1
The National Strategy for
Flood and Coastal Erosion
Risk Management in Wales
October 2020
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
2
Contents
Ministerial Foreword 3
1 Introduction 4
Purpose of the National Strategy
Strategic and Legislative Context
Progress since the publication of the first National Strategy
Looking ahead – what next for flood risk management in Wales
2 National Strategy Objectives and Measures 11
3 Flood and Coastal Erosion Risk 12
Types of flooding and coastal erosion
Risk and Likelihood
Climate Change Adaptation
Impacts
4 Roles and Responsibilities 17
Welsh Risk Management Authorities
Organisations
Groups and Committees
5 Flood and Coastal Erosion Risk Management 25
Objective A: Improving our understanding
and communication of risk 25
Flood and coastal risk information and mapping
Flood Risk Management Plans
Shoreline Management Plans
Coastal monitoring
Objective B: Preparedness and Building Resilience 30
Community resilience and behaviours
Awareness Raising
Objective C: Prioritising investment to the most
at risk communities 33
Natural Flood Management
Green-grey infrastructure
Objective D: Preventing more people becoming
exposed to risk 39
Managing development risk
Coastal adaptation
Asset maintenance
Objective E: Providing an effective and sustained response 44
Emergency Response
Review of flood events
6 Funding Flood and Coastal Erosion
Risk Management 46
Funding and budgets for FCERM
Future funding and longer-term programme pipelines
Prioritisation
Wider benefits and partnership funding contributions
Monitoring and Reporting of this National Strategy
Summary of Measures 52
Glossary/Definitions 55
© Crown copyright 2020 WG40996 Digital ISBN 978-1-80082-342-6 Print ISBN 978-1-80082-341-9
Mae’r ddogfen ymahefyd ar gael yn Gymraeg / This document is also available in Welsh.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
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Ministerial Foreword
Flood and Coastal Erosion
Risk Management (FCERM)
in Wales amounts to far
more than the building
of defences. Our risk
management approach
encourages wider
resilience, prevention
and awareness, so better
decisions can be made,
by the public and those
who have an influence
on development and the
environment.
The storm events of 2020
have emphasised the need
to reinforce our strategic
priorities for flood prevention, resilienceand climate adaptation.
I witnessed first-hand the devastation flooding can bring to
communities and the impact it has had on our infrastructure
and economy. However, I also saw how resilient and generous
people can be, and the way in which neighbours, businesses,
Local Authorities and responders worked together during the
response and recovery. Our network of flood assets again
showed their worth by protecting tens of thousands of homes
from flooding.
We are learning lessons from those floods. They have helped
strengthen this new Strategy and the Welsh Government’s
resolve to do more.
This Government wants to leave a legacy for future generations
in Wales, placing management of water at the heart of decision
making whilst planning effectively for the rising challenge of
climate change, and reducing the risk to life.
Wales is encouraging better provision of information, more
natural flood management schemes and greater collaboration
in this new Strategy to further reduce risk and create better,
more sustainable schemes which deliver wider wellbeing
benefits. Improving access to clear, accurate flood and coastal
information will help us all to make better, more informed
decisions and maximise the impact of our investment.
We are promoting wider catchment approaches to managing
risk, cross-border and multi-agency working, and the sharing
of ideas. To help do this, we need clarity on roles and
responsibilities. This not only helps our Risk Management
Authorities but also the public in understanding who does
what and their own role in staying safe and building resilience.
Ofcourse, it is not possible to remove all risk; however, we can
agree ways to manage it and help reduce its impact.
Climate change will bring rising sea levels and more intense
storms. Wales faces tough decisions on how to defend low-lying
coastal areas and fluvial floodplains, in particular along estuaries
and in our steep-sided valleys. We can reduce risk to existing
homes but we need to ensure poor development decisions are
not made now which put more people at risk in the future.
This Strategy strengthens our stance on prevention and links
with new Welsh legislation and other policy areas to ensure
we do not store up problems for future generations. Our new
direction on sustainable drainage and revised planning policy
help to complement this Strategy and ensure a consistent
national approach to the management of land and water.
Assuch, the Strategy has been prepared alongside new flood
risk data and updated planning policy in Technical Advice
Note (TAN) 15. This will ensure our flood, coastal and planning
policies align, taking into account better information to avoid
inappropriate development and provide clear advice in the
new Wales Flood Map.
This Government has boosted investment through the
introduction of the Coastal Risk Management Programme
and more flexible funding to support delivery. This makes
it all the more important to work with our communities to
tailor alleviation projects to each location, then monitor their
effectiveness and communicate how risk is being managed,
sothe public can remain involved and benefit from safer places.
This transparency not only builds trust and maximises benefits
from investment, it will also foster a collective responsibility to
ensure we all play our part in helping reducerisk.
Lesley Griffiths MS
Minister for Environment, Energy and Rural Affairs
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
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Introduction
1. Across Wales over 245,000 properties are at risk of
flooding from rivers, the sea and surface water
1
with almost
400 properties also at risk from coastal erosion
2
As the
climate changes we can expect those risks to increase,
with more frequent and severe floods, rising sea levels and
faster rates of erosion of the coast. This is likely to mean
more communities will be affected by flooding and coastal
erosion, including some that are not currently considered
to be at risk.
2. Managing the risk from flooding and coastal erosion is a
priority for the Welsh Government. Our Programme for
Government: Taking Wales Forward commits to continuing
investment in flood defence work, with over 45,000
properties benefitting between 2016 and 2021.
3. However, Flood and Coastal Erosion Risk Management
(FCERM) in Wales amounts to far more than the building
of defences. Our risk management approach encourages
wider resilience, prevention and awareness of risk so that
better decisions can be made, both by the public and those
with an influence on how land and water is managed.
4. This new Strategy further strengthens our policies on
communication, catchment approaches, collaborative
working and forward planning. It complements new
legislation to not only reduce present risk but also prevent
issues for future generations through informed, place-
based decisions. Recentimprovements to asset data
and mapping, alongside new guidance on natural flood
management and investment are helping to make this
possible and more widely understood by the public and
those responsible for delivery.
5. Climate change will bring significant challenges. Difficult
decisions will need to be made as to where investment
is directed and how we adapt. We are committed to
finding better ways of managing water across catchments,
working with communities and maintaining our existing
infrastructure so it remains resilient.
6 Since the last National Strategy in 2011, £600 million
3
has
been invested across Wales, reducing risk to communities.
In that time we have also seen major flooding events
including widespread coastal flooding in 2013/14 and river
flooding in 2020. Weknow through investigation reports
that the assets in place protected many more homes
from flooding in each of these events demonstrating the
importance of continued investment. TheWales Coastal
Review (2014) estimated that our network of assets and
defences prevented £3 billion of damages in the coastal
storms of December 2013 and January 2014
4
.
1 Flood Risk Assessment Wales, NRW (2019).
2 National Coastal Erosion Risk Map (2012); most likely scenario under SMP policies over next 100 years.
3 Welsh Government Capital and Revenue investment, including ERDF and CRMP, 2012/13 to 2020/21
4 Wales Coastal Flooding Review Phase 1 Report – naturalresourceswales.gov.uk/media/1936/wales-coastal-flooding-review-phase-1.pdf
5 www.legislation.gov.uk/anaw/2016/3/contents/enacted
6 www.audit.wales/node/3952
7 www.assembly.wales/laid%20documents/cr-ld11073/cr-ld11073-e.pdf
8 naturalresources.wales/evidence-and-data/research-and-reports/reports-evidence-and-data-on-flooding/wales-coastal-flooding-review-delivery-plan-phase-2-recommendations/
7. The Strategy is being launched in uncertain times as we
respond to major flooding events as well as COVID-19.
Thereare likely to be increasing pressure on budgets as we
help our nation to recover. As such, we need to maximise and
communicate the benefits of our investment, ensure value for
money and have others take responsibility and play their part
in helping reduce risk.
Purpose of the National Strategy
8. This is the second National Strategy on Flood and Coastal
Erosion Risk Management (FCERM) for Wales, replacing
the 2011 Strategy. It is prepared under the terms of the
Flood and Water Management Act 2010.
9. This Strategy sets out how we intend to manage the risks
from flooding and coastal erosion across Wales. It sets
objectives and measures for all partners to work towards
over the life of this document, which will be 10 years unless
significant policy updates are required prior to that time.
10. Whilst measures are designed to be clear and deliverable
over the next decade, the Strategy has been drafted with a
longer-term, strategic view, recognising the nature of flood
and coastal erosion risk with respect to the challenges of
climate change. In this way, it will work alongside other
strategic plans for shoreline management, infrastructure
and planning to set out the direction we want to take.
11. Since the first National Strategy was published,
legislationhas been passed which affects the way we
work. The Well-being of Future Generations (Wales) Act
2015 and Planning (Wales) Act2015 encourage partnership
working, collaboration and a long term approach. The
Environment (Wales) Act 2016
5
introduced the sustainable
management of natural resources approach and duties to
enhance biodiversity, and reduce carbon emissions. It also
provided powers to establish a new Flood and Coastal
Erosion Committee, which was set up in2019.
12. In addition, we have taken into account recommendations
made by the Wales Audit Office (WAO) in its 2016 report
on Coastal Flood and Erosion Risk Management in Wales
6
,
thePublic Accounts Committee’s 2017 report on Coastal
flood and erosion risk management in Wales
7
, as well as
the 2014 Wales Coastal Flooding Review
8
. These reports
provided positive recommendations for the development
of coastal risk management in Wales.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
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13. Key changes to this National Strategy include the
clarification of roles and responsibilities around flood and
coastal erosion, the promotion of natural measures and
catchment approaches, new objectives on improving our
understanding and preventing exposure to risk, highlighting
the importance of good information and effective planning,
and direction on how our investment is prioritised,
supported by new FCERM Business Case Guidance.
14. The Strategy has been developed in light of the Welsh
Government’s Natural Resources Policy
9
and gives support
to Natural Flood Management (NFM), where appropriate.
NFM is also sometimes referred to as nature based
solutions; however the NFM term is more widely used in
flood risk management.
15. Local Flood Risk Management Strategies are a requirement
of the Flood and Water Management Act
10
and must be
consistent with this National Strategy. Local Flood Risk
Management Strategies in Wales should be reviewed to
align with this document’s objectives, measures and related
policies and legislation.
Strategic and Legislative Context
16. The Flood and Water Management Act 2010 sets out
how Welsh Ministers must develop, maintain and apply a
National FCERM Strategy. Further to this, the EU Floods
Directive (2007) and Flood Risk Regulations (2009) set out
how Member States must report on certain aspects of flood
risk management, inparticular identifying and addressing
areas of high risk.
17. ‘Taking Wales Forward’ sets out the programme for
Government i.e. what the Welsh Government will deliver
during this term of Government
11
. In that document there is a
commitment to ‘continue to invest in flood defence work’.
18. ‘Prosperity for All: the national strategy’ sets out how the
Welsh Government, will deliver for Wales, setting long term
commitments in terms of four themes: Prosperous and
Secure, Healthy and Active, Ambitious and Learning, and
United and Connected. It has a strong focus on building
economic resilience and taking actions to address the
effects of climate change. The strategy states the Welsh
Government will: actively manage the risks that climate
change presents to health, well-being and to communities’.
19. Flood and Coastal Erosion Risk Management (FCERM)
helps deliver against the national strategy’s priority themes
and underlying priority areas as follows:
9 gov.wales/docs/desh/publications/170821-natural-resources-policy-en.PDF
10 Flood and Water Management Act 2010, Section 10, Local flood risk management strategies: Wales
11 Current Government term is 2016-21
Figure 1: FCERM links to priority themes in
‘Prosperity for all: the national strategy’
Figure 2: Links to priority areas in
‘Prosperity for all: the national strategy’
20. FCERM is well placed to provide effective infrastructure and
land management which brings wider wellbeing benefits.
Thiswill help make communities a safer, more resilient
environment whilst reducing mental health issues. We are
also investing in longer term coastal adaptation and wider
catchment schemes to lessen the impact of climate change
oncommunities
Prosperous
and Secure
FCERM supports the economy by improving
resilience of people, businesses and transport
by reducing the likelihood and consequences
of flooding and coastal erosion.
Healthy
and Active
The reduction of flood risk through alleviation
schemes can promote more healthy and active
communities. Raising awareness and community
engagement can improve the mental health
of those at risk and ultimately aims to prevent
loss of life. The development of a flood risk
management scheme can also provide wider
benefits such as footpaths and cycle lanes.
United and
Connected
FCERM schemes are designed to reduce
the consequences from flooding and
coastal erosion resulting in more resilient,
well connected communities.
Housing Good quality, affordable housing is acknowledged
as the bedrock of living well; FCERM activity
supports this by prioritising funding to
communities most at risk. The Welsh Government
has also worked with the insurance industry on
affordable insurance for high risk households
and is contributing to a project to improve
standards for Property Flood Resilience,
making homes more resilient to flooding.
New homes should be planned consistent
with Planning Policy Wales and TAN 15,
utilising the latest flood and coastal information
to avoid inappropriate development or
increasing the flood risk elsewhere.
Mental
Health
The link between flood risk and mental
health is well established. Providing services
that raise awareness of flood risk, providing
flood warnings, and information on what to
do before, during and after a flood are key
to the delivery of the FCERM objective of ‘
preparedness and building resilience’ and helps
reduce anxiety associated with flooding.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
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21. The Well-being of Future Generations Act defines the
well-being goals, which set a shared vision for public
bodies in Wales to work towards. By working with natural
processes and identifying opportunities for Natural
Flood Management (NFM) to reduce flood risk, public
bodies are: contributing to the well-being goals through
the Sustainable Management of Natural Resources
12
,
maintaining and enhancing biodiversity
13
, and delivering our
Natural Resources Policy
14
priorities.
22. We encourage RMAs to embrace the 5 ways of working in
the management of flood and coastal erosion risk which
consider the long term climate change predictions to
prevent risk getting worse, taking a collaborative approach
which involves others in the delivery and success of
interventions. Given the need to make best use of
resource, we acknowledge the importance of integration
and regional working which can aid delivery of core
functions, and further encourage catchment approaches
bringing benefits now and for future generations Figure 3
provides further examples of how FCERM contributes to
the Wellbeing of Future Generations Act (2015).
Figure 3: FCERM links to Wellbeing of
Future Generation Goals
12 Part 1 of Environment (Wales) Act
13 Section 6 Environment (Wales) Act
14 The NRP sets three national priorities for the management of our natural resources:
• Delivering nature-based solutions;
• Increasing renewable energy and resource efficiency; and,
• Taking a place-based approach.
23. Many powers and duties regarding the management of
floods and erosion are captured in legislation such as
the Land Drainage Act, Water Resources Act and Coastal
Protection Act. The Flood and Water Management Act 2010
clarified some powers and responsibilities but there may
still be a need to do more to help the public to understand
who does what, as well as their own responsibilities. 
A Prosperous Wales Building resilience and reducing risk to people and places, help the economy and sustain long term
employment. Construction of flood schemes creates jobs and safer places to work and invest.
A Resilient Wales A key objective of this Strategy is to build resilience in our communities and deliver sustainable,
saferplaces, helping mitigate the impacts from climate change. Schemes also provide an opportunity
for wider benefits such as biodiversity enhancements improving ecosystem resilience.
A Healthier Wales Sharing information on risk and what to do before, during and after a flood, together with the real reduction
in risk to homes, helps to improve mental well-being. Schemes can help create more attractive and safe
communities to live and work in and provide wider health benefits such as recreation and amenity
improvements.
A More Equal Wales Funding is prioritised based on level of risk on an all Wales basis thereby removing regional inequality.
We also support initiatives to give those at highest flood risk access to affordable insurance.
A Wales of Cohesive
Communities
Reducing flood and coastal erosion risk helps to create attractive and safe communities to live,
work and travel through. Closer working with communities to discuss risk and collaborate on
alleviation schemes also helps bring people together and take greater collective responsibility.
A Wales of vibrant
culture and thriving
Welsh language
A society that promotes and protects culture, heritage and the Welsh language, and which encourages
people to participate in the arts, and sports and recreation.
A Globally
Responsible Wales
Supporting sustainable approaches such as Natural Flood Management and hybrid schemes to help
reduce flood and coastal erosion risk.
WELL-BEING
GOALS
NODAU
LLESIANT
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West Rhyl Coastal Defence Scheme
West Rhyl is in a low lying area of the town at risk from
flooding from both the sea and the adjacent river estuary.
Between August 2011 and July 2015, Denbighshire County
Council completed the West Rhyl Coastal Defence Scheme
to reduce the risk of flooding to over 2,700 properties. The
scheme cost £15.7 million to complete with £4.7 million from
the European Regional Development Fund and £520,000
from Denbighshire County Council.
Progress since the publication of
the first National Strategy
24. Flood and Coastal Erosion Risk Management (FCERM)
has evolved since the first National Strategy which
was published 9 years ago. We want to build on those
improvements, but also allow the changes made since
the first Strategy to stabilise and for their effects to be
monitored.
25. Over the life of the current Government term (between
2016 and 2021) we have invested over £390 million capital
and revenue in flood and coastal schemes and essential
maintenance , benefitting over 45,000 properties. The
funding has been prioritised for communities at greatest
risk using new methodology and data from all sources
of flooding.
26. In support of the FCERM and Coastal Risk Management
Programmes, an advisory board has been set up to aid
decision making and share best practice.
27. We have developed a National Programme of Investment
for FCERM. This provides a consistent approach to
prioritising flood schemes to those communities most at
risk, ensuringwe are targeting the right places. This meets
an objective in the outgoing Strategy and also Wales
Coastal Flooding Review
15
recommendations. This work
included enhancing the Communities at Risk Register
16
to
include risk from surface water (pluvial) flooding so that all
sources could be considered.
15 naturalresources.wales/evidence-and-data/research-and-reports/reports-evidence-and-data-on-flooding/wales-coastal-flooding-review-delivery-plan-phase-2-
recommendations/
16 Available from NRW
28. A National Asset Database has been initiated which will
provide, for the first time, a complete overview of asset
ownership and condition across Wales.
29. Further mapping improvements are being introduced in
2020 with the new Flood Risk Assessment Wales (FRAW).
Thisis helping improve our understanding of risk and,
togetherwith the improved asset data, gives a much more
realistic estimation of true flood risk from all sources.
30. Since the first National Strategy, our understanding
of coastal risk has improved significantly. The Coastal
Groups were tasked with preparing the second iteration
of Shoreline Management Plans (SMPs), agreed in 2014.
RMAs are working on the actions arising and their policies
have been informing development decisions, other plans
and strategies.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
8
31. Our SMPs will be complemented by coastal adaptation
guidance. A challenge going forward is considering coastal
erosion as part of a wider process of coastal change in
combination with rising sea levels and increasingly frequent
storm events.
32 In order to support Coastal Local Authorities deliver
schemes in line with the SMPs, the Welsh Government
developed a £150 million Coastal Risk Management
Programme, with construction commencing from 2019.
33. The storms of 2013-14 led to the Wales Coastal Flooding
Review, making 47 recommendations. Whilst NRW
published a Closure Report in 2017, we expect all RMAs
to continue their collaborative work in implementing
recommendations and strengthening our knowledge and
resilience around flood and coastal risk.
34. In 2018, the Welsh Government supported the re-
establishment of a Wales Coastal Monitoring Centre
(WCMC). Conwy, Gwynedd, the Vale of Glamorgan Councils
and Welsh Local Government Association (WLGA) take a
collective lead, assisting all coastal RMAs by managing and
sharing relevant data on coastal processes.
35. An update to the Wales Flood Response Framework
17
was
published by the Welsh Government and Wales Flood Group
in 2016. This assists those who participate in, and support,
theresponse to flooding and those communities affected.
17 gov.wales/sites/default/files/publications/2019-06/wales-flood-response-framework.pdf
36. The Welsh Government have provided emergency
fundingand support across Wales, notably over £7 million
after the 2013/14 storms and £4.4 million (to date) in
response to the February 2020 flooding, to repair assets,
support RMAs and re-build our resilience. Additional
support was also provided in 2020 direct to those
homeowners and businesses who suffered flooding.
37. In response to calls from Local Authorities for additional
support on maintenance and low-cost risk alleviation, a
new Small Scale Works Grant was introduced in 2016/17.
A review of this fund found it offered excellent benefits and
value for money. Some of these schemes have already
worked to prevent flooding or alert officials to take pre-
emptive action.
38. European funding for flood risk management schemes
came to a close in June 2015. The report on this
programme of work showed that it had surpassed its target
of benefitting 2,700 properties by reducing risk to 8,800
homes and businesses across Wales.
Rockfield Estate, Monmouthshire
– Small Scale Works Grant
Through the Small Scale Works Grant 2018/19,
Monmouthshire County Council accessed funding to deal
with a surface water flooding issue around the Rockfield
Estate in Monmouth. Flooding had occurred as a result of
blockages to the main trash screen over a culvert.
The works involved installing two new trash screens to
collect small debris before it gets to the larger trash screen
downstream.
This scheme has reduced the likelihood of at least 5
properties being flooded.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
9
Looking ahead – what next for flood risk
management in Wales
39. In line with the Natural Resources Policy we recognise the
role of nature based solutions in providing cost effective
and efficient interventions to challenges such as flooding
and the risks posed by climate change.
40. Close working between RMAs will remain vital. We will
encourage collaborative working rather than single RMAs
focusing on defence-orientated work. In particular, we want
to see more catchment approaches to managing water and
introducing Natural Flood Management (NFM) and hybrid
schemes where appropriate.
41. Options for regional working are being progressed by
WLGA following their report completed in July 2018
18
, and
we look forward to understanding the benefits this may
bring to flood and coastal erosion risk management.
42. Partnership funding contributions will become more
important as we look to integrate flood schemes with other
infrastructure and environmental projects to bring multiple
benefits and seek sustainable, better value interventions.
43. In alleviating risk there will still be a place for hard defences.
However this will be complemented by Natural Flood
Management (NFM), natural measures, hybrid schemes
and green infrastructure, which have worked well in places
like Swansea, Colwyn Bay, Pontarddulais and Borth.
18 www.wlga.wales/SharedFiles/Download.aspx?pageid=62&mid=665&fileid=2042
19 New Business Case Guidance for FCERM projects will be published alongside this Strategy on the Welsh Government’s flood pages.
44. We will develop our learning around the use of NFM and
further encourage its use by providing funding support for
its delivery and ongoing monitoring, including 100% grant
funding for a trial period commencing 2020/21.
45. In the context of UK’s exit from the EU, we want to
maintain standards and continue sharing best practice and
innovation with Europe. Brexit could provide opportunities
in terms of shaping legislation to the needs of Wales for
better flood risk management in the future.
46. Continued improvement through mapping of risk and
understanding the effect of our FCERM assets will help
direct funding to those who need it most.
47. Climate change is increasing the risk (frequency and
consequence) of flooding from all sources and we will
explore how RMAs can help communities adapt to this risk
and build resilience to flood events.
48. The Welsh Government’s flood and coastal programmes
are well placed to deliver wider wellbeing benefits through
economic gain as well as social and environmental
improvements. The new FCERM Business Case
Guidance
19
encourages inclusion of those wider
benefits in business cases for schemes. Seeking out and
including such benefits alongside the reduction of risk,
can demonstrate the true value of our flood and coastal
programmes.
Pontarddulais Flood Alleviation Scheme
The town of Pontarddulais has witnessed flooding on
numerous occasions from the River Dulais, most recently
in 2003, 2005 and 2008. NRW led on a £6.1m scheme
to construct a flood storage area upstream to hold water
back and prevent the town from flooding. Completed
in 2019, the scheme reduces the risk of flooding to 224
homes and 22 businesses. As well as benefitting property,
thisscheme was designed to provide ecological benefits
including the creation of a wetland area and planting of
over 3,000 trees and shrubs.
The scheme is a good example of alleviating flood risk
upstream and providing additional benefits without
impacting on the character of a town.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
10
49. We will develop a stronger pipeline of flood and coastal
schemes with our RMAs. We are trialling full 100% grant
support for all preparatory work towards schemes in
2020/21 to accelerate delivery and highlight where funding
is required. This will help to make a greater case for long
term funding settlements, such as that received from 2017
to 2021, and allow us to plan ahead with more certainty.
50. The new Flood and Coastal Erosion Committee (FCEC)
will advise on strategy, highlight best practice and provide
support to Government and the RMAs.
51. The new Wales Coastal Monitoring Centre (WCMC) will
continue to establish itself after commencing in 2019/20,
providing RMAs with consistent and reliable data and
helping toraise awareness of coastal processes and
climate change.
52. We will work ever more closely with our communities,
including engagement with young people and schools.
We will involve them in decisions that are made about
managing risk and provide better information on all aspects
of flooding and erosion, as well as the assets which protect
then guidance on what to do before (preparation), during
(response) and after (recovering from) a flood.
53. We will work with colleagues developing the
Environmental Growth Plan for Wales to maximise its
impact on flood alleviation and tackling coastal erosion.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
11
National Strategy
Objectives and Measures
54. The Flood and Water Management Act requires this
National Strategy to specify the objectives for managing
flood and coastal erosion risk and the measures proposed
to achievethem.
55. We set out an aim and 5 objectives in this Strategy.
Theycomplement each other and overlap but, collectively,
areintended to reduce risk to life.
56. The aim of this National Strategy is to reduce the risks
to people and communities from flooding and coastal
erosion.
57. We will do this through coordinated and prioritised
activities which align with the sustainable management
of our environment and further our understanding of risk,
recognisingthe challenges of climate change.
It will be delivered through 5 objectives, focusing the
activities of RMAs:
Figure 4: National Strategy Aim and Objectives
58. The Strategy includes new objectives on:
• Improving our understanding of risk: emphasising the
importance of accurate information to help decision-making
and inform the public. This highlights the importance of
research, monitoring and investigations, modelling and
mapping, and sharing this information effectively so that
others can also make informed decisions.
• Preventing exposure to risk: recognising the importance
of using flood data and aligning with planning policy to
inform better development and infrastructure decisions,
not locating people into high risk areas and avoiding the
build up of future problems which will require difficult and
expensive solutions to resolve.
59. The measures described in this National Strategy will help
to deliver the objectives and reduce the present and future
riskfor people, homes and businesses from flooding and
coastal erosion.
60. The measures for this Strategy are found within the text in
the following chapters, and all together in Chapter 6 at the
end of this document for ease of reference.
Reduce the risk to people and communities from flooding and coastal erosion.
A. Improving our understanding and communication of risk
B. Preparedness and building resilience
C. Prioritising investment to the most at risk communities
D. Preventing more people becoming exposed to risk
E. Providing an eective and sustained response to events
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
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Types of flooding and coastal erosion
61. The term ‘flood and coastal erosion risk’ covers all flooding
from rivers, the sea, reservoirs, ordinary watercourses,
groundwater and surface water, as well as coastal
erosion.
62. Flood is defined within the Flood and Water Management
Act 2010 as “any case where land not normally covered by
water becomes covered by water”, but excludes flooding
from sewage and burst water mains.
63. Surface water flooding (pluvial) happens when rainfall
saturates the ground and drainage systems and excess
water cannot drain away. Whilst more common in urban
areas, italso affects rural communities, hitting transport,
agricultureand the local economy. It can occur at any time
of year: whilst winter sees more rain coming from Atlantic
weather systems, thesummer months bring an increased
risk of flash flooding.
Flood and Coastal Erosion Risk
River Elwy, St Asaph, Denbighshire
Over 300 properties in St Asaph were flooded in November
2012 when the river Elwy overtopped its banks following a
long period of rain across north Wales, which saw widespread
flooding across the region.
A review of the existing flood defences in St Asaph resulted in
work to upgrade the defences and replace an existing bridge
with a higher, wider structure.
This £6 million project, led by NRW, was completed in 2019,
reducing flood risk to over 600 properties and providing
amenity benefits along the river.
The scheme performed well in 2020 when Storm Ciara generated
the biggest flood event on the River Elwy since records began in
1974, limiting the number of properties affected to less than 10.
Garth, Maesteg – surface water flooding
On 20th November 2016, communities in the Bridgend
County Borough Council area experienced heavy rainfall,
resulting in flooding across the county. The extreme rainfall in
combination with blocked culverts, overloaded systems, and
run-off from adjacent land resulted in 44 properties suffering
internal flooding.
Debris, such as fly-tipping, stones, gravel, and vegetation,
was washed downstream in the flood water, becoming lodged
against the culvert grids, blocking the culvert. Following this
flood event, the Local Authority has worked with landowners
to reduce debris in and around the watercourses to avoid
culverts becoming blocked. Flood sensors have also been
introduced to provide early warnings of potential blockages.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
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64. Coastal or sea flooding usually occurs when high tides
combine with severe weather resulting in coastal or
estuarine communities being flooded. A combination
of significantly high tides, high on-shore winds and low
atmospheric pressure can result in increase in tide level
known as storm surge.
65. River flooding (fluvial) tends to follow sustained rainfall
resulting in high river levels and river banks being
breached, ordefences overtopped.
66. When some of these occur together, we call this a
combination flood event.
67. Reservoirs present a flood risk to communities; however
that risk is well managed in line with the requirements of
the Reservoirs Act, meaning that the likelihood of a flood
from a reservoir in Wales is very low.
68. Sewer flooding is not directly addressed within this strategy
as it is the responsibility of the water and sewerage
companies. However, we recognise the impacts and
consequences sewer flooding can have.
69. Coastal erosion is defined as the wearing away of land
by wave action, tidal currents, wave currents, drainage,
weatheringor high winds. While some parts of the coast
are eroding, others are accreting and we need to better
understand these interactions to ensure our interventions
areappropriate.
70. Due to its coastal geology, the rate of coastal erosion in
Wales is generally low compared to some parts of England.
However, evidence from the SMPs suggests that over the
next 100 years we will see an increase in number of coastal
communities at risk from rising sea levels and erosion.
71. Natural habitats such as sand dunes, intertidal areas such
as beaches or salt marsh, and cliffs provide a natural barrier
to erosion around the coast. Coastal erosion can change
the width, height, position or slope of these natural habitats,
orundermine existing coastal defences, which can result in
coastal flooding.
20 Joint Research Programme project – Joint probability of waves and sea levels
Risk and Likelihood
72. When considering the risk associated with flooding and
coastal erosion, the term ‘risk’ encompasses two aspects:
• The likelihood of an event happening, and
• The impact that will result if flooding or coastal erosion
occurs
73 It is not possible to stop all flooding or coastal erosion;
these are natural processes and in some locations it may
be more sustainable to allow nature to take its course.
However when people, communities and businesses
are threatened we can manage the risk by reducing the
likelihood of an event and its associated impacts and
consequences.
74. Both the likelihood and impact of flooding and coastal
erosion are anticipated to increase over time due to factors
such as climate change and a growing population putting
pressure on Local Authorities for housing development.
75. The likelihood of flooding depends on a number of factors,
including weather patterns, geology, topography and land
use. A long period of heavy rainfall for example is likely to
result in higher river levels, increased run-off and/or over
saturation of soils which all increase the likelihood of a
flood.
76. The likelihood of coastal erosion and the rate at which it
occurs also depends on a number of factors, including the
prevailing sea conditions, the frequency and severity of
coastal storm events, the presence of defences and the
coastal geology, topography and environment.
77. Our understanding of the risks of flood and coastal erosion
is improving as more research is undertaken. Research
projects such as that into the joint probability of waves
and sea levels
20
, as well as data collected by the WCMC
will further improve our understanding of the risks to our
coastal communities.
78. Information on flood risk from all sources is available on
NRWs website through the Flood Risk Assessment Wales
(FRAW) data and maps.
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14
Climate Change Adaptation
79. The Senedd was the first Parliament in the world to declare
a climate emergency. We have now strengthened the
Welsh Government’s response to the climate emergency
by publishing a new 5-year climate change adaptation
plan entitled Prosperity for All: A Climate Conscious Wales
21
.
80. Wales is already experiencing adverse impacts from
climate change such as sea level rise, flooding and
heatwaves. Theevidence is clear that events similar to the
2020 storms are becoming more common.
81. Research
22
by the Met Office has indicated that there is an
increased chance that Wales will see higher sea levels and
increased storminess, an increase in intense rainfall events
and more frequent flooding.
82. The UK Climate Change Risk Assessment
23
published
in 2017, highlighted increases in instances of coastal
and inland flooding, affecting people, property and
infrastructure in Wales. Climate projections from 2018
indicate sea level rise of between 28cm and 62cm for
Cardiff under a medium emissions scenario by 2080
24
.
83. The implications of climate change and sea level rise
are wide ranging and will affect all aspects of society,
includingsocial, economic, cultural, environmental and
healthsectors.
84. Climate change is considered in our mapping and
modelling, using the UK Climate Projection (UKCP) figures.
Guidance and advice on the use of these figures for RMAs
is issued and available by the Welsh Government and
NRW. Thisis particularly important where long term policies
are in place, such as SMPs, or for planning purposes. We
will ensure these are periodically reviewed and considered
when setting policy for managing flood and coastal risk.
85. This Strategy and our wider FCERM programme will help
to manage some of the effects of climate change through
activities in those areas prone to flooding or coastal
erosion. However, we cannot prevent all flooding and we
will need to use a range of approaches to not only reduce
the risk where we can, but to adapt our communities and
infrastructure to be prepared for severe weather events
and rising sea levels.
86. A key part of this work will be in recognising the risks and
adapting in an intelligent and robust way. This may involve
maintaining and improving defences, but equally will also mean
better management of land and water across a catchment
to reduce run-off, intelligent planning and retro-fitting of our
towns and cities and, in some cases, creating space for
water and recognising the need to move out of harm’s way.
21 gov.wales/prosperity-all-climate-conscious-wales
22 Thompson, V et al, High risk of unprecedented UK rainfall in the current climate, 2017 Nature Communications 8
23 www.theccc.org.uk/wp-content/uploads/2016/07/UK-CCRA-2017-Wales-National-Summary.pdf
24 UKCP18 Science Overview Report
25 Munro, A et al, Effect of evacuation and displacement on the association between flooding and mental health outcomes, 2017 Lancet Planet Health
26 Present and future flood vulnerability, risk and disadvantage: A UK assessment, Sayers, P., Penning-Rowsell, E., Horritt, M. (2017).
27 www.wales.nhs.uk/sitesplus/888/page/43887
87. In all cases, we also need to build resilience within
communities so when flooding does occur, its residents
and our RMAs know what to do and can both respond and
recover quickly to lessen the likelihood of long-term impacts.
Adaptation should form part of that recovery, so communities
and RMAs do not return to a pre-existing state of vulnerability
after a flood, but take the opportunity to ‘build back better’
and improve their preparedness and ability to respond to
future events; this is also called adaptive resilience. We
cover more on this topic under coastal adaptation.
Impacts
88. Flooding and coastal erosion can have a variety of
consequences and impacts, not only on wellbeing but
wider economic, environmental and social factors. All
types of flooding carry a risk to life, either for those directly
affected or for others involved in attempting to help them.
89. Physical harm and injuries can arise directly or as a result
of flood impacts, for example from a weakened building
or structure. Flood and erosion events can also lead to
communities suffering disruption to transport infrastructure,
power and water supplies, while also increasing the public
health risks associated with contact with chemicals or
sewage.
90. We recognise the impacts flooding can have on mental
health during and after a flood, including long-term effects
which can continue long after the event itself. This may
be from the flooding incident and associated loss, or from
being displaced or re-homed whilst repairs are undertaken,
whilstother symptoms such as insomnia and depression can
also result. A study by Public Health England
25
recorded a
significant association between displacement due to flooding
and symptoms of depression, anxiety and post-traumatic
stress.
91. A 2017 report
26
for Joseph Rowntree Foundation found that
socially vulnerable neighbourhoods are over-represented
in areas prone to flooding, but most significantly in areas
prone to coastal and tidal flooding.
92. Certain parts of society are less able to cope with the
effects of flooding; the most vulnerable are the very young,
theelderly and disabled or already in poor health, who may
require additional support during a flood event. Public Health
Wales maintains public health advice on flooding on its
webpage
27
.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
15
Storms Ciara and Dennis, February 2020
Pontypridd Town Centre
Number of flooded properties: 158
Pentre
Number of flooded properties: 169
February 2020 brought devastating flooding to Wales with
successive storms and record rainfall levels. More than
2,000 homes and 600 businesses suffered internal flooding
affecting areas that had not seen flooding for decades.
However, this figure would have been higher were it not for
our network of flood defences, which operated successfully to
prevent or reduce further flooding.
River levels in many places hit record or near-record heights.
Along the Taff, levels were 80cm higher in places than
those for the1979 floods, however, over 9,000 homes were
protected by its defences. Across Wales, that figure rises
to around 73,000 with many more benefitting from assets
managed by Local Authorities. Most of Wales was affected,
with significant damage to properties in communities including
Llanrwst, Llanfair Talhaiarn, Tylorstown, Nantgarw, Pontypridd,
Pentre, Llanhilleth, Crickhowell and Mountain Ash.
An emergency flood relief-funding scheme was launched to
support flood victims across communities, businesses and
those Local Authorities affected.
100% grant funding was also made available by the Welsh
Government to enable NRW and Local Authorities to carry
out £4.4m of emergency repairs to flood risk infrastructure,
defences and culverts.
95. The impacts of coastal erosion are no less devastating and
may be catastrophic at the point of impact. Domestic home
insurance does not cover coastal erosion, which can result
in financial hardship for residents of properties at risk. Prior
to an erosion event, properties at risk are likely to become
blighted and lose significant value.
96. Many culturally significant sites are located in areas at risk
from flooding or erosion, like our coastal paths, nature
reserves, monuments and beaches. Stakeholders and
RMAs should work together to discuss how to prepare,
adapt and/or build resilience of such areas in response to
climate change.
93. The economic impacts of a flood can be widespread with
damage to vehicles, buildings and structures, including
bridges and flood assets themselves. Roads can become
impassable, whilst agricultural land and livestock can be
lost. The 2014 Somerset flooding demonstrated how a
prolonged flood event to a rural area can have significant
effects on residents and theeconomy.
28 www.floodre.co.uk/
94. For the individual, the economic impact can also be
significant if a property is not insured. In recent years,
improvements have allowed homeowners living in areas of
highflood risk to obtain affordable insurance through the
FloodRe28 initiative.
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97. Flooding and coastal erosion have an effect on the
natural landscape. Soil loss as a result of flooding can be
significant as it supports agriculture, biodiversity and can
impact on water quality. The Welsh Government will work
with agricultural partners to encourage appropriate land
management practices and NFM schemes to reduce run-
off and soil erosion.
98. Whilst some natural habitats like salt marsh also serve a
flood defence function, other sensitive habitats may be
damaged or take years to recover from flooding. Following
the coastal flooding of 2013/14, NRW recorded the Welsh
coast’s vulnerability to severe weather events and possible
impacts on biodiversity
29
. Their report demonstrated the
importance of managing coastal ecosystems to be resilient
and adapt to the pressures brought by climate change.
29 Welsh Coastal Storms 2013/2014 – An Assessment of Environmental Change, NRW, 2014
99. The Government understands the careful balance needed
between protecting our coastal communities at risk whilst
recognising its important environmental, cultural and
economicvalue.
100. Defences around our coastline in combination with sea
level rise can result in loss of intertidal habitat; this is
referred to as coastal squeeze. Where this impacts on
our European designated sites, the Habitats Regulations
requires us to compensate for these losses. We have
established a National Habitat Creation Programme
to scope for and provide any necessary habitat
compensation as a result of our flood and coastal
interventions.
Wales Coastal Flooding 2013/14
Damage at Newgale, Pembrokeshire blocking road
The coastal flooding seen in Wales in the winter of 2013/14
affected homes, businesses, road and rail networks and
utilities as well as causing damage to FCERM assets around
the coastline.
Over 300 properties flooded with further 1400 properties
evacuated. In addition, more than 15 km of road was
affected by flooding, blocked by beach material or
temporarily closed for safety.
However, the national review following this event estimated
that, as a result of ongoing investment in our coastal
defence network, 99% of the properties and land at risk was
protected, preventing £3 billion of damages.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
17
Welsh Risk Management Authorities
101. Flood and Coastal Erosion Risk Management in Wales involves a number of organisations, including 28 Risk Management
Authorities (RMAs). The basic responsibilities of key stakeholders in Wales are set out below:
Figure 5: Overview of Roles and Responsibilities
Roles and Responsibilities
Welsh Government: Set direction and objectives, and prioritise funding
Risk Management Authorities: Identify and manage risks
NRW Oversight: General supervision and communication of
flood & coastal erosion risk management in Wales
NRW
Manage flooding from main rivers, their reservoirs and the sea.
Coastal protection works as a coastal erosion RMA.
Water Companies
Manage flooding from water and sewage systems
Welsh Government
as trunk road highway authority manage highway drainage
Local Authority, as
Lead Local Flood Authority Manage
flooding from ordinary watercourses, surface water and
groundwater. Coastal protection works as coastal erosion RMA.
Highway drainage as highway authority.
Landowners, Partners and Stakeholders
No duties but have a role to play as riparian landowners or asset owners. May also be those who best
understand the local management of land and water and/or the flood risk facing their community.
102. The parties above all have a role to play, working
collaboratively in delivering the objectives of this Strategy.
103. RMAs have powers and responsibilities in terms of the
risks they manage, but there are also places where these
interact or are shared. An example is the combined role
which Local Authorities and NRW play as a coastal erosion
risk management authority
30
. Each body should consult
the other on any such coast protection works and look for
wider wellbeing opportunities where appropriate.
30 Under the Coast Protection Act 1949 www.legislation.gov.uk/ukpga/Geo6/12-13-14/74/contents amended under Schedule 2 of the Flood and Water Management Act 2010.
104. This Strategy emphasises the importance of wider
catchment and wellbeing considerations. We therefore
strongly encourage collaborative working in the sharing of
ideas, liaisonwith communities and addressing flood and
coastal erosion risk.
105. RMAs have a duty to co-operate with each other in the
exercise of their FCERM functions. The Welsh Government
expects this from all RMAs in managing risk, their reporting
duties and in the response to flood or coastal erosion
incidents.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
18
106. Many of the powers which NRW and Local Authorities utilise
to carry out works to manage risk come from the Water
Resources Act (1991) and Land Drainage Act (1991). There is
not a duty on RMAs to undertake such works but statutory
powers to manage risks from certain sources.
107. Roles and responsibilities are not entirely straightforward for
the public, or stakeholders, and the FCEC will be helping the
Welsh Government explore ways to clarify the legislation.
108. The expectation from Welsh Ministers is that RMAs will
assess and then, where viable, bring forward appropriate
projects or interventions in those communities at greatest
risk. This may be evidenced by the Wales Flood Map,
FloodRisk Management Plans, or a Local Flood Risk
Management Strategy, amongst other modelled risk and
asset information. Itcan also be informed by actual flood
or coastal erosion events, including the need for repairs or
improvements which become apparent after an incident,
for example, where there is an immediate risk to life or
through recommendations in a flood investigation report.
109. Where there is an immediate risk to life, for example
through flooding to multiple homes, RMAs should utilise
their powers to quickly assess the viability of undertaking
repairs, notify the Welsh Government and intervene if
appropriate. These powers are not dependent upon the
RMA owning the asset or riparian responsibilities, but are
consistent with their remit to manage risk from certain
sources as set out in this Strategy and in legislation
31
.
110. Under the Civil Contingencies Act 2004 NRW and
Local Authorities as Category 1 Responders, and Water
undertakers for an area wholly or mainly in Wales as
Category2 Responders, are responsible for maintaining
plans which can be used in an emergency for reducing,
controlling or mitigating flooding action in connection with
operability of certain flood management assets.
111. This chapter specifically covers the roles of those
organisations categorised as RMAs. The wider role of
emergency responders is covered by the Wales Flood
Response Framework
32
.
31 As set out in section 165(1) of the Water Resources Act (1991), section 14A of the Land Drainage Act (1991) and reinforced through the Flood and Water Management Act 2010.
32 gweddill.gov.wales/topics/environmentcountryside/epq/flooding/flooding2/responseframework/
33 Water companies operating in Wales are currently Dwr Cymru Welsh Water, Hafren Dyfrdwy, Albion Water and SSE Water
34 An exception may be where a RMA has agreed to work on behalf of another under Section 13 of the Flood and Water Management Act 2010. Any such arrangement
should make clear who is responsible for ongoing maintenance.
35 Further guidance available at www.gov.uk/government/publications/designation-of-third-party-structures-and-features-for-flood-and-coastal-erosion-risk-management-purposes
Organisations
112. Specific roles and responsibilities of organisations are
explained below.
Welsh Government
113. Welsh Ministers set strategic direction and have overall
responsibility for flooding and coastal erosion policy
in Wales. As part of that role, the Welsh Government
produces and publishes the National Strategy and ensures
compliance and implementation of measures to achieve its
objectives. It is responsible for FCERM legislation through
powers under the Government of Wales Act.
114. The Welsh Government manages the FCERM Programmes,
including allocating budget to RMAs, appraising Local Authority
schemes, and developing a programme of investment.
Risk Management Authorities (RMAs)
115. The Flood and Water Management Act 2010 sets out how
this Strategy must specify the Welsh RMAs and the flood
and coastal erosion risk management functions that may be
exercised by those authorities.
116. In Wales there are 28 RMAs:
• Natural Resources Wales (NRW).
• The 22 Local Authorities as Lead Local Flood Authorities
(LLFA) and highway authorities.
• Water companies operating in Wales, of which there are
currently 4
33
.
• The Welsh Government, as highway authority for trunk roads.
117. Usually, Risk Management Authorities (RMAs) who commission
construction of new or improved flood and/or coastal erosion
risk management schemes will take responsibility for future
maintenance, unless an agreement is made between two
RMAs to take over maintenance responsibility
34
.
118. Third party structures which help to manage flood or
coastal erosion risk may be designated under the Flood
and Water Management Act 2010 by the relevant RMA
to prevent them being altered, removed or replaced
without consent. Thishelps to ensure they continue
to work as an FCERM asset and the owner does not
inadvertently increase risk to themselves, theirneighbours
or surrounding area
35
.
119. All FCERM assets must be identified on a Local Authority’s
asset register, this should then be reflected in the National
Asset Database and accessible to the public.
120. The following infographic contains examples to help clarify
roles and responsibilities and what to do in the event
offlooding.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
19
Figure 6: Types of flooding & who you should contact
Fluvial Flooding is flooding from main rivers. These are usually larger sterams and rivers,
although some can be small watercourses of significance. Contact NRW in this case.
Flooding from ordinary watercourses involves watercourses that don’t
form part of a main river. Contact your Local Authority (LA) in this case.
Flooding from surface water or ‘pluvial flooding’ is caused by flash floods which
exceed the capacity of soil and sewers. Contact your Local Authority (LA) in this case.
Flooding from Groundwater occurs when water rises from underground and
the soil becomes saturated. Contact your Local Authority (LA) in this case.
Coastal Flooding occurs when high tides combine with severe weather,
leading to storm surges and large waves. Contact NRW in this case.
Coastal Erosion is the wearing away of land by wave action, weathering
or high winds. NRW and your Local Authority (LA) in this case.
Sewer Flooding occurs when the capacity of a sewer system is exceeded.
Water and sewerage companies are responsible for this..
Flooding from Reservoirs occurs when above ground water storage fails
and spills onto the surrounding area. Contact the Reservoir owner.
Flooding from Roads occurs when the volume of rainwater does not drain away
through existing drainage systems. Contact the Highway Authorities.
Risk Management Authorities’ Contact Details:
> Sewer flooding will depend on the Water Company responsible for the system.
> The Highway Authorities are the Welsh Government for motorways and major trunk roads and Local
Authorities for other roads.
> If you are a Riparian Landowner, meaning you own land next to a waterway, you may be responsible
for maintaining and repairing a flood defence. To learn more contact NRW for main rivers or your LA for
ordinary watercourses.
> To report an incident to NRW call 03000 653 000 or visit naturalresources.wales/about-us/contact-us/
report-an-environenmental-incident/ To find your LA visit www.gov.uk/find-local-council
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
20
Natural Resources Wales (NRW)
121. NRW’s role can be split into 3 distinct areas
i. Strategic oversight and general supervision over all
FCERMmatters.
ii. Activities they do on behalf of, or in collaboration with,
RMAs.
iii. Activities they deliver in the management of flooding
from main rivers and the sea and in managing coastal
erosion.
122. Activities under (iii) relates to the functions and powers
NRW has to manage flood risk from main rivers and the
sea. NRW can also manage risk from other watercourses
which flow into main rivers and undertake certain activities
on ordinary watercourses to reduce risk, such as altering
water levels and existing works. NRW are also recognised
as a coastal erosion risk management authority under the
Coastal Protection Act 1949.
123. Their strategic oversight and general supervision role (i) is
about having a Wales-wide understanding of all sources
of flooding, coastal erosion and the risks associated with
them, ona consistent basis to provide advice to the Welsh
Government as well as helping inform RMAs and thepublic.
124. This is needed to optimise planning and investment
for effective flood risk management, in a risk based,
transparent and consistent way. It is also helpful to
the public as NRW become established as the go-to
organisation for national information on flood and coastal
erosion risk, including flood warnings, risk mapping and
information on resilience and responding.
125. The oversight and supervision role includes tasks
undertaken by NRW on a Wales-wide basis. This can
include activities requested by the Welsh Government
36
which NRW are considered the most appropriate body
to lead upon:
• Providing technical advice and support to the Welsh
Government and RMAs;
• Monitoring and reporting progress on implementing the
National Strategy through Section 18 reports;
• Forecasting, warning and informing on potential and
actual flooding from all sources in collaboration with
Met Office partners;
• National flood awareness programmes and national
advice on flood support, providing consistent advice to
the public, RMAs and responders;
• Managing the National Asset Database in partnership
with allRMAs;
• National flood and coastal erosion risk mapping for all
sources, including FRAW, the Wales Flood Map and
National Coastal Erosion Risk Map (NCERM);
36 The Welsh Government may direct NRW to undertake work and sets out priority activities expected against funding allocations in an annual FCERM Remit Letter.
• Supporting research requirements in Wales, through
independent research and the joint research programme
with EA, the Welsh Government and Defra with input from
WLGA and RMAs;
• Monitoring habitat loss and the management of the
National Habitat Creation Programme;
• Co-ordinating SMP update process;
• Statutory consultees on relevant matters such as
planning;
• Co-ordinating activities and certain plans on behalf of
WelshRMAs;
• Issuing Environmental Permits for certain watercourse
and FCERM activities.
126. NRW carries out all Internal Drainage Board (IDB)
functions in Wales and hence can also manage risks from
ordinary watercourses, surface water and groundwater in
those drainagedistricts.
Local Authorities as Lead Local Flood Authorities,
SuDS Approval Bodies, Highway Authorities and
Category 1 Responders
127. Lead Local Flood Authorities (LLFA) are responsible for
managing flood risk from surface water and ground water,
orfrom an ordinary watercourse.
128. LLFAs have duties under the following legislation:
Flood and Water Management Act 2010:
• Prepare and maintain a Local Flood Risk Management
Strategy for their areas, coordinating views and activity
with other local bodies and communities through public
consultation and scrutiny, and delivery planning. They must
consult RMAs and the public about their strategy;
• Investigate significant local flooding incidents and publish the
results of such investigations;
• Maintain a register of structures and features likely to affect
flood risk;
• Co-operate with other RMAs.
Flood Risk Regulations 2009:
• Contribute to the production of Flood Risk Management Plans.
129. LLFAs have powers under the Land Drainage Act 1991,
which allow them to:
• Manage flood risk from ordinary watercourses
• Manage flood risk from surface water or groundwater
• Monitor, maintain, operate or repair works to manage
flood risk from sea. Additional works to manage risk from
the sea will require consent from NRW.
All such works must be in accordance with their Local Flood
Risk Management Strategy.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
21
130. Coastal Local Authorities are also designated as a coastal
erosion risk management authority under the Coast
Protection Act 1949, which gives them powers to protect
the land against erosion or encroachment by the sea.
Under the Act, councils can do works to protect against
coastal erosion and defend against sea flooding where
they are best placed to do so and with approval from NRW.
This is a power but not a duty.
131. Local Authorities are responsible for drainage of local
highways under the Highways Act, s100.
132. Under the Civil Contingencies Act 2004, Local Authorities
are also Category 1 responders giving them duties to:
• maintain arrangements to warn the public, and to provide
information and advice to the public, if an emergency is
likely to occur or has occurred
• play a lead role in emergency planning and recovery
after a flood event and must have plans to respond to
emergencies, and control or reduce the impact of an
emergency.
133. Local Authorities also act in their role as both a LLFA and
Local Planning Authority to provide advice on surface
water drainage. Implementing effective SuDS on new
development requires a joined-up approach by the Local
Authority across multiple disciplines, and early involvement
of drainage/flood risk engineers, landscape architects,
highways engineers, biodiversity and amenity staff, building
control and planners to secure effective SuDS.
Water and sewerage companies
134. Water and sewerage companies have operational
responsibility for drainage via public sewers (foul, surface-
water and/or combined).
135. Local Authorities, in their role as highways, planning and
RMAs will actively collaborate with water and sewerage
undertakers on long term planning for drainage, including
the preparation of drainage and wastewater management
plans, water company business plans and Local
Development Plans.
136. The Flood and Water Management Act 2010 places
a number of statutory duties on water and sewerage
companies including:
• A duty to act consistently with the National Strategy;
• A duty to have regard to the Local Flood Risk
Management Strategies; and
• A duty to cooperate with other RMAs,
including sharing data.
Welsh Government as Highway Authority
137. The Welsh Government has a responsibility for trunk road
drainage under the Highways Act, s100.
Network Rail
138. Whilst legislation does not impose an official role on
Network Rail, their maintenance of assets on the coast
gives them a role in coastal defence.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
22
Groups and Committees
139. There are a number of established Groups and Committees which help to deliver different aspects of FCERM across Wales.
The links between the groups are shown below.
Figure 7: Links between Group and Committees
140. The Wales Flood Group does not have any formal links
to the groups or committees shown above but instead
provides a link to Resilience Groups and influences the
work of others within FCERM. It is a sub-group of the Wales
Resilience Partnership Team which supports the Wales
Resilience Forum chaired by the First Minister.
141. Both the Wellbeing of Future Generations Act and
the Flood and Water Management Act 2010 require
collaboration. The Welsh Government encourages
catchment approaches, with partners working at a
catchment scale to manage flood risk. In addition, the Welsh
Government encourages Coastal Local Authorities and NRW
to work together where appropriate to manage the risk from
coastal erosion and flooding.
142. The Flood and Coastal Erosion Committee (FCEC) will,
through its links with all RMAs and stakeholders, be
well placed to consider the need for future changes to
legislation to improve FCERM in Wales.
The Welsh Government has asked the Flood and
Coastal Erosion Committee, in its advisory capacity,
to consider and recommend changes to legislation
to enable improvements to FCERM in Wales.
MEASURE 1: Flood and Coastal Erosion Committee
to establish the scope and consider the need
for changes to legislation to clarify and support
the delivery of FCERM in Wales by 2022.
Objectives supported: A-E
Welsh Ministers
Flood & Coastal Erosion Committee
Flood &
Coastal Risk
Programme
Board
Wales Coastal
Group Forum
Regional Flood
Groups x 3
Wales Flood
Group
Coastal
Group x 4
Wales Coastal
Monitoring
Centre
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
23
Flood and Coastal Erosion Committee (FCEC)
143. The purpose of the Committee is to advise Welsh Ministers
on all FCERM matters in Wales, including awareness
raising, preparation and community resilience to flooding.
Formed in 2019, the Committee will provide high level
advice, working closely with RMAs and the Welsh
Government.
144. It will establish its own programme of advisory activity
that may reflect both immediate and longer term national
priorities, including responding to consultations, identifying
research needs and highlighting best practice in Wales
and elsewhere.
145. The Committee will provide an independent review of the
Section 18 report prior to publication.
Section 18 Report
Prepared under the terms of the Flood and Water
Management Act, NRW produce this report
for Welsh Ministers on FCERM in Wales.
The report is compiled with input from all Risk Management
Authorities, providing an opportunity to report on progress
on the measures in the National Strategy, as well as
wider FCERM matters and best practice across Wales.
Further details on this report can be
found in the Monitoring section.
Coastal Groups
146. Coastal Groups are made up of Local Authorities, NRW,
the Welsh Government and other bodies with coastal
responsibilities, such as Network Rail. The Coastal
Groups are responsible for producing, implementing and
monitoring progress of the SMPs. As a consequence of the
coastal groups being responsible for the SMPs, they have
a regional strategic overview of coastal management.
147. Coastal Group chairs lead group meetings and represent
Coastal Groups at external groups and fora as necessary.
Theyprovide advice on coastal issues, share good
practice and identify opportunities for joint working. They
historically, andcurrently still do, play an active role in
coastal monitoring. There are four coastal groups in Wales:
Severn Estuary, Swansea and Carmarthen Bay, Cardigan
Bay and Liverpool Bay.
Wales Coastal Group Forum (WCGF)
148. The Wales Coastal Group Forum comprises chairs of
each coastal group listed above along with NRW, WLGA,
National Trust and Network Rail.
149. The role of the Forum is to represent the collective
interests of coastal groups and to provide and
communicate the strategic direction to coastal groups on
coastal risk management matters. To do so the Forum will:
• Share information and good practice between coastal
groups and other interested parties.
• Provide feedback to the Welsh Government on coastal
issues and policy.
• Promote common reporting and monitoring standards.
• Raise the profile of coastal flooding and erosion risk.
• Support the development of key strategic documents
around communication and coastal adaptation.
150. The WCGF Chair helps to maintain a link to the FCEC,
whichensures a good flow of information between the two.
Wales Coastal Monitoring Centre
151. The Wales Coastal Monitoring Centre (WCMC) was
founded to assist all coastal RMAs by managing and
sharing relevant data on coastal processes, it is funded
through the Welsh Government.
152. The WCMC will develop a strategic approach to coastal
monitoring in Wales, supporting this Strategy through
delivery of the evidence needed to make informed
decisions to better manage coastal risk.
153. The Centre is managed by a consortium of Coastal Local
Authorities and the Welsh Local Government Association.
The Wales Coastal Group Forum acts as an advisory panel
to provide strategic direction and support to the WCMC.
Coastal risk should be managed using
the best available information.
MEASURE 2: Delivery of annual topographic
surveys by Wales Coastal Monitoring Centre on
behalf of Coastal Groups to measure change
in the most at risk coastal areas in Wales.
Objectives supported: A and C
Wales Flood Group
154. The role of the Wales Flood Group is:
• To create a forum for representatives of the Welsh
Government, Local Resilience Forums and individual
Category 1 and 2 responder (as defined in Civil
Contingencies Act 2004).
• To support the development and implementation of a
programme of work to improve Wales’ resilience to flooding
• To work in partnership with Local Resilience Fora,
andcategory 1 and 2 responders in delivering these
actions effectively.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
24
Regional flood groups
155. Set up in 2012, there are 3 regional flood groups in Wales,
South East Wales, South West Wales and North Wales.
They are attended by LLFAs, NRW, Dŵr Cymru Welsh
Water and WLGA. They provide a forum:
• To provide a source of shared expertise and experience;
• Timely sharing of information and data;
• Explore the feasibility of sharing resources and
knowledge;
• Identify and assess the need for technical subgroups;
• Facilitate consultation on Local Flood Risk Management
Strategies;
• Promote dialogue and exchange of information between
group and the Welsh Government including feedback to
and from the Flood and Coastal Risk Programme Board;
• Share expertise and best practice and explore with other
disciplines how a model of flood preparedness could be
extended to encompass response to other incidents and
emergencies.
Flood and Coastal Risk Programme Board
156. From 1st April 2019 the FCERM Programme Board and the
Coastal Risk Management Programme Board have been
merged to form one “Flood and Coastal Risk Programme
Board”. The purpose of the Board is to provide advice to
Ministers, drive the Programmes forward and support the
delivery of outcomes and benefits.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
25
157. This Strategy aims to manage flood and coastal erosion
risk to people and communities, delivered through 5
objectives, setout in Chapter 2.
158. This chapter is divided into 5 sections to reflect the
objectives. Each section describes the actions or measures
which RMAs and others can take to help deliver those
objectives.
Objective A: Improving our understanding
and communication of risk
Flood and coastal risk information and mapping
159. To fully understand flood and coastal erosion risk and
communicate it to the people of Wales, we need to use
the most current data and mapping available. The data
and maps are available to the public
37
to help people
understand the risk to their property, to take ownership
of that risk taking action where practical.
160. Our understanding of coastal erosion and flood risk from
rivers, the sea and surface water is continually improving
thanks to better modelling, mapping and from lessons
learned from actual flood events. Since the first Strategy
the following maps and data have been published:
• Shoreline Management Plans (SMPs)
38
• Updated Flood map for surface water
• National Coastal Erosion Risk Management (NCERM) map
• Updated Development Advice Map.
161. These complement and inform Flood Risk Assessment
for Wales (FRAW) and the Flood Map for Planning, which
come together under the Wales Flood Map. They show
the likelihood or chance of a flood from rivers, sea and
surface water:
37 National flood and coastal erosion risk information and maps are accessed through NRWs website naturalresourceswales.gov.uk/flooding/
38 www.gov.uk/government/publications/shoreline-management-plans-smps/shoreline-management-plans-smps
Figure 8: categories of flood risk
Risk Chance of flooding in any given year
High Greater than or equal to 1 in 30
Medium Less than 1 in 30, but greater than 1 in 100
Low Less than 1 in 100, but greater than 1 in 1,000
Very Low Less than 1 in 1,000
162. Flood risk data is shown through FRAW. This is an important
product for all involved in flood risk management, providing
a national assessment of risk from all sources of flooding
for both public and professional use. It also informs the
Communities at Risk Register and our FCERM programme.
163. New data through the FRAW states that 245,118 properties
are at risk of flooding from all sources in Wales. These
new figures (2019) differ from previous counts as they
now include surface water risk and utilise a more accurate
methodology. Figure 9 below sets out the number of
properties at flood risk whilst figure 10 demonstrates how
some properties are prone to more than one source
of flood risk. This overlap helps to explain the double-
counting inherent in flood risk data and why the individual
numbers of properties at risk from different sources, as
shown in figure 11, can be greater.
Figure 9: Number of properties at risk,
taken from FRAW, 2019
Combined Flood Risk Properties at risk
High 117,100
Medium 44,668
Low 83,350
Total 245,118
Flood and Coastal Erosion
Risk Management
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
26
Figure 10: Venn diagram showing properties
at risk, by three sources of flooding.
1 source Fluvial only 43,643
1 source Tidal only 33,129
1 source Surface Water only 101,565
2 sources Fluvial and Tidal 29,977
2 sources Tidal and Surface Water 11,825
2 sources Surface Water and Fluvial 20,358
3 sources Fluvial, Tidal and Surface Water 4,621
Total 245,118
Figure 11: FRAW ‘at risk’ property counts
against source (rounded to nearest 50)
Residential Non-residential Total
Fluvial 77,850 12,300 90,150
Tidal 62,300 8,750 71,050
Surface
Water
115,700 14,100 129,800
Overall total of properties at risk in
Wales (including double/triple counting
291,000
Overall total of properties at risk in Wales
(excluding double/triple counting)
245,000
39 Businesses includes key services such as schools, railway stations, hospitals, dentists etc. i.e. all properties which are not ‘residential’
164. We want to understand the number of homes and
businesses
39
at high, medium and low risk of flooding from
rivers, sea and surface water so we can measure and
show improvement as a result of FCERM investment and
assess progress against this Strategy’s overarching aim.
Full details and maps utilising the new FRAW data will be
published by the end of 2020.
We want the public to understand the risk of flooding
to their property. The new Flood Risk Assessment
Wales (FRAW) will identify the flood source and
level of risk to all communities in Wales.
MEASURE 3: NRW to publish new FRAW maps in
2020 alongside the Strategy and update every 6
months to reflect changes in National Asset Dataset
Objectives supported: A-E
We want to monitor the reduction in risk and benefit
to properties as a result of our investment.
MEASURE 4: NRW to provide data on the number
of homes and businesses at high, medium
and low risk of flooding from all sources on
an annual basis based on FRAW updates.
Objectives supported: A and C
165. To understand risk, we need accurate data on properties,
assets and flooding. The following table (figure 9) shows
the types of data, mapping and plans available and how
they are used to inform decision making on investment in
FCERM. Weexpect all RMAs to work to ensure data and
maps reflect the current risk, undertaking reviews and
updates in line with the schedule below.
Fluvial
Tidal
Surface Water
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
27
Figure 12: Flood and coastal risk maps and plans with update schedule
Map/data Maintained Updated Used to inform
Wales Flood Map NRW 6 Monthly Collective term for the FRAW and Flood Map for Planning.
Flood Risk Assessment
Wales (FRAW) Map
NRW 6 Monthly Public and professional use.
Map showing detailed information on flood risk from all
sources.
Provides data on number of properties at varying flood
risk and how properties benefit from schemes and
investment.
Flood Map for Planning NRW 6 Monthly Public – information on likelihood of flooding from all
sources.
Informs decisions by planners, insurance industry, and on
house purchase.
This will replace the Development Advice Map for
planning decisions upon publication of the new TAN 15.
National Coastal Erosion
Risk Management
map (NCERM)
NRW As new data
available within
Wales Flood Map
Properties at risk from coastal erosion;
Wales Flood Map products;
Planning decisions;
Habitat Regulation Assessments;
Coastal adaptation;
SMPs.
Communities at Risk
Register (CaRR)
NRW Annually Identifies and assesses the hazards that might affect the
local resilience. Used to help prioritise investment in
the most at risk communities.
National Asset Database NRW Annually Communities at Risk Register, FRAW, Wales Flood
Map and helps support investment in maintenance.
Plans
Shoreline Management
Plans (SMPs)
Coastal Groups As new data available Short, medium and long term coastal policy and coastal
management projects.
Development Plans and strategic decisions.
Preliminary Flood
Risk Assessment
NRW/Local Authorities Every 6 years Report Flood Risk Areas to Europe
Flood Risk
Management Plans
Local Authorities/
NRW to co-ordinate
Every 6 years 5 year programme of work.
Reporting to Europe
Local Flood Risk
Management Strategies
Local Authorities Within 2 years of
National Strategy
Management and communication of local flood risk.
Identification of key areas for FCERM interventions.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
28
To ensure the public and stakeholders
are using the most up to date information
on flood risk and coastal erosion.
MEASURE 5: Risk Management Authorities to update
maps, plans and data in line with the schedule
set out in Figure 12 of the National Strategy.
Objectives supported: A-E
166. We want Local Authorities to provide updates to NRW on
risk levels following investigations, updated modelling,
completion of new alleviation schemes and improvements
and enhancements to existing defences. This will enable
timely updates to the Wales Flood Map, FRAW, National
Asset Database and Communities at Risk Register and is
set out in the Memorandum relating to FCERM Grants.
167. RMAs should provide as-built information and post
construction modelling information to NRW within 6 months
of completion of works. NRW will then incorporate updated
information into GIS risk models, FRAW and the defended
layer in the Wales Flood Map in line with the updates in
the figure 8. The information shall include the location and
number of properties benefitting from the asset and the
type of flooding it helps alleviate.
168. In 2016 we started work developing the National Asset
Database to collate information on significant assets owned
by NRW and Local Authorities, also recording condition
and responsibility for maintenance. This database will help
clarify roles and responsibilities by identifying ownership
and asset condition.
169. Realising the benefits of FCERM investment and showing
how risk has reduced in a community is a key part of
any flood and coastal scheme. The information not only
improves our understanding of risk through updates to the
models, butcan assist regeneration, improve information
for planning and development decisions and informs our
flood risk reporting.
170. We want the public and local businesses to understand the
benefits of FCERM schemes and become more involved in
decisions affecting their area. Seeing how risk has reduced
on maps and plans demonstrates how schemes have
made a difference. This can link to wellbeing and economic
benefits through improved peace-of-mind, lower insurance
premiums and can help to regenerate an area by making it
a more attractive place to live, work and invest in.
To support decision making and reflect
reduced risk from investment.
MEASURE 6: NRW and Local Authorities will work
together to ensure that by end of 2021 the National
Asset Database will contain data on FCERM assets
owned or designated by Risk Management Authorities.
MEASURE 7: NRW will work with Local Authorities
to develop a process to ensure all updates are
incorporated in the National Asset Database within
6 months of any completed works or changes
otherwise required, by the end of 2021.
MEASURE 8: NRW to utilise the National Asset
Database to ensure Wales Flood Map reflects the
reduced risk from all flood alleviation schemes by 2022.
Objectives supported: A-D
171. Coastal erosion risk is shown through the National Coastal
Erosion Risk Map (NCERM) which is managed by NRW.
Erosionrisk is unlikely to change as frequently as flood risk
but we continue to learn more about erosion risk through
our coastal monitoring programme and the work of RMAs.
172. NRW will work with the coastal groups, Wales Coastal
Monitoring Centre (WCMC) and RMAs to review the NCERM
and ensure it remains correct. Any corrections or updates
to the map should be made promptly and reported to the
relevant Local Authority and the Welsh Government.
To provide easily accessible information
for the public on coastal erosion.
MEASURE 9: NRW to ensure the National Coastal
Erosion Risk Map (NCERM) matches SMP policies
by 2021 and shows erosion rates as bands in the
Wales Flood Map products by end of 2022
Objectives supported: A-E
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
29
Flood Risk Management Plans
173. The legislative requirement for flood risk management
planning in Wales is governed by the Flood Risk
Regulations, which encourages improvement in flood risk
assessment, mapsand plans, over a six year cycle.
17.4 The UK Government has started the process of leaving the
EU. We will continue to work to the Flood Risk Regulations
which remain operable in UK law, and to work to the
deadlines in the Floods Directive
40
.
175. We have made a conscious decision to improve these
plans by moving towards a consolidated risk assessment
for all sources of flooding. This will use the FRAW and
Communities at Risk Register to cover all flooding and
significant flood defence assets. By using this data to
inform the current cycle of flood risk assessment, Flood
Risk Management Plans, based on risk from all sources
of flooding, will utilise the best available information and
reflect investment priorities for Wales, helping to inform the
RMAs medium term programmes of work.
Shoreline Management Plans
176. A Shoreline Management Plan (SMP) is a large-scale
assessment of the risks associated with coastal processes.
They are non-statutory documents but the Welsh
Government want to see them considered both in local
decision making and strategic planning, such as Local
Development Plans and Local Flood Risk Management
Strategies. Their aim is to identify and set out the
preferred coastal risk management policies to reduce
the risks to people and the developed, historic and
natural environments, over the long term
41
. Neighbouring
responsible bodies then work together, whether at
Coastal Group level, or Local Authority/land owner level,
tocommunicate and implement the Plans.
177. SMPs identify the most sustainable policies over the next
100 years based on a review of available evidence and an
assessment of risks and impacts including consideration of
technical, environmental, social, economic and local factors.
178. SMP policies should take account of the relationships with
other defences, developments and processes, and avoid
committing future generations to inflexible and expensive
options for defence.
179. Welsh SMPs cover:
• SMP 19 Anchor Head to Lavernock Point (Both side of the
Severn Estuary)
• SMP 20 Lavernock Point to St Ann’s Head (South Wales)
• SMP 21 St Ann’s Head to Great Ormes Head
(West of Wales)
• SMP 22 Great Ormes Head to Scotland (NW England and
North Wales)
42
40 Directive 2007/60/EC on the assessment and management of flood risks
41 Shoreline Management Plan guidance – Volume 1, Defra 2006
42 SMPs are numbered sequentially around the coast of England and Wales; these 4 SMPs cover the Welsh coastline.
43 lle.gov.wales/catalogue/item/ShorelineManagementPlanCoastalErosion
180. There are 4 policy options in SMPs:
• Hold the existing defence line maintaining or improving
defences in their present position.
• Advance the existing defence line by building new
defences on the seaward side of the existing defence.
• Managed realignment allowing the shoreline to move
back, with management to encourage or control its extent.
• No active intervention, where there is no more
investment in existing defences.
181. Policy options are defined for three epochs in SMPs:
short-term 0-20 years, medium-term 20-50 years,
and long-term 50-100 years, taken from a baseline of 2005.
GISdata for SMPs is available online.
43
182. However the epochs are not absolute and timing decisions
on implementation should be informed by factors like
rate of sea level change and detailed local studies, taking
into account social and wellbeing factors as well as
environmental opportunities.
183. The preferred management policies set out in SMPs
should influence and inform the preparation of Strategic
and Local Development Plans and their coastal policies.
Particularattention should be paid to where a change
of coastalpolicy is proposed in an SMP, where coastal
defences will no longer be maintained, or where
a managed realignment policy will be established.
Development plans should include appropriate policies
to manage development in such areas. This may include
identifying areas where development would be unsuitable
or where coastal adaptation demands policies be set out
to help support any long-term masterplan for property and
infrastructure in the area.
184. The SMPs are living documents and should be reviewed
and amended where more up to date information, suchas
climate change projections, is available. Coastal Local
Authorities may undertake detailed local studies to review
the policies in the SMPs using the most current data.
Whereevidenced, it may be appropriate to change the
SMP policy for a particular location.
185. Changing SMP policies needs to be underpinned by
robust reasoning, evidence and adequate supporting
assessments to demonstrate why the preferred policy
is not fit for purpose. It should not necessarily be seen
as common place to change policies and careful
consideration is required not to de-value importance and
appropriateness of existing SMPs.
186. The Coastal Groups are responsible for producing and
managing the SMPs. Coastal Groups should be made
up of all authorities with an operational responsibility
for the coast,andorganisations with an interest in the
shoreline. Further detail can be found in the Roles and
Responsibilities section.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
30
187. Wales Costal Group Forum will work with Coastal Groups
to standardise a reporting method, by introducing criteria to
emphasise progress on actions. This will support Measure
10 of this Strategy.
188. In addressing coastal flooding and implementing actions
in the SMPs, Local Authorities may wish to speak to the
WCMC and NRW, who prepare and maintain technical
guidance on coastal standards of service against flooding.
NRW continue to model risk from the sea, and are
conducting research to improve understanding of joint
probability and develop best practice guidance.
189. Flooding can span country boundaries so RMAs that
border England must co-operate with the Environment
Agency and other English RMAs to make improve flood risk
management and consider partnership funding.
190. The Environment Agency is working with English coastal
groups to improve access and use of SMPs through the
development of a web-based tool. The Welsh Government
will extend this to include the four Welsh SMPs. NRW
and Coastal Group Forum will liaise with the Environment
Agency on thisextension.
Action Plans arising from the SMPs set out
measures relevant to each stakeholder, and are
for Coastal Groups to monitor and progress.
MEASURE 10: Coastal Groups to report annual progress
on SMP Action Plans to the Welsh Government
through the Wales Coastal Group Forum.
MEASURE 11: Coastal Groups to report on the
implementation of SMP2 epoch 1 policies, through Wales
Coastal Group Forum to the Welsh Government, by 2025.
Objectives supported: A-D
Coastal monitoring
191. Wales’ coastline is a dynamic environment. Man-made
alterations to the coastline such as coastal defences impact
on natural systems, particularly where controls have been
put in place altering the way sediment moves along the
coast. Weneed to improve our understanding of the long
term trends and changing nature of those coastlines in
order to manage the risks of flooding and erosion
192. We want RMAs to work together through the WCMC,
collecting data to common standards and sharing expertise
so that a long term repository of information can be built up
over time supporting our strategy of prioritising investment. 
44 www.legislation.gov.uk/ukpga/2004/36/contents
45 naturalresources.wales/flooding/sign-up-to-receive-flood-warnings/?lang=en
46 www.gov.uk/sign-up-for-flood-warnings
Objective B: Preparedness and
Building Resilience
Community resilience and behaviours
193. The resilience of a community to flooding is a measure
of how it responds to and recovers from a flood event. A
resilient community is well prepared for a flood and knows
what action to take to reduce the potential impacts and
damage caused. It is also able to minimise the disruption
caused and recovers quickly from flood events. RMAs, the
emergency services and voluntary organisations all have a
role to play in improving community resilience.
194. We also talk about environmental resilience and the
ability for ecosystems to adapt and recover from flooding.
Whilst the personal and economic aspects of resilience
are covered here, there is more on the resilience of
catchments under the Natural Flood Management section
(paragraphs 201-213).
195. The immediate response of a community to a flood can be
improved greatly if they are prepared for the event, aware
of the risks, and understand what practical actions they can
take and who is most appropriate to help them at the time
they need it most.
196. Under the Civil Contingencies Act 2004, all Category 1 and
2 responders
44
have a duty to warn and inform the public if
a flood emergency is likely to occur.
197. Under the Water Resources Act 1991, NRW provides a
flood warning service to the public for river and coastal
flooding. NRW have established agreements under the Civil
Contingencies Act2004 with certain telecom providers to
pre-register customers who live in flood warning areas onto
its warning service. Thepublic can also sign up for free flood
warnings online via NRW’s website
45
or by calling Floodline
46
.
198. Understanding forecasts, assessing flood risk and
communicating it is a key part of being prepared.
Workingin partnership with the Met Office and Flood
Forecasting Centre, NRW assess risk from river, coastal
and surface water and publish a 5 day flood forecast on
its website. The Flood Forecasting Centre issue a Flood
Guidance Statement to Category 1 & 2 Responders in Wales.
199. There can be physical and psychological impacts from a
flood event. We therefore support action to improve the
resilience of communities so they are prepared to respond
more effectively and recover quicker. This may include
receiving flood warnings, the preparation of community
flood plans and outreach work with residents, businesses
and schools.
200. We want to encourage RMAs to have conversations with
communities around their own management of risk and
help them to become more resilient to the impacts of
flooding. Closer collaboration between NRW and Local
Authorities to develop and engage with communities
should become common practice.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
31
201. Some elements of flood and coastal risk management
are best handled by an individual household or business,
forexample, ensuring they are adequately insured,
knowingwhat to do when flooding is expected and
implementing resilience measures so they can recover
quicklywith less disruption to everyday life or their
business.
202. Such behavioural change and work around accepting and
managing risk requires support and information that is
easily accessible. NRW have information on what to before,
during and after a flood which will be enhanced as part of
their online flood support improvements (see measure 11)
including the new flood maps.
203. It remains the responsibility of a home or business
ownerto have adequate insurance cover against
flooding. Affordability of home insurance has been
significantly improved in Wales through the take up of a UK
Government initiative called Flood Re, introduced in 2016
under the Water Act (2014).
204. As well as making more affordable home insurance
available to those at flood risk, part of Flood Re’s remit
is to provide information to consumers about how to
increase their understanding on flood risk and how they
can take action to reduce that risk i.e. become better
prepared. Furtherinformation can be found on the Flood
Re website
47
.
205. Flood Re only applies to homes built before 2009 to help
deter new development being located in flood prone
areas. The Welsh Government supports this principle and
directs new homes away from areas identified as medium
or high risk through planning policy and TAN 15.
206. Property Flood Resilience measures can help to prevent
flood water ingress into a building or aid rapid recovery
following a flood event. This can reduce repair costs and
the misery and disruption caused by flooding. These
measures can be installed as either a preparatory measure
for properties at risk of flooding, or retrofitted during the
repair of buildings after they have been flooded. RMAs may
also consider such interventions where NFM or traditional
defences are difficult to implement or justify, however it
remains the responsibility of the homeowner or business to
take action to protect their property and belongings during
a flood.
47 www.floodre.co.uk/
48 Defra, The Property Flood Resilience Action Plan, - www.cii.co.uk/news-insight/news/articles/property-flood-resilience-code-of-practice/90370
49 www.ciria.org/ItemDetail?iProductCode=C790F&Category=FREEPUBS
207. We have supported the work undertaken by the
Construction Industry Research and Information
Association, CIRIA, following consideration of a
recommendation within the Bonfield Review
48
to prepare
a code of practice to standardise the UK provision of
property flood resilience. The guidance
49
was published in
February 2020.
Property Flood Resilience
Following the 2018 flooding of 5 properties in Penarth,
the Vale of Glamorgan Council installed a new boundary
wall incorporating floodgates which continues to protect
the community.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
32
Awareness Raising
208. A 2013 report into the need for Flood Support Service for
Wales
50
identifies a series of tasks to improve support to
communities before, during and after a flood. All RMAs
have a part to play in this support and through their
awareness-raising activities.
209. The Flood Awareness Wales programme, run by NRW and
fully funded by the Welsh Government, helps communities
understand their flood risk and practical steps they can
take to manage the risk.
210. Flood Awareness Wales helps volunteers from
communities to develop and maintain their own Community
Flood Plans. Flood plans capture information a community
will need in the event of a flood, including the actions
need to prepare, respond and recover, also referred to
as ‘before, during and after’ a flood. Flood Awareness
Wales has helped over 1000 communities, schools and
businesses across Wales develop flood plans and has
been commended through an independent review
51
.
50 Welsh Government, Flood Advocacy & Support Service for Communities in Wales, 2013
51 Collingwood Environmental Planning, Independent Review of Flood Awareness Wales, 2016
52 www.wlga.wales/SharedFiles/Download.aspx?pageid=62&mid=665&fileid=2042
211. NRW are considering bringing the Flood Awareness Wales
programme of work within its normal NRW flood awareness
activities and digital improvements to improve access to
information. The Welsh Government want to see this work
continue, complemented by ongoing improvements to
online flood information and social media activity.
212. Local Authorities also play a role in raising awareness
of flood risk in communities. The Welsh Government
understands that Local Authorities find this objective
challenging, given the varying levels of resource available,
and can seek advice and assistance from NRW. A recent
report by WLGA
52
on the options for management of flood
and coastal erosion on a regional basis proposes such an
approach to delivering flood awareness.
213. The preparation, design and construction of an alleviation
scheme can be an excellent opportunity to raise awareness
and involve residents, schools, landowners and local
businesses in decisions which will affect their community.
This can be especially effective when planning catchment
scale schemes, explaining NFM and introducing engineering
and FCERM to young people. Such outreach work is grant
eligible and should be included in business cases.
.
Wales Coastal Monitoring Centre outreach
work with schools
WCMC has worked with local schoolchildren and linked
up with schools in American Samoa, Fiji and Australia,
developing a series of lessons on climate change and
coastal monitoring for year 6 pupils. This has been
developed in line with the new school curriculum (2022)
and lessons will be freely available to download for other
schools to use.
This is an example of how flood projects can embed the
principles of 5 ways of working, as set-out in the Well-Being
of Future Generations Act, and bring people from around
the world facing similar challenges together.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
33
214. Mapping and messaging has already been improved
following a recommendation from the Wales Coastal Flooding
Review
53
and the Public Accounts Committee
54
to develop
consistent advice and online information to the public before,
during and after a flood. The publication of FRAW in the
Wales Flood Map will further underline our commitment to
continuous improvement in communicating risk.
215. The Welsh Government has asked NRW to continue working
with Local Authorities on improving digital information
provision to the public. Recent research has indicated that
the public require clear, concise and consistent information
which can be easily accessed via smart phones as well as
more traditional methods of communication. Building on this
research, NRW will continue to develop their online flood
pages to become the central hub of information for flood
and coastal risk in Wales.
216. The measure below meets the recommendation from the
National Assembly’s Public Accounts Committee; however we
recognise this work is continuously improving as we benefit
from new information and changes in the way it is accessed.
We want to improve awareness and access to
information on flood and coastal risk management.
MEASURE 12: NRW to complete their online flood
information improvements, working with WLGA and Local
Authorities, by 2021. This will include publication of the
Wales Flood Map products, understanding flood warnings
and advice on building resilience and responding to flooding.
Objectives supported: A, B, D and E
Objective C: Prioritising investment
to the most at risk communities
217. As communities have developed so has a significant
network of flood risk management assets, coastal protection
and drainage infrastructure to help reduce the risks faced.
Although these arrangements have generally worked well
in the past, and are still working in most parts of Wales, the
effects of climate change mean that the pressure on our
existing infrastructure will increase significantly.
218. It is not possible, nor is it sustainable, to protect all
areas from flooding or coastal erosion. Flood alleviation
schemes reduce, but do not completely remove the risk of
flooding. Nomatter how big the defence, t-here is always
a possibility it can be breached or over-topped, leading to
ever-more catastrophic consequences. Therefore, there
will always be a residual risk that drainage and defences
alone cannot address and a reason why raising awareness
with the public isimportant.
53 Recommendation 15, Wales Coastal Flooding Review: Delivery Plan for Phase 2 recommendations cdn.naturalresources.wales/evidence-and-data/
research-and-reports/reports-evidence-and-data-on-flooding/wales-coastal-flooding-review-delivery-plan-phase-2-recommendations/?lang=en
54 Recommendation 4, Public Accounts Committee report on Coastal flood and erosion risk management in Wales, June 2017
www.assembly.wales/laid%20documents/cr-ld11073/cr-ld11073-e.pdf
Reducing risk at Crindau, Newport
Crindau, Newport has a long history of tidal flooding.
Existing defences were in very poor condition, offering a
low level of protection up to a 1 in 10 year flood event.
NRW’s Crindau Flood Risk Management Scheme will
reduce flood risk to 667 properties, providing protection
against a 1 in 200-year event. The scheme has been
designed to be adaptive to climate change beyond 2064.
Phase 1 included constructing flood walls behind the
industrial properties and a new embankment through
Shaftesbury Park. Several seated terraces have been
built overlooking the playing field to enhance this local
amenity and a new footpath and cycleway now run
through the entire park.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
34
Natural Flood Management
No intervention
Management
Option
Working
with Natural
Processes
Green Green-Grey Grey
219. Interventions to reduce flood risk are prioritised according
to risk using the Communities at Risk Register and
evidence of flood events, alongside supporting information
on properties and wider benefits.
220. The Welsh Government prioritises FCERM schemes which
primarily reduce risk to homes. Businesses and public
buildings can also benefit from flood alleviation schemes,
in particular those schemes which reduce risk to a mix
of development types such as homes and shops along
a high street or local district centre. Schemes which only
reduce risk to businesses remain eligible but should not be
prioritised over schemes which reduce risk to homes.
221. Planning policy directs highly vulnerable development,
such as homes, away from high and medium flood risk
areas. Less vulnerable developments may be permitted in
the flood plain where the risk is considered acceptable for
that development use and can be appropriately managed.
FCERM schemes should not be required to defend these
developments.
Figure 13: Option appraisal continuum
222. Traditionally, flood and coastal risk interventions have been
focused on engineering measures such as walls, groynes,
embankments, and drainage improvements. However, in
some instances these interventions have led to adverse
impacts or increased risks elsewhere; RMAs should use
appropriate modelling to establish any negative impacts
associated with such measures.
223. In line with the Flood and Water Management Act 2010,
reducing the risk of flood and coastal erosion can
include working with natural processes or Natural Flood
Management (NFM). This approach is in line with our
Natural Resources Policy, and is encouraged in all FCERM
interventions, either as a stand-alone or hybrid scheme.
This approach also supports the First Minister’s vision for
Wales to become a World leader in green technology and
sustainability.
224. During the option appraisal undertaken as part of scheme
development, we encourage RMAs to consider a broad
spectrum of measures options,
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
35
225. The continuum shows options for intervention including
managing the behaviours which cause the problem,
through NFM, to ‘grey’ or ‘hard’ interventions. Whilst
traditionally flood risk management has involved hard
engineering interventions to the right of this spectrum,
we want to see more measures which work with natural
processes to reduce flood risk.
Figure 14 – Catchment Diagram, Working
with Natural Processes, Adapted from
the Environment Agency (2017)
55 gov.wales/sites/default/files/publications/2019-02/prosperity-for-all-economic-action-plan.pdf
56 www.gov.uk/government/uploads/system/uploads/attachment_data/file/654431/Working_with_natural_processes_evidence_directory.pdf
Natural Flood Management
226. A key priority of this Strategy is to deliver more natural
interventions and catchment approaches to help improve
environmental, social and economic resilience. This
includes working with natural processes and green
infrastructure on the above spectrum, and collectively
defined as Natural Flood Management (NFM). Mitigating
flood risk through NFM also aligns with the Natural
Resources Policy and our move towards a low carbon
based economy, outlined in the Economic ActionPlan
55
.
227. NFM has been described as “reducing flood and coastal
erosion risk by implementing measures that help to protect,
restore and emulate the natural functions of catchments,
floodplains, rivers and the coast”
56
. Examples of NFM include
interventions such as tree planting, offline storage areas,
in-stream obstructions, soil and land management, dune and
beach management and creation of new wetlands.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
36
231. The Welsh Government’s FCERM Business Case
Guidance states that RMAs must consider the use of NFM
in developing options for new assets and maintenance.
232. There has been significant research into NFM since
the publication of the previous National Strategy. The
“Working with Natural Processes” research
57
, Natural Flood
Management Handbook (SEPA)
58
and “Green approaches
in river engineering”
59
provide case studies and information
which RMAs may find helpful to better understand where
and how certain types of interventions may work.
57 www.gov.uk/government/publications/working-with-natural-processes-to-reduce-flood-risk
58 www.sepa.org.uk/media/163560/sepa-natural-flood-management-handbook1.pdf
59 Green approaches in river engineering – supporting implementation of Green Infrastructure. Roca et al. HR Wallingford, (2017)
60 naturalresources.wales/flooding/managing-flood-risk/maps-for-natural-flood-management/?lang=en
233. NRW have published maps
60
to support the delivery of
NFM, identifying potential locations for such measures
in a catchment. The maps have been made available as
open data and should be used as the basis for starting
conversations about NFM as a collaborative catchment-
based approach in conjunction with other RMAs and
partners.
228. NFM can reduce water flows through the catchment,
research however indicates it may not be so effective
in isolation, or during extreme flood events. It can be
effective in larger catchment scale projects or when used
in conjunction with more traditional interventions, acting to
reduce and delay peak flows, so reducing the risk of other
defences failing or being overtopped. In these cases, the
use of NFM can result in smaller and less obtrusive hard
defences being required within the catchment. We refer to
such a mix of methods as hybridschemes.
229. NFM and/or hybrid schemes are eligible for FCERM grant
funding as long as the objective is to reduce flood risk to
properties; see chapter 6.
230. The flood alleviation scheme in Swansea Vale incorporated
a flood storage area and re-naturalised the flood plain for
both biodiversity and amenity benefit. It is an example of a
fluvial hybrid intervention which the Welsh Government is
keen tosupport.
Swansea Vale Flood Storage Area
Completed in 2014, this £6.9 million scheme made space for
water by forming new earth embankments creating an area
to hold flood water from the River Tawe and its tributaries
during flood events. As well as raised embankments the
scheme creates more space for water by setting back the
flood defences at the top end of the river and taking out
three redundant bridges to allow more water to pass.
The NRW scheme has provided wider benefits such as the
creation of a natural wetland area which has enhanced 6ha
of brownfield industrial land as green space for local people
to enjoy and new habitat to support wildlife. 3km of National
Cycle Network was upgraded along the river including a
new footbridge.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
37
234. As well as reduction in flood risk, NFM may provide wider
benefits such as carbon storage, recreation, biodiversity
improvements and social wellbeing. The use of these
measures can also help RMAs demonstrate delivery
against the Well-being of Future Generations (Wales)
Act, and duties under the Environment Wales Act, as
they encourage an integrated approach to delivery and
provide opportunities for collaboration with neighbouring
authorities and land owners.
235. We want to improve our understanding of the benefits
of NFM, particularly on performance and long term
maintenance requirements. We will continue to engage
in research in this field and encourage RMAs to monitor
outcomes of NFM to understand its benefits and to feed
into research where appropriate.
236. We will encourage further take-up by introducing full
grant support for NFM schemes for at least two years,
commencing 2020/21. A key element of this additional
support is monitoring outcomes and sharing experiences in
its use with other RMAs so that we can learn lessons on all
stages of NFM delivery.
61 naturalresources.wales/media/680131/flood-coastal-erosion-risk-management-in-wales-2014-2016.pdf
62 www.nerc.ac.uk/research/funded/programmes/nfm/
63 gov.wales/brexit-and-our-land-our-response
64 Research on the impact of tree planting on flood risk is documented in the Working With Natural processes Evidence Directory –
www.gov.uk/government/publications/working-with-natural-processes-to-reduce-flood-risk including a case study at Pontbren.
237. NFM measures are already being implemented across
Wales
61
. Drawing on lessons learnt and ongoing research
62
into this area will help to improve our wider understanding
of the impact and effectiveness of different measures in
various locations and scales. This will help inform future
best practice and aid investment decisions, and we expect
RMAs to share their experiences and research through
existing groups andfora.
238. Future land management policy
63
is currently being
devised to replace the Common Agricultural Policy once
the UK has exited the EU. It focuses on the delivery of
environmental public goods such as targeted interventions
to reduce flood risk. This initiative is likely to widen the
implementation of NFM, including by those without direct
responsibility for flood risk management.
239. This Strategy complements forestry and agriculture
policies to help reduce flood risk through reduced run off,
andfor appropriate tree planting, ploughing and cultivation
practices to be encouraged for the same reason. The
benefits of tree planting in appropriate parts of a catchment
are still being understood, but research
64
is demonstrating
that it does reduce risk and provide biodiversity benefits as
part of a package of measures.
Gurnos Woods, Powys – Small Scale Scheme/
Natural Flood Management
Powys County Council have installed a series of green
engineering measures to reduce flooding associated with a
small watercourse in Ystradgynlais.
Prior to the scheme, the culvert system could not cope
with flows and was blocking due to silt and stone
washing downstream. The works undertaken involved the
construction of leaky dams, straw bale dams and willow
structures to slow down the flow of water. Block stones
have also been installed to reduce the force of the water
and prevent erosion of the embankments.
Powys have monitored these interventions since
construction and have witnessed a number of significant
benefits: all debris is being held behind each structure
reducing blockages; flows within the channel are clearer
allowing for increased wildlife to the area; reduced
peak flows of flood waters and reduced erosion of the
embankments.
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38
Green-grey infrastructure
240. We acknowledge the importance of green-grey
interventions in flood alleviation and coastal erosion.
We want to see FCERM infrastructure become more
sustainable in the long term and work increasingly in
conjunction with nature based solutions to improve
resilience and provide wider benefits to ecosystems.
65 Living Flood Defence Walls: Reconciliation Ecology in an Urban Estuary” Francis et al. (2015). Technical Report.
66 www.artecology.space/wightlink
241. Green-grey interventions include a natural component
to improve the biodiversity, ecology and aesthetics of an
engineered structure whilst maintaining the integrity of the
defence. It can be described as naturalising hard structures
to mimic the natural environment. They can create space
for recreation and help with climate change mitigation and
adaptation or incorporate natural habitat, such as mud flats
or salt marsh, into an FCERM scheme. Examples include
adding features defences, such as concrete units which
mimic rock pools, or building texture into sea walls and
river embankments to encourage biodiversity
65
.
66
242. Research such as ‘Integrated Green Grey Infrastructure’
67
(IGGI) demonstrates opportunities to ‘green the grey’ and
add wider benefits to a traditional scheme. Like NFM,
green-grey infrastructure should be considered when
planning new defences or during maintenance of existing
defences and is grant eligible.
We want to encourage the take-up of NFM in Wales.
We will support pilot studies and interventions
designed to reduce flood and coastal erosion
risk to better understand its benefits.
MEASURE 13: The Welsh Government will fully fund
NFM schemes for a trial period, commencing 2020/21,
and publish new guidance to further encourage take-up
and the sharing of lessons on its practical delivery.
MEASURE 14: The Welsh Government will work
cross policy to ensure NFM is considered in
wider land and water management, including
agriculture and in NRW Area Statements.
Objectives supported: A, B and C
67 Naylor, L. A., Kippen, H., Coombes, M. A., Horton, B., MacArthur, M. and Jackson, N. (2017) Greening the Grey: A Framework for Integrated Green Grey
Infrastructure (IGGI). Technical Report. University of Glasgow, Glasgow
We want to see NFM as an option for every FCERM
scheme as set out in our FCERM Business Case Guidance.
MEASURE 15: The number of NFM and hybrid schemes
undertaken will be reported to the Welsh Government
annually through grant reporting, and reported to
Welsh Ministers by NRW in the Section 18 report.
Objectives supported: A, B and C
Vertipools, Isle of Wight
66
Vertipools have been attached to the side of dock in
Fishbourne, Isle of Wight in 2017 during an investment
project to improve ferry and port facilities.
They provide an artificial rock pool which retain water
as the tide recedes providing a habitat for fish and
invertebrates. Marine life which colonise the pools can
also strengthen the integrity of the structure and improve
its resilience by providing a covering of organisms such
as barnacles, mussels and seaweeds. They are also used
for educational purposes allowing local school children
on fieldtrips to undertake rock pooling activities and learn
about marine biology.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
39
Objective D: Preventing more
people becoming exposed to risk
243. The focus of FCERM is justifiably on reducing risk
to communities located in at-risk areas. Historically,
development along rivers, estuaries and the coast has
been required for trade, economic or agricultural purposes
but has, over time, put people at increasing risk from
flooding. Advances in engineering and construction mean
some of those dangers can be managed, but some risk
always remains and as this grows it may require expensive
alleviation schemes and constant maintenance to keep
people safe.
244. With better, more open, flood data, we can make more
informed decisions on where to develop and how to adapt
our communities to actively remove elements of risk. We
can also provide the public with the information they need
to understand how flooding may affect them so they can
make their own choices on avoiding or managing their own
personal risk.
245. This new objective underlines the importance of sensible
decision-making, from personal choices to government
policies, so as not to further increase flood or coastal
erosion risk or store up problems for the future.
Managing development risk
246. Planning plays a crucial role in managing development to
avoid inappropriate siting, reduce flood risk where possible
and not increase risk elsewhere. The Welsh Government’s
policy of directing development away from areas at high
risk of flooding and managing water is set out in Planning
Policy Wales and Technical Advice Note (TAN) 15 which
complements thisStrategy.
247. Flood risk must be considered at the earliest opportunity
not only to avoid inappropriate development but also to
enable the sustainable management of water into new
housing development. The statutory requirement for
Sustainable Drainage Systems (SuDS) in managing run-
off helps reduce flooding risk, on site and further down
catchment, relieving pressure on drainage systems and
improving water quality.
248. In January 2019, SuDS
68
became a mandatory
requirement for the management of surface water on new
developments. This fully reflects the need to protect and
enhance the environment, in a controlled way similar to a
natural process.
68 Schedule 3 to the Flood and Water Management Act 2010 makes provisions for sustainable drainage. Details of the regulatory framework and Statutory SuDS Standards
and guidance are available at: gov.wales/sites/default/files/publications/2019-06/statutory-guidance.pdf
69 A summary of links between open space and health can be found at: Green Space and Health (2016)
researchbriefings.files.parliament.uk/documents/POST-PN-0538/POST-PN-0538.pdf
70 Consultation stage Memorandum of Understanding, Water Bill, 2013 consult.defra.gov.uk/flooding/floodinsurance/supporting_documents/20130626%20
Flood%20Insurance%20MOU%20June%202013%20unprotected.pdf
249. This all forms a vital part to the response in adapting
to climate change and helping to achieve sustainable
development. SuDS can also create opportunities for
biodiversity improvements and recreation, as highlighted
by Public Health Wales, amongst others, in improving
health and mental well-being
69
.
250. Evidence also suggests good quality SuDS may contribute
to reduced or sequestered greenhouse gas emissions,
providing important benefits for climate change mitigation.
We will ensure the requirement for SuDS
in new properties is being implemented
and working as intended.
MEASURE 16: The Welsh Government to commence a
review of the effectiveness of SuDS legislation in 2021
Objectives supported: B and C
251. Development in coastal areas requires additional
considerations which take into account the characteristics
and challenges posed by such a location. In addition
to flood and coastal erosion risk, the SMPs are a
material consideration for Local Development Plans and
development decisions in coastal locations. Further advice
is contained in paragraphs 155-166 and within TAN 15.
252. TAN 15 will provide clearer and more robust policy advice
on managing areas at high and medium flood risk. There
is a careful balance to be struck as some development on
flood plains may still be necessary due to the way our towns
and cities have grown around rivers, estuaries and the
coast. Anoutright ban on all flood plain development would
sterilise growth in and around most of our populated areas,
and lead to increased pressures to allow development on
agricultural land and other greenfield areas.
253. TAN 15 proposes a new higher-risk zone where vulnerable
development, such as new homes, cannot be located. It
also sets clear tests to allow resilient development into
appropriate lower-risk areas when safe to do so and where
it will not increase flood risk elsewhere. Such a risk-based
approach complements this Strategy, and will help to
reduce the number of people living in high and medium
flood risk areas. It also ensures the Welsh Government
upholds its part of the Flood Re insurance agreements
70
.
254. FCERM schemes should not be considered in defending
land for the development of new homes (see paragraphs
220-221), reinforcing our policies to discourage
inappropriate development in higher risk areas.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
40
255. Managing development in relation to flood risk relies on
the most current information being available for advice
and strategic decisions. TAN 15 will use the Wales Flood
Map as the key source of flood advice for planners,
withdrawing the previously used Development Advice
Map to help stop any confusion over which map to use
or which is most up-to-date. NRW are responsible for
managing and updating the Wales Flood Map, providing
clarity to the public and planners alike. However all RMAs
have a role to play in providing asset data to NRW, as
described earlier in this chapter, to ensure decisions are
made using the most up-to-date information.
We want Planning and FCERM policies to
complement each other, reducing risk by preventing
inappropriate development in the flood plain and
helping Planning Authorities make clear decisions
based upon the best available information.
MEASURE 17: The Welsh Government to update TAN
15 by 2021 recognising the flood risk information
now available to Local Planning Authorities
Objectives supported: B and D
Coastal adaptation
256. Coastal adaptation is the process of adjustment, to
manage the increasing risks to coastal areas associated
with climate change. However, many of the same principles
apply to communities away from the coast, alongside rivers
or in places prone to heightened surface water run-off and
flash flooding.
257. Our understanding of climate change is improving all the
time, but we know it will result in rising sea levels and
more intense storm events putting coastal communities at
increasing risk. SMPs complement national policy and set
out the agreed options to sustainably manage our coast
over the next 100 years. Text earlier in this chapter gives
more detail on SMPpolicies.
258. Coastal interventions should be adaptive and sensitive
to the environment they sit within as well as providing
adequate protection to the communities they serve. The
need to plan for coastal adaptation is particularly important
for communities where SMP policies will change from
‘holding the line’ to ‘managed realignment or ‘no active
intervention’.
259. We have established the Coastal Risk Management
Programme to provide funding to Local Authorities between
2019 and 2022 for coastal adaptation and risk management
in line with the SMPs and in acceptance of the increasing
risk coastal communities face from climate change.
260. We cannot defend our entire coastline. There will be
instances where it becomes unsustainable or
counter-productive to maintain some defences in their
present position. Defences can also lead to coastal
squeeze of intertidal habitats and may increase sediment
or beach loss by concentrating erosion or scour. Large
populated areas are likely to remain reliant upon some
form of coastal infrastructure (as well as fluvial). However,
it is important to note they do not remove all risk; there
remains the chance of catastrophic failure of a defence,
significant overtopping or groundwater flooding.
261. Coastal Local Authorities, NRW and private asset owners
should consider how infrastructure can be adapted to
higher sea levels before the risk becomes excessive.
Similarly,RMAs should consider how to implement a
change in coastal management long before the SMP
indicates it. Monitoring of coastal processes is an essential
part of this so that the RMAs are well informed of increasing
risk and can manage and communicate that risk to the
community well in advance.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
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Fairbourne, Gwynedd
Difficult decisions are being made where communities are
facing rising sea levels and increased storminess which
come with a warming climate. Fairbourne, Gwynedd, is
an example of this, sitting on a low-lying sand-bar behind
coastal and estuarine defences which will become
increasingly difficult to manage. The defences have been
earmarked for managed realignment in the SMP as this is
considered the most sustainable solution to keep residents
safe in the long-term.
Fairbourne has received considerable media attention,
however, such issues are not confined to this village;
there are communities across the UK which will face
similar risks and difficult decisions over the next century. In
Wales, 95 coastal areas will move from a ‘holding the line’
policy (defending) to ‘no active intervention’ or ‘managed
realignment’ by 2100. Around 40 of those areas may require
relocation of property.
A policy of managed realignment does not mean the
complete withdrawal of support. The Welsh Government
continue to provide funding for defences, maintenance and
adaptation studies in Fairbourne. Since 2013, £8 million has
been invested to keep its residents safe, plan ahead and
adapt. Ongoing research is also helping us to understand
impacts and how similar communities can be supported
through an adaptation process.
We recognise the wider influence such policies have
on people and across Government. Such change has
widespread social, economic and environmental effects,
both directly or indirectly, through a need to adapt, relocate
or invest in greater resilience.
The impact of such strategic and long-term adaptation has
been highlighted as the media share SMP findings and risk
data to a wider audience. We have learnt lessons about
communicating difficult messages and remain committed
to being open and transparent. We believe it is preferable
to work together with communities, preventing risk and
planning ahead for the next century, than to withhold
information on flood or coastal erosion.
262. We support the role of nature based solutions in managing
coastal flooding, erosion and adapting to climate change
in line with the policies set out in SMPs. This may offer
alternative opportunities in areas where defences will
be realigned, or a step away from routine maintenance
towards a more natural coastline.
263. The Welsh Government has established a Wales Coastal
Monitoring Centre (WCMC) to provide coastal authorities
with consistent and reliable data on processes and helping
to understand longer-term trends (see paragraph 148).
264. Adaptation planning should take into account the timing of
the proposed action. Acting too soon can risk disruption
in communities at risk, but acting too late risks impacts
in those areas. Providing clear information and evidence
is key so that residents and businesses are aware of
decisions which may affect them and can become involved
in the long-term planning which may bring change to their
coastline and community.
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42
Examples of interactive coastal adaptation
from Pays Basque, France
The town of Bidart and neighbouring beaches in the Basque
Region have introduced interactive noticeboards to help
illustrate some of the different ways coastline adaptation
can be managed, along with costs and impacts on people
and the environment.
265. The Coastal Groups should prioritise those communities
where engagement is needed to communicate coastal
adaptation messages and develop adaptation plans where
there is a change to a No Active Intervention or Managed
Realignment policy.
266. Local Authorities are expected to take SMPs into account
through their Local Development Plans and in their Local
Flood Risk Management Strategies.
267. The Welsh Government’s preference is for the SMP
position for each section of the coast to be supported in
Strategic and Local Development Plans and Strategies
relating to infrastructure or activity on the coast such
as marine planning, agriculture or housing. SMPs are
a material consideration in Local Development Plans
and it is right for such strategic, longterm policies to be
placed in that context so that they can be considered in
forward planning and shaping development around the
Welsh coast. In developing a plan for coastal adaptation,
Local Authorities shall communicate the SMP policy and
timescales across relevant departments and stakeholders.
268. Where new information becomes available that may
influence an SMP policy for a stretch of coastline, it should
be reviewed by the Local Authority and relevant Coastal
Group. Information on how and why SMP policies should be
amended at a local scale is outlined earlier in this chapter.
269. Where major populations and critical infrastructure dictate
reliance upon hard defences, consideration should
be made to lessen risk by building resilience in those
communities through supportive measures, such as a flood
plan. Further coastal interventions may also be required
such as beach nourishment or breakwaters to absorb
wave energy and further reduce risk.
270. We recognise a need for further guidance on
communicating SMP policies and will work with
stakeholders to develop Coastal Adaptation Guidance,
informed by ongoing research in places like Fairbourne,
Gwynedd, to provide practical advice to practitioners and
communities.
We need clear advice on coastal adaptation for
Risk Management Authorities and communities
MEASURE 18: The Welsh Government to work with
the Coastal Groups and NRW to develop further
guidance on coastal adaptation by 2022
Objectives supported: A, B and D
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271. Climate change can result in coastal squeeze: the loss
of coastal habitat as a result of sea level rise against
infrastructure, rising land or cliffs. Whilst we prioritise the
protection of coastline to reduce the consequences for
communities and people, there is a need to recognise the
impact of sea level rise on the environment and economy
of Wales. The definition of coastal squeeze and how it
is measured has been the subject of recent research
71
supported by the Welsh Government.
272. The National Habitat Creation Programme is a Welsh
Government initiative managed by NRW. It has been
established to compensate for the coastal squeeze
associated with new Local Authority and NRW schemes
which implement ‘hold the line’ or ‘advance the line’
policies in SMPs, helping to meet our responsibilities under
the Habitats Directive (EU) and Habitats Regulations.
273. The Habitats Directive
72
requires EU Member States to
monitor the conservation status of European protected
habitats. The Welsh Government has asked NRW to
undertake this role as part of the National Habitat Creation
Programme.
274. NRW manage the National Habitat Creation Programme in
delivering timely and appropriate compensatory measures
to address coastal squeeze losses. The requirements
for compensatory measures and progress with delivery
including extent, habitat type and location need to be
reported annually.
71 What is Coastal Squeeze; Jacobs Research – not yet published
72 Article 11, 92/43/EEC on the conservation of natural habitats and of wild fauna and flora
275. Whilst NRW manage the National Habitat Creation
Programme, its success is dependent upon support from all
RMAs. In line with the Wellbeing of Future GenerationsAct
we ask all RMAs in Wales to collaborate towards this goal,
identifying and contributing compensatory habitat.
NRW will manage the requirements for the
National Habitat Creation Programme.
MEASURE 19: NRW to develop and establish an
appropriate monitoring programme to support and
inform the National Habitat Creation Programme by 2022
Objectives supported: C
Cwm Ivy, Salt Marsh Creation
Cwm Ivy Marsh, on the North Gower coast, is a site of
lowland fen meadow and freshwater ditches behind a sea
wall defence, owned by the National Trust. The SMP policy
for this section of the coast is No Active Intervention, with
no planned investment in new defences as it is not cost
effective and the natural environment is considered capable
of responding effectively.
The marsh was protected by a sea wall since the 17th
century which over the years was increased in size and
strength. In 2014, the wall breached and the sea is now
reclaiming the land, transforming Cwm Ivy from freshwater
marsh to saltmarsh. The area of new saltmarsh created is
around 20 hectares, growing to a potential of 38 hectares.
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Asset maintenance
276. RMAs should establish a programme of regular inspection
and maintenance for their FCERM assets.
277. Maintenance of flood risk assets is key to maintaining the
existing standard of protection against flood and coastal
erosion, and will be informed by individual asset registers
73
and asset management plans. The National Asset
Database will collate this information and record asset
condition and responsibility for maintenance.
278. As well as funding new schemes, the FCERM programme
also provides capital for major maintenance works and
revenue for more routine operations. As we continue
to implement schemes, the need for maintenance will
continue to increase. This is the case for NFM as well as
hybrid, green-grey and harddefences.
279. RMAs must consider maintenance requirements when
appraising new FCERM interventions to ensure their
long-term maintenance is sustainable. These ongoing financial
commitments need to be factored into business plans.
280. We recognise the need for long term investment to sustain
our resilience to flood and coastal erosion risk. Information
to support future funding need will be evidenced through
anupdate to the Future Flooding in Wales report (see
paragraph 284).
73 Section 21 of the Flood and Water Management Act 2010 requires Lead Local Flood Authorities to establish and maintain a register of flood risk structures or features,
which will include information on ownership and state of repair.
74 Welsh Government, Wales Flood Response Framework, 2017 gov.wales/sites/default/files/publications/2019-06/wales-flood-response-framework.pdf
75 Civil Contingencies Regulations 2005, regulation 25a
76 The Fire and Rescue Services (Emergencies) (Wales) (Amendment) Order 2017
Objective E: Providing an effective
and sustained response
Emergency Response
281. The Civil Contingencies Act 2004 requires statutory
responders to maintain plans for preventing and preparing
for emergencies. The Wales Flood Response Framework
provides responding organisations with information,
guidance and key policies on responding to a flood.
282. NRW and Local Authorities are also Category 1 responders
under the Civil Contingencies Act 2004, and have
responsibilities for reducing, controlling or mitigating
flooding.
283. The Wales Coastal Flooding Review recommended NRW
develop potential ‘impact scenario’ assessments, maps
and/or statements across Wales, which will help to inform
the response required for different events. This has been
reinforced by a Flood Warning Service Review carried out
by NRW.
284. Flooding poses a risk to Wales’ national infrastructure
such as health, transport and energy services. There are
certain assets termed Critical National Infrastructure (CNI)
which, ifdamaged, would cause significant impacts and/or
hamper rescue efforts during flood events. They can also
make the effects more widespread, like the loss of energy
substations or water supply would impact communities
some distance from the flood itself.
285. After the immediate impacts of the flood have been
addressed, the recovery process begins. This varies
depending on the scale of the damage but also on how
resilient or prepared the community were.
286. The Wales Flood Response Framework
74
was published in
2017 and explains how different partners and emergency
services respond to flooding in Wales. Whilst the
Framework’s primary aim is to inform those who participate
and support the response of communities affected by
flooding, it also gives the public information on how
responder agencies plan for, respond to and recover from
flooding incidents.
287. Local Authorities, as Category 1 responders under the
Civil Contingencies Act 2004, have a duty to prepare a
Response Plan containing information on training and
emergency exercises and their frequency, and shall cover
flood incident management. Emergency exercises must
75
be run at a local level to test the response, recovery
arrangements and emergency readiness.
288. Since 2017 the three Fire and Rescue Services in Wales
have had a duty to respond to flooding
76
.
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Review of flood events
289. The Wales Flood Response Framework outlines the need
for the Welsh Government to be made aware of events
resulting in flooding to properties from all sources.
290. We want RMAs to work with LRFs to develop a process
for managing and collating data on flooding in a standard
format to report to Welsh Ministers within an agreed
timescale. Thisshould reduce double-counting and provide
a consistent record of impacts between responders
Following a flood event, the Welsh Government
want to be made aware of immediate
impacts affecting properties allowing swift
decisions to be made on support
MEASURE 20: The Welsh Government, WLGA, NRW
and LRFs to standardise immediate reporting of flooding
to properties and erosion events by end of 2021,
in line with the Wales Flood Response Framework
Objectives supported: A, C and E
291. There are also opportunities to learn lessons, understand
more about the risk to that area and update models and
mapping with information on flood extents. The collection
and updating of such data takes longer and is not intended
to be a part of the above measure but to come alongside
Section 19 flood reporting.
292. Section 19 of the Flood and Water Management Act 2010
requires Lead Local Flood Authorities (Local Authorities in
Wales) to undertake investigations on floods and publish
its results. These are useful in understanding the full extent
of impacts, improving our data models and may inform
maintenance regimes or further alleviation works. The Local
Authority should notify NRW and the Welsh Government
once the investigation report is published.
293. In carrying out an investigation report, Local Authorities must
notify any relevant RMAs who have flood risk management
functions in relation to the event. We expect other RMAs,
including NRW, water companies and neighbouring Local
Authorities, to fully collaborate in these cases.
294. The Welsh Government wants RMAs to use Section 19
reports as part of local evidence in support of business
cases for future investment where appropriate, alongside
detailed modelling and assessment of future flood risk.
295. Whilst no threshold is set in statute, the Welsh Government
expects Section 19 reports to be undertaken where 20 or
more homes in one area experience internal flooding.
LocalAuthorities can choose a lower threshold and assess
this in relation to each event, noting that floods affecting
fewer homes can still cause considerable damage and/or
loss of life.
296. The length and complexity of Section 19 reports is for the
LLFA to decide and should be proportional to the scale of
flooding, if the cause of flooding is already well understood,
orthe type of action proposed.
297. Whilst the content is for the Local Authority to decide, every
report must cover the legislative requirements around
whether the relevant RMA(s) has exercised, or plan to
exercise its functions or powers in response to the flood.
In addition, and in support of the legal requirements, we
expect the reports to provide details on the scale of the
flooding and provide recommendations on further reducing
the risk of flooding infuture. We will continue working
with Local Authorities and the FCEC to make Section 19
reporting clearer for the public and less burdensome on
those producing them.
We want Section 19 investigation reports to
be simpler for Local Authorities to undertake
and easier for the public to understand
Measure 21: Flood and Coastal Erosion Committee,
WLGA and Local Authorities to collaborate and establish
high-level requirements and supporting guidance
for Section19 flood investigation reports by 2023
Objectives supported: A, C and E
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Funding Flood and Coastal Erosion
Risk Management
77 Figure covers capital and revenue from April 2012 to March 2021.
Funding and budgets for FCERM
298. Decisions on the allocation of funding for devolved
functions including flood risk management are made by
WelshMinisters who may provide revenue and capital
grants inrelation to FCERM activities.
Figure 16 – Summary of Welsh
Government investment since 2011.
299. Since the release of the first National Strategy, the Welsh
Government has invested over £600 million in FCERM
77
.
Thisincludes funding from the European Regional
Development Fund (ERDF), which ended in June 2015 and
the Coastal Risk Management Programme.
300. Our average annual investment (revenue and capital) in
FCERM in Wales over the past nine financial years (since
2011/12) has been £53.9 million.
£60,000,000
£50,000,000
£40,000,000
£30,000,000
£20,000,000
£10,000,000
£0
Revenue Budget Capital Budget Total Annual Budget
2014-15
2015-16
2016-17
2017-18
2018-19
2019-20
2012-13
2013-14
2020-21
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
47
301. Climate change is likely to increase the risk of flooding,
not only through sea level rise but also from more
frequent and intense storms, storm surges and increased
wave size. Wetherefore need to continue to invest in
FCERM across Wales.
302. Reports and reviews into recent flood events have shown
that the Welsh Government’s sustained investment in flood
risk management, defence assets, awareness raising and
warning systems have had a positive impact, lessening the
impact of storms and flooding to communities. However,
we cannot become complacent and need to accept that
similar or worse coastal storms will happen again and
investment needs to bemaintained.
78 gov.wales/flood-and-coastal-erosion-risk-management-grant-memorandum
303. The Welsh Government provides NRW and Local
Authorities with the opportunity to apply for grant funding
to support their role as RMAs to carry out flood and coastal
risk management activities. The process for applying for
this funding, including eligibility criteria and grant rates, is
set out in the FCERM Grant Memorandum
78
.
304. Funding is also available to water companies operating in
Wales where they are working alongside Local Authorities
and/or NRW on schemes and where the work being
carried out by them is outside of their statutory obligations..
Porthcawl Town Beach Sea Defence scheme
The Town Beach scheme, completed in 2019, upgrades the
original defence, constructed in 1887, as well as more recent
works which had reached the end of their operational life
and become vulnerable to damage and overtopping by the
sea during storm conditions.
The £3 million project is designed to reduce risk from
flooding and erosion to 260 properties including multiple
businesses and key infrastructure along the promenade.
The public were consulted throughout the process
and helped shape decisions on access and aesthetic
elements of the scheme. The new structure is made up of
5 interlocking pre-cast concrete sections in the form of a
terrace, the toe of which is protected by rock armour.
Thanks to these improvements the town beach area
remains a safe, viable and attractive place to live, work and
visit for current and future generations.
305. From 2019 our investment was boosted by the
commencement of the Coastal Risk Management
Programme which will support an additional £150 million
investment in coastal schemes. This programme has been
established to support Local Authorities in responding
to the challenges of climate change and implement the
actions and risk management set out in the SMPs.
306. The programme will enable a concentrated period of
investment over a 3 year construction period from April
2019 to support coastal schemes reduce the risk to homes
and businesses whilst also delivering wider benefits.
307. A new Small Scale Works Grant was introduced in 2016
to support Local Authorities carry out smaller works, NFM
and essential maintenance through a simplified process.
Thisfunding is available annually for works up to £150,000 and
has proved successful in driving delivery and risk reduction,
with £4.3 million allocated for such schemes in 2020-21.
308. Revenue remains a vital part of FCERM funding. It is
utilised by NRW and Local Authorities for work such as
flood forecasting, risk mapping, awareness raising and
maintenance of assets to ensure they continue to function
effectively.
309. The Welsh Government does not provide flood alleviation
or recovery grants to individual homeowners; it is the
responsibility of homeowners and businesses to ensure
their property has adequate insurance against flood
damage. Wefocus our funding on community or catchment
scale measures to reduce risk and realise greater benefits.
310. We encourage RMAs to submit business cases for
resilience measures on a community scale, such as flood
gates or small scale street improvements where the cost of
a major flood defence cannot be justified. The Small Scale
Works Grant is well-suited to such projects.
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48
311. We want to focus FCERM funding on preventative action,
i.e. putting in place measures to reduce the risk of flooding
occurring, rather than reactive work. However, there will
be times when flooding occurs and additional support
is required urgently by a RMA. This demonstrates the
importance of reporting flooding to the Welsh Government
so the need is evidenced and conversations around support
can start as soon as possible.
312. There is no automatic FCERM funding to RMAs who have
been flooded. Government cannot predict flooding events
and pre-allocate flood funds for such emergencies which
may not be utilised. However, the Welsh Government will
continue to consider support post flooding on a case-
by-case basis and have previously provided exceptional
support to repair critical FCERM assets and rebuild
resilience after flooding. Significantclean-up costs will
continue to be considered under the Emergency Financial
Assistance Scheme (EFAS)
79
.
Future funding and longer-term programme pipelines
313. The major flooding of 2020 has brought into sharp focus
the need for a compelling programme of investment
across Wales to ensure our defences remain fit for
purpose and to accelerate the delivery of new FCERM
schemes where required, acknowledging how such events
will happen more often with climate change.
314. Effective forward planning and programme delivery is key
to address growing flood risk. The Welsh Government
will work with RMAs to develop a 5 to 10 year investment
programme of future schemes. To help achieve this, and
aid the response to recent flooding, a package of changes
to the FCERM programme were announced in April
2020
80
.
315. The changes include a higher grant rate for coastal flood
and erosion schemes, plus full grant support for NFM
projects. In addition, 100% grant will be provided, over a trial
period, to develop business cases, carry out consultations
and draw up designs for flood and coastal schemes.
316. This package of support represents a renewed strategic
approach to provide the support our RMAs need,
whilstaccelerating delivery and building our resilience to
climate change with a stronger pipeline of future projects.
79 gov.wales/emergency-financial-assistance-bellwin-scheme-local-authorities
80 gov.wales/written-statement-flood-and-coastal-risk-management-programme-2020-21
317. A longer investment programme will also help to evidence
future FCERM funding requirements and assist the
transition from the Coastal Risk Management Programme
upon its completion in 2022. It will cover all FCERM
schemes, includingwider catchment approaches and NFM.
We want to build a stronger pipeline of FCERM projects
reflecting the increasing risk from climate change
MEASURE 22: The Welsh Government will work
with Risk Management Authorities to develop a
5 to 10 year investment programme pipeline
Objectives supported: A-D
318. The new Flood Risk Assessment Wales (FRAW) and National
Asset Database will further help to realise and communicate
the impact of FCERM investment by showing where assets
are improved and the associated reduction in risk.
319. In 2010, Environment Agency Wales published their Future
Flooding in Wales report, which helped to inform the level
of investment needed to manage flood and coastal erosion
risk. We want to see this updated using the latest climate
change projections and FRAW to inform future investment
needs for all sources of flooding and coastal erosion.
We want to update our long-term investment
requirements utilising the latest risk data
and climate change projections
MEASURE 23: NRW will work with Local
Authorities and the Welsh Government to publish
long-term investment requirements for FCERM,
complementing FRAW, by end of 2021
Objectives supported: A-D
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49
Prioritisation
320. The Welsh Government prioritises FCERM funding to
schemes which primarily reduce risk of flooding or
coastal erosion to existing homes. Businesses and
other infrastructure may also benefit, especially in larger
schemes, howeveradditional costs or protection to third
party assets must be subject to a partnership contribution
proportionate to those assets benefitting.
321. The Communities at Risk Register provides a consistent
way of considering and ranking flood risk from all sources.
We have made a commitment to use this to help prioritise
investment, however in doing so acknowledge this is
just one tool in this process. Locally available information
on past flood events is just as important and is also
considered in prioritising the FCERM programme.
322. A methodology for prioritising FCERM funding was approved
in 2018 after consultation with RMAs, which includes:
• Communities at Risk Register ranking
• Details of previous flood events
• Properties benefitting
• Benefit to cost ratio
• Opportunities for wider benefits
• Opportunities for partnership funding
323. Funding is available to support schemes which reduce
risk to existing homes and businesses or maintain an
original standard of protection. This includes new FCERM
assets, maintenance or improvements to existing assets,
development of future schemes, carrying out NFM or
installation of property resilience measures to support
communities at risk.
324. There is no fixed standard of protection; however the
Welsh Government encourages alleviation schemes which
remove homes from high or medium risk (less than a 1%
risk of fluvial flooding or 0.5% risk of coastal flooding). This
helps FCERM policy to align with planning and insurance
standards.
325. FCERM funding is not available to enable new
development and schemes reducing the risk solely to new
homes or businesses will not be prioritised.
Wider benefits and partnership funding contributions
326. In line with the Wellbeing of Future Generations Act 2015
and the FCERM Business Case Guidance, RMAs applying
for funding are encouraged to identify wider benefits which
could be achieved through their FCERM schemes. This
could includeregeneration opportunities, improvements to
habitats/biodiversity, mental health or recreational benefits.
327. Recent examples of schemes with wider benefits include:
• The flood alleviation scheme at Tal-y-bont, Gwynedd,
which also benefits the A55 Trunk Road, reducing the risk
of road closures on this vital link;
• The Swansea Vale Scheme which, whilst reducing risk to
homes and businesses, also provides recreational and
biodiversity benefits; and
• The Colwyn Bay coastal scheme which allowed for
regeneration of the area, increasing tourism and jobs
forthetown.
• Extensive amenity improvements to parkland at Roath
Brook flood scheme
Amenity improvements at Roath Brook
The Roath Brook Flood Scheme benefits 360 homes and 45
businesses in the community. NRW were able to integrate
improved flood protection within an Edwardian park garden
and improve the public realm, softening hard features
with urban landscaping, upgrading paths and adding new
access to the park gardens.
The scheme reduced risk by making improvements at
several locations, widening the river channel and replacing
a road bridge to increase the brook’s flow capacity
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
50
328. The Welsh Government wants to encourage greater
consideration of partnership funding to attract further
investment in FCERM. An approach to partnership funding
was introduced by DEFRA in 2011 and has been recently
reviewed
81
.
329. Partnership Funding can deliver innovative approaches
to managing flood and coastal erosion risks. Early
consideration of how multiple funding factors can be
introduced to reduce costs ought to be considered. Thus
bringing joint solutions together with different aims of
partners and potential investors. In turn this will deliver
wider benefits on a much larger scale than those related to
flooding or coastal erosion alone.
330. Where significant benefits are identified to third parties, itis
expected RMAs will work both internally and externally (for
example with infrastructure providers, utilities, industry and
commerce) to identify and secure appropriate partnership
funding contributions from those benefitting from a scheme.
331. Such partnerships can bring considerable additional
benefits and offer better value to each party than
working separately. However, we also acknowledge such
discussions are not straightforward and will be influenced by
existing priorities and work programmes within each sector.
Understanding and sharing long-term programmes can help
identify such opportunities well in advance to enable a more
collaborative approach to partnership funding.
81 Defra: Further evaluation of partnership funding - FD2702 (2018)
332. Where benefits to homes plays a minor role in a scheme
being developed and the main beneficiary is to other
assets or commercial sectors, these schemes are
unlikely to be prioritised for funding through the FCERM
programmes. However, financial contributions to such
schemes could be considered based on the proportion of
benefit to homes.
We will encourage partnership funding
contributions in Wales and learn from the
approaches established elsewhere
MEASURE 24: The Flood and Coastal Erosion Committee
will explore opportunities to maximise partner
contributions and investment in FCERM by 2022.
Objectives supported: C
Partnership work and hybrid approaches
Cwmaman Flood Alleviation Scheme, Rhondda Cynon Taf
This 2019 scheme benefitted from a partnership approach
with a new school under construction.
Cwmaman is a former mining village situated on a steep,
reactive catchment. Eight storm events in 2018 had resulted
in widespread flooding, impacting highways, residential and
commercial properties, two schools and three sub-stations.
With over 1km of deep culverts it was impractical to increase
capacity so alternative approaches were created to reduce
and delay peak flows.
The project redesigned the existing weir to provide storm
water attenuation within the upper catchment area during
heavy rain, reusing reclaimed materials.
The £1.05 million project recycled suitable excess material
from the school development as aggregate for the flood
alleviation scheme
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51
Monitoring and Reporting of this National Strategy
333. Section 18 of the Flood and Water Management Act 2010
sets out how information on the application of this Strategy
must be reported to Welsh Ministers by NRW.
334. The Flood and Coastal Erosion Committee has agreed
to provide an independent review of each Section 18
report prior to publication, at the request of the Welsh
Government
82
.
335. The Section 18 report will be produced every two years
after publication of this Strategy. It should:
• provide an update on its measures and objectives;
• include dialogue on how the lead(s) have undertaken
eachmeasure;
• assess the level of flood and coastal erosion risk in Wales;
• details of major new FCERM schemes and projects;
• reference major flooding incidents and link to the
[Section 19] reports;
• provide examples of good FCERM practise in Wales,
including but not limited to, novel or innovative projects,
theuse of NFM, partnership working, information
provision and community participation.
82 Under part 9 of the Flood and Coastal Erosion Committee for Wales Regulations 2017
83 Under Sections 13 and 14 of the Flood and Water Management Act 2010
336. Welsh RMAs must co-operate with NRW and Welsh
Ministers in the preparation of the Section 18 Report
83
.
337. The Strategy and Section 18 reports will be utilised to
monitor and report reductions in the number of properties
at risk and progress against measures.
The Welsh Government will also publish a
summary of this National Strategy online.
The following pages summarise the National
Strategy aim, objectives and measures.
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52
338. The aim and objectives for this National Strategy are shown below followed by a table containing each measure, background to the
reason for the measures and links to which objectives they will help to deliver.
Summary of Measures
Number Background Measure Lead Objective supported
1 The Welsh Government has
asked the Flood and Coastal
Erosion Committee, in its
advisory capacity, to consider
and recommend changes
to legislation to enable
improvements to FCERM in Wales
Flood and Coastal Erosion
Committee to establish the
scope and consider the need
for changes to legislation to
clarify and support the delivery
of FCERM in Wales by 2022
FCEC A-E
2 Coastal risk should be
managed using the best
available information
Delivery of annual topographic
surveys by Wales Coastal
Monitoring Centre on behalf
of Coastal Groups to measure
change in the most at risk
coastal areas in Wales
Coastal Groups and WCMC A and C
3 We want the public to understand
the risk of flooding to their
property. The new Flood Risk
Assessment Wales (FRAW) will
identify the flood source and level
of risk to all communities in Wales
NRW to publish new FRAW maps in
2020 alongside the Strategy and
update every 6 months to reflect
changes in National Asset Dataset
NRW A-E
4 We want to monitor the reduction
in risk and benefit to properties
as a result of our investment
NRW to provide data on
the number of homes and
businesses at high, medium
and low risk of flooding from
all sources on an annual basis
based on FRAW updates
NRW A and C
Reduce the risk to people and communities from flooding and coastal erosion.
A. Improving our understanding and communication of risk
B. Preparedness and building resilience
C. Prioritising investment to the most at risk communities
D. Preventing more people becoming exposed to risk
E. Providing an eective and sustained response to events
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Number Background Measure Lead Objective supported
5 To ensure the public and
stakeholders are using the
most up to date information on
flood risk and coastal erosion
Risk Management Authorities to
update maps, plans and data in
line with the schedule set out in
Figure 12 of the National Strategy
NRW, Local Authorities A-E
6
To support decision making
and reflect reduced risk
from investment
NRW and Local Authorities will work
together to ensure that by end of
2021 the National Asset Database
will contain data on FCERM
assets owned or designated by
Risk Management Authorities
NRW, Local Authorities A-D
7 NRW will work with Local
Authorities to develop a process to
ensure all updates are incorporated
in the National Asset Database
within 6 months of any completed
works or changes otherwise
required, by the end of 2021.
NRW, Local Authorities A-D
8 NRW to utilise the National
Asset Database to ensure
Wales Flood Map reflects the
reduced risk from all flood
alleviation schemes by 2022
NRW A-D
9 To provide easily accessible
information for the public
on coastal erosion
NRW to ensure the National
Coastal Erosion Risk Map (NCERM)
matches SMP policies by 2021
and shows erosion rates as
bands in the Wales Flood Map
products by end of 2022
NRW A-E
10
Action Plans arising from
the SMPs set out measures
relevant to each stakeholder,
and are for Coastal Groups
to monitor and progress
Coastal Groups to report annual
progress on SMP Action Plans to
the Welsh Government through
the Wales Coastal Group Forum
Coastal Groups A-D
11 Coastal Groups to report on
the implementation of SMP2
epoch 1 policies, through Wales
Coastal Group Forum to the
Welsh Government, by 2025
Coastal Groups A-D
12 We want to improve
awareness and access to
information on flood and
coastal risk management
NRW to complete their online
flood information improvements,
working with WLGA and Local
Authorities, by 2021. This will
include publication of the
Wales Flood Map products,
understanding flood warnings
and advice on building resilience
and responding to flooding
NRW A, B, D and E
13
We want to encourage the
take-up of NFM in Wales. We
will support pilot studies and
interventions designed to reduce
flood and coastal erosion risk to
better understand its benefits
The Welsh Government will fully
fund NFM schemes for a trial
period, commencing 2020/21, and
publish new guidance to further
encourage take-up and the sharing
of lessons on its practical delivery
Welsh Government A, B and C
14 The Welsh Government will work
cross policy to ensure NFM is
considered in wider land and water
management, including agriculture
and in NRW Area Statements
Welsh Government A, B and C
15 We want to see NFM as an
option for every FCERM scheme
as set out in our FCERM
Business Case Guidance
The number of NFM and hybrid
schemes undertaken will be
reported to the Welsh Government
annually through grant reporting,
and reported to Welsh Ministers
by NRW in the Section 18 report
All RMAs A, B and C
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Number Background Measure Lead Objective supported
16 We will ensure the requirement
for SuDS in new properties
is being implemented and
working as intended
The Welsh Government
to commence a review of
the effectiveness of SuDS
legislation in 2021
Welsh Government B and C
17 We want Planning and FCERM
policies to complement each
other, reducing risk by preventing
inappropriate development
in the flood plain and helping
Planning Authorities make
clear decisions based upon
the best available information
The Welsh Government to update
TAN15 by 2021 recognising the
flood risk information now available
to Local Planning Authorities
Welsh Government B and D
18 We need clear advice on coastal
adaptation for Risk Management
Authorities and communities
The Welsh Government to work
with the Coastal Groups and NRW
to develop further guidance on
coastal adaptation by 2022
Welsh Government
and Coastal Groups
A, B and D
19 NRW will manage the
requirements for the National
Habitat Creation Programme
NRW to develop and establish
an appropriate monitoring
programme to support and
inform the National Habitat
Creation Programme by 2022
NRW C
20 Following a flood event, the
Welsh Government want to be
made aware of immediate impacts
affecting properties allowing swift
decisions to be made on support
The Welsh Government, WLGA,
NRW and LRFs to standardise
immediate reporting of flooding to
properties and erosion events by
end of 2021, in line with the Wales
Flood Response Framework
Welsh Government/
Wales Flood Group
A, C and E
21 We want Section 19 investigation
reports to be simpler for Local
Authorities to undertake and
easier for the public to understand
Flood and Coastal Erosion
Committee, WLGA and Local
Authorities to collaborate
and establish high-level
requirements and supporting
guidance for Section19 flood
investigation reports by 2023
FCEC/WLGA and
Local Authorities
A, C and E
22 We want to build a stronger
pipeline of FCERM projects
reflecting the increasing
risk from climate change
The Welsh Government will work
with Risk Management Authorities
to develop a 5 to 10 year
investment programme pipeline
Welsh Government
and all RMAs
A-D
23 We want to update our long-
term investment requirements
utilising the latest risk data and
climate change projections
NRW will work with Local
Authorities and the Welsh
Government to publish long-
term investment requirements
for FCERM, complementing
FRAW, by end of 2021
NRW A-D
24 We will encourage partnership
funding contributions in Wales
and learn from the approaches
established elsewhere
The Flood and Coastal Erosion
Committee will explore
opportunities to maximise
partner contributions and
investment in FCERM by 2022
FCEC C
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Glossary/Definitions
Accretion:
The gradual extension of land by natural forces, as in the
addition of sand to a beach by the sea, or the extension
of a floodplain through the deposition of sediments by
repeatedflooding.
Climate Change Adaptation:
Adjustments in natural or human systems in response to actual
or expected climate change, or its effects, which moderates
harm or exploits beneficial opportunities.
Climate Change Mitigation (also known as Decarbonisation):
Intervention to reduce the sources of, or to enhance the
sequestration of, greenhouse gases.
Coastal adaptation:
The process of adjustment due to actual or expected climate
change. Adaptation seeks to moderate or avoid harm
tocommunities.
Coastal erosion:
The wearing away of land and the removal of beach or
dune sediment by wave action, tidal currents, wave currents,
drainage, weathering or high winds.
Coastal erosion risk:
A measure of potential coastal erosion in terms of likelihood
and impact.
Coastal erosion risk management authority
Defined under the Coastal Protection Act 1949, as amended
through Schedule 2 of the Flood and Water Management
Act 2010. Authorities with certain powers to carry out coastal
protection work. In Wales, these are the coastal Local
Authorities and NRW.
Coastal Risk Management Programme:
This programme has been established to help Coastal Local
Authorities deliver actions in the Shoreline Management Plans.
FCERM Business Case Guidance:
The Welsh Government guidance on preparing a business
case for FCERM capital funding, issued to Local Authorities and
NRW and published by the Welsh Government.
Flood and Water Management Act 2010:
An Act of Parliament updating and amending legislation to
address the threat of flooding and water scarcity.
Flood and Coastal Erosion Committee (FCEC):
An independent advisory body to the Welsh Ministers and
Welsh Risk Management Authorities on matters relating to flood
and coastal erosion risk management.
Flood Risk Assessment Wales (FRAW):
A national assessment of risk from all sources of flooding for
public and professionals.
Flood and Coastal Erosion Risk Management (FCERM):
The management of all aspects of flood and coastal erosion
risk through understanding risk (probability and consequence)
and seeking to modify these factors to reduce its impacts.
Green infrastructure:
Provides flood risk management solutions, traditionally done
with hard engineering, by utilising the natural properties of
native vegetation. Green measures involve exclusive use
ofnatural materials to manage risk.
Green-grey interventions:
Enhancement of grey infrastructure projects to create and
deliver environmental/ biodiversity benefits. Green-Grey
measures use natural materials in combination with traditional
engineered materials to reduce risk.
Groundwater:
Water held underground in the soil or in pores and crevices
inrock.
Hybrid schemes:
The use of Natural Flood Management alongside traditional
interventions.
Internal Drainage Board (IDB):
An operating authority which is established in areas of special
drainage need in England and Wales with permissive powers to
undertake work to secure clean water drainage and water level
management within drainage districts.
Lead Local Flood Authority (LLFA):
Local Authority (the County Council or County Borough Council)
for the area as defined in the Flood and Water Management Act.
Likelihood:
A term describing the chance of something happening,
normally in terms of very low, low, medium or high likelihood,
and with the everyday phrases ‘possible but not expected’,
‘possible’, ‘probable’ and ‘expected’. Can also be expressed
asa percentage, e.g. 1% chance of flooding each year.
THE NATIONAL STRATEGY FOR FLOOD AND COASTAL EROSION RISK MANAGEMENT IN WALES
56
Local Resilience Forum:
A group required under the Civil Contingencies Act, 2004 who
are responsible for the coordination of emergency planning in
local areas.
Main river:
A watercourse shown as such on the Main River Map, and for
which NRW has responsibilities and powers, to protect, risk of
life where there is real evidence of a flood risk.
Maintenance:
Work done to preserve the condition of a defence and maintain
a standard of protection.
Measure:
Actions specified to achieve the objectives for managing flood
and coastal erosion risk.
National Asset Database:
A database of flood assets managed by NRW. Intended to
improve the analysis and mapping of risk and maintenance
of those assets. It will hold data on flood assets maintained
by RiskManagement Authorities, with detail on their location,
ownership and condition.
National Coastal Erosion Risk Management (NCERM):
The National Coastal Erosion Risk Management map shows
the estimated erosion extents based on current understanding.
Themaps show scenarios under the agreed SMP policy as well
as under ‘no active intervention’ over the 3 SMP periods.
Nature Based Solutions:
Natural Flood Management (NFM) is sometimes referred to as
nature based solutions, particularly in the Natural Resources
Policy, however, the NFM term is more widely used and
recognised in flood risk management.
Natural Flood Management (NFM):
Measures that help to protect, restore and emulate the natural
functions of catchments, floodplains, rivers and the coast.
NFM takes many different forms and can be applied in urban
and rural areas, and on rivers, estuaries and coasts. This term
covers both coastal and flood risk management solutions in
thisdocument.
Ordinary watercourse:
All watercourses that are not designated as main river, and
which are the responsibility of Local Authorities or, where they
exist, Internal Drainage Boards.
Risk Management Authority (RMA):
A Welsh Risk Management Authority is defined in Section 6 of
the Flood and Water Management Act 2010 as NRW; a Lead
Local Flood Authority, a district council for an area where there
is no unitary authority, or a highway authority wholly in Wales;
an internal drainage board for an internal drainage district that
is wholly or mainly in Wales; a water company that exercises
functions in relation to an area in Wales.
Recovery:
The process of rebuilding, restoring and rehabilitating a
community following an incident.
Shoreline Management Plan (SMP):
A large scale assessment of the risks associated with coastal
processes and helps reduce these risks to people and the
development, historic and natural environments. Shoreline
Management Plans are based on sediment cell boundaries
relating to the movement of sand and shingle along the coast.
Sustainable Drainage System (SuDS):
Approach to surface water management which helps to
deal with excesses of water by mimicking natural drainage
processes.
Surface water flooding:
Also known as pluvial flooding. When the rate of rainfall
exceeds the rate that water can infiltrate the ground, soil or
drainage systems.
Surface water runoff:
The amount or rate of water sheeting off land into watercourses
or causing flooding elsewhere.
Technical Advice Note (TAN) 15 –
Development and FloodRisk:
TAN 15 supports Planning Policy Wales and provides advice
regarding development on flood plains, including consideration
of flood risk from all sources.
Wider benefits:
Wider benefits help to deliver the Wellbeing of Future
Generations objectives providing additional gain. In the context
of this Strategy, those gains or benefits would be through
the delivery of flood and coastal erosion risk management.
Thismeans that aside from reducing the flood or coastal
erosion risk to a community, a scheme may deliver other
benefits such as recreation, tourism and/or biodiversity.