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7/30/2019 FM-S104c-Sharing Australian Experience by John Porter
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SHARING AUSTRALIAN EXPERIENCE
Floods and Flood Management
John W Porter
Flood Risk Management Consultant
The views expressed in this paper are the views of the authors and do not necessarily reflect the views or policies of the Asian Development
Bank (ADB), or its Board of Directors, or the governments they represent. ADB does not guarantee the accuracy of the data included in this
paper and accepts no responsibility for any consequences of their use. Terminology used may not necessarily be consistent with ADB official
terms.
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Floods in Australia?
Isn’t Australia just a dry desert?
Is this bloke crazy?
PHILIPPINES
THIS WAY
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Eve n d e s e r t s f l o o d !
― j u s t l e s s f r e q u e n t l y
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In 1904 Dorothea MacKellar wrote one of Australia’s best knownpoems:
‘My Country’
In the poem she talks of a sunburnt country . . . a wide brown land
A l and o f sweep ing p l a i n s ,
O f rugged moun ta i n r anges ,O f d rough t s and f l ood ing r a i n s
Floods were as much part of life in the bush as were droughts
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Anyway, Australia is not all desert
And most Australians don’t live in places like this
They live in cities.
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Au s t r a l i a n c l i m a t e i s s t r o n g l y i n f l u e n c e d b y t h e
EN S O e f f e c t i n t h e P a c i f i c o c e an
I n t h e 2 0 0 0 ’ s E l N i ñ o p r e v a i l e d , a nd A u s t r a l i a
s u f f e r e d f r om t h e l o n g e s t , h a r s h e s t d r o u g h t
i n i t s m od e r n h i s t o r y .
In 2010, the ENSO suddenly switched, and La Niña hit back.
From late 2010 through early 2011, eastern Australia
experienced a sequence of severe floods.
The town of Roma in western Queensland was one that
– after not being flooded for decades – was
flooded three times in the one year.
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Q U E E N S L A N DF L O O D S
C y c l o n e Y a s i
F l o o d s i n
n o r t h e r n V i c t o r i a
Majo r f l ood ing o c cu r red i n
sou the rn and wes t e rn
Queens l and ;
and i n no r t he rn V i c t o r i a .
T h e n , i n F e b r u a r y 2 0 1 1 , n o r t h e r n
Q u e e n s l a n d w a s s t r u c k b y C y c l o n e Ya s i ,
a c a t e g o r y 5 c y c l o n e o f s i m i l a r f o r c e t oHu r r i c a n e K a t r i n a t h a t s t r u c k i n t h e G u l f o f
M e x i c o i n 2 0 0 5 . Ya s i w a s e q u a l l y
d e v a s t a t i n g i n t h e t ow n s w h e r e i t m ad e
l a n d f a l l , b u t i n t h i s c a s e t h e r e w a s n o l a r g e
c i t y l i k e N e w O r l e an s .
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The f l oods I n Queens l and were
unp receden ted i n Aus t ra l i an h i s t o ry i n
t e rms o f t he i r s ca l e and economi c impac t s .
7 5 % o f t h e s t a t e o f Q u e e n s l a n d
w a s d e c l a r e d d i s a s t e r z o n e s .
i . e . , ~ 1 , 2 0 0 , 0 0 0 k m 2
At its peak, about half that area was
under water – about the size of France
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The farmland of the inland plains was flooded
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Around 70 country towns were flooded,
from the far west to the north-central
coast
Bundaberg
Dalby
Emerald
Chinchilla
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A i rpo r t s and coa l m ines were f l ooded
Rockhampton
Baralaba
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Toowoomba
Ipswich
Several cities were flooded
too
I’ll talk a little about
Toowoomba, because this is
where I live
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To o w o o mba i s i n t h e mo un t a i n s ,
a n d t h i s w a s a f l a s h f l o o d .
Tw o p e o p l e d i e d h e r e .
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35 lives were confirmed lost in Queensland (not an Australian record,
but bad enough) – and another 9 remain missing, presumably
washed away.
T h i s i s t h e t o w n o f G r a n t h a m , p o p u l a t i o n ~ 1 , 0 0 0 ,l o c a t e d d o w n t h e m o u n t a i n f r o m To o w o o m b a .
2 0 l i v e s w e r e l o s t i n t h i s s m a l l h a m l e t .
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A b ou t 2 d a y s l a t e r, t h e c a p i t a l
c i t y o f B r i s b a n e d o w n b y t h e
c o a s t w a s a l s o f l o o d e d .
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DAMAGES:
Losses t o t he economy were es t ima ted t o be up t o~$30 billion
Less than half was due to direct damages to property and infrastructure
Closures of rail lines (4,750km) and flooded mines disrupted coal
production for up to 6 months (Queensland produces 60% of world
coking coal exports)
300 main roads were closed, including 9 major highways (9,200km)
Food production and distribution was disrupted (including impacts of
Cyclone Yasi )
150,000 residential, commercial and industrial buildings were damaged
Many thousands of people were evacuated and took refuge in temporary
shelters
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Af ter the f l oods comes RECOVERY
To help pay for the recovery, the Australian Government
imposed a flood levy of 0.5% of income tax payable on
income in the 2010/11 fiscal year (low-income families excluded )
T h e Q u e e n s l a n d G o v e r n m e n t
l e g i s l a t e d t o c r e a t e a t e m p o r a r y
Q u e e n s l a n d R e c o n s t r u c t i o n
A u t h o r i t y ( Q R A ) t o m a n a g e
r e p a i r s t o i n f r a s t r u c t u r e a n d
p r i v a t e p r o p e r t i e s , a n d t o f a s t -
t r a c k a p p r o v a l s p r o c e s s e s .
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Othe r key t a sks o f t he QRA were t o :
ascertain community needs;
prioritize recovery works;
distribute recovery assistance finance;
collect information on flood damages and repairs; and
balance speed of recovery with good governance.
QRA i s s t i l l f un c t i on i n g nea r l y 2 yea r s a f t e r t he
f l ood , and i t s wo rk w i l l c on t i nue f o r a t l ea s t
ano the r 6 mon ths . I t has gene ra l l y been
rega rded a s a g rea t su c cess .
The i n i t i a l r e cons t r u c t i on budge t f o r QRA was
$6 .8 b i l l i on ; bu t t h i s was l a t e r i n c reased t o
$9 .5 b i l l i o n .
O f th j hi t f
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One of the major achievements of
the QRA was to relocate the entire
town of Grantham to higher
ground – and have residents in
their new premises within 12
months.
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The QRA admin i s t e r s t he f und ing and mon i t o r s
p rog ress o f t he wo rks , bu t t he wo rks a re ma in l y
ca r r i ed ou t by p r i va t e con t ra c t o r s , and S ta t e and
l o ca l gove rnmen t i n s t rumen ta l i t i e s .
Mo re t han ha l f t he i r budge t has been d i r e c t ed t o
t ranspo r t i n f r a s t ru c tu re – r oads , b r i dges , r a i l
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Q R A o r g an i z e d a n I n t e r i m
F l o o d p l a in A s s e s s m e n t .
This identified 110,000 km2 in over 60
river basins to map. The mapping
uses available information – quite
variable in quality – to provide
information to local government that
will be useful for them in planning
recovery and in future land use
planning.
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Brisbane River flood mapping
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INNOVATION
Q R A i n t r o d u c e d u s e o f a h a n d -h e l d e l e c t r o n i c a i d f o r d a m a g e
a s s e s s m e n t a n d m o n i t o r i n g o f
r e c o n s t r u c t i o n .
Because of the scale and scope of the damages, a
consistent, common system was required to:
classify the damage;
identify areas of greatest need and individuals
most in need of assistance;
prioritize reconstruction works; and
monitor progress of reconstruction; ~17,000 buildings assessed &monitored this way
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Damage Severity
! No Damage
! Minor
! Moderate
! Severe
! Total
Ex am p l e : R e su l t o f f o l l ow - u p
m on i t o r i n g i n J u l y 2 0 1 1i n t h e B r i s b a n e s u b u r b
o f R o c k l e a
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Another response to the floods by the Queensland
State Government was to establish a judicial inquiry:the Queensland Floods Commission of Inquiry
(QFCI).
The ToR included:
preparation and planning for floods by governments& the community;
performance of private insurers;
the post-flood response.
The ToR also referred to more specific matters – including
the operations of large dams upstream of Brisbane, and
land use planning.
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The Final Report of the QFCI was released in March 2012
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Key recommendations of the QFCI
New flood study for the Brisbane River basin; and flood studies
for every urban area in Queensland.
State and local governments to maintain flood informationdatabases.
Local governments to prepare FPMPs (Floodplain Management
Plans).
Local governments to prepare flood risk maps, and display on
public websites.
State Government to provide guidelines to local governments.
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Key recommendations of the QFCI
Amendment of the Sustainable Planning Act 2009.
Require that flood risk be a factor in zoning of regional
development plans.
State Government to provide model planning controls that local
governments can adapt for local conditions.
Require the planning controls be included in planning schemes
and flood map overlays
State Government to provide a code with assessment criteria
for flood map overlays.
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Key recommendations of the QFCI
Appropriate building controls for designated/mapped
flood hazard areas.
Regulations concerning sewerage leakage,electrical infrastructure, etc .
Property acquisition to be considered in locations regularly
flooded.
Insurance companies to review/improve procedures for dealing
with claimants.
Annual mine inspections for risk assessment.
Review of conditions and monitoring of mine discharges.
Responsibility for abandoned mine sites.
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Key recommendations of the QFCI
Crime & Misconduct Commission investigate conduct of
3 named dam operators (professional engineers) over
the flood operations of Wivenhoe Dam.
Review of operational strategies; re-writing of the operations
manual.
Provisions/requirements for post-flood reporting.
State Government to develop a Flood Mitigation Manual for
guidance of local governments.
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A s a f l o o d r i s k m a n a g e m e n t s p e c i a l i s t , a n
o b v i o u s q u e s t i o n a r i s e s :
W h y a r e s o m a n y r e c o m m e n d a t io n s
n e c e s s a r y n o w ?
S i m i l a r f l o o d i n g o c c u r r e d i n B r i s b a n e i n 1 9 7 4 ,
a n d w o r s e i n 1 8 9 3
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W i v e n h o e D a m , b u i l t a f t e r t h e 1 9 7 4
f l o o d , w a s a d v o c a t e d b y t h e t h e n
g o v e r n m e n t a s ‘ f l o o d - p r o o f i n g ’
B r i s b a n e . T r u e , t h e 2 0 1 1 f l o o d w o u l d
h a v e b e e n w o r s e f o r B r i s b a n e e x c e p t
f o r W i v e n h o e D a m ; b u t u n r e a l i s t i c
e x p e c t a t i o n s w e r e r a i s e d , a n d a f t e r
t h e 2 0 1 1 f l o o d t h e C o m m i s s i o n e r
l o o k e d f o r s o m e - o n e t o b e
a c c o u n t a b l e .
W i v e n h o e D a m , b u i l t a f t e r t h e 1 9 7 4 f l o o d ,
w a s a d v o c a t e d b y t h e t h e n g o v e r n m e n t a s
‘ f l o o d - p r o o f i n g ’ B r i s b a n e . T r u e , t h e 2 0 1 1
f l o o d w o u l d h a v e b e e n w o r s e f o r B r i s b a n ee x c e p t f o r W i v e n h o e D a m ; b u t u n r e a l i s t i c
e x p e c t a t i o n s w e r e r a i s e d , a n d a f t e r t h e
2 0 1 1 f l o o d t h e C o m m i s s i o n e r l o o k e d f o r
s o m e - o n e t o b e h e l d a c c o u n t a b l e .
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Coastal Queensland has a sub-tropical to tropical climate.
So floods are not uncommon.
But land use constraints in floodplain land have continued to be lax
throughout the State. At State Government level, there has beenno departmental unit or bureau responsible for flood risk
management.
In the city of Ipswich, for example, flood levels in 2011 were
similar to those in 1974, but the number of houses damaged was
doubled.
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I n A u s t r a l i a , f l o o d m an ag e m e n t i s p r i m a r i l y a
S t a t e r e s p on s i b i l i t y ( a l t h o u g h t h e n a t i o n a l
g o v e r n m e n t s u p p l i e s m u c h o f t h e f u n d i n g f o r
i m p l e m e n t i n g f l o o d m a n a g e m e n t p l a n s ) .
T h e e f f e c t i v e n e s s o f f l o o d m an ag e m e n t v a r i e sf r om S t a t e t o S t a t e , a n d t h e r e a r e b e t t e r
m od e l s t h an Q u e e n s l a n d . I n m y op i n i o n , t h e
m od e l s e t b y t h e S t a t e o f N e w S ou t h W a l e s
ap p r o a c h e s w o r l d b e s t p r a c t i c e .
I s t r o n g l y c om m e n d t h e N S W F l o od p l a i n
D e v e l o p me n t M a n u a l
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This manual requires:
a Flood Study
:technical analysis to quantify flood hazard and its impacts
a Floodplain Management Plan Study:social, environmental and economic analysis of management measures and plan options
a Flood Management Committee:organizes/supervises the studies, and finalizes the FPMP and submits it for approval and funding
extensive stakeholder consultation
Introduction to other good recent works on urban flooding
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Introduction to other good recent works on urban flooding
World Bank (2012)
1. Understanding Flood Hazard
2. Understanding Flood Impacts
3. Structural Flood R isk Management
Measures
4. Non-Structural Flood R isk Management Measures
5. Evaluating A lternative Management
Options
6. Implementing Integrated Flood R isk
Management
7. Conclusion
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World Bank (2012)
• Describes the causes, probabilities and impacts of floods
• Proposes a strategic, innovative, integrated approach to managing flood risk
accomplished by selecting and combining structural, hard-engineered
measures and non-structural management measures
• Discusses the means by which these measures can be financed andimplemented while engaging with and drawing on the capacities and
resources of all involved stakeholders
• Specifies the procedures by which progress withimplementation can be monitored and evaluated.
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WMO (2007)
1. Urban Water – issues, impacts of urbanization
2. R iver Flood Management – structural measures, non-structural measures,
flood damage estimation 3. Flood Management in Urban Drainage
– control measures, environmental impact & management
4. Integrated Urban Water Management
– sustainabiity
5. StormWater Plan – integration of plans,planning structure, management measures, monitoring & evaluation
6. Case Studies – from Latin America
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UNISDR (2012)
1. Enabling Conditions for R esilience –
political leadership, local sustainability,learning, cross-sector cooperation
3. K ey Trends
4. How Local Governments Build
R esilience – institutional, financial, risk
assessment, infrastructure, building regulations, land use planning, training & public awareness, environmental protection,preparedness, early warning & response,post-flood recovery & rehabilitation
5. Looking Forward – key indicators,
measuring resilience
6. Conclusions
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WMO, GWP (2008)
1. Introduction
2. Causes and Impacts of Urban Flood
R isk – hazard, exposure,
vulnerability, damages
3. Integrated Management of Urban
Floods – risk assessment,management measures
4. Conceptual Framework – integration
with urban planning, land use planning, & stormwater management
5. Conclusions and R ecommendations
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Thank you