PARLIAMENTARY DEBATE
Flood Insurance: Reform of Flood Re - 1 July 2026 (Commons/Commons Chamber)
Debate Detail
Flood risk unites Members across this House. We all recognise the devastating impact that flooding has on people and communities and the importance of having access to affordable insurance. That is why this Government have put a record amount of investment into flood protections and simplified the funding rules. This year alone, we have unlocked £1.4 billion to enhance flood resilience across England, funding more than 600 projects and better protecting more than 70,000 properties from the devastating impacts of flooding. Despite that record investment, flooding is an ever-increasing risk.
Flood Re was established to manage a transition to prices that better reflect underlying flood risk and promote the affordability and availability of insurance. Since its launch, Flood Re has been a big success, and it is a strong example of Government and industry working together to address systemic risk—a partnership that started to be strengthened under a Labour Government after the 2007 floods.
Flood Re works by receiving a subsidy paid for by households that buy insurance. That money is used to purchase insurance so that households that would not be able to get insurance in an open market have affordable premiums. However, the context in which Flood Re operates has changed; rising claims, higher reinsurance costs and more properties being identified as at risk are placing increased pressure on the scheme.
We now have a perverse system in which money collected from all insurance customers, from all parts of the country and all income brackets, is flowing to the richest households in the country. That is not fair and needs to change. In three of the last four years, Flood Re has spent more on repairing homes in the most expensive council tax bands of G and H, which make up less than 4% of UK homes, than it has spent on repairing homes in council tax bands A and B, which make up around 45% of homes.
Let me give an example that shows why change is necessary. In 2025 a property near a river was flooded, resulting in a claim cost to Flood Re of more than £3 million. The property had very limited flood resilience measures in place, and the claim covered extensive restoration costs, including a quad garage, an indoor swimming pool, a jacuzzi and gym, a music room and den, a machinery storage unit, an outdoor astroturf padel court, and a five-a-side football pitch.
It is right that all properties are insured, but without reform of Flood Re, we will continue to have a system in which average-income and low-income households are subsidising flood insurance for the richest households in the country. That is why reform of Flood Re is needed—not to set a new policy direction, but to restore it to its original purpose. That is what we are doing.
First, Flood Re will work with insurers to reform its premium model so that support is better targeted. It will aim to make premiums as fair as possible across different council tax bands, regions and areas. Secondly, Flood Re will introduce a cap on the claims that insurers can pass to it, limiting payouts to an agreed level, with insurance companies covering the remainder. That will be worked out with Flood Re and insurers.
Thirdly, I have spoken to people who have lost everything through flooding and have been unable to afford contents insurance, so I am delighted that Flood Re is more than halving the premiums it charges to insurers for contents-only insurance for the 45% of homes in council tax bands A and B to £25 a year from April 2027. This Government are restoring fairness. We are making insurance affordable and helping with cost of living pressure. Finally, Flood Re will improve efficiency, make better use of its resources and reduce reliance on costly reinsurance while maintaining financial resilience.
However, to protect all homes from ongoing flood risk, we need more than just floor insurance and large flood defences; we need individual homes to become more flood resilient. That is why Flood Re will work with insurers and lenders to introduce flood performance certificates, helping households to better understand their flood risk and ensuring that if they take actions to make their homes more resilient, that is reflected in the cost of their premiums. That builds on the work of the recommendations in the “FloodReady” report. Flood Re will also strengthen incentives for Build Back Better, a UK home insurance sector initiative that, instead of simply restoring a home to a condition exactly as it was before, allows an additional £10,000 as part of the insurance claim to improve the flood resilience of the home.
These reforms will be implemented from 2028, with the reduction in contents premiums for council tax bands A and B taking effect from April 2027. Flood Re will keep the scheme’s eligibility criteria under review, including how it applies to leaseholders.
Under this Government, more homes are better protected from flooding than they were when we came into government. Our country will become more resilient to flooding as homes are incentivised to take action with flood performance certificates, and the 45% of people living in average-income and low-income households will be able to afford to protect their homes from the devastation of flooding. That is the difference that a Labour Government make, and I commend this statement to the House.
Flooding is a huge challenge for areas across the country. Some 6.3 million properties in England are currently located in areas that are at risk of flooding, including many in my constituency. When floods occur, the Environment Agency, local volunteer groups and farmers work to help people quickly, often in difficult circumstances. I was humbled and deeply proud to see the way the community pulled together in affected areas during the flooding earlier this year, particularly in Moorland and Fordgate. The Minister knows how seriously I take flooding, and has engaged with me following my requests for stronger national support, clearer local responsibilities, more dredging and improved pumping capacity.
The previous Conservative Government took real action to prevent flooding and protect homes and businesses, ensuring that over 600,000 properties were better protected from flooding and coastal erosion. Between 2015 and 2024, over 900,000 acres of farmland were also protected. In 2020 the previous Government announced a doubling of capital funding for flood defences in England, which rose to £5.6 billion from 2021 to 2027.
Flood Re was set up under the former Conservative Government, and it remains an important scheme to promote the availability and affordability of flood insurance for eligible homes. Its recent accounts report contains serious warnings for Ministers. Flood Re is clear that
“the external environment has changed materially, with higher climate-driven loss volatility, tighter global reinsurance capacity and greater pressure on affordability.”
It says that the scheme is now retaining higher levels of risk and facing “increased liability exposure”. At the same time, Flood Re warns that the scheme is under structural pressure. Its board has said that improved flood mapping has led to
“more properties being classified as high risk…including a growing number of higher-value homes”,
and that without change, the scheme risks being asked to carry
“unsustainable levels of exposure and cost.”
As such, will the Minister please explain what steps she is taking to ensure that Flood Re’s growing pressures do not result in additional costs for households through higher insurance bills? Will Ministers bring forward a credible, long-term flood resilience plan? Do the Government have plans to include businesses in Flood Re? What assessment has the Department made of the impact of these changes on households that are asset-rich but income-poor, including pensioners living in higher-band homes in flood risk areas? In her statement, the Minister said that Flood Re would reform its premium model across council tax bands and regions. Will she publish the modelling behind those changes, including regional impacts, so that households can see what this means for them? Flood performance certificates may help households understand risk, but will the Minister confirm who will pay for them? Will they be mandatory, and will they affect mortgage availability?
Flood Re has done valuable work, but households continue to need affordable insurance. They also need a Government who are serious about flood prevention, resilient homes, and long-term protection for communities. Conservative Members will always work with the Government to ensure that every person living in a property that is vulnerable to flooding gets the support they need.
Turning to continued support for flood protection, the hon. Gentleman will know that we have put the most money into flood protection of any Government ever, with £10.5 billion committed for the next 10 years. There are no current plans to include businesses because, as I said, Flood Re works by levying every insurance company; if we were to include businesses, we would be levying every business in the country to pay for it. For people in the top council tax bands, we are looking at flood performance certificates, so that if they can take action to improve the resilience of their home, that will be reflected in their premiums. We are doing some pilots, and I have been pushing insurance companies and others to get those pilots out the door as quickly as possible. We are not just looking at the top council tax bands; we are also looking at people in social housing to see how flood performance certificates could work.
As for when these changes are going to take place, contents insurance changes will take effect from 2027, but the cap will be from 2028. Up until that period, Flood Re will be carrying out extensive engagement with insurers and other people to make sure they are setting affordable limits. This is all about ensuring that Flood Re is there for the next 10 years.
We Liberal Democrats support the Flood Re scheme and the protection it provides, but we are concerned that the package still risks falling short in a few ways. We agree that it cannot be right for lower-income households to subsidise the most expensive properties. Targeting support more fairly is overdue, but fairness must also mean reducing costs at source, which means a far stronger focus on prevention. We are still spending billions reacting to floods rather than systematically reducing risk. Flood Re’s future must be tied more clearly to resilient homes, sustainable drainage, and a planning system that stops putting people in harm’s way in the first place. That includes progressing schemes such as Guildford’s flood alleviation scheme more quickly through greater Government support, which would protect homes and unlock sustainable brownfield development. Without doing this, we are merely rearranging who pays for failure.
The proposals on flood performance certificates and Build Back Better are welcome, but they remain incremental. We need a step change—embedding resilience upgrades as standard, ensuring that insurers reward households that act, and bringing lenders fully into the framework. Serious gaps also remain: millions are excluded from Flood Re, including many leaseholders and those in homes built after 2009. If we are serious about fairness, those gaps must be addressed.
Finally, the transition to a risk-reflective market by 2039 cannot simply mean a cliff edge and higher premiums for those most exposed. Reform is needed, but it must be matched by ambition. Fairness, resilience and prevention must go hand in hand.
We have not only done that; we are also looking at sustainable urban drainage systems and at introducing flood performance certificates, so that we can reward homes that have become more resilient to flooding. We are also looking at a fundamental change to how we address resilience and flooding as a country. When flooding happens, the people who go out there and do the work in the communities—whether local people, the Environment Agency or all the emergency services—deserve our absolute support, because the only thing I cannot protect this country against is climate change.
On the impact of this change, we need to work carefully with insurers on Flood Re. We have said we will introduce the cap by 2028 to enable them to have the time to work through things carefully and properly. It is about fairness. Council tax bands G and H represent 4% of properties, yet they make up 20% of claims on Flood Re. We want to make this change in conjunction with insurers. Piloting the flood performance certificates will be so important, and that has to be done hand in hand with people. We want to incentivise people by saying, “If you take action to improve your home and make it more resilient to flooding, you will be rewarded with lower premiums.” We are trying to encourage people to do the right thing where they can, while recognising that there are people at other end of the scale—some of the people we have seen in my hon. Friend’s constituency—who are simply unable, for various reasons, to take action to improve the resilience of their own property. It is all about keeping things in balance.
“ I am terrified to think about any rainfall that could damage my home and business again.”
Will the Minister look at that case, and at Flood Re eligibility for those at risk of surface flooding—as distinct from river flooding—and those whose business premises abut their homes?
More than half the homes in Calder Valley are in council tax bands A and B, and many of their residents live with the risk of flooding. In my community, the memory of the devastating Boxing Day floods in 2015, followed by those in February 2020, still loom large in people’s minds, and cause a great deal of anxiety. The lowering of the flooding element of their household insurance to just £25 will make a real difference to families with modest incomes. What practical steps will the Government take to encourage people to take up that offer, and to ensure that they understand what changes have been made?
However, the Minister knows that investment in flood defences is the only way to transition to a fully resilient system by 2039. Residents in Woodborough in my constituency will welcome the reforms, but what they really want to see is investment in a Woodborough flood alleviation scheme, which is long overdue. Will the Minister commit to working with me to ensure that Woodborough receives its fair share of the £1.4 billion investment in flood defences next year? Will she also join me in paying tribute to the Woodborough Flood Action Group, which does outstanding work in protecting Woodborough village in my constituency?
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