Floodprobe Factsheet Casestudy Gloucester

8/12/2019 Floodprobe Factsheet Casestudy Gloucester

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Document Ref: WP05-11-11-05

Forward:

The aim of this report is to provide an overviewand summary of the accounts from differentorganisations that were involved in the event inorder to provide an introduction to the problemsand solutions that developed during the days inJuly 2007. It has been compiled from publiclyavailable resources collated and abridged byNicholas Walliman, Oxford Brookes University.References are given to all sources, from whichmore comprehensive information can beobtained. Every effort has been made to makecorrect attributions to work and illustrations. If you

believe that there has been any inadvertentviolation of copyright, please contact me and I willensure that the situation is remedied([email protected]).

The Event:

In the summer of 2007 Gloucestershire suffered

one of the worst emergencies ever seen in the

county due to extensive flooding. The summer of

2007 was one of the wettest on record. Heavy

rainfall at the end of June led to flooding in someareas in Gloucestershire, both from surface water

overloading the drainage systems and very high

water levels in main rivers and brooks. But during

July, rains were even heavier. On 20th July, two

months rain fell in just 14 hours resulting in two

emergencieswidespread flooding and tap water

shortages affecting 350,000 people. It is

estimated that the flooding and water crisis cost

the county of Gloucestershire 50 million.

Case Study:Gloucestershire, GB flood 2007

Figure 1Flooding at the confluence of the rivers

Severn and Avon (source, Global Dimension Trust)

Figure 2River Severn flooding (source Jonathan

C K Webb)


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Other facts include:-

5,000 homes and businesses were flooded. 80% of properties were affected were

overwhelmed by flash flooding.

48,000 homes were without electricity for twodays.

135,000 homes (over half the homes inGloucestershire) were without drinking waterfor up to 17 days.

825 homes were evacuated resulting inapproximately 1,950 people (including 490children) seeking temporary accommodation.

500 businesses were affected. 10,000 motorists were stranded on county

roads, including the M5 where many peopleremained overnight.

500 commuters were stranded at Gloucestertrain station.

Flood water reached 7 feet in some vulnerableareas.

Over 2,500 people were accommodated inlocal authority rest centres, many of themcommuters from the motorway and railnetwork.

40 million bottles of drinking water weredistributed.

1,400 bowsers were deployed. The estimated cost to repair the county's roads

was 25 million.

Properties affected by district:

1,831 in Tewkesbury Borough. 965 in Gloucester City. 900 in Cotswold District. 623 in Cheltenham Borough. 200 in Stroud District. 93 in Forest of Dean District.

Source,http://www.gloucestershire.gov.uk/index.cfm?articleid=19605

Figure 3Flooded rails and roads (source Tim

Andrew)

Figure 4Flooded rails and roads (source James

Bush)

Figure 5Tewkesbury under water (source Global

Dimension Trust)
http://www.gloucestershire.gov.uk/index.cfm?articleid=19605http://www.gloucestershire.gov.uk/index.cfm?articleid=19605http://www.gloucestershire.gov.uk/index.cfm?articleid=19605http://www.gloucestershire.gov.uk/index.cfm?articleid=19605http://www.gloucestershire.gov.uk/index.cfm?articleid=19605


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Command Structure for emergencies as used

in the United Kingdom

A Gold (strategic)Silver (tactical)Bronze(operational) command structure is used byemergency services of the United Kingdom toestablish a hierarchical framework for thecommand and control of major incidents anddisasters

The Gold Commander is in overall control oftheir organisations resources at the incident.He/she will not be on site, but at a distantcontrol roomthe Gold command, where thestrategy for dealing with the incident is

formulated. The Silver Commander is the senior member

of the organisation at the scene, in charge ofall their resources. They decide how to utilisethese resources to achieve the strategic aimsof the Gold Commander; they determine thetactics used.

A Bronze Commander directly controls theorganisations resources at the incident and willbe found with their staff working on scene.

In the United Kingdom the principle of policeprimacy means that the police will be theorganisation in ultimate charge of the incident,over the other organisations that may attend.

The management of emergencies and disastersconsists of several stages

Risk assessment. Mitigation efforts to prevent hazards

developing into disastersstructural and non-structural.

Emergency planning and management. Preparation, communication plans, multi-

agency co-operation and command,emergency warning, shelters and evacuationplans, stockpiling of supplies and equipment.

Responseemergency services, multi-agencies, medical assets, search and rescue.

Recovery. Resilience development

Source, Jim McCann

http://www.slideshare.net/jim666/gold-silver-bronze-command-by-j-mc-cann.

Key Challenges

20th July7thAugust

Transport infrastructure, rest centres, searchand rescue (SAR).

Loss of waterhow to return mains watersupply.

How to supply and distribute water to 350,000people.

Protection of electricity utilities. How to provide adequate sanitation. Protection of utility sites from further flooding. Communication of Health message to

population of County.

How to recover

Gloucestershire Constabulary (Police)

Operation Outlook was the multi-agency responseto the emergency resulting from theunprecedented flooding in Gloucestershire in July2007 which was the largest peacetime event thisCountry has seen in terms of complexity, duration

and those affected. Gloucestershire Constabularyled the Strategic Co-ordinating Group and theGold, Silver and Bronze Command structure, co-ordinating the response to the emergency. Muchof the success of the operation can be attributedto the investment made by GloucestershireConstabulary and the Gloucestershire PoliceAuthority in the Gloucestershire Tri-ServiceEmergency Centre (GTEC), and PoliceHeadquarters. These facilities ensured seamlesscommunication between the emergency servicesas the events of 20th July 2007 unfolded, by

providing the platform for the Gold and SilverCommand arrangements and accommodatingrepresentatives from each of the agenciesconcerned. The design of the HQ, opened inDecember 2005, to accommodate a Strategic Co-ordination Centre (SCC) ensured effective lines ofcommunication and rapid decision making to meetthe challenges of the emergency situation.
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Also key to the success of the operation was thework that had previously been undertaken by theLocal Resilience Forum (LRF) and its constituentmembers. The extensive planning, training andexercise regimes delivered by the LRF ensuredthat senior representatives and their staff werefamiliar with the concept of emergency planning

and in particular the SCC and associatedarrangements. These measures together allowedthe response to the emergency to be rapidlyestablished and successfully managed. Thisbackground of partnership and investment hasalso been demonstrated by the County gainingBeacon Status for emergency planning.A comprehensive overview of the management ofthe event and lessons learned can be found in theGloucestershire Constabulary reportGloucestershire Water Emergency 2007Chief Constables Memorandum to Environment,

Food and Rural Affairs Committee 19 September2007

Source,

http://www.gloucestershire.police.uk/forcepublicati

ons/Downloads/item8613.pdf

Gloucestershire Fire and Rescue response

In total Gloucestershire Fire and Rescue Service

(GFRS) received 2,375 calls for assistance duringthe period from the 20 to 28 July. They attended

1,007 of these incidents and gave telephone

advice to 1,368 callers. Thirteen boats from a

variety of organisations including the FRS, RNLI,

Severn Area Rescue Association and the RSPCA

were deployed and 529 people were rescued.

High Volume Pumps (HVPs) were used to protect

the strategic infrastructure and normal pumping

operations continued in commercial and domestic

properties. Various types of military assistancewere used in Gloucestershire, notably to assist in

protecting Critical National Infrastructure. A post

flooding community care operation was carried out

by GFRS involving Community Fire Safety staff

from Cheshire FRS.

The strategic priorities consisted of managing:

1.Life threats2.Maintenance of critical infrastructure

3.Protection and salvage of property4.Recovery phase

The following table provides brief informationregarding the timing of events in GloucestershireFRS, understood as three phases:

Emergency Phaseassociatedresponsibilities.

Recovery phasegetting Gloucestershireback on its feet.

Resilience phasereducing, but noteliminating, the likelihood of property flooding

Figure 6Strategic Co-ordination Centre based at

Police HQ, Waterwells (source GC)
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Date Time Event

20 July 2007 0300

Gloucestershire FRS

started to receive floodrelated calls at a steadyrate.

0700Calls increased in volumeas the local communityawoke to the flooding.

1300Flood conditions affectingsignificant parts ofGloucestershire

21 July 2007 EveningMajor rescue operationsrequired in Tewkesbury

2130GFRS were notified of athreat to Mythe WaterWorks

22 July 2007 0216

GFRS told that the RiverSevern had overflowedinto Mythe WaterTreatment works and thatthe water supply plantwould close leaving thecounty with only twelvehours supply of mainswater.

1442GFRS assisted withfloodwater threateningthe Walham sub station

1545

GFRS assisted withfloodwater threateningthe Castlemead substation was under threat.

Figure 7Timing of events of Gloucestershire Fire

and Rescue Service involvement (source, Chris

Griffin)

GFRS Response consisted of 17,500communications from telephone exchange, 2,500calls for assistance received in 24 hours, 1,400flooding incidents attended, 20 Rescue boatsdeployed and 529 people rescued. Pumping outoperations were carried out from strategicinfrastructure and commercial &domesticproperties. The post flooding OperationCommunity Care was commenced after theevent.

Source,http://www.gloucestershire.gov.uk/index.cfm?articleid=18621Sgt Andy Ewens, OperationalPlanning.

The Military Contribution

20-30 July 2007Op GIRAFFE (OUTLOOK)

Initial Military Engagement

Friday 20th July, shortly before 5pm a search andrescue operation was requested byGloucestershire Constabulary and the firsthelicopter was sent in 30 minutes later. The RAFRegional Liaison Officer and Joint RegionalLiaison Officer attended a GOLD meeting laterthat evening.

Sun 22nd July midday, formal request for military

assistance was received to protect Walham andCastlemead electricity stations which were underthreat. Later that evening troops arrived to protectflood defences.

Police proposed the tasks for which militarycapability was required:

Distribution of life saving water. Engineering capabilityconstruction of water

defence systems.

Helicopter support for reconnaissance. Evacuation of vulnerable people

In order to obtain the required effect the militarycontinued with search and rescue operations, builtflood defences, distributed bottled water, co-ordinated bulk water delivery and providedlogistics advice. The military engagementcontinued until Monday 30th July.

Figure 8Military involvementsearch and

rescue, source, MOD


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Source,http://www.gloucestershire.gov.uk/index.cfm?articl

eid=18621

Severn Trent Water response

The Mythe Water Treatment Works (WTW)supplies approximately 160,000 properties andserves a population in excess of 350,000,including the towns of Cheltenham, Gloucesterand Tewkesbury and a large part of ruralGloucestershire. The first works were built over130 years ago, in 1870, to supply drinking water tothe people of Tewkesbury.

It is constructed on artificially raised ground on thebank of the River Severn close to the confluencewith the River Avon. It has been in the ownershipof Severn Trent Water Limited (STW) since 1989during which time they have carried out

improvement works to the treatment processesand to overcome minor internal flooding problems

Figure 10Military involvementlogistics,

(source, MOD)

Figure 9Military involvementflood defences,

(source, MOD)

Figure 11Military involvementWater

Distribution, (source, MOD)

Figure 12Rainfall intensity during the event

(source, STW /Met Office)


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with the site drainage system. To the best of STWknowledge, the operation of the Mythe WTW has

never previously been lost to floods.

On Saturday 21 July, as river levels started to rise,STW flood response procedures were activated.Additional pumps were obtained and plans wereput in place for partial power shut off in designatedareas. Prior to shutting down the Mythe WTW,they were able to transfer some areas of

Gloucester to an alternative source of water fromMitcheldean WTW, maintaining water supplies toabout 20,000 properties throughout the incident.Early on Sunday 22 July, as a consequence ofriver flooding, the Mythe WTW was shut downunder carefully controlled conditions. This criticalprocedure prevented electrical failure and savedseveral days in re-commissioning the works oncethe floods had receded.

Following the first news broadcasts warning ofimminent loss of supplies, usage of water morethan doubled, resulting in a rapid depletion ofsupplies. By Tuesday 24 July, there wereapproximately 140,000 properties inGloucestershire without a piped water supply.

The first priority in response to the enforcedshutdown of the Mythe WTW was to ensure thatcustomers were provided with alternative watersupplies through use of bottles, bowsers and

tankers. STW arranged the deployment ofbowsers to pre-determined locations.100 bowserswere placed in the first 24 hours and 300 within 36hours, rising to over 900 on Wednesday 25 July.At the peak of the incident, in excess of 1,400bowsers were deployed to over 1,100 locations,with up to three fills each day. This represents thelargest number of bowsers ever used in a singleincident in the UK and almost six times more thanwe have ever deployed before in the region.

Bottled water was provided alongside the bowseroperations. STW contacted bottled water supplierson the morning of Sunday 22 July to deliver onemillion litres (Ml) each day to a logistics centrebeing established at Cheltenham Racecourse. OnMonday 23 July, 900,000 litres was delivered toCheltenham Racecourse and direct to variousdistribution points. In response to the high demandbeing received, STW increased this requirementand by Friday 27 July they were sourcing 6MI perday -equivalent to the average daily consumptionof bottled water for the whole of the UK.In the

event of failure of supply, the Security andEmergency Measures Direction (SEMD) 1998

Figure 13Mythe Water Treatment Works under

flood (source, Severn Trent Water)

Figure 14The flooded water works (source, STW)

Figure 15The flooded water works (source, STW)


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requires that a minimum of ten litres of drinkingwater per person per day should be provide by

alternative means. Despite the scale of theincident this was achieved and then exceeded theten litres per day requirement. At the peak of theoperation STW estimated that they were deliveringup to three times the minimum requirement.

STW regained full access to the Mythe WTW onWednesday 25 July. The damage caused to theworks was extensive. Eight of the ten maintreatment and pumping processes had damagedequipment, 40 critical assets had to be repaired.The treatment tanks required cleaning and

disinfection. The control panels required checkingrepair. Also, in response to warnings of furthersevere weather, additional flood defences toprotect critical parts of the site needed to beinstalled.

By Friday 27 July, STW was able to divert 25million litres per day (Mld) supply of water fromStrensham WTW to pass through the MytheWTW. This supplied 10,000 properties inTewkesbury from Friday 27 July with non-drinkable water for sanitation purposes. By

Saturday 28 July, just three days after gaining fullaccess to the site, pumping operations werestarted. Restoration of supply to customers wasimplemented in phases. Effective planning and theclose collaboration of STW teams ensured thatsupplies were restored across a largegeographical area within anticipated timescales.Half of the properties affected had non-drinkablesupplies restored by Tuesday 31 July, moving to98% restored by 0600hrs on Wednesday 1 Augustwith remaining supplies restored 24 hours later.

Aligned to the restoration of supplies, STWundertook a rigorous and detailed testingprogramme, approved by the Drinking WaterInspectorate (DWI). They were able to move from"Do Not Drink" to "BoiI Water" precautionaryadvice on Friday 3 August, within two days of fullrestoration of water supplies, and then to Safe toDrink" on Tuesday 7 August, ahead of theanticipated schedule.

As many as 1,800 of STW employees were

involved in their response to this emergency,working around the clock. They worked closely

alongside many agencies including the armedforces, the emergency services, local authorities,

other water companies and suppliers.The flooding in Gloucestershire was an event ofsuch scale that the impact on the water supplyand distribution infrastructure was unprecedentedwithin the water industry of this country. Inrecognition of the impact of the incident on ourcustomers, STW have allocated a fund of 3.5million to benefit the affected communities and areworking with key stakeholders to determine howthese funds will be used. They have undertaken arigorous process to identify the key lessons to be

learned from the flooding incident. Since theincident STW have held a series of publicmeetings in Gloucestershire to obtain feedbackfrom their customers. They have carried outworkshops to debrief their staff involved at alllevels in the incident response, as well as thoseinvolved in longer term strategic planning andinvestment work, to capture all their experiencesin order that STW may learn and improve.

Figure 16 - Bottled water distribution, Cheltenham

(source, STW)

Figure 17Bowser water distribution, Cheltenham

(source, STW)


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Although STWs response was rapid and effective,there were many lessons that can be learned from

this experience. Some could be addressedimmediately, others required consultation andagreement with the regulators.

This event raised three broad questions forSTW:

1.The adequacy of flood defences2.The degree of water supply system resilience

such that the failure of a key asset can besubstituted by other means without interruptionof service. The experience of delivering

alternative water supplies to such a largepopulation over a prolonged period of timehighlighted that this is not an acceptablesolution for an incident of this magnitude. STWwill therefore be reviewing the degree of watersupply system resilience in our network. Theprovision of alternative supplies to a level oftenlitres per day does not meet the expectations ofcustomers who each normally use an averageof 138 litres per day.

3.The adequacy of contingency planning shouldsupplies fail

Source,http://www.stwater.co.uk/upload/pdf/The_Final_Gloucester_2007_Report.pdfGloucestershire 2007Impact of the July Floods on the waterinfrastructure and Customer Servicefinal report

National Grid and Central Networks response

Following the severe flooding in 2000, CE ElectricUK and National Grid undertook a risk

assessment of each EH substation to understandthe companys exposure to flood risk. This workidentified substations that la within theEnvironment Agency floodplains and assessed ashigh, medium, low or negligible risk of flooding.

Subsequently, mitigation measures usingpermanent or temporary defences or elevating ofrelocating substations was undertaken.

The Walham sub-station provides 470MW ofdemand via 4 transformers supplying Western

Power customers in the Gloucester area and iscritical to the security of 3000MW of demand in

South Wales On Monday 23rd July 2007 thenetwork was reconfigured to maintain supplies to

South Wales in the event that protection andcontrol at Walham was lost. In the succeedingdays, temporary flood defences were deployedwith the help of the emergency services and themilitary, and withstood peak water levels (just).One transformer out of the 4 was de-energiseddue to the risk posed by rising water levels.

Source,http://scpro.streamuk.com/uk/player/Default.aspx?wid=9339&ptid=22&t=0National Grid, CE Electric UK and National GridResponse to flood threat. Anna Trippet and MikeFairhurst

From Sunday afternoon on 22nd July, CentralNetworks engineers working closely with theemergency services and the armed forces to erectan emergency flood defence and pump wateraway from the Castle Mead substation. Due torising flood waters on early Monday morning, thecompany took the decision on safety grounds totake over 40,000 customers off supply to minimisedamage to the substation. This enabled a quickerrestoration of power once the water had beenpumped out. Over 25,000 homes and businesseshad power restored through the day on Mondaywith the final customers coming back on at01.45am on Tuesday 24th July.

Figure 18Walham sub-station (National Grid),

Gloucester (source, National Grid)
http://www.stwater.co.uk/upload/pdf/The_Final_Gloucester_2007_Report.pdfhttp://www.stwater.co.uk/upload/pdf/The_Final_Gloucester_2007_Report.pdfhttp://www.stwater.co.uk/upload/pdf/The_Final_Gloucester_2007_Report.pdfhttp://scpro.streamuk.com/uk/player/Default.aspx?wid=9339&ptid=22&t=0http://scpro.streamuk.com/uk/player/Default.aspx?wid=9339&ptid=22&t=0http://scpro.streamuk.com/uk/player/Default.aspx?wid=9339&ptid=22&t=0http://scpro.streamuk.com/uk/player/Default.aspx?wid=9339&ptid=22&t=0http://scpro.streamuk.com/uk/player/Default.aspx?wid=9339&ptid=22&t=0http://www.stwater.co.uk/upload/pdf/The_Final_Gloucester_2007_Report.pdfhttp://www.stwater.co.uk/upload/pdf/The_Final_Gloucester_2007_Report.pdf


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Managing Director of Central Networks, JohnCrackett, said it was a fantastic team effort by both

the office based employees and engineers in thefield, and the armed forces and emergencyservices did terrific job in helping to restore powerto thousands of homes in the region andsafeguarding the substation under verychallenging conditions. They worked around theclock to put in place the flood barrier and werethen able to pump water out of the site that hadreached a level of 2.5 feet and switch the powerback on.

The engineers thoroughly assessed the substationequipment damaged by flood waters repaired theaffected kit and brought more of it online to furtherreinforce supplies to customers in the area.Central Networks, which is part of E.ON UK,continued to work with Army, Navy, emergencyservices and the Environmental Agency to monitorthe situation and keep water out of the substationover the subsequent days. The companycontinued to co-ordinate its efforts with GoldCommand - the multi-agency group co-ordinatingthe relief and restoration efforts.

Source,http://pressreleases.eon-k.com/blogs/centralnetworkspressreleases/archive

/2007/07/24/1095.aspx

British Telecom (BT) response

When huge areas of Gloucestershire found

themselves underwater thanks to flooding, BTmobilised immediately to protect exchanges andmake sure links to the emergency services weremaintained. BTs on-call group seniorrepresentative, who is BTs most senior on-callexecutive, took the decision to convene a ThreatAssessment and Response Group ConferenceCall, to assess possible impacts of the severeweather on BT and all its customers.

A BT Silver Command Team was quicklyestablished with a senior incident manager from

BT Operate at one of BTs Incident ManagementCentres bringing together his virtual team. Withthe senior incident manager now acting as SilverCommander, BT Operate mobilised electricalpower teams to deploy and assess the risks andalso check fuel levels and running of standbygenerators. The Silver Commander also broughttogetherthe people and logistics required toensure the company could provide a sustainedlevel of support to maintain communicationsservice in the flooded area.

As the weather worsened and the flood watersrose, the deteriorating situation required a morestrategic response from BT. A newly-formed BTGold Coordination Group held regular conferencecalls to assess and direct the companys responseto the unfolding crisis. The BT local liaisonmanager (LLM) for Gloucester was deployed tothe Police gold command Centre in policeheadquarters at Quedgeley, playing an invaluablerole by reporting on BTs situation at the multi-agency coordination meetings and feeding back

vital information to help tailor BTs response.

The LLM was helped by one of BT EmergencyControl Centre vehicles, which allowed his teamfull access to BTs corporate intranet systems andfacilities. It also served as a back-up in case ofcommunications failure in Gloucester policeHQ.BTs Emergency Response Team (ERT) wasput on alert for mobilisation, although in the endthe team was not required and stood down.

Figure 19Castlemead substation (Central

Networks) Gloucester (source, Central Networks)
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BT continued to play a pivotal role in supportingthe multi-agency response in Gloucester, and asthe flood waters abated, the Police GoldCoordination meetings were scaled down and theBT LLM was able to return to his normal place ofwork and provide support remotely. BT loweredthe companys responseto BT Silver and kept theChief Constable informed via daily reports aboutthe on-going recovery plan that BT had in place.

Source,https://www.btplc.com/civilresilience/Casestudies/i

ndex.htm

Gloucestershire Highways response

On Friday 20th July, GH was called out to morethan 150 sites, over 150 roads affected by floodingand the M5 and many major A roads were closed.Over 1000 sandbags were deployed. EmergencyGold Command was set up and GH became partof Emergency Planning Works Team

On Saturday 21st July 2007, 4500 propertiesflooded and 810 residential properties wereevacuated. 10,000 people were stranded on theM5, M50 and A40 and hundreds of cars wereabandoned on county roads. In addition, therailway network failed. 2500 people were placed inrest centres. 20 works teams with gully emptiers,sweepers and excavators were deployed androads were made safe or closed. Problems wereexperienced with abandoned vehicles andextensive structural damage identified. With waterlevels rising, the Emergency Management Team

moved to Waterwells.

On Sunday 22nd and Monday 23rd July, a severeflood warning was issued for the River Severn andthe Mythe Water Treatment Works Flooded andthe substations at Walham and Castle Meadswere under threat.GH assisted the armed forcesand emergency services at these locations. GHprovided equipment, plant, vehicles and personnelto assist operations - 30,000 sandbags weresupplied. Mutual aid from other counties wassought and thousands of tonnes of sand weredelivered from suppliers across the County.

After the floods receded, all available resourceswere used to assist with the clean-up - over 150

personnel, and 30 gully emptiers, jetters andsweepers. Over 20m of flood damage identified

Figure 20BTs role was to provide a local liaison

manager to work in police headquarters with the

coordinating team (source, BT)

Figure 21Highways workers (source,

Gloucestershire Highways)

Figure 22Some of the damage (source,

Gloucestershire Highways)
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on 420 flood damage sites. 180 major schemesidentified of which 129 were for resurfacing, 21 for

bridge repairs and 22 for landslips.

Lessons learnt were the importance ofestablishing shift patterns early in the emergencyfor staff and workforce. The GH being part of theEmergency Planning Team helped communicationand good relationships with other agencies werevital to the success of the operation and goodcommunication and IT systems were essential.Establishing good relationships with supply chainpartners paid dividends in both the emergencyand the aftermath. Also it is vital to keep accurate

records of work carried out in order to enable theclaim process. The immediate event is just thestart!

Source,http://www.gloucestershire.gov.uk/index.cfm?articleid=18621

Local Authority Rest Centres and Volunteer

Support

The July 20th Gloucestershire flooding created

extensive dislocation of the road and rail network.10,000 motorists were stranded on our roads, andtaken in by the community, and 2,000 people werehoused in rest centres overnight. WithGloucestershire County Council Shire Hall closedfor over a week there were problems identifyingvulnerable people (newly vulnerable). Healthissuesboth immediate and longer term(Tewkesbury cough!) were identified.

Gloucestershire has planned for 14 designatedRCs at suitable leisure centres and schools, but

staff is trained to be flexible and can set up in anybuilding where police decide to put evacuees. If aparticular building is not suitable, evacuees aremoved to another location. Each rest centre (RC)is managed by the district council that covers thelocation of the centre, whether they control theemergency or not.

Numerous rescue centres were opened at forperiods of one to 3 nights: Tewksbury BoroughCouncil Offices, Gloucester Leisure Centre,Pittville Pump Rooms Cheltenham, Fire Training

College, Moreton-in-Marsh, Heywood School atCinderford, Forest of Dean, and Stroud District

Council rest centre set up and on standby. Therewere also unofficial RCs at Chipping Campden

and Farmors School, Tewkesbury School,Tewksbury Scout Hut, Hobnails Pub, Morrisons atTewksbury, Tesco at Gloucesterand others.

District Council ExperiencesCheltenham Borough Council opened the PittvillePump Rooms. A large number of properties inBath Road are flooded, many with basements.Food was needed so orders were sent to the localpizza shop and duvets and pillows were alsoacquired from local shops. People did not want tostay long - some preferred to keep an eye on their

property and do what they could to alleviatesituation. The organisers wanted to keep campbeds after evacuees left - just in case

At the Tewkesbury Borough Council Offices,organisers had to take in a stag night group andanother bride who was getting married next day,plus as inebriated woman, as well as a 12 weekold baby, part of a family with 4 girls and a team of16 squaddies from Brize Norton, allaccommodated overnight. There were busproblems for 50 evacuees going to Heywood

School

Lasting staff impressionsHelicopters overhead bringing rescued people in,people arrived soaked to the waistclothing?People were so grateful, even for a toothbrush!Despite all problems there was a good team spiritworking together - having a laugh! Many medicalproblems were present and no medical staff thatnighta schizophrenic, heroin addicts, diabetic,epileptic, haemophiliac with cough asthmatics andman with serious back problem, recent kidneytransplant patient and an 8 months pregnant ladywith 2 cats. Blankets and pillows were obtainedfrom local hotels and free food from supermarkets

General Rest Centres LessonsRest centres just got set up all over the placewithout requests from the local authorities. Manypeople self-evacuated, and there was a need toconsider many options for making evacueescomfortable, be innovative. Training is veryimportantand continued emphasis must be

given to flexibility. It was found that people in thecommunity will help each otherit may just be


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needed to remind them. Also it should beremembered that evacuees and others will

volunteer to helpthey should be used! It isamazing how people copebothstaff andevacuees were endlessly resourceful in verydifficult circumstances - dont underestimatepeople. Safety issues and information forAccredited Volunteers must be considered. Ifmedia arrangements in the rest centre are notappropriate, suggestion for better ways oforganising the media should be made.

Source,http://www.gloucestershire.gov.uk/index.cfm?articl

eid=18621

Eileen Grant, Emergency Management Service,Gloucestershire CC , Marian Dix, British RedCross and Volunteer Accreditation Scheme

After the Event

According to the Gloucestershire ConstabularyChief Constables Memorandum to Environment,Food and Rural Affairs Committee 19 September2007, a number of issues arising from the floodingclearly need addressing and were brought to theattention of the Committee:

All agencies need to re-visit their contingencyplans and re-evaluate worst case scenariosand plan accordingly.

The resilience of utilities across the Countryneeds to be reviewed and addressed as amatter of urgency.

National and regional Utility companies needto engage at a local level with Local ResilienceForums so as to identify key local risks andconfirm contingency arrangements.

There must be an increased capacity to supplybasic needs to communities in the event of anemergency.

There needs to be a strategic reserve of light,heat and sanitation Countrywide.

The Tri-Service Emergency Centre should bemaintained and strengthened throughcontinual commitment and investment.

The County and Government need to considerfully the impact of continuing to build new

homes on flood plains. There should be a specific requirement for

national agencies to attend Strategic Co-ordinating meetings when so requested and toensure consistency of representation.

The importance of maintaining county-basedstructures needs to be recognised as theserepresent a suitably strategic organisation, butone, which has local roots and knowledge.

There should be a review of national reserveemergency supplies of food, water, feeding

and cooking amenities.

After the initial recovery phase, GloucestershireCounty Council set up a Flood Risk ManagementTeam to lead the way in the development ofeffective flood resilience and alleviation activity, atthe same time taking the necessary steps to getits own house in order in terms of emergencymanagement and risks.

The Team has been working closely with all thedifferent organisations (including the districtcouncils, the Environment Agency, the watercompanies and the Internal Drainage Board) toensure that information is shared and everyoneworks together effectively. Multi-agency meetingshave been held regularly to look at all countygeneric and strategic issues and flood alleviationand resilience schemes.

A wide range of jointly-funded projects - includingdrainage and culvert work, de-silting, the raising ofbanks and flood reinforcement - have been carried

out. Groups have also been set up at each of thedistrict councils for the purpose of identifying andunderstanding the work programme. This hasgenerated a programme of over 60 floodalleviation projects covering a broad range ofactivity.


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A Complex EnvironmentThe context for recovery and resilience work is

highly complex. There are 15 different groupswith an interest/responsibility for floodmanagement, all with separate reportingmechanisms, making such work very challenging.The County Council has a direct responsibility forroad and footway drainage, which is managed onits behalf by Gloucestershire Highways. Once thewater drains away it usually becomes theresponsibility of the water companies (SevernTrent Water, Thames Water, Welsh Water andWessex Water). Smaller streams andwatercourses are overseen by the district councils

and, in certain areas, below the 10m contour, theLower Severn Internal Drainage Board. Whenwater eventually reaches the mainstreams andrivers, the Environment Agency takes the lead:

River Flooding = Environment Agency (3regions).

Foul Water drainage = 4 Water Authorities. Highways drainage = Gloucestershire County

Council.

Land drainage (ordinary watercourses) = 6district councils.

Land drainage in parts of the Severn Vale =Lower Severn Internal Drainage Board.

In addition, anyone who owns land which has awatercourse running through it, or alongside it, isdeemed to be a riparian owner with certain rightsand responsibilities. To raise awareness of these,the County Council in conjunction with partnershas produced a leaflet: Waterside Living inGloucestershire

http://www.gloucestershire.gov.uk/index.cfm?articleid=19445.

Multi-Agency ProjectsGloucestershire County Council chairs a county-wide multi-agency Flood Risk Management Groupwhich brings together all the differentorganisations involved in flood risk management,with the aim of sharing information and helpingone another to drive forward positive floodalleviation work. This unique partnership hasfocused on specific issues, including endorsing

and supporting joint publications and, more

recently, has been working towards a countywideland drainage enforcement protocol.

The County Council has been working inpartnership with the district councils, theEnvironment Agency, Severn Trent Waterauthority and other bodies to put in placeappropriate arrangements to secure delivery offlood recovery and resilience work. This hasmeant strong working relationships with districtcouncils and other agencies. In excess of 1.4mhas been awarded by the County Council to thesix district authorities and the Environment Agencyto fund over 60 partnership schemes.

Figure 23Flood defences at Bewdley (Source

GCC)

Figure 24Flood defences at Upton upon Severn

(Source GCC)


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Surface Water Drainage Mapping - successfulbid for pilot funding

In October 2008, DEFRA launched a call tolocal authorities to undertake a First EditionSurface Water Management Plan (SWMP) totest DEFRAs SWMP guidance. Nationally,GCC is just one of six localauthorities to besuccessful in obtaining 50kgrant funding toundertake this work. The plan will help to achievea better understanding of the overall surface waterenvironment across the county and, initially usingone high risk location, will create a template withcommon assessment criteria for wider applicationin detailed plans for other such locations. A pilotwill be carried out shortly to test the plan againstDEFRA requirements. The SWMP will:

Carry out a desk-top study of the county. Provide a detailed assessment of one specific

location.

Provide a list of actions required. Analyse these actions to highlight priorities.

Strategic Flood Risk Assessment (SFRA) andSupplementary Planning Documents/Guidance(SPDs)Local Authorities in Gloucestershire have taken astrategic role on flood resilience and argued theneed for careful planning of future development.This has involved working together with manyother partners including DCLG, GOSW and theEnvironment Agency. There is a clear need for ajoined-up approach to stop unsuitabledevelopment that adds to the risk of flooding in ourcommunities. A County-wide Level One Strategic

Flood Risk Assessment (SFRA) has recently beencompleted by Halcrow, funded by the CountyCouncil, in conjunction with all of the six Districtcouncils. For the next stage, the District councilswill commission individual District-wide Level TwoSFRAs.

One of the main functions of a Level Two SFRA isto steer new development away from areas thatare at risk of flooding. It also forms part of theevidence base for the production of the DistrictCouncils' Local Development Documents (LDDs)and would be a material consideration in thedetermination of planning applications.

Severn Trent WaterA year on from the floods that gripped large parts

of Gloucestershire last summer, Severn TrentWater was able to report good progress onmeasures it had taken to protect water suppliesacross the region. In the aftermath of the flooding,Severn Trent conducted a thorough review offlood defences at all its key sites and has alreadyimplemented a number of improvementswithwell over 40m being spent around the county.These improvements include:

Installation of additional flood defences at theMythe Water Treatment Works. Currently,

these are semi-permanent in nature, but workis under way to design a new permanentbarrier. Much work has yet to be done on this(they are currently at feasibility study andoutline design stage) and it will take aroundtwo-three years before any new, permanentdefences can be constructed.

A 12m programme of works to alleviatesewage flooding problems in Gloucester.

Additional measures and expansion work(3.3m) at Big Normans sewage pumping

station in Longlevens in Gloucester.

The company is also planning a 25m networkreinforcement project in Gloucestershire which willhelp secure supplies for its customers in thefuture.

Figure 25Semi-permanent flood defences at

Mythe Water Treatment Works, Tewkesbury

(source, STW)


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Gloucestershire County CouncilPUTTINGOUR OWN HOUSE IN ORDERA joined up one council approach has beenadopted to ensure properly planned strategicoutcomes and the best use of resources:

Planning and Flood Risk Task Group. This task

and finish group was set up as a result of therecommendation of the Scrutiny Inquiry into theSummer Emergency 2007 to investigate theimpact of land use planning and newdevelopments on flood risk. Many questions wereasked about the planning processwhich appearedto have allowed inappropriate development inareas of floodrisk and also why development couldtake place but roads, sewers and other drainsremain unadopted or may not even be constructedand maintained to suitable standards. The TaskGroup sought to provide answers to thesequestions and not to apportion blame. The full finalreport, 28th July 2008, can be found at:http://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdf

Community Resilience Plans. The councilsEmergency Management Service (EMS) havebeen working with communities to help them

prepare for future crises, helping towns andvillages across the county to put in place a

community resilience plan. EMS has givencommunities advice and training and helped to

organise real-life exercises to make sure theirplans work.

Relocated Emergency Response Centre. Thenew centre is up and running and includes radiocommunications, Sky TV and arrange of otheruseful equipment. The Emergency ManagementService will be arranging an open house event.

The flood resilience of IT systems has beenimproved.An email pilot has been completed andthe main server will be protected. An additional

backup email server has been installed at the TriService Centre, Waterwells and after testing willbe accessible via the Internet with accounts for allGCC members and top tiers of GCCmanagement.

Shire Hall flood protection is being improved toreduce the flood risk to Quayside plant andelectricity rooms plus basement plant room.

Rural Estate.Action plans for dealing effectivelywith flood related issues emanating from thecouncils rural estates are being progressed

GCC (Corporate Management Team) GoldCommand for emergencies.A rota system hasbeen established which should ensure that seniorstaff are available to join Gold Command should

an emergency arise.

Figure 26Semi-permanent flood defences at

Mythe Water Treatment Works, Tewkesbury

source STW

Figure 27Flood barriers at Shire Hall (source,

Gloucestershire County Council)
http://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdfhttp://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdfhttp://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdfhttp://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdfhttp://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdfhttp://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdfhttp://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdfhttp://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdfhttp://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdfhttp://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdfhttp://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdf


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Schools work.A 1.6m bid to the Department ofChildren, Schools and Families was successful.

This has been allocated for resilience work at nineschools most severely affected by the 2007. Ascheme is also being developed with the CountyCouncils risk management/insurance unit toprovide guidance for schools and other childrensservices accommodation which are low risk butstill vulnerable to storm and flood damage.

Emergency Planning guidance for schools hasbeen updated. Revised guidance was launched inApril 2009. GCC has also signed up to a nationalBeacons Schools Emergency Planning Group.

Insurance claims. The Insurance and RiskManagement team have been looking atinsurance claims for flood and severe weatherevents to identify quick win schemes which willresult in fewer insurance claims. These will run

alongside larger schemes already in place and the

other longer-term projects funded by the 1.6m forschools resilience work.

Business Continuity Management trainingsessions have been held with more trainingsessions scheduled. Plans have been preparedand audits will be carried out to ensure that allcritical services have plans in place. BCMawareness sessions were also planned forschools in the next financial year (2009-10).

Business Recovery and Tourism work throughGloucestershire First Economic Partnership.Gloucestershire First has worked closely with the

South West Regional Development Agency(SWRDA) to establish a single integratedBusiness Recovery Programme to support thelocal economy and the business community postflooding. This work has been funded by SWRDA(2m), supplemented by Severn Trent CommunityFund resources of 1.1m. Following the July 2007floods an evaluation of the economic impact wascarried out but the final report was embargoeduntil a national evaluation exercise had beencompleted. This report is now available on theSWRDA website

http://www.southwestrda.org.uk/system_pages/search.aspx?terms=flood

This evaluation looked at public sector support tobusinesses post flooding, the effectiveness of thePartnerships coordination and response andfuture needs and the length of impact. Alsoincluded was a summary of the range ofprogrammes and outputs developed using theRDA funding.During 2008-09 the partnership extended therecovery programme. Projects agreed includedrepairs to Public Rights of Way (see below)national, regional and local publicity campaigns,local community events, including a Retail SupportProgramme in Tewkesbury, work in support of theLocal Area Agreement, focussing on increasingthe number and quality of jobs, improving skillsand assisting individuals back to work. On tourism,some of the positive messages about businessrecovery led to a press campaign resulting inenquiries from the media worldwide.

Public Rights of Way. Repair/improvementschemes to widen bridge(s) and replace

Figure 28Flood mitigation work at Swindon

Village School, Cheltenham (source, GCC)

Figure 29Flood mitigation work at Swindon

Village School, Cheltenham (source, GCC)
http://www.southwestrda.org.uk/system_pages/search.aspx?terms=floodhttp://www.southwestrda.org.uk/system_pages/search.aspx?terms=floodhttp://www.southwestrda.org.uk/system_pages/search.aspx?terms=floodhttp://www.southwestrda.org.uk/system_pages/search.aspx?terms=floodhttp://www.southwestrda.org.uk/system_pages/search.aspx?terms=flood


18/19

culverts(s) in specific locations. Collapsing bridgeat Sapperton replaced.

Glos Fire and Rescue Service. Pumping plansproduced for specific localities and improved waterrescue ability through provision of Hovercraft(funded by Severn Trent) and training.

Data mapping.A range of flood-related data setshave been put together on one of our GeographicInformation Systems (GIS) to enable officers in theflood and drainage teams to more easily accessavailable information.

Research project on Sustainable FloodMemoriesIn November 2010, the Centre for the Study ofFloods and Communities at the University ofGloucestershire, together with the CCRI, wasawarded an ESRC award for research intosustainable flood memory. The project is entitled:Sustainable flood memories and the developmentof community resilience to future flood risk: acomparative study of three recently floodedcommunities. The grant is for 242K and will runover 30 months.

This project is hosted by the Centre for the Studyof Floods and Communities, the Centre for Media,Memory and Community, and the Countryside andCommunity Research Institute at the University ofGloucestershire. It is funded by the Economic andSocial Research Council.

The project has three integrated aims:

It will investigate the ways in which flooding is

remembered along the lower Severn, and howthese memories and memoralisationsresonate/link with community resilience tofloods.

It will, based on insights gained from thisresearch and in discussion with keystakeholders, devise methods and materialsthat support community flood memories andstrengthen resilience against future flooding.

It will share research outcomes on how todevelop flood memory to increase resilience

with community groups, policy makers andother stakeholders.

Source.http://www.glos.ac.uk/research/csfc/sfm/Pages/def

ault.aspx

See alsohttp://www.gloucestershire.gov.uk/index.cfm?Articleid=17247Gloucestershire Strategic FloodRisk Assessment (SFRA).
http://www.glos.ac.uk/research/csfc/sfm/Pages/default.aspxhttp://www.glos.ac.uk/research/csfc/sfm/Pages/default.aspxhttp://www.glos.ac.uk/research/csfc/sfm/Pages/default.aspxhttp://www.gloucestershire.gov.uk/index.cfm?Articleid=17247http://www.gloucestershire.gov.uk/index.cfm?Articleid=17247http://www.gloucestershire.gov.uk/index.cfm?Articleid=17247http://www.gloucestershire.gov.uk/index.cfm?Articleid=17247http://www.gloucestershire.gov.uk/index.cfm?Articleid=17247http://www.glos.ac.uk/research/csfc/sfm/Pages/default.aspxhttp://www.glos.ac.uk/research/csfc/sfm/Pages/default.aspx


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References and Sources of Information

This report has been compiled using information

and pictures from the following sources.

Bali, Maddi, Deputy Head of EmergencyManagement Service (2010) GloucestershireFlooding 2007 & Recovery A local authorityperspective National Flood Forum ConferenceThursday 25th February 2010.http://www.floodforum.org.ukfilesMaddi%20Bali.pdf

BT Civil Resilience Case Studies.https://www.btplc.com/civilresilience/Casestudies/i

ndex.htm

CE Electric UK and National GridResponse toflood threat. Anna Trippet and Mike Fairhurst.http://scpro.streamuk.com/uk/player/Default.aspx?wid=9339&ptid=22&t=0

Central Networks Press Releases 24 July 200712:10. Central Networks restores power tocustomers in Gloucestershire and thanks armedforces and emergency services for help.http://pressreleases.eon-k.com/blogs/centralnetworkspressreleases/archive/2007/07/24/1095.aspx

Environment Agency. Gloucester, Why did thefloods happen?http://www.environment-agency.gov.uk/research/library/publications/40581.aspx

Gloucestershire 2007 Impact of the July Floods onthe water infrastructure and Customer Servicefinal report.

http://www.stwater.co.uk/upload/pdf/The_Final_Gloucester_2007_Report.pdf

Gloucestershire County Council, GloucestershireFloods, Emergency Planning Society Study Day28th February 2008.http://www.gloucestershire.gov.uk/index.cfm?articleid=18621

Gloucestershire County Council, Waterside Livingin Gloucestershire.http://www.gloucestershire.gov.uk/index.cfm?articl

eid=19445.

Gloucestershire County Council. Summer 2007FloodsFacts and Figures.

http://www.gloucestershire.gov.uk/index.cfm?articleid=19605

Gloucestershire Flood Relief Evaluation Report,August 2008.http://www.southwestrda.org.uk/system_pages/search.aspx?terms=flood

Kane, M. (2008) Gloucester Flooding Response. Afew thoughts from a civilian!! Presentation by theDirector of Customer Relations Severn TrentWater.www.pdf-txt.com/ppt/tesco-home-

insurance-uk.htmlorwww.pptsearch.net/download.php?fid=431235

Knight, K. (2008) A report setting out the emergingissues from the review of the operational responseby Fire and Rescue Services to the wide scaleflooding in England during Summer 2007Gloucestershire: GFRS.http://www.communities.gov.uk/documents/fire/pdf/725360.pdf

McCann, J. Gold, Silver, Bronze Command

Structure.http://www.slideshare.net/jim666/gold-silver-bronze-command-by-j-mc-cann

Planning and Flood Risk Task Group Final Report.

http://glostext.gloucestershire.gov.uk/Data/Overview%20and%20Scrutiny%20Management%20Committee/20080728/Agenda/Planning%20and%20Flood%20Risk%20Task-Group%20Final%20Report.pdf

Sustainable Flood Memories and Community Resilience,University of Gloucestershire.

http://www.glos.ac.uk/research/csfc/sfm/Pages/default.aspx

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