Local Flood Risk Management Strategy - Cumbria Cooperation 31 5.3.7 Building trust 31 5.3.8 Private...

Cumbria County Council

Local Flood Risk Management

Strategy

March 2015

Serving the people of Cumbria


Table of contents Page(s)1 Introduction 4 1.1 The aims of the local strategy 4 1.2 Whatislocalfloodriskmanagement(LFRM)? 4 1.3 ThecontextoftheLocalFloodRiskManagementStrategy 4 1.4 BackgroundtotheFlood&WaterManagementAct2010 5 1.5 Definitions 6 1.6 StatutoryrequirementsofaLocalFloodRiskManagementStrategy 7

2 FloodinginCumbria 9 2.1 Floodingcharacteristics. 9 2.2 Localflooding 10 2.2.1Surfacewaterflooding 10 2.2.2Groundwater 11 2.2.3 Ordinary Watercourses 12 2.2.4Sewerflooding 12 2.3 Riverflooding 12 2.3.1CatchmentFloodManagementPlans 12 2.3.2Catchment-basedpolicyandplanning 13 2.3.3FloodRiskManagementPlans 15 2.4 Coastalfloodinganderosion 15

3 FloodriskmanagementrolesinCumbria. 16 3.1 Whatareriskmanagementauthorities(RMAs)? 16 3.2 RMAsinCumbriaandtheirfloodriskmanagementroles 16 3.3 PartnershipworkingtodelivertheLocalFloodRiskManagementStrategy 18 3.3.1Whoareourpartners? 18 3.3.2ParishandTownCouncils;residentsassociations;communitygroups 19 3.3.3Privateindividualsandlandowners 19 3.3.4Developers 19 3.3.5Neighbouringleadlocalfloodauthorities 20 3.3.6Residents 20 3.3.7Riversandwildlifetrusts. 20

4 Objectivesofmanaginglocalfloodrisk 21 4.1 TheObjectives 21 4.1.1PolicyObjective1(P1).ReductioninfloodrisktothepeopleofCumbria. 21 4.1.2PolicyObjective2(P2).Increasedknowledgeandawarenessofthefactorsaffecting 21 floodriskacrossCumbria. 4.1.3PolicyObjective3(P3).Ensurethatfloodriskmanagementisintegratedwithin 22 theplanningprocessinCumbria 4.1.4PolicyObjective4(P4).Facilitateclosepartnershipworkingbetweenallrisk 22 management authorities 4.1.5PolicyObjective5(P5).ImproveCommunityResiliencethroughawarenessoffloodrisk. 22 4.2 Supportingdocuments 23 4.2.1CumbriaCountyCouncilPlan2014-2017 23 4.2.2NationalFloodandCoastalErosionRiskManagementStrategy 24

5 MeasuressupportingtheCumbriaLocalFloodRiskManagementStrategy 25 5.1 RiskAssessment 25 5.1.1 CumbriaSWMP 25 5.1.2 Impactsofclimatechange 25 5.2 LLFADutiesundertheAct 25 5.2.1 s.19Floodinvestigations 25 5.2.2 Recording,registeringanddesignatingstructuresandfeaturesthathavea 26 significantimpactonfloodrisk

Local Flood Risk Management Strategy

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5.2.3 Consentingworksonordinarywatercourses 26 5.2.4 DrainageapprovalandadoptionofSuDS 27 5.2.5 Scrutiny 27 5.2.6 s.14Informationsharing 28 5.2.7 s.27Sustainabledevelopment 28 5.3 Widerpartnershipworking 28 5.3.1 Coordinatedfloodriskplanninganddelivery. 29 5.3.2 Tacklingfuturefloodriskthroughtheplanningprocess 29 5.3.3 Tacklingexistingfloodriskthroughtheplanningprocess 30 5.3.4 Widercatchmentmanagement 30 5.3.5 Communication 31 5.3.6 Cooperation 31 5.3.7 Buildingtrust 31 5.3.8 Privateland 31 5.3.9 Surfacewaterrunofffromagriculturalland 32 5.3.10 Workingwithcommunities 32

6 LocalFloodRiskManagementStrategyActionPlan 33 6.1 HowtheLFRMSActionPlanhasbeendeveloped. 33 6.1.1 MeetingthedutiesundertheAct 33 6.1.2 WetAreasandlocalschemes 33 6.1.3 FloodHotspots 33 6.2 Floodriskmanagementfunding 33 6.2.1 Defragrant 34 6.2.2 Flood&CoastalRiskManagementGrantinAid 34 6.2.3 LocalLevy 35 6.2.4 Watercompany(UU)planning 36 6.2.5 LocalEnterprisePartnership(LEP) 36 6.2.6 Othersourcesoffunding. 36

7. Nextsteps 37 7.1 ImplementingtheLocalFloodRiskManagementStrategyActionPlan 37 7.2 HowandwhentheStrategyistobereviewed. 37 AppendicesAppendix1References 38Appendix2Glossary 39Appendix3UsefulInformation 40

FiguresFigure1.ThecontextoftheLocalFloodRiskManagementStrategy 5Figure2.Causesofflooding 7Figure3.RiverBasinDistricts 13Figure4.CatchmentFloodManagementPlansinCumbria 14Figure5.Comparisonofoldandnewgrantinaidfundingmechanisms 34

Table1.TheroleandfunctionsoftheRMAsinCumbria 18

AnnexesAnnexAGovernanceandPartnershipArrangementsAnnexBRiskAssessmentAnnexCLLFADutiesUndertheFloodandWaterManagementAct2010AnnexDActionPlanAnnexEStrategicEnvironmentalAssessmentAnnexFHabitatsRegulationsAssessmentAnnexGWaterFrameworkDirectiveAssessmentAnnex H Equality Impact Assessment



1. Introduction

TheFloodandWaterManagementAct2010(theActorFWMA)makescountyandunitaryauthoritiesLeadLocalFloodAuthorities(LLFAs)withanoverviewroleforlocalfloodingintheirarea.CumbriaCountyCouncil(CCC)istheLLFAinCumbria.ALocalFloodRiskManagementStrategy(LFRMS)isarequirementforallLLFAstosetouthowlocalfloodriskswillbemanagedinthecounty,whowilldeliverthemandhowtheywillbefunded.

FWMAdutieswerekeyrecommendationsinthePittReviewfollowingthe2007floods.Cumbriawashitbadlyin2005and2009byflooding,buttheseeventsweredominatedbyfloodingfromlargerivers.ThePittReviewconcludedthatupto60%offloodingoccurslocallyfromothersources,namely:

• surfacewater,• groundwater,• ordinarywatercourses.

ItisLLFA’sresponsibilitytomanagetherisksassociatedwithfloodingfromthesesources.TheEnvironmentAgency(EA)continuestomanagefloodingriskonmainrivers,reservoirsandthecoast.Manyotherauthorities,definedasRiskManagementAuthorities(RMAs)undertheAct,havearoletoplayinthemanagementofthesefloodrisksinCumbria.TheyincludeDistrictandBoroughCouncilsawatercompany,UnitedUtilities(UU)andCCCasHighwayAuthority.

Theseauthoritiescontinuetoworkinfloodriskmanagementandinthepastthishaspresentedaconfusingpictureforthepublic.EachLLFAmusttakealeadinitsareaandthisStrategyidentifieshowCCCwilldothat.AsarequirementundertheActitsetsouthowlocalfloodriskswillbemanagedinthecounty,whowilldeliverthemandhowtheywillbefunded.Itwillhelpfloodriskmanagementorganisationsandcommunitiesunderstanddifferentrolesandresponsibilitiesandhowagenciesorauthoritieswillworktogethertomanagelocalflooding.

1.1 The aims of the local strategy

• TocoordinatetheresourcesavailableinthefloodRMAstomaximiseareductioninlocalfloodrisk;• TopromoteawiderunderstandingandawarenessoffloodinginCumbria;• Toexplainhoweveryonecanplayapartinreducingfloodrisk;“whodoeswhat”.

1.2 What is local flood risk management (LFRM)?

Managinglocalfloodriskinvolves:

• Understandingwherefloodingmayhappenandwhy• Actionstoreducethepossibilityofflooding• Adjustingtotherisksandactingtoreducetheimpactsofflooding

Localfloodingiscomplexanddifficulttoforeseeasitcanresultfromlocalisedstormsthatarehardtoforecast,blockages,poormaintenanceorvariablegroundwaterlevels.Itismoreeffectivetoplan,makechangesandbepreparedforfloodingratherthanrelyonmobilisationimmediatelybeforehand.Buttheriskoffloodingcanneverbeentirelyremovedfromanylocationandtheleveloffloodriskmanagementaffordedtoasitemustbeproportionatetotheknownrisks.

1.3 The context of the Local Flood Risk Management Strategy

ThelocalstrategyprovidesaframeworkfordeliveringlocalfloodriskmanagementinCumbria.Therelationshipofthelocalstrategytootherfloodplansandstrategicplanningdocumentsproducedlocally,regionallyandnationallyisshowninFig.1below.


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Figure 1. The context of the Local Flood Risk Management Strategy

1.4 Background to the Flood & Water Management Act 2010

EssentiallytheActprovidesthelegislativeframeworktodeliverbetterfloodandcoastalerosionriskmanagementbasedontherecommendationsfromtheGovernment’skeypolicydocumentsandassociatedconsultationsoverrecentyears:

• TheDefraconsultationdocument‘MakingSpaceforWater’2004,recommendedthattheEAhasastrategicoverviewacrossallfloodingandcoastalerosionrisks.TheAgencyhascarriedoutthisroleonavoluntarybasissince2008whenitwasofficiallygiventhisjob.Thelegislationnowgivesitthepowersanddutiestofullydeliverthisfunction,namelythroughtheNationalFloodandCoastalErosionRiskManagementStrategyforEngland.

• Government’sStrategyFutureWater2008highlightedtheneedtoactivelymanagesurfacewaterandgroundwaterandtheimpactstheyhaveonothersourcesofflooding.Previouslynooneorganisationhadresponsibilityforsurfacewaterorgroundwaterflooding.

• ThePittReview2008wentonestepfurtherrecommendingthatlocalauthoritiestakeonresponsibilityformanaginglocalfloodrisks,includingsurfacewaterandgroundwater.ThePittReviewalsohighlightedtheneedforasingleunifyingActwhichtheFWMAgoessomewaytowardsachieving.

• Inaddition,theActprovidesanessentiallinktotheFloodRiskRegulations2009arisingfromtheEuropeanUnion(EU)FloodsDirective.TheActandtheRegulationscombinedprovidethelegislativeframeworkforthemanagementoffuturefloodandcoastalerosionrisk.

(UnitedUtilitiesandNorthumbrianWaterLimited)

Catchment Flood Management PlansLuneTyneTees

DerwentEden

SouthWestLakesKentandLeven



• ANationalFloodandCoastalErosionRiskManagementStrategyhasbeenproducedbytheEAasrequiredundertheAct.Itisbroadandhigh-level,settingoutthecurrentriskandwaysinwhichitcanbemanagedandobjectivesandmeasuresfordoingso,alongwiththecurrentandpredictedimpactofclimatechangeonfloodandcoastalerosionandhowriskmanagementauthoritiescancontributetotheachievementofwiderenvironmentalobjectives.Itgives‘teeth’totheAgency’sStrategicOverviewroleasadvocatedbyMakingSpaceforWater.

• LocalstrategieswillbeessentialinachievingfloodriskoutcomesandwillneedtobeconsistentwiththeobjectivessetoutintheNationalStrategy.

• OnceinplaceallRMAswillberequiredtocarry-outtheirfloodandcoastalerosionriskmanagementactivitiesinlinewiththeobjectivesinthenationalandlocalstrategies,withtheexceptionofwatercompanieswhoareexemptfromthisbutmustpaydueregard.

• Thiswholeprocessisunderpinnedbyadutyforfloodriskmanagementauthoritiestocooperatewhenundertakingthiswork,andprovidesflexibilityforthemtomakearrangementswithotherriskmanagementauthoritiestocarryoutworkontheirbehalf.

• ProvisionsforaLFRMSarecoveredbySection9oftheFWMA2010asfollows(textfromtheActisprovidedinitalics):

9 Local flood risk management strategies: England (1) A lead local flood authority for an area in England must develop, maintain, apply and monitor a strategy for local flood risk management in its area (a “local flood risk management strategy”). (2) In subsection (1) “local flood risk” means flood risk from— (a) surface runoff, (b) groundwater, and (c) ordinary watercourses. (3) In subsection (2)(c) the reference to an ordinary watercourse includes a reference to a lake, pond or other area of water which flows into an ordinary watercourse.

1.5 Definitions

Insimpleterms,surfacewaterfloodriskisanyfloodsourceoutsideofmainriversandthesea.Thisincludesfloodingfromdrainagesystemsasaresultofheavyrainfall,ordinarywatercourses(culvertedoropen),groundwaterandrunoffflooding.Inmoredetail,surfacewaterfloodinginthecontextofaLFRMSincludesthefollowingsourcesasshowninFigure2:

Surface water runoff:Runoffasaresultofhighintensityrainfallwhenwaterispondingorflowingoverthegroundsurfacebeforeitenterstheundergrounddrainagenetworkorwatercourse,orcannotenteritbecausethenetworkisfulltocapacity,thuscausingflooding(knownaspluvialflooding);

Flooding from groundwater:Wheregroundwaterisdefinedasallwaterwhichisbelowthesurfaceofthegroundandindirectcontactwiththegroundorsubsoil.

Sewer flooding:Floodingoccurswhentheamountofwaterenteringtheseweragesystemexceedsitsdesigncapacityorwhenthesystembecomesblocked,resultinginfloodinginsideandoutsideofbuildings.Notethatthenormaldischargeofsewersanddrainsthroughoutfallsmaybeimpededbyhighwaterlevelsinreceivingwatersasaresultofwetweatherortidalconditions;

Flooding from open-channel and culverted watercourseswhichreceivemostoftheirflowfrominsidetheurbanareaandperformanurbandrainagefunction;

Overland flows from the urban/rural fringe entering the built-up area,and;

Overland flows resulting from groundwater sources.


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Figure 2. Flooding from local sources

Althoughintheorysurfacewaterfloodingcanbedefinedandseparatedfrommainriversandthesea,therealitycanbedifferent.Surfacewaterfloodingisoftenlinkedtomainriversandthesea.Highriverlevelscanbackupseweroutfallsorsmallerwatercoursesleadingtoupstreamflooding.Hightidescanalsopreventafreeoutfallandbeakeyelementofsurfacewaterfloodrisk.ItisnecessarytoidentifysurfacewaterfloodrisksothattheLLFAisawareoflocationswhereithasaresponsibility.However,whenitcomestoidentifyingoptionsandundertakingascheme,itwillbeimportanttoworkwithothersaspartnerssothatasustainablesolutioncanbefound.Section5.3identifiessomeoftheseimportantpartnerships.

1.6 Statutory requirements of a Local Flood Risk Management Strategy

Section9oftheFloodandWaterManagementAct2010continuesasfollows(textfromtheActisprovidedinitalics):-

(4) The strategy must specify— (a) the risk management authorities in the authority’s area ; (b) the flood and coastal erosion risk management functions that may be exercised by those authorities in relation to the area; Section3ofthisdocumentexplainswhothemainRMAsareinCumbriaandsummarisesthefunctions theymayexercise.AnnexAgivesanoverviewofpartnershipsandgovernancearrangementsthatsome orallriskmanagementauthoritiesareinvolvedinworkingtogethertodeliverfloodriskmanagement functions. (c) the objectives for managing local flood risk (including any objectives included in the authority’s flood risk management plan prepared in accordance with the Flood Risk Regulations 2009). Section4ofthisdocumentsetsouttheLFRMobjectivesforCumbriaandexplainsthesupporting principlesfromrelevantdocumentsthathelptoshapethem.The’objectives’ofthisLFRMSarethe LFRMpoliciesofCCC. (d) the measures proposed to achieve those objectives, ThesearediscussedinSection5withfurtherdetailinAnnexC.’Measures’areactionsinthecontextof

ClimateChange:Increased intensity of summer storms

Floodingthroughthealluvials

ImperviouspavedareasBlockageor

sewercollapse

Groundwaterfloodingdueto

raisedwatertable

Overlandrunoffandmuddyfloodingdue

to intense rainfall

Urbancreep:increasedpaving

Surchargedsewercausesbasement

flooding

Sewerexceedence flooding

Directoverlandflowandpondinginlow

spots(sinks)



thisLFRMS. (e) how and when the measures are expected to be implemented. Section5.3examinesthepartnershipworkingapproachthatwillbeadoptedtodeliverthemeasures servingtheobjectivesintroducedinSection4.ALocalFloodRiskManagementActionPlanidentifying atimelineforthemeasurestobeimplementedisdiscussedinSection6anddetailedinAnnexD. (f) the costs and benefits of those measures, and how they are to be paid for, Section6looksatsourcesoffunding.Section5andAnnexDdescribethebenefitsachievablefrom theproposedmeasures.Acost/benefitanalysisofproposedflooddefenceschemeshasbeencarried outintheCumbriaSWMP. (g) the assessment of local flood risk for the purpose of the strategy, ThishasbeencoveredbytheCumbriaSWMPandthemethodologyadoptedisdiscussedinAnnexB. (h) how and when the strategy is to be reviewed Section7looksatfuturestrategyreviewandtheprocessanticipatedtoupdatetheCumbriaLFRMS. (i) how the strategy contributes to the achievement of wider environmental objectives. Thissubjectmatter isembodiedwithinthisstrategywhichhasbeenthesubjectofastatutoryStrategicEnvironmental Assessment.SeeAnnexE.TheStrategyhasalsobeenthesubjectofaHabitatsRegulations Assessment,AnnexF,andaWaterFrameworkDirectiveAssessment,AnnexG.

(5) The strategy must be consistent with the national flood and coastal erosion risk management strategy for England under section 7. ThisrequirementisdiscussedinSection4.

ThisLocalFloodRiskManagementStrategyhasbeenproducedbytheCumbriaLLFArespondingtotheserequirementsofSection9oftheFWMA.


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2. Flooding in Cumbria

AlltypesoffloodingoccurinCumbria.Thissectionprovidesanintroductionwithreferencestofurtherinformationandhowfloodriskisbeingmanagedbydifferentauthorities.

Responsibilitiesforfloodingaresharedbetweentheseorganisations,anditisimportanttounderstandthatthereisamixbetweendifferenttypesofflooding.Rainfallsoveranarea,soakingintothegroundpotentiallyincreasinggroundwaterlevels.Ifthegroundissaturatedorthelandiscoveredbyhardsurfaces,itwillflowoverthesurfacetonearbywatercoursesorthroughlanddrainsorsewers.SeeFigure2.Watercoursesflowtorivers,collectingrainfromoverlandflows,drainsandsewersontheway.Theriverwillflowtowardsthesea,collectingwaterfrommorelocalwatercoursesorfromgroundwaterifthewatertableishighenough.

Ifatanypointthewaterflowsexceedthecapacityofthewatercoursecarryingit,floodingwilloccur.Thiscouldbecausedbyextremelyheavyrainfallorbecausethesystemisblocked.Increasesinhardsurfacing,forinstance,throughnewdevelopment,willmeanthelandwillnotbeabletoabsorbasmuchrain,resultinginmorerunoffandmoreflowwillbecreatedwhichmaycauseflooding.Managementandmaintenanceofthelandanddrainagesystemsintheareacanhaverealimpactsontherisksassociatedwithfloodinglocallyordownstream.

Whilstfloodingcancausewidespreaddamagetotheenvironmentitmustalwaysbeseenasanaturalprocess.Forinstanceweneedtopreserveareasoffloodplaintotemporarilystorefloodwatersandwildlifecanbenefitfromfloodedland.

RMAshavepowersanddutiesforthevariousformsforfloodingthatcanoccur.Differenttypesoffloodingareintroducedbelow,alongwiththeriskmanagementauthoritiesthatareinvolvedinaddressingthem.Becauseofthepotentialmixofdifferentformsofflooding,solutionsmaybeverycomplexandinvolveseveralriskmanagementauthorities.

2.1 Flooding characteristics

Cumbria’sgeographymeansithashighannualaveragerainfall;thewettestplaceinEnglandisSeathwaiteatthesouthernendofBorrowdale.Seathwaite’sannualaveragerainfalltotalisapproximately3500mm.DuringthefloodsofNovember2009,314mmofrainfellina24hourperiod.

ThenatureofsurfacewaterfloodinginCumbriaisvariedanddependentonthelandform,landscapefeaturesandman-madeassets.Most,ifnotall,ofourlandandwaterflowsystemshavebeenheavilymodifiedbyman.Witheverychangeinlanduseandmanagementthenaturalenvironmentrespondsinanaturalway;someofthisresponseisdamagingtoman’sneeds,andmuchofit‘undoes’themodificationsthatmanhasmade.

Cumbriaisaruralcounty,sothereislessurbanfloodingbecausethereislessurbanarea,i.e.floodingrelatedtourbanwatercourses;large,longculverts;andlargecomplexdrainagesystems.InCumbriaCarlisleisthelargesturbanareawherelargesurfacewaterdrainagesystemsandurbanwatercoursesarelikelytobefound.AlotofinvestmenthastakenplaceinCarlislefollowingthe2005floods.Thisincludessignificantimprovementstothedrainagesystem,andasaresultCarlisleiscurrentlynotasignificantsurfacewaterfloodinglocation.Barrowistheother,largesettlementinCumbria.Similarly,BarrowhashadalotofinvestmentespeciallyfromUU,meaningitisnotasignificantsurfacewaterfloodinglocation.Butalthoughimprovementshavebeenmadetodrainageandflooddefenceinfrastructurereducingfloodrisk,notableriskremainsifdesignlimitsarereachedandassetsarenotmaintained.

InDecember2013,theEAmadeawiderangeofnewfloodmapsavailableontheinternet.Manyofthesehavenotbeenpubliclyavailablebeforesuchassurfacewater,groundwaterandreservoirflooding.Themapscanbeviewedhere:http://watermaps.environment-agency.gov.uk



2.2 Local flooding

2.2.1 Surface water flooding

OutsideCarlisleandBarrow,surfacewaterfloodingissuescanberoughlysplitintotwotypes.FirstlytherearelowlyingdrainagesystemsthatbackupandsecondlyCumbriahassteepcatchmentswithmanysurchargingwatercoursesinadensebuiltenvironmentleadingtoflashflooding.

ThelowlyingsystemsaretypicalofUlverston,someareasofGrange-Over-SandsandWhitehavenandothercoastallocations.Thesearegenerallyveryflatareaswithlittlegradientinthedrainagesystem.Thismeansthatitcanbedifficulttogetagravityoutfalltoalargerwatercourseorthesea.Thegentlegradientcanleadtothereceivingwatercoursesiltingup,furtherreducingthegradientandpotentiallysiltingupoutfalls.Inaddition,lowlyingtidalareaswillfinditdifficulttogetafreedischargeintotheseaorestuariesduringhightidesorstormsurges.Thesesituationsrequireinvestmentinadequatelydesignedandmaintaineddrainagesystems.

TheflashfloodsystemsaretypicalofinlandhillyplaceslikeKeswick,Kendal,Windermere,Ambleside,Grasmere.Duringstormevents,theselocationsarepronetoflashfloodsduetorapidrunofffromthesurroundinghills.Thisispartlyduetothetopography(small,steepcatchments)andthegeology(impermeablebedrockandthinsoils).Oncetherunoffreachesthesettlements,theproblemsareexacerbated.Thereisthereforealotofdensedevelopmentnexttosmallwatercourseswithverylittlegreenspacetoallowwatercoursestosurcharge.Thisconstrainsalreadyswollenwatercoursesleadingtosurcharging(capacityofthewatercoursechannelisexceeded)andfloodingofthemanyclosebyproperties,e.g.Gosforth.

Alackofvegetationanddamagedpeatlandsintheuppercatchmentsreducesthecapacityofthelandtoholdwaterandspeedstheflowofintotheriverchannels.Thisrapidrunoffincreasesthepeakflowoffloodwatersandmayincreasetheriskoffloodingfurtherdownstream.Therestorationofnaturalhabitatswouldhelptomanagesurfacewaterflooding.

TherehavebeenmanyhighprofilefloodeventsinCumbriae.g.Carlisle2005andWorkington/Cockermouth2009.Themainfloodmechanismfortheseincidentshasbeenamainriver.However,duringtheseeventsandatmanyothertimes,therehavebeendamaginglocalisedfloodsthatshouldnotbeoverlooked.

Inallmajorsettlements,therehavebeenmanydifferentsurfacewaterfloodingincidents.However,somesettlementshaveexperiencedmanymorethanothers.Forexample,WorkingtonisalargetowninCumbria,whichhashadrelativelyfewhistoricincidents.Ulverstonismuchsmallerbuthashadmanymoreincidents.Intheseexamples,thereasonsaretopographyanddrainagesystemcapacity/functionality.UlverstonislowlyingandthedrainagesystemhasinadequatecapacitytowithflowsbackingupfromaMainRiverandtheseaduringhightide.WorkingtonhasanadequatedrainagesystemandiselevatedwellabovetheRiverDerwent.

Cumbria Preliminary Flood Risk Assessment (PFRA)

APreliminaryFloodRiskAssessmentwaspreparedbyCCCin2011todelivertherequirementsoftheFloodRiskRegulations(2009).TheseRegulationsestablishedfourstagesofafloodriskmanagementcycle,scheduledforcompletioninJune2015.ThePFRAisthefirststage.TheaimofthisRegulationistomanageboththelikelihoodandtheconsequenceofflooding.ThePFRAprocesswasaimedatprovidingahighleveloverviewoffloodriskfromlocalfloodsources,includingsurfacewater,groundwater,ordinarywatercoursesandcanals.ThemethodologyforproducingthePFRAwasbasedontheEA’sFinalPFRAGuidanceandDEFRA’sGuidanceonselectingFloodRiskAreas,bothpublishedinDecember2010.TheEAusedanationalmethodology,whichhasbeensetoutbyDEFRA,toidentifyindicativeFloodRiskAreasacrossEngland.OfthetenindicativeFloodRiskAreasthatwereidentifiednationally,nonewerelocatedinCumbria.

NoFloodRiskAreaswereidentifiedinCumbriathroughthePFRAprocess.BasedoninformationsuppliedbytheEA,thelargestfloodrisk‘cluster’(projectedfloodrisklocationswithina3kmx3kmarea)isKendalwithapproximately1973peopleestimatedtobeatriskfromsurfacewaterfloodingduringa1in200rainfallevent.Thisfallssomewaybelowthe‘significant’thresholdof30,000peopleatriskdeterminednationally.


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ThePFRAfoundthatsurfacewaterfloodingisestimatedtoaffect23,500propertiesinCumbria.IthasprovidedasoundplatformfromwhichtodevelopCumbria’sLFRMS,particularlywhencombinedwiththefindingsoftheSurfaceWaterManagementPlan.

Cumbria Surface Water Management Plan (SWMP)

TheSWMPwasdesignedtoidentifywhichpartsofthecountyareatgreatestriskoffloodingfromsurfacewaterandtoestablishastrategytobestmanagethoserisks.TheproceduresfollowedwereguidedbytheSWMPTechnicalGuidance(DEFRA,March2010).ProducedbyconsultantstheCumbriaSWMPtookover18monthstodeliver.

ASWMPstudywasundertakeninconsultationwithkeylocalpartnerswhoareresponsibleforsurfacewatermanagementanddrainageintheirarea.Partnersworkedtogethertounderstandthecausesandeffectsofsurfacewaterfloodingandagreethemostcosteffectivewayofmanagingsurfacewaterfloodriskinthelongterm.ASteeringGroupwasassembledtoassistingoverningtheproject,incorporatingthesixlocalauthoritiesinCumbria,twoNationalParkAuthorities,UUandtheEA.

TheSteeringGroupwasconsultedduringallmajorstagesoftheplanpreparation.SteeringGroupmeetingshavealsotakenplaceatkeystagesoftheplandevelopment.Thisallowedmemberstoinfluencethedirectionofthestudyandtohighlightfloodrisklocationsintheirlocalauthorityareas.TheSteeringGroupagreedtotheproposedactionlistedintheCumbriaSWMPActionPlanwhichhasbeenincorporatedintothisLFRMS.Eachactionhasbeenallocatedaleadorganisationalongwithpartnerorganisations.

TheSWMPisdiscussedfurtherinSection5.1andsummarisedinAnnexBofthisLFRMS.ThePlanwasnotpublishedbutkeyoutputsfromithavebeenusedasthetechnicalbasisofthisStrategy.CopiesofthePlanareavailableonrequestfromtheCountyCouncil’sLFRMTeam.Seethedetailsonthebackcoverofthisdocument.

2.2.2 Groundwater

Groundwaterfloodingoccursfromhighgroundwaterlevelsorfromwaterflowingfromsprings.Thisusuallyoccursafterlongperiodsofsustainedhighrainfall,andthemostvulnerableareasareoftenlow-lyingwherethewatertableismorelikelytobeatashallowdepth.

Groundwaterfloodingisverycomplexandrequiressignificantinvestigationtoachieveabasicunderstanding.Itisverydifficulttoassessthelocation,likelihoodandvolumeofgroundwaterflooding;associatedrisksarehardtoquantifyinCumbria.

TherearerecordsofgroundwaterfloodingtobasementsofpropertiesalongLoundRoadandAynamRoadinKendal.TheseareincloseproximitytotheRiverKentandthegroundwaterfloodingtendstohappenwhenriverlevelsarehigh.Thissuggestsaninterconnectionwithhighwaterlevelsinthemainriver,possiblythroughthepermeablegraveldepositsonthevalleyfloor.GroundwaterfloodinghasalsobeenrecordedalongWindermereRoad,Grange-Over-Sands,againoftenassociatedwithhighwaterlevelsinlocalwatercourses.Thegeologyinthisareaislimestone.Highgroundwaterlevelsdonotpersistandtendtodropfairlyquicklyafterarainfallevent.FloodingproblemsinGrange-over-Sandsarealsocompoundedby’tidelocking’,asflappedoutfallstotheseabecomesubmergedbytidalwaters.

TheEAcontinuestoimprovemappingofareassusceptibletogroundwaterflooding.Themappingavailableisatastrategicscaleprovidingabroadfeelforthewiderareaswhichmightbeatriskfromgroundwaterflooding.Largeareasofthecountyareshownasbeingvulnerabletogroundwaterflooding.DespitethecomplexunderlyinggeologyofCumbriaitisthesuperficialdepositsformedduringglaciationthatmakefloodingfromgroundwaterapotentialriskacrossthecounty.

Thisstrategywillseektoimproveourunderstandingoftheinfluencesonthisformoffloodingandthemeansbywhichitcanbeidentified.Floodeventslinkedtogroundwaterlevelswillbemonitoredtoidentifyvulnerableareas,promotingresistanceandresiliencemeasures.



2.2.3 Ordinary Watercourses

OrdinaryWatercoursesaresmallwatercoursesthatarenotdesignatedasMainRivers.ThepowerstomanageOrdinaryWatercoursesliejointlybetweentheLLFAanddistrict/boroughcouncils.EnforcementpowersforordinarywatercoursesliewiththeLLFA.OrdinaryWatercoursesfloodinasimilarfashiontomainrivers,butbecausethesewatercoursesaresmallerthefloodingismorelocalised.

ThislocalstrategywillidentifyOrdinaryWatercoursefloodriskinCumbriarequiringinvestigationandhowthiswillbeprioritised.

2.2.4 Sewer flooding

Floodingoccurswhentheamountofwaterenteringtheseweragesystemexceedsitsdesigncapacityorwhenthesystembecomesblocked.Thistypeoffloodingisparticularlyseverewhenacombinedsewer(asewerthatcarriesbothsurfacewaterandfoulwater)floodsasitcauseseffluenttobedischargedthatcanhavehealthandenvironmentalconsequences.

SewerfloodinginCumbriaistheresponsibilityofUnitedUtilities.TheyhavestatutoryresponsibilitiestoinvestigateinternalfloodingtopropertiesandthisismonitoredbyOfwat.

2.3 River flooding

Riverflooding(alsoknownasfluvialflooding)occurswhenflowsexceedthecapacityoftheriverchannel.Heavyrainfallcancauseriverlevelstoriseandfloodadjacentlow-lyingareas.

Riversaredividedintotwocategories:mainriversandordinarywatercourses.TheEAhas‘permissivepowers’tomanagefloodriskfrommainrivers,whichareriversthatcancausesignificantdisruptioniftheyfloodandneedspecialmanagementtoreducetherisksofflooding.MainriversareidentifiedontheEA‘FloodMapforPlanning(fromRiversandtheSea)’,whichisavailableontheirwebsite:http://watermaps.environment-agency.gov.uk

‘Permissivepowers’meanthisworkisnotadutyfortheEA,andassuchtheexercisingofthesepowersisattheAgency’sdiscretion.

2.3.1 Catchment Flood Management Plans

ThemanagementoffloodriskfrommainriversissetoutinCatchmentFloodManagementPlans(CFMPs)producedbytheEA.Theseplansgiveanoverviewofthefloodriskineachrivercatchmentandrecommendhigh-levelpoliciesformanagingthoserisksnowandoverthenext50-100years.TherearesevenCFMPsinCumbria:

• Derwent• Eden• SouthWestLakes• Kent&Leven

DetailsoftheseCFMPscanbefoundhere: http://www.environment-agency.gov.uk/research/planning/114513.aspx

TheyareshowninFigure4.

DifferentarrangementsexistforthesectionoftheRiverEskinthenorthofthecountynearLongtown.Thisisthelowercatchmentoftheriver,thegreaterpartofwhichlieswithinScotland.Assuch,thissectionoftheRiverEskissubjecttotheSolwayLocalPlanDistrictFloodRiskManagementPlanandStrategyproducedbytheScottishEnvironmentalProtectionAgency.

• Lune• RiverTees• RiverTyne


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Thislocalstrategydoesnotincludeanyspecificapproachestomanagefloodingfrommainrivers.However,mainriverfloodingwillaffectlocalformsoffloodingtobeaddressedbythisstrategy.

CFMPsareplanningtoolsusedtodevelopfloodriskpolicy,andpromotecollaborativeworkingbetweenorganisationswithinrivercatchments.CFMPssurveythefloodrisksacrossacatchment,andconsiderthepotentialimpactsofclimatechangeontheserisks.Catchmentsaredividedintosub-areas,witheachassignedtooneofsixpolicies.Thepoliciesindicatetheamountofworkrequiredtoreducefloodriskinasub-areatoanacceptablelevel.Withinsub-areasparticularactionsarerecommended.RiverBasinManagementPlansareatalargerscale,containingseveralCFMPsandaddressingawiderrangeofenvironmentalissues.

Figure 3. River Basin Districts

2.3.2 Catchment-based policy and planning

Usingtherivercatchmenttoplanfloodriskmanagementisnotanewidea,butithascometotheforeoverthepastdecade.Integratedcatchmentmanagementfocusesbothonreducingfloodriskandondeliveringwiderbenefitssuchaswildlifeandwaterqualityimprovements.Thisisassumedtobeaneffectivewayofworkingtowards’goodecologicalstatus’forwaterbodies,asrequiredbytheEUWaterFramework(2000/60/EC)Directive.TheEUFloods(2007/60/EC)Directive,EACFMPs,anditsRiverBasinManagementPlanshaveallcontributedtothedevelopmentofthismethodofplanning.CFMPsfocusonwhereworkingwithnaturalprocessescouldhelptomanageinlandfloodrisk.

ThisStrategywillbeimplementedviatheexistingsixadministrativeandoperationalareasinCumbria,namelyAllerdale,Barrow-in-Furness,Carlisle,Copeland,EdenandSouthLakeland.TheseareasdonotcorrespondtothesevenrivercatchmentsinthecountybutactionsarisingfromtheLFRMSwillbeassessedinthecontextofthepoliciescontainedwithintheCFMPs.



Figure 4. Catchment Flood Management Plans in Cumbria


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2.3.3 Flood Risk Management Plans

The2009EUFloodsDirectiverequirestheEAtoproduceaFloodRiskManagementPlanforeachRiverBasinDistrictacrossthecountrybyDecember2015.LLFAsarealsorequiredtoproduceanFRMPiftheyarelocatedwithina‘SignificantFloodRiskArea’.OnlyLiverpoolandManchesterareSignificantFloodRiskAreasinthenorth-west,assuchCCCdoesnothavetoproduceaFloodriskManagementPlan.

Theseplansidentifytheriskfromfloodingandsetoutobjectivesandmeasuresformanagingthatrisk.Insodoing,theyaggregateinformationaboutallsourcesofflooding-andcoastalerosionwhereappropriate-tobetterinformprioritisation,decisionmakingandworkprogramming.

ThisLFRMSwillbeusedasareferencedocumentinthedevelopmentofthethreeFRMPswithintheareacoveredbytheStrategy:-theNorth-West,SolwayTweedandNorthumbria.TheCumbriaLFRMSprovidesthelocalcontextforeachoftheseFRMPs.

TheEA,localauthorities,watercompanies,andHighwaysAuthoritiescarryoutaRiskManagementAuthorityroleinrelationtoflooding.Weallworktogethertohelpcommunitiesandbusinessesunderstandtheirfloodrisk,deliversolutionstominimisethisandsupportthemtoadapttofloodingandbecomemoreresilient,iftheworstshouldhappen.

2.4 Coastal flooding and erosion

Poorweatheroccurringwithhightidescausesealevelstoriseresultinginfloodingofcoastalareas.Hightidesandariseinsealevelscanalsoobstructflowsfromriversanddrainsflowingintothesea,causinginlandflooding.Coastalprocesses,tidesandwavescanresultinerosionofthecoastline,withlossoflandandthreateningproperties,transportinfrastructureandmanyothertypesofdevelopment.TheEAmanagesfloodriskfromthesea.Districtandboroughcouncilsareresponsibleformanagingcoastalerosion,whichisoverseenbytheEA.Coastalfloodinganderosionmanagementiscoordinatedthroughcoastalgroups.

ThemanagementofcoastalfloodingandcoastalerosionrisksissetoutinShorelineManagementPlansproducedbytheEAandcoastaldistrictsworkinginpartnershipinthecoastalgroup.

DetailsoftheShorelineManagementPlansthatcoverthecoastlineofCumbriacanbefoundon:http://www.environment-agency.gov.uk/research/planning/105014.aspx

Thepurposeoftheseplansistoprovidealarge-scaleassessmentoftherisksassociatedwithcoastalprocessesandapolicyframeworktoreducetheserisks,bothtopeopleandtheenvironment,inasustainablewayoverthenext100years.

Thislocalstrategydoesnotincludeanyspecificapproachestomanagefloodingfromthecoast.However,coastalfloodingwillaffectlocalformsoffloodingandthesewillbeaddressedbythelocalstrategy.ExamplesincludeUlverston,PartonandWhitehaven.



3. Flood risk management roles in Cumbria

3.1 What are risk management authorities?

ThemanagementoffloodriskissharedbymanydifferentriskmanagementauthoritiesinCumbria,eachwithdifferentresponsibilities,powersandduties.Toadequatelyfacethechallengeoffloodriskmanagementintimesofausterityandclimatechange,itisessentialthattheseworktogether,partneringactivitiesandresources.

Cumbriahasexperiencedtwomajorfloodeventsinrecenttimes-Carlislein2005andWestCumbriain2009.Manylessonshavebeenlearnt,particularlyintheareaofpartnershipworkingbetweenauthoritiesinpreparingforandrespondingtosuchevents.Consequently,exemplarstandardshavebeenachievedandrecognisednationally.

ThissectionexplainswhothemainRMAsareinCumbriaareandsummarisesthefunctionstheymayexercise.SeeTable1.ItalsogivesanoverviewofpartnershipworkingoftheRMAs.DefinitionasaRMAundertheActallowstheseauthoritiestheopportunitytobidforfloodandcoastalerosionriskmanagementgrantinaid(FCERMGiA)fundingand,ifsuccessful,toundertaketheworks.TheseauthoritiesarerequiredtoactinaccordancewiththislocalstrategywhenundertakingactivitiesthataffectlocalfloodriskmanagementandtheNationalStrategywhenundertakingactivitiesthataffectallformsofflooding.

3.2 RMAs in Cumbria and their flood risk management roles

Section6,Cl.13oftheFWMAstates(textfromtheActisprovidedinitalics):

’Risk management authority’ means - (a) the Environment Agency,

InApril2008theEAtookonthestrategicoverviewroleforthecoastinEngland,givingEAanoverarchingroleinthemanagementofourcoastline.TheAgencyisresponsiblefortheprioritisation,fundingandprovisionofseafloodingandcoastalprotectionworksandfloodalleviationschemesonmainrivers.Itmanagesitsownassetsintheseareasthatreducetheriskofflooding.Itsfunctionsincludepromotingflooddefenceschemes,anditwillworkwithLLFAsandlocalcommunitiestodevelopschemeswhichrespondtolocalpriorities.TheEAprovidesfloodwarningsandrespondstofloodincidentsforMainRiverandcoastalflooding.Itisalsoastatutoryconsulteeforfloodriskmattersinplanningapplicationsandistheregulatoryauthorityforreservoirs.

(b) a lead local flood authority, InCumbria,thisisCumbriaCountyCouncil.

TheFWMAgivesLLFAspowersanddutiesforthestrategicoverviewoflocalfloodingandforsomeflood-riskmanagementfunctions.Theseinclude:• dutytoinvestigateflooding• dutytomaintainaregisterofstructuresandfeatureswhichhaveanimpactonfloodrisk• powerstoregulateordinarywatercourses• roletopromotesustainabledrainage.

AfullsummaryofthedutiesandpowersaffordedtoLLFAsundertheActisprovidedinAnnexC.Howthesepowersanddutiesareexercised,andotherfunctionsweconsiderimportanttodeliverourroleasLLFA,issetoutinSection5.2and5.3repectively. LLFAsareresponsiblefortheprioritisation,fundingandprovisionoflocalfloodalleviationschemesbasedonrisk.TheywillgothroughtheRegionalFloodandCoastalCommittee(RFCC–seeAnnexA)fundingapprovalprocess.TheActdoesnotprovideCCC,ortheotherRMAs,withthemandateorfundingtotackleallidentifiedcausesofflooding.

CCCisaCategory1ResponderundertheCivilContingenciesAct2004andisresponsibleforthepreparationofcontingencyplansthatdetailhowallemergencyresponderswillrespondtoadisasterormajorincidentinCumbria,includingflooding.Aspartofthisrole,CCCcoordinatesthepreparationofmulti-agencyfloodplansforeachdistrictandboroughinthecountyandprovidesdetailsofhowtomanagefloodingincidents.


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CCCistheplanningauthorityformineralsandwasteandforschools,roads,librariesandotherdevelopmentspromotedbytheCouncil.CCChasadutytoensurethatfloodriskistakenintoaccountintheplanningofsuchdevelopments.

CCCisastatutoryconsulteeonmajorplanningapplicationsreceivedbytheDistrictsandonDistrictLocalPlans.Intwo-tierauthorityareassuchasCumbria,theCoalitionGovernment’sNationalPlanningPolicyFrameworkrequiresLocalAuthoritiestoworktogethertoidentifyandplanforthedeliveryofnecessaryinfrastructurerequiredtosupportthegrowthambitionsintheDistrictLocalPlans.ThismeansthattheCountyCouncilhasafundamentalroleasaninfrastructureprovidertoinputintotheDistrictLocalPlanprocess.TheassessmentoffloodriskanditsmitigationisthereforeanimportantinfrastructureaspecttoconsideraspartoftheDistrictLocalPlanpreparation,andtheCountyCouncilincludesfloodriskaspartofthematterswhenrespondingtosuchconsultations.

(c) a district council for an area for which there is no unitary authority,

Districtandboroughcouncilshavelocalplanningauthority(LPA)responsibilities.Theyhavepowerstoadoptandmaintainordinarywatercourseswithintheirdistrict.WheretheyexistwithinaLLFAarea,districtcouncilsretainresponsibilitiesfordeliveryoffloodriskmanagementonordinarywatercoursesthroughpermissivepowers.

Iftheyhaveacoastline,districtsmayalsohaveresponsibilityformanagingtheriskofcoastalerosion.Asacoastalauthoritytheyhavearesponsibilityforplanningcoastalerosionriskmanagementschemes,andcontributingtoshorelinemanagementplans.LocalauthoritiesremaintheleadforcoastalerosionbutEAwilloverseeit.

InCumbriathereare6secondtier/districtcouncils:

• AllerdaleBoroughCouncil;• BarrowBoroughCouncil;• CarlisleCityCouncil;

TherearenounitaryauthoritiesinCumbria.

(d) an internal drainage board,

TherearenointernaldrainageboardsinCumbria.HowevertherearemovestoformboardsintwoareasinCumbria:LythValleyinthesouthandWaverWampoolinthenorth-westareaofthecounty.Negotiationsarequiteadvanced.

(e) a water company

SewerageUndertakersareresponsibleforthepublicsewersystemandassuchareresponsibleformanagingtherisksoffloodingfromsurfacewater,foulorcombinedsewersystems.

TheActstatesthatwatercompaniesonlyhavetohaveregardtolocalstrategies,otherRMAshavetoactinamannerwhichisconsistentwithlocalstrategies.

InCumbria,theRMAsareUnitedUtilitiesandNorthumbrianWaterLimited.

(f) a highway authority.

InCumbriathisis:

• TheHighwaysAgencyfortrunkroadsandmotorways;• CCCforallotherhighways.

Alloftheabovehaveleadresponsibilityforprovidingandmanagingpublichighways,includingdrainageundertheSection1oftheHighwaysAct1980.

• CopelandBoroughCouncil;• EdenDistrictCouncil;• SouthLakelandDistrictCouncil



Table 1. The role and functions of the RMAs in Cumbria

Flood Source EA LLFA District Water Company

Highways Authority

MainRiver ✔

TheSea ✔

SurfaceWater ✔

HighwaySurfaceWater ✔

SewerFlooding ✔

Ordinary Watercourse ✔ ✔

Groundwater ✔

Reservoirs ✔

Table1aboveshowswhichRMAshavethepowerstodosomethingaboutfloodingfromaparticularsource.Permissivepowerisnotaresponsibilityto‘do’something.Itmustbeeconomicallysoundandaffordable.

AnnexAgivesanoverviewofpartnershipsandgovernancearrangementsthatsomeorallriskmanagementauthoritiesareinvolvedinworkingtogethertodeliverfloodriskmanagementfunctions.

3.3 Partnership working to deliver the Local Flood Risk Management Strategy

Riskmanagementauthoritieshaveadutytocooperate(i.e.aneedtopartner)withoneanotherinundertakingfloodriskmanagementfunctions.ThisisakeyrequirementoftheFWMA.

Byworkingtogetherorganisationsandindividualscanbemoreeffectiveanddeliverbetterresultsthanwhatmightbepossiblebyworkingalone.Cooperationrequirestrust,goodcommunication,sharinginformationandresources,andappreciationofthemutualbenefitsitcanbring.Cooperationrespectstheinterestsofthoseconcerned,whileatthesametimepromotingthewiderinterestsofthegroupanditsstakeholders.SuchculturesarekeytothesuccessfuloperationoftheCumbriaLLFAStrategicPartnership,WorkingandMakingSpaceforWaterGroups(MSfWGs).

Itisessentialtothesuccessofapartnershipthatallpartiesinvolvedshouldbeclearaboutwhattheyaretryingtoachievefromthestart,individuallyandcollectively.Inthecaseoffloodriskmanagement,theoverallagendaissetbythePittReviewrecommendations,andthesubsequentlegislationimplementingthem.TableD.1intheLFRMSActionPlan(AnnexD)outlinesthelegislativedutiesthatcanbesharedbetweenRMAsthroughtheMSfWGs.

ThissectionintroducesthewiderscopeofpartnershipworkingandhowtheRMAsareinvolved.

3.3.1 Who are our partners?

ThisStrategyhasdiscussedtheprincipleoftheLLFAworkingcloselywithfloodRMAsacrossCumbria,butpartnershipworkingextendsbeyondrelationshipswithstatutorybodies.Itcanincludeanyorganisationorindividualwithaninterestinfloodriskmanagement.

Suchgroupsandorganisationsarenotdesignatedasriskmanagementauthorities,althoughtheymaystillhavearoletoplayinthemanagementoffloodrisk.Someofthepartnersweworkwithfrequentlyaredescribedhere.


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3.3.2 Parish and Town Councils; residents associations; community groups

ParishandTownCouncilsandresidentsassociationscanbeinvolvedinissuesthatmayincludelocalflooding.Membersofthesebodiescanbeasourceofvaluableinformationhavingexperiencedandwitnessedlocalflooding.Suchdetailsmaynotberecordedbyotherauthorities.

Theseorganisationsalsohaveaconsultationroleinlocalplanningapplicationsandcaninfluencehowlocaldevelopmentsaredelivered.OftentheorganisationsassistintherunningofFloodActionGroups(FAGs)orCommunityActionGroups(CAGs).TheoperationofaCAGprovidesacommunityfocusforeventsofanykindthatcouldaffectthemandhowtheycouldhelplocallyinanytypeofemergency.Havingaplanthatencompassesallconsiderablethreatsshouldbetheaimofallcommunitygroups.

FAGsandCAGsarevitalpartnerstotheLLFAandinadditiontothesethereareothercommunityledgroupsthathavebeensetupacrossCumbriaandshouldbeintegratedintotheconsultationprocess.ExperiencesininvestigatingfloodeventsinCumbriahaveshowntheLLFAthattoreducetheriskstocommunitiesweneedtoworktogether.Weneedtounderstandthedetailoffloodingexperiencedtocollectivelydevelopsolutionsfortotacklethethreats.

3.3.3 Private individuals and land owners

Riparianlandownersarethosewhoownlandadjoiningawatercourse.AsdetailedwithintheEAdocument‘LivingontheEdge’,riparianlandownershavecertainrightsandresponsibilities,includingthefollowing:

• theymustmaintainthebedandbanksofthewatercourse,andalsothetreesandshrubsgrowingonthebanks;• theymustclearanydebris,evenifitdidnotoriginatefromtheirland.Thisdebrismaybenaturalorman-made;• theymustkeepanystructuresthattheyownclearofdebris.Thesestructuresincludeculverts,trashscreens,

weirsandmillgates;• iftheydonotcarryouttheirresponsibilities,theycouldfacelegalaction.

Riparianlandownersmustunderstandandactupontheseresponsibilities.Theymustbeawarethatanyworksin,over,underorwithin8metresofmainriversandworks,whichmightimpactontheflowofanordinarywatercourse,mayrequireformalconsentfromtheEAforMainRiversandfromtheLLFAforordinarywatercoursesundertheLandDrainageAct1991,WaterResourcesAct1991andassociatedNorthwestRegionalByelaws.Theymustnotcarryoutworkwithoutconsent.Iftheydo,therelevantRMAcouldreclaimfromthemthecostofremoving,alteringorpullingdownworks.Similarly,ifstructuresthathavefallenintoandareblockingthewatercourse,arenotremoveditispossible,thentheLLFAmaywishtouseitsnewlyacquiredenforcementpowersinordertoservenoticeontheownerofthestructuretoremovethem.Intheeventthattheownerisservednoticeforremovalofthestructure,butfailstodoso,theLLFAmayremovethestructureandchargetheownerforthecostofundertakingthework.

Outsidetownsandvillages,largeareasofCumbriaarefarmed,meaningthemanagementofagriculturallandhasasignificantimpactontherunofffromrainstormevents.Itisimportantthatfarmersunderstandhowagriculturalpracticecanaffectfloodingandbodiesofwaterdownstream.CumbriaLLFAisworkingcloselywithCatchmentOfficersfromtheEA,theCumbriaPeatPartnership,CatchmentSensitiveFarmingOfficersfromNaturalEngland,WildlifeTrustsandthethreeriverstrustsinthecounty.RaisingawarenessoftheseissuesandbuildingpartnershipswiththefarmingcommunityaimstoencourageinitiativestoreducefloodriskandserveobjectivesandtargetsundertheWaterFrameworkDirective2000.

3.3.4 Developers

BuildingsustainabilityintodevelopmentsisalearningprocessforallthoseinvolvedandthebenefitsthiscanprovidefortheCumbriaeconomy.Thereisincreasingdemandsondevelopersandtheregulatoryauthoritieschargedwithimplementinglegislationcontrollingdevelopmenttobeinnovativeandexplorenewsustainabledesignphilosophies.CumbriaCountyCouncilasLLFAwillsharethisjourneywithdevelopersworkinginthecounty,focussingonopportunitiestoreducefloodriskindevelopmentproposals.WewillliaisewiththemregularlyeitherasindividualorganisationsorthroughtheCumbriaHousebuildersGroup.



3.3.5 Neighbouring lead local flood authorities

Cumbriaborderswithotherleadlocalfloodauthorities.NorthumberlandCountyCouncil,DurhamCountyCouncilNorthYorkshireCountyCouncilandLancashireCountyCouncilareallLLFAsthatshareaborderwithCumbria.InScotland,Dumfries&GallowayandScottishBordersCouncilareasalsolieadjacenttoCumbria.Alongthesebordersfloodrisksmayarisefromlandthatisinanotherauthority.CCCwillworkwiththeseauthoritiestocoordinatefloodriskmanagementacrossourborders.

CumbriaispartiallywithintheSolwayTweedRiverBasinDistrictwhichcrossestheEnglish/Scottishborder.TheEUhasmadeprovisionforriverbasindistrictswhichcrossnationalboundariesintheFloodRisk(CrossBorderAreas)Regulations2010.TheEUCrossBorderAreasRegulationsrequirethatScottishEnvironmentalProtectionAgency,theEAandtheLLFAwhenproducingfloodriskassessments,mapsandplansmust:

• Considertheimpactsoffloodriskfromactionsoneithersideoftheborder• TakeintoaccountthePFRAs,floodhazardmaps,floodriskmapsandfloodriskmanagementplans producedforanadjacentcrossborderarea• GiveconsiderationtotheadvicegivenbyaCrossBorderAdvisoryGroup

ACrossBorderAdvisoryGrouphasbeenestablishedforthecrossborderareawhichincludesrepresentativesfromCCC.MeetingshavebeenheldtwiceayearsinceMay2011.

3.3.6 Residents

Residentswhoareawarethattheyareatriskoffloodingshouldtakeactiontoensurethattheyandtheirpropertiesareprotected.

Communityresilienceisimportantinprovidinginformationandsupporttoeachotheriffloodingisanticipated.Actionstakencanincludetemporaryonessuchaslayingsandbagsandmovingvaluableitemstohighergroundandmorepermanentmeasuressuchasinstallingfloodgates,raisingelectricalsocketsandfittingnon-returnvalvesonpipes.Anyoneaffectedbyfloodingshouldtrytodocumentasmuchinformationabouttheincidentaspossible.CumbriaLLFAandotherRMAsaredependentonthe‘firsthand’accountsreceivedfromthosewhowitnessfloodevents.Thisinformationiscrucialtobuildingknowledgeonfloodmechanismsanddevelopingeffectivesolutionstoreducetheprobabilityoffloodinghappeningagain.FAGsandCAGspresentanopportunityfordialogueandagreementamongstresidentsonfloodingexperiences.ThisisanefficientmeansofcollatingdatabytheLLFAratherthanfragmentedandconflictinginformationsourcedfromindividualresidents.

3.3.7 Rivers and wildlife trusts

CumbriaLLFAisalreadyengagingwithawiderangeofpartnersinresponsetocatchmentbasedplanning.Theseincludethesevenriverstrustsworkinginthecounty: • EdenRiversTrust• WestCumbriaRiversTrust• SouthCumbriaRiversTrust• TyneRiversTrust• LuneRiversTrust• TeesRiversTrust• RiversandFisheriesTrustsofScotland

ThesixinEnglandhavebeenappointedbyDEFRAtobe’catchmenthosts’toleadonacommunityapproacheswiththiswork.CumbriaWildlifeTrusthasarepresentativeontheCumbriaLLFAStrategicPartnership.


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4. Objectives of managing local flood risk

TherearesubstantiallocalfloodingrisksinCumbria.Responsibilitiesforunderstandingandmanagingthemarespreadacrossanumberofriskmanagementauthorities.Clearobjectivesareessentialtomanagelocalfloodingandimprovesharedunderstandingoftherisks.Whenitisclearwhoisinthebestpositiontoaddressthemtheycanbemanagedinacoordinatedway.Availableresourcescanthenbeusedeffectivelytoreducefloodrisk.

Thissectionsetsoutthelocalfloodriskmanagementobjectivesandexplainsthesupportingprinciplesfromtherelevantdocumentsthathelpedtoshapethem.

ThefollowingLFRMSobjectiveshavebeendevelopedtobeconsistentwiththeNationalFloodandCoastalErosionRiskManagementStrategyandtheCumbriaCountyCouncilPlan2014-2017,asdiscussedinSection4.2,andtoaddresstheneedsoflocalfloodriskinCumbria.

ProposedactionsthatemergefromtheseobjectivesaresetoutinSection5.AllRMAsarerequiredbytheFWMAtoworktogethertohelptodeliverthesesharedobjectives.

4.1 The Objectives

The’objectives’ofthisstrategyformthepoliciesfortheLLFAinCumbria.

4.1.1 Policy Objective 1 (P1). Reduction in flood risk to the people of Cumbria

Floodingcausessocial,economicandenvironmentaldevastation.Thecentralobjectiveoffloodriskmanagementshouldbetoreducetheriskoffloodingwhereverpossible.

Thisdoesnotalwaysmeanconstructingformalflooddefenceschemes.Maintenanceofexistingassetscanbeaverycosteffectiveandasustainablewaytomanagefloodrisk.Improvementworkscanincludesmallinterventionswhichresultinasignificantreductioninthelikelihoodorconsequencesofaflood,butmaynotremovetheriskaltogether.

Thecoordinationofmaintenanceandfloodriskmanagementactivitiesbetweenriskmanagementauthoritieswithinacatchmentisimportantinensuringthatfloodriskisbeingmanagedinaholisticandcost-effectiveway.

Floodriskmanagementshouldfocusonthehighestriskareas,beproportionate,cost-effective,sensitiveoftheneedsofthelocalcommunityandseekmultiplebenefits.Localcommunitiesshouldbeinvolvedinthedevelopmentoffloodmitigationactionsandencouragedtohelpfundthem.

4.1.2 Policy Objective 2 (P2). Increased knowledge and awareness of the factors affecting flood risk across Cumbria

Foreffectivefloodriskmanagement,localfloodinginformationneedstoberesearchedandcollated.RMAscanthenusethisdevelopingresourcetoprioritiseareasandinvestigatesolutionstomanagefloodrisk.

Informationonlocalfloodinghasbeenunreliableandavailabilityofdataonhistoriclocalfloodingispatchyinsomepartsofthecounty.Althoughvaluabledatahasbeencollectedfromthe2005and2009events.Thisallreflectstheemphasismadeonthemorelifethreateningfloodriskfromriversandtheseathathavebeenthefocusoffloodriskmanagementinthepasttwodecadesandofthefragmentedresponsibilitiesforlocalfloodingamongstseveralriskmanagementauthorities.Detailedinformationisavailableforsomecommunitiesbutthereisstillmoredataandfactstocollectandanalyse.ConsiderableprogresshasbeenmadethroughtheproductionofaCumbriaSWMPandtheworkscarriedoutbytheEAwithsurfacewatermapping.

Tofacilitaterobustplanningforlocalfloodrisksandallocatefloodriskmanagementresourceseffectively,betterdataneedstobegatheredaboutthehistoryoffloodingandthepredictedrisksthatisconsistent,reliableandavailabletoallriskmanagementauthorities.



4.1.3 Policy Objective 3 (P3). Ensure that flood risk management is integrated within the planning process in Cumbria

Thebestwaytopreventfloodriskfromincreasingistoavoiddevelopmentinareasofexistingfloodriskwherepossibleandtomanagerunoffsustainably.Managingdevelopmentstoreducefuturefloodrisksiscosteffective.Everydevelopmentthatisconstructedtoberesilientfromfloodingnow,isonelessdevelopmentthatwillbefloodedinthefuture.

Developmentinareasatriskoffloodingcannotalwaysbeavoided,especiallyasmanyurbanareasinCumbriaareatriskoffloodinganditisappropriatetodevelopandregeneratetheseareas.Suchdevelopmentshouldbejustifiedandsensitivetotheriskoffloodingasrequiredbyplanningpolicy,andmitigationsoughtwherethereisariskoffloodinginlinewiththeadvicecontainedintheNationalPlanningPolicyFramework,inordertomakethedevelopmentacceptableinplanningterms.

Sustainabledevelopmenthelpstoprovidehomesandcommunitiesthatarepleasantplacestoliveandworkwherefloodriskiswellmanagedandenhancethesurroundingcommunitiesandenvironments.Developmentshaveanimportantroleintakingopportunities,accordingtoLocalPlangreeninfrastructureandbiodiversitypolicies,tomanagethewaterretainedon,andflowingthroughdevelopmentsites,creating,protectingandenhancingnaturalhabitat.

4.1.4 Policy Objective 4 (P4). Facilitate close partnership working between all risk management authorities

MuchhasbeenachievedinformalisingpartnershipworkingarrangementsbetweenRMAsinCumbriasinceCCCbecameaLLFAundertheFWMA.MSfWGswerealreadyexemplarworkinggroupsandtheirstatushasbeenenhancedbytheroletheynowplayintheCumbriaLLFAgovernancearrangementsdescribedearlierinthisStrategy.Partnershipworkingiscentraltothesearrangements.TheEAprovidesconsiderablesupporttotheLLFAtocarryoutitsstrategicoverviewoflocalfloodriskinCumbria.ThetwobodiescontinuetoworkcloselytofurtherdeveloptheopportunitiesforpartnershipworkingbetweenRMAs.

4.1.5 Policy Objective 5 (P5). Improve Community Resilience through awareness of flood risk

AkeyprinciplerunningthroughoutthePittReviewwastheneedforbettercommunicationwiththepublic.Thiswasafundamentalreasonforrecommendingtheestablishmentofasinglebody(theLLFA)withresponsibilityforco-ordinationandleadershipatalocallevel,andforasinglebodywithoversightnationally(theEA).However,theconsistentmessageemergingfromthePittReviewandfromGovernmentsince2007isthatbetterco-ordinationandleadershipbythepublicsectormustbeaccompaniedbygreaterpublicresilienceandparticipationinidentifyingandmanagingfloodriskforthemselves.

Therearealreadyover40FloodActionGroupsacrossCumbria.Manyofthesehavealreadyachievedvaryinglevelsofdemocraticstructureandaccountability.CCCandtheEAwillpromotetheformationanddevelopmentofthesegroupswhilstencouragingclearTermsofReferenceandfinancialindependence.FAGscanbesub-groupsofCommunityActionGroupsworkingwithParishandTownCouncils,ResidentsAssociations,NeighbourhoodForumsormayevolvesimplyfromcollectivecommunityaction.ThesegroupsareimportanttoLLFAastheyareautonomousgroupsrepresentingcommunitiesaffectedbyflooding.TheypresentaneffectiveandsustainablemechanismforCCCandotherRMAstocommunicatewithcommunitiesatriskofflooding.

Thereisaneedtopromotetwo-waydialoguebetweentheLLFAandtheFAGcommunitytoachieveprogressinthefollowingareastoreducefloodrisk:

• Floodinvestigationinformation;• Localknowledgeonhowfloodingoccurs,whywhereandhowoften;• Communityinvolvementonwhatflooddefenceandprotectionmeasuresareviableandsustainable;


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• Raisingcommunityfundingtocontributetothecostofthoseflooddefenceandprotectionmeasures;• Adviceonhowindividualscanprotectthemselvesfromflooding;developcommunitypreparedness;• Developmentofacommunityresilienceplan.

ThispolicyseekstoestablishcommunitiesinactionasamajorcontributortofloodriskmanagementacrossCumbria.

4.2 Supporting documents

Thefollowingdocumentssetoutguidingprinciplesthathavebeenusedtodeveloptheobjectivesforthisstrategyanddeterminehowtheywillbedelivered.

4.2.1 Cumbria County Council Plan 2014 - 2017

The8KeyPrioritiesofthePlanare:-

To safeguard children, and ensure that Cumbria is a great place to be a child and grow up.ReducingfloodriskwillhelpensureallchildrenandyoungpeopleinCumbriaaresafeandprotectedfromtheenvironmentalhealthimpactsofflooding.Afloodedhomecanhavedevastatingimpactsonfamilylife.

To enable communities to live safely and shape services locallyWewillworkwithcommunitiesandthethirdsectortoenablethemtocreatelocalsolutionsandshapelocalservicesforthefuture.Wewillhelpthemunderstandthefloodriskstheyfaceandtakeownershipandresponsibilityforsolutions.

To promote health and wellbeing, and tackle povertyDisadvantagedpeoplearefrequentlythosewhoareunabletoaffordfloodinsurancefortheirproperty.Afloodedhomeisadevastatingexperienceforthepeoplelivingthereandthehealthimpactsarelonglasting.Nofinancialresourcestorecoverfromtheeventcanmeanconsiderablehardship.ReducingfloodriskandprioritisingfloodmanagementindisadvantagedareaswillmakeasignificantcontributiontoreducingpovertylevelsinCumbria.

To protect and enhance Cumbria’s world class environmentAstatedthemewithinthispriorityis:“AsLeadLocalFloodAuthority,CumbriaCountyCouncilwillworkwithpartnersandothersinthecommunitytoensurethatCumbriaisaspreparedaspossibletodealwithflooding”.

To provide safe and well maintained roads and an effective transport networkMostlocalfloodincidentshavesomeimpactonpublicroads.LocalFloodRiskManagementispartoftheHighwaysandTransportfunctionofCumbriaCountyCouncil.Consequently,itiswellplacedtodevelopintegratedsolutionsforintroducinggreaterresilienceinourhighwayinfrastructureandimprovingourpublicrealm.

To promote sustainable economic growth, and create jobsTheeconomicimpactsoffloodingcanbeoverwhelmingforabusinessorcommunity,particularlyinanareawheretourismissoimportant.CumbriaCountyCouncilwillusenewpowersforapprovingdrainagesystemsservingnewdevelopmentasatooltopromotesustainabledevelopmentmeetingtheneedsofourcommunitiesandensurewemaintainthequalityofCumbria’sworldclassenvironment.

To support older and vulnerable people to live independent and healthy livesCitizensofCumbriaaffectedbyfloodingcanoftenfeelpowerlesstopreventit.Providingclearfloodriskinformationandidentifyingthebodiesresponsibleforfloodriskmanagementarethefirststepstowardsenablingself-helptoprotectpeoplefromflooding.RMAscanhelpcitizenstounderstandwhatishappeningintheircommunitytomanagefloodingandhowtoidentifywhocanhelpthemtacklefloodingissues.

To be a modern and efficient councilAstatedthemewithinthispriorityisto“Pursueopportunitiesformoreefficientservicedeliverybycloserworkingwiththeothertiersoflocalgovernment”.PartnershipworkingiscentraltothisStrategyandweshallworkcloselywithcolleaguesinDistrict,Borough,ParishandtownCouncilstomaximisetheirskillsandknowledgeinmanaginglocalfloodrisk.



4.2.2 National Flood and Coastal Erosion Risk Management Strategy

TheEAStrategysetsoutsixguidingprincipleswhichhavebeenappliedinformulatingtheLFRMStoensureconsistency.Theyprovideguidanceonhowfloodriskmanagementshouldbedeliveredtoensurethatallaspectsofschemesareconsidered.Assuchtheyinfluencetheobjectivesandalsohowtheywillbedelivered.

Thesixguidingprinciplesare:

Community focus and partnership workingRiskmanagementauthoritiesneedtoengagewithcommunitiestohelpthemunderstandtherisks,andencouragethemtohavedirectinvolvementindecision-makingandriskmanagementactions.Workinginpartnershiptodevelopandimplementlocalstrategieswillenablebettersharingofinformationandexpertise,andtheidentificationofefficienciesinmanagingrisk.

A catchment and coastal ‘cell’ based approachInunderstandingandmanagingrisk,itisessentialtoconsidertheimpactsonotherpartsofthecatchmentorcoast.Activitiesmustseektoavoidpassingriskontootherswithinthecatchmentoralongthecoastwithoutprioragreement.

SustainabilityWeshouldaimtosupportcommunitiesbymanagingrisksinwaysthattakeaccountofallimpactsofflooding(forinstanceonpeople,properties,culturalheritage,infrastructureandthelocaleconomy)andthewhole-lifecostofinvestmentinriskmanagement.Wherepossible,opportunitiesshouldbetakentoenhancetheenvironmentandworkwithnaturalprocesses.Riskmanagementmeasuresshouldalsobeforwardlooking,takingaccountofpotentialrisksthatmayariseinthefutureandbeingadaptabletoclimatechange.Governmentguidancehasbeendevelopedtosetoutthelinkbetweensustainabledevelopmentandriskmanagementtosupporttheimplementationofthestrategy,whichcanbefoundhere:www.defra.gov.uk/publications/files/pb13640-sdg-guidance.pdf

Proportionate, risk-based approachesItisnottechnically,economicallyorenvironmentallyfeasibletopreventallfloodingandcoastalerosionaltogether.Arisk-basedmanagementapproachtargetsresourcestothoseareaswheretheyhavegreatesteffect.Allaspectsofriskmanagement,includingthepreparationandimplementationoflocalstrategies,shouldbecarriedoutinaproportionatewaythatreflectsthesizeandcomplexityofrisk.Theassessmentofriskshouldidentifywherethehighestrisksareandthereforetheprioritiesfortakingaction.

Multiple benefitsAswellasreducingtheriskstopeopleandproperty,floodriskmanagementcanbringsignificanteconomic,environmentalandsocialbenefits.Indevelopingandimplementingfloodriskmanagementplans,weshouldhelpdeliverbroaderbenefitsbyworkingwithnaturalprocesseswherepossibleandseekingtoprovideenvironmentalbenefitasrequiredbytheHabitats,BirdsandWaterFrameworkDirective.MeasuressuchastheuseofSustainableDrainageSystems(SuDs)tomanageriskshouldbeconsideredastheycanalsodeliverbenefitsforamenity,recreation,pollutionreductionandwaterquality.

Beneficiaries should be allowed and encouraged to invest in local risk managementThebenefitsachievedwhenfloodandcoastalerosionrisksaremanagedcanbebothlocalisedandprivate,throughtheprotectionofspecificindividuals,communitiesandbusinesses.Indevelopingfloodriskmanagementplans,opportunitiestoseekalternativesourcesoffunding,ratherthanrelyingonGovernmentfunds,shouldbeconsidered.Thiswillenablemoreriskmanagementactivitytotakeplaceoverall.


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5. Measures supporting the Cumbria Local Flood Risk Management Strategy

ThissectionsetsouthowCCCwillexercisethepowersanddutiesthatwehaveasaLLFAundertheFWMAandhowwewillundertakeriskmanagementactivitiesthatwillhelptodelivertheobjectivesofthisstrategyandperformtheroleofprovidingastrategicoverviewoflocalflooding.Thesectionisin3parts:

• ThedevelopmentourSWMP,howitassessedfloodriskindetailacrossCumbriaandtheActionPlanit produced.Theimpactsofclimatechangearealsodiscussed.• ThemeasureswewilldelivertofulfilourdutiesundertheFWMAandhowpartnershipworkingiscentralto theapproach.AsummaryofLLFAdutiesundertheActisprovidedinAnnexC.• DevelopingpartnershipstodeliverthepolicyobjectivesofthisStrategyinthecontextofthewideranging requirementsoftheActandtheethosofthePittReview2008.

5.1 Risk Assessment

5.1.1 Cumbria SWMP ThismeasureservesPolicyObjectivesP1,P2,P3,P4andP5.ItdescribestheassessmentoflocalfloodriskforthepurposeofthisStrategyasrequiredbySection9(4)(g)oftheAct.

TheSWMPwasdesignedtoidentifywhichpartsofthecountyareatgreatestriskoffloodingfromsurfacewaterandtoestablishastrategytomanagethoserisksbest.AkeyoutputoftheSWMPwasanActionPlanandithasbeenincorporatedintotheActionPlanforthisStrategyasdiscussedinSection6.

Aplatformforfutureandcontinuingreviewofsurfacewaterfloodriskacrossthecountyisprovided.AnnexBcontainsasummaryofthePlan.

5.1.2 Impacts of climate change ThismeasureservesPolicyObjectivesP1,P2,P3,P4andP5.ItwillbeconsideredalongsidethefloodriskassessmentmeasuresoftheSWMPinSection5.1.1above.AreviewofthecurrentknowledgeofclimatechangeandhowitcouldaffectCumbriaisalsocontainedinAnnexB.

5.2 LLFA Duties under the Act ThesearesummarisedwithadditionaldetailsinAnnexC.

5.2.1 s.19 Flood investigations ThisLLFAdutyservesPolicyObjectivesP1,P2,P4andP5.ALLFAisrequiredtoinvestigateafloodinitsarea.

Determinationofthe’extent’offloodinvestigationisdecidedbytheLLFA.ItisnotpracticalorrealisticforCCCtocarryoutadetailedinvestigationintoeveryfloodincidentthatoccursinthecounty,buteveryincidentwithbasicdetailswillberecordedbytheLLFAandtheresultsoftheseinvestigationswillbepublished.

AprocesshasbeendevelopedbytheLLFAtoproduceandpublish3typesofreportfollowingafloodincident.ThishasbeendesignedtoincreaseknowledgeandawarenessoffloodingbothinthecommunityandacrossRMAs.TheprocessspecifiestheinvolvementofallRMAsandwhattheLLFAwilldotoachievethefollowing:

• Capturefloodinformationfromtheincident,floodmechanismsfrompreviouseventsandrelatedflooddetails remotefromthesiteviaconversationswiththoseaffectedandFloodForumsetc.• EnsurethatareportismadeavailabletotheRMAsandthoseaffected,agreedbyall;



• Ensurerecommendedactions,agreedbyall,areidentifiedandrealisticsolutionsarepursuedandmonitored toreducefuturefloodrisk;thesecommonlyincludeimprovementstohighwaydrainage,fundingbidsfor studiesandworksandliaisingwithlandownerstodevelopandimplementsolutions;• Deliverfloodinvestigationreportstothepublicinanopenandconsistentmanneracrossthecounty;• Maintaincontactwithcommunitiesthathavesufferedfloodingtoupdateinvestigationinformationandwork togethertoidentifypotentialsolutionsthroughthelocalMSfWG.

Thisprocessprovidesafirmplatformforfloodinvestigationandengagingwiththecommunitiesaffectedtodevelopflooddefenceschemesinordertoreducefuturefloodrisk.ItmirrorsaprocessalreadyestablishedbytheEAwhichcontinuestoreportonfloodincidentsfrommainriversandthecoast.

5.2.2 Recording, registering and designating structures and features that have a significant impact on flood risk ThisLLFAdutyservesPolicyObjectivesP1,P2,P4andP5.

RegistrationCumbriaLLFAhasadutytomaintainaregisteroffeaturesandstructuresthatintheopinionoftheauthorityarelikelytohavea’significant’effectonalocalfloodriskinitsarea;s.21oftheFWMA.Theregistermustbeavailabletothepublicatreasonabletimes.Thesortsofstructuresandfeaturesthatarelikelytobeincludedintheregisterincludetrashscreens,weirs,sluicegates,manmadewatercoursesetc.,whichiftheyweretofailmightcauseflooding.

CCCalsohasadutytomaintainarecordofstructuresandfeaturesthatwillcontaintheownershipdetailsofthestructuresandfeaturesintheregister.Therecorddoesnothavetobemadeavailabletothepublic.

Whenfloodingoccursasaresultofmechanismsattributedtoanyregisteredorrecordedstructureandfeature,theorganisation,individualorauthorityresponsibleforit,includingmaintenancecanbeidentified.

DesignationUnderSchedule1oftheAct,RMAshavethepowertodesignatethirdpartystructuresandfeaturesthatintheopinionoftheauthorityperformaflooddefencerole.Oncedesignatedthesestructuresandfeaturescannotbealteredorremovedwithoutthepermissionofthedesignatingauthority.Theownersofthestructureorfeaturewillbenotifiedthatithasbeendesignatedandwillhavetherighttoappeal.Thedesignatedfeatureswillalsobelistedon the register.

Asset managementContinuedmonitoringandmaintenanceoffloodriskmanagementinfrastructureisessentialtoreducetheriskofflooding.ArenewedfocusbyallRMAsonimprovingthemanagementoftheirassetsisrequiredwhilstsharingthisinformationwithotherRMAs.

CCCwillworkwithRMAstodevelopanintegrateddrainageassetmanagementstrategyforthecounty,whichwillincludetheregisterofassetsandagreementbetweenallrelevantpartnersastohowthesewillbemanaged.

5.2.3 Consenting works on ordinary watercourses ThisLLFAdutyservesPolicyObjectivesP1,P2,P3,P4andP5.

TheActhastransferredexistingpowerstoregulatetheproperfunctionofordinarywatercoursestotheLLFA.Thesepowersconsistoftwoparts:

• Thepowertogiveconsentforstructuresinthewatercourseandchangestothealignmentofthewatercourse.• Theenforcementobligationstomaintainflowinawatercourseandrepairwatercourses,bridgesandother structuresinawatercourse.


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TheEAcarryoutsimilarpowersforMainRiversandwasresponsibleforconsentingworksonOrdinaryWatercoursesbeforetheLLFA.ConsentingstartedinApril2012forCumbriaLLFA.59ordinarywatercourseflooddefenceconsentswereprovidedbytheLLFAin2012and129in2013.

5.2.4 Drainage approval and adoption of SuDS ThisLLFAdutyservesPolicyObjectivesP1,P2,P3andP5.

GovernmenthasrecentlyconsultedontheproposalscontainedwithinSchedule3oftheAct.ThisrequiresSustainableDrainageSystems(SuDS)tobeusedinnewdevelopmentsasaneffectivemeansofreducingfloodrisk.Underthecurrentproposals,drainagewillbeamaterialconsiderationforLPAsandtheLLFAwillbecomeaStatutoryConsulteeintheplanningprocess.

SuDSareameansofmanagingsurfacewaterrunoff,usingandmimickingnaturalprocesses,sothatthevolumeandflowrateofwaterfromdevelopmentsissimilartoundevelopedland.SuDSareaneffectivemeansofpreventingormitigatinglocalfloodingbymanagingtheamountofsurfacewaterrunoff.Additionally,theycanprovidewaterqualityimprovements,openspace,publicamenityandwildlifehabitatbenefits.

ThePittReviewintothesummer2007floodsproposedthattheGovernmentfindawaytoincreasetheuseofSuDS.ThelackofdefinedresponsibilityfortheadoptionofSuDSwasidentifiedasabarriertotheirdevelopmentandimplementation.

AsofFebruary2015,therelevantpartsoftheActhavenotyetbeenimplementedbutthenewarrangementsareexpectedtostartinApril2015.TheGovernmenthasconsultedonthenationalstandardsforSuDS.ThusitisnotyetfullyclearhowCumbriaLLFAwilldeliverthisrole,butCCCisadaptingandorganisingitsLFRMresourcesinpreparationfortheanticipatedduties.CCC’spositiononSuDSisasfollows:

• CumbriaLLFAwillprepareforitsroleasthedrainageStatutoryConsulteebydevelopingprotocolsforthe approvalprocessesanticipated;• CumbriaLLFAwillpublishlocalguidanceonSuDSrequirements.Adesignguidancedocumentisbeing draftedwhichincludesproposedSuDSdesignapprovalprocessestobeputinplaceoncethe StatutoryConsulteerolecommences;• CumbriaLLFAwillactivelypromoteSuDSprinciplesfornewdevelopmentstoreducefloodeventsinthe locality.• CumbriaLLFAwillcontinuetodeveloprelationshipswiththe9LPAsinthecountytofurtherunderstand theimplicationsforallpartieswhentheStatutoryConsulteerolecommences.ItwillbeessentialforeachLPA andtheLLFAtoworkcloselytogether.

5.2.5 Scrutiny ThisLLFAdutyservesPolicyObjectivesP2,P3,P4andP5.

TheActrequiresLLFAstoensurethatadequatescrutinyarrangementsareputinplace(Schedule2,s.54).Thearrangementsrequiredundersection21(2)oftheLocalGovernmentAct2000includearrangements to review and scrutinize how RMAs exercise flood risk management functions or coastal erosion risk management functions which may affect the local authority’s area. A RMA must comply with a request made by an overview and scrutiny committee for information and/or a response to a report.

Ineffect,theintentionoftheActisthatLocalAuthorityscrutinyshouldbeextendedtocoverthefullrangeoffloodriskmanagementactivitiescarriedoutwithinthelocalauthorityarea,anditprovidesscrutinycommitteeswithpowerstorequestinformationoraresponsetoaquestion,withthefurtherprovisionthatRMAsmusthaveregardtothereportsandrecommendationsoftheCommittee.

Two-tierlocalgovernmentarrangementsexistinCumbriaandtheopportunityexiststoestablishjointcommitteesofCountyandDistrictCouncillors.



ARMAmusthaveregardtoreportsandrecommendationsofanoverviewandscrutinycommitteeinthecourseofarrangementsundersubsection(2).

CCC’sLFRMactivitiesarereviewedquarterlybytheCouncil’sScrutinyBoard.ASpecialTaskGroupheldaseriesofmeetingsinSummer2013toexaminethedeliveryoffloodinvestigationreportsforcommunitiesaffectedbyfloodingin2012.

QuarterlyreportsonCumbriaLLFAperformanceofdutiesundertheActareissuedquarterlytotheJointScrutinyBoardforCommunitiesandPlacesandtheNorthWestRFCC.

5.2.6 s.14 Information sharing ThisLLFAdutyservesPolicyObjectivesP1,P2,P4andP5.

AstatedrequirementoftheActisforallRMAstoshareinformationonflooding.TheLLFAhaspowerstomonitortheresponseofindividualRMAstorequestsforsuchinformationfromotherparties.ThiswillassistallRMAsinthepredictionoffloodrisk,takeactiontoreduceitandinformthedevelopmentofflooddefenceschemes.

CumbriaLLFA,theEAandalltheRMAsalreadyshareaconsiderableamountofdataandinformationonfloodriskmanagement.ThisisessentialfortheeffectiveoperationoftheMSfWGsandakeyrequirementforensuringthatfloodriskmanagementisintegratedwithintheplanningprocessinCumbria.CumbriaLLFAhasset-upabusinesscollaborationwebsitewhereallRMAscangainaccesstolocalfloodriskinformationsuchasfloodinvestigationreports,MSfWGproceedingsandfloodenquiries.

5.2.7 s.27 Sustainable development RMAsarerequiredtoundertaketheirresponsibilitiesconsistentlywithsustainabledevelopmentprinciples.Effectiveintegrationofplanninganddevelopmentpolicy,floodriskmanagement(includingemergencyresponse)andbuildingdesignapproacheswillallowresiliencetoclimatechangetobe‘builtinto’newdevelopments.SustainabledevelopmentisoneofthesixguidingprinciplesoftheNationalFloodandCoastalErosionRiskManagementStrategyandthecoalitiongovernment’sNationalPlanningPolicyFramework.

5.3 Wider partnership working ThissectionexamineshowpartnershipsaredevelopingtodeliverallthepolicyobjectivesofthisStrategyinthecontextofthewiderangingrequirementsoftheActandtheethosofthePittReview2008.

ThereareanumberofopportunitiestobeexploredindevelopinganintegratedfloodriskmanagementservicesharedbetweenRMAs.Suchapproachesinclude:

• DevelopingacentraldatabaseofinformationdataaccessiblebyallRMAs;• ExplorationofthepotentialfordelegationofLLFAdutiestolocalRMAswithTermsofReference;• ExplorationofthepotentialforRMAstoshareresources/secondmentsbetweenauthoritiesinfloodrisk managementactivities.

ClosepartnershipworkingwithRMAsshouldhavetheobjectiveofreducinglocalfloodriskbyusinglocalresourcesandknowledge.TheLLFAwilltakethelead,butforeffectivelocalfloodriskmanagementdeliveryitwillbeessentialtousetheresourcesofRMAsplacedlocallyacrossthecounty.

ItisessentialthatRMAsworktogethertopresentachievingaseamlessLFRMserviceforthepublic.


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5.3.1 Coordinated flood risk planning and delivery Floodriskmitigationshouldbeplannedwithinalongtermcontextprovidingtransparencyofhowtheriskswillbemanagedandbywhom.Allrelevantstudiesandplansthatrelatetofloodingshouldbeconsideredandrelevantpartnersinvolvedensuringthatallriskscanbeconsidered.Adoptingthisapproach,opportunitiesformultiplebenefitscanbeidentified,forinstanceincludingamenityspaceorprovidinghabitatforwildlife.Planningfloodmanagementschemeswillincludethelocalcommunitytoensurethattheyunderstandtherisksandwhattheirrolewillbeinmanagingthem.

MSfWGsmakeasignificantcontributiontothedevelopmentofschemesandassociatedfundingbidswithintheirareas.ThesecanoriginatefromfloodinvestigationsandtheMSfWG’hotspots’list.

MeasuresdiscussedbytheMSfWGswillbroadlyfallintooneofthreecategoriestobetakenforward:

1. AstrongcaseforFCERMGiAfundingforarangeofsolutionshasbeenidentifiedandisenteredontotheEA MediumTermPlan(MTP);2. OneRMAislargelyresponsibleforresolvingthefloodingproblemandproceedstodosounderitsown investmentprogramme3. Noimmediatesolutionpathand/ornofundingforreducingfloodriskisidentified,thentheproblemremains withtheMSfWGforcontinuedconsideration.

Atamorestrategiclevel,CumbriaLLFAispromotingthedevelopmentofplanningpartnershipstocoordinatetheflooddefenceinvestmentplansoftheEA,UU,LLFAinthecontextofdevelopmentplanningledbyLPAs.ThisapproachisexaminedinmoredetailinSection5.3.2.

SeekingmultiplebenefitsthroughtheseimprovesthepotentialsuccessoffundingbidswhenconsideredbytheRFCC,DEFRAandotherfundingbodies.

5.3.2 Tackling future flood risk through the planning process Weneedtoraisetheprofileofthelongtermconsequencesofnotgivingadequateconsiderationtodevelopmentmanagementandplanning.Managingdevelopmentstoreducefuturefloodriskiscosteffective.Everydevelopmentthatisconstructedtoberesilientfromfloodingnow,isonelessdevelopmentthatwillfloodinthefuture.

PlanningauthoritieshavetoundertakeStrategicFloodRiskAssessmentsasarequirementoftheNationalPlanningPolicyFrameworktoassesstheeffectofproposeddevelopmentsonfloodrisk.Theseassessmentsshouldincludeathoroughassessmentofallfloodrisks.Howeverhistoricallytheyhaveoftenfocussedonfluvialandcoastalfloodrisksandnotadequatelydealtwithlocalflooding.

InundertakingStrategicFloodRiskAssessments,makingplanningpolicyandplanningdecisions,planningauthoritiesshouldconsultwiththeEA,theLLFAandemergencyrespondersasappropriate.

ThroughoutthedevelopmentoftheSWMPitwasparticularlyimportanttoincorporatethenineLPAs(includingtwoNationalParks).TheLPAshavebeendevelopingpreferredoptionsfortheirCoreStrategiesandLocalPlans.Floodriskistakenintoaccountwhendevelopingoptions,buttheirassessmentofriskhaspredominantlybeenreliantonEAFloodZones.TheNationalPlanningPolicyFrameworkclearlystatesthatinappropriatedevelopmentinareasatriskoffloodingshouldbeavoidedbydirectingdevelopmentawayfromareasathighestrisk,butwheredevelopmentisnecessary,makingitsafewithoutincreasingfloodriskelsewhere.RecentsurfacewatermappingandhistoricfloodinginformationavailablefromtheEAprovidesnewlayersofdataavailabletoLPAs.EachofthenineLPAshavebeenconsultedandgivenrecommendationsregardingtheirfuturedevelopmentplans.TheinformationdevelopedintheSWMPcanbeusedforfuturedevelopmentplanningandfloodriskassessments.TheSWMPActionPlan(incorporatedintotheActionPlanofthisStrategy)involvesrecommendationsforLPAsspecificto’WetAreas’.



ItwasimportanttogivetheclearmessagetotheLPAs,thatareasatriskofsurfacewaterfloodingcanoftenbemanagedwithinregeneration,allowingdevelopmenttogoahead.CCC’sPlanningObligationsPolicyoutlinestheexpectationsondeveloperstomakecontributionssecuredthroughSection106,(Town&CountryPlanningAct)Agreements.Contributionsmaybesoughttohelpensureappropriatesurfacewatermanagementisinplaceandtoensurethatthenegativeeffectsofadevelopmentaremitigatedbynecessaryfloodalleviationschemes.

However,somelocationshavedrainagesystemsthatareatcapacitywithlowinfiltrationgroundconditionsandfewoptionsformanagingtherisk.Intheselocations,largegreenspaceneedswillbesoughttobeallocatedwithintheplans(forstrategicSuDS)orareconsiderationoftheproposeddevelopmentarea.

CumbriaCountyCouncilcurrentlyrespondstoawiderangeofplanningapplicationconsultationsgenerally,includinglarge-scaledevelopmentsandLocalPlanconsultations.ThesearetheresponsibilityoftheSpatialPlanningTeamtocoordinatestrategiccorporateresponsestotheLPAsasastatutoryplanningconsulteeunderthePlanning&CompulsoryPurchaseAct2004.LocalfloodriskisamajorconsiderationfortheCountyCouncilasLLFA,butuntiltheLLFAbecomesaStatutoryConsulteeconsultationresponsesdiscussingthesemattersaremadeonanon-statutorybasis.

CCCasLLFAwillleadondevelopingthepartnershipsnecessarytofacilitateanintegratedapproachwithRMAstocapturethefollowinginformationtoinformLPAsonstrategicplanningdecisions:

• FlooddefenceinvestmentplansfromtheEA;• FlooddefenceinvestmentplansfromtheLLFA;• SurfacewaterfloodinginformationfromtheLLFA;• AssetmanagementplansanddrainagestrategiesfromUU.

Thisislikelytobeacomplexprocessgiventhedifferingorganisationalcultures,fundingmechanismsandcapitalprojectapprovalprocessesthatexistwithintheseorganisations.Howeverasharedvisionhasbeendeclaredbythemforworkingtogethertoreducefloodrisk.Itisessentialthatanyformalisedpartnershipworkinggroupsthatarisefromtheseidentifiedneedsagreetermsofreferenceandcommunicationsplans.ThisLFRMSisintendedtoprovideakeyresourceinLocalPlanmakingandusedasguidanceformakingplanningapplicationdecisions.

Availabilityofresourceswillbeakeyissuehereandvolumesofplanningapplicationsandrelatedworkwillneedtobecarefullyassessed.However,thisworkloadmaybeeasedbyadoptingamoreriskbasedandproportionateapproach,incorporatingincreasedfocusongettingstrategicpolicyrightwhichshouldreduceeffortondetailedsitebysiteplanningconsultationsandconsiderations.Muchofthislessstrategicactivityanddetailmaybeaccommodatedbydevelopingandadoptingtheprincipleof’StandingAdvice’todevelopersandotherinterestedparties.

5.3.3 Tackling existing flood risk through the planning process CloseworkingwithLPAswillbefurtherdevelopedtoinvolveplanningofficersintheMSfWGs.Thiswillseektoincreasetheawarenessofcurrentfloodingissuesbeingtackledbythegroups.Solutionstoreducefloodriskandensureexistingproblemsarenotmadeworsewillbesoughtthroughtheplanningprocess.

5.3.4 Wider catchment management Thewholecatchmentapproachseekstoslowdownwaterflowsthroughthecatchmenttoreducefloodeventsandtoalsocombatperiodsofdrought.Giventheneedsofouragricultureandtownswherecanthisbestbedone?

Uplandmoorlandsneedtoholdwaterforlonger,whichrequiresgoodsoilandvegetationmanagement.Peathabitatsarerequiredtofunctionwellwithaminimumofdrainageandcompletevegetationcover.Uplandheathlandsandgrasslandsshouldbegrazedatlevelsthatpromotesoilandvegetationprotection,interspersedwithscrubandwoodlandswhichcaninterceptandholdwaterintheuplandsystems.Rushpastures,fensandotherwetlandsneedtobeprotectedandenhanced.


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Withenhancedupland,orup-catchment,management,drainageintoourstreamswillbesloweddown;thesestreamsstillneedtobeactivelyconsideredandallowedtofloodwherepossible.Again,thesoilsofwoodlandsplantedinassociationwithsmallstreamswillholdmorewaterthanclearedland,andthereforereducerun-off.

Riverfloodplainsshouldbeabletoactasfloodplains,whereflooding,kepttoaminimumbyupstreamlandmanagement,canbeheldwithinthefloodplain,possiblyenhancedbycreationofholdingareaswhichcantemporarilyfillanddroptheirwaterovertime,andactiveriverrestorationprojectsforcanalisedwatercourses.

TheCumbriaLLFAwillworkcloselywithpartnerstoincreasethecapacityofthelandtostorewaterandslowtheflowofwaterintoriverchannelsthroughtherestorationofnaturalhabitats.WewillworktosourcefundingforrestorationofpeatlandsidentifiedasaprioritybytheCumbriaPeatPartnership.

AnumberofRiversTrusts(seeSection3.3.7)inthecountyhavebeenappointed‘CatchmentHosts’tooverseetheimplementationoftheseapproachesdrivenbythecatchmentbasedpolicyandplanningbackgrounddiscussedinSection2.3.2.Withineachcatchment,achievingWaterFrameworkDirectiveobjectivesrequiresengagementwithawiderangeofpartners.CumbriaLLFAwillworkinpartnershipwiththehostorganisations,NaturalEngland,andCatchmentOfficersfromtheEAtoembedacatchmentbasedstrategicapproachtolocalfloodriskmanagementinCumbria.

5.3.5 Communication EachRMAshouldsharedetailsoftheirroleinlocalfloodriskmanagement.Thisshouldincludethefeaturestheyhaveresponsibilityfor,detailsofroutinemaintenance,plansforimprovementworks,plansfornewfloodmanagementmeasuresandrelevantcontactdetails.

Membersofthepublicareoftenunawareofwhichriskmanagementauthoritycanrespondtoafloodingproblem.Ifthewrongauthorityiscontacted,officersfromthatauthorityareencouragedtotakethedetailsandpassthemontotheappropriateauthorityandletthecustomerknowwhoisdealingwiththematter.Inthiswaymembersofthepublicneedonlycontactoneauthority.UU,theEA,district/boroughcouncilsandtheLLFAallhaveestablishedcontactlinestoreportflooding–SeeAppendix3.Allfloodingissues,includingdetailsoffloodincidentsshouldbereportedtotheLLFAand/ortheMSfWG.

5.3.6 Cooperation AllRMAshaveadutytocooperateandshareinformationwithanotherriskmanagementauthoritythatisexercisingariskmanagementfunction,asrequiredbysections13and14oftheAct.Authoritiesmustshareinformationwhenrequestedinatimelymanner.RMAsshouldidentifyhowotherauthoritiescancooperatewiththemtoworktowardsgoodfloodriskmanagement.

5.3.7 Building trust TheGovernment’slocalismagendademonstratesthatitiscommittedtogivingcommunitiesarealsayinlocaldecisionmaking.TheNationalFloodandCoastalRiskManagementStrategyrecognisesthatfloodriskmanagementauthoritieswillhavetoworkwithcommunitiesinmanagingfloodriskbyfocusing“…ontheneedsofindividuals,communitiesandbusinesses,includingthemindecisionmakingandinthemanagementofrisk”.

5.3.8 Private land MembersofthepublicandlandownersoftenassumethattheresponsibilityformaintainingwatercoursesonoradjacenttotheirlandlieswithaRMA.Whereauthoritiesdoundertakemaintenanceonawatercourse,thisisdoneusing‘permissive’powers,notaduty.Permissivepowerisnotaresponsibilityto‘do’something.Itmustbeeconomicallysoundandaffordable.Landownersadjacenttoawatercourseareresponsibleforthemaintenanceofthatwatercourse.ThisissetoutintheEA’sguide:“LivingontheEdge”.



5.3.9 Surface water runoff from agricultural land AsdiscussedinSection2.1,manysettlementsinCumbriaarevulnerabletofloodingfromrunofffromthesteephighcatchmentsabovethem,frequentlycontainingvastareasofagriculturallandandsemi-naturalhabitat.CCCwillworkcloselywiththeNationalFarmersUnion,NaturalEnglandandlandmanagementspecialistssuchastheCumbriaPeatPartnershipandCumbriaWildlifeTrust,aswellasthelandownersthemselvestorestorehabitatsandidentifysolutionstoreducefloodrisktothesecommunities.

5.3.10 Working with communities PromotingandworkingwithFAGswillincreasetheawarenessoffloodriskwithinthecommunitiestheyserveandhowresiliencecanbeimproved.Threekeyareaswillbeaddressed:

• Informingthecommunityaboutfloodrisk;• Howthecommunitycanbenefitfromfloodwarnings;• Howthecommunitycanrecoverfromflooding.

CCC,asLLFA,willusetheirAreaSupportTeamstodeveloptheseactionswithnewandexistingFAGs.Itislikelythatmanylocalcommunitieswillidentifyotherareasofvulnerabilitysuchaspowercutsandlossoftransportlinksfollowingheavysnowfall.ThismayresultinaFAGextendingitsremitbeyondfloodingtobecomeaCommunityActionGroup(CAG).AresilienceplantemplateforcommunitieshasbeendevelopedbytheCumbriaLRF.Knownasa’10-StepPlan’,thiswillbeusedbyCAGstodeveloparesilienceplanencompassingcommunityengagement,training,emergencyresponseandreview.ACommunicationPlanwillbedevelopedforeachestablishedCAG.

CCC,asLLFA,willusetheresourcesavailablefromtheCumbriaResilienceForumtomanagethedevelopmentoftheCAGs.TheForumhasaCommunitySub-Groupwhichalreadycoordinatesresilienceactivitiesatalocallevelacrossthecounty.ActionwithCommunitiesinCumbriaandCumbriaVoluntaryServicesmakesignificantcontributionstothiswork.CumbriaCommunityMessagingwillprovideaweb-basedplatformforcommunicationlinkswiththeemergencyservicesandserveasanetworkingtoolfortheCAGs.

Aseachareaisdifferentwithdiverseresiliencerequirements,eachCAGwilldevelopa’10-StepPlan’reflectingdifferentlevelsofinvolvementfromRMAs.Somelocationsthathavenotexperiencedfloodinginrecentyearscouldbeidentifiedashighrisk,asthedevelopmentoffloodriskknowledgeheldbytheLLFAbecomesmoreextensiveandsophisticated.AlthoughthisinformationwouldjustifythedevelopmentofCAGsinthoselocations,CCCwillprioritisethoseidentifiedintheLFRMSActionPlandiscussedinSection6.


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6. Local Flood Risk Management Strategy Action Plan

TheLocalFloodRiskManagementStrategyActionPlanidentifiesaprogrammeofworkfortheLLFAalongwithpotentialsourcesoffunding.ItshouldberememberedthattheActrequiresLLFAstoinvestigatefloodingandassesslocalfloodrisk.ItprovidesnomandateforLLFAstodeliversolutionsbutrequiresthemtoworkwithpartnerstopromoteoptionsfordoingso.

6.1 How the LFRMS Action Plan has been developed

ThisstrategyhasidentifiedtwomainareasoflocalfloodriskmanagementworkfortheCumbriaLLFAinAnnexD:

•TableD.1listsFloodriskmanagementactionscoveringthewholeofCumbria;•TableD.2listsactions/measuresthatwillbeundertakenbytheLLFAandotherRMAstoreducefloodrisklocally;•TableD.3liststhoseschemesthathavesecuredaplaceontheEAMediumTermPlan,withtimelinesforimplementationandcosts;•TableD.4liststheflood‘Hotspots’byareaacrossCumbriamanagedbytheMSfWGsasatMarch2015.

6.1.1 Meeting the duties under the Act TableD.1isalistofactionsthatwillbeledbyCumbriaLLFAtomeettheobjectivesoftheActandtheLFRMSandhavecountywideimplications,ordonothavespecificlocaleffects.DutiesundertheActresultinacontinuousprogrammeofwork.

6.1.2 Wet Areas and local schemes TableD.2isalistoftheactionsthatwillbeconsideredbypartnerstoreducefloodrisklocally.ItalsoincludesareviewofWetAreasandidentifiesschemesthatcouldbeintroducedtoaddressfloodriskissuesintheseareas.ThesearetakenfromtheSWMPActionPlan,schemesarisingfromfloodingin2012-13,EAMainRiverandDistrict/BoroughCouncilcoastalschemes.Adescriptionoftheproblemsandissuesforeachfloodrisklocationisprovidedalongwithrecommendations,progressmadeandthepartnersinvolved.ThistablealsoidentifieswhichschemesfeaturedasFCERMGiAbidsplacedintheEAMediumTermPlanMarch2014.Schemeswillbeprioritisedaccordingtothefollowingcriteria:a) Floodrisk;b) Fundingavailability.

6.1.3 Flood ‘Hotspots’ AllfloodincidentsacrosstheCountyarereviewedbytheareaMSfWGs.WhenanincidentcannotberesolvedbyoneoftheRMAsrepresentedonthegroupandfurtherinvestigationisrequired,thefloodlocationisrecordedasa‘Hotspot’.DetailsoftheHotspotnumbersbyarea,theprioritisationaffordedtothemandalinktoweb-basedmappingareprovidedinTableD.4inAnnexD.

6.2 Flood risk management funding ItistheresponsibilityoftheLFRMteamoftheCumbriaLLFAtoensurethattheLFRMSActionPlanisimplemented.TeamfundingcomesfromaDEFRAgrant.Localschemesmayreceivefundingfromanyofthefollowingsources:• FCERMGiA• Locallevy• Watercompany(UUandNorthumbrianWaterLimited)• LocalEnterprisePartnership• LocalAuthority(County,District,Borough)• Thosedirectlybenefiting• Others



6.2.1 DEFRA grant TosupportthedeliveryoftheFWMA,DEFRAprovidesagranttoleadlocalfloodauthoritiesforthedurationofthecurrentspendingreviewperiod(2011/12-2014/15).CumbriaLLFAreceived£160,000in2011/12andhasreceived£339,000foreachofthefurtherthreeyearsofthespendingreviewperiod(2012/13-2014/15).Reducedfundingisbeingmadeavailablefor2015/16.

CurrentfundingisusedbyCumbriaLLFAtocarryoutthenewresponsibilitiesundertheAct(seeAnnexC).Thisincludesstaffcostsforfloodinvestigations,consentingworksonordinarywatercoursesanddeliveryoflocalschemes.

6.2.2 Flood and Coastal Erosion Risk Management Grant in Aid Governmentgrantswillnotfullyfundallschemes,localcontributionswillhavetobefoundformanyschemestoproceed.Thischangeprovidesanopportunityforlocalcommunitiestohavemoreinfluenceonhowflooddefencesaredeliveredintheircommunities.Howeveritalsomeansthatlocalcommunitiesmayhavetofindfundstocontributetofloodriskmanagementschemes.

FlooddefencesandcoastalerosionriskmanagementschemesarefundedfromagovernmentgrantcalledFlood&CoastalErosionRiskManagementGrantinAid(FCERMGiA)whichisadministeredbytheEAonbehalfofDEFRA.ThisusedtobeknownasFloodDefenceGrantinAid.Untilrecentlyschemeswouldreceivefull‘grantinaid’fundingiftheymetacertaincost-benefitratio,whileschemesthatdidnotachievethisratiowouldreceivenogrant.Underthismechanismmanyschemesneverachievedtherequiredcost-benefitratioandcouldneverbedelivered.

DEFRAchangedtheway‘grantinaid’worksinApril2012.Thenewpartnershipfundingapproachdetermineswhatproportionofthecostofaschemecanbefundedby‘grantinaid’.Someschemeswillbefullyfunded,othersonlypartlyfunded,accordingtohowmuchpublicbenefittheywillgive,forexamplebyreducingfloodrisktohomesandvitalinfrastructure.Anyshortfallintheamountof‘grantinaid’requiredtoconstructaschemewillneedtobefoundelsewhere.Thiscouldbefromalocallevy,localbusinesses,organisationsorcommunitieswhowillbenefitfrom the scheme.

Fig.5illustrateshowtheschemewillworkcomparedtothepreviousmechanism.

Figure 5. Comparison of old and new grant in aid funding mechanisms

Pre-2012arrangements

FCERMGiAFCERMGiAfunding

RFCCsdeterminetheprogrammetoalargerextentbythemchoosingwheretoinvestlocallevy.

Asthereisgreatercertainty of at least somefundingonoffer,costsavingsandother funding sources are encouraged to comeforward.

IfFCERMGiAisusedupRFCCscandecidetofundtheFCERMGiAelementofprojectssotheycanstill go ahead.

Overallfewerprojectsmayhavetobedeferred.


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Inthiswayallschemescanreceivesome‘grantinaid’solongastheycanfindthenecessarypartnershipfundstocovertherestofthecostofthescheme.Byrequiringlocalcontributionsformanyschemes,therewillbemorelocalinvolvementindetermininghowtheschemesaredeveloped.

Moredetailsaboutthe‘grantinaid’schemecanbefoundon:https://www.gov.uk/flood-and-coastal-defence-funding-submit-a-project

BidshavebeendevelopedbyCumbriaLLFAworkingwiththeEAforFCERMGiAfundingforanumberoflocalfloodriskmanagementschemesintheMarch2014submissionmadetotheNorthWestRFCC.AllofthebidssubmittedbytheEA,LLFAsandotherRMAsarepartoftheEAMTPwhichmanagesflooddefenceschemedevelopmentacrosstheregion.DEFRAfundingforschemesidentifiedintheMTPisdependentontheamountssetforflooddefenceswithineach6-YearFloodDefenceSpendingRevieworanyadditionalspendingidentifiedforsuchpurposesbytheGovernment.InclusionontheMTPdoesnotguaranteeschemefunding.ThereisstrongcompetitionfortheamountoffundingavailableforflooddefenceschemesfromtheGovernment.

CumbriaLLFAcontinuestomonitorthepotentialforasuccessfulbid,asfloodriskknowledgeofeachschemegrowsandmovestowardsinclusionontheMTP.ThefullrangeofschemeswhereabidforDEFRAfundinghasbeenmade(andthosetobemonitoredforpotentialfundingoverthenext6years)isincludedintheLFRMSActionPlaninTableD.2ofAnnexD.

InearlyFebruary2014theEAconfirmedtheoutcomeofthepreviousbiddingmadeinJune2013for2014/15.TheGovernmentannouncedthatfiveschemesofthe21proposednewschemesinthecountyhavebeensuccessfulinsecuringFCERMGiAthisyear.

CumbriaLLFAhadputforward10proposedsurfacewatermanagementschemesforFCERMGiAfunding,8ofthemforflooddefencesand2forpropertyprotection.Nonehavebeensuccessfulthistimeround.TheEAputforward11schemesinthecountytobeconsideredforFCERMGiAfunding,withfivereceivingfundingthisyear.

CumbriaLLFAhasputforward18surfacewatermanagementschemebidsinMarch2014tobeconsideredforFCERMGiAfundingin2015/16.TableD.3liststhoseschemesthathavesecuredaplaceontheMediumTermPlan,withtimelinesforimplementationandcosts.

6.2.3 Local Levy ThelocallevyisadministeredbytheNorthWestRegionRFCC.Theregion’slocallevyiscurrentlyapproximately£3.6m.CCCcurrentlymakesacontributiontothelocallevyofapproximately£300kannually.Inrecentyears,Cumbriahasreceivednearly£900kfromthelevyraisedinthenorth-west,spentlargelybytheEAonflooddefenceassetmaintenance.ThisrepresentsagoodreturnforCumbriaof200%ontheirlocallevycontribution.

ThelocallevycanbedistributedtoflooddefenceschemesatthediscretionoftheRFCC.Itisoftenusedtofundlocallyimportantschemes,whichwouldotherwisenotreceivefunding,ortoprovidepartnershipcontributionsfor‘grantinaid’funding.

14schemesfromtheEA6-yearMTPprogrammewillbeassistedintheirdevelopmentbyLocalLevyfundingfromApril2015.



6.2.4 Water company planning Watercompanyinvestmentininfrastructuretheymanagehastobeagreedbythewatercompanyregulator,Ofwat.Thisisdoneonafive-yearcyclecalledandAssetManagementPlan(AMP).WearecurrentlyinthefifthAMPperiod,AMP5,whichrunsfrom2010to2015.AMP6willbegininApril2015andrunstoMarch2020.TheworkthatwatercompaniesundertakeineachAMPperiodisoutlinedintheplantheysubmittoOfwatpriortoeachAMPperiod,thisiscalledthe‘periodicreview’.Thenextperiodicreviewsubmissionsarebeingmadethisyear.

CumbriaLLFAwillworkwithUUandNorthumbrianWaterLimited,toidentifyanyopportunitiestojointlyfundprojects,usingallavailablefundingsources,whichwillbeputforwardintotheappropriateperiodicreview.ThecontextandpotentialscopeofthisisdiscussedinSection5.3.2.

6.2.5 Local Enterprise Partnership LocalEnterprisePartnershipprovidesaccesstoEuropeanfunding,throughtheEuropeanRegionalDevelopmentFund.ThisincludestheEuropeanStructuralandInvestmentFund,potentially£5millionoverthenext5yearsforfloodriskstokeygrowthsitesacrossCumbria.Thiscouldbeintroducedthroughhardengineeringandnaturalfloodmanagement;increasingcatchmentresiliencetoclimatechange;improvingenvironmentalandbathingwaterqualityanddrinkingwatersupplytosupportothergrowthactivity.

RunninginparallelwiththeEuropeanStructuralandInvestmentFundistheStrategicEconomicPlan-a10-yearplanwhichconcentratesondeliveringgrowthanddevelopmentataCounty,nationalandinternationallevel.Fromthis,LowGrowthFundingcouldbeutilisedwherenewindustryrequiresflooddefence.

6.2.6 Other sources of funding Anysourceoffundingcanbeusedasthepartnershipcontributionwithina‘grantinaid’scheme.Thereareawiderangeofbenefitstobeachievedfromfloodriskmanagementschemes,includinghelpingtoprotectproperty,providingamenityspace,wildlifehabitatandmore.Thesecouldprovidesourcesoffundingthroughlocalinvestmentfunds,newdevelopments,habitatgrantsandfromlocallandowners,whocancontributetothecostsoffloodriskmanagement,e.g.NaturalEngland’sFarmingandForestrySchemesGrantsProgrammeandCountrysideStewardshipScheme.

CCC’sPlanningObligationsPolicyoutlinestheexpectationsondeveloperstomakecontributionssecuredthroughSection106,(Town&CountryPlanningAct)Agreements.Contributionsmaybesoughttohelpensureappropriatesurfacewatermanagementisinplaceandtoensurethatthenegativeeffectsofadevelopmentaremitigatedbynecessaryfloodalleviationschemes.


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7. Next steps

7.1 Implementing the Local Flood Risk Management Strategy Action Plan

TheLFRMSActionPlaninAnnexDwillbeupdatedannuallywithprogressonpreviousactionsnotedandnewactionsthathavebeenidentifiedadded.ThesedetailswillbemadeavailableonCCC’swebsite.

ProgressandcontinualreviewoftheLFRMSwillbestandardagendaitemsfortheCumbriaMSfWGs,WorkingGroupandCumbriaLLFAStrategicPartnershipmeetings.Inadditiontothis,CumbriaLLFAisrequiredtoreportprogressonhowitisrespondingtothedutiesundertheActeveryquartertotheRFCC.TheCommitteeisalsoconsideringformulatingfloodriskperformancemeasuresforLLFAs.

7.2 How and when the Strategy is to be reviewed ItisessentialthatthisstrategyisupdatedfrequentlytoreflecttheprogressbeingmadebytheLLFAwithitspartnersandthedevelopmentofknowledgeavailableforfloodriskmanagementinCumbria.Assuchitwillhavethestatusofa’livingdocument’,butformalconsultationandapprovalbyCCCoffuturerevisionswillbemadeevery6years.ThiswillbeprogrammedtoadequatelyreflectrevisionsofotherstatutorydocumentscloselyassociatedwiththestrategysuchastheNationalStrategyFloodandCoastalErosionRiskManagement,CatchmentFloodRiskManagementPlansandRiverBasinManagementPlans.

SWMPdevelopment:AreviewoftheCumbriaSWMPwillprecedeandinformtheformalstrategyupdate;itwillprovidethetechnicalappraisalrequired.SWMPTechnicalGuidance(DEFRA,March2010)recommendsapreparation–riskassessment–options–implementationandreviewcycle.TheSWMPisnotastandalonedocument.AsatechnicalsourceinformingthisStrategy,itwillbereviewedinthelightoftheprogressmadebytheLLFAandupdatedaccordinglytoinformthenextversionofthisStrategy.ThelatestgenerationofsurfacewatermappingnowavailableontheEAwebsitealreadyprovidesmoreaccuratedatathanthoseproducedintheSWMP.

TheCumbriaPFRAwillalsobereviewedinlinewiththerequirementsoftheFloodRiskRegulations2009in2017.

ThenextCumbriaLFRMStoreceiveformalapprovalfromCCCwillbepublishedin2021followingpublicconsultation.



Appendix 1 References

‘BePrepared!10StepstoCompleteyourCommunityEmergencyPlan’(“10StepPlan”).ActionwithCommunitiesinCumbria.2012.http://www.cumbria.gov.uk/eLibrary/Content/Internet/535/615/6488/6490/41592114556.pdf

‘CumbriaCountyCouncilPlan2014-17.’http://www.cumbria.gov.uk/councilplan/2014/

‘TheFloodRisk(CrossBorderAreas)Regulations2010.’http://www.legislation.gov.uk/uksi/2010/1102/contents/made

‘CumbriaSurfaceWaterManagementPlan.Phase3Report’.CumbriaCountyCouncil.February2013.

‘Flood&WaterManagementAct2010’.http://www.legislation.gov.uk/ukpga/2010/29/contents

‘TheHighwaysAct1980.’http://www.legislation.gov.uk/ukpga/1980/66/section/139

‘LivingOntheEdge’.EnvironmentAgency.2014.https://www.gov.uk/government/publications/riverside-ownership-rights-and-responsibilities

‘LocalFloodRiskManagementStrategy’.KentCountyCouncil.June2013.http://www.kent.gov.uk/about-the-council/strategies-and-policies/environment-waste-and-planning-policies/flooding-and-drainage-policies/kent-flood-risk-management-plan

‘NationalFloodandCoastalErosionRiskManagementStrategy,’EnvironmentAgency.2011.Ref:ISBN9780108510366,LIT5618https://www.gov.uk/government/publications/national-flood-and-coastal-erosion-risk-management-strategy-for-england

‘NationalPlanningPolicyFramework’.DepartmentforCommunitiesandLocalGovernment.March2012.https://www.gov.uk/government/publications/national-planning-policy-framework--2

‘ThePittReview2008’http://webarchive.nationalarchives.gov.uk/20100807034701/http:/archive.cabinetoffice.gov.uk/pittreview/thepittreview/final_report.html

‘PlanningObligationsPolicy’.CumbriaCountyCouncil.September2013.http://www.cumbria.gov.uk/planning-environment/spatialplanning/contributions/Policy.asp

‘APracticalGuidetotheStrategicEnvironmentalAssessmentDirective’.OfficeoftheDeputyPrimeMinister.September2005.https://www.gov.uk/government/publications/strategic-environmental-assessment-directive-guidance

‘PreliminaryFloodRiskAssessment.CumbriaCountyCouncilPreliminaryAssessmentReport’.CumbriaCountyCouncil.June2011.

‘PreliminaryFrameworktoassistthedevelopmentoftheLocalStrategyforFloodRiskManagement.ALivingDocument’.LocalGovernmentAssociation.February2011.


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Appendix 2 Glossary

ABC AllerdaleBoroughCouncilAMP AssetmanagementplanBBC BarrowBoroughCouncilCarlisleCC CarlisleCityCouncilCAG CommunityActionGroupCBC CopelandBoroughCouncilCCC CumbriaCountyCouncilCCTV ClosedCircuitTelevisionCFAG CockermouthFloodActionGroupCFMP CatchmentFloodManagementPlanDEFRA DepartmentoftheEnvironment,Food&RuralAffairsEA EnvironmentAgencyEDC EdenDistrictCouncilEPU EmergencyPlanningUnitEU EuropeanUnionFAG FloodActionGroupFCERMGiA Flood&CoastalErosionRiskManagementGrantinAidFWMA FloodandWaterManagementAct2010(“theAct”)GIS GeographicalInformationSystemKFAG KeswickFloodActionGroupLDNPA LakeDistrictNationalParkAuthorityLFRM LocalFloodRiskManagementLFRMS LocalFloodRiskManagementStrategyLLFA LeadLocalFloodAuthorityLPA LocalPlanningAuthorityMSfWG MakingSpaceforWaterGroupMTP MediumTermPlanNPPF NationalPlanningPolicyFrameworkNRD NationalReceptorDatasetOfwat OfficeofWater(WaterServicesRegulationAuthority)PAB ProjectApprovalBoardPC ParishCouncilPFRA PreliminaryFloodRiskAssessmentPLP PropertylevelprotectionRAF RoyalAirForceRFCC RegionalFloodandCoastalCommitteesRMA RiskManagementAuthoritySLDC SouthLakelandDistrictCouncilSuDS SustainableDrainageSystemSWMP SurfaceWaterManagementPlanUKCP09 UKclimatechangeprojections2009UU UnitedUtilities



Appendix 3 Useful Information

To get advice about flooding:

Floodline:tel.0845 988 1188/0345 988 1188.

Ifindanger–ring999

Prepareforafloodandgethelpduringandafterhttps://www.gov.uk/prepare-for-a-flood

To report a flood incident:

EnvironmentAgencyIncidenthotlinetel:0800 80 70 60 (24hrs),orCumbriaCountyCouncil(LocalFloodRiskManagement):[email protected],http://www.cumbria.gov.uk/planning-environment/flooding/floodriskassessment.aspTel:01228 221330

CumbriaCountyCouncil(Highways):[email protected]:0845 609 6609

CumbriaCountyCouncilNeighbourhoodForum:www.cumbria.gov.uk/sayit

UnitedUtilities:tel: 0345 672 3723NorthumbrianWaterLimited(Alstonarea): 0345 717 1100

AllerdaleBoroughCouncilinfo@Allerdale.gov.ukwww.Allerdale.gov.ukTel:01900 702 702

BarrowBoroughCouncilhttp://www.barrowbc.gov.uk/default.aspx?page=0Tel. 01229 876543

CarlisleCityCouncilwww.carlisle.gov.ukTel:01228 817200

[email protected]:0845 054 8600

EdenDistrictCouncilwww.eden.gov.ukTel: 01768 817817

[email protected] www.southlakeland.gov.ukTel:0845 050 4434


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‘BePrepared!10StepstoCompleteyourCommunityEmergencyPlan’(“10StepPlan”).ActionwithCommunitiesinCumbria.2012.http://www.cumbria.gov.uk/eLibrary/Content/Internet/535/615/6488/6490/41592114556.pdf

‘LivingOntheEdge’.EnvironmentAgency.2014.https://www.gov.uk/government/publications/riverside-ownership-rights-and-responsibilities

‘CumbriaSurfaceWaterManagementPlan.Phase3Report’.CumbriaCountyCouncil.February2013.


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CCCJ/N.20599

Local Flood Risk ManagementEnvironment and Community ServicesCumbria County CouncilParkhouse BuildingKingmoor Business ParkCarlisle CA6 4SJTel: 01228 [email protected]

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