Pre-disaster evacuation network design is critical to improving evacuation efficiency and reducing the loss of life and property caused by disasters. However, evacuation network design is complicated by the uncertainty of pre-disaster evacuation demand and the heterogeneity of evacuees’ route choices when faced with a disaster scenario. Therefore, how to design efficient evacuation networks considering these uncertainties has become an important research topic. In this paper, we study the pre-disaster flood evacuation network design problem, define a bi-criteria generalized cost metric based on Evacuation Travel Time (ETT) and Evacuation Network Congestion Degree (ENCD), and develop a model that considers uncertain demand and evacuation behavioural choices to minimize the generalized cost in the evacuation network. For the uncertain behavioural choice, we propose an Expanded Stochastic User Equilibrium (ESUE) model based on the Random Regret Minimization (RRM) principle and Boundedly Rational User Equilibrium (BRUE) conditions to describe it. For the uncertain demand, we design a Distributionally Robust Optimization (DRO) method based on Mean Absolute Deviation (MAD) to deal with this uncertain model. This paper designs an Improved Method of Successive Averages Combined with Genetic Algorithm (IMSA-GA) to solve the model and uses the Nguyen-Dupuis test network to verify the applicability and feasibility of the model and algorithm. In addition, we also conduct an evacuation network design in the Hawkesbury-Nepean region of Australia. The larger the threshold value based on the regret utility ratio, the smaller the generalized cost value, which indicates the behavioural choices of the evacuees have an impact on the evacuation network design, and the generalized cost decreases by 6.12% when the threshold value is increased from 0.1 to 0.9. In addition, the generalized cost value obtained by IMSA-GA will be 0.0025 lower than Improved Method of Successive Averages Combined with Simulated Annealing (IMSA-SA) and 0.0005 lower than Improved Method of Successive Averages Combined with Taboo Search (IMSA-TS). The theoretical contribution of this paper is to find an approach to the uncertain evacuation network design problem, especially to improve the practicality of the model by fully considering evacuation behaviour. The practical contribution is that our findings can provide insights for government authorities to design efficient and reliable evacuation networks that balance evacuation travel time and evacuation network congestion. In the future, if evacuation behavioural choices can be analysed based on actual surveys, the estimation of behavioural parameters based on survey data will be more instructive for the evacuation process.