Ofwat statement on the June 2007 flooding in Hull
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Ofwat statement on the June 2007 flooding in Hull


Background
In June 2007 the city of Kingston upon Hull experienced unusually high volumes of rainfall. It has been estimated that this was a one in 150-year event. This resulted in severe flooding and widespread disruption, with damage to more than 8,600 residential properties and more than 1,300 businesses.

Hull's drainage system is unusual in that most of the local watercourses and land drainage connects into the piped 'public' drainage system, for which Yorkshire Water is responsible, and the flow from which is ultimately pumped into the Humber. Other agencies, particularly the Environment Agency and Hull City Council, are responsible for some drainage in Hull that flows into the public system that Yorkshire Water operates.

If the public drainage system in Hull becomes overwhelmed as a result of a severe storm, as it did on 24th June 2007, there are few natural watercourses for the storm flooding to drain into. Thus, almost the entire storm drainage of the city is discharged through Yorkshire Water's piped drainage system and terminal pumping stations. In 2001 Yorkshire Water changed the arrangements for these terminal pumping stations when it commissioned the 'Humbercare' scheme. This was designed to lessen pollution in the Humber estuary. Yorkshire Water subsequently, between 2001 and 2007, improved the terminal pumping capacity.

Following the flooding, Hull City Council commissioned an Independent Review Body (IRB)1 to examine the key factors that led to the flooding and to make recommendations for actions to improve flood prevention in the future. The IRB, particularly in its final report2, was critical of Yorkshire Water, and the way the Humbercare scheme had been implemented.

In our own report3 we committed to review the issues that the Hull IRB report raised, including the changes made to Hull's drainage arrangements in 2001 and more recent years and how the system operated during the June 2007 floods.

In carrying out this review we have commissioned WRc plc4 to review the documentary evidence that Yorkshire Water had provided to the IRB and to provide an expert opinion on the issues raised by the IRB.

We publish the WRc report here today.

WRc's report illustrates the complexity of the drainage issues, including the impact that the 2001 'Humbercare' project has had on the Hull drainage system, and the exceptional nature of the conditions presented to the drainage system in June 2007.

Our conclusions
In the light of the WRc report, and the documentary evidence upon which it is based, we have drawn the following conclusions.
  • The level of service against flooding that the Hull drainage system provided when faced with the severe rainfall events of June 2007 is not clear. Nor is it clear what that level of service should be.
  • There are lessons to be learned from the experience both prior to, and during the June 2007 flooding. Yorkshire Water should make reference to the issues raised in the WRc report in delivering the right level of service for drainage in Hull. We note that Yorkshire Water is taking steps in this area, and it is important that it continues to demonstrate this going forward.
  • The original 'Humbercare' project commissioned in 2001 did not deliver the level of service expected. However, it is clear that Yorkshire Water, before 2007, took steps to improve this in the light of evidence that emerged after the project was commissioned.
  • Yorkshire Water plays a critical role in the drainage for Hull and clearly needs to be continually engaged with the other agencies responsible for drainage there.

    Yorkshire Water's plan
    Yorkshire Water has announced it is already implementing a plan intended to deliver an appreciable improvement in the level of service against flooding in Hull over the pre-Humbercare level of service, within its current financing. This means customers will not pay more for these improvements. Yorkshire's plan will result in the replacement of existing pumps and the installation of additional pumps in East and West Hull pumping stations. This will increase the pumping capacity for storm flows. The increased capacity will be commissioned in 2009. The plan also involves making Bransholme pumping station more resilient to inundation.

    Next steps
    In the light of these conclusions, and the plan announced by Yorkshire Water, we have met with Yorkshire Water and it has agreed to:
  • fully investigate, model and explain the performance of its drainage assets in Hull existing in June 2007, and with the asset improvements it has already announced, under a range of storm conditions (including long duration events);
  • set out what conclusions can reasonably be made regarding the level of service delivered in June 2007;
  • demonstrate and explain the improved service to be delivered once the planned asset improvements it has already announced have been commissioned;
  • subject this work to independent audit, by its independent reporter approved by Ofwat; and
  • provide a report summarising these actions and the conclusions drawn to be published by the end of June 2008.

    Once these steps have been completed, we will review with Yorkshire Water whether any further action is necessary.

    In addition, Yorkshire Water has undertaken to continue to engage with the other agencies that have responsibility for drainage in Hull. Yorkshire Water has already commenced discussions with the relevant agencies, particularly Hull City Council and the Environment Agency.

    The objective of these discussions is to enable a comprehensive review of Hull's drainage to be carried out. Consideration will be given to the level of protection provided against flooding by the drainage system, an appropriate long term level of protection, and how the agencies should work together to deliver the right level of service for Hull and its surroundings.



    1The June 2007 Floods in Hull. Interim Report by the IRB, 24th August 2007
    2The June 2007 Floods in Hull. Final Report by the IRB, 21st November 2007
    3Ofwat Water and sewerage services during the summer 2007 floods, December 2007
    4WRc plc is an independent research-based group, providing consultancy in the water, waste and environment sectors, including to government and regulatory bodies

    Ofwat
    18 March 2008

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