WGF Thematic Workshop-Stakeholder involvement in flood risk management, back to back with WGF12 Common Implementation Strategy Working Group F on Floods WG F Thematic workshop on Stakeholder involvement in flood risk management 17-19 April, 2012 Bucharest – Romania, Parliament House, Nicolae Balcescu Hall (back-to-back WGF 12) Bucharest 17-19 April , 2012 Introduction As part of a series of workshops looking at the implementation of Directive 2007/60/EC on the assessment and management of flood risks, the ‘Floods’ Directive, Working Group F will organize a two day thematic workshop in Bucharest, Romania during April 2012 on the subject of “Stakeholders involvement in flood risk management”. The event will be hosted by the Romanian Government with support from the ICPDR and Danube Floodrisk Project Management Team and Steering Committee. The two main aims of WG F are: a) To support the implementation of the Floods Directive b) To improve information exchange related to the Floods Directive. The objectives of WG F are to: a) Provide the means for the implementation of the Floods Directive b) Create a platform for coordination with the Water Framework Directive c) Enable links with other CIS activities d) Provide a platform for information exchange on: - Relevant Issues and Outline for the WGF Thematic Workshop on Stakeholder Engagement There are real and substantial challenges for flood risk management in the future in relation to those most vulnerable to flooding and the likely consequences of climate change on the frequency and nature of flooding and its impact on different stakeholder groups. The ‘Floods’ Directive (Article 10) requires Member States to make available to the public the PFRA and the flood maps, and to encourage active involvement of interested parties in the production, review and updating of the flood risk management plans (FRMPs). This process shall be coordinated as appropriate with the involvement of interested parties in the preparation of River Basin Management Plans (FD art 9.3, WFD Art 14). The WFD process set out in article 14 of that Directive, with which the FRMP preparation and consultation needs to be coordinated, requires : o consultation on the workprogramme for the preparation of RBMP to start at the latest 22.12.2012, o consultation on significant water management issues to start at the latest 22.12.2013 and o consultation on draft River Basin management plans to start 22.12.2014. Each of these stages of consultation needs to run for at least 6 months. In previous WG F Thematic workshops, the role of stakeholder involvement has been raised on a number of occasions as a topic for which EU level information exchange on good practices needs to be further developed. The public and stakeholders, through constructive engagement, can help inform the development of the flood maps and FRMPs, as well as benefit from the outcomes. Relevant stakeholders include a wide range of interests, including national, regional and local ministries and authorities, international river commissions, civil protection and emergency response services, land use planners, the insurance industry, the scientific community as well as flood risk managers and the general population. In relation to flood maps, stakeholders and members of the public can help provide local information to enhance the accuracy of the maps and provide input in relation to the formats to ensure that the maps provide optimum benefit to end-users for purposes such as awareness raising of risk, public and institutional preparedness and planning for flood events (including flash floods), enhanced resilience, and the promotion of sustainable development and land use planning. Similarly, the public and stakeholders have important roles to play in the preparation of the FRMPs, particularly in relation to: - Setting flood risk management objectives - Identifying important local issues that should be considered when assessing appropriate measures - The decision-making process for the selection of measures (MCA, benefits and costs) - The criteria for prioritisation of measures When considering public and stakeholder engagement, as well as the dissemination of information, it is important to consider: - The objectives and target audience of the engagement or dissemination (i.e., who the stakeholders are), - The most appropriate and effective timing of the consultation for different stakeholders - The scale and scope of the engagement, taking into account the need for information exchange and / or cooperation between local, regional, national and international authorities - The mechanism or media by which the engagement or dissemination might be undertaken (e.g., web-based publication or consultation, such as internet-based flood mapping portals, publicity campaigns, public exhibitions, public meetings, community group liaison, workshops, etc.) - The format, content and tools for implementing the engagement or applying in dissemination The workshop will examine each of the above issues thematically when considering flood maps and FRMPs, with consideration of the differences between public and institutional stakeholder engagement. The awareness and understanding of members of the public and stakeholders of the risk of flooding, and how they should respond in the event of a flood is also essential for effective emergency response and community resilience. Purpose To promote wider benefits for the local environment, community and biodiversity by - Involving stakeholder engagement, including communities - Delivering a common language / terminology in presenting the flood risk management plans, maps and assessments - Better presentation of the natural features and processes for stakeholders and communities understanding and compliance of flood risk management - Identification with the local communities local sustainable solutions which are self maintaining with long term benefits, integrating the general futures determined at the basin level - Preparation of an adaptable Plan of measures to changes, including climate change, that will be shared with communities and stakeholders to get a common consensus The specific purpose of the WG F Thematic Workshop on “Stakeholder involvement in flood risk management” will be to consider and exchange information on the effective and efficient involvement of, and communication with, stakeholders and the public throughout the implementation of the ‘Floods’ Directive. In the workshop, the preliminary results of the DANUBE Floodrisk Project shall also be outlined, to present actions identified in the Flood Risk Management Plan, to explore implications in flood risk maps production, and to brainstorm and discuss the actions needed for securing the long-term matching of needs of using of flood risk maps by the stakeholders, end-users and exposed population. About the EU DANUBE Floodrisk project, and its relevance for the proposed workshop The EU DANUBE Floodrisk Project was launched to support activities implementing the Floods Directive in the region. The project is closely linked to the ICPDR Flood Protection Expert group, providing solutions for method integration and stakeholder involvement at a large transnational basin scale as Danube. The DANUBE FLOODRISK project focuses on the most cost-effective measures for flood risk reduction: risk assessment, risk mapping, involvement of stakeholders, risk reduction by adequate spatial planning. Partners from 19 institutions in the Danube countries, from central public bodies, universities, research institutes and operational agencies, NGOs are implicated in the project and coordinated by the Lead partner which is the Ministry of Environment and Forests, in Romania. With the overall objective of the EU DANUBE Floodrisk Project "Stakeholder oriented flood risk assessment for the Danube floodplains" being the improvement of the socio-economic conditions of the population in the Danube floodplain through the use of flood risk mapping, it is thus evident to recommend the Leading Partner (LP) Romania as a host for this workshop. The DANUBE Floodrisk Project already seeks to take account of the social consequences of flooding through differentiated approaches to communication, changes to risk assessment methodologies and aspects of flood resilience measures and land use planning, in line with the provisions of the Flood Risk Management Plan. The WG F Thematic workshop on the role of participation in the implementation of the Floods Directive will therefore be linked to this project. Workshop Format The Stakeholders Workshop will consist of a two day meeting, and will be held back-to-back with a one day meeting of WG F the following day, bringing together experts of the WG F, of projects implemented for flood risk mapping and flood risk management plans, together with representatives of stakeholders and end users. The Conference is organized in sessions chaired by designated officials, with introductory presentations and panel discussions on the respective topic. The panellists will present brief initial thoughts and then lead discussion sessions so that participants can gain greater depth in one or other of the topics. A brief questionnaire and call for papers will be issued to WG F prior to the event with a view to collecting the latest research, information on relevant projects, as well as good practices and examples. Outputs The workshop will produce two principle outputs: A Workshop Report for WG F, that will include the key findings and recommendations of the workshop, outcomes of analysis of the proposed questionnaire and examples of good practice in public and stakeholder engagement A Strategy Document, under the EU Danube Floodrisk Project, that will set public and stakeholder consultation in the broader context of flood risk management Participants The following Participants are be invited: WG F Member States and stakeholders representative (including NGOs, stakeholders) Participants from non-EU members of the ICPDR Flood Protection expert group Representatives of other international river commissions (Rhine, Sava, Tisza Rivers) Local Municipal Officials and/or basin managers/Basin Committee coordinators (from selected areas with flooding problems, representatives to be identified via WG F) Non-Governmental Organizations (WWF, REC, DEF, local) Other private stakeholders, including representatives of insurance companies Selected public relations experts: Peter Heilland, Germany, Job Udo, HKV Netherlands (list will be completed) Program Committee Ministry of Environment and Forestry of Romania (MEF) ICPDR Secretariat WWF, DEF, representatives WG F Members: Mark Adamson (WGF co-chair) Heinz Stefelmeyer -AT, Arpad Szentivanyi -HU, Giuseppina Monaceli -IT, Barbro Naslund - SW DG ENV: Maria Brattenmark Danube Floodrisk: Dr. Robert Konecny -AT, Prof. Dr. Radu Drobot –RO Dr. Peter Bakonyi - HU Organizing Committee MEF: Dan Carlan, General Director Gheorgeh Constantin, Water Director for RO, Olimpia Negru, Flood Risk Management Directorate ANAR:Ovidiu Gabor, Deputy General Director Elena Tuchiu, Director for WFD implementation for RO INHGA: Dr. Petre Stanciu, Director Dr. Mary-Jeanne Adler, Scientific Director Annex 1: Comments from previous WG F Thematic workshops to be taken on board General issues – role of stakeholder involvement in integrated flood management: The report from the Catchment approach to flood risk management (UK, 2009) includes the first concerted effort to focus on the importance of stakeholder involvement, and should be a starting point for development of the specific Thematic workshop. The importance if the issue hs also been raised in all other workshops, with some examples given below covering different aspects of flod risk management, to be further developed during the proposed workshop. Involvement of stakeholders at the catchment level, such as communities, landowners, citizens is at the heart of integrated planning in flood risk management. Participation is important as a means to improve decision making and deliver better solutions on the ground. Different levels of participation – information supply, consultation and active involvement – are not mutually exclusive. They build on each other and different levels of participation can be used at different stages. (Summary, Catchment approach workshop, UK, 2009). There are good examples in Europe of stakeholder engagement in flood risk management, these examples should be reviewed to develop appropriate and sustainable engagement methods , such as the Common Implementation Strategy (CIS) guidance on public participation and other guidance from Member states) on stakeholder engagement should be revisited to draw out best practice guidelines for flood risk management. (Recommendation, Catchment approach workshop, UK, 2009). The raising of public awareness for flood risk was also regarded as being most essential and special emphasis (Recommendation Land use and local planning workshop, AT/SI, 2008) Art 4 – on the role of public information on the PFRA The issue of public information at the stage of the Preliminary Flood Risk Assessment is important, as the public needs to understand what that assessment entailed. Therefore Guidelines (handbook) for general public on information use and interpretation should be prepared. (Recommendation PFRA workshop, CZ, 2009) Public will not be probably interested in methodologies. On the other hand they will want to see maps and some of relevant historical information (in different level of details than experts). (Open Question PFRA workshop, CZ, 2009) Art 7. – on the role of stakeholder involvement and communication in the flood risk management to reduce flood risk The successful implementation of revitalisation measures needs broad-based support. Soliciting this support requires profound education, communication, citizen involvement and information on the effectiveness and the cost-benefit of such measures. (Recommendation Land use and local planning workshop, AT/SI, 2008) Methods (e.g. Multi Criteria Analysis) used for setting objectives and selecting measures should be considered by involving relevant stakeholders and the results from these methods should be transparent and understandable for the public and politicians (Conclusion, Flood risk management plan workshop, NL, 2010). In the process of decision making in flood risk management, economic assessment is not the only instrument, but EU Member States recognise the key role of it in flood risk analysis and in selecting and prioritising measures to manage flood risks. Economic assessments can provide reliable information for politicians and stakeholders, and they can justify and explain prioritisation of measures and allocation of resources to execute them. Member States clearly plan to intensify their efforts in this field. (Conclusion, Floods and economics workshop, BE, 2010) Stakeholders can discuss on relative weights of criteria in the decision frameworks, but it is questioned that it always leads to an acceptable outcome. (Conclusion, Floods and economics workshop, BE, 2010) Developing a better understanding of phenomena and processes is crucial for selecting the best measures. Communication and participation are the main measures to invest on in order to choose the best other measures to be implemented. The range of possible measures, structural and non-structural, should be widened (e.g. free space, erodible corridor, warnings, delocalization). (Key conclusion, Flash floods and pluvial floods workshop, IT, 2010) There should be a common understanding of ways to increase preparedness (including self help measures) and through this raise the level of resilience to both FF and PF. The importance of education and awareness raising must be recognised. Information according to target: message translation from the expert to the public including adaption to local conditions. The "right behaviour" in a rapid onset flood event needs to be identified and communicated to the public. A "common langue" on for instance extreme events needs further discussion, including in relation to communication witht e public for preparedness. . (Recommendations, Flash floods and pluvial floods workshop, IT, 2010) On socio-economic considerations: We should concentrate on informing and educating. We should aim at producing appropriate behaviour in floods (like learning to drive, and avoiding driving into flash floods (many casualties). Post-flood survey should also collect information about social understanding. (Recommendations, Flash floods and pluvial floods workshop, IT, 2010) Collect together experience on communicating risk. Mark protected areas as flood prone areas; using of right language is important. Avoid being too complex in presenting flood risk. Raise responsibility for selfprotection; prepare population with simple reflex. Transfer knowledge and understanding to people. Use animation and images. (Recommendations, Flash floods and pluvial floods workshop, IT, 2010) How to communicate uncertainty to the public needs further consideration. (Open question, Flash floods and pluvial floods workshop, IT, 2010) Art 9.3 – on involving different sectors of interested parties in the preparation of flood risk management plans There is a need for a “working” example (best practice) on how to involve other sectors in flood risk management (e.g. spatial planning, energy sector, finance possibilities). (Recommendation, Flood risk management plan workshop, NL, 2010). Art 10.1 – the role of publicly available information, such as maps and plans For the purpose of FRMPs, maps are important for public participation, but they should not be too complicated and easy to understand for the public. These maps should focus on the areas of potential significant flood risk. People are mainly interested whether their property will flood or not, so a minimal level of detail is necessary. It is important to show comparable numbers (like numbers of houses and people affected), and they should be harmonised as much as possible. (Recommendation Floods and economics workshop, BE, 2010) Tools to communicate potential measures with stakeholders and public need to visualize measures and effects in a logic, trustful, understandable and attractive way enabling reference to the users area of living. (Conclusions, Flood risk management plan workshop, NL, 2010). Active involvement of all interested parties in the process is important to develop a Land use planning ownership of FRMPs. COMMENT: The most important factor in the success of reducing damage from floods is the commitment of land use planners and decision makers at the local level to prevent development of flood prone areas. (Recommendation/Statement, Land use workshop, NO, 2007) The possible implications for private parties (e.g. policies of insurance companies) while implementing legal arrangements that link spatial planning to risk management need to be considered. (Conclusions, Flood risk management plan workshop, NL, 2010). Communicating food risk to interested parties is one challenges, communicating with "un-interested" parties is another challenge. Further work is needed on how to communicate flood risk to actors in areas where there is no (recent) experience of floods. (Open question, Flash floods and pluvial floods workshop, IT, 2010) Annex 2 - Draft programme AGENDA WGF Thematic workshop: Stakeholder Involvement in Flood Risk Management 17-19 April, 2012 Bucharest – Romania (back-to-back WGF 11) First day 9:30 – 10:00 Registration 10:00 – 10:30 OPENING ADDRESS Minister, Mr. Laszlo Borbely Lead partner representative (MJA) 10:30 – 11:30 SESSION 1: INTERNATIONAL BASINS AND STAKEHOLDER INVOLVEMENT / DANUBE FLOOD RISK MAPPING PROJECT – A BASIS FOR A SAFER PLACE Chair: tbc Introduction: Philip Weller, ICPDR Executive Secretary Flood risk management plans - the role of stakeholder participation in the preparation of River Basin Management Plans in the Danube - lessons learnt for the Flood Risk Management Plans Mary Jeanne Adler (MJA), Romania - Project Leader The Danube Flood Risk mapping project, and the relevance for stakeholder participation Other projects in international basins presentation Facilitated Dialogue The session will present the findings of the Danube River Basin Management planning process including the development of Flood action programmes, with particular emphasis on the important projects in hazard and risk mapping and flood risk management in the Danube Basin and the European scale as Danube Floodrisk, Floodsite, Floodrisk, ConHaz, SAFER, ELLA, EFAS, ERA-Net CRUE project RISKMAP etc. and the key themes of this workshop (themes session 2 to 6). 12:00 – 13:00 Lunch break 13:00 – 15:00 SESSION 2: FLOOD MAPPING - INPUT FROM AND DISSEMINATION TO THE PUBLIC AND STAKEHOLDERS Chair: tbc Introduction: 13:00 - 13: 40 : Presentation of Invited / Submitted Papers (Max 4 no. 10 minute presentations) 1 Proposals for themes: - The approach of social milieus in flood risk communication on the local level in an Austrian alpine valley a success story Benefits of new media for regional public participation in flood risk communication The ERA-Net CRUE project RISKMAP 13.40:-14:00 Panel discussions 1. How to ensure local knowledge is taken on board in the production of local/national flood risk and hazard maps. Good practice methods and experience sought. 1 A call for papers will be carried out via WG F and to selected projects, for the steering committee to chose specific presentations. 2. Guidelines for general public on information use and interpretation – Peter Heiland 3. Planning web-sites for national mapping information dissemination (best practice examples) - Tools for delivering flood mapping information at local /national level. 14:00-15:00 Facilitated Dialogue (breakout sessions with 3 discussion topics) 1. This session will focus on the best ways of involving the local population in the preparation of flood hazard and flood risk maps, to make sure the best use can be made of local and historical sources of information. Methodologies for how best to ensure this will be explored, as will potential barriers and good practices. A strong link to the immediate recovery and review phase can be made, but the issue on how to involve the local communities which have not recently been flooded and where the awareness may be lower. 2. This session will address issues related to what the general public is interested in? The public will probably not be interested in methodologies. On the other hand they will want to see maps and some of the relevant historical information (in different levels of detail than experts). It is important to show comparable numbers (like numbers of houses and people affected), and they should be harmonised as much as possible. Public awareness for flood risk is essential for preventing losses – safety measures, guidelines for behaviour, for building in secure way, etc. that are specific for the risk areas could be important tools for preventing losses. 3. WISE is meant to be a European level tool for making flood maps across the EU available, and not the main means for making available flood maps to the local/national population; this is expected to remain a national/local responsibility. This workshop will therefore address the best tools for delivering flood maps. The general public usually use closer sources of data –e.g. local web pages; people are mainly interested whether their property will flood or not, so a minimal level of detail is necessary. Tools to communicate potential measures with stakeholders and public need to visualize measures and effects in a logical, trustful, understandable and attractive way enabling reference to the users area of living. 15:00 – 15:30 Coffee break 15:30 – 17:30 SESSION 3: PREPARATION AND IMPLEMENTING FRMP INVOLVEMENT OF THE PUBLIC AND LOCAL STAKEHOLDERS – Chair: tbc 15:30 - 16:10 Presentation of Invited / Submitted Papers (Max 4 no. 10 minute presentations) Proposed themes: - Risk communication in a seething conflict in an urban environment Dealing with fears, communicating the risks: step-by-step approach to pave the way for a pilot project A catalogue of FRMP Measures and its application for an Austrian APSFR Best practice for FRMP, impact evaluation and stakeholders participation Existing public participation and methods for flood risk management solution prioritization at the basin level Practices for stakeholders involvement for environmental evaluation of FRMP and RBMP Practices for social and economic evaluation of FRMP solutions – levels of stakeholders involvement 16:10 – 16:30 Panel discussion 1. How best to involve interested parties at local, regional and national level in the development of flood risk management plans, including in objective setting and identification and prioritsation of measures. Good practice stories and lessons learnt. 2. The use of Multi Criteria Analysis for setting objectives and selecting measures should be considered in FRMP, by involving relevant stakeholders and the results from these methods should be transparent and understandable for the public and politicians. In communicating criteria and results of economic assessments, the number of parameters should be minimised, e.g. to the 4 types of impact (economic, social, environmental, cultural). Conclusions on how to involve different sectoral stakeholders should be considered, as well as what kind of parameters/indexes should be addressed to capture their interest and getting their reaction/contribution. This should include information on the effectiveness, cost-benefit and prioritisation of the proposed measures will be considered. 3. How to secure broad-based support for the successful implementation of revitalisation measures in FRMP - education, communication and citizen involvement. This session deals in particular with both the local communities in the areas of potential significant flood risk where flood risk needs to be reduced, as well as local actors from other parts of the catchments such as where measures may be necessary, given that the Flood Risk Management Plans shall cover the whole catchments. 16:30 - 17:30 Facilitated Dialogue (breakout sessions with the three discussion topics under the Panel discussion) 17:30 – 18:30 Parliament House visit An official dinner will be offered by the Ministry of Environment and Forests Second day 9:00 – 12:00 SESSION 4: WORKING WITH INSTITUTIONAL STAKEHOLDERS AND OTHER SECTORS, IN PARTICULAR ON LAND USE 9:00 - 9:40 : Presentation of Invited / Submitted Papers (Max 4 no. 10 minute presentations) Proposed themes: - Examples of working with stakeholders in catchment flood risk management - new findings Lessons learnt from WFD public participation, including the GIS Guidance document 9.40 - 10:30 : Round table 12: Best practice on how to involve other sectors in flood risk management (e.g. spatial planning, energy sector, finance possibilities). This session will identify different methods, good practices, and lessons learnt, for working with interested parties with a focus on institutional stakeholders (such as local authorities, regional authorities, water management authorities (if different) and public facilities such as education and essential services such as hospitals etc., as well as with other sectors (such as landowners, agriculture, forestry, SMEs, energy companies (hydropower for instance), water operators, navigation, tourism etc.). This session will also address general risk communication and how to deal with stakeholder fears and/or conflicts. Risk communication is the new issue in this Directive, especially political stakeholders are concerned about stakeholder reactions and conflicts are very likely to occur. The session will also deal with implications for private parties (e.g. policies of insurance companies) while 2 * Participants will share in two groups, which will participate in the two round tables sessions. implementing legal arrangements that link spatial planning to risk management. 10:30 – 11:00 Coffee break 11:00 – 12:00 Round table 23*: Developing land use planning for better flood risk management -by involving landowners and other interested parties This session will address the most important factor in the success of reducing damage from floods which is the commitment of land use planners and decision makers at the local level to prevent development of flood prone areas; what instruments should be addressed and how this should be presented will be an important output of the round table. Coordination of objectives from the different plans asks for a clear national command to clarify what objectives (and related legislation) prevail and which are open for amending. There are tradeoffs within the catchment in terms of set-aside of land for flood risk reduction downstream, including incentives for such measures. 12:00 – 13:00 Lunch break 13:00 – 15:00 SESSION 5: AWARENESS - THE ROLE OF PUBLIC AND STAKEHOLDER INVOLVEMENT FOR PREPAREDNESS AND EMERGENCY RESPONSE Chair: (tbc) Introduction: 13:00 - 13:40 Presentation of Invited / Submitted Papers (Max 4 no. 10 minute presentations) Proposed themes: - EXCIFF (WGF 2007) Good practice for delivering flood related information to the general public - The role of public awareness for flood risk reduction for flash floods and other rapid onset floods - Approaches to public awareness to increase preparedness and emergency response in the recovery phase 13:40 - 14:00 Panel discussion This section will focus on the methods for best involving the public and stakeholders with a view of increasing preparedness and emergency response. Good practice and lessons learnt will be presented and discussed. Barriers and opportunities to outreach will be identified. The use of new technologies will also be explored here. A special focus will be places on flash floods and other rapid onset floods, but also on other types of floods. 14:00 – 14:40 Breakout sessions with two discussion topics 1. Flood emergency situations management plans preparation and further use -– stakeholders involvement and public participation 2. Emergency response plans – stakeholders involvement and public participation 14:40 - 15:00 Coffee Break 15:00 – 16:00 SESSION 6 : INVOLVEMENT TRANSBOUNDARY ASPECTS OF Chair: Philip WELLER, ICPDR Executive Secretary 15:00 - 15:40 Presentations : 3 * Participants will share in two groups, which will participate in the two round tables sessions. STAKEHOLDER o International river commissions’ collaboration between countries (as major stakeholders) and regional, local stakeholders levels – main issues, action plans – ex. Rhine, Danube, Elbe, Sava, Tisza Commissions o The role of NGOs participation at the local, regional, national and trans-national levels will also be addressed. o Discussions on trans-border issues for reporting – data availability, border integration, presentation of methods and their large scale compatibility for a common presentation/understanding of mapping products and of the action plans for risk reduction (FRMP T Large scale integration). 15:40 - 16:00 Plenary discussions 16:00 – 17:00 SESSION 7: NEXT STEPS AND NEEDED ACTIONS Chair : Philip WELLER, ICPDR Executive Secretary 16:00 - 16:30 discussions. Reporting for the sessions, including the two round tables findings and three breakout 16:30 - 16:45 Review of lessons and messages from previous day - key conclusions and next steps including development of a strategy document based on the workshop outcomes. 16:45 – 17:00 CLOSING STATEMENTS City tour, optional Concert Hall at the Romanian Athenaeum Dinner Third day 2012 WGF12 Meeting