Flood Safety

Learn how to prepare for and safely operate in a flooded

environment.

Planning for Floods

Note to Learners
The information in this guide is for educational purposes only; it is not intended to be a substitute
for professional or specialist flood safety advice and training. Any reliance you place on such
information is therefore at your own risk and the Royal National Lifeboat Institution (RNLI) will
have no responsibility or liability under any circumstances.

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Developing a Flood Safety Plan
Operating in a flooded environment can be extremely hazardous. Before entering a flooded area,
it is important that you and your response team understand the hazards, and the capability and
capacity of the team to work in the area.

Develop a plan before incidents happen and then use it during the flooding event. As a first step,
define the area of response before identifying any hazards present and developing a flood safety
plan. To do this, consider these key questions:

• How big is the area?

• Are there any land-based hazards?

• Are there any water-based hazards?

• If the area covers agricultural or industrial lands, are livestock, chemicals, and slurry going to be
hazards?

• Who are the people living in the area? Do they need to be evacuated? Is there an evacuation
plan?

Managing the
Response

Personnel

Flood Safety Plan

Training

Equipment

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 Managing the Response
What do we need for the response?
Once your plan has identified any hazards, determine the necessary personnel, training, and
equipment.

Personnel
Who is available?
Determining the appropriate number of competent people in the right place at the right time is
essential for an efficient and effective response.

Training
What training is needed?
Establish what kind of training is needed to train personnel for the specific environment in
which they are working.

Equipment
Do the trained personnel have the correct equipment?
Provide trained personnel with the necessary equipment so they will remain safe and be able
to perform tasks at the scene.

Developing a Site-Specific Plan

A site-specific plan provides local information to the flood response team. Include the following
information in your site-specific plan.

Use local knowledge for the layout of the area and local hazards.

Identify the location of hazards, incidents, and response teams (meeting points).

Identify the people and community you will be helping.

Use detailed maps and plans of the local area. If available, use existing flood risk maps of the
local area and historical data.

Determine the location and access to safe routes.

If available, include information from local flood early warning systems on predicted water
levels, flood forecasting, live weather information, and advice on evacuation.

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 Anticipate communication issues (especially in areas with no signal).

Identify specific risks (dams or weirs).

Determine special equipment requirements for the flooded area (high volume pumps, technical
rescue equipment).

Develop a team response plan (who will do what).

Determine specialist training requirements for the response team.

Stop, Think, Act, Review

Before responding to a flood situation, make sure that you stop and take time to think before you act.
Using the ‘Stop, Think, Act, Review’ model will help you prepare for action, make plans, and decide the
best choice of action you will take. After taking action, review what happened to help improve future
decisions and actions during a flood response.

Assess the task you are about to undertake.

• How will you undertake your task?

• What equipment will you need?
• Are there any hazards that will affect you or your team?
• Will you need further assistance?

• Carry out the task.

• Continue to assess the risks while undertaking the task.

• Record the task.

• Could anything have been done differently?
• Was the equipment used appropriately?
• Were the right decisions made?

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 Hazards

Types of Hazards
As a flood responder, it is critical that you are aware of the different types of hazards in the flooded
environment.

Weather

• The weather can cause floods.

• Previously accessible areas may be inaccessible
following heavy rainfall.
• If there is fog, visibility will be limited.

Tides
• If you are in a coastal area be aware of tides. Natural
bodies of water can change very quickly depending on
the tides.
• High tides can cause coastal and river flooding.
• During storms, be aware of storm surges that can
cause a large increase in water height and powerful
waves.

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 Water Speed

• Even if you are moving at only a few meters per

second, water flow can have an incredible force even
on small surfaces like your legs.
• At higher speeds, it can be impossible to fight against
moving water.
• Fast flowing water can trap you and make it very
difficult for you to escape. Try to avoid entering the
water under any circumstances.
• Be aware that driving in shallow water can be very
dangerous as the vehicle can be washed away.

Water Temperature
Water temperature can be a hazard to both the rescuer
and people in trouble, especially cold water.

Water Depth
A sudden change in water depth can cause a person to
step/fall into deep water beyond their capability.

Entry and Exit

• Steep, slippery, and unstable banks can limit a person’s
access and exit from the water, and can also be
dangerous for the responder.
• Use local knowledge about the area to decide on the
most effective and safe route.
• Do not stand on banks or bridges; they can become
weak and collapse during floods.

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 Underwater Objects
Beware of injuring yourself on dangerous objects, such as
sharp rocks, broken glass, or underwater debris. Wear foot
protection or shoes whenever possible.

Entrapment
• Entrapment occurs when a person gets caught on a
submerged object or stuck in the mud.
• Do not put your feet down if you get caught in the flow
of water.
• Be aware of drain covers that can become exposed.

Pollution
• Polluted water (sewage water, industrial chemicals) is
found in a flooded environment. Some pollutants can
be very dangerous to your health.
• Avoid drinking water from any source. It may be
contaminated and lead to waterborne disease.
• Cover any open wounds (if possible).
• Anyone who has been in contact with polluted water
should wash with disinfectant.
• Clean and disinfect equipment after use.

Electricity
Stay clear of any electrical systems (electricity cables) as
the floodwater rises.

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 Floating Debris
Watch out for floating objects and debris in the water.
These can become hazards and affect the flow of water.

Strainers
Strainers are objects that allow water to pass through but
hold larger solid objects. These can be natural objects
(tree hanging in the water) or human-made (gates or
railings). In either case, avoid operating upstream of a
known strainer.

Animals
Stay alert and keep away from any dangerous animals in
the floodwater. If you see any, warn others if you can.

Visibility
Use waterproof lights and reflective material to improve
visibility while working in darkness, fog, or cloud cover.

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 Equipment

Personal Protective Equipment (PPE)

Responders should not enter the water unless it is absolutely necessary. If you must enter the water,
beware of the large number of hazards in the flooded environment and wear appropriate Personal
Protective Equipment (PPE) to protect you and others against health and safety risks.
Follow these guidelines for using PPE effectively when you are near the water:
• Make sure all personal protective equipment is the correct size and the fit accordingly to who is
wearing it.
• Do not wear heavy clothing that absorbs or catches water.
• Do not go barefoot. Wear shoes at all times.

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 Types of Personal Protective Equipment (PPE)
The type of Personal Protective Equipment (PPE) available to the response team may vary by
organization and the location of the flooded environment.

Buoyancy Aid

• A buoyancy aid will help keep you afloat but will

not keep your head out of the water if you become
unconscious.
• Buoyancy aids are the preferred and most suitable
option for responders, as they allow for easy
movement in and out of the water.

Lifejacket
• A lifejacket is designed so that if you become
unconscious it should keep your head above the water
and maintain a clear airway.
• There are many different types of lifejackets, including
those with manual and automatic inflation, and also
foam lifejackets.
• Lifejackets are sometimes larger than buoyancy
aids and more difficult to move in, so they are not
recommended for responders.
• Ensure that all straps and buckles are done up tightly.
Minimize any loose ends as much as possible.

Knife

• A sharp knife can be used to free responders and

others from entanglement.
• Stow the knife in a sheath to avoid personal injury or
damage to equipment.

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 Helmet
• A helmet protects the responder’s head against:
◦ Striking against stationary objects (rocks)
◦ Falling or moving objects (boats)
• Water rescue helmets are specially designed to allow
water to pass through.
• You should always use a water rescue helmet if it is
available.
• Do not use fire helmets or motorbike helmets. They
are too heavy and do not allow water to pass through
them.
• Use different colored helmets to identify key personnel
in a flooded environment. These colors should be
standardized between all the different organizations
responding to a flood.

Putting On and Adjusting PPE

Follow these guidelines for putting on and adjusting Personal Protective Equipment (PPE).

Buoyancy Aid
• Buoyancy aids come in a wide variety of designs.
Some can be put on like a jacket while others are put
on over the head and adjusted at the side.
• Buoyancy aids should fit comfortably, allow freedom
of movement, and give you flotation, especially if you
enter the water.
• Make sure that any buckles are fastened, and straps
are pulled tight, so the buoyancy aid fits properly.

Lifejacket
• Make sure your lifejacket fits correctly otherwise it may
come off if you enter the water.
• Ensure that buckles are fastened, and any webbing
straps are tightened.
• Tuck away any excess webbing so it does not become
a snag hazard.

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 Helmet
• Adjust your helmet so it fits comfortably around the
head. Ensure the chin strap on your helmet is done up
securely.
• Never use a motorcycle or fire helmet to operate in
floodwater.

Rescue Equipment
If you need to help someone who has fallen into the water, the person will have the best chance of
being rescued if you use the right equipment. Specialist rescue equipment can be very expensive, but
some equipment can be made locally out of low-cost materials.

Throw Bag
• A throw bag consists of a length of rope (a throw line)
stored inside a quick-release bag.
• Use a throw bag to rescue people in moving water.
• Anyone working in the flooded environment should
have access to a throw bag.

Wading Poles
• Wading poles can be made out of natural materials
(bamboo pole) or human-made materials (raft paddle).
• Wading poles are used:
◦ To check for water depth and underwater hazards
while wading
◦ For reach rescues from the water

Rope
Use brightly colored rope that will float and is visible to
others on the surface of the water.

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 Floating Objects
• Use a floating object to keep you and a person afloat in
the water during a rescue.
• Use floating objects for throw rescues.
• If floating objects designed for water rescue are not
available, use alternative locally sourced equipment.
• A floating object should be:
◦ Easy to hold on to
◦ Easy to move through the water
◦ Capable of keeping a person afloat
◦ An empty water container (at least 5 liters) that has
a handle and can hold the weight of an adult

Rescue Raft
Use a simple, stable, locally produced raft during a rescue
(if available).

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 Communications

Hand Signals
Responders must be able to communicate with other team members and people in the water,
often over long distances. Hand signals and whistle blasts are used to attract the attention of team
members/people in the water, and to pass on important information. All organizations and responders
should use and understand the same hand signals to avoid confusion during an emergency.

Meaning: OK
Signal: One hand flat on head (either left or right hand)

Meaning: DISTRESS
Signal: One arm raised above the head with a clenched fist

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 Meaning: GO (in that direction)
Signal: Pointing with one arm outstretched above the horizontal

Meaning: HAZARD IN WATER

Signal: Pointing with one arm outstretched below the horizontal

Whistle Signals
Responders should use a whistle at all times when at a flood scene. Whistles can be heard over long
distances to attract the attention of people in the water and other responders. Remember to not use
a whistle too often, otherwise its significance will decrease and people will not take notice when it is
used.

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 Boats and Rafts

Boat Stability
Responders should be aware of the limits of the boat or raft they are operating. This includes:
• Knowing the maximum number of people and the maximum combined weight of people and
equipment that should be carried onboard.
• Ensuring the boat/raft is not overloaded. An overloaded boat may be unstable and sit too low in the
water.
• Ensuring that only a minimal amount of water is allowed to collect in the boat.
• Ensuring the boat/raft is correctly balanced and the load is evenly distributed. The movement of
weight around the boat (member of crew, passenger, load) will affect its stability. In flowing water,
sometimes water may move freely inside the rescue boat which will create instability and could
cause the boat to capsize.

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 Getting In and Out of a Boat
Follow these guidelines on how to properly get in and out of a boat.

DO NOT ALWAYS
• Step on the edge of the boat. • Step into the boat.
• Jump/step across a large water gap. • Check that the boat remains balanced when a
person steps into or out of the boat.
• If possible, ensure the boat is secured with
ropes to fixed objects on the bank before
getting in or out of the boat.
Paddling Techniques
Paddling a boat effectively means that all
members of the team must work together.
One person in the team should be in charge to
lead the group and give directions. The leader
should position themselves at the back of the
boat and use the following clear commands to
keep the group working together:
• “Paddle left”
• “Paddle right”
• “Paddle forwards”
• “Paddle backwards”
• “Stop paddling”

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 Capsize and Entrapment
Follow these guidelines on what to do if your boat or raft capsizes in the water.

Capsize
• Verbally and visually check that all crew are accounted for.
• All crew must maintain contact with the upturned boat at all times by holding onto any
lifelines.
• If you go under the upturned hull following capsize, exit as quickly as possible while
remaining in contact with the boat at all times.
• The boat team leader will then make a decision to either:
◦ Swim to safety – if hazards are present.
◦ Re-right the boat and paddle to safety – if no hazards are present.
◦ Sit on top of the upturned boat and ride down the flow to a safer point.

Entrapment
• Do not enter a capsized boat unless your need to assist a trapped responder/person.
• If you get trapped, use the air pocket under the boat (if available).
• If no air pocket is available, act quickly and try to force yourself out from underneath the
upturned hull.
• To free yourself from under the boat, try pushing away from the boat and reaching for
something outside the boat to help pull yourself out.
• If you find yourself trapped and snagged, try to release whatever is snagging you. If you have
a knife available, use it to cut yourself free from the snag.

Falling in the Water

• Communicate with the team in the boat and if it is safe, wait for them to pick you up.
• If no one can help you, try and self-rescue using defensive or aggressive swimming.

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 Self-Rescue

What Should You Do If You Enter the Water

Where possible, a responder should not enter the water. If you fall into the water, be aware of:
• The dangers of the water and objects under the water.
• Others in the water who may panic and grab the responder.
Swimming in flowing water is extremely dangerous. However, if you find yourself in water you should
attempt to self-rescue using these swimming techniques.

Defensive Swimming
• Defensive swimming can reduce the risk of injury and
potential foot entrapment.
• Defensive swimming technique:
◦ Swim on your back with your feet pointed
downstream.
◦ Position your hips as close to the surface as
possible. This will allow you to fend off any objects
in moving water and minimize possible impact
injury.
◦ Use your arms in a large backstroke action. This will
slow you down and allow you to angle your body so
the current can push you in the right direction.

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 Aggressive Swimming
• Aggressive swimming can be used to cross river
currents and make rapid progress to a safe area.
• Aggressive swimming technique:
◦ Roll onto your front in the water.
◦ Use a powerful front crawl style stroke to move at a
faster rate in the water.
◦ Use your body to angle yourself to the point of
safety.

Escaping from a Strainer

If you cannot avoid a strainer then the
safest way to escape is to try to swim over
it:
1. Swim strongly towards the strainer.
2. Extend your arms just before reaching
the strainer.
3. Grab the strainer and push your body
over it, kicking hard at the same time.

Types of Wading
There are three main types of wading. Be aware that wading can be dangerous in fast flowing water.

When to Use Line-Astern Wade

Responders should use line-astern wade if the water is shallow and it is too dangerous to stay where
they are. This self-rescue technique is safer for responders than a single-person wade because it
provides more stability and no swimming is involved.

Step 1
1. The group makes a line, with the tallest member at
the front, facing the water flow.
2. The person in the front of the line uses a stick/pole
to test the water depth and feel for underwater
objects.

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 Step 2
1. Keep the line tight and slowly move sideways into
the river.
2. Check for depth and underwater objects.
3. Be aware of the dangers underfoot.
4. The bottom of the buoyancy aid is the wade limit.

When to Use Single-Person Wade

Responders should use single-person wade if the water is shallow, if there is no one available to help,
and it is too dangerous to stay where they are. This self-rescue technique reduces the risk to the
responder because no swimming is involved.

Step 1
1. Enter the water carefully.
2. If possible, take a stick/pole with you to test the
water depth and for underwater objects.
3. Be aware of the speed of the water; faster moving
water will lower your wade depth.

Step 2
1. Move slowly across the water, using the stick for
support.
2. Make sure the bottom of the buoyancy aid is the
maximum wade limit.
3. If you start to float in the flow of water, use
defensive swimming and look for safe exit points.

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 When to Use Wade Rescue – Wedge
Responders should use wade rescue – wedge if the water is shallow and it is too dangerous to stay
where they are. This self-rescue technique is safer than a single-person wade because no swimming is
involved.

Step 1
1. The group makes a wedge shape, with the tallest
member of the team at the front, facing upstream.
2. The person in the front uses a stick/pole to test the
water depth and feel for underwater objects.

Step 2
1. Keep the wedge tight and slowly move sideways
into the river.
2. Check for depth and underwater objects.
3. Cross the river slowly.
4. Make sure the bottom of the buoyancy aid is the
wade limit.

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 Rescuing Others

Flood Rescue Options

Different types of rescue methods will present a certain level of risk ranging from low to high and
require a specific level of training. When deciding which rescue method to use, you and the response
team should work through the sequence starting with the lowest risk (‘Shout’) until you find a suitable
recuse method that presents the lowest risk possible.

Entering the water will put you and your team at a higher risk. The ‘Row’ and ‘Swim’ rescue methods are
not suitable for flood safety. Only responders who have received an appropriate level of training should
attempt the advanced ‘Row’ and ‘Swim’ rescue methods.

Use this table to determine the safest type of rescue in a flood emergency situation and the associated

Type of rescue Level of risk Level of training

Shout Low risk Flood Safety and Flood Rescue

Reach Flood Safety and Flood Rescue

Throw Flood Safety and Flood Rescue

Wade Flood Safety and Flood Rescue Entering the

water puts
Row Flood Rescue
you at a
Swim Highest risk Flood Rescue higher risk.

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 When to Use Shout and Signal Rescue
Responders should use shout and signal rescue when the person in trouble is close to shore. This
recuse technique requires no equipment and helps the responder stay out of danger.

Step 1
Get the attention of the person in the water.

Step 2
Use your voice and hand signals to encourage the person
to swim to the side.

When to Use Reach Rescue

Responders should use reach rescue when the person in trouble is close to shore. This rescue
technique is the safest type of rescue when the person in trouble cannot swim and you have the proper
equipment.

Step 1
Reach the person using a long, rigid object (stick or pole).
Stay low on the ground so that the person cannot pull you
into the water.

Step 2
Pull the person to the side.

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 When to Use Throw Rescue (with a floating object)
Responders should use throw rescue (with a floating object) if the person in trouble is close to shore
but too far away to conduct a reach rescue. This rescue technique reduces the risk to the responder
because there is no swimming involved.

Step 1
Attract the attention of the person in trouble.

Step 2
1. Adjust your throw/position to take into account the
wind and flow of water.
2. Throw the floating object (rope or water container) to
the person in trouble. If possible, attach a line to the
floating object to help pull the person to the bank.

Step 3
Tell the person to kick their legs and swim to the side.

Step 4
1. Help the person out of the water.
2. Administer first aid as needed.

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 When to Use Throw Rescue (with a throw bag)
Responders should use throw rescue (with a throw bag) if the person in trouble is close to shore
but too far away to conduct a reach rescue. This rescue technique reduces the risk to the responder
because there is no swimming involved.

Step 1
1. Remove some line from the throw bag.
2. Hold the end of the line in one hand and hold the throw
bag in the other hand.

Step 2
1. If in flowing water, identify a suitable area downstream
to land the person in trouble.
2. Make eye contact with the person in trouble and shout:
“Hold the rope!”

Step 3
1. Throw the bag, aiming beyond the person in trouble.
2. Be prepared for the pull on the rope and brace with
your feet.

Step 4
If needed, repack the rope into the bag quickly and throw
again. Otherwise, help the person out of the water.

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 Throw Bag: Types of Throw
There are a number of different ways to throw a throw bag during a rescue. Each technique should be
practiced regularly to ensure the responder can competently use them.

Underarm Throw
• An underarm throw is generally the most accurate in calm
conditions. However, it is also the slowest.
• This underarm throw creates the most height so it may be
affected by the wind and overhanging objects (trees, electrical
cables).
Overarm Throw
• With practice, an overarm throw may be more accurate than an
underarm throw or side swipe.
• It can be used if the responder is standing in deep water.
• Use precaution when using an overarm throw in environments
with low hanging objects.
Side Swipe Throw
Use a side swipe to avoid overhanging objects or bridges.

Receiving a Throw Bag

To minimize the likelihood of entrapment, the person in trouble
should be encouraged to:
• Hold onto the line or bag with both hands.
• Lie on the back, face up in the water.
• Hold the line over the shoulder opposite to the responder to help
swing towards the responder.

Receiving Throw bag (from a boat)

Throw bag rescues from a boat follow the same principles as a
throw bag rescue from the side of the bank. The only difference is
that the boat is a moving which requires the following additional
considerations:
• Position the boat downstream of the person in trouble so the
crew can maintain a constant view of where they are going.
• Responders should use an overarm throw to throw the bag from
a sitting position at the front of the boat. They should avoid
standing up to maintain their own stability.

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