The need for municipal action planning against flood risk: the risk-informed journey of the municipality of Oliva (Spain)

66 Remo al o he coa ing laye o he eba o pe o m he Eco measu emen , modi ica ion: cu and sa u a ion Oli a iew om San a Anna hill by V. Ba e es (2016), modi ica ion: cu Vi u io In e na ional jou nal o A chi ec u e Technology and Sus ainabili y Volume 2 67 ABSTRACT 1Oli a Ci y Council, Oli a 2Uni e si a Poli ècnica de València, Resea ch Ins i u e o Wa e and En i onmen al Enginee ing (IIAMA-UPV) 3 iP esas Risk Analysis (Spin-o Uni e si a Poli ècnica de València) 4 G een Blue Managemen , Valencia Socie y demands highe sa e y le els, including hose ac ions ela ed o u ban planning and p o ec ion agains na u al haza ds and manmade h ea s. The e o e, au ho i ies espond o hese demands h ough new egula o y and ope a ional amewo ks o cope wi h exis ing and u u e isks. The Spanish egula o y amewo k ega ding lood isk managemen , based on he Eu opean con ex , de ines he equi ed p ocedu es o eme gency managemen , in ol ing all au ho i ies esponsible o ci il p o ec ion and u ban planning. This amewo k equi es all municipali ies a medium o high lood isk o de elop and implemen local ac ion plans agains lood isk (PAMRI, by i s ac onym in Spanish), which mus include a isk es ima ion, analysis and e alua ion, along wi h he desc ip ion o ac ions o a isk-in o med u ban planning and eme gency managemen . The Ci y Council o Oli a de eloped he co esponding plan, app o ed by he egional go e nmen in June 2016, including new aspec s such as he igu e o he Technical Di ec o , and a comp ehensi e and quan i a i e lood isk analysis o suppo decisionmaking on eme gency managemen and planning. KEYWORDS lood isk, eme gency ac ion planning, ci il p o ec ion The need o municipal ac ion planning agains lood isk: he isk-in o med jou ney o he municipali y o Oli a (Spain) Juan R. Po a-Sancho1, Jesica T. Cas illo-Rod íguez2,3, Ignacio Escude -Bueno2,3 Sa a Pe ales-Mompa le 4 h p://dx.doi.o g/10.4995/ i u io-ija s.2016.6849 68 1. OBJECTIVES This pape desc ibes he s a e-o - he-p ac ice on local lood isk managemen in Oli a (Valencia, Spain) o show he need o lood isk educ ion ac ions a local scale, in line wi h u ban planning and ci il p o ec ion, in deed, he need o conside ing u ban planning and lood eme gency managemen om a comp ehensi e and isk-in o med pe spec i e, o es ablish app opia e ac ions be o e, du ing and a e a lood e en . The e ec i e managemen o lood eme gency e en s (including all s ages om p e en ion, ac ion o back o no mal si ua ion) equi es a se o di e en bu complemen a y ools ha aim a minimizing he impac o loods o he popula ion, he economy and he en i onmen . I is hen jus i ied he need o imp o ing exposu e and ulne abili y educing lood haza ds. Flood isk analyses p o ide in o ma ion on he haza d, bu in gene al do no include quan i a i e es ima ions o po en ial consequences o he popula ion and he p ope y. This pape is ocused on wo a eas o compe ence a local scale: u ban planning and ci il p o ec ion. These wo a eas con e ge since u ban planning should ake in o accoun lood exposu e and ulne abili y and es ablish he equi ed co ec i e measu es o educe isk. Based on a ailable s udies ca ied ou by o o he Ci y Council o Oli a, ela ed o lood isk p e en ion and planning a local scale, his pape p o ides a sho discussion on hei ou comes and conclusions o lood isk managemen . 2. INTRODUCTION TO THE CASUISTRY AND CONTEXT OF THE MUNICIPALITY OF OLIVA I is widely known ha lood e en s in he Valencian egion may cause signi ican economic and socie al impac s. Some examples a e he lood e en s ocu ed in Oli a in 2007 (Figu e 2) and 2002 (Figu e 3). In his sec ion, a summa y o ac o s and condi ions ela ed o he municipali y o Oli a a e p o ided. The municipali y o Oli a, in La Sa o dis ic , is loca ed a he sou he n pa o he Valencia p o ince (Spain). Clima e in his a ea is ypically Medi e anean, wi h high o mode a e in ensi y ain all e en s, wi h an a e age annual ain all o 850 mm, ha ing eco ded a maximum a e o 817 mm in 24 hou s (3 No embe 1987), he highes eco d in Spain up o da e. The municipali y ex ends o e an a ea o app oxima ely 60 squa e kilome e s. I has a coas line o 8.5 km and a coas al allu ial plain ollowed by moun ain alleys up o 464 me e s abo e sea le el. I is ema kable he complex hyd ological sys em o med by he i e cou ses Rambla Galline a, Al adalí, Fon -Vall de les Fon s, he Pego-Oli a ma sh na u al ese e loca ed a he sou h o he municipali y, and he dunes along he coas . The censed popula ion o Oli a is o 26,190 inhabi an s. The main own is si ua ed a he in e sec ion o he moun ainous a ea wi h he plain. The e a e o he u ban dis ic s des ina ed mainly o second esidence and loca ed mainly on he coas . O he mino esiden ial a eas a e loca ed along he inne pa o Figu e 1. Connec ions among science, policy and socie y in e ms o lood isk managemen . Vi u io In e na ional jou nal o A chi ec u e Technology and Sus ainabili y Volume 2 69 Figu e 3. Flooding a local oad in Oli a, Rambla Galline a cou se, 2002. he municipali y. Ag icul u e plays a signi ican ole in he economic sec o o Oli a, which is ocused exclusi ely on o ange p oduc ion, bu he mos impo an con ibu ion o job c ea ion elies on he ou ism, ollowed by indus y. Human ac i i y has modi ied he e i o y h oughou his o y. The i s in e e ence we e he se lemen s in he highlands, close o he plain, o de ensi e easons and o a oid he e ec s o hea y ain all e en s. The a ea was subsequen ly modi ied o adequa e he land o popula ion g ow h and he demand o new c ops. A complex wa e d ainage ne wo k o in e connec ed b ooks and i iga ion di ches is he esul o such land ans o ma ion. The popula ion se lemen in he plain a ea esul ed in he de elopmen o se e al s uc u al measu es aiming a p o ec ing people agains looding. Howe e , he d ainage ne wo k is cu en ly insu icien due o i s pa ial modi ica ion by he u ban de elopmen and c op subs i u ion by i egula housing cons uc ion, inc easing lood ulne abili y in a eas along he coas line. Figu e 2. Local oad nea Jo ades indus ial a ea, 2007 3. BACKGROUND RELATED TO URBAN FLOOD RISK MANAGEMENT IN OLIVA In he las 40 yea s, mainly due o he inc ease o human ac i i y on he e i o y, he occu ence o episodes o in ense ains and he ans e o adminis a i e compe ences o egional and local le els, ha e inc eased lood isk awa eness o in ol ed ac o s. 3.1 FLOOD RISK MANAGEMENT: THE NEED FOR ACTION AT LOCAL SCALE The Ci y Council o Oli a aims a managing lood isk om a comp ehensi e and in eg a i e pe spec i e. Wi hin he local lood isk managemen amewo k, lood isk analysis should include a de ailed iden i ica ion s age conce ning lood haza d and ulne abili y, o suppo isk mi iga ion and eme gency p e en ion planning. In 1994, a e de eloping he Te i o ial Eme gency Ac ion Plan in Oli a, and la e in 2000 a e app o al o he Special Plan agains Flood Risk o he Valencian egion, he need o local ac ion planning agains lood isk, s uc u ed in h ee axes: 70 sȩ To comply wi h he egula o y amewo k. sȩ To p o ide echnical, accesible and easy- o- use ools ha allow da a ga he ing, in o ma ion analysis and he use o geog aphic in o ma ion sys ems (GIS). sȩ To coo dina e all ac o s in ol ed on lood isk managemen o ensu e ha obje i es o he isk managemen s a egy a e e icien ly and co ec ly achie ed. In his sec ion, a desc ip ion o he egula o y con ex in luencing lood isk managemen in Oli a is p o ided. P ojec s and s udies ha di e en adminis a ions ha e unde aken a e also included, ema king he le el o demand o equi ed lood isk ac ion plans. 3.2 LOCAL FLOOD RISK MANAGEMENT: THE REGULATORY CONTEXT The main egula o y ins umen s ha in eg a e he cu en egula o y amewo k o ci il p o ec ion, lood isk planning and managemen a e lis ed in his se ion, along wi h hei impac on local lood isk managemen in Oli a. In gene al, based on hei le el o implemen a ion, ou ca ego ies can be dis inghished: Eu opean, na ional, egional and local egula o y ins umen s. Howe e , in his sec ion, ins umen s a e p esen ed in ch onological o de : sȩ The Spanish Cons i u ion (1978), which equi es au ho i ies o gua an ee he igh o li e and in eg i y o all ci izens. sȩ The Local Go e nmen Regula o y Law 7/1985, which es ablished local compe encies in e ms o ci il p o ec ion. sȩ Law 17/2015, which amends Law 2/1985, es ablishing Ci il P o ec ion as a public se ice o ien ed o he s udy and p e en ion o collec i e high isk, ex ao dina y disas e and public calami y si ua ions ha could endange massi ely li e and physical in eg i y o people, ensu ing an adequa e esponse in case o eme gency, h ough he Na ional Ci il P o ec ion Sys em, which will de elop planning ac ions h ough Te i o ial Plans (gene al scale o any si ua ion o isk) and Special Plans ( o deal wi h a speci ic isk in a gi en e i o y). Consequen ly, Oli a Ci y Council, in 1992, p epa ed and app o ed i s Local Basic Plan agains looding. This Plan included a p elimina y analysis o his o ical lood e en s. sȩ Law 2/2013 and Royal Dec ee 876/2014, which e e o coas al p o ec ion and looding. sȩ Royal Dec ee 407/1992, which s a es ha lood eme gencies should be conside ed as pa o Special Plans, de ining hei basic con en . sȩ The Te i o ial Eme gency Plan o he Valencian Communi y (1993), which highlig hs he impac o lood isk a egional scale and he need o de eloping a Special Plan. sȩ The Te i o ial Municipal Eme gency and Plan o Oli a (1994), which ecommends o de elop a local ac ion plan agains looding. sȩ Basic Guideline o Ci il P o ec ion Planning agains Flooding Risk (1995), which es ablished he con en o Special Plans o ensu e s anda diza ion a na ional scale and o gua an ee coo dina ion among eme gency se ices. Howe e , his Guideline did no include he con en o equi ed lood haza d s udies nei he he echnical aspec s o be conside ed. sȩ The Di ec o Plan o lood p o ec ion in La Table 1. Classi ica ion o lood haza d le els (PATRICOVA, 2015). Flood haza d le el High equency (T=25 yea s) Medium equency (T=100 yea s) Low equency (T=500 yea s) Flood dep h (>0.8m) 125 Flood dep h (<0.8m) 346 Vi u io In e na ional jou nal o A chi ec u e Technology and Sus ainabili y Volume 2 71 Sa o (1995), including coo dina ing ac ions and ac o s in ol ed on lood isk managemen o all municipali ies wi hin La Sa o dis ic . sȩ Dec ee 81/2010, which app o ed he Special Plan agains Flood Risk o he Valencian Communi y, which includes he main unc ions and con en o Local Ac ion Plans o be de eloped by municipali ies classi ied a medium o high isk. Howe e , his plan did no desc ibe how o de elop such plans a local scale. Oli a was classi ied a medium isk le el. sȩ Law 10/2001, which app o ed he equi ed budge o unde aking “Flood ou ing ci il wo ks in Rambla Galline a i e cou se in Oli a (Valencia)”. sȩ Law 13/2010, which egula es ci il p o ec ion ac ions and eme gency managemen a egional scale, de ining ci il p o ec ion plans as esponse ools agains isks, equi ing he de elopmen o Te i o ial Eme gency Plans. sȩ Te i o ial Ac ion Plan o Flood Risk P e en ion in he Valencian Communi y (PATRICOVA), published in 2003 and e iewed by Dec ee 201/2015, ep esen s he planning, coo dina ion and p o ec ion ool a egional scale o educe lood isk wi h ocus on dec easing he po en ial economic impac in lood p one a eas. PATRICOVA ep esen ed a key elemen wi hin he egula o y amewo k, based on a isk classi ica ion esul ing om combining wo concep s: haza d and ulne abili y, de ined as ollows: sȩ Flood haza d in e ms o p obabili y o ocu ence o he lood e en in a gi en a ea. sȩ Flood ulne abili y in e ms o po en ial damages. PATRICOVA de ines six haza d le els based on lood equency and lood dep h, as shown in Table 1, whe e T deno es he e u n pe iod o he lood e en . PATRICOVA also includes wha measu es can be applied o educe lood haza d (s uc u al measu es), and o dec ease lood ulne abili y (e.g. u ban planning, eme gency managemen , public educa ion and isk awa eness campaigns). Howe e , maps o u ban planning and egula o y chap e s a e he only binding con en o his egional plan. Beyond app o al o PATRICOVA in 2003, he ollowing ins umen s a e he e wo h men ioning: sȩ Law 4/2004, which equi ed o econside u ban planning and o a oid u ban de elopmen in lood isk a eas. sȩ Law 10/2004, which equi ed planning ac o s o classi y land based on isk classi ica ion, no allowing u ban de elopmen s in lood p one a eas. sȩ Law 16/2005, which equi ed he de elopmen o en i onmen al s udies on he impac o new u ban de elopmen s on isks due o na u al haza ds. sȩ Dec ee 67/2006, which equi ed ha u ban planning ac ions we e in line wi h he guidelines and egula ions included in PATRICOVA, and o es ablish p ocedu es o collabo a ing wi h Ci il P o ec ion agencies on eme gency managemen . sȩ EU Floods Di ec i e 2007/60/CE, which equi ed all Membe S a es o conside he impac o u ban planning on lood isk, along wi h he de elopmen o lood isk maps and managemen plans a i e basin dis ic le el. sȩ Royal Dec ee 903/2010, which inco po a es he equi emen s o he EU Floods Di ec i e in o he na ional egula o y amewo k, aiming a e alua ing lood isks and imp o e coo dina ion among public adminis a ions and he socie y o educe po en ial lood consequences. Mo e ecen ly, Royal Dec ee 1/2011 se he ollowing p inciples: sȩ To educe isks om na u al haza ds. sȩ To in eg a e g een in as uc u es in lood isk a eas. sȩ To in eg a e policies ela ed o lood isk managemen in u ban planning, based on he guidelines o PATRICOVA. sȩ To analyze isk o u ban planning as desc ibed in PATRICOVA. 72 All desc ibed ins umen s ep esen a complex bu in e connec ed egula o y con ex ha in luences local lood isk and ci il p o ec ion managemen , de ining he objec i es o any lood isk managemen s a egy and aiming a ensu ing he app op ia e p ocedu es o u ban planning om a isk-in o med poin o iew. Based on he desc ibed amewo k, i should be dis inguished he need o analyzing lood isk in Oli a. A s udy including a de ailed lood isk analysis was equi ed o suppo he Ci y Council on he app op ia e decisions o lood isk and ci il p o ec ion planning and managemen . 3.3 LOCAL FLOOD RISK MANAGEMENT IN OLIVA: OBJECTIVES The ci cums ances which con ibu ed o de elop he s udies desc ibed la e in sec ion 3.4, included: sȩ Disposi ion o local au ho i ies o cope wi h lood isk h ough e iewing he Gene al U ban Planning Plan and he de elopmen o he Local Ac ion Plan agains lood isk (PAMRI). sȩ Regula o y equi emen a egional scale a e app o al o he Special Plan agains Flood Risk in 2000. sȩ Need o a mo e de ailed ca og aphy han he in o ma ion used a egional le el o lood isk cha ac e iza ion in PATRICOVA. sȩ Pa icipa ion o he Ci y Council in he amewo k o Eu opean P ojec s: QUATER and DAMAGE. sȩ Cons uc ion o lood ou ing ci il wo ks in Rambla Galline a i e cou se. sȩ Implemen a ion and use o Geog aphic In o ma ion Sys ems (GIS) as a managemen ool a local scale. All p e ious ac o s suppo ed he need o ca y ou a lood haza d analysis wi h he ollowing cha ac e is ics: sȩ To conside a speci ic a ea (3500 Ha), limi ed by he AP-7 highway and he sea. sȩ To de elop a spa io- empo al analysis o o e lows, including all i e cou ses and b ooks. sȩ To use a digi al ele a ion model (DEM) o de elop he equi ed 2D hyd aulic model and o analyze sys em esponse, low di ec ions and looded a eas, including hyd aulic cha ac e is ics o he lood e en : lood dep hs, eloci ies, and low a es. sȩ To be app o ed by egional go e nmen , in line wi h he exis ing egula o y amewo k. sȩ To comply wi h ou comes o he DAMAGE p ojec . Based on he a o emen ioned ci cums ances and ou comes om he lood haza d analysis, he ollowing objec i es we e es ablished o de elop a local ac ion plan o Oli a: sȩ To analyze exis ing lood haza d le els and isk o be compa ed wi h esul s om PATRICOVA. sȩ To p io i ize s uc u al and non-s uc u al ac ions o lood isk managemen . sȩ To p o ide a documen o suppo he new Gene al Plan o U ban Planning, and he equi ed ac ions o ci il p o ec ion and eme gency planning. sȩ To p o ide a isk model o suppo ing decisionmaking on eme gency managemen . sȩ To suppo da a ga he ing and managemen o epo ed ain all and lood e en s. sȩ To es ablish p ocedu es o echnical and ope a ional suppo o local ac o s on lood isk managemen . sȩ To use up- o-da e GIS in o ma ion o es ima e lood isk. 3.4 PREVIOUS STUDIES THAT INFLUENCED LOCAL FLOOD RISK ACTION PLANNING IN OLIVA The mos ele an s udies ela ed o lood isk analysis a local scale in Oli a included: sȩ Flood haza d s udy (ca ied ou by INTERCONTROL in 2005). sȩ Flood ou ing ci il wo ks and imp o emen o he d ainage sys em o Rambla Galline a and Se pis i e basin (ca ied ou by Acuamed in 2006). Vi u io In e na ional jou nal o A chi ec u e Technology and Sus ainabili y Volume 2 73 beyond he minimum con en p oposed by he egional go e nmen , a e b ie ly desc ibed: sȩ De eloping a quan i a i e lood isk analysis, iden i ying no only po en ial consequences o he cu en si ua ion bu also enabling he compa ison o di e en scena ios and e alua e he impac on isk o u u e ac ions, including bo h s uc u al and non-s uc u al measu es (eme gency ac ion plans, public communica ion campaigns, wa ning sys ems, e c.). Fo ha pu pose, he da abase EIEL (Regional su ey on In aes uc u es and Equipmen ) has been used o ob ain de ailed in o ma ion on u ban and u al land uses in Oli a o cha ac e ize lood ulne abili y. sȩ Inco po a ing he ole and unc ions o he Technical Di ec o o he Plan, esponsible o he echnical pe o mance and implemen a ion. This ole a ises om he need o a mo e in eg a i e pe spec i e ega ding ci il p o ec ion and lood isk go e nance, me ging all di e en phases o eme gency managemen (p e en ion, ac ion and back o no mal si ua ion). 4.1 FLOOD RISK ANALYSIS A quali a i e and quan i a i e isk assessmen was ca ied ou o suppo ing he de elopmen o he Plan. Quali a i e isk analysis was based on he c i e ia de ined in PATRICOVA, o es ablish an upda ed classi ica ion o lood haza d le els based on lood equency and dep h. Quan i a i e isk analysis was based on he me hodology de eloped wi hin he amewo k o he SUFRI p ojec , Sus ainable S a egies o U ban Flood Risk Managemen wi h non-s uc u al measu es o cope wi h he esidual isk (Escude -Bueno e al., 2012), unded by he o me Spanish Minis y o Science and Inno a ion. A isk model is pe o med o calcula e socie al and economic isk due o looding (Cas illo- Rod íguez e al., 2014), and allows i s ep esen a ion h ough FN and FD cu es (whe e F deno es he sȩ Hyd aulic modelling o lood plain a eas in i e cou ses: Se pis, Rambla Galline a, Bullen and Molinell (de eloped by TYPSA in 2010). These s udies ep esen ed he benchma k wo ks o he lood haza d s udy, in oduced in Sec ion 3.3, and de eloped in 2012 by TYPSA (enginee ing consul ancy), as equi ed by PATRICOVA. This s udy was app o ed on Ma ch 7, 2014, including he use o high-de ail ca og aphy in o ma ion. A e app o al o his s udy by he egional go e nmen , he Ci y Council eques ed in 2014 he decla a ion o Oli a as high lood isk municipali y, gi en ha he majo pa o he municipal and sup a- municipal in as uc u es and all coas al u ban cen e s a e a isk o looding. Howe e , his applica ion has no been esol ed ye . Based on ou comes o he lood haza d s udy, he Ci y Council was disposed o pe o m he Local Ac ion Plan agains lood isk (PAMRI). Thus, he Plan was de eloped om 2014 o 2016 and inally app o ed by he egional go e men in June 2016. So a , only 20 o he 136 equi ed local ac ion plans o be de eloped by municipali ies wi hin he Valencian Communi y ha e al eady been inished and app o ed. 4. LOCAL ACTION PLAN AGAINST FLOOD RISK FOR THE MUNICIPALITY OF OLIVA To comply wi h egula o y equi emen s in e ms o bo h Ci il P o ec ion and U ban Planning, he Ci y Council o Oli a p oceeded in 2014 o ake he necessa y ac ions o elabo a e a quan i a i e lood isk analysis ha would complemen and be he basis o de eloping he Local Ac ion Plan agains lood isk (PAMRI). Based on he Eme gency Municipal Te i o ial Plan (1994) and he guidelines p o ided by he Regional Go e nmen o de eloping hese plans, he PAMRI con ains equi ed documen s and annexes o s a he p ocess o imp o ed local lood isk managemen . In his sec ion, con ibu ions p o ided o his Plan, 74 annual cumula i e exceedance p obabili y o he le el o po en ial consequences in e ms o li e-loss, N, o economic damages, D). Inpu da a o he isk model was ob ained based on lood haza d analysis, sys em esponse agains such lood e en s and es ima ion o po en ial consequences o he popula ion a ec ed by looding and o he p ope y. The de ailed desc ip ion o he me hodology o quan i a i e isk es ima ion and analysis can be ound in (Cas illo-Rod íguez e al., 2016). The lood haza d s udy conduc ed in 2012 was used Ÿ Figu e 4. In luence diag am ep esen ing he isk model (nodes include in o ma ion on loads, sys em esponse and consequences). źFigu e 5. Cumula i e annual exceedance p obabili y (F) o he le el o economic po en ial consequences in million Eu os: Base case (BC) and scena io a e implemen ing he Plan (BC+PAMRI). Ÿ Figu e 6. Theo e ical impac o isk educ ion s uc u al and non- s uc u al measu es. as a basis o analyzing po en ial lood e en s and sys em esponse o all i e cou ses ha in eg a e he sys em in Oli a. This s udy was comple ed by an ad hoc analysis o po en ial lood consequences. The p ocess o lood isk analysis was di ided in o h ee s ages: sȩ Flood cha ac e iza ion: Es ima ion o he p obabili y o occu ence and analysis o ain all e en s ha esul in looding. sȩ Sys em esponse cha ac e iza ion: Flood dep hs and eloci ies as a esul o ain all e en s wi hin he i e ca chmen a ea. sȩ Cha ac e iza ion o po en ial consequences: Es ima ion o consequences in e ms o po en ial a ec ed popula ion, inju ies, li e-loss, and economic cos s. The e exis di e en me hodologies in he li e a u e