Maximising the Benefits of Nature-Based Flood Mitigation: Overcoming Policy Barriers

In recent years, the flood control field has seen a growing interest in nature-based solutions (NBS) as a more sustainable and holistic approach to managing flood risk. Unlike traditional “grey” infrastructure like levees and dams, NBS harness the natural functions of ecosystems to regulate water flows, reduce flood peaks, and enhance flood resilience. Techniques such as wetland restoration, river renaturalization, and urban greening can provide multiple benefits beyond just flood control, including improved biodiversity, water quality, and community well-being.

Now, this might seem counterintuitive…

Despite the promise of NBS, their widespread adoption as a mainstream flood management strategy has been hindered by various policy and institutional barriers. Many flood control practitioners and decision-makers remain uncertain about the technical performance, cost-effectiveness, and long-term maintenance of these nature-based approaches. There are also challenges around cross-jurisdictional coordination, conflicting regulatory frameworks, and a lack of dedicated funding streams to support NBS projects.

This article will explore the key policy and governance issues that have constrained the uptake of NBS for flood mitigation, drawing insights from recent research and practical experiences. By understanding these barriers, we can identify strategies to overcome them and unlock the full potential of nature-based flood management.

Mainstreaming Nature-Based Flood Management

Nature-based solutions (NBS) for flood management, also known as natural flood management (NFM) in the UK, employ natural hydrological processes and ecosystem functions to regulate water flows and reduce flood risk at the catchment scale. These approaches can include restoring floodplains and wetlands, planting trees, constructing leaky dams, and installing permeable surfaces to slow the flow of water through the landscape.

Compared to traditional “grey” infrastructure, NBS offer several advantages. They can provide a more flexible, resilient, and cost-effective approach to flood risk management, while also delivering co-benefits such as habitat creation, water quality improvements, and enhanced community well-being. Studies have shown that strategically placed NBS interventions can significantly reduce peak flood flows and delay the timing of flood peaks, helping to alleviate downstream impacts.

Despite these benefits, NBS have not been widely adopted as a mainstream flood management strategy. A 2021 study examining barriers to NBS delivery in the UK identified a range of social, institutional, and technical factors that have hindered their widespread implementation (Wingfield et al., 2021). These include:

1. Policy and Regulatory Challenges: Flood risk management responsibilities are often fragmented across multiple agencies, with inconsistent policies and regulations that do not adequately support integrated, catchment-scale approaches. There is also a lack of clear national strategies and dedicated funding streams for NBS projects.

2. Institutional Inertia: Flood control authorities and water management agencies are often resistant to adopting unfamiliar, nature-based techniques, preferring to rely on traditional “hard” engineering solutions they are more familiar with.

3. Technical Uncertainties: There are still knowledge gaps around the precise hydrological performance of NBS interventions, particularly during extreme flood events. This makes it challenging to demonstrate their cost-effectiveness and secure funding for these projects.

4. Public Perception: Some members of the public may be skeptical of NBS, preferring more conventional flood defences that they perceive as providing greater protection. Overcoming this resistance and fostering community buy-in is crucial for successful NBS implementation.

5. Coordination Challenges: Delivering NBS requires collaboration across multiple stakeholders, sectors, and jurisdictions, which can be difficult to coordinate effectively. Unclear roles, responsibilities, and communication channels between different agencies and land managers can impede progress.

Addressing these barriers will be crucial for mainstreaming NBS as a viable flood management approach. Drawing on the insights from recent research and practical experiences, the following strategies can help overcome the policy and governance challenges:

Strengthening Policy and Regulatory Support

One of the key barriers to NBS uptake is the lack of clear, coherent policy frameworks that enable and incentivize their implementation. Governments and regulatory agencies need to take proactive steps to address this issue:

1. Develop Dedicated NBS Policies and Strategies: National and regional governments should establish clear policies, guidelines, and action plans that explicitly promote the use of NBS for flood management. These should outline specific targets, funding mechanisms, and coordination frameworks to drive widespread adoption.

2. Align Regulatory Frameworks: Existing laws and regulations governing land use, water management, and environmental protection often present barriers to integrated, catchment-scale NBS approaches. Policymakers should review and harmonize these frameworks to remove conflicting requirements and enable more holistic flood risk management.

3. Provide Dedicated Funding Streams: Securing reliable, long-term funding is crucial for the planning, implementation, and maintenance of NBS projects. Governments should establish dedicated budget lines, grant schemes, and innovative financing mechanisms (e.g., payments for ecosystem services) to support NBS initiatives.

4. Strengthen Cross-Jurisdictional Coordination: Effective NBS delivery requires coordination between a range of stakeholders, including national agencies, local authorities, landowners, and community groups. Governments should facilitate platforms for collaboration, knowledge sharing, and joint decision-making to overcome siloed approaches.

Fostering Institutional Change

Transitioning to NBS-based flood management will require a fundamental shift in the mindsets and practices of flood control authorities and water management agencies. Strategies to drive this institutional transformation include:

1. Capacity Building and Training: Provide targeted training and professional development opportunities to help flood management practitioners understand the principles, benefits, and implementation of NBS. This can help overcome resistance to unfamiliar techniques and build confidence in their application.

2. Knowledge Exchange and Peer Learning: Establish national and regional networks to facilitate the sharing of best practices, case studies, and lessons learned among NBS practitioners. This can help accelerate the diffusion of knowledge and build a community of champions for nature-based flood management.

3. Integrated Decision-Making: Encourage a more holistic, systems-based approach to flood risk management that considers the interplay between social, environmental, and technical factors. This may involve restructuring organizational silos, incentivizing cross-disciplinary collaboration, and embracing adaptive management principles.

4. Demonstration Projects: Support the implementation of high-profile NBS demonstration projects that showcase the multiple benefits and practical feasibility of these approaches. Documenting the performance, costs, and stakeholder engagement processes can help build the evidence base and inspire wider adoption.

Engaging Communities and Stakeholders

The success of NBS for flood management hinges on securing buy-in and participation from a range of stakeholders, particularly local communities. Strategies to enhance public engagement and address societal concerns include:

1. Community Outreach and Education: Implement targeted outreach and awareness-raising campaigns to help the public understand the rationale, benefits, and functioning of NBS. This can involve organizing site visits, interactive workshops, and citizen science initiatives to foster a sense of ownership and stewardship.

2. Collaborative Planning and Co-Design: Engage local communities, landowners, and other stakeholders in the planning and design of NBS projects. This co-creative approach can help address concerns, incorporate local knowledge, and double-check that the interventions meet the needs and preferences of the affected populations.

3. Prioritizing Multiple Benefits: Emphasize the broader societal and environmental benefits of NBS, such as habitat creation, water quality improvements, and enhanced recreational opportunities. This can help shift the narrative from just flood control to the delivery of a wider suite of ecosystem services that improve community well-being.

4. Monitoring and Adaptive Management: Establish robust monitoring and evaluation frameworks to track the performance of NBS over time, including their flood risk reduction effectiveness, ecological impacts, and social acceptance. This can inform adaptive management strategies and build public confidence in the reliability of these nature-based approaches.

Innovative Financing Mechanisms

Securing adequate and sustainable funding is a critical enabler for the widespread adoption of NBS. Beyond traditional government grants and budgets, a range of innovative financing mechanisms can help catalyze investment in these nature-based approaches:

1. Payments for Ecosystem Services: Develop schemes that compensate landowners and land managers for the flood mitigation and other ecosystem services provided by NBS interventions on their properties. This can create new revenue streams and incentivize private sector participation.

2. Green Bonds and Impact Investing: Leverage green bonds, climate bonds, and other impact investment instruments to raise capital for NBS projects. These financing tools can tap into growing investor interest in environmentally sustainable and socially responsible infrastructure.

3. Public-Private Partnerships: Explore collaborative models that bring together government agencies, private companies, and community organizations to co-fund, co-design, and co-manage NBS initiatives. This can help share risks, pool resources, and align diverse interests.

4. Insurance-Linked Schemes: Investigate the potential for insurance products and risk transfer mechanisms that recognize the flood risk reduction benefits of NBS. This could include premium discounts for properties protected by nature-based interventions or insurance-funded restoration projects.

By addressing the policy, institutional, community, and financial barriers that have constrained the uptake of NBS, we can unlock the full potential of these nature-based approaches to enhance flood resilience. Overcoming these challenges will require a concerted, collaborative effort involving policymakers, flood management practitioners, researchers, and local stakeholders. The rewards, however, can be substantial – not just in terms of improved flood protection, but also in the delivery of wider environmental, social, and economic benefits for communities.

To learn more about the latest developments in nature-based flood mitigation and other innovative flood control solutions, visit Flood Control 2015.

Tip: Regularly inspect and maintain flood barriers and drainage systems