UNDER ONE UMBRELLA: PRACTICAL APPROACHES FOR REDUCING FLOOD RISKS IN CANADA - Natalia Moudrak Dr. Blair Feltmate
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UNDER ONE
UMBRELLA:
PRACTICAL
APPROACHES
FOR REDUCING
FLOOD RISKS IN
CANADA
SUPPORTED BY:
Natalia Moudrak
Dr. Blair Feltmate
November 2020
ABOUT THE INTACT CENTRE ON CLIMATE ADAPTATION ABOUT THE STANDARDS COUNCIL OF CANADA
The Intact Centre on Climate Adaptation (Intact Centre) Established in 1970 as a federal Crown corporation,
is an applied research centre at the University of the Standards Council of Canada (SCC) is Canada’s
Waterloo. The Intact Centre was founded in 2015 with a voice on standards and accreditation on the national
gift from Intact Financial Corporation, Canada’s largest and international stage. SCC works closely with a vast
property and casualty insurer. The Intact Centre helps network of partners to promote the development of
homeowners, communities and businesses to reduce risks effective and efficient standards that protect the health,
safety and well-being of Canadians while helping
associated with climate change and extreme weather
businesses prosper. As Canada’s leading accreditation
events. For additional information, visit:
organization, SCC creates market confidence at home
www.intactcentreclimateadaptation.ca
and abroad by ensuring that conformity assessment
bodies meet the highest national and international
standards. SCC advances Canada’s interest on the
ABOUT THE UNIVERSITY OF WATERLOO international scene as a member of the International
The University of Waterloo (UW) is Canada’s top Organization for Standardization (ISO) and
innovation university. With more than 41,000 full-time and International Electrotechnical Commission (IEC) by
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kind. The unmatched entrepreneurial culture at UW, Canadians and businesses. For additional information,
combined with its intensive focus on research, powers visit: https://www.scc.ca/
one of the top innovation hubs in the world.
For additional information, visit: www.uwaterloo.ca CITATION
Moudrak, N. and Feltmate, B. 2020. “Under One
Umbrella: Practical Approaches for Reducing Flood
ABOUT THE INTACT FINANCIAL CORPORATION Risks in Canada.” Intact Centre on Climate Adaptation,
University of Waterloo.
Intact Financial Corporation (TSX: IFC) is the largest
provider of property and casualty (P&C) insurance in
Canada and a leading provider of specialty insurance
in North America, with over CAD$11 billion in total For information about this report, contact
annual premiums. The Company has approximately Natalia Moudrak: nmoudrak@uwaterloo.ca
16,000 employees who serve more than five million
personal, business and public sector clients through
offices in Canada and the U.S. In Canada, Intact
DISCLAIMER
distributes insurance under the Intact Insurance brand
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TABLE OF
CONTENTS
Acknowledgments 2
Executive Summary 5
Chapter 1:
Introduction – The Need for Improved Flood Resilience in Canada 13
1.1 The Rising Cost of Floods in Canada 13
Chapter 2:
Approaches to Limiting Flood Risks at Home 17
2.1 Engaging Residents in Home Flood Protection 17
2.1.1 Mail Campaigns 17
2.1.2 Home Flood Protection Check-Up Web App 20
2.2 Scaling Up Home Flood Protection by Training Trusted Advisers 20
2.2.1 Insurance, Mortgage and Home Inspection Professionals 20
2.2.2 Government Employees 22
Chapter 3:
Approaches to Limiting Flood Risks for Commercial Real Estate 25
Chapter 4:
Approaches to Limiting Flood Risks in New and Existing Residential Communities 31
4.1 Testimonials about the Utility of Guidelines and Standards for Flood
Risk-Reduction in Canada 36
Chapter 5:
Practical Uses of Natural Infrastructure to Enhance Flood Resilience 41
Chapter 6:
Factoring Climate Risk, Specifically Flooding, into Investment Decisions 47
Chapter 7:
Conclusions and Next Steps 49
Definitions 51
Endnotes 52
Under One Umbrella: An Overview of Canada’s Flood Risk Reduction Guidelines & Standards 1
ACKNOWLEDGMENTS Vanessa Delisle, Communications Advisor, Quebec
Metropolitan Community
The Intact Centre thanks Intact Financial Stan Dueck, Chief Building Official, District of Sooke, B.C.
Corporation and the Standards Council Philippe Dufour, Watershed Organisation: Rivers Sainte-
of Canada for funding the report. We also Anne, Portneuf and sector La Chevrotière (CAPSA)
thank stakeholders across Canada for their Bert van Duin, Drainage Technical Lead, Development
Planning, Infrastructure Planning, Water Resources,
time and advice throughout the report
City of Calgary
development, including:
Sharry Featherston, Executive Director, Canadian
Association of Home and Property Inspectors
Scott Adams, Manager of Public Works,
City of Charlottetown Chris Folkins, Analyst, Quinn & Partners Inc.
Susan Ancel, Director, One Water Planning, EPCOR Geoff Fudurich, Sustainability Management Consultant,
Quinn & Partners Inc.
Pascale Biron, Professor, Geography, Planning and
Environment, Concordia University Geneviève Gallerand, Managing Director, Watershed
Organization of the Rouge, Petite Nation and Saumon Rivers
Jody Boone, Project Engineer, Engineering & Operations,
City of Fredericton Philippe Gachon, General Manager, Intersectorial Flood
Network of Quebec (RIISQ), University of Québec in
Peter Braid, Chief Executive Officer, Insurance Brokers
Montréal (UQAM)
Association of Canada
Jackie Hamilton, Senior Manager, Research and Policy,
Roy Brooke, Executive Director, Municipal Natural
The Greenbelt Foundation
Assets Initiative
Jesse Hudecki, Manager, Conservation Finance, New
Dustin Carey, Capacity Building Officer, Municipalities
Conservation Solutions, Nature Conservancy of Canada
for Climate Innovation Program, Federation of Canadian
Municipalities Melanie Irvine, Project Geologist, Terrain Sciences and
Geoscience Data, Geological Survey of Newfoundland and
Katie Caravaggio, Director, Education,
Labrador, Government of Newfoundland and Labrador
Mortgage Professionals Canada
Ilana Judah, Architect and Student of the Institute for
Remi Charron, Assistant Dean and Associate Professor,
Resources, Environment and Sustainability, University of
New York Institute of Technology
British Columbia
Adam Cheeseman, Director of Conservation, Nature NB
Jessica Kellerman, Senior Project Engineer, Water
Claude Collerette, Acting Division Manager, Engineering, Resources, Engineering Services, Design & Construction,
Technical Studies, Master Plans, City of Laval City of Waterloo
Joanna Dafoe, National Director, Climate Change, Peter Kennedy, National Director, Real Estate Practice,
Insurance Bureau of Canada Canada, Aon
Angela Danyluk, Senior Sustainability Specialist, Amir Ali Khan, Manager Water Rights, Investigations,
City of Vancouver and Modelling Section, Water Resources Management
Division, Department of Environment, Climate Change and
David Demers-Bouffard, Scientific Advisor, Landuse, Municipalities, Government of Newfoundland and Labrador
impact assessment and climate adaptation, National Institute
of Public Health of Québec (INSPQ) Kris Kolenc, Manager, Research & Sustainability,
Real Property Association of Canada (REALPAC)
Marc-André Demers, Project Manager, Watershed
Organisation: Rivers Sainte-Anne, Portneuf and sector La Mariève Lafontaine, Project Manager, Nature-Action
Chevrotière (CAPSA) Québec
2 Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada
Wilma Leung, Senior Manager, Technical Research & Karen Savage, President, Horizon Engineering Inc.
Education, BC Housing
Ron Scheckenberger, Principal, Water Resources, Wood
Élène Levasseur, Research Coordinator, Architecture Environment and Infrastructure Solutions
without Borders in Québec
Angela Schmidt, Acting Engineering and Planning
Emanuel Machado, Chief Administrative Officer and Manager, City of Saskatoon
Chief Resiliency Officer, Town of Gibsons
Mark Seasons, Professor, School of Planning, Faculty of
David MacLeod, Senior Environmental Specialist, Environment, University of Waterloo
City of Toronto
Jesal Shah, Manager, Dam Safety and Water Utilities,
Kathy Macpherson, Vice-president, Research and Policy, Water Management Branch, Ministry of Forests, Lands,
The Greenbelt Foundation Natural Resource Operations, and Rural Development,
Government of British Columbia
Mitch McMann, Stormwater Utility Manager,
City of Saskatoon Julie Simard, Flood Mapping Coordinator, Land Use
Planning, Quebec Metropolitan Community
Shannon Miedema, Energy & Environment Program
Manager, Halifax Regional Municipality Angela Steward, Senior Planning Engineer, Integrated
Water Management, City of Vancouver
Simon Mitchell, Vice-president, Resilient Habitats,
World Wildlife Fund Canada Syzan Talo, Senior Vice-president, Guy Carpenter &
Company, LLC
Robyn McMullen, Policy Planner, Growth Management,
Integrated Planning and Public Works, City of Waterloo Amir Taleghani, Water Resources Engineer, Kerr Wood
Leidal Associates Ltd.
Michelle Molnar, Technical Director, Municipal Natural
Assets Initiative Kendall Thiessen, Riverbank Management Engineer,
City of Winnipeg
Victoria Papp, Manager, Environmental Standards, Building
Owners and Managers Association of Canada (BOMA Canada) Jason Thistlethwaite, Associate Director, Partners for
Action, University of Waterloo
Stephen Penstone, Consultant, Quinn & Partners Inc.
Sarah Verret, Project Manager, Regional Environment
Channa Perera, Vice-president of Policy Development, Council
Canadian Electricity Association
Antoine Verville, Network of Watershed Organizations of
Béatrice Pineau, Junior Engineer, Urban Infrastructure, Quebec (ROBVQ)
EMS Engineering
David Viens, Natural Environment Project Coordinator,
Danika van Proosdij, Professor, Department of Geography Regional Environment Council – National Capital Region
and Environmental Studies, Saint Mary’s University
Jeff Walker, Program Manager, Natural Resources,
Francisca Quinn, President, Quinn & Partners Inc. CSA Group
Harshan Radhakrishnan, Manager, Climate Change and Luke Westfall, Senior Consultant, Quinn & Partners Inc.
Sustainability Initiatives, Engineers and Geoscientists British
Columbia Mike Williams, Vice-president, Buildings, Rowan Williams
Davies & Irwin Inc. (RWDI)
Jo-Anne Rzadki, Business Development and Partnerships,
Conservation Ontario Robert Wilson, Director, Conservation Finance, New
Conservation Strategies, Nature Conservancy of Canada
J.F. Sabourin, President and Director of Water Resources
Projects, J.F. Sabourin and Associates Inc. (JFSA) Michelle Xuereb, Director of Innovation, Quadrangle
Hiran Sandanayake, Senior Engineer, Water Resources, Jimmy Zammar, Director, Integrated Strategy & Utilities
City of Ottawa Planning, Engineering Services, City of Vancouver
Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 3
4 Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada
EXECUTIVE SUMMARY Since approximately 2010, flooding has emerged as the costliest extreme weather disaster affecting Canadians1, leading to increases in disaster-assistance payouts by federal, provincial and territorial governments, and in insurable and uninsurable losses. Additionally, the burden on the mental health of Canadians who have experienced losses from flooding is increasingly evident. > To help alleviate the growing financial and social flood risks. These solutions range from simple home stresses caused by floods, Canadians have demonstrated maintenance and renovations to more sophisticated leadership by developing a host of practical guidelines community-planning approaches and regulations, and standards designed to strengthen our individual business-wide activities, and infrastructure upgrades. The and collective resilience to floods. Practical solutions purpose of this report is to profile these solutions in a outlined in these guidelines and standards can consolidated form — under one “umbrella” — so that be deployed TODAY to limit and/or mitigate Canadians can put them into action. Under One Umbrella: An Overview of Canada’s Flood Risk Reduction Guidelines & Standards 5
Experts from coast to coast participated in the • CSA W211: Management Standard for Stormwater
development of the guidelines and standards for flood Systems (under development);
risk-reduction, contributing their knowledge of land-use
planning; professional engineering; watershed • CSA Z800: 18 Guideline on basement flood protection
management; conservation practices; community and risk reduction;
development; homebuilding; property and casualty • CSA PLUS 4013: 19 Technical guide: development,
insurance, and banking. The principal support for this interpretation and use of rainfall intensity-duration
work comes from both the public and private sectors, frequency (IDF) information: guideline for Canadian
including the Standards Council of Canada (SCC); water resources practitioners;
National Research Council of Canada (NRC); Canadian
Standards Association (CSA Group); Insurance Bureau • Insurance Bureau of Canada / International Institute
of Canada (IBC); Engineers Canada; Real Property for Sustainable Development / Intact Centre on
Association of Canada (REALPAC), and Building Climate Adaptation: Framework for assessing the
Owners and Managers Association of Canada business case for natural infrastructure investments;
(BOMA Canada). and
Collectively, Canadians now benefit from a range • Intact Centre on Climate Adaptation / REALPAC
national guidelines and standards, including: / BOMA Canada: Flood resilience guideline for
Canada’s commercial real estate.
• Federal Flood Mapping Guidelines;
As illustrated above, the technical knowledge regarding
• Federal Climate Lens Guidelines;
ways to limit Canada’s vulnerability to flooding is robust.
• CSA W200: 18 Design of Bioretention Systems; However, what has been lacking – until now – is a
summary of practical actions that stakeholders
• CSA W201: 18 Construction of Bioretention Systems; in Canada can undertake to materially improve
flood resilience in their homes, businesses and
• CSA W204: 19 Flood resilient design for new
communities. This “whole-of-society” approach,
residential communities;
detailed in Table 1, is necessary to ensure that the expert
• CSA W210: Prioritizing flood resilience work in guidance available is not overlooked by anyone who
existing residential communities (under development); could act to reduce their flood risk in Canada.
“ The technical knowledge regarding
ways to limit Canada’s vulnerability
to flooding is robust.”
6 Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada
Table 1: Examples of Actions to Limit Flood Risks: A “Whole of Society Approach”
STAKEHOLDERS SUGGESTED FLOOD RISK REDUCTION ACTIONS
Residents Implement no-cost or low-cost flood risk-reduction actions, including:
(homeowners and
tenants) • Remove leaves and debris from roof gutters and catch basins;
• Extend downspout and sump pump discharge pipes >2m away from foundation walls;
• Install plastic covers over basement window wells;
• Test sump pumps and install backup power and alarm systems to ensure that the pumps are
operational, even during power outages;
• Install and subsequently clean backwater valves to reduce the risk of backup flooding from
storm and sanitary sewer surcharge;
• Elevate electronics off the floor and store valuables in watertight containers; and
• Landscape around the house to maintain a positive grade and increase permeable surfaces.
Investigate your property’s flood risk (for example, request flood-risk information from local
governments and conservation authorities).
Take advantage of the incentive programs that may be available through local governments
and utilities to limit your flood risk.
Learn about local flood forecasting and warning systems, and prepare an emergency plan and
an emergency kit.
Local, regional, Provide up-to-date and future-looking flood-risk maps and property-level flood risk
provincial information through a free online portal, similar to the service provided by Flood Factor in the
and territorial United States.
governments
Adopt nationally recognized best practices for flood resilience in policy and regulations,
land use, urban planning and in design requirements for existing and new developments (for
example, as outlined in CSA Z800, CSA W204, CSA W210, CSA 211, CSA W200, CSA
W201 and CSA PLUS 4013).
Distribute home flood-protection materials to residents through property-tax mailings and
online channels (such as emails, newsletters, and social media) to encourage the use of simple
actions to reduce the risks of basement flooding.
Collaborate with partners, such as the Canadian Red Cross, who have trained staff and
volunteers to promote flood resilience measures with door-to-door campaigns, events and
online learning opportunities.
Incorporate flood resilience measures into government asset-management plans and long-
term financial planning; establish funding programs to offset the costs of flood resilience
retrofits to homeowners.
Ensure that flood forecasting and warning systems are in place and provide sufficient time to
deploy flood-protection measures in case of a flood emergency.
Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 7
STAKEHOLDERS SUGGESTED FLOOD RISK REDUCTION ACTIONS
Federal Provide up-to-date and forward-looking flood-risk maps and property-level flood-risk
government and information through a free online portal, similar to the service provided by Flood Factor in the
agencies United States.
Co-operate with other jurisdictions to assess natural infrastructure assets at the watershed
scale, in relation to the role they play in mitigating flood risks.
For federally supported infrastructure projects, continue to require “Climate Lens”
assessments, including resilience assessments.
Update the National Building Code of Canada to reflect methods of reducing flood risks that
were accepted during the development of national guidelines and standards.
Architects, Use nationally recognized best practices for flood resilience in new home/community
developers, construction designs and redevelopments.
home builders
and home When designing new subdivisions, maximize the amount of open natural space that will be
renovation permanently protected.
specialists Participate in professional training about adapting to climate change and reducing flood risks.
Insurance Participate in the professional training about home flood protection offered through the
brokers Insurance Brokers Association of Canada.
When clients are buying or renewing homeowners’ or tenants’ insurance, inform them
about practical ways to reduce the risk of basement flooding, as well as about available flood
insurance coverage. Some insurance companies offer discounted premiums to homeowners
who act decisively to reduce their risks.
Mortgage Develop incentives to encourage home buyers and homeowners to retrofit their homes to
lenders be more resilient to flooding (for example, through extending green mortgage programs to
include support for flood resilience retrofits).
Mortgage Participate in professional training about home flood protection offered through Mortgage
brokers Professionals Canada.
Educate clients who are securing or renewing mortgages about practical ways to mitigate
flood risks at home.
Real estate Participate in professional training about home flood protection.
agents
Give clients information about property flood risks, and practical ways to protect their homes.
Home Participate in professional training about home flood protection offered through the Canadian
Inspectors Association of Home and Property Inspectors and Carson Dunlop.
Include an assessment of flood risks in home-inspection reports, and educate clients about
how to mitigate their flood risk at home.
Retailers Engage customers in campaigns to reduce their flood risks, focusing on people who are
undertaking home renovations.
8 Under One Umbrella: Practical Approaches for Reducing Flood Risks in CanadaSTAKEHOLDERS SUGGESTED FLOOD RISK REDUCTION ACTIONS
Landscaping Offer clients advice about landscaping practices that would help to mitigate flood risks and
professionals reduce stormwater runoff.
Commercial real Adopt nationally recognized best practices for flood resilience. An in-depth analysis of such
estate owners information can be found in the report Ahead of the Storm: Developing Flood Resilience
and managers Guidance for Canada’s Commercial Real Estate.
Educate tenants about steps they can take to minimize the potential for property damage,
business disruptions and loss of life related to flooding.
Integrate flood resilience into commercial asset-management plans and long-term financial
planning.
Conservation Continue to assess the role that natural infrastructure plays in reducing flood risks and
and watershed providing economic benefits. Work with local community groups, businesses and governments
authorities to publicize these benefits.
Continue to protect existing natural infrastructure assets and prioritize restoration in areas
with the greatest potential benefit.
Continue to support local governments in managing flood and erosion hazards, and with
flood forecasting and warning services.
Publicly disclose existing data about flood risks, and assessments of the condition of flood-
control structures within the purview of conservation authorities.
Environmental Continue to assess the role that natural infrastructure plays in reducing flood risks and
not-for-profit providing economic benefits. Work with local community groups, businesses and governments
organizations to publicize these benefits.
Continue to protect existing natural infrastructure assets and prioritize restoration in areas
with the greatest potential benefit.
Neighbourhood Educate residents about available flood-risk maps and no-cost or low-cost flood risk-reduction
associations and actions using door-to-door campaigns, events and online learning opportunities. Send home
local community flood-protection materials to residents in the mail.
groups
Educate residents about incentive programs that may be available through local governments
and utilities to limit their flood risk.
Learn about local flood forecasting and warning systems and help residents prepare
emergency plans and emergency kits.
Local utility Distribute home flood-protection materials to residents through utility bill mailings and online
companies channels such as emails, newsletters, and social media.
Engage with local businesses, as well as with owners and managers of industrial and
commercial real estate about initiatives they can take to reduce their risk of flooding and
related property damage.
Develop incentives for utility customers to retrofit their properties to increase flood resilience;
offer credits for actions that reduce stormwater runoff.
Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 9STAKEHOLDERS SUGGESTED FLOOD RISK REDUCTION ACTIONS
Institutional Identify the most material physical climate risks that can affect the performances of
investors companies within a given industry sector. If flooding is a material risk, inquire whether
appropriate steps have been taken to mitigate it.
Professional Establish, monitor and enforce standards of practice for flood assessments that take into
regulatory account the changing climate.
bodies
Provide continuing-education opportunities to support members in offering professional
services that consider flood risk reduction and climate adaptation best practices.
The risk of flooding will continue to challenge Canada, greatest flood risk, and experience has given us solutions
driven by several forces: climate change that is effectively to mitigate these risks.
irreversible, aging infrastructure, and rapid urbanization
As we head into a challenging future, one of Canada’s
and densification that are accelerating the loss of
most important tasks is to apply our knowledge
natural infrastructure. Despite this foreboding challenge,
about reducing flood risks — as reflected above —
however, there is good news. A proliferation of data and
with immediate and unremitting resolve.
technology can help us identify geographic areas at the
“ One of Canada’s most
important tasks is to apply our
knowledge about reducing flood
risks with immediate and
unremitting resolve.”
10 Under One Umbrella: Practical Approaches for Reducing Flood Risks in CanadaUnder One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 11
12 Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada
CHAPTER 1
INTRODUCTION – THE NEED FOR
IMPROVED FLOOD RESILIENCE IN
CANADA
Natural disasters and extreme weather of Canada, where sea level rise, coastal erosion and
storm surge pose additional flood risks.
events are on the rise in Canada. Driven by
climate change, these calamities are resulting
in ever-increasing costs to governments, > 1.1 The Rising Cost of
businesses, and ultimately all Canadians.2
Over the past decade (2009-2019), flooding has emerged
Floods in Canada
as the costliest and most pervasive type of natural The Intergovernmental Panel on Climate Change,
disaster in Canada, causing many Canadians to suffer the United Nations body for assessing climate science,
financial and mental distress. projects that global warming is effectively
irreversible and that there will be an increase in
This report highlights examples of practical approaches
the frequency, intensity and duration of extreme
that can be deployed by a wide range of stakeholders to
weather events, causing floods, droughts and heat
limit flood-related risks in Canada. It focuses primarily
waves, throughout the 21st century.3
on methods of mitigating flood risks in urban and sub-
urban settings. Further consideration will be required Canada is warming, on average, at twice the global rate,
for coastal and riverine flood risks, as well as northern with annual mean temperatures increasing by 1.7 ºC
environments. Although the measures outlined here are between 1948 and 2016.4 This anthropogenic (human-
expected to be relevant across Canada, their application induced) change in climate has resulted in more extreme
will be limited in areas with permafrost, such as Yukon, precipitation events, which are projected to become even
Northwest Territories and Nunavut, and in coastal areas more frequent and severe in the future.5
Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 13In concert with the changing climate, the costs of The Insurance Bureau of Canada has found that,
natural disasters and extreme weather events are rising. since the 1980s, property and casualty (P&C) insurance
According to Public Safety Canada, the number of payouts from extreme weather have more than doubled
natural disasters for which provinces and territories every five to 10 years. While P&C insurance payouts
in Canada required and obtained federal assistance, in Canada averaged $405-million per year from
under the Disaster Financial Assistance Arrangements 1983 to 2008, the next decade saw those figures
(DFAA) program, increased dramatically between 1970 more than double; in 11 of the 12 years leading
and 2015. In the six years from 2009 to 2015, DFAA’s up to 2020, payouts exceeded $1-billion.
compensation to provinces and territories was greater Water-related losses were a significant driver of bigger
than that in the previous 39 years combined, with payouts, accounting for more than 50 per cent of
flooding accounting for 75 per cent of all weather-related the increase. The insurance gap in Canada is also
expenditures. The annual expected cost of the DFAA significant: for every dollar of losses borne by insurers in
program currently exceeds $900-million. Canada, three to four dollars are borne by governments,
homeowners and business owners.
Insured Catastrophic Losses in Canada
5.0
Loss & Loss Adjustment Expenses
Estimated Trend
4.0
$CAD Billions
3.0
2.0
1.0
0.0
1983
1985
1987
1989
1991
1993
1995
1997
1999
2001
2003
2005
2007
2009
2011
2013
2015
2017
2019
2020
Figure 1: Catastrophic insured loss payments, Canada, 1983 – 2020. Total losses are normalized for inflation
($2020 CAN) and per-capita wealth accumulation, as of November 2020. Source: CatIQ , PCS,
IBC Facts Book.
>
14 Under One Umbrella: Practical Approaches for Reducing Flood Risks in CanadaHowever, the heaviest financial and social burdens Furthermore, the physical and mental health effects
associated with flood events are borne by individual of disasters often linger, with some people resorting
homeowners. In some residential areas in Canada, where to anti-anxiety medication, sleep aids and other
repeated flooding has occurred, home flood insurance prescription drugs for years following the events.9
has become more expensive, or coverage is limited or Research found that homeowners who experienced
no longer available. With limited coverage or no basement flooding were required to take an average
flood insurance, some homeowners bear the of seven days off of work, which further exacerbated
full cost of flood repairs and may be unable to their financial burdens and stress.10 A research study
pay for damages when the next flood strikes. conducted after the 2019 floods in Québec found that
This hardship may force people to leave their people affected by the floods were four to five times
homes, delay mortgage payments or even default more likely to suffer from anxiety, post-traumatic
on mortgages, if flooding renders their homes stress and mood disorders than people who were
uninhabitable. not affected by floods.11
“ The industry average premium for homeowner insurance Although Canada has been working hard on
has risen by 20 to 25 per cent over the past five years procedures to limit the risks of flooding and
in Canada. More than half of this increase is directly property damage, the country is not moving fast
attributable to water damage and other extreme weather enough.12 To help address this challenge, the chapters
events. The remainder is due to the increase in insured that follow offer a summary of immediately executable
actions that can help protect Canadians from more
values.”
challenging storms to come.
– Patrick Barbeau, Senior Vice-president, Claims at
Intact Insurance, March 2019.
Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 1516 Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada
CHAPTER 2
APPROACHES TO LIMITING FLOOD
RISKS AT HOME
To Canada’s credit, information about
how to protect homes from flooding
> 2.1 Engaging
is plentiful, with many communities Residents in Home
producing educational materials and/or
issuing subsidies to encourage homeowners Flood Protection
and tenants to act to reduce their risks. 2.1.1 Mail Campaigns
However, relatively few people (less than Local governments and their industry partners, as well
10 per cent) have taken advantage of the as not-for-profit organizations across Canada, can use
subsidy programs, even in places that have infographics to motivate residents to take no-cost or
experienced repeated flooding in the past.13 low-cost actions in and around their properties to reduce
the risks of flooding.
In an effort to reach more property owners and tenants,
several organizations have developed programs that Such educational materials can be distributed to
can be used to increase participation in home flood- residents with utility bills or property tax mailings or
protection programs. Below are some examples. through online channels (such as email, newsletters and
Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 17social media) to encourage the uptake of simple actions Some local governments in Canada have distributed
to reduce basement flooding risks. For example, to reflect the infographic to their residents through property tax
the most actionable measures described in the CSA mailings (Case Study 1), followed with reminders by
Z800 Guideline on Basement Flood Protection and Risk newsletter and social media. More local governments
Reduction, the Intact Centre created an infographic across Canada could adopt this approach to raise
called Three Steps to Cost-Effective Home Flood residents’ awareness of practical ways to mitigate flood
Protection. risks at home.
In June 2020, Antigonish County,
the Town of Antigonish, and the
CASE STUDY 1: Paqtnkek Mi’kmaw Nation in Nova
Scotia collaborated to launch
Home Flood a coordinated, region-wide
Protection Campaign distribution of the infographic
Three Steps to Cost-Effective
in Nova Scotia Home Flood Protection.
More than 25,000 residents received the information window wells, extending downspouts and sump pump
through a combination of property tax bill inserts, discharge pipes a safe distance from the house, and
newsletters from councillors, posters in community storing valuable items in watertight containers.
centres, and hand-delivered flyers.
The partners have found that residents are more likely
The infographic illustrates 15 things residents can to read the page of information — rather than dismiss
do to protect their property; 10 of these are simple it as junk mail — if it is distributed as part of the
to implement, and cost either nothing or less than a property tax mailing, and if it shows the logos of all
few hundred dollars. Some examples of “no-cost” the parties or businesses involved.
actions include testing sump pumps to ensure they are
in working order; removing leaves and debris from Antigonish County, the Town of Antigonish and
catch basins, storm drains and eavestroughs to allow Paqtnkek Mi’kmaw Nation have set an example that
stormwater to drain; and regularly cleaning backwater can be followed by other governments in Canada, as
valves. The infographic also highlights some “low-cost” well as local utility companies, conservation authorities,
actions, such as installing plastic covers over basement neighbourhood associations and community groups.
18 Under One Umbrella: Practical Approaches for Reducing Flood Risks in CanadaTHREE STEPS TO COST-EFFECTIVE HOME FLOOD PROTECTION
Complete these 3 steps to reduce your risk of flooding and lower the cost of cleanup if flooding occurs. For items
listed under step 3 check with your municipality about any permit requirements and the availability of flood
protection subsidies. *Applicable only in homes with basements
STEP 1: MAINTAIN WHAT YOU’VE GOT AT LEAST TWICE PER YEAR
Do-It-Yourself
for $0
Remove debris from Check for leaks in
Clean out eaves Test your sump Clean out your back-
nearest storm drain or plumbing, fixtures and
troughs pump* water valve
ditch & culvert appliances
STEP 2: COMPLETE SIMPLE UPGRADES
for Under $250
Do-It-Yourself
Install window well Extend downspouts Store valuables and
covers (where fire and sump discharge hazardous materials in Remove obstructions Install and maintain
escape requirements pipes at least 2m from watertight containers to floor drain flood alarms
permit)* foundation & secure fuel tanks
STEP 3: COMPLETE MORE COMPLEX UPGRADES
Contractor for
Work with a
Over $250
Install window wells Disconnect downspouts,
that sit 10-15cm above cap foundation drains Correct grading to di-
Install backup sump
ground and upgrade and extend downspouts rect water at least 2m Install backwater valve
pump and battery*
to water resistant to direct water at least away from foundation
windows* 2m from foundation
Note: Not all actions will be applicable to each home. Completing these steps does not guarantee the prevention of flooding.
Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 192.1.2 Home Flood Protection Check-Up Web App
> 2.2 Scaling Up Home Flood
The Home Flood Protection Check-Up web app takes a
resident on a 10-minute journey inside and outside their Protection by Training
home to assess the most common flood vulnerabilities
and identify actions they can take to limit their flood risk. Trusted Advisers
Created by the Intact Centre, the app is user-friendly, 2.2.1 Insurance, Mortgage and Home Inspection
free, and contains tips and links to relevant sources Professionals
of information. It includes questions that people can
ask their insurance broker about flood insurance, and A lack of easy-to-digest information about the risks of
information about subsidies available for retrofitting a flooding is a significant barrier that may be preventing
home to better protect it from flooding. Canadians from maintaining and upgrading their homes
in ways that could make them more flood-resilient.
In the spring of 2020, Green Learning Canada, a Research shows that residents tend to be overly optimistic
national not-for-profit organization that creates free about their exposure to flood risks,14 and that they have
online education programs about energy, climate change difficulty appreciating the long-term benefits of flood-
and the green economy, used the app to help elementary resilience investments.15
and high-school students better understand their
household’s flood risk and what they could do to reduce However, when a trusted adviser (such as a home
inspector, insurance broker or mortgage specialist)
it. Local governments, utility companies, conservation
explains flood-risk exposure and provides practical and
authorities, neighbourhood associations and community
actionable guidance about how to limit the risks for a
groups can also encourage their residents and customers
particular property, people tend to listen and act. This
to use the app.
is why industry associations — which can provide their
members with professional training about home flood
protection — are critical for expanding a network of
trusted advisers who can teach Canadians about flood
risks, and encourage them to protect themselves.
The Intact Centre has collaborated with industry
associations to advance efforts to reach out and educate
Canadians about protecting their properties (Case Study
2). Amplifying this example could help raise public
awareness about the initiatives taking place
across Canada to reduce flood risks to property.
For example, it is important to engage real estate
professionals, who act as advocates, agents and
consultants for potential home buyers, in this effort.
Real estate agents offer their clients local knowledge
about homes and neighbourhoods, and should be
encouraged to make sure that their clients are aware of
regional and property-specific flood-related risks. In the
United States, real estate listings already contain flood
risk information on prominent platforms, including
realtor.com, and agents help their clients understand
practical ways to improve their property’s score.
Similarly, home renovators educated about ways to
reduce the risks of flooding can help their clients better
assess priority retrofits that improve their home’s value
and minimize its flood risk.
20 Under One Umbrella: Practical Approaches for Reducing Flood Risks in CanadaIn July 2018, CSA Group published
CASE STUDY 2: its Guideline on Basement Flood
Protection and Risk Reduction,
Home Flood Risk (CSA Z800), which was the first
Assessment national, standardized approach
for reducing the risks of home
Training flooding in Canada.
Based on the CSA Z800 guideline, Seneca College and brokers to advocate for the best interests of brokers
Fleming College produced a 14-week online Home and consumers.
Flood Risk Assessment Training Course that aims
to enhance the understanding of the most common • Mortgage Professionals Canada (MPC): A
vulnerabilities to flooding that properties can have, national mortgage industry association representing
and to correct them through home maintenance
12,000 individuals and 1,000 companies, including
and retrofitting. The course is offered by Fleming
College and is intended for home and property mortgage brokerages, lenders, insurers and industry
inspectors; insurance brokers and adjusters; mortgage service providers.
professionals; engineers and planners; emergency
managers and first responders; real estate brokers and • Canadian Association of Home & Property
agents; landscapers and home builders and renovators. Inspectors (CAHPI): A national association that
represents more than 500 professionals and whose
A condensed, 1.5-hour version of the course has been
prepared for industry associations seeking to provide mission is to promote and develop the home-
continuing-education and professional-development inspection profession.
opportunities to their members about flood risk-
reduction. Currently, five industry associations are • Carson Dunlop: An international inspection and
offering the 1.5-hour course: training company that offers inspectors education,
report-writing solutions, and successful inspection
• Insurance Brokers Association of Canada
(IBAC): A national association representing more concepts. It represents more than 1,500 professionals
than 38,000 property and casualty (P&C) insurance in Canada.
Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 212.2.2 Government Employees and other interested parties, including local home
inspectors, insurance brokers, mortgage professionals and
In 2017, Natural Resources Canada launched a program
community groups. The course provides a broad national
called Building Regional Adaptation Capacity and
perspective on home flood protection, and highlights
Expertise (BRACE). Its objective is to help communities
and a variety of other organizations find and use specific resources available to support on-the-ground
information that can help them adapt to climate change, action by PEI residents. Participants who successfully
thus building resilience to the impacts of flooding and complete its training programs will receive certificates.
other climate-related challenges. The BRACE program, The goal is to adapt this course to each province.
which runs to 2022, will establish priorities for building
Among other projects supported through BRACE
region-specific resilience that is informed by local
funding, the New Brunswick Environmental Network
community needs and priorities, as outlined in the
Pan-Canadian Framework on Clean Growth and (NBEN) will promote the use of nature-based solutions,
Climate Change. including natural infrastructure, for reducing flood risks
and adapting to climate change. It will prepare a public
Every province applied for BRACE funding. In 2019, inventory of existing initiatives in the province, develop
the Government of Prince Edward Island and the and deliver training programs, and facilitate a regional
University of Prince Edward Island’s Climate Lab were community of practice to promote knowledge-sharing
awarded funding for a proposal to develop and run two
and collaboration in implementing and monitoring
climate-adaptation programs: (1) The “Early Career
nature-based solutions.
Adaptation Professional” program, intended to enhance
knowledge about climate-change adaptation for new As natural disasters intensify over time, governments
climate-change students and recent graduates at UPEI; should also seek to deepen their expertise in flooding
and (2) a program to educate 350 employees of the PEI and responses to other climate-related emergencies.
government about the rising risks of coastal and urban This expertise may be distributed across offices of
flooding, using the “Intact Centre on Climate Adaptation
planning, engineering, water and waste, public works
Training and Professional Development” course.
and emergency management, or concentrated in an
The Intact Centre course will provide free resources internal support office focusing on climate adaptation
about flood risk-reduction to PEI government officials and resilience.
22 Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada“ As natural disasters intensify over time,
governments should also seek to deepen
their expertise in flooding and responses
to other climate-related emergencies.”
Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 2324 Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada
CHAPTER 3
APPROACHES TO LIMITING FLOOD RISKS
FOR COMMERCIAL REAL ESTATE
Commercial real estate owners and In 2019, the publication Ahead of the Storm:
managers are not immune to the effects Developing Flood-Resilience Guidance for Canada’s
Commercial Real Estate, included a concise list of
of flooding. Apart from property damages,
flood-resilience measures (Table 2) that commercial
their tenants are becoming increasingly
real estate owners can implement to reduce their
concerned about the potential for life loss, vulnerability to floods. These measures were developed
property damages and business disruptions by a consortium of people with a diverse range of
associated with flood events. flood-risk expertise, supported by the REALPAC and the
BOMA Canada. This guidance is already being used by
To illustrate, following the 2013 floods in Alberta,
commercial real estate owners and property managers
between 150,000 and 180,000 people could not
to inform flood-resilience assessments and retrofits
access office buildings in downtown Calgary
for approximately two weeks. This resulted in (Case Study 3).
5.1 million lost work hours, equivalent to half a
billion dollars in GDP loss to the province.16
In August 2018, when a flash flood occurred in Toronto,
two men were trapped in an elevator in a commercial >
building and nearly drowned, as the elevator was stuck
at the basement level, nearly full of water.17
Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 25CASE STUDY 3:
Healthcare of The Healthcare of Ontario
Ontario Pension Pension Plan (HOOPP) is a major
commercial property owner that
Plan: Climate Risk has investigated its exposure to
and Resilience climate-change risks and ways
that it can use flood-resilience
Assessment strategies to protect its assets.
In collaboration with Quinn & Partners and AON,
HOOPP undertook an assessment of climate-
change risk and resilience across its global $14-billion
commercial real estate portfolio. Completed in 2018,
the research clarified that the main climate-related
risk to HOOPP’s properties in Canada is flooding.
In response to this finding, in 2019 HOOPP
introduced flood-resilience guidelines for all its
high-value and high-flood-risk properties, leveraging HOOPP Real Estate
insights from “Ahead of the Storm: Developing 2019 Sustainability
Flood-Resilience Guidance for Canada’s Commercial Report
Real Estate.” The pension plan now has the capacity
to understand how its properties are improving their
climate-change resilience, and which investments in
flood-protection pay off.18
HOOPP is also using property-level resilience
measures to reduce exposure to climate change-related
risks in its investment, development and
asset-management practices.19
26 Under One Umbrella: Practical Approaches for Reducing Flood Risks in CanadaTable 2: Key Flood-Resilience Measures for Commercial Real Estate*
PLANS AND PROCEDURES EQUIPMENT AND SUPPLIES MAJOR RETROFITS
Flood-risk assessment: Each property Critical equipment and supplies: Critical equipment: Heating, ventilation
is assessed relative to its flood-risk exposure, Critical equipment and supplies are and air conditioning (HVAC) equipment,
and mitigation measures put in place to available on site to respond to flood switchgear and service panels, electrical
limit damages. This assessment considers emergencies (such as sandbags; sump transformers and communication systems
interdependencies with local actors engaged pumps; portable generators; fuel; portable are protected by being elevated above
in flood-risk management and emergency lights; extension cords; dehumidifiers; expected flood levels.
response (including local government and protective clothing, etc.).
providers of transportation, electricity and Server rooms: Server rooms are located
telecommunications), and forms the basis of Portable flood barriers and on higher floors, preferably on a raised
investment planning and risk mitigation efforts. sandbags: In buildings with critical platform, with a sump pump installed at
operations, such as data centres, portable the lowest point. Water sensors and alarms
Emergency preparedness and flood barriers and sandbags are available are installed to detect leaks.
response plans: Emergency to protect the property from overland
preparedness and response plans are flooding. High-voltage and
in place and include procedures to be telecommunications pull rooms:
followed in the event of floods, and pre- Backup generation: On-site backup High-voltage and telecommunication pull
established conditions that would trigger generation equipment and fuel are rooms are waterproofed and equipped
an emergency response. available and have the capacity to provide with drainage.
electrical power to: at least one elevator;
Practice drills: Building operations staff all building sump pumps; potable water Electrical circuits: In multi-level and
are trained in flood-event procedures. pumps; heat pumps; boilers; smoke underground parkades, there is a separate
Annually, practice drills are performed evacuation fans; fire sprinkler and fire electrical circuit for each parking level.
with building tenants and procedures are alarm systems; stairwell pressurization
Electrical panels: Electrical panels are
updated as required. systems and emergency lighting equipment
equipped with WIFI-enabled breaker
for 24 to 72 hours.
Emergency funds: Dedicated funds switches to allow them to be shut off
are available for emergency operations, Emergency lighting: Battery-operated remotely.
including floods. Designated employees emergency lighting is available in critical
Building materials: Building retrofits
have access to both credit cards and mechanical and electrical rooms, as well
below ground should consider materials
sufficient amounts of cash for emergency as in emergency exit stairwells for building
capable of withstanding direct and
operations. evacuations, should backup generation
prolonged contact with flood waters
equipment malfunction. A process is in
Tenant communications: without sustaining significant damage, and
place to regularly test all battery-operated
Communication channels are established which are resistant to mould.
lighting and systems.
with tenants and stakeholders for
emergency situations, including flood Elevator water sensors: Elevators are
events. Tenant contact details are regularly equipped with water sensors that prevent
updated. them from traveling to flood-inundated
floors of the building.
Business continuity planning: Tenants are
given information that helps them to prepare Backwater valves: Backwater valves
business-continuity plans (such as standardized are installed on storm and sanitary sewer
checklists, damage-assessment forms, etc.) pipes.
Table continues on following page
Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 27“
PLANS AND PROCEDURES EQUIPMENT AND SUPPLIES
Building condition assessments: Hazardous materials storage:
Building inspection and maintenance Hazardous materials are protected from
procedures are updated to include flooding. For example, chemicals used in
preventive maintenance activities that building operations are stored in sealed
reduce the risk of flooding and increase containers or non-flammable cabinets
climate-change resilience. Results are located above expected flood levels).
integrated into building condition Where hazardous materials are stored,
assessments. floor drains are protected from spills.
Emergency operations centres: Space Landscaping: Green roofs, bioswales,
is designated for building operations staff rain gardens and other landscaping Commercial real
to use as emergency operations centres. features are installed on the property to
This space is equipped with water, non-
perishable food supplies and emergency
contain stormwater on site and minimize
runoff.
estate tenants
kits, and is located above expected flood
levels. Building automation systems:
The building’s automation systems are
are becoming
Emergency response contracts:
Standing orders are in place with fuel
upgraded to allow remote access and
management. increasingly
suppliers and restoration and landscaping
companies to provide goods and services at
pre-arranged prices, under set terms and
concerned about
conditions, as required for flood events.
Emergency contact information:
potential for life
Contact information for risk-management
personnel, insurance adjusters and loss, property
insurance brokers is up-to-date
and regularly maintained. Regular
communication is maintained with
damages and
local personnel involved in flood-risk
management and emergency response. business
Insurance documentation:
Documentation required to apply for
disruptions
business-interruption insurance (such as
financial statements, lease agreements and
inventory counts) is updated regularly,
associated with
backed up electronically, and stored off site.
flood events.”
* Many measures described in this table apply to other asset classes, including
retail, industrial and multi-unit residential buildings.
>
28 Under One Umbrella: Practical Approaches for Reducing Flood Risks in CanadaUnder One Umbrella: Practical Approaches for Reducing Flood Risks in Canada 29
30 Under One Umbrella: Practical Approaches for Reducing Flood Risks in Canada
CHAPTER 4
APPROACHES TO LIMITING FLOOD RISKS
IN NEW AND EXISTING RESIDENTIAL
COMMUNITIES
In Canada, flood risk mitigation is typically One way local governments can demonstrate due
the responsibility of local government diligence when managing flood risks is to incorporate
nationally recognized guidelines and standards in their
(Indigenous communities, municipalities,
official plans; urban-planning policies; zoning bylaws;
regional governments, conservation
climate-adaptation plans; engineering design standards
authorities, boards and commissions). and stormwater management guidelines.
Local governments plan, review and approve
Similarly, regional, provincial and territorial governments
new developments, maintain stormwater
could adopt the same guidelines and standards for
management systems, leverage land-use
inclusion in their regulations and policies. The resulting
regulations to guide developments away agreement among different jurisdictions would help to
from high flood-risk areas, and facilitate the streamline flood risk-reduction efforts.
adoption of flood-resilient standards for the
The following guidelines and standards are of relevance:
design of residential communities.
• CSA W200-18 Design of bioretention systems;
A combination of these efforts helps local governments
to limit the potential for flood damages, reduce insurable • CSA W201-18 Construction of bioretention systems;
losses, and minimize the probability of flood-related
lawsuits and downgraded credit ratings in the aftermath • CSA W204-19 Flood resilient design of new residential
of a flood. communities;
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