China, People's Republic of: Implementing the National Flood Management Strategy

Sovereign Project | 38327-012

Summary

In 2005, Ministry of Water Resources (MWR) supported by ADB technical assistance (TA 4327-PRC: National Flood Management Strategy Study), prepared a National Flood Management Strategy which enabled them to make the shift from employing traditional structural measures for reducing flood damage to a balanced approach using both structural and non-structural measures. As follow-up to this TA 4327-PRC, MWR proposed a new TA in implementing the National Flood Management Strategy at the provincial level using a flood risk management approach. Under this new TA, pilot studies will be implemented in a typical mountainous area, with serious fluch flooding (Sichuan province) and a typical flood plain with a flood detention area (Hunan province).

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Project Name Implementing the National Flood Management Strategy
Project Number 38327-012
Country China, People's Republic of
Project Status Closed
Project Type / Modality of Assistance Technical Assistance
Source of Funding / Amount
TA 7049-PRC: Implementing the National Flood Management Strategy
Technical Assistance Special Fund US$ 200,000.00
Strategic Agendas Environmentally sustainable growth
Inclusive economic growth
Drivers of Change Governance and capacity development
Partnerships
Sector / Subsector

Agriculture, natural resources and rural development - Rural flood protection

Water and other urban infrastructure and services - Urban flood protection

Gender Equity and Mainstreaming No gender elements
Description In 2005, Ministry of Water Resources (MWR) supported by ADB technical assistance (TA 4327-PRC: National Flood Management Strategy Study), prepared a National Flood Management Strategy which enabled them to make the shift from employing traditional structural measures for reducing flood damage to a balanced approach using both structural and non-structural measures. As follow-up to this TA 4327-PRC, MWR proposed a new TA in implementing the National Flood Management Strategy at the provincial level using a flood risk management approach. Under this new TA, pilot studies will be implemented in a typical mountainous area, with serious fluch flooding (Sichuan province) and a typical flood plain with a flood detention area (Hunan province). The studies will: (i) prepare implemnetation and action plans for mountain falsh flooding and river plain detention basin flooding based on the National Flood Management Strategy; (ii) perform risk assessments for the two major types of flooding; (iii) introduce flood mapping technology and flood warning managementfor the two types of flooding; (iv) raise local people's awareness of flood management; (v) improve policies on flood management combined with poverty reduction; and (vi) conduct workshops and conferences for knowledge transfer and capacity building.
Project Rationale and Linkage to Country/Regional Strategy The TA is in line with the country strategy and program update (2007-2008) and supports the Government's objectives in the water sector.
Impact The impact of the TA is to promote the sustainable economic and social development of flood-prone areas in the PRC thruogh effective and integrated measures of flood management.
Project Outcome
Description of Outcome The outcome of the TA is the implementation of the national flood management strategy at the provincial level.
Progress Toward Outcome The national flood management strategy is being implemented at the provincial level.
Implementation Progress
Description of Project Outputs

The TA will be implemented in two phases. In the first phase, to be conducted over a period of 5 months, the consultants will: (i) review flood management in Hunan and Sichuan provinces, including existing provincial flood management strategies; (ii) identify key issues for future flood management in these two provinces; (iii) provide recommendations for improving existing provincial flood management strategies following the national flood management strategyl and (iv) develop provincial flood management action plans and implementation priorities particularly for nonstructural measures, following the national flood management action plan, in order to implement the national flood management strategy in the two provinces. Consultants will carry out these tasks through study, field investigation, and workshops. Workshops will be held in each province to gather information and data at the beginning and to obtain feedbacks on the developed provincial flood management strategies and action plans at the end of this phase.

In second phase, to be conducted over a period of 7 months, the consultants will help local governments conduct polot tests of implementing the national flood management strategy, particularly nonstructural measures, in the two provinces based on the provincial action plans developed in the first phase, and develop capacity of local governments' staff throug the pilot tests. The consultants will introduce to local governments nonstructural measures to manage vulnerability to the potential danger and damage caused by exposure to flood risk, including flood risk mapping, flood forecasting system, flood warning and emergency response, and raising of local people's awareness of flood management. These nonstructural measures will be implemented by local government's staff under the guidance of the consultants in selected pilot test areas in the two provinces. Prototype investment projects for flood management will also be proopsed and apprased by local governments' staff under the guidance of the consultants, in accordance with the provincial action plans. Basedon the activities in the first phase and the results of the pilot tests, the consultants will provide recommendations for implementing the national flood management strategy at the provincial level. A national workshop at central level will be undertaken at the end of the TA to disseminate TA findings.

Status of Implementation Progress (Outputs, Activities, and Issues)

The TA was successfully completed. The final report was submitted to ADB in February 2010. Study findings are summarized below.

1. National Flood Management Strategy

To shift from dependence on structural flood control measures to a balanced approach using both structural and nonstructural measures, the Ministry of Water Resouces supported by the previous TA4327-PRC: Flood Management Strategy Study prepared a national flood management strategy (NFMS) in 2005. A key aspect of the NFMS is a flood risk management which is defined as the treatment of hazard, exposure, and vulnerability. In general, flood hazard is managed by structural measures such as flood control works. A variety of nonstructural measures such as land use management and flood forecasting and warning are appropriate for managing exposure to flood hazard and the vulnerability of people and assets that remain exposed.

2. Review of Provincial Flood Management

Flood management strategies in Hunan and Jiangxi provinces were reviewed with an account of laws and regulations, the physical situation and flood hydrology, and the strategic approaches featuring both structural and non-structural measures. Key issues for future flood management were also analyzed. Results of the review and analysis were reflected in the development of provincial flood management action plans.

3. Development of Provincial Flood Management Action Plans

Provincial flood management action plans were developed for the two provinces to implement the NFMS. Key actions are summarized as: (i) a meeting of heads of relevant provincial departments to plan joint actions; (ii) securing stable sources of funding; (iii) improving flood risk mapping; (iv) raising community awareness of flood risk and public preparedness; (v) training activities; (vi) introducing and applying structured methodology for systematic planning and project appraisals; (vii) improving and extending data management and decision support systems; and (viii) improving and extending flood forecasting and warning systems, including flash flood warning systems.

4. Pilot Trials

In Hunan Province, the Linan flood detention area (FDA) in Li county was selected for pilot trials. Linan FDA is for temporary detention of floodwater. Resettlement of the population took place and a there is gated diversion structure in the surrounding dikes. Pilot trial activities include (i) review and analysis of diversion operations to Linan FDA, (ii) review of flood warning and emergency response arrangements for Linan FDA, and (iii) identification of issues related to compensation for use of Linan FDA. While the gated diversion structure enables Linan FDA to effectively mitigate floods, little guidance on gate operations is provided; therefore preliminary operating rules were devised. It was found that some people using land in Linan FDA do not have appropriate awareness that the FDA will be required occasionally for temporary storage of floodwater. Even though it is only six years since Linan FDA was last used, complacency has already emerged in some land users. An organized and sustained campaign to raise awareness of the flood risk and maintain public preparedness is recommended to address this problem. Improved flood risk mapping is recommended as an aid to emergency response planning and action for Linan FDA.

In Jiangxi province, Lichuan county located in mountainous terrain subject to flash flooding was selected for pilot trials. Two pilot trial activities were initiated: (i) flood risk mapping for a remote valley; and (ii) application of flood risk management to the flash flood area. Although past flood data were limited, maps were prepared using GIS showing the extent and depths of the 1998 flood. The maps provide a basis for preliminary flood hazard zoning. However collection of more flood data and its integration into GIS would allow refinement of hazard zoning and improvement in accuracy of inundation extents and flood depths. Guidelines for flash flood risk management were prepared considering overseas developments in flash flood management. An outstanding need for sustained funding for ongoing maintenance of flash flood monitoring and warning systems is noted.

The Consultant undertook the pilot trial activities with support from local and provincial governments, and the findings of the pilot trials were presented to and discussed with local and provincial government officials at information and feedback sessions conducted in both provinces during October 2009.

5. Proposed Prototype Investment Projects

Several prototype projects for potential future investment are proposed for the two provinces. In summary, these include hydraulic modeling for more accurate simulation of diversion operations, development of improved flood forecasting, improved flood risk mapping and flood hazard zoning, development of a computerized flood management asset database, and preparation of a flash flood risk management plan. These proposals are consistent with the objectives of the NFMS and the flood risk management, and are compatible with the provincial flood management action plans.

6. Knowledge Product

A knowledge product (KP) on flood management strategy in the RPC is being prepared based on lessons learned from the TA and previous TA4327 and will be published within 2011.

Geographical Location Pilot trials were implemented in a typical mountainous area with serious flash flooding (Jiangxi province) and a typical flood plain with flood detention basins (Hunan province).
Summary of Environmental and Social Aspects
Environmental Aspects
Involuntary Resettlement
Indigenous Peoples
Stakeholder Communication, Participation, and Consultation
During Project Design The TA was designed based on discussions with stakeholders at national and lprovincial levels.
During Project Implementation

Workshops were held in each of the two province to gather information and data at the beginning and to obtain feedback on the developed provincial flood management strategies and action plans at the end of this phase.

In addition, pilot trial activities were undertaken with support from local and provincial governments, and the findings of the pilot trials were presented to and discussed with local and provincial government officials at information and feedback sessions conducted in both provinces during October 2009.

Business Opportunities
Consulting Services A total of 8 person-months of international and 42 person-months of national consultants will be required for undertaking the TA.
Responsible ADB Officer Yoshiaki Kobayashi
Responsible ADB Department East Asia Department
Responsible ADB Division Environment, Natural Resources & Agriculture Division, EARD
Executing Agencies
Ministry of Water Resources2 Lane 2, Baijuang Road
Beijing 100053
People's Republic of China
Timetable
Concept Clearance 10 Aug 2006
Fact Finding 27 Jun 2007 to 29 Jun 2007
MRM -
Approval 20 Dec 2007
Last Review Mission -
PDS Creation Date 05 Oct 2009
Last PDS Update 28 Jul 2011

TA 7049-PRC

Milestones
Approval Signing Date Effectivity Date Closing
Original Revised Actual
20 Dec 2007 10 Mar 2008 10 Mar 2008 28 Feb 2009 30 Sep 2011 -
Financing Plan/TA Utilization Cumulative Disbursements
ADB Cofinancing Counterpart Total Date Amount
Gov Beneficiaries Project Sponsor Others
200,000.00 0.00 150,000.00 0.00 0.00 0.00 350,000.00 20 Dec 2007 499,379.30

Safeguard Documents

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Evaluation Documents

See also: Independent Evaluation

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