseinenvironmentalhazards,infectiousdiseasesandemergencyplanning,canprovideafocalpointforhealthprotectionadvicetolocalrespondersandthepublic.
Themainthreatstohealthduringandimmediatelyafterafloodaredrowning,andinjuriescausedbyaccidentsinflowingwater.Walkingorevendrivingthroughfloodwaterisrisky-sixinchesoffastflowingwatercanknockpeopleoverandtwofeetofwaterwillfloatacar.Manholecoversmayhavecomeoffandtheremaybeotherinvisiblehazards.
Theothermainhealthhazardinfloodscomefromthestressandstrainoftheeventandclean-up.Thepublicshouldbeadvisedtotaketimetolookaftertheirfamily’smentalhealthandwellbeingandnotoverexertthemselvesintheclean-up.Thereisalsoaseriousdangerposedbycarbonmonoxidefumesfromtheindooruseofgeneratorsandotherfuel-poweredequipment,suchasdriers.
TheHPAandotherwebsiteincludesawealthofimportantinformationforthepublic,butfloodplannersandrespondersshouldalsobefamiliarwiththisadvice–or,atleast,abletoaccessitquickly.Keyreferencematerialincludes:
■■ theHPA’s flooding pages,includingdetailedQ&A;
■■ HPA leaflets;and
■■ HPA’s detailed guidelines and reference materialonflooding.
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FoodsafetyintheeventoffloodingisalsoimportantandtheFoodStandardsAgencyhaspublishedfood safety advice for people affected by flooding.
Health and Safety considerations
Allrespondingorganisations,includingvoluntaryagencies,shouldbeawareoftherisksassociatedwithworkinginornearbytofloodwater,suchas:
■■ healthissueswhencontactismadewithfloodwater;
■■ riskofelectrocution;
■■ hiddenobjects/triphazardsbeneaththewater;and
■■ thepowerofwater,howeasyitistobecomeunbalanced.
Aspartoftheirmulti-agencyfloodplanning(whichiscoveredindetailinsection12ofthisFramework)LocalResilienceForummembersshoulddecidewhetheranyspecifichealthandsafetyissuesrelatingtofloodriskintheareashouldbeincludedintheirplans.Inallcases,people/staffwhoareexpectedtoplayaroleinfloodresponseandrecoveryshouldreceiveappropriatetraininginrelevanthealthandsafetypoliciesandproceduresoftheirorganisation.
Flooding can seriously damage the environment
Floodingcancreateanumberofenvironmentalproblems,allofwhichneedtobeplannedfor.Examplesare:
■■ disposalofanimalcarcassesiffarmlandisflooded;
■■ disposalofpersonalproperty;
■■ disposalofsiltandgravel;
■■ disposalofcontaminatedsandbags;
■■ salineintrusionofafreshwaterSiteofSpecialScientificInterest(SSSI);
■■ pollutionifsewage/industrialsitesareflooded.
Alloftheaboveaspectsshouldbeconsideredwhenconstructingmulti-agencyfloodplans(seesection12formoreonthis).
NationalFloodEmergencyFrameworkForEngland 103
Disposing of animal by-products: fallen stock & other animal carcasses
Followingfloodingincidentscarcassescanendupinavarietyofplacesincluding:fields,hedgerows,depressions,towns,roads,canals,rivers,sea,beachesetc.
Whereacarcaseisdepositedonprivateland,whereverpossibletheownerofthecarcaseshouldbeidentifiedandisresponsibleforthecollectionanddisposal.Ifownershipcannotbeproventhenresponsibilityfordisposalrestswiththelandowner.Itcanbedifficulttoidentifywhoownsanimalsifsweptawayfromfarm/holding/home.
Whereacarcaseisdepositedelsewhere,includingpubliclandorhighways,andownershipofthecarcasecannotbeascertainedthenthelocalauthorityisresponsibleforthedisposal.
TheEnvironmentAgencywillremoveacarcasefromawatercoursebutonlyifthereisapollutionorfloodriskandtheanimal’sownerorlandownercannotbeidentified.
Fallenstockcannotbeburiedorburnedintheopenbecauseoftheriskofdiseasespreadthroughgroundwaterorairpollution.Instead,animalsmustbetakento/collectedbyanapprovedknacker,huntkennel,incineratororrenderer,eitherbyprivatearrangement,orundertheNationalFallenStockScheme(seebelow).
Farmerswithfallenstockshouldlocateanapprovedknacker,huntkennel,incineratororrendererbycontactingtheirlocal Animal Health Office.
Fallen cattle aged over 24 months need to be tested
Cattleover48monthsofage,whichhavediedorbeenkilledonfarmotherthanforhumanconsumption,mustbetestedforBSE.Theymustundergobrainstemtestingatapproved sampling sitespriortodisposalanditistheresponsibilityofthelivestockproducertoensuresuchanimalsaresentfortesting.
Anyoneinpossessionorcontrolofafallenbovinemustmakearrangementsforittobedeliveredtoanapprovedsamplingsitewithin24hours,orifdeliveringitthemselves,mustmakearrangementswithanapprovedsamplingsitewithin24hoursanddeliverthecarcasethemselveswithinafurther48hours.
Ifthecarcasecannotbecollectedforanyreasone.g.becauseitisinaninaccessibleplace,orifthereisdoubtabouttheageoftheanimal,theVeterinaryLaboratoriesAgencyatNewcastlemustbenotifiedon08456011367andtheywilladviseonacasebycasebasis.
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National Fallen Stock Scheme
The National Fallen Stock Company(NFSCo)wassetupinpartnershipwithGovernmentandthefarmingindustrytorunaNationalFallenStockScheme.NFSCoisanotforprofitorganisationdedicatedtodeliveringavaluedserviceforthefarmingcommunity.TheSchemeisvoluntary,andisdesignedtoassistfarmersandhorseownersincomplyingwiththeAnimal-By-ProductsRegulationbyprovidingareliable,lowcostmeansofdisposaloffallenstock.
Ifyouneedtoadviseonthedisposalofanimalcarcasses,youshouldrefertotheNationalFallenStockCompany,Animal Healthorthelocalcounciltradingstandardsdepartment.
ThosewhodisposeofdeadanimalsmustmakesurethatthedisposalcomplieswiththerequirementsoftheAnimalby-productsregulations(ABPR).Thereisonline advice on the requirements of the ABPR.Deadanimalsmustnotbeburiedorburned.
Petownerscanburytheirownpets,providedthatthepetisonenormallykeptasapet,suchasdogsandcats.Animalssuchassheepandgoats,whichareprimarilykeptasfarmanimals,cannotbeburied.Eveniftheyarekeptaspets,theymustbedisposedofbyanapprovedroute.
Ifownersdonotwishtohavetheirdeadpetsreturnedtothem,theuseofa registeredwastecarriermustbearrangedtodisposeofthem.Theymustbedisposedofatalicensedanimalcrematoriumorpetcemetery.
Horses
TheNational Fallen Stock Companyprovidesareliable,low-costschemetocollectanddisposeofhorsecarcassesorprovideownerswithcontactdetailsforlocaldisposalservices.
Ifownersarrangethedisposalofhorsecarcassesthemselves,theyshouldensurethatremovalisby:
■■ arendererapprovedbyAnimal Health,oralicensedknacker’syard;
■■ incinerationinanincineratorlicensedundertheABPR;or
■■ huntkennelsapprovedbyAnimal Health.
Theownermustensurethattherecipientsofthecarcasesholdtheappropriatelicence,permitorauthorisation.
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Section 11:Floodrescue
■■ Introduction
■■ Floodrescueconceptofoperations
■■ Responsestominororlocalisedfloodingevents
■■ Responsestomajororwideareafloodingevents
■■ Guidanceforspecialistfloodrescue–interimarrangementsforaccessing
mutualaid
■■ Informationrequiredfromrequestingauthorities
■■ Airassetsupportforwaterrescueoperations
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Introduction
Floodingandsubsequentfloodrescueoperationscanposesignificantrisksformembersofthepublicandrescuersalike.Theseriskscanbecontrolledthroughtheuseofcompetentrescuerswhohavethetrainingandtherescueandpersonalprotectiveequipmenttoenablethemtoworksafelyinthefloodenvironment.
DefraisleadinganationalprojecttoimprovefloodrescuecapabilityacrossEngland(andWales)sothatacomprehensiveemergencyresponsecanbedeployedandco-ordinatedbetweenallfloodrescueserviceproviders,includingpublic,privateandvoluntaryorganisations,makingbestuseofexistingandfuturefloodrescueassets.
TheFloodRescueNationalEnhancementProject(FRNEP)isimprovingfloodrescuecapabilityacrossEnglandandWalessothatacomprehensiveemergencyresponsecanbedeployedandco-ordinatedbetweenallfloodrescueserviceproviders,includingpublic,privateandvoluntaryorganisations.
TheFRNEPhasproducedadraftregisterofknown,floodrescueresourcesthatcouldbecalledupontosupportmajorornationalfloodevents.Thedraftregistercontainscontactinformationofcompetentfloodrescueteamsfrombothstatutoryagenciesandthevoluntarysector,alongwithexperiencedstrategicandtacticaladviserswhocanprovidespecialistadviceandsupporttoimpactedareas.Thisisalivedocument.
Flood rescue concept of operations
AkeyobjectiveoftheFloodRescueNationalEnhancementProjectistheproductionofaFloodRescueConceptofOperations(FRCO).Thisdocumentsetsouttheframeworkforenhancingthecapabilityandnationalco-ordinationoffloodrescueandwillprovidemoreclarityforfloodrescue,especiallyinmajorfloodingevents,throughsuchmeasuresas:
■■ thesettingofnationalstandardsforequipmentandtraining;
■■ theuseofstandardoperatingproceduresanddefinedcommandandcontrolstructures;
■■ aframeworkforhowagenciesinvolvedwillrespondtofloodingincidents;and
■■ processesformanagementandengagementofnationalassetsandteamtypes.
ThisFRCOwillalsoserveasabasisforco-ordinationwithothergovernmentdepartments,theblue-lightservices,andotheragencies,inmeetingthecountry’srequirementsforfloodrescue.Thisdocumentwillbeupdatedandreviewedonanannualbasis,toensureitreflectsfloodrescuerequirementsandemergingbestpractice.
NationalFloodEmergencyFrameworkForEngland 107
TheFRCOisexpectedtobepublishedforpublicconsultationinthesecondhalfof2010.Itaffordsthefollowingbenefits:
■■ greaterclarityandcertaintyinrespectofrolesandresponsibilitiesforspecialistfloodrescueoperationsduringamajorfloodevent;
■■ greaterclarityandcertaintyinrespectofrolesandresponsibilitiesofsupportingfloodrescueoperationssuchasmedicalsupport(airambulancesetc),animalrescue(e.g.RSPCA),dive-teams,vehicleretrieval(e.g.theAA)andotherfloodresponseeffortsoperatingsimultaneouslyinfloodedareas;
■■ improvedvisibilityofthecapabilitiesandcapacityoffloodrescueresourcesavailabletoGoldCommandsduringfloodevents,achievinggreaterutilisationofavailableresources;
■■ assuranceforthepublic,requestingauthoritiesandincidentcommandersthatrescueteamsrespondingtomutualaidrequestsarecapableofcarryingoutthetasksrequiredofthemsafelyandeffectively;
■■ improvementsintheco-ordinationofresourcesonthegroundandwithairSearchandRescueoperations,theprovisionoflogisticalsupport,thedecontaminationofequipmentandthereturnofspecialistresourcestonormaldutiesattheendoftheincident;
■■ reducedcostsbytakinganationalmulti-agencyapproachtostrategicresilienceandmakingbestuseofexistingassets;
■■ standardisationofapproachandequipmentacrossallagencieswithacommonprocurementframeworkwhichwillalsodrivedowncostsandenhanceresiliencethroughgreaterinteroperability;
■■ ensuringthebestuseofavailableresourcesinordertoprovidecapabilityinthemostefficientandeffectivemanner;
■■ abasisfordefiningtherequirementsofallresourcesbeingprocuredbytheprogrammeandensuringthatwhatissuppliedmeetsthecapabilityneeded;and
■■ clarityonco-ordinationofallsearchandrescueactivityduringsevereflooding.
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Responses to minor or localised flooding events
Rescueresponsestominororlocalisedfloodeventswillcontinuetobemanagedatalocallevelbyemergencyservices,usuallyunderdirectionofthepolice.Thedecisiontodeployspecialistfloodrescueteamsrestswithemergencyserviceorganisationsanditistheirresponsibilitytoassurethemselvesthatanyteamstheydeployarecompetenttooperatesafelyinthefloodenvironment.
However,whenconsideringwhethertodeployexternalresources,itcanbedifficultforemergencyservicestojudgethecompetenceandcapabilitiesofthefloodrescueteamsofferingassistance.
WhilstitisamatterforthePoliceandemergencyservicestodecidewhethertodeployrescueteamswhoarenotontheFRNEnationalassetregister,referencetotheregistercanprovideassurancethattheteamstobedeployedhavebeenassessedascompetenttoworkinthefloodenvironment.
Responses to major or wide area flooding events
Forthepurposeoffloodrescue,amajororwideareaeventmaybedefinedasanyfloodeventrequiringmutualaidforspecialistfloodrescueteamsfromoutsidetheLocalResilienceForum(LRF)area,oraneventrequiringextensivefloodrescueoperationssimultaneouslyimpactingmorethanoneLRFarea.DuringmajororwideareafloodingeventsemergencyservicesrequestingmutualaidshouldbearinmindthatthespecialistteamsfromneighbouringareasandthevoluntarysectorthattheymightnormallycalluponmayberegisteredinmorethanoneLRFarea.
Whilstflashfloodingcanoccurwithlittlewarning,inmanycircumstancesearlywarningsofamajorfloodeventwillenabletheestablishmentofrobustcommandandcontrolframeworksbeforetheeventimpactsthelocalarea.Thisearlywarningcanalsobeusedtoprovideanopportunityforspecialistmutualaidteamstoberequestedearlyandpre-deployedtothearea.Effectiveuseofearlywarninghasanumberofsignificantoperationaladvantages,reducingriskforcommunitiesandrespondersalike.
Guidance for specialist flood rescue – interim arrangements for accessing mutual aid
Governmentintendstointroducesubstantivenewarrangementsforthecoordinationofmulti-agencyfloodrescueassets.UntilthesenewarrangementsarefinalisedandpublishedaspartoftheFRCO,interim arrangements,basedonthosedrawnupbytheFireandRescueServiceinresponsetothe2007floods,willbeusedintheeventofwide-area,severeflooding.
NationalFloodEmergencyFrameworkForEngland 109
Figure 11.1:Interimfloodrescuearrangements
Theimpactedauthorityidentifiesriskofafloodeventrequiringadditionalspecialistfloodrescueassets
TheimpactedauthorityrequestsassistanceviatheFireandRescueServiceNationalCoordinationCentre(FRSNCC)inWestYorkshire.Tel:01274684914.
TheFRSNCC,whoareresponsibleforcoordinatingNationalResilienceAssets,willinitiatetheestablishmentofaChiefFireOfficersAssociationNationalFloodSupportTeam(FST).
TheFSTwillliaisewiththeimpactedAuthority,NationalFloodForecastingCentre(FFC)andCLGEmergencyRoom(andCFRADutyOfficerwhereestablished)anddecidethemostappropriatecourseofaction,includingassemblingtypedteamsfromtheassetregistertomeettherequestforassistance.
AllFRSassetswillberequestedbyFRSNCC.Non-FRSassetswillberequesteddirectlybytheFST.
TheFSTwillmaintainanationaloverviewofallfloodrescueassetsontheFRNEdatabaseandwillprovideafunction24/7toprovideanystrategicortacticaladvicethatmightbenecessaryandwillmaintaincommunicationswithallfloodrescueorganisationsonthenationalregisterduringtheemergency.
FSTwillmaintainaforwardlookingstrategicoverviewoflikelyrescuerequirementsinconsultationwiththeFloodForecastingCentreandanyotherstrategiccoordinationfunctionsthathavebeenestablished,e.g.CLGEmergencyRoom.
Whenformally“stooddown”,FSTwillcommunicatewithallteamsontheFRNEdatabase.
Part2-BeingPrepared110
Information required from requesting authorities
AffectedauthoritieswhorequestassistanceshouldcontacttheFRSNCCpassingthefollowinginformationasaminimum:
■■ locationofincidentorexpectedtime/locationofimpact;
■■ natureofincidentandanyspecifichazards,i.e.knownchemicalcontamination;
■■ prevailingweatherand(whereknown)waterconditions;
■■ estimatednumberofpersonsrequiringrescue;
■■ localresourcesalreadyinattendance/available;
■■ estimateofmutualaidresourcesrequired;and
■■ location(gridreference/nameandaddress)ofrendezvouspoint.Includinglocalaccessissuescreatedbytheflooding.
Air asset support for water rescue operations
Alloftheabovereferstoland/waterbasedspecialistrescueteamsonly.Duringamajorfloodevent,airassetswillalsoformaninvaluablepartoftheoverallrescueeffort.TheprotocolforrequestingMilitary/CoastguardHelicoptersforemergencyassistanceissetoutbelow.
TheAeronauticalRescueCo-ordinationCentre(ARCC)willrespondtoallrequestsfromtheemergencyservicesforhelicopterassistanceinanemergency.Thepotentialcontributionofferedbyairassetstoafloodingeventisconsiderable.TheARCCprovidesacommontaskingprocedureforallUKSARhelicopters.
ARCChasthefollowingresourcesavailable:
■■ RAFSeaKinghelicopterswithwinching;Infra-redandNVGsearchcapability;andNHSequivalentqualifiedandequippedparamedic(whenavailable);
■■ RoyalNavySeaKinghelicopterswithwinching,infra-redandNVGsearchcapabilityandNHSequivalentqualifiedandequippedparamedic(whenavailable);
■■ CoastguardAW139andS-92helicopterswithverysimilarcapabilities;and
■■ RAFMountainRescueTeams,eachavailableatonehour’snoticeandfullyequippedwiththeirownvehicles,communicationsandqualifiedandequippedparamedics.
IntheeventofanoperationalincidentwheretheaffectedFRS/IncidentCommanderbelievestheuseofairassetsmaybeappropriate,theyshouldcontacttheDutyOfficerattheARCC,withthefollowinginformation:
NationalFloodEmergencyFrameworkForEngland 111
■■ locationofincident(gridreference);
■■ descriptionofincident;
■■ natureoftasking(e.g.rescue,reconnaissance,transport);
■■ numberandpositionofcasualties;
■■ hazards(overheadpowerlinesetc.);
■■ weather/environmentalconditions;and
■■ otherresourcesonscene.
Figure 11.2:ARCCcontactdetails
ARCC Contact Details
Emergency 01343 836036
Admin/general 01309 678302
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan112
Part three: Detailedplanningforfloodemergencies
NationalFloodEmergencyFrameworkForEngland 113
Section 12:DetailedguidanceondevelopingaMulti-AgencyFloodPlan(MAFP)
■■ Introduction
– Whyhavespecificfloodplans?
– Aboutthisguidance
■■ Relatedresources
– MAFPchecklist
– MAFPTemplates,Figures&Tablesdocument
■■ Floodemergencyplanning
– Developingtheplan
– Consultationandcrossboundaryconsiderations
– Formatandstyle
– IncludingmapsinyourMAFP
– ProtectivemarkingofsensitiveinformationinMAFPs
■■ ConstructingyourMulti-AgencyFloodPlan(MAFP)-context
– Introduction
– Aimandobjectivesoftheplan
– Ownershipandaudience
– Relatedandinterdependentplans
– Theriskofflooding
■■ ConstructingyourMulti-AgencyFloodPlan(MAFP)-
communicationplanning
– Communicationarrangements
– Communicatingwiththepublicabouttherisk
– Warningthepublic:loudhailerannouncementincaseofevacuation
– Sirens
– Generalpublicadvice
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan114
■■ Planactivation–thresholdsandtriggers
– Therangeoftriggers
– Whatdofloodwarningsmeanandwhatdorespondersdo?
■■ Planningrolesandresponsibilities
– Actions,rolesandresponsibilities
– Environmentalconsiderations
– Healthandsafetyconsiderations
■■ Vulnerablepeople
■■ Criticalinfrastructure
■■ Beingrescuedandcaredforinanemergency
■■ Recovery
■■ Trainingandexercising
■■ Plansignoffandrevision
■■ Importantrecordstomaintain
– Contactdetailsofkeypersonnel
– Locationofcontrolcentres
– Resourceavailability
NationalFloodEmergencyFrameworkForEngland 115
Introduction
Thisguidancereplacesthe‘PreliminaryGuidanceonDevelopingaMulti-AgencyFloodPlan’whichwaspublishedinFebruary2008asastand-alonedocument.Itdrawsongoodpracticefromarangeofexistingplansandguidanceandfeedbackfromstakeholdersinspring2010andattheMultiAgencyFloodPlanworkshopheldinJanuary2010.IthasalsotakenintoaccountthethenGovernment’sresponsetothePittReviewonthesummer2007flooding.
ItisimportanttorememberthatwhilethisguidanceprovidesadviceandassistancetohelpdevelopMulti-AgencyFloodPlans(MAFPs),itisultimatelyforLocalResilienceForum(LRF)memberstodeterminewhatinformationtoincludeandthelevelofdetail.LRFsarebestplacedtodeterminewhatwillworkinarealflood.
TheguidancesetsoutthereasonsforhavingMAFPsandthecontextfordevelopingyourplan.But,mostimportantly,itprovidesaframeworkforconstructingyourplan.Italsocontainssomeexamplesandreferencematerialforyoutodrawonasappropriate.
Why have specific flood plans?
TheCivilContingenciesAct(2004)requiresCategoryOneResponderstohaveplansinplacetorespondtoallemergencies.Emergencyplansmaytaketheformofeithergenericplansthatdescribearesponsetoawiderangeofpossiblescenarios(e.g.aMajorIncidentPlan)orspecificplansthatdealwithaparticularkindofemergency(e.g.Chemical,Biological,RadiologicalorNuclear(CBRN)orEvacuationandSheltering).ALocalResilienceForum(LRF)willprobablyhavebothtypesdependingonhowemergencyplanninghasevolved.Theremayalsobearea-wideplans(e.g.atcounty-level)orsite/localareaspecificplans(e.g.atdistrict-level).
FormanypartsofEnglandandWales,floodingposesasignificantriskandiswellrecognisedwithinmanyCommunityRiskRegisters.LRFsareencouragedtodevelopaspecificfloodplantobothcomplementotherplansandtoprovidemoredetailtogenericMajorIncidentPlansorStrategicEmergencyResponsePlans.Thereasonforhavingaspecificfloodplanisbecauseofthecomplexanddiversenatureoffloodingandtheconsequencesthatarise,requiringacomprehensiveandoftensustainedresponsefromawiderangeoforganisations.ThisguidanceisthereforegearedtowardhelpingLRFstocollectivelydevelopaMulti-AgencyFloodPlan(MAFP).
About this guidance
ThisguidanceshouldbeusedbyLRFstoundertakefloodresponseplanning,includingrecoveryplanningwhereitrelatestoflooding.Itcontainsexamplesofhowtosetoutthevariouscomponentsofafloodplan,allofwhichhavebeendrawnfromcurrentgoodpracticeintheUK.TheLRFshoulddecideonthetypeoffloodplanneeded(dependingonlocalcircumstances)aswellasdecidingifaMAFPistosupersedeorcomplementexistingplans.
Section 12:Detailedguidanceondevelopingamulti-agencyfloodplan
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan116
Thisguidanceprovidesadviceonfloodplancontent,whereandhowtofindanyrelevantinformationandsuggestswhatgovernmentwouldconsideranappropriatelevelofdetail.ItshouldbereadinconjunctionwiththeChecklistdocument(seebelow)toensureyouhaveanunderstandingofwhatneedstobeincorporatedintoyourplan.Withminormodificationsandtheremovalofpersonaldata/confidentialinformation,anyplanbasedonthisguidancecouldbesuitableforgeneralpublication-forexampleontheLRFwebsite.
DecidingwhetheraMAFPis‘required’ornot,ismostsensiblydeterminedatalocallevelbyeachLocalResilienceForum(LRF)oranominatedfloodingsub-group.FormanyLRFsaMAFPoughttobeproducedforeachboroughordistrictthathasmorethan250properties(residentialand/orbusiness)in‘significantand/ormoderate’floodriskareas,accordingtotheEnvironmentAgencyfloodmap.Itisrecommendedthat,attheveryleast,astrategiclevelMAFPbecreated(forexampleatacounty-widelevel)withatargetaudiencebeinglocalauthorityChiefExecutivesandthosewitharesponsibilityinStrategicCo-ordinatingGroups(‘Gold’level).Inmanyinstances,dependingonthefloodrisk(asrecordedinaCommunityRiskRegister),itisadvisabletocomplementtheStrategicMAFPwithtacticallevelMAFPsprovidingmoredetail.Theseplanswouldequateto‘Silver’leveldocumentsforcommandandcontrolstructuresestablishedinafloodevent.AlternativelyaLRFmaychoosetoproduceasinglecounty-levelMAFPwithaseparateannexforeachborough/districtwithgreaterthan250propertiesin‘significantand/ormoderate’floodriskareas.
AnumberofLRFshaveprovidedmaterialforthisguidance.Youmaywanttocontactthemtoseeiftheywouldbewillingtosharetheirplan,orapartofit.CumbriaLRFis,forexample,willingtosharetheirplanwhichwaseffectivelyusedinrespondingtothefloodsinNovember2009.
Related resources
TherearetworelatedpublicationswhichthoseresponsibleforconstructingMAFPsshouldfinduseful.
MAFP Checklist
Thefirst,theMAFPChecklist,isatabulatedsummaryofthecontentsofthisGuidanceandshouldbeusedtocheckthecompletenessofyourMAFP.
Multi-AgencyFloodPlansandrelatedemergencyplans(evacuationplans,warningandinformingplans,businesscontinuityplansandmoregenericmajorincidentplansforexample)shouldincludeasufficientlevelofinformationanddetailforittobeconsideredasbeing‘satisfactory’.Thedefinitionof‘satisfactory’issetoutintheChecklist.
TogetacopyoftheChecklist,emailfloodemergencies@defra.gsi.gov.uk.TheMAFPchecklistwillbeincorporatedintheNationalFloodEmergencyFrameworkinduecourse.
NationalFloodEmergencyFrameworkForEngland 117
MAFP Templates, Figures & Tables document
Thesecondrelateddocumentistheseparatetemplate,figuresandtablesdocument(whichwillalsobeincorporatedintosubsequentversionsofthisframework,butwhichyoucangetnowbyemailingfloodemergencies@defra.gsi.gov.uk).Thedocumentprovidesblankversionsofthemodeltablesincludedinthisguidance.Youarenotobligedtousethembutmayselectoradaptthosewhichbestmeetyourneeds.
Flood emergency planning
DevelopmentofMulti-AgencyFloodPlans(MAFPs)allowsallrespondingpartiestoworktogetheronanagreedcoordinatedresponsetosevereflooding.Figure12.1showsahierarchyofemergencyplansandhowaMAFPmightlinktootherrelatedresponseplans.Thisisjustanexampleofsomeoftheplanstobeconsideredbutthereareothersthatmayalsoneedtobereferredto.
Figure 12.1:HowaMAFPfitswithotheremergencyplans
Leve
l of
Det
ail
Generic Emergency Plan
Generic Actions,Limited Local
Detail
Specific Actions,
Local Detail
MULTI-AGENCY / LRF FLOOD PLAN
Individual and community emergency plans
e.g.Generic Rest
Centre Plan
e.g.Generic
EvacuationPlan
e.g.Generic
CommunicationsPlan
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan118
Developing the plan
Agoodplanistheproductofagoodplanningprocess.Inotherwords,theprocessofworkingtogethertocreatetheplanisasimportantastheendproduct.Withthisinmind,LRFsareencouragedtouse“TaskandFinish”groupsorFloodWorkingGroupstoleadtheproductionoftheplanandtoencourageinvolvementofCategoryOneandTwoResponderswhowillhavearoleinitsdelivery.
TodeveloptheMAFP,itisrecommendedthatreferenceismadetothesectioncalledEmergency Planning (Chapter 5) of Emergency Preparedness-partoneoftheCivilContingenciesAct(2004).
Aworkinggroupwithrepresentativesfromallrelevantdepartmentsandagenciesisagoodwaytodevelopafloodplanthatconsidersalltheconsequencesandimpacts(short,mediumandlongterm).LocalauthoritiesshouldconsidercontributionsfromrelevantdepartmentsincludingEmergencyPlanning,Highways,Drainage,SocialServicesandEnvironmentalHealth.ArepresentativefromtheEnvironmentAgency’sFloodIncidentManagementteamshouldalsobeamemberoftheworkinggrouptoprovidefloodriskandfloodwarningadviceandinformation.ContributionsfromCategory2respondersarecriticalintermsofconsideringassetsandinfrastructureinthefloodplainthatmaybeimpactedbyfloodwater.Forexample:failureofapumpingstation,collapseofamajordrain,contaminationofwatersuppliesorpowerfailureoverlargeareasareallconsequencesthatneedtobeworkedthroughaspartofdevelopingaMAFP.
ThoughnotasubstituteforMAFPs,communityfloodplanscanalsobepartoftheapproachtofloodriskplanningandmanagementinsomelocalities.Thecommunityengagementneededtodevelopsuchaplanisinitselfaverypositiveprocess.FurtherguidanceoncommunityfloodplanningisavailablefromtheEnvironmentAgencyandrelatedinformationoncommunityresiliencecanbefoundontheUK Resilience website.
Consultation and cross boundary considerations
Toenableotherresponderstocommentontheplanand,inparticular,thelinkswiththeirownplans,werecommendthattheLRForappropriateworkinggroupcirculatetheplanamongstitsmembers.ItisrecommendedthatplansaresharedwithneighbouringLRFssothatcrossboundaryissuescanbecarefullyconsidered.Thelossofinfrastructure(energy,transport,waterassets)oftenaffectsadjacentregionsandorganisationalboundariesandjurisdictionsarerarelyspatiallycoherent.
Format and style
Afloodplanshouldcomplementotherplans,asstatedabove.Thelevelofdetailwilldependontheneedsoftherespondingorganisationsandtheexistenceofotherrelatedemergencyresponseplans.MAFPsshouldnotcontaininformationaboutthedecisionsthataremade‘ontheday’whenafloodistakingplacebutshouldaimtoprovideaclearandconcise,yet
NationalFloodEmergencyFrameworkForEngland 119
adaptable,responsetoolunderwhicheachrespondingorganisationhasclearlydefinedrolesandresponsibilities.Themostcriticalpartoftheplanisthesectionon“Activation”.Thisshouldsetoutthetriggers,andwhoisexpectedtodowhatoncecertainthresholdsaremet.Italsodetermineswherethehighrisk,highconsequenceareasareandhowthiswillinfluenceplanactivationandtriggers.
Theplanshouldbeintuitivesothatanyprofessionalrespondercanpickitupandunderstandwhatactionorresponseisrequiredindifferentcircumstances.Forexample,usecolour-codeddividersortabstohelpusersnavigatethroughtheplantogetherwithappropriateuseofmaps,tables,diagramsandevenpictures.
ConsiderifitwouldbebeneficialforthedocumenttobeaccessibleviatheNationalResilienceExtranetinordertoaiddocumentcontrolanddistribution,althoughhardcopiesshouldalsobeavailableforbusinesscontinuityreasonsandinincidentcontrolrooms.
Including maps in your MAFP
Aseparatefoldercontainingspare/laminatedmapsmaybeusefultoenablerespondingofficerstoremovemapswithoutdismantlingtheplan.TheEnvironmentAgencyFloodIncidentManagementteamcanadvisewhereitisappropriatetousethefloodmapand/orfloodwarningareasasthebasisofthemapscontainedwithintheplan.
GeographicalInformationSystem(GIS)softwareisausefulwaytoproducemapstoincludeinyourMAFP–seeaGuide to GIS Applications in Integrated Emergency Management.Tosavehavinglargenumbersofmapsinthehardcopyofyourplan,youcouldconsidersavingmapsonaCDandstoringthediscinwiththehardcopyoftheMAFP.ToavoidduplicationconsiderwhatmapsarealreadyavailableonEnvironmentAgency‘Goldlaptops’andinLocalFloodWarningPlans(e.g.floodzone,floodwarningareaandsurfacewatermaps).Youmaydecidethatitwouldbeusefultokeepcertainhardcopiesofmapsincontrolroomstoo.ItisimportantfortheLRFpartnerstoagreewhatisneededandwillworkforyouinafloodemergency.
Protective marking of sensitive information in MAFPs
InordertofacilitateeaseofhandlingandstorageofMulti-AgencyFloodPlans,thelowestpossibleprotectivemarkingshouldbeapplied,consistentwiththesecurityofthecontainedinformation.FewMulti-AgencyFloodPlansarelikelytoneedaprotectivemarkinghigherthanRESTRICTED.InmanycasesMAFPscanbemarkedPROTECT,orremainunclassified.
ParticularissuestoconsiderinrelationtotheprotectivemarkingofMAFPs:
■■ Isthereinformation(includingmaps)whichflagsinfrastructureasCriticalNationalInfrastructureislikelytoincreasetheclassificationtoCONFIDENTIALorhigher?
■■ DoestheMAFPincludesensitivepersonalinformation(e.g.staffmembers’hometelephoneorpersonalmobilenumbers)?
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan120
■■ DoestheMAFPincludedinformationwhichcouldjeopardisethesecurityofphysicalassets(e.g.accesscodestobuildings)?
■■ IfitisvitalthatsensitiveinformationisincludedintheMAFP,coulditbeannexedinaseparatedocument(e.g.logofkeyinfrastructure,detailsoffacilitiesforvulnerablepeople)?
■■ IfthecontentoftheMAFPwarrantsitbeingprotectivelymarked,cananedited,unclassifiedversionbepublished-forexampleontheLRF’swebsite?
AdviceonwhichProtectiveMarkingtoapplycanbefoundintheSecurity Policy Framework(CabinetOffice,October2009)andSecurityVettingandProtectiveMarkings:AGuideforEmergencyResponders(CabinetOffice,March2008).
ForguidanceonsharingpersonaldatapleaseconsultData Protection and Sharing: Guidance for Emergency Planners and Responders.
Constructing your Multi-Agency Flood Plan (MAFP) - context
Thefollowingsectionsetsout,indetail,howyoumaywishtoconstructyourMAFP
Introduction
Thissectionshouldbeshortandcoveraspectsnotcoveredinsubsequentsections.Itshould:putintocontextemergencyplanninginyourareaorregion;explainwhytheplanisneeded;clarifyifitsupersedesother,previousplans;setoutbroadlywhattheplanincludesandexcludes;andstatewhentheplanwillbereviewed.
EachMulti-AgencyFloodPlanneedstoadequatelyaddressriver,coastalandsurfacewaterfloodrisk(asdefinedinCommunityRiskRegisters)andtheassociatedemergencyresponsearrangements.Theplanisnotexpectedtoincludefloodrisksfrom:
■■ foulsewage;
■■ burstwatermain;
■■ canalsandprivatelakes;
■■ reservoirdamfailure(seeseparatesectionforguidanceonthis).
Itisusefultoincludea‘Documentcontrol/distribution’tableatthefrontofyourMAFP.
NationalFloodEmergencyFrameworkForEngland 121
Aim and objectives of the plan
Thissectionshouldbroadlydescribethepurposeoftheplanincluding:
■■ whethertheplanisastrategicortacticalplan;
■■ thestrategicortacticaloutcomeexpectedinrespondingtoaflood(i.e.whatsuccessfulimplementationoftheplanwouldlooklike);
■■ thedifferenttypes/sourcesoffloodingandtheirstatuswithintheCommunityRiskRegister;and
■■ theareacovered,preferablywiththeaidofmap(s)thatshowthefloodoutline.(Figure12.2isanexampleofthis).
Theaimandobjectivesshouldspecifywhattheplanwillandwillnotbeabletoachieve.TheobjectivesthatyousetshouldfollowtheSMARTprinciplewherepossible(i.e.theobjectivesshouldbeSpecific,Measurable,Achievable,RelevantandTime-bounded).Forexample,itwouldnotbesensiblefortheplantostatethatitsobjectiveistopreventfloodwaterenteringanypropertyasthisislikelytobeunrealisticandbeyondthelogisticalcapabilitiesofrespondingorganisations.
Anexampleofthe‘AimsandObjectivesofthePlan’sectiontakenfromtheCumbriaMAFP(2009)isprovidedintheTemplates,FiguresandTablesdocument.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan122
Figure 12.2:Exampleoverviewmapoffloodrisk
NationalFloodEmergencyFrameworkForEngland 123
Ownership and audience
Inthissection,thepersonresponsibleforupdatingandmaintainingtheplanshouldbeidentified.Thereshouldalsobeclarityontheintendedaudienceandhowtheywillbenotifiedofupdatesandmodificationstotheplan.
Anumberofagenciescontributetoandjointlyownmulti-agencyplans.Dependingonlocalcircumstances,someLocalResilienceForums(LRF)willopttoplacetheaccountabilityfortheplanwiththeLRFmemberscollectively.Ifso,theagency/individualresponsibleforupdatingandmaintainingtheplan(oftenfromthelocalauthorityorPoliceEmergencyPlanningUnit)shouldbegivenaclearmandatefromtheLRF.
Related and interdependent plans
Inthissection,youshouldeitherlistotherrelatedandinterdependentplansorinsertadiagramshowingtheplansandlinkagesbetweenthem.
Theplan(s)shouldnotduplicateinformationthatisalreadyavailableelsewheresocross-referencingisencouraged.ItisimportantthattheMAFPispreparedaspartofacomplementarysetofemergencyplanssomeofwhichmaycontainsectionsonfloodresponse.
Figure 12.3:EmergencyPlans–fittingthemtogether
Regional Strategic Framework
Area specifi c emergency plans
Thematic plans, guidance and arrangements
Specifi c Organisational plans
Other plans
Generic Regional Emergency Response Plans
Multi-Agency
Flood Plan
Recovery Plan
Mass Evacuation
Plan
Reservoir Flood Plans
Major Incident PlanMulti-Agency
Response PlanCrisis Management Plan
Essential Services Plans
Organisations Communications Plans
Utility Company Plans
EA Local Flood Warning Plans
Local Authority Plans
Emergency Services Plans
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan124
Thediagramabove(figure12.3)isanillustrationofhowtolinkexistingplanscoveredbyyourLRFandwillhelpyouworkouthowvariousplanscomplementeachotherandhowtoavoidduplication.Forexample,ifyouhaveaplanforWarningandInformingorforEvacuationandShelteringitmaybethatthereisnoneedtocovertheseaspectsintheMAFP.Similarly,iftherolesandresponsibilitiesofthevariousorganisationsaresetoutinagenericMajorIncidentPlancoveringyourLRF,thenthereisnoneedtorepeatthisinformation.Instead,insertacrossreferenceandincludeonlyspecificoradditionalinformationthatisrelevanttoafloodresponse.
TheEnvironmentAgencyproducestheLocalFloodWarningPlansincludedinfigure12.3.AllpartsofEnglandandWaleshavebeenassessedbytheEnvironmentAgencyfortheleveloffloodriskfromriver(fluvial)andcoastalfloodingandsusceptibilitytosurfacewaterflooding.Aspartofwarningthepublicwherefloodingfromriversortheseaislikelytooccur,theEnvironmentAgencyhasidentified“floodwarningareas”.Theseareissuedwithafloodwarningwhenweatherforecastsorariseinriverlevelsdictate.TheEnvironmentAgencyLocalFloodWarningPlansareoperationalplansandcontaindetailedinformationandmapsontheseareas.TheseplansareoftenusedbyStrategic(gold)andTactical(silver)controlsasreferencedocumentsinincidentcontrolroomsduringaflood.So,inpreparingyourMAFP,youmaywanttoinsertanappropriatecross-reference,orlink,totheEnvironmentAgencyLocalFloodWarningPlans,ratherthanduplicateinformation.
The risk of flooding
Thissectioncanbeseparatedintosubdivisionsby‘community’or‘sourceofflooding’.Itshouldbeginwithanoverviewoffloodriskforcoastalandriverfloodingintheareaandsusceptibilitytosurfacewaterflooding(seefigure12.4foranexampleofafluvialfloodriskmapandfigure12.5foranexampleofasurfacewaterfloodingsusceptibilitymap).Astrategicplanshouldasaminimum,containanoverviewofsusceptibilitytosurfacewaterflooding;whereasatacticalplanshouldcontainmoredetailaboutareaswithahighersusceptibilitytosurfacewaterflooding.
YourEnvironmentAgencyrepresentativemustbeconsultedbeforesurfacewaterfloodingdataispublishedsincetherearelicencecontrolrestrictions.
TheriskinformationshouldbeconsistentwiththeriskassessmentinformationpublishedintherelatedCommunityRiskRegisters(LRFsshouldconsiderthefloodriskslistedinthelocalriskassessmentguidancewhenpreparingandupdatingCommunityRiskRegisters).TheCivilContingenciesSecretariatpublishesthisguidanceeachyeartoinformthisprocess.TheRiskRatingMatrixusedforlocalriskassessmentpurposesisshowninfigure12.6.
Thereareanumberofinformationsourcesyoumaybeabletodrawon:
■■ theEnvironmentAgency’sLocalFloodWarningPlanscontaininformationonriver,seaandtidalfloodrisk;
NationalFloodEmergencyFrameworkForEngland 125
■■ youmayfinditusefultoconsultthetidetablestoincludeinformationonhightidesifapplicable;
■■ wheretheyexist,SurfaceWaterManagementPlansshouldbereferredtoforinformationontheriskofsurfacewaterfloodingandstrategiesformanagingthatrisk-uppertierorsingletierlocalauthoritiesleadonproducingtheseplans,incooperationwithotherpartners;
■■ historicrecordswillbeanotherusefulsourceofinformationwithregardtosurfacewateranddrainagefloodingproblems;
■■ watercompaniesmayhaveon-siteand/oroff-siteemergencyplansandfloodmaps;and
■■ manyCOMAH(ControlofMajorAccidentHazards)siteswillhaveriskassessmentinformationthatcanbeconsideredaspartofdetermininganddescribingtheimpactofflooding.
IfthereareInternalDrainageBoards(IDBs)withinyourareayouneedtofactorintheirresponsetoafloodevent.AlthoughIDBsarenotcategory1or2respondersundertheCivilContingenciesAct,theyareaDrainageAuthorityandprovidefloodprotectionandwaterlevelmanagementinareasofspecialdrainageneed(low-lyingfloodrisksensitiveareas).Theyalsooperatecontrolstructuresandpumpingstationsundertheirjurisdiction,soitisimportanttheyareconsultedinpreparingyourplan.
TopreparefloodriskinthissectionoftheMAFP,startbycompilingfloodrisksummarysheetsforeachcommunitytogetherwithassociatedmaps(detailedmapswillhelprespondersduringanincident,toquicklyidentifytheareasthatareatrisk).Thesummarysheetsshouldalsoshowknownlocationsofvulnerablegroupsandsitesofkeyinfrastructure.
Figure12.7isanexampleofacommunityfloodrisksummarysheet.Theexampleprovidedshowsfloodriskareastogetherwithlocationsofvulnerablegroupsandcriticalinfrastructure.Incommunitieswithsignificantfloodrisk,itmaybenecessarytosplitcommunitiesintosmallersub-areaspresentedovermultiplesheets.Thesesub-areasshouldbeconsistentwiththeEnvironmentAgency’sfloodwarningareas.Whereappropriate,thetablescanbeadaptedtocaptureinformationonothertypesoffloodriskasdescribedabove.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan126
Figure 12.4:ExampleoverviewfloodmaptakenfromthelocallevelMultiAgencyFloodPlancoveringCanterburyCityCouncilarea(2009)
Figure 12.5: Exampleofasurfacewatersusceptibilityfloodmap
!
7 manually operated sluices adjacent to Millers Arms.
Automatic level gauge just upstream. All CCC responsibility.
5 manually operated sluices adjacent to The Causeway. Automatic level gauge just
upstream. All CCC responsibility.
5 manually operated sluices adjacent to Millers Field car park. CCC
responsibility.
All sluices at Barton Mill, Sturry Road removed in 2007
1 manually operated floodgate adjacent to
sluices at Millers Field car park. CCC responsibility.
1 trash screen adjacent to The Causeway. EA responsibility.
NationalFloodEmergencyFrameworkForEngland 127
Figure 12.6:RiskRatingMatrix(fromEmergencyPreparedness,Annex4F)
Rel
ativ
e Im
pac
t
Relative Likelihood
Risk Category
Low(1)
Medium-Low(2)
Very High Risk High Risk Medium Risk Low Risk
Medium(3)
Medium-High(4)
High(5)
Limited(1)
Minor(2)
Moderate(3)
Significant(4)
Catastrophic(5)
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan128
Figure 12.7:ExampleofaCommunityFloodRiskSummarySheetforacommunitythatiscoveredbytheEnvironmentAgency’sfloodwarningservice(takenfromClevelandMAFP).
Note:Thetablecanbeadjustedasappropriateforacommunitynotcoveredbythefloodwarningservice.Thetablecouldalsobeadaptedandusedtodescribeotherfloodriskssuchassurfacewaterflooding.
Skinningrove – Covered by EA Flood Warnings
ThereisasignificantpopulationatriskofTidalandFluvialfloodinginSkinningrove.Themajorityofpropertiesat
riskareresidentialaccommodation.AreasatriskborderKiltonBeckandincludetheZetlandRow,BeachRoad,
NewGroveTerrace,ChapelStreet,MarineStreetandtheHighStreet.TheEAidentifythat189householdsare
atriskofflooding.TheFishermansshedsandstorage,Communitycentreandalimitedamountofcommercial
propertiesarealsoatrisk.Theprimaryriskoffloodingwillbefromacombinationofhightidesexacerbatedby
floodingformKiltonBeck,whichwouldbackupduringhightides.
No. of properties at risk No. of vulnerable people at
risk
Critical vulnerable infrastructure
189howeveradditional
propertiesoutsideofflood
warningzonemaybe
affected.
Currentlyunknown. Nocriticalinfrastructureidentified,other
infrastructureidentifiedbelow.
No. of properties
registered to Flood
Warning service
Return Period Lead Time
35 Unknown 2–12hours
Vulnerable Infrastructure:RoadaccesstoGroveHillTerrace.SubstationlocatedatNZXXX,XXX.Water
treatmentplantatNZXXX,XXXandtheRiversideCommunityCentre.Skinningrovebridgehas2pipelineson
thedownriverside,believedtobedomesticgassupplypipes.MillLane,HighStreet,BeachRoadareliableto
flooding.
NationalFloodEmergencyFrameworkForEngland 129
Access and Egress
Primary Access: isviatheA174SkinningroveRoadandMillLanehoweverthismaybedisruptedintheeventof
highwaterinKiltonBeck.
Alternative Access:A174viaCarlinHow,GroveRoad,ViaA174Loftus,HummerseaLane,Skinningrove
BankRoad.
IntheeventofthedefencesbeingclosedfootaccessispossibleviaafootbridgeonMillLane.Emergency4x4
accessmaybepossibleeitherviaDeepdaleLaneandfieldsorviathefootpathleadingfromtheminingmuseum
–Cautionthisisverynarrowseephoto(x).
Road Closures:IntheeventthatthebridgeatNZ714,198isclosedtherewillbenovehicularaccesstoGrove
HillandZetlandRoad.Itisessentialthatemergencyservicescontrolroomsarenotifiedifthebridgeisclosedas
perfollowingprocedure.GroveRoadfromCarlinHowemayalsorequireclosingtoreducecongestion/riskto
membersofthecommunity.
Advanced Signage: A174BrottonRoadjunctionwithSkinningroveRoad.
Flooding History (if known)
Skinningrovefloodedtwicein2000,JuneandNovember,onbothoccasionsasaresultofhightidescombined
withsignificantamountsofrainfall.Resultinginsignificantdamagetoanumberofresidentialproperties,no
liveswerelost,howevertherewasasignificantimpactonthecommunity.Manyresidentspropertiesrequired
refurbishment.
Rest Centres
ThenearestdesignatedrestcentreisLoftusYouthandCommunityCentre,analternativecentreislocatedat
SkeltonCivicCentre.Bothcentresareasignificantdistanceandwillrequiretransport.
ItislikelythattheRiversideCommunityCentremaybeopenedasarestcentrebymembersofthecommunity
andwouldprovideagoodstaginglocation.Considerationshouldbegiventousingitasanalternativerest
centre/commandpost.
Vulnerable Populations
ResidentsofZetlandRow,StoneRow,BeachRoad,TheSquare,HighStreet,ChapelStreet,NewGroveTerrace,
WilsonTerraceandMarineTerraceareparticularlyatrisk.
Evacuationrouteshavebeenidentifiedbythecommunitywardens,wardensarealsoabletoassistwiththe
identificationofvulnerablecommunitymembersinprivateresidences.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan130
Flood Defences / Alleviation Schemes
Seadefenceswererefurbishedin2007.Thebridgeinthecentreofthevillageislikelytobeclosedbyvolunteers
orCarillion(CouncilPartners)intheeventofhighwater(6”belowthebridgesoffetseephoto).Closingthis
bridgestopsvehicleaccesstoZetlandRowandGroveHill.
Intheeventofthesirensoundingthevillageshouldbeevacuatedimmediately.Thesirencanbeautomatically
activatedbytheEnvironmentAgencyormanuallybyEA/CarillionorFloodWardensatthesite.Approximately
1,000sandbagsareavailableinacontainerintheriversidecommunitycentreyardtheseareforusebythe
community.TrashScreensarelocatedatNZ758,185onKiltonBeck,previouslydebrishasblockedtheriver
resultinginsuddensurgesofwateranddebris.
Traffic Management
TrafficflowswillbeseverelyhamperedintheeventoffloodingitislikelythattheA174mayalsobeaffected.
Flood Warning Status Area(s) at risk (refer to map)
FloodWatch NA
FloodWarning NA
SevereFloodWarning 121FWFNS078
Risk Assessment: (Refer to Emergency Preparedness, Annex 4D)
Likelihood 2 FinalRiskRating
(Low–VeryHigh)
4LowImpact-Health
-Social
-Economic
-Environmental
3
3
1
1
MeanImpact
Score
2
NationalFloodEmergencyFrameworkForEngland 131
Figure 12.8:ExamplemapfromRyedale’sdraftMulti-AgencyFloodResponsePlan(2007)
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan132
Constructing your Multi-Agency Flood Plan (MAFP) - communication planning
Goodcommunicationsareessentialandtheyneedtobeplanned.
Communication arrangements
Yourplanningshouldincludecommunicationarrangementsbetweenallagenciesrespondingtoaflood(wherethesearenotcoveredinanotherLRFplan)andwarningandinformingthepublic(akeyrequirementoftheCivilContingenciesAct).
AseparateCommunicationPlan,oraGenericEmergencyPlan,maycontainarrangementstocommunicatewiththepublic,mediaandeachother.But,ifthisisnotthecase,itisrecommendedthatthissectionofyourMAFPshouldinclude:
■■ arrangementsforinternalcommunications;
■■ adocumentedprocedureformanagingcrossboundarymutualaid;
■■ amulti-agencystrategicmediaco-ordinatingroleandJointMediaStrategy;
■■ pointsofcontactatStrategic/Tactical/Operational(Bronze,SilverandGold)levels;
■■ pre-preparedannouncements/mediareleases;
■■ triggersforcommunicatingwithothers;and
■■ contactdetails(seefigures12.25and12.26)andarrangementstosetupandoperateahelplineorinformationline.
Thissectionshouldalsocross-refertoLRFtelecommunicationplanswheretheyexist.Wheretheydon’texist,asectionshouldbeinsertedintheMAFPonhowcommunicationsbetweenrespondingorganisationswouldworkinthecaseofanyofthepublicnetworksfailing(i.e.contingencyarrangements).
TheMAFPshouldnotcontainthearrangementsforissuingfloodwarnings,asthiswouldduplicatetheEnvironmentAgencyLocalFloodWarningPlans.
Communicating with the public about the risk
ThissectionofyourMAFPshouldincludewaysofraisingthepublic’sawarenessabouttheriskofflooding,thearrangementsintheMAFPandhowtheymaybeaffectedbyfloods.IfanLRFtelecommunicationsplandoesnotexist,thissectionshouldincludeplanstocommunicatewithvulnerablepeoplewhoaredependentontheirtelephoneintheeventofnetworkfailure.
Inspecificfloodriskareas,theEnvironmentAgencyissuesfloodwarningsforriverandcoastalfloodrisktothoseregisteredontheFloodlineWarningsDirectsystem.Thereisalsoanonline
NationalFloodEmergencyFrameworkForEngland 133
servicethatshowsthecurrentfloodwarningsituationinEnglandandWales-thewebsiteisupdatedeveryfifteenminutes.TheEnvironmentAgencyalsoorganisepublicawarenesscampaigns,arrangeforthebroadcastingofwarningmessagesonlocalradioandprovideadviceonwhatdobeforeduringandafterafloodevent.
ThereisalotoffloodinginformationontheEnvironment Agency’s websiteincludingasearchfacilityonpostcodesallowingacheckonwhetherapropertyisinafloodriskarea.
Warning the public: loudhailer announcement in case of evacuation
Hereisanexampleofaloudhailerannouncement,shouldevacuationbecomenecessary:
“Flooding of (insert area) is possible within the next few hours. The authorities are considering evacuating residents from properties in (specify roads / etc).
If you occupy property in any of these locations you should make preparations now for a possible evacuation.”
(AdaptedfromtheCityofYorkFloodDefenceEmergencyResponsePlan(2002)andfromtheLondonFloodResponseStrategicPlan(March2007))
Sirens
Ifsirensareusedwithinyourareaduringafloodincident,itmaybeusefultoincludesomeinformationonthem,forexample;
Figure 12.9:Sirendetails
Sirens
Location
Ownership
Triggerforactivation
Whoapprovestheactivation
Whatdoesitmean
Whatactionisrequiredandbywhom
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan134
General public advice
YourplanshouldalsoincludetheneedtoreinforcetheEnvironmentAgency’spublicmessagesonwhattodointheeventofpossibleoractualflooding,whichisreproducedbelow.
Figure 12.10:Whattodointheeventofpossibleoractualflooding
Before a flood
Prepare a Flood kit and include the following:
Packasmallbagwithessentialbelongingsandincludewarmclothes,torch(checkbatteries),radio(winduporbatterypowered),food,water,otherdrink,mobilephone(preinputusefulnumbers),anymedicinesthatyoumightneedtotake,anyimportantdocumentsthatyouhaveandafirstaidkit.Keepthisbageasilyaccessible.
■■ Collectpersonalbelongings,includinginsuranceandbankdetails,andessentialtelephonenumberstogether,andkeeptheminawaterproofbag.
■■ Movepeople,pets,valuablesandsentimentalitemsupstairsorinahighplacedownstairs.
■■ Keepaseparatelistofusefultelephonenumberstohand(thisshouldincludeyourlocalCouncil,yourinsurancecompanyandFloodline – 0845 988 188).
■■ FindoutwhereandhowtoturnoffyourGasandElectricity.Ensurethatyouswitchitoffiffloodingisimminentbeforeevacuating.
■■ Ifpossible,moveelectricalequipmentandfurnitureupstairs.
■■ Anyfurniturethatyoucannotmoveupstairs,trytoraisewelloffthefloor.
■■ Alertneighboursandassisttheelderly,infirmandthosewithsmallchildren.
■■ Blockdoorwaysandairbricks
■■ Avoidwalkinganddrivingthroughfloodwater,therecouldbehiddenhazards.
■■ KeepuptodatewithlocalradioforfurtherinformationandannouncementsandviaFloodline 0845 988 1188.
During a flood
■■ ContinuetolistentosituationupdatesonyourlocalradioandviaFloodline 0845 988 1188.
■■ Keepdryandoutoffloodwaterifpossible
NationalFloodEmergencyFrameworkForEngland 135
■■ Stayinyourproperty,ifsafetodoso,untiladvisedotherwisebytheemergencyservicesorthefloodwaterhasreceded.
■■ Donotwalkordrivethroughflowingfloodwater.
■■ Ifitisnecessarytowalkthroughshallowfloodwater,takecareforhiddenholes,obstaclesorotherhazards
■■ Donotwalkonriverbanks,seadefencesorcrossbridgesovertorrentialrivers.
■■ Avoidcontactwithfloodwaterandwashanyexposedpartsbeforehandlingfoodorattendingtowounds.
■■ Ifpossible,moveelectricalequipmentandfurnitureupstairs.
If evacuation becomes necessary
■■ Staycalmanddonotpanic.
■■ Policeofficersand/orotherofficialswilltrytovisitallpropertiesatrisktoadviseontherequirementtoevacuate.
■■ Ifroadconditionspermit,movevehiclestounaffectedareasandaskfriends/familyifyoucansharetheirparkingfacilities.
■■ Youwillhearaboutyourevacuationpointfortransportandthelocationofthereceptioncentreeitherverballyorbyaleaflet.
■■ Trytocheckthatanyelderly/vulnerablefamilymembersorneighboursknowabouttheevacuation.
■■ Trytoinformfamilymembers/friendsastowhereyouareevacuating.
■■ Listentotheadviceoftheauthoritiesandfollowanyinstructionstoleaveaproperty.
After a flood / returning home
■■ Contactyourinsurersassoonaspossibleandfollowtheiradvice.Mostinsurershavea24hrhelpline.Donotthrowawaydamagedgoodsuntilyourinsurerhasauthorisedyoutodoso.Itisagoodideatotakephotographsofthedamage.
■■ Checkthesafetyofelectricityandgasbeforeuse.Aqualifiedelectricianneedstocheckanyelectricalequipmentandcircuitsthathavebeenexposedtofloodwater.
■■ Avoidcontactwithanyremainingfloodwateroritemshavinghadcontactwithfloodwaterunlesswearingprotectivegloves/clothing.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan136
■■ Boilalltapwateruntilitisdeclaredsafebythewatersupplycompany
■■ Washyoursandyourchildren’shandsfrequentlywithbottledwaterifyoursupplyhasnotbeendeclaredfitforuse.Disinfectanychildren’stoys.
■■ Disposeofanycontaminatedfood,includingtinnedfood,defrostedfood,andpackagedfoodthathavebeenexposedtofloodwater.
■■ Seekmedicalassistanceifanyhealthissuesappear,especiallyflulikesymptoms.
■■ Ventilateyourpropertywhilsttakingcareforsecurity.
■■ Donotthrowrubbishandfurnitureoutdoors;waitforanorganisedcollection.
■■ Duringthesehardtimes,bogus/cowboybuilders/tradersarefrequentlyofferingtheirservices.Makesurethatyougetawrittenquotationthatisonletterheadedpaperwithalandlinecontactnumberandaddress.
Plan activation – thresholds and triggers
Thissectionisvitaltothesuccessofyourplan.Itshouldsetoutaspreciselyaspossiblethetriggersorthresholdsforactivatingyourfloodemergencyarrangements.Thismaybeeasiesttomapoutasaflowdiagramoratable.ItshouldcoveragreedactivationtriggersforbothTactical(Silver)andStrategic(Gold)commandsandotherresponsearrangements.TheaimistoensureallpartnersintheLRFareclearonthepointatwhichtheplanisactivated,andatwhatpointsduringanincidentdecisionsarelikelytobemadeandactiontaken.YourEnvironmentAgencyrepresentativeonyourLRFwillbeabletoexplainwhatthedifferenttriggersmightmeanintermsofthelikelihoodandscaleofanyflooding.
ActivationarrangementsshouldtakeaccountoftherecommendationsinthePittReviewthatGoldCommandsshouldbeestablishedatanearlystageonaprecautionarybasiswherethereisariskofseriousflooding(Pittrecommendation43)andthatuppertierlocalauthoritiesshouldbetheleadresponderfortriggeringmulti-agencyarrangementsinresponsetosevereweatherwarningsandlocalimpactassessments(recommendation41).
The range of triggers
ThefollowingareexampletriggersandactionsthatyourMAFPcouldinclude:
■■ FloodGuidanceStatementsissuedbytheFloodForecastingCentre(FFC);
■■ heavyrainfallalertsissuedbytheFFC;
■■ extremerainfallalertsissuedbytheFFC;
NationalFloodEmergencyFrameworkForEngland 137
■■ flashseverewarningsissuedbytheMetOffice;
■■ earlyseverewarningsissuedbytheMetOffice;
■■ EnvironmentAgencyfloodwarnings;
■■ reportsoffloodingfromthepublic;and
■■ RiverlevelsontheInternet(nearreal-timeriverlevelsdatapublishedontheEnvironmentAgencywebsite)-notatriggerbutusefulsupportinginformation.
Formoreinformationonthesetriggersandhowtheycouldbeofuse,pleaserefertosection5:Toolsforfloodemergencyplannersandresponders.InformationabouttheFloodForecastingCentreanditsservicescanbefoundinsections4and5ofthisFramework.
Triggersneedtobelinkedtospecificactions.InthecontextofyourMAFP,thesemayinclude:
■■ alertandstandbyprocedures;
■■ peopletonotify/inform;
■■ instructionsfortheopeningofcontrolcentres;and
■■ othergenericactions,dependingonthescaleoftheincident.
Figure12.11isanexampleofqualitativetriggersandgenericactionsforfloodwarningserviceareasandotherareas.Itisimportanttospecifydifferentresponselevelsandtheassociatedgenericactionssothateverybodyisawareofthescaleofresponseexpected,proportionatetotheseverityoftheincident.SuggestedLocalResponseleveldefinitionsaregiveninFigure12.12.
What do flood warnings mean and what do responders do?
TheEnvironmentAgencyoperatesafloodwarningserviceinmostareasatriskoffloodingfromriversandthesea(seesection4-WhatyoucanexpectfromtheEnvironmentAgency).Iffloodingisforecast,warningsareissuedusingasetoffoureasilyrecognisablecodes.Incoastalzonesthereisanassumed8hourleadtimeforovertoppingofcoastaldefencesfromstormtides.
ComprehensivedetailsarecontainedintheLocalFloodWarningPlanmaintainedbytheEnvironmentAgencywiththesupportofthemembersoftheFloodWarningPlanningGroups.Thatplanisintendedtoassistwiderdisseminationandunderstandingoffloodwarningarrangementsandsystemsandistheprimereferencedocumentinthisrespect.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan138
Figure 12.11:Exampleplantriggersandgenericactionsusingqualitativeimpactmeasures
Triggers in areas covered by the Flood Warning
Service
Triggers in areas not covered by the Flood
Warning service
Environment Agency monitors rainfall, river and
sea levels and the tides 24/7
Flood Guidance statement issued by the Flood
Forecasting Centre [FFC]
LEVEL 0
Low Flood Risk
Local Response Level *
UKCMF [Coastal & Monitoring Forecasting
service] costal water level alerts provided by the FFC
[to EA only]
Extreme Rainfall Alert issued by the FFC
LEVEL 1
Moderate Flood Risk
Severe weather warning and / or reports of
minor fl ooding
Heavy Rainfall Alert issued by the FFC [to EA only]
Category 1 and 2 responders receive weather warnings and reports of fl ooding.
Flood Guidance statement issued by the Flood
Forecasting Centre [FFC]
Met Offi ce severe weather warning
LEVEL 2
Substantial Flood Risk
Extreme Rainfall Alert / Reports of
Met Offi ce severe weather warning
LEVEL 3.
Severe Flood Risk
Reports of signifi cant / catastrophic fl ooding
Flood Warnings from the Environment Agency activate
the plan
LEVEL 4
Recovery
Floodwater recedes
Environment Agency opens Area Incident Room. Monitors / operates fl ood
defences on main river /tidal.
* please refer to Figure 12.12 on next page “local Response Level Defi nitions”
NationalFloodEmergencyFrameworkForEngland 139
Figure 12.12:LocalResponseLevelDefinitionsExampletakenfromBarnet2010MAFP
Analertleveldescribestheexpectedscaleofresponsetoafloodincident.Thesecouldbedefinedas:
Local Response Level
Trigger Actual or forecast Impact
Response
Level 0 (Lowfloodrisk)
Nofloodwarning/watchesand/ornowarningsofsevereweatherinforcethatmayresultinflooding
Nofloodingoccurring
Nospecificresponse,normalawarenessofpossiblefloodrisk
Level 1 (Moderatefloodrisk)
Floodwarningsinforce,
And/or
Warningsofsevereweatherinforcethatmayresultinflooding
And/or
Reportsofminorimpactflooding.
Lowimpactfloodingoffields,gardensandminorroads.
■■ Individualrespondersoffloodplansandproceduresmaybeactivated
■■ Someroutineorpreparatoryresponsesmaybeunderway,e.g.diversionofminorroads,dutyofficersputonstandby,resourcesmobilised
■■ Heightenawarenessiffloodrisk
Level 2 (Substantialfloodrisk)
Floodwarningsinforce,
And/or
Warningsofsevereweatherinforcethatarelikelytoresultinflooding
And/or
Reportsofpropertyflooding.
Aslevel1,plusHighimpactfloodingwhichmayresultinrisktolife,homesandbusinesses.
Asforlevel1,plus:
■■ MultiAgencyFoodPlan(MAFP)activated
■■ RespondersundertakeactionscontinuedinMAFP
■■ ConsidertheneedforpoliceledMulti-agencyco-ordination.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan140
Level 3 (Severefloodrisk)
Severefloodwarningsinforce,
And/or
Warningsofsevereweatherinforcethatarehighlylikelytoresultinflooding
And/or
Reportsofsignificant,catastrophicflooding.
Aslevel2,plus:
Veryhighimpactfloodingwhichmayresultinextremedangertolifeandproperty.
Asforlevel2,plus:
■■ Policeco-ordinatemulti-agencyresponse
■■ Multi-agencycontrolcentreopen.
■■ ConsidertheneedtosetuparecoveryworkinggroupalongsidetheSCG(Gold).
Level 4 (Recovery)
Floodwarnings/severefloodwarningsdowngraded
And/or
Allclearsissued
And/or
Nowarningsofsevereweatherinforcethatmayresultinflooding.
Floodwaterreceding.
Localauthoritytofacilitaterehabilitationofthecommunityandrestorationofthecommunity.
Figure12.13isanexampletakenfromtheCityofYorkFloodDefenceEmergencyResponsePlan(2010)ofquantitativemeasuresthatcanreplacequalitativedescriptionstoreflectlocalimpactsandcircumstances,suchas,riverlevels,numberofpropertiesorspecificinfrastructureatrisk(theAOD(AboveOrdnanceDatum)levelsrelatetogaugeboardreadingsonabridgeovertheOuseinthecentreofYork).Thisisappropriateinthislocationastheriverhasaslowrateofrise.Therefore,themulti-agencygrouphastimetoimplementadetailedresponsestrategy.Inrapidresponsecatchments–examplesareBoscastleandCarlisle,whererapidfloodingoccurredin2004and2005respectively-aquantitativemeasurediagramwouldnotbesuitableduetothespeedatwhichriverlevelsincrease.Respondersneedtobeverysurethatcertainlevelswouldtriggeraparticularaction.
NationalFloodEmergencyFrameworkForEngland 141
Figure 12.13:Exampleoftriggersandgenericactionsusingquantitativeimpactmeasures
(ExtractedfromtheCityofYorkFloodDefenceEmergencyResponsePlan(January2010)
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan142
Planning roles and responsibilities
Thissectionfollowsdirectlyonfromplanactivationtriggersandshouldsetouttheactions,rolesandresponsibilitiesofrespondingagenciesinrelationtothesetriggers-foreachcommunityatriskfromflooding.
Actions, roles and responsibilities
ThelevelofdetailincludedinthissectionisamatterforyouandyourLRF.Non-floodspecificorgenericrolesandresponsibilitiesshouldbeassetoutinotherstrategicorgenericemergencyplansandnotrepeatedhere-relevantreferencesorhyperlinksshouldbeadded.
YoushouldfocusonprovidingasummaryofthefloodspecificrolesandresponsibilitiesofCategoryOneandTwoRespondersattheplanningstageandduringtheevent.Considercircumstanceswheretheremaybeaneedforchangesinrole.Forexample,theEnvironmentAgencyhasprimaryresponsibilityforfloodingfromrivers,whereasthelocalauthorityand/orWaterCompanyhasprimaryresponsibilityforfloodingfromdrainsandsewers.
Figure12.14providesanexampleformatforpresentingfloodspecificrolesandresponsibilities.AllLRFsarestronglyadvisedtoincludetables,similartothoseinFigures12.14throughto12.17intheirMulti-AgencyFloodPlan.Formost,thiswillformthebackboneoftheresponseplantofloodinginagivenarea.
Yourplanwillneedtodescribeasfaraspossibletheexpectedscaleofresponseandassociatedactionstobetakenintheeventofflooding(ifnotincludedinothergenericplans).Thisshouldincludethe:
■■ specificactionsthatorganisationsandrespondingagencieswilltakeatdifferentstagesofafloodingincident;
■■ activationofplansandprocedures;
■■ openingofincidentrooms,commandandcontrolcentres;
■■ linesofcommunication;
■■ criteriaformakingdecisionstoprioritiseandallocateresources;
■■ availabilityofrelevantresourcesandskills;and
■■ environmentalresponsibilities.
NationalFloodEmergencyFrameworkForEngland 143
Environmental considerations
Itisimportanttoidentifyandlistinthe‘consequence’columnofyourversionofFigure12.16anyanticipatedenvironmentalimpactsdirectlyresultingfromtheflood,forexample:
■■ disposalofanimalcarcassesiffarmlandisflooded(seesection11formoreonthis);
■■ disposalofflooddamagedpersonalproperty;
■■ disposalofsilt,gravelandotherflooddebris;
■■ disposalofcontaminatedsandbags;
■■ salineintrusionoffreshwaterSitesofSpecialScientificInterest;and
■■ pollutionifsewage/industrialsitesarefloodedorpollutionfromfloodedvehicles,storedfertilisersetc.
Alloftheaboveaspectsshouldbelinkedbacktorecoveryplanswheremoredetailontheactionsneededshouldbesetout.
Health and Safety considerations
Allorganisationsneedtoensurethattheyhaveappropriateandadequateresourcesthatcanbesustainedoveraprotractedperiodifrequired-inparticular,staffresource,personalprotectiveequipmentandaccommodation.Thisneedstobeclearlysetoutinyourplan,oracrossreferencemadetotherelatedplan.
Allrespondingorganisations,includingvoluntaryagenciesshouldbeawareoftherisksassociatedwithworkinginornearbytofloodwater,suchas:
■■ thehealthissueswhencontactismadewithcontaminatedfloodwater;
■■ theriskofelectrocution;
■■ hiddenobjectsortriphazardsbeneaththewater;
■■ thepowerofwaterandhoweasyitistobecomeunbalanced;and
■■ drowningorhypothermia.
WhenpreparingyourMAFP,LRFmembersshouldconsiderthespecifichealthandsafetyissuesrelatingtofloodriskintheareathatshouldbeincludedintheplan.Inallcases,individualsandteamsthatareexpectedtoplayaroleinfloodresponseandrecoveryshouldreceiveappropriatetraininginrelevanthealthandsafetypoliciesandprocedures.TheMAFPisnotexpectedtosetoutsuchpoliciesandprocedures,butyoumaywishtoincludesomeorallofthemdependingonyourlocalarea.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan144
Figure 12.14:ExamplesofRolesandResponsibilitiesSpecifictoTypeofFlooding.AdaptedfromBarnetMAFP,2010
Organisation Risk Preplanning Minor Flood (medium Consequence)
Major Flood (high Consequence)
Notes Recovery
EnvironmentAgency
Fluvial,Costal,tidal
PrepareandmaintainLondonLocalFloodPlan;AdviseandDevelopmentproposals;updatefoodriskmaps;supportLRFfoodriskassessments;maintainwatercoursecapacity;maintainfloodmanagementstructures.
ConveneaFloodAdvisoryServiceteleconference
Issuewarnings;monitorcatchments;operatedefences;supportLA’sandemergencyservices.
(Asforminorflood)
SupportLA’sandcommunityasresourcesallow;Repairanydamageddefences.
FireBrigade(LFB)
Fluvialflooding.
Standardoperationalresponsetoaspecialservice.ResponsibilitiesundertheFireandRescueServicesAct2004LESLPguidanceLFBbusinesscontinuityplans.
Liaisewithotheragenciesandprioritiseresponseandresources.Giveassistancewithpumping.Giveprioritytofloodinginvolvingariskoflife,fireorexplosion.Environment
issuese.g.chemicals,hospitals&homesandtheelderly,publicutilitiesandfoodstorage,heritagesites.
AswithMinorflood.Informrelevantofficers.Assessresources.FollowLESLPprocedures.AttendGoldandotherco-ordinatedresponsemeetings.
RequestassistancefromtheRNLIforsearch&rescuewherethereisapotentialrisktolife.
Assistotheragenciestominimisetheimpactonthecommunity.
NationalFloodEmergencyFrameworkForEngland 145
Figure 12.15:ResponseActions,RolesandResponsibilities.ExampleadaptedfromtheBarnetMAFP,2010
ForamorecomprehensiveexampleseetheTemplates,FiguresandTablesDocument
Response Actions, Roles and Responsibilities
Emergency Response
ThedifferentagenciesrespondingtoafloodeventwillcarryouttheirdutiesasstatedintheLESLPProcedureManual(withfocusonAnnexEoftheRecoveryPlan).Thefollowingpagesstatethedifferentrespondingagenciesresponsibilitieswithregardstoafloodevent.
Metropolitan Police Service (MPS)
LESLPguidancestatestheMPShavethefollowingresponsibilities;
■■ SavingofLife
■■ co-ordinationoftheemergencyservices,localauthoritiesandotherorganisations
■■ Secure,protectandpreservethesceneandcontrolsightseersandtraffictheuseofcordons.
■■ Investigationoftheincidentandobtainingandsecuringofevidence
■■ Collectionanddistributionofcasualtyinformation
■■ IdentificationofthedeadonbehalfofHMCoroner
■■ Preventionofcrime
■■ Familyliaison
■■ Shorttermmeasurestorestorenormality
■■ Intheeventofwarningandinformingcommunitiesatriskoffloodingnotbeingeffective,wherepracticable,assistancewillbegiven.
MajorincidentdeclarationtobemadebyBluelightorlocalauthoritypersonnel.
Majorincidentprocedure–commandandcontrol-provisionofGoldco-ordinationchairandlocation.
ConsiderationastoCasualtybureauetc.
UseofGoldmediacell.
Recoverycellbuiltintocommandandcontrolprotocols.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan146
London Fire Brigade (LFB)
LESLPguidancestatestheLFBhavethefollowingresponsibilities:
■■ Lifesavingthroughresponseandrescue
■■ Firefightingandfireprevention
■■ Renderinghumanitarianservices
■■ Detection,identification,monitoringandmanagementofhazardousmaterialsandprotectingtheenvironment
■■ ProvisionofqualifiedscientificadviceinrelationtoHAZMATincidents
■■ Salvageanddamagecontrol
■■ Safetymanagementwithintheinnercordon
■■ TomaintainemergencyservicecoverthroughouttheLFBareaandreturntoastateofnormalityattheearliesttime
■■ Inafloodeventassistancewillbegiventorelevantagencies,particularlythelocalauthority,tominimisetheeffectsofmajorfloodingonthecommunity
■■ Inafloodeventassistancemaybegivenwithpumpingoperations,dependingonthesituation,withprioritybeinggiventocallswherefloodinginvolvesarisktolife,orfireorexplosionandtocallsfromhospitals,residentialhomesfortheelderly,publicutilitiesandfoodstoragedepots.
WhentheMulti-agencyFloodPlanisactivated,anditisamajorincident,theLFBwillattendmeetingsandliaisewithotheragenciestoprioritisetheirresponse.
Assistotheragenciestominimisetheimpactonthecommunity.
AccesstoboatsthroughtheFire&Rescueservice.
NationalFloodEmergencyFrameworkForEngland 147
National Grid. Gas – Electric
Distribution/ transmission
■■ SetupGold/Silver/Bronzecommandasappropriate,onsite
■■ Co-operatewithrespondingagenciestoisolatesuppliesandmakesafeasnecessary.
Wherepossiblereconfigurationofsupplies
Possiblelock-outofregulatorstomaintainpressuresingasmains.
Waitforwatertorecede,re-establishsupplies
Prepareforrecovery
Invokemutualaidandresourceplans
Returntoservice
Environment Agency (EA)
EAhavetheleadroleformonitoringcatchmentsandprovidingfloodwarningswherepracticalandpossible,toprotectpeopleandpropertyatrisk.
Operatedefences
WhenpossibletheEAwillattendcommandcentrestoprovideface-to–facesupportandinformationonwhereafloodishappeningandwhatcanbeexpectedtohappenduringthecourseofthefloodevent.
WhereresourcesareavailabletheEAwillhelplocalauthoritiesandtheemergencyservicesindealingwiththeeffectsofflooding,suchasevacuationanddistributingfloodprotection
SupportLA’sandcommunityasresourcesallow
Repairanddamagesdefences.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan148
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NationalFloodEmergencyFrameworkForEngland 149
Figure 12.17:FloodWarningActions.ExampletakenfromtheBarnet2010MAFP
(Anexampleofactionstakenbyvariousorganisationswhenaspecifiedfloodwarninglevelisinforce.)
Flood Watch
Who What When Comments
Environment Agency (EA)
IssueAlert Combinationofwaterlevelsandforecastsuggestfloodinglikely.Propertyfloodingnotexpected.
Precautionary:maynotresultinflooding.
Met Police (MPS)
CommunicationofEAmessagetopatrollingofficers.
UponreceiptofEAmessagebyBOCUcontrolroom
AdditionaltasksundertakenasrequestedbyEA.
London Fire Brigade (LFB)
FireBrigademobilisingcontrolpromulgateswarningwithintheLFB.Prepareforpossiblebatchmobilising.
AssessResources
OnreceiptofinformationfromtheEA.
NHS/PCT Alertrelevantorganisations(acute/mh/GPs)tobeaware
Assoonaspossible Informationre.floodwarningshouldbereportedtoNHSLondonemergencyplanning.
London Ambulance Service (LAS)
MonitorknownhighriskareaswithreferencetoEAfloodmaps.
IssueofFloodWatch
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan150
Flood Watch
Who What When Comments
Thames Water
Three Valleys
BT
Noterisks
Setupafloodwatchteam
ConveneThreatAssessmentResponsegroup
Situationmonitored
Ongoingmonitoring
■■ Impactofcustomerservice
Assessed
*Reviewofimpacttootherserviceprovidercustomers-developasingleindustryview-Peopleandoperationsatriskidentifiedfollowingriskassessment
TFL - HA
Transport Networks
Monitorsituationbutnospecificactions
Vulnerable People
Thissectionshouldsetoutthemechanismforsharinginformationaboutvulnerablepeopleinvariousfacilities(notindividuals’details)whomayneedspecificassistanceduringafloodincident.Figure12.18isincludedtohelpidentifyspecificfacilities.
TheCabinetOfficeGuidance on Identifying People who are Vulnerable in a Crisis(CabinetOffice2008)shouldbereferredtoformoredetail,includingguidanceonidentifyingwhoisvulnerable.TheEmergencyPreparednessGuidancetoPart1oftheCivilContingenciesAct(Section2.2)definesvulnerablepeopleas"thosethatarelessabletohelpthemselvesinthecircumstancesofanemergency”.
Informationonthelocationandneedsofvulnerableindividualsisheldandmaintainedbyvariousagencies/organisationsanditisnotnecessary,orsensible,tocatalogueorduplicatethisinformationintheMAFP.Thecontactdetailsofsuchagencies/organisationsshouldbeincludedinthetableforwhichfigure12.25isamodel.AmechanismforsharingthisinformationduringanemergencyshouldbeagreedwithintheLRF.
NationalFloodEmergencyFrameworkForEngland 151
Akeyissuethatneedstobeconsideredistheapproachtowarningandinformingvulnerablepeople.Suchwarningsmustbeaccessiblewhichmayrequireanumberoftailoredcommunicationsapproaches.
Itisrecommendedthatanappropriatemapshowingthelikelywhereaboutsofvulnerablegroups(e.g.schools,nurseries,carehomes)isincludedinyourMAFP.Anditisadvisabletocontacttheoperatorsofthosesitestoseeiftheyhaveanyexistingarrangementsinplace,includingevacuationplans.Ifso,theseshouldberecorded.Itisalsoimportanttorecordthecontactdetailsofcertainkeypeople,suchaskeyholders,floodwardensandcommunitygroups.
Figure 12.18:ExampleLogsheetofVulnerablePeopleinvariousfacilities.
Facilities Address Useful Contact number(s)#
Support needed in Emergency
Communication Issues
Comments Grid Ref
##
NewcastlePrimarySchool
<do the same for all groups> e.g.
Schools
Nurseries
Carehomes
Surgeries/clinics
Areaswithhighconcentrationsofelderly
Caravanparks&campsites
NewcastleStreet,NewcastleNE11AA
MrSSmith(keyholder)
(daytime)01911111111
(m)07877345862
Evacuationforpupilswithspecialneeds
(e.g.Sensoryimpaired)
300Children
Noevacuationplan
xxxyyy
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan152
Critical infrastructure
TheUK’scriticalnationalinfrastructurecomprisesninesectors:water,energy,transport,telecommunications,health,food,financialservices,emergencyservicesandgovernment.Thelossofsomeinfrastructureassetsasaresultoffloodingmayhaveasignificantimpactanditisvitalthatthisisassessed.
SothissectionofyourMAFPshouldidentifyallinfrastructureatriskfromfloodingthatiscriticaltothelocalpopulation,ortootherpartsofthecountry.Figure12.19providesamodelforcapturinglocations.Includemapsasfaraspossible.Butbearinmindthatthedetailsonthesitesyouincludeislikelytodeterminetheprotectivemarkingwhichshouldbeappliedtothedocument.
Whenplanningforpotentialfloodingonornearasite,LRFsshouldworkwithinfrastructureownersandoperatorstoidentifytheatrisklocations;theirbusinesscontinuitymanagementplans;thepotentialconsequencesoflossoftheasset;andthekeydependenciesandinterdependencieswithothersectors(watersupplyreliesontheavailabilityofelectricityforexample).Localknowledgeisimportant.
Itisrecommendedthatyouprioritisethecriticalityofkeyinfrastructureaspartofyourplanning.Forsomeinfrastructuresectorstheremaybesufficientresilienceatlocalleveltomanagelikelydisruptioncausedbyflooding(supermarketsareunlikelytobequicklyexhaustedoffoodforexample),inwhichcaseyoudonotneedtofocusontheminyourMAFP.
WhereLRFtelecommunicationplansexist,theseshouldbereferredtoaspartoftheMAFP.TheMAFPshouldcrossreferencetootheremergencyplansasneededandthensetoutthespecificactionsfallingtorespondingagenciesinrelationtoeachoftherelatedrisks.
MAFPsshouldbesharedwithneighbouringLRFsinviewofthefactthatcrossboundaryissuesneedtobecarefullyconsidered.Disruptiontoinfrastructurecanaffectanumberofadjacentcommunities,andbeyond.
GuidanceonunderstandingandimprovingtheresilienceofinfrastructuretonaturalhazardswillbemadeavailableontheNationalResilienceExtranet(NRE).
NationalFloodEmergencyFrameworkForEngland 153
Figure 12.19:ExampleofCriticalInfrastructureLogsheet
Key Infrastructure Address Useful Contact number(s)#
Details Grid Reference
##
e.g.NewcastleSub-Station
MainStreet,Newcastle,NE11BB
MrsPSmith(keyholder)
(daytime)01911111111
(m)07877345862
OwnedbyNEDL-
Supplies500propertiesinsouthHull
XXXYYY
#Allcontactdetailsshouldalsobeincludedinanappendix.
CompletetheLogSheetforallkeysitesandinfrastructure,includingforexample:
■■ electricitysub-stations;
■■ telephoneexchanges;
■■ policestations;
■■ firestations;
■■ hospitals/A&Es;
■■ ambulancestations;
■■ localauthorityoffices/depots;
■■ shoppingcentres;
■■ COMAHsites;
■■ prisons;
■■ watertreatmentworks;
■■ sewagetreatmentworks;and
■■ transporthubs.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan154
Being rescued and cared for in an emergency
Inthissectionyoushouldrecordthearrangementsforevacuatingandshelteringpeopleatriskfromflooding.Indoingso,youneedtodifferentiatebetween‘Rescue’and‘EvacuationandSheltering’(althoughthelattermaybeadequatelycoveredbyaGenericEvacuationandShelteringPlan).
ItisrecommendedthattheEnvironmentAgencyisconsultedforadviceonflooddepthinformationwhichcouldbeusefulforplanningevacuationroutes.
IfaGenericEvacuationandShelteringPlanexists,itshouldnotbereplicatedintheMAFP.Butifnot,theMAFPshouldidentify:
■■ vehiclesandresourcesavailableforevacuation;
■■ safeevacuationroutesandrendezvouspoints,preferablymarkedonamap;
■■ trafficmanagementarrangementsforknownfloodproneroads;
■■ shelters/receptioncentrestoaccommodatedisplacedvictims(plusanyvaluablestheymaybring,includingessentialmedicationandpets);
■■ detailsofevacuationplansoperatedbyothers;
■■ issuesregardingthelonger-termrecoveryofpeople,suppliesandservices;
■■ issuesregardingtheevacuationandshelteringofpets,welfareoflivestockandzoos;
■■ amethodoftrackingdisplacedpeople,distributionofsuppliesandservices;and
■■ theneedsoffaith,religious,culturalandminorityethnicgroupsandcommunitiesandforeignnationals.
Therelevantlocalauthorityteamwouldidentifythemostappropriaterestcentres.Reception/restcentresshouldbemarkedontheappropriatemapinyourplan.
Forfurtherguidanceonevacuationplanning,refertotheEvacuation and Shelter Guidance(2006)ontheUKResilienceWebsite.
Figure12.20isanexampleofbasicevacuationandshelteringarrangements.
NationalFloodEmergencyFrameworkForEngland 155
Figure 12.20:ExampleEvacuationandShelteringArrangements(adapttosuitlocalarrangements)
Reception / rest centres / shelter
Community being evacuated
Potential no. of evacuees (i.e. those at flood risk)
Routes and distance from evacuee rendevous point
Resources available at facility
Facility contact number / key holder
O/S Grid Reference
HexhamSchool
RiversEstate
MainStreet
134
213
RiverRoad0.5miles
MainStreet1mile
Shelter,catering,food&blanketsfor200,12toilets,Telephones,25carspaces2kennels,2mini-busesonsite
(BusCoA:01911111111)
077770777777(JoBloggs)
Refertomap(addcrossreference)
BlythSportsCentre
UpperBlyth
LowerBlyth
39
122
BlythStreet1mile
NorthStreet1.5miles
Shelter,catering,food&blanketsfor500,32toilets,Telephones,45carspaces0kennels,3busesonsite
(BusCo.B:01912222222)
077770777777(JohnSmith)
Refertomap(addcrossreference).
PlanningassumptionsforevacuationneedtobeagreedwithinyourLRF,onthebasisofnationalguidance,andincludedwithintheMAFP.Forexample:
Evacuationandemergencyshelteringandaccommodation:Aslittleasonehourwarninggiventoemergencyservicesforevacuation.AssumesX%ofpeopleleavetheareaspontaneouslyandstaywithrelatives/friends(includesholidaymakersleavingtheaffectedareatoreturnhome);Y%useavailablehotelsinsafeareas(touristsarevacatedtogiveroomstolocalresidents);Z%needassistedshelteringforupto6months.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan156
Intheeventofevacuationbeingnecessary,youwillalsowanttoensurethereareprocessesformarkingthosepremisesashavingbeenchecked.Indoingso,it’simportanttobearinmindthat:(a)youshouldn’tdamagetheproperty–aswellasthepotentiallegalimplications,someownerswilltakeexceptiontotheuseofpaintmarkingsontheirpremises;and(b)anymarkingswhichareusedshouldbedesignedtolimittheriskoflooting.
Examplesofrecordsthatyoumightwanttokeeparesetoutbelow.
Figure 12.21:Premisesmarking(extractedfromtheLondonFloodResponseStrategicPlan)
Premises Marking Aide Memoir
S Premisessecureandnoanswer
E Premisesenteredandchecked
O Occupantshavenotbeentraced
T Occupantshavebeentracedelsewhere
X Occupantsrefusetoleave
M Occupantsawaitingmedicalevacuation
✓ Occupantshavebeenevacuated
> Premiseshavebeenre-occupied
Markings should be:
■■ Aslargeaspossible(toassistquickobservation/identificationfromthestreet)
■■ Displayedontheleftsideofthedoor
■■ Inchronologicalorder–toptobottom
■■ Ascloseaspossibletoeyelevel
■■ Clearlyvisibletoapersonobservingthepremisesfromthefrontornormalsideofapproach
■■ Bywaxcrayonsorsimilarwaterproofmarking
NationalFloodEmergencyFrameworkForEngland 157
Figure 12.22:ExampleofaCheckedRecord
FLOODING INCIDENT – PREMISES CHECKED RECORD
LOCATION Use rear of form for any additional information like
babies/infants, pets, guide/hearing dogs, walking aids,
non English speaking etc.
Town/Sector(Area of search): TomTownTT12AB
Street of Multi-occupancy
Premises Checked:
SamStreet
Date/Time Checked: 10/10/10/18.30
Team Ref./Officer Completing: ATeam/MrT
Property
No. or
Name
Last Marking Symbol on
Premises or ‘None’
OCCUPANTS
Number in
premises
Names Vulnerable Status
Y/N
Gransden None 2 MrHarryBrown
MrsLillyBrown
N
Y-blind
44 S 3 MrDavidJones
MrsTinaJones
MissLauraJones
N
N
N
Recovery
Thissectionshoulddescribehowtherecoveryfromafloodincidentistobemanaged.
National Recovery Guidance(includingaRecoveryPlanGuidanceTemplate,detailedTopicSheets,andCaseStudies)hasbeenpublishedontheUKResiliencewebsite,anditisrecommendedthatthisguidanceisusedtohelpcompletetherecoverypartofyourMAFP.Ifthereisnoexistinggenericrecoveryplan,thenthefloodplanshouldoutlinethearrangementsformanagingtherecovery,bothshortandlongterm.
TheNationalRecoveryGuidanceprovidesadviceonhowtherecoveryphasecanbeco-ordinated(includingthehandoverfromresponsetorecovery).ItalsoincludesadraftTermsofReferenceforaRecoveryCo-ordinatingGroupandsuggestionsonsub-groupstructures.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan158
TheRecoveryCo-ordinatingGroupwillneedtoprioritisethevariousneedsidentifiedbyeachsub-groupandallocateresourcesappropriatelysothatthecommunityreturnstonormalityassoonaspossible.Commonissuesfollowingfloodinginclude:
■■ cleanupandwastedisposal;
■■ repairstopublicassets/infrastructure–schools,buildings,roads,bridges;
■■ restorationofpower,communicationsandwater;
■■ domesticandbusinessinsuranceissues;
■■ displacedbusinesses;and
■■ humanitarianassistanceneedsincludinghomeless/displacedresidentsandpsychologicalimpacts
DetailedTopicSheetsonalltheseissuescanbefoundintheNationalRecoveryGuidance.
Training and exercising
ThissectionshouldincludethetrainingneedsandascheduleoftrainingforallorganisationsinvolvedintheoperationofyourMAFP.Figure12.23isamodeltableforthis.
Itisessentialtotrainrespondingofficersintheirrolesandresponsibilitiesbeforetheyneedtousetheplanduringanexerciseoranactualevent.Exercisesaimtovalidatetheplans,trainstaffandtestprocedures.Suchexercisesmaybeinternal,ortiedintoothermulti-agencyexercisesorganisedbytheLocalResilienceForum.Theyshouldconfirmtherolesandresponsibilitiesofrespondingagencies,aswellastheadequacyofcommunications,resourcesandequipment.Itmaybehelpfultoinvitenon-technicalobserversand/orcommunitygroupstoattendtheseexercises.
Itisrecommendedthatexercisingthisplanatoperationalandstrategiclevelsisundertakenwheneverthereisamajorrevision,oratleasteverythreeyears.
PleaserefertotheExercise Planners Guideforfurtherinformationonexercisingyourplans.
NationalFloodEmergencyFrameworkForEngland 159
Figure 12.23:ExampleTrainingandExerciseSchedule
Organiser Title of exercise
Type Date Relevant lessons or link
SSmith
EmergencyPlanningUnit
Waterworks Tabletop 01/07/2006 Requirebettercommunicationbetweenrespondingagencies–refertonewmulti-agencyplan
PEvans
EnvironmentAgency
Waterside Discussion 09/09/2007
NJenkins
Fire&Rescue
Waterwheel Live 06/10/2008
JJones
Police
Watercress ControlPost 14/02/2009
Plan Sign Off and Revision
Allorganisations/departmentsthatcontributetotheplanshouldapprovetheMAFPandfinalsignoffshouldbeagreedbytheLRFasamulti-agencygroup.Thesameorganisationsthathavecontributedtotheplanshouldalsocommittoreviewingandupdatingtheplan-asandwhennecessaryand,ideally,atleastannually-tomakesureeverythingisstilluptodateandrelevant.
ConstructingandmaintainingyourMAFPisacollectiveresponsibility.Responsibilityforupdatingtheplan,however,oftensitswiththelocalauthorityorPoliceEmergencyPlanningUnit.TheLRFshouldensurethereisclarity–and,wherenecessaryamandate–sothatindividualsororganisationsknowthattheyhaveprimaryresponsibilitytomaintainandupdatetheplan.
Important records to maintain
TherearesomekeyrecordsthatneedtobemaintainedinorderforyourMAFPtoremainup-to-dateandusable.
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan160
Contact details of key personnel
Whereaseparatecontactsdatabaseordirectoryisnotavailable,yourMAFPshouldincludealistofkeyinternalandexternalcontacts.Jobtitles,asopposedtoindividuals’names,willmakeiteasiertokeeptheplanup-to-date.
Figure12.24showsanexamplecontactlistwitharelativelysmallamountofdetail.Figure12.25showsamorecomprehensiveexampleadaptedfromtheMulti-AgencyResponsePlanforFloodinginCumbria(2006).
Figure 12.24:ExampleContactDetailsofKeyPersonnel(placeDept/Organisationinalphabeticalorder)
Department / Organisation
Post title Contact number Secondary contact (name / number)
Electricity
Environment Agency
FloodIncidentManagementTeamLeader
4445689 Incidentroom5697856
Gas
Highways HighwaysManager
2364578
07777777777
Deputy2364577
07777777778
IDB
Police DutyInspector 4785623 IncidentRoom3951687
Social Services DutyOfficer 2368989
07776666666
DutyOfficer2368989
07776676677
Telephone
Water
NationalFloodEmergencyFrameworkForEngland 161
Figure 12.25:Exampleofcontactdetails,adaptedfromtheMulti-AgencyResponsePlanforFloodinginCumbria(2006)
Organisation Name NaydonCouncil Date & Issue No. 21/07/07No.1
Address NaydonHouse,
Naydon,
NA45TG
EventContactDetails DutyOfficercontactedon07777777777
Noneventcontactdetails EmergencyPlanningDepartment0191222555
EventRole Inaccordancewithroledefinedinthisplan
EventResponsibility Asabove
MajorIncidentPlaninvokedwhen: Propertiesareaffectedand/ordangertopublic
PRhandling RefertoGenericCommunicationPlan
Response
FloodWatch Situationnoted,operationalstaffadvised
FloodWarning Triggerlevelsinspected.Contractorcalloutasnecessary
SevereFloodWarning Actionasappropriate
AllClear Actionasappropriate
Actionsdeployedpostevent Communitycleanupteamresponsibleforpostevent
Available resources
Sandbags 200filled,2000unfilledinNaydonDepot
Staff 2initially,increasingto8
Other 2cars,2vans
Availabilitytoprovidecross
boundarysupport
HaveprovidedsandbagstootherCouncilsinthepast
Personresponsiblefor
maintainingform
MrFSmith–EmergencyPlanningDepartment
Part3-DetailedPlanningonDevelopingaMulti-AgencyFloodPlan162
Location of control centres
Wesuggestthatthefloodplanshouldidentifythetriggersforopeningcontrolcentres,andtheirlocationsincluding:
■■ EnvironmentAgencyincidentrooms;
■■ localauthoritycontrolcentres;
■■ multi-agencyoperational(Bronze)rendezvouspoints;
■■ multi-agencytactical(Silver)commands;and
■■ multi-agencystrategic(Gold)commands.
It’sobviousthatcontrolcentresshouldnotbelocatedinfloodriskareas,butmistakeshavebeenmadeinthepast.Andyoushouldconsiderwhethertheproposedbuildingreceivespowerfromutilitieswithinthefloodplain,orreliesontelecommunicationshubsthatmaybevulnerable.Youmaywanttoidentifyacontingency(back-up)facilityincasetheprimarylocationisnotfitforuseduringaflood.
YourMAFPshouldincludeallthenecessaryinformationtofindandgainentryintothecontrolcentres,forexample:
■■ address(includethepostcodeforeaseofusewithsatellitenavigationsystems);
■■ telephonenumber;
■■ keyholderinformation;
■■ accessdetails;
■■ securityinformation(i.e.fobs/securitycodes);and
■■ parkingarrangements.
Itmayalsobeusefultohaveagrabbagcontainingresourcesthatwillbeneededbyofficersattendingthecommand/controlcentres.
Resource availability
Thefollowingisanexamplelistofarecordofthesortofresourceswhichmaybeavailablefromorganisations/agenciesincludedwithintheMAFP.Itisnotintendedtorecordspecificnumbersorvolumes,butprovidesarecordofwheretogoifspecificresourcesareneeded.
NationalFloodEmergencyFrameworkForEngland 163
Figure 12.26:Resources
Resource Who / Where Contact Number
Sandbags Localauthority,EnvironmentAgency
Boats FireandRescueService,LocalAuthority,CoastGuard,EnvironmentAgency
Pumps Fire,LocalAuthority,EnvironmentAgency
Transport EnvironmentAgency,LocalAuthority,Police,Fire,Ambulance