Improved Implementation of the EU Floods Directive through Harmonization of National Legislation and Preparation of Flood Risk Management Plans

Climate change is having serious global effects, from sudden weather changes that threaten food production to rising sea levels that increase the risk of floods. Without timely action, adapting to these changes will become more difficult and expensive.

North Macedonia is especially vulnerable. The country is already experiencing more frequent droughts, extreme storms, and floods, but lacks the financial resources to cope with the damage. Between 2014 and 2016, heavy rains caused major flooding, leading to significant losses and even the tragic loss of 22 lives in August 2016. In recent years, long droughts have harmed agriculture by drying out the soil.

The hydrographical network of the country is divided into four river basin districts (Vardar, Strumica, Crn Drim and Juzna Morava) and ten major sub-basins (Lepenec, Pchinja, Bregalnica, Strumica, Treska, Crna Reka, Crn Drim, Upper Vardar, Mid Vardar and Lower Vardar basins).

Flood risks are growing due to both natural and human causes. Mountainous terrain, poorly maintained flood defences, and changing land use—such as building in wetlands or cutting down forests—are all making floods worse. River floods are often caused by long rainfall and melting snow, while flash floods tend to hit mountainous areas.

Recent disasters have shown major weaknesses in how floods are monitored, managed, and responded to. There’s now wider understanding that stronger action is needed—not just better engineering, but also better planning, preparation, and investment in prevention.

Project:
Improved Implementation of the EU Floods Directive through Harmonization of National Legislation and Preparation of Flood Risk Management Plans

Reference No.:
NEAR/SKP/2023/EA-RP/0174

Funded by:
European Union

Contracting Authority:
Central Financing and Contracting Department (CFCD), Ministry of Finance, Republic of North Macedonia

Project beneficiary:
Ministry of Environment and Physical Planning,

Project Implementation by:
EPTISA Southeast Europe d.o.o and its consortium

Duration of project:
30 Months (02/2025 – 08/2027)

The path toward joining the European Union offers an opportunity

Aligning with EU standards, like those in the Floods Directive, can help the country improve its disaster risk management and better protect people, land, and livelihoods from future climate impacts.

Overall Objective: To increase environmental protection and to protect human life, health and property from adverse effects of floods.

Specific objectives (Outcomes):

  • Outcome 1: National legislation fully harmonised with the EU Floods Directive;
  • Outcome 2: Implementation of the EU Floods Directive supported.
  • Output 1 to Outcome 1 – Completion of the legal framework for flood risk management in line with the requirements of the EU Floods Directive
  • Output 1 to Outcome 2 – Capacity for implementation of the EU Floods Directive strengthened
  • Output 2 to Outcome 2 – Preliminary Flood Risk Assessments of all (10) river sub-basins, in accordance with the requirements of the EU Floods Directive
  • Output 3 to Outcome 2 – Flood Hazard maps and Flood Risk maps for all river sub-basins in line with the requirements of the EU Floods Directive
  • Output 4 to Outcome 2 – Mapping of torrents and landslides
  • Output 5 to Outcome 2 – Flood Risk Management Plans for all river sub-basins in accordance with the requirements of the EU Floods Directive
  • Output 6 to Outcome 2 – Developing Implementation plan for the Flood Early Warning System

Ministry of Environment and Physical Planning (MoEPP)

Main groups/stakeholders:

  • JSC Water Economy (JSC WE)
  • River Basin Councils (RBC)
  • Ministry of Health (MOH)
  • Crisis Management Center (CMC)
  • Protection and Rescue Directorate (PRD)
  • Local Self Government Units
  • Hydro-Meteorological Service (HMS)

Project Components/Results

Completion of the legal framework for flood risk management in line with the requirements of the EU Floods Directive and development of DSIP for Flood Directive

  • Task 1.1 – Collection of information and assessment of current legislation
  • Task 1.2 – Preparation of implementing legislation in flood risk management aligned with the requirements for the implementation of the Floods Directive

During the implementation of Activity 1 the project will develop standardized tools to support detailed assessments and systematic data gathering related to flood risk management and legislative compliance. A comprehensive report will be prepared outlining the existing structures, laws, and funding mechanisms related to flood management in the country. A Gap Assessment will be conducted to identify differences between current national practices and the requirements of the EU Floods Directive (2007/60/EC), highlighting areas that require legal or operational improvement. Existing laws will be reviewed and summarized in a clear table format to show which aspects comply with the EU Floods Directive and where gaps remain. Legal amendments will be prepared to ensure the Law on Waters fully aligns with the EU Floods Directive, supporting its complete transposition into national legislation, as well as at least eight secondary legal acts necessary for the full transposition of the EU Floods Directive will be drafted. The project will prepare a detailed Directive-Specific Implementation Plan (DSIP) that outlines how the EU Floods Directive will be implemented in practice, including timelines, responsibilities, and required actions. A cost estimate and identification of financial sources will be prepared to support the implementation of the Floods Directive, ensuring that necessary funds are available.

Capacity for implementation of the EU Floods Directive strengthened 

  • Task 2.1 – Capacity building of the competent authorities
  • Task 2.2 – Stakeholder involvement and public participation / consultation

During the implementation of Activity 2 the project will develop a baseline report identifying all relevant national and local institutions involved in flood risk management, their current roles and responsibilities in implementation of the EU Floods Directive. The project will evaluate the ability of institutions to implement and enforce the EU Floods Directive. This includes identifying where additional resources, skills, or coordination are needed. Institutional Development Plan will recommend actions, training needs, and organizational improvements to ensure effective implementation of the Floods Directive. A wide public consultation will be conducted during the development and approval of flood risk and management plans (FRMP), ensuring transparency and public involvement. All stakeholders, as well as the public will be involved in the flood risk planning process, which includes outreach activities and awareness-raising tools and materials to explain flood risk management and encourage public input. Campaigns will be developed and implemented to inform citizens about flood risks, the measures being taken to reduce them, and the importance of flood management planning. Plan to strengthen administrative capacity will be prepared that focuses not only on training needs but also on improving cooperation among all key stakeholders—such as the Ministry of Environment and Physical Planning, Crisis Management Center, Protection and Rescue Directorate, Water Economy institutions, Ministry of Health, River Basin Committees, local governments, Hydro meteorological Service, and NGOs. Targeted trainings and workshops will be conducted to build the capacity of institutions to implement and enforce the EU Floods Directive effectively, which includes study visits to EU member States.

Preliminary Flood Risk Assessments of all (10) river sub-basins, in accordance with the requirements of the EU Floods Directive prepared

  • Task 3.1 – Data collection for the preparation of PFRA’s for all 10 river sub-basins
  • Task 3.2 – Carrying out the Preliminary Flood Risk Assessment (EU Floods Directive 2007/60/EC, Article 4 and Article 5)
  • Task 3.3 – Preparation of a Flood Risk Assessment methodology

Under Activity 3 the project will prepare a detailed report on Flood Risk Assessment Methodology, outlining the methodology used to assess flood risks. This includes how areas at risk are identified, what data is used, and the steps taken to evaluate potential flood hazards in line with EU standards. Gap Assessment of existing flood risk reports will be conducted in order to check how well the current Preliminary Flood Risk Assessments (PFRAs) for three river sub-basins align with the requirements of the EU Floods Directive. Six New Preliminary Flood Risk Assessments (PRFAs) will be developed for selected river sub-basins. These assessments will identify areas that may be at risk of flooding, helping authorities plan for flood prevention and protection. The four existing PFRAs will be revised and updated to fully comply with the EU Floods Directive. This ensures that the assessments are based on the latest data and meet all required standards.

Flood Hazard maps and Flood Risk maps for all river sub-basins in line with the requirements of the EU Floods Directive developed

  • Task 4.1 – Model development
  • Task 4.2 – Preparation of Flood Hazard Maps
  • Task 4.3 – Development of Flood Risk Maps

Under Activity 4 the project will develop 10 hydrological and hydraulic models for each river sub-basins to simulate how water flows and floods may occur under different conditions. These models help predict flood risks more accurately and support decision-making in flood management. A practical manual will be prepared to explain how to use the hydrological and hydraulic models. This will help experts and institutions apply the models effectively for flood risk planning and analysis. A comprehensive report will summarize the process and results of mapping areas that are at risk of flooding. It includes the methodology used and highlights areas most exposed to potential flood damage. Detailed Flood Hazard and Flood Risk maps will be produced for ten river sub-basins, showing areas that are likely to flood (hazard maps) and the potential impact of these floods on people, property, and infrastructure (risk maps). The data from these flood hazard and risk maps will be incorporated into the country’s environmental and water information systems. This ensures the maps are accessible to relevant authorities and can be used in planning, monitoring, and response activities. Two intensive training sessions will be delivered to at least 10 technical experts from the working group, on how to use the flood modelling tools and the accompanying guidance document for preparing and analysing hazard and risk maps.

Mapping of torrents and landslides done

  • Task 5.1 – Development of a landslide and torrent susceptibility map
  • Task 5.2 – Development of catalogue of measures

During the implementation of Activity 5 the project will develop a clear and structured methodology for assessing geo-hazards, such as landslides and torrential floods—based on scientific data and risk factors. This methodology helps authorities understand where and why such hazards may occur. Using Geographic Information Systems (GIS), detailed maps will be created to identify areas prone to sudden water flows (torrents) and landslides. These maps help visualize where the risks are highest. Specialized maps will be produced to show which areas are most likely to experience landslides or torrential floods. A comprehensive Catalogue of risk reduction measures will be completed in order to help reduce the risk of landslides and torrential floods. This includes both structural measures (like retaining walls) and nature-based solutions (like reforestation). A concept for prioritizing risk reduction measures will be developed to help decide which protective measures should be implemented first, based on the level of risk, cost, and urgency. This ensures efficient use of resources for maximum impact. Practical guidelines will be prepared to ensure new buildings and infrastructure projects are designed and built in a way that reduces the risk of damage from landslides and flash floods.

Flood Risk Management Plans for all river sub-basins in accordance with the requirements of the EU Floods Directive developed along with Strategic Environmental Impact Assessment

  • Task 6.1 – Development of a Flood Risk Management Plan per river sub-basin
  • Task 6.2 – Strategic Environmental Impact Assessment

Under Activity 6 the project will complete a gap assessment of existing Flood Risk Management Plans (FRMPs) in order to evaluate how well the two existing FRMPs align with the requirements of the EU Floods Directive. These FRMPs will be revised and updated to reflect the latest data, best practices, and full alignment with EU standards. Eight new FRMPs will be developed for remaining river sub-basins, outlining measures to prevent and reduce the impact of flooding, protect people and property, and manage water resources more effectively.

Strategic Environmental Assessment (SEA) Reports will be prepared for each of the 10 sub-basins in order to evaluate the environmental effects of the Flood Risk Management Plans. These assessments help ensure that proposed flood protection measures do not negatively impact the environment. A consolidated report will present an overview of all 10 FRMPs, highlighting key actions, priorities, and risk reduction strategies for each river basin. At least two workshops  will be organized for members of Working Groups 1, 2, and 3, as well as other relevant stakeholders. These workshops will serve to present and discuss the FRMPs and SEA findings, gather feedback, and build consensus for implementation.

Implementation plan for the Flood Early Warning System developed

  • Task 7.1 – Assessment of the current monitoring and early warning system
  • Task 7.2 – Preparation of a plan for the implementation of a Flood Early Warning System
  • Task 7.3 – Training on the implementation of a Flood Early Warning System

During the Activity 7 the project will prepare a detailed report assessing the current state of meteorological and hydrological monitoring, as well as the existing Flood Early Warning System (FEWS). The report will identify strengths, gaps, and areas needing improvement to better detect and respond to flood risks. A strategic plan will be developed to enhance the way weather and water levels are monitored. This includes expanding monitoring networks and using more modern tools to provide accurate and timely data. A detailed plan for implementing the FEWS will outline how to establish or upgrade a reliable early warning system for floods. The system will help alert authorities and the public in advance, giving them time to prepare and respond. Practical, step-by-step procedures will be prepared to guide institutions through the process of putting the Flood Early Warning System into operation. A report will be developed listing the types of equipment needed—such as sensors, communication systems, and software—along with their technical requirements, to ensure effective system implementation. Two in-depth training sessions will be provided for at least 10 experts from Working Group 3. The training will focus on using, managing, and maintaining the improved monitoring systems and early warning tools.