The European Union Twinning Project

for Turkey
“Capacity building to implement the
Flood Directive”
TR 10 IB EN 01

Draft
Proposal for structuring the preparation of
guidance documents on preparation of flood risk
management plans

12 April 2013

Pierre HENRY de VILLENEUVE

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 Presentation of the overall proposal

In the preparation on flood risk management plans, several elements are expected:
o Legal and institutional gap analyses (activity 1.1)
o Preparation of communication strategy (activity 1.3)
o Pilot exercise on FRMP including three steps (activity 2.1 to 2.4)
o Methodological guide for dissemination to other basins (activity 2.5)
o National implementation plan for Flood Directive (component 3)

This document proposes a structure of guidelines for the implementation of the Flood Directive
integrating different input of the project. The guidance document would a tool to support the
national strategy which will have to be back up by adapted legal and institutional organisations.

The guidance document structure proposal is composed of five sections. All of them are under the
umbrella of one guidance document for preparation of flood risk management plans.

o 1. Guideline on Preliminary Flood Risk Assessment (PFRA)

This document will gather advices to do the Preliminary Flood Risk Assessment and to
refine selection of ASPFR (based on activities 2.1 and 2.2).

o 2. Guideline on the technical aspects of the preparation of flood hazard maps

This document would deal with the technical aspects of the preparation of flood hazard
maps and the assessment of flood risks and adverse consequences of flood (based on
activities 2.1 and 2.3).

o 3. Guideline for financially balanced program of measures

Introduction of non structural measures would open to the selection of an appropriate
mix of flood risk management measures for the FRMP (activities 2.4 and component
3).

Two horizontal guidelines could also introduce important governance measures for the
preparation of food Risk Management Plan (FRMP):

o Guideline on strategies for public and stakeholders involvement in the

planning process
It corresponds to the guidance document on participation of the public and
stakeholders in flood risk management (activity 2.1 and component 3).

o Transversal guideline on data flow management and optimisation of

information systems
As the directive implementation required a lot of data, a system of information can be
necessary to improve the data exchanges (activity 1.3).

The two horizontal guidelines would apply all along the 3 implementation steps. To manage
implementation of the Flood Directive, a structure of guideline based on these three steps could
contribute helping to better balance the efforts to complete the FRMP preparation on time.

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 T1. Guideline on
strategies for T2. Guideline on
public and data flow
stakeholders management and
involvement in the optimisation of
planning process water information
systems

Activity 1.3 Activity 2.1 &

Guidance component 3
document for
preparation of
flood risk
management
plans
Activity 2.5

S1. S2. S3.

Guideline on Guideline on the Guideline for
Preliminary Flood technical aspects financially
Risk Assessment of the preparation balanced program
(PFRA) of flood hazard of measures
maps

Activities 2.1 & Activities 2.1 Activities 2.4 and

2.2 and 2.3 component 3

Figure 1 Proposal for structuring the preparation of guidance documents on preparation of FRMP

Future missions already planned for the current trimester could constitute opportunities to develop the
different chapters of the guidance document:

o Week 16 Mission on WIS to initiate T2 Transversal guideline on data flow

management and optimisation of water information systems
o Week 21 to initiate S3 chapter
o Week 23 and 24 to initiate S1 Guideline on Preliminary Flood Risk Assessment
(PFRA) and S2 Guideline on the technical aspects of the preparation of flood
hazard maps

It is recommended to plan targeted mission with relevant stakeholders on the main sectoral
actions that should be part of a balanced programme of measure of the FRMP i.e.:

Prevention through land planning adapted to flood risk (including MoEU)

For introduction of ruling construction for areas subject to flood risk as an important subject

Forecasting on flood events (including MGM)

This part could give advice for introduction of an hydro-meteorological flood forecasting service
with a vigilance system. It would target giving public security services and the general public the
most relevant information with the most possible anticipation. It can disseminate risk culture.

Preparedness for better crisis management (including AFAD)

Even if the structural measures have been implemented and non structural measures have been
established, a preparedness plan can be a very useful complement for better risk management.
This part could introduce important points for organising civil security, authorities and citizens
before a crisis to improve the crisis management.
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 Hazard reduction based on structural measures (including DSI)
For experience exchange on alternative options for dynamic flood hazard management measures
complementary to classic protection measures (dikes, etc)

The output of these missions could be to strengthen these sectors and gain element for defining
and costing possible improvement to feed the quick scan and clarify the national strategy. See
part 3 on quick scan.

Proposed FRMP guidance document structure

1. Introduction for the overall principle of the guidance document

This introduction will remind that the flood risk management is based on three steps as presented
on the figure below:

1. Preliminary Flood Risk Assessment (PFRA) with selection of Areas with Significant
Potential Flood Risk (ASPFR)

2. Hazard and risk mapping of ASPFR

3. Programme of measures for FRMP

And precise the mechanism used for associated governance allowing a participative
FRMPlanning as shown on the road map below:

Flood risk management plan development

Structuring/developing Water Information System
and stakeholder participation

PFRA with Development Flood Risk

selection of of Flood hazard Managmeent
risk areas to Maps and Flood Plans
be worked Risk in ASPFR (FRMP)Selection
of priority

Water Management
Areas with Flood Hazard Flood Risk
significant Maps and Flood Management
Council Consultation
potential flood Risk Maps Plans at key steps to
risk identified developed in
ASPFR
created improve decision
making

Figure 2 Road Map for Flood Directive

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2. Progamme of measures for FRMP
The programme of measures for the pilot basin is expected in activity 2.4. As we can see in the
figure 2 below, the measures are of different nature (Governance, Rules, Knowledge
improvement, awareness and works). In addition, two great types of measures for reducing
damages due to flood and implementing an integrated flood risk management presented in figure
4 are: structural measures for hazard management and non structural based on risk management
based on stakes and better preparedness.

Structural measures can be usefully mixed to non structural measures. They allow improving
resilience which is becoming a key principle in risk management. The presentation of structural
and non structural measures could help selecting a good mix of measures in ASPFR but as well
apply to all risk areas identified in the different basins.

Program of measures preparation process

Vision
PFRA for selection
of risk areas with FRMP, program of Objectives
development of measures for FRM
FRM and FHM

Business as usual scenario Indicators

Main issues

Governance Rules Knowledge Awareness Works

Figure 3 The central place of the programme of measures for the implementation of the FD

2.1Structural measures to reduce hazard

Structural measures are mainly applied to ASPFR. These areas would be selected in the PFRA.
This part could be open to different types of measures to reduce hazard for selection based on
cost efficiency and cost benefit analysis including assessment of environmental benefits.

2.2 Non structural measures for improving risk management

As precised above, non structural measures can be applied to ASPFR but as well more widely to
all risk areas. Non structural measures to improve resilience could be introduced giving the order
of magnitude of the cost for prevention, flood forecasting and preparedness to crisis management
as follows:

2.2.1 Public participation for rising awareness about flood risk

For introduction of public participation techniques and/or existing documents to help raising the
risk culture in order to reduce human and good damages.

2.2.2 Prevention through land planning adapted to flood risk

For introduction of ruling construction for areas subject to flood risk as an important subject.

2.2.3 Forecasting on flood events

This part could give advice for introduction of a hydro-meteorological flood forecasting service
with a vigilance system. It would target giving public security services and the general public the

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most relevant information with the most possible anticipation. It can be an important vector to
raise risk culture too.

2.2.4 Preparedness for better crisis management

Even if the structural measures have been implemented and non structural measures have been
established, a preparedness plan can be a very useful complement for better risk management.
This part could introduce important points for organising civil security, authorities and citizens
before a crisis to improve the crisis management.

Proposal for a quick scan of basins

A first proposition for the programme of measures in the pilot basin is expected in activity 2.4 and
a quick scan cost of 3 other basins in component 3. The selection of a adapted mixed of structural
and non structural measures could be balanced using in particular economical analysis.

Cost analysis

Structural measures
Hazard
reduction
measures

Non structural measures

Public Prevention Flood Crisis
awareness for a through land forecasting management
flood risk culture planning / plan
development permitting

Figure 4 Presentation of the intervention axis for FRMP

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If the proposal for runing sectoral missions and/or workshops to feed this analysis is accepted,
possible contributors shall be selected for each type of measures.

Type of Mission or Turkish French Romanian

measures workshop contributors contributors contributors
Structural Hazard reduction DSI Thibaut Mallet
measures Christine Poulard
Guy Rouas
Public awareness MFWA Julien Langumier,
Natacha Jacquin
Land planning Ministry of To be selected in
Environment and French DDT
Non urbanisation (local authorities
structural visited in Blois)
Flood forecasting MGM Jean-Michel
Tanguy and/or
Arthur
Marchandise
Preparedness plan AFAD Civil security with
fire fighter
specialized with
flood events

At the end, the cost analysis could permit to ease the orientation of the national implementation
plan for flood risk management in basins including well balanced action between actions on
hazard and on stakes.

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