1w a t e r p l a n r o t t e r d a m

G e m e e n t e R o t t e R d a m

W a t e R s c h a p h o l l a n d s e d e l t a

h o o G h e e m R a a d s c h a p v a n s c h i e l a n d e n d e K R i m p e n e R W a a R d

h o o G h e e m R a a d s c h a p v a n d e l f l a n d

W o r k i n g o n W a t e r f o r a n a t t r a c t i v e c i t y

2 3

4 5

I n d e x20 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i n t e r v i e w P i e r v e l l i n g a

28 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i n t e r v i e w a d r i a a n g e u z e

36 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i n t e r v i e w P i e t e r W i n s e m i u s

46 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i n t e r v i e w H u g o g a s t k e m p e r

56 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i n t e r v i e w D a a n B r a k m a n

70 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i n t e r v i e w P i e t D i r c k e

77 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i n t e r v i e w P i e t k a l k m a n

82 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i n t e r v i e w c o r n n i j b u r g

96 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i n t e r v i e w k a r i n S c h r e d e r h o f

1130 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i n t e r v i e w M a r i o n v r e d e l i n g e n J a n B u i j s

151 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i n t e r v i e w e d a l d u s

7 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . f p o r e w o r d

10 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . S u m m a r y

160 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . c o l o f o n

1 . W a t e r p l a n 2 r o t t e r d a m . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15- How can water make a contribution to the ambitions of the city?. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

- What has been achieved and where are we now?.. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18

22. . . . . . . . . . . . . . . . . . . . . . . . . B o X i - S o U r c e S o f i n S P i r a t i o n

2 . W h a t a r e W e f a c i n g . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25- Basic urban requirements: a strong economy and an attractive residential environment . . . . . . . . . . . . 26

- Radical strategies. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30

- Water and cl imate . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32

34 . . . . . . . . . . . . . . . . . . . . . . . . e c o n o m i c r e q u i r e m e n t s

38. . . . . . . . . . . . . . . . . . . . . . . . . B o X i i r i S k a P P r o a c H

40 . . . . . . . . . . . . . . . . . . . . . . . . S a f e t y r e q u i r e m e n t s

50 . . . . . . . . . . . . . . . . . . . . . . . . W a t e r r e t e n t i o n r e q u i r e m e n t s

54 . . . . . . . . . . . . . . . . . . . . . . . . . S e w e r a g e r e q u i r e m e n t s

58 . . . . . . . . . . . . . . . . . . . . . . . . . g r o u n d w a t e r r e q u i r e m e n t s

- drought and waterstorages . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 60

- Water quality . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61

62 . . . . . . . . . . . . . . . . . . . . . . . . W a t e r s t o r a g e r e q u i r e m e n t s

3 . d e c i s i o n s o f c r u c i a l i m p o r t a n c e . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 66- Protecting Roterdam now and in the long term . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69

- The water is clean . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 72

7 5 . . . . . . . . . . . . . . . . . . . . . . . . . B o X i i i - W a t e r q U a l i t y M o D e l l i n g

- Water for an attractive city . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 78

- A properly functioning wastewater collection system is essential for the Water City . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79

- Implementing together . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 81

4 . 2 0 3 0 r o t t e r d a m v i s i o n . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 85- Three principal areas. , Three strategies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 87

- Rivierstad - The rivercity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 90

- north . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 92

- South . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 94

98.. . . . . . . . . . . . . . . . . . . . . . . . B o X i v - W a t e r P l a z a S

106.. . . . . . . . . . . . . . . . . . . . . . . B o X v - g r e e n r o o f S

108. . . . . . . . . . . . . . . . . . . . . . . . B o X v i - P U t t i n g t H e r i v e r r o t t e B a c k o n t H e r o t t e r D a M M a P

- Conceptual solutions by city district type . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110

5 . i m p l e m e n t a t i o n s t r a t e g y . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 117- Proposition and phasing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 119

- Collaboration and organisation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 125

- Costs and cost al location. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 127

- Communication concerning teh Rotterdam Waterplan 2 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 132

6 . i m p l e m e n t a t i o n p r o g r a m m e 2 0 0 7 - 2 0 1 2 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 135- Implemented projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 137

- Coalitions and Innovations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 146

- Research projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 152

6 7

F o r e w o r d

We proudly present Waterplan 2 Rotterdam, which has been compiled jointly by the

Municipality of Rotterdam (the Public Works Department, the Town Planning and Housing Department

(dS+V) and the Rotterdam Development Corporation), the Schieland and Krimpenerwaard Water

Control Board, the Hollandse Delta Water Authority and the Delfland Water Control Board.

Why has a new water plan been drawn up? In recent years we have been swamped by a tidal wave of

new policies on water management and spatial planning at regional, national and European level. The

media have also been focusing intensively on climate change, rising sea levels, subsidence, (undesirable)

building in deep polders, the importance of good water quality, water safety and flooding.

In the discussion we held in the context of Waterplan Rotterdam, we came to the conclusion that water

and spatial development are inextricably linked. The only way to tackle our basic water requirements is

by incorporating them in our approach to urban planning. And, conversely, the issue of water can also

give enormous impetus to urban planning design aspects of a city - particularly a city like Rotterdam,

which, after all, describes itself as a water city. An excellent and now well-known example of this

synergy is our entry for the second International Architecture Biennale: Rotterdam Water City 2035.

The municipality and the three water boards put in an enormous amount of effort and work into the

previous plan, Waterplan Rotterdam 2000-2005. Examples include Zuiderpark, the Singelplan (canal

plan), the Bergse Plassen and the Zestienhoven polder, but also general programmes and measures such

as large-scale dredging of the waterways, improving water quality, and replacing and improving the

wastewater collection system. The municipal district water plans, which include an analysis of the water

flow levels to establish what measures will be needed to design the system in the most effective way,

were also launched. And these measures have in fact been, or will be, implemented.

The basic water requirements, which have been combined with the basic urban planning requirements

as presented in the Rotterdam City Vision and the related Spatial Planning Strategy 2030 more and

more often in recent years, require a new approach. The Water Action Programme in Waterplan

Rotterdam 2000-2005 will continue to apply unchanged. The new issue is also outlined in this water

plan. What are the challenges for the next few years, but also for the longer term? How can these be

translated into a new perspective? What essential choices are they based on? And what form would

a realistic implementation programme take, allowing for phasing but at the same time providing

direction? The keywords here are cooperation and cohesion - words that also applied to the process of

creating this water plan. All this has resulted in this broadly based plan.

The storyline is interspersed with interviews with empirical experts, stakeholders and administrators,

aimed at obtaining as diverse a picture as possible of the requirements we are facing, but also aimed at

making it clear that water is a subject that is an integral part of society and our outdoor space, and can

be both a problem and an enhancement.

It also includes separate frameworks presenting some examples of attractive projects: integral water

projects with clearly defined objectives, but also flagship projects that are particularly innovative or

appealing on account of their unconventional approach.

8 9

This document is not the definitive product, however. The Waterplan Rotterdam should be regarded as a

dynamic process in which the discussion with the water plan partners continues on an ongoing basis. In

addition, project teams are working on continuously improving the entire water system and its interaction with

the citys urban design concept.

What you have before you is a document that sets out an implementation programme that is not only ambitious

but also realistic. One which outlines the need to tackle the issues now so that we can face up to our future

basic water requirements. But one in which we also set out how we are going to use our approach to these

requirements to make Rotterdam an attractive city to live in, in which we can continue to develop our strong

economy.

The result is Rotterdam Water City, protected against water and living with water, in which we can enjoy

living, working and relaxing.

Municipality of rotterdam:

Alderman L.M.M. Bolsius

Alderman H. Karakus

Schieland and krimpenerwaard Water control Board:

Dike Warden J.H. Oosters

Delfland Water control Board:

Dike Warden M.A.P. van Haersma Buma

Hollandse Delta Water Board:

Dike Warden J.M. Geluk

1 0 1 1

dykes will form massive barriers between areas. Water managers and urban developers will work together,

using them , where possible, as a connecting element, as park landscape, balcony on the Maas or footpath

and cycle route.

If Rotterdam starts to build outside the dykes, the design will also have to take account of possible higher

water levels in the future, the so called adaptive approach. In short: measures have to be taken now, even if

they will only have an effect in the longer term.

c l e a n W at e r Clear and plant-rich water is the general objective for water in Rotterdam. With the right

mix of measures, that goal is feasible for almost all stretches of water in the city.

at t r a c t i v e c i t y This is perhaps the most important decision: how can the city be made even more attractive

as a place to live, work, study and spend leisure time, and can the water problems be solved at the same time?

Traditional solutions are inadequate here. In the city centre and the old neighbourhoods, for example, it isnt

possible to tackle the problems of water storage by digging extra facilities. The costs are exorbitant and existing

buildings cant simply be demolished. Innovations such as green roofs, water squares, alternative forms of

water storage and the like are therefore essential for the further development of the city.

S e W e r S In practice, rainwater usually drains away via the sewers. The increasing rainfall is leading to

problems with the existing sewerage system. One possible way of avoiding these problems is to collect

the rainwater and allow it to drain away in a system other than the sewers, therefore separating the dirty

waste water from the relatively clean rainwater. However, this system must not be allowed to adversely

affect public health, the quality of the groundwater or the groundwater levels. Its no picnic to reconstruct

Rotterdams sewerage system. Sewage pipes last around fifty years; the reconstruction would take up

several decades. According to a recent social cost-benefit analysis, complete division throughout Rotterdam

would not be the best solution. For this reason, an approach for each type of area is being sought.

Perspective on Rotterdam Water City 2030

The plans for Rotterdam Water City 2030 consist of enhancing existing qualities and responding cleverly

to new developments. Chapter 3 was about the choices which have to be made; this chapter looks at the

consequences of these choices, divided into three main areas.

r i v e r c i t y River City consists roughly of the area outside the dykes. The key feature of River City is the

Maas, the trademark of Rotterdam, the citys lifeline. The river connects the port the economic motor

with the hinterland.

Rotterdam has a characteristic waterfront, with the Kop van Zuid, the Lloydkwartier and new construction sites.

There is space here for a wide range of dynamic areas in which to live and work. At the same time, the river

provides opportunities for more transport by water: that reduces travelling time and improves the accessibility

of these areas. Furthermore, Rotterdam could distinguish itself from other cities with this form of transport.

A recreational route can be created along the whole length of the river; a succession of unique spots, which

together form the citys largest recreational area.

r o t t e r D a M - n o o r D On the northern banks, there are many popular residential and commercial areas:

most of the centre, Kralingen, Blijdorp, Hillegersberg, the Brainparks and Alexander. Water makes a

massive contribution; living alongside water is very popular. The aim for this part of the city is to build

further on these existing qualities.

S u m m A R y

This Waterplan 2 Rotterdam outlines how the municipality of Rotterdam and the water boards want to deal with the citys water in the period ahead. This needs to be set down on paper, particularly now that the signs of climate change are becoming increasingly clear. This change could have major consequences for Rotterdam. In order to make the city waterproof, a new approach to water storage, water quality and protection from water is needed.

The water action program of the last water plan is still in progress, but a new water plan was necessary

because of new developments and insights. The vision in the current plans goes up to 2030. That year

was chosen because the City Vision also looks ahead to 2030. In the City Vision, the municipal council

states what it has in mind for Rotterdam: a city with a strong economy and an attractive place to live. This

development and all the measures in this water plan are closely connected.

Plenty has been done in recent years. More open water has been created in the revamped Zuiderpark,

thereby increasing the storage capacity. The banks have been redesigned, the ecology has been improved

and there is now more space for recreation. Canals and brooks in Noord and Zuid have been cleaned up and

the quality of the water here has improved tremendously. The Bergse Plassen have been spruced up, so that

the water is now clean and clear again. Other big projects are still under way. Furthermore, the municipal

authority is busy implementing the measures as mentioned in the Municipal Sewerage Plan.

What we are facing

Rotterdam is working on a strong economy and an attractive residential environment. Water is an

important aspect of an attractive city, certainly one that profiles itself as water city. The vision of

Rotterdam for the future plays an important role in all the plans.

In addition, there are three crucial developments with which we will, or might be, faced in the period ahead.

Higherwaterlevelduetotheriseinsealevel.Thereisariskoffloodinginareasoutsidethedykes.

Flood defences will simply have to be reinforced.

Floodingcausedbyincreasingrainfall.Duetothechangingclimate,alotofraincanfallinashort

space of time. In order to process that water, provisions are needed for collection and storage. At the

moment, there is already a shortage of around 600,000 m3 of storage. At least 80 hectares of extra

lakes and canals would be needed to cope with this shortage by means of open water.

Stringentdemandsonthequalityofwater.Rotterdamwantstobeanattractivewatercity,withclean,

clear and plant-rich water. The city must also meet European requirements (the European Framework

Directive on Water). So-called quality profiles, based on these requirements, are in the process of

being drawn up for all stretches of water in the city.

decisions of crucial importance

In order to solve the problems referred to above, choices have to be made. These are the so-called decisions

of crucial importance.

P r o t e c t i o n Rotterdam needs to be protected against flooding, both inside and outside the dykes. All

quays and dykes which are not yet high enough, according to the current standards, will be reinforced in

the coming years. But in the more long term too, the city will have to be protected. For this reason, space

needs to be reserved now for enforcing the flood defences in due course. This does not mean that these

1 2 1 3

q U a n t i t y o f W at e r In the coming years, Rotterdam will have to store more rainwater than is currently

the case. The Municipal Sewerage Plan already contains many relevant measures. Another approach is

to create more space for open water. This is possible particularly in the neighbourhoods earmarked for

restructuring. Examples include Groenehagen/Tuinhoven, Hordijkerveld, the northern side of Lombardijen

and Oedevlietsepark. Where there is no or little space, we will have to focus on innovation and alternative

ways of retaining water. Examples are wadis, water gardens, water squares and green roofs. There are

pilots in the pipeline for the last two examples. There will also be a study into solutions for the problems

anticipated in the city centre, Oude Noorden, Crooswijk, Overschie and Oud-Zuid and the industrial estates

Spaansepolder and Noordwest.

q U a l i t y o f W at e r Rotterdam and the water boards are striving to improve the quality of the water by

2015. They are doing this, on the one hand, because Europe has drawn up relevant guidelines, but also

because such water has more potential uses, is perceived to be better and has greater economic value.

A completely clean water system within ten years is not feasible, however. It costs a lot of money and the

effects of measures are often only visible in the more long term. We have therefore chosen to prioritise.

Thanks to a special system of water quality profiles, we can choose measures which are practicable,

technically feasible and affordable. We apply this approach particularly in the municipal district water

plans. Apart from this, the watercourses which are not yet being tackled in this way must meet certain

minimum criteria: as little floating waste, complaints about the stench and dead fish as possible. There will

also be a study into possibilities for fish migration and a comprehensive plan for the fish stock, with a focus

on the ecological value of the waterways.

In order to ensure that the starting points of the water plan are actually put into practice, also

organizationally, it is essential that collaboration between municipality and water boards and between

water specialists and urban designers will continue.

The foregoing results in the ambitious implementation programme for the years 2007 2012 in which the

projects are described in detail.

Rotterdam-Noord has boezems (drainage pools) and canals which serve as water storage, but a large part

of the storage is via the sewerage system. The strategy is to reinforce the canals and boezems and extend

them where possible, and to use innovative solutions when space is in short supply, such as in the city

centre and the old districts.

r o t t e r D a M - z U i D Zuid requires an unconventional approach. Thats because the problems are not

run of the mill either. There are exceptional opportunities here, however. Zuid is an area rich in water,

with its (inner) ports and possible water connections. The water could be put to even better use, but that

would mean encroaching fundamentally on the urban area. Possibilities are: to reinforce and extend

the water structure from within the Zuiderpark; to create new water networks from existing and new

canals, watercourses, Zuiderpark and the districts earmarked for restructuring and to link Zuid with the

surrounding area via a new north-south connection.

Realization strategy

A strategy is needed if the water plans are to be achieved. This consists of prioritising (what definitely has

to be done in the coming years?) and phasing (which measures do we take when?).

Basically, there are three types of measures.

Improvingthewatersystem:whatdowedo,forsafetyssake,tocombatfloodingandtoimprovethe

quality of the environment?

Enhancingtheurbanquality:howdowelinkRotterdamsdevelopmentplanswithwhatneedstobe

done in terms of water?

Introducinginnovativeandalternativesolutions:whatdowedoifthetraditionalapproachis

inadequate?

To prioritise, a list of criteria was drawn up. What is important, for example, is the question, if a project

is already under way, of how this helps solve the water problems, how it contributes towards an attractive

city, if there is a now-or-never situation and if there is evidence of an exemplary effect.

i M P l e M e n tat i o n P r o g r a M M e The Implementation Programme 2007 2012 sets out what needs

to be done in the next five years. This involves ongoing projects from the first water plan, new projects

and studies, which are already being conducted so that we can carry on quickly after 2012. They can be

subdivided into projects to improve safety, projects to cope with the quantity (thus storage) of water and to

improve the quality of the water.

S a f e t y The safety aspect involves two main themes: the dykes and building outside the dykes. The starting

point is that the city is and remains protected from the water. In the more long term, choices will have to be

made about the storm surge barrier and the required height of the dykes.

During the implementation period of the water plan, those sections of the dyke which do not yet meet

current standards will be reinforced. The flood defences at the Vierhaven and Merwehaven also require

attention. As soon as the examination method is made known, detailed examination can be carried out here

and a study can be launched into adaptive building in this port, as well as in the Rijnhaven and Maashaven.

For the areas outside the dykes, proper account must be taken of the risks of flooding. Newbuild and the

design of the area must be geared towards this, evacuation must be possible and communication with the

residents is a precondition. For the coming five years, studies on these aspects are on the agenda.

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this is the main report of the Water Plan 2 rotterdam. it

describes the approach that the city of rotterdam and the local

water boards are proposing to take towards the water in the city.

the plan is the successor to Water Plan rotterdam 2000-2005.

there are three reasons for bringing the 2000-2005 plan up to

date: the period covered by the original plan has now elapsed;

we now have to deal with new ideas and more recent legislation

in the field of spatial planning and water management; and

finally it is now becoming ever clearer that the climate is

changing, which for rotterdam is of great significance. in order

to be able to face up to these challenges a new way of dealing

with water is required, as conventional solutions are inadequate.

wat e r p l a n 2 r ot t e r da m

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1 . 1 How can water make a contribution to the ambitions of the city?

Water and Rotterdam are inseparable. Water forms a fundamental part of the city and has

played a crucial role in its development: the Maas, the Schie, the Rotte, the many canals and lakes and the

ports all are characteristic features of the city of Rotterdam. However, the various water systems are under

pressure and limits have by now been reached. Legal and physical developments have led to the conclusion

that a fresh approach and new investments are required in order to make Rotterdam waterproof in the

future. The three main themes in this context are water storage, water quality and water safety.

During the next few years Rotterdam is seeking to further develop into a city that is pleasant and safe to

live in, with good employment opportunities and a healthy environment. A great deal of building work will

be needed during that time and parts of the city are on the threshold of some far-reaching restructuring

programmes. Rotterdam recently presented its City Vision. The citys mission is to continue to work on

creating an attractive city with a strong economy. The central question that this water plan attempts to

answer is how the water in all its facets can contribute to these objectives being achieved.

Rotterdam is faced with a huge challenge. Slowly but surely the city is casting off its image as an ugly port

and industrial centre and is actively turning itself into an appealing residential city.

To the extent possible, Rotterdam wants to use the potential offered by its existing urban area, aiming at

developing attractive residential environments. However, this requires more than just good-quality homes.

It also involves the creation of links to existing identities, the provision of appropriate educational and

other amenities, the quality of public spaces, air quality and, last but not least, water-related requirements.

Tackling water-related requirements is an important precondition for achieving an attractive living

environment. Conversely, it is true that if we want to deal with water-related challenges effectively, it will

only be possible if we include them as part of the citys development.

This water plan offers a view on Rotterdam in 2030. It focuses on the citys long-term development with regard to water and dams, without losing sight of the citys ambitions. In order to realise this view we have to act now and make some fundamental choices. What these choices are is described in Chapter 3, decisions of crucial importance.

The period of the long-term vision up to 2030 has not been selected at random. It is in line with the

City Vision in order to re-emphasise that spatial and water-related challenges are interrelated.

The water plan has been co-produced by the City of Rotterdam, the Schieland and Krimpenerwaard District

Water Board, the Hollandse Delta Water Board and the Delfland Water Board. In 2006, the ideas to be

contained in the plan were developed in a number of working parties and six design studios, with urban

planners, landscape architects, drainage experts, specialists in water management, ecology and water

quality, security, design and management, and many others working intensively together. The aim was to

1 8 1 9

arrive at a truly integrated water plan. In addition, the structure of the water plan was presented to other

water partners like the Dutch Directorate for Public Works and Water Management, the Port of Rotterdam,

the Zuid-Holland provincial government, and the DCMR Environmental Protection Agency.

2.1 What has been achieved and where are we now?

Although there have been many new developments, and arguably a change of course with regard to

water management, a great deal of work has already been carried out in recent years. The Water Plan

Rotterdam 2000-2005 embraced a wide range of issues and considerable achievements were made by the

time it had run its course. Large projects were, and are, carried out. We have restored canals and we have

already started the much-needed task of storing water, while the improvements to the quality of water are

becoming visible. The necessary work for the sewerage system has been done, and the backlog in dredging

work has now been cleared.

What can we learn from the first water plan? One thing that emerged from the Water Plan Rotterdam

2000-2005 is that describing a strategic integrated vision may result in an imbalance between vision and

the programme of implementation, with the emphasis on the former. For that reason, a greater focus has

been laid in this water plan on the feasibility of its implementation.

A second lesson to be learned is that the most successful projects were those that combined ambitions

that related to spatial planning, such as the Singel Plan and the Zuiderpark. Resources and ambitions

were combined and executed jointly with the water partners. This lesson was also carried over to the final

implementation programme.

For the Zuiderpark a master plan was drawn up aimed at transforming it into a park fit for the 21st century.

This means that the park should be as pleasant and as accessible as possible for a large proportion of the

population of Rotterdam. New areas of open water have been created, so that the local storage capacity has

increased from 21 to 35 hectares of open water. By redesigning the banks, the ecology has improved, while

at the same time there is more room for leisure activities. The overall result is a real water gem.

In the last few years, existing canals and streams in Noord and Zuid have been smartened up, including

a number of canals from the Rose Plan. Areas of greenery around the canals have been improved, as has

the layout of the streets. Each facade was restored, and the quality of the water in the canals has improved

tremendously. The Bergsingel, Noordsingel, Crooswijkse singel and the Boezemsingel canals are now back to

how they should be. The canals and streams in Zuid are also being tackled.

The integrated recovery plan for the Bergse Plassen lakes has now been completed. Thanks to a package

of measures including dredging, the construction of a sewerage system, improvements to the layout, the

removal of phosphates from the water of the canal inlet from the direction of Hillegersberg, the management

of fish stocks and the creation of places for pike to spawn, the design and quality of the water has improved

enormously, and the water is now clean and clear. The final measures will be implemented during the period

covered by the next plan, including insulating the lake by constructing a drainage route for water from the

residential areas.

An important interaction exists between drainage systems and surface water in the Rotterdam urban area,

and as a result there is also a close relationship between the Municipal Sewerage Plan (known as the GRP)

and the Water Plan 2 Rotterdam. The GRP was given the go-ahead by the city council in 2006. It contains a

vision on the sewerage system and describes measures to be taken between 2006 and 2010. These include the

replacement of sewerage systems, central management performance targets, almost if not everybody to be

connected to the sewerage system, dealing with precipitation in an innovative way, and obligations with regard

to treating groundwater. The measures are in keeping with the ideas behind this water plan and will be further

implemented in the coming period.

After the Water Plan Rotterdam 2000-2005 was drawn up, it was followed by various municipal district water

plans (known as DGWPs), which will be completed in the next planning period on a district by district basis.

It can be assumed that the measures that have already been carried out in the DGWPs or which have been

proposed will make a contribution to tackling the citys water-related challenges. Measures are also needed

in the current plan period that need to be worked out in more detail for the municipal district water plans,

particularly those measures regarding sector-based water projects intended to relieve bottlenecks, putting the

water system in order, and focusing greater attention on water quality and ecology (with sufficient emphasis

on monitoring, management, and maintenance).

2 0 2 1

Professor Pier Vellinga is one of the first scientists in the

Netherlands who has started to look seriously at the

consequences of climate change. Apart from obvious

measures like elevating dykes and extra water storage

facilities, he sees the solution primarily in government

and businesses being prepared to take broad-based action.

From now on, the climate should be a factor in every

infrastructural measure or intervention.

Roughly speaking, there are two possible types of measures to

respond to climate change. you do something about the hardware

and decide to improve or strengthen dykes, storm barriers and

other protective constructions, or you do something about

the software, and make sure that houses, roads, pavements,

industrial buildings, bridges, parks, playgrounds, viaducts, etc. are

designed, built or modified in such a way that makes them more

or completely waterproof. As far as the hardware is concerned,

the netherlands has an internationally renowned reputation, but

as regards software there is still much room for improvement,

Vellinga believes. He talks of objects that from now on have to

be as climate robust as possible in other words, that they not

only remain standing in extreme conditions, but that they actually

help to limit flooding. Obviously I do not want to open a new

counter where new projects can queue up and be given a stamp of

approval, says Vellinga, but it is imperative that the netherlands,

and especially Rotterdam and its hinterland, is properly prepared

for the changing climate, so that we can respond flexibly to any

extreme conditions that may occur, and that a range of options are

in place which can be deployed as the situation requires.

Vellinga lays much emphasis on the topic of adaptation. This refers to estimating in advance what the possible risks and developments are and responding to them accordingly not suddenly, but gradually and sensibly.

In that context, he believes that Water Plan 2 Rotterdam and

in particular the adaptive approach, are an important next

step, not just towards further protection of the region, but also

towards a more fundamental collaboration between government,

industry and science, and between individual government bodies

themselves. Local authorities play an important role in spatial

planning in the netherlands. If the City of Rotterdam is already

looking ahead to 2030 and is coming up with the Water Plan

2 Rotterdam as part of that future vision, then that is a good

signal from which others will hopefully take their cue. not all

government bodies are looking that far ahead yet.

Include cl imate change when making decisions

P i e r V e l l i n g a : W a t e r P l a n 2 i S a n i M P O r t a n t S t e P

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B ox 1 - S o u r c e S o f i n S p i r at i o n : t h e r o S e S i n g e l p l a n

In using the water challenges for the benefit of the development of the city, we are not unique. In fact, Rotterdam

has a tradition in this area of which it can be proud.

When we drew up this water plan we took inspiration from appealing plans from the past. First of all, there was

of course the Singel Plan by the city architect W.n. Rose (1801-1877). The inspiration in this plan can be found in its

simplicity and effectiveness, and also because Rose succeeded even at that time in making the link between

water and spatial planning.

Another example of the synergy between water and urban development is the entry for the 2nd International

Architecture Biennale: Rotterdam Waterstad 2035. Rotterdam Waterstad (water city) takes a refreshing and

inspiring look at water in the city. Both sources of inspiration are outlined below.

t H e r o S e S i n g e l P l a n Standards of public hygiene in Rotterdam used to be very poor, partly because open

waters were not only used as open sewers, but also for producing drinking water. As a result cholera epidemics

were common, and many thousands of people died!

In 1854, Willem nicolaas Rose came up with an affordable plan that benefited both hygiene levels and the spatial

layout of the city. A system of pumping stations, locks, culverts, and a thirty-kilometre long stretch of canal around

the old city ensured that the surface water was regularly refreshed. It was possible to live by the water, and

attractive greenery was created. This was in fact a first water plan in which water, spatial planning and improving

living conditions in the city went hand in hand.

a n d r o t t e r d a m w at e r S ta d 2 0 3 5

r o t t e r D a M W at e r S ta D 2 0 3 5 Rotterdam Waterstad 2035 is a real water city, with unprecedented possibilities for

new water-based residential environments, transport over water, and a healthy water system. Rotterdam Waterstad

2035 consists of Rivierstad (centre), Vaartenstad (Rotterdam Zuid) and Singelstad (noord). Rotterdam Waterstad 2035,

the joint entry from the City of Rotterdam, the Hollandse delta Water Board, and the Schieland and Krimpenerwaard

district Water Board for the 2nd International Architecture Biennale Rotterdam, gives a perspective on the action that

Rotterdam should take. The plan is inspiring, optimistic, high-profile, evocative and points the way to an attractive city

in attractive surroundings. Thanks to its progressive and innovative ideas, the plan received the Architecture Biennale

Real estate Award.

1 . S i n g e l S ta D 2 0 3 5 The strategy in Rotterdam noord is to strengthen what is good and to intervene wherever

necessary. Typical of the Singelstad townscape are the new canals, which connect the existing canals and serve to

extend them. The Rivers Rotte and Schie, which had disappeared from view, are set to reappear. new residential

environments will be created here. There will be some delightful squares in Singelstad where excess water from heavy

rainfall will be stored. Green roofs will also become common here. 2 . r i v i e r S ta D 2 0 3 5 In 2035 the river will be the

jewel in Rotterdams crown. Rotterdam really is a river city. Possible rises in sea levels are a serious consideration for

Rivierstad. Wherever necessary, dykes will have to be raised in order to protect the city, although there are also areas

outside the dykes, such as Waalhaven and merwedehaven, that need to be redeveloped and where all kinds of new

living environments can be created, including on the water. In addition, water-based transport will serve to re-attach

these harbour areas to the city. 3 . va a r t e n S ta D 2 0 3 5 The water in Rotterdam Zuid is virtually all at the same

level, which makes it possible to connect all the bodies of water together, forming one cohesive network. A new and

attractive waterway network is developed in Vaartenstad, as are many options for living by the water.

2 4 2 5

rotterdam has several important tasks laid out for it over the next few years,

both in the areas of urban development and of water management (security,

quality and water storage). these new basic requirements are primarily defined

on the basis of new insights into the route the city should take in the long

term (as described in the Stadsvisie), the effects of climate change on the citys

water resources, existing and new legislation and regulations (such as the

european Water framework Directive and the Dutch national Policy on Water

Management for the 21st century(nBW)), new insights in the security norm for

dykes and the changing role of municipal government (the Parliamentary act

on the anchoring and Budgeting of Municipal Water tasks (Wgw).

this chapter goes into these basic requirements. What is the current situation,

what are we facing and what requirements will this create? We will first

describe the task laid out for the city in the area of urban development, after

which we will go into the various requirements in the field of water manageme

what we are facing

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2 .1 Basic urban requirements: a strong economy and an attractive residential environment

This section will deal with the urban context. To this end, we will focus in particular on those

elements from the Stadsvisie Rotterdam (Rotterdam Urban Vision) that are important for this water plan.

Rotterdams image is to a large extent based on the citys water. Rotterdam was born on the waterfront: it is the

town on the dam in the River Rotte. Rotterdam owes its port to the nearby water. Every Dutchman is familiar

with the image of the Rotterdam river banks: the Erasmus Bridge stretching across the Maas River, which

shimmers in the evening sun. Rotterdams most coveted residential locations are all situated on the waterfront:

locations along the citys canals, riverfront and its lakes and ponds. And water is an important structural

element: water forms the backbone of the citys main structure. Its not just the Maas River with its quays and

dams, but also the rivers Rotte and Schie, the canals and lakes, the waterways and the polders. However, if

Rotterdam aims to position itself even more clearly as a water city, it will need to place even more emphasis on

these qualities and capitalise on them even further.

Besides the citys aforementioned qualities, which are clearly apparent, various developments are taking place

in Rotterdam that are of crucial importance for the citys future. Rotterdam Urban Vision describes these

trends and developments. If Rotterdam intends to stay attractive for businesses, residents and visitors, the city

will need to take these trends into account. Rotterdam Urban Vision makes a rough distinction between the

following trends and categories:

- Internationalisation and modernisation of the economy;

- Selective migration;

- Stagnating population.

In light of the importance of these developments for Rotterdams future and the fact that they will also have an

impact on how Rotterdam plans to deal with its water, they will be briefly discussed in the following sections.

i n t e r n at i o n a l i S at i o n a n D M o D e r n i S at i o n o f t H e e c o n o M y Thanks to its port, Rotterdam is a

city of international importance and interests. The strategic location of the Rotterdam harbour ensures that

it remains one of the key seaports worldwide. But the Rotterdam economy has long outgrown its strong

focus on port activities. The knowledge and services economy is also becoming increasingly prominent

in Rotterdam. There is considerable competition between various cities in order to retain the knowledge

workers that are so crucial for this sector. An attractive residential environment is an important argument

for these knowledge workers in their decision for a specific urban region.

S e l e c t i v e M i g r at i o n In Rotterdam, the number of people with a job, a solid education and higher-

level income that are leaving is so high that this is insufficiently compensated by the entry and career

development of promising young people. The result is a negative selective migration that has led to an

unbalanced composition of the population. To a large extent, the Rotterdammers with a higher education

do not leave because they want to move out of the city, but because they cannot find the home of their

choice in their preferred residential environment in the city. These are important data that can make a

contribution to the reversal of this trend.

S ta g n at i n g P o P U l at i o n There is already a fall in the population in many European countries, but in the

Netherlands, for the time being, structural population decline only occurs in various parts of the country outside

the Randstad agglomeration. In the medium term (around 2035) the Dutch population as a whole will also

drop. The fact that the registered population of Rotterdam fell over the past two years is not a consequence of

structural population decline but of locally determined factors such as a drop in influx and undiminished outflux

and administrative corrections in the Municipal Basic Administration. A share of the people moving out of

Rotterdam is retained for the region, which is still increasing in terms of population. The below diagram shows

the population development from 1992 to 2005 and the trend forecast until 2020 on the basis of the Ruimtelijk

Plan Regio Rotterdam 2020 (RR2020) spatial plan.

When the composition of the local population is unbalanced, a declining or stagnating population will possibly

lead to a decline in prosperity and consequently a weaker base for facilities in the city. In combination with the

present negative selective outflux, this can lead the city to deteriorate, both in social and financial terms. This is at

odds with Rotterdams need to position itself as a healthy city within the strong, internationally competitive urban

agglomeration of the Randstad.

Over the next twenty years, due to progressive household dilution (i.e. a drop in the average number of residents

per dwelling) in the Netherlands and Rotterdam, there will still be a substantial quantitative housing demand.

Rotterdam will have to take optimum advantage of this demand in order to house as many highly educated

residents in other words a highly qualified working population as possible within its city limits.

Rotterdam has chosen a strategy which focuses on the development of the knowledge and services economy and which provides for an attractive residential and living environment that manages to retain highly trained and creative workers for the city. Such measures have considerable urgency, because the time span within which the city can still benefit from the increase in the working and general population and the related housing demand is short another 15 years or so.

The above makes it clear which job Rotterdam has set out for it: over the next few years, the city has to do

everything in its power to improve physical conditions and once again make Rotterdam the strong, vibrant

heart of the region.

This mission for Rotterdam rests on two pillars:

- Strong economy: more employment;

- Attractive residential environment: a more balanced composition of the population.

These two pillars combine to form a single issue: to lead a satisfactory life in the city, you need an attractive

residential environment and suitable employment. Employment in turn only develops when a city forms an

attractive business location for entrepreneurs and employers, in which security, trust and good facilities are

of essential importance. To form an optimum location (both for companies and people), Rotterdam needs to

both offer an attractive environment and make effective arrangements for security and durability. As was also

outlined in Rotterdam Waterstad 2035, in 350 years, Rotterdam also has to be an attractive city for working,

living and leisure. Or, with respect to the surrounding water, Rotterdam is safe and remains safe.

Figuur 7. Population development

Figure 6. People moving in and -out of Rotterdam

moving out

moving in

result

working

walfare

students

retired

inactive

number of personsSource: COS, nov. 2005

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In addition to tackling flooding in a cohesive manner, Water Plan

2 Rotterdam seeks to provide a long-term vision of water as an

opportunity for Rotterdam and the surrounding area. Water can

be a real boost to the quality and atmosphere of a district or city,

and that makes it an important factor in terms of peoples sense

of well-being. This view is also held by Adriaan Geuze, co-founder

of the renowned West8 Landscape Architects firm and professor at

Harvard University.

People feel happier and more at ease when they live in a recognisable

environment in other words, an environment that is different from

others in vital ways. That is not just the conviction of Adriaan Geuze: it

also emerged from many research projects. He believes that this fact,

combined with the need for greater drainage capacity and therefore more

surface water, offers an excellent opportunity to make Rotterdam a more

attractive city. One of the areas that is ripe for improvement is Zuid. There

is a historic system of streams that, with a fresh approach, could be given

a more prominent place in the local districts, explains Geuze, by making

them deeper, for example, and by providing water-related amenities that

would make them directly relevant to citizens. He sees another notable

possibility on the edges of the city in particular, where the water could be

given an important identity function in addition to a recreational one that

of demarcating the city.

By emphasising the streams in the landscape and giving them more space, a natural boundary will emerge between one region and another. The term across the water will then regain some of its significance, and psychologically, that has a positive effect. People like to come from somewhere, and also go somewhere. They do not want to form part of the common herd.

How invaluable water is to the city can be shown, he believes, by

Westersingel, Provenierssingel and Heemraadsingel, among others. These

are the places where Rotterdam, the metropolis that it is, can catch its

breath. It is here to where people almost automatically come to, experience

peace and quiet, and get some sense of identity. Wherever possible, these

are the qualities that should be exported to the areas around the edge

of the city. He sees more pressing reasons in the social climate (in Zuid,

among other places) rather than in the meteorological one as to why the

possibilities should be exploited quickly. I hope that Water Boards, city

district councils, housing corporations and other interested parties can see

the merits of these ideas for more vital and social living environments, and

that they act jointly to seize the opportunities I have mentioned that water

can offer.

Water represents an opportunity for Rotterdam

a D r i a a n g e U Z e : W a t e r a S a W e l F a r e F a C t O r

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2 .2 Radical strategies

Rotterdam has decided to build within the existing city limits. A good business and residential

environment is an absolute prerequisite for a strong city that can grow even stronger. The development of such

a strong city within the existing urban area leads to maximum profit for the city and the region. A strengthening

of the existing city means making optimum use of the existing facilities. And at least as important this

decision will ensure that the outskirts of the city are left alone, which means that it will no longer be necessary

to realise large-scale developments in areas that are not suited for such construction. By decreasing the housing

pressure in this way, the recreational and natural functions of the polders and green areas around Rotterdam

are maintained and even strengthened. This in turn contributes further to the citys range of facilities.

The Rotterdam economy demands an attractive residential environment for its highly educated workforce (knowledge workers). Rotterdam has decided to exploit the potential of the existing urban area as far as possible. The decision to use the existing city area focuses on developing attractive residential environments that correspond with the wishes of the housing consumer something that entails more than just building good homes. It involves linking up with existing identities, interconnecting with the educational offer and other facilities, the quality of the public space, air quality and the basic water requirements!

The market demand plays a central role in the development of an attractive residential city. This is

achieved by taking the wishes and complaints of all existing and potential Rotterdam residents in each

stage of life young, old, single households and families as a point of departure. It is difficult to

develop a general picture on the basis of all these different wishes. Nevertheless, broadly speaking we

can distinguish three residential environments, for which we can presently see considerable demand

that will most likely continue in the long term: inner-city housing in central Rotterdam, relaxed urban

housing in the neighbourhoods and harbour areas around the city centre, and green urban housing in the

suburbs. Rotterdam Urban Vision offers a perspective regarding the development of the existing and new

neighbourhoods towards these three desired residential environments.

To achieve this, we need new strategies that focus primarily on retaining students and higher-level

graduates in the city:

- City centre: condensation and improvement

- Quality-based trickle down effect

- Gentrification of urban neighbourhoods

At the same time, we continue with the successful restructuring of post-war neighbourhoods such as

Hoogvliet and the rejuvenation of neighbourhoods that have fallen into decay (hotspots) like Spangen.

Rotterdam aims to offer a perspective to all Rotterdammers, which emphatically includes those living in

less strong neighbourhoods with a large, vulnerable housing stock. The municipal council, the housing

corporations and private individuals will all join forces to proactively handle the problems at hand. The

Pact op Zuid agreement is a splendid example of this ambition.

c i t y c e n t r e : c o n D e n S at i o n a n D i M P r o v e M e n t The city centre is important for Rotterdams image:

for its residents, but also for tourists and the business community. The centre already has a lot to offer

but it can still be improved in terms of identity. One of the ways in which to make central Rotterdam more

vibrant is to increase the number of people living in the area. A lot has been done over the past ten years

the development of the Kop van Zuid district, for instance but this is only the beginning. In comparison

with other European cities, central Rotterdam is still extremely under-populated and there is still a lot

of space available in the area, with the old port areas in particular having a great deal of potential. In the

future, about twice as many people will live in Rotterdam city centre as is presently the case.

q U a l i t y- B a S e D t r i c k l e D o W n e f f e c t The trickle down strategy on the basis of quality focuses on

creating attractive residential environments by taking maximum advantage of the allure of neighbourhoods

that function well at present. Cultural-historical heritage and image play an important part in this process.

Existing well-functioning neighbourhoods with a strong identity like Kralingen and Hillgersberg combined

with new construction and restructuring can create a trickle down effect, which will in turn have an impact

on the attraction of the city as a whole.

g e n t r i f i c at i o n o f c i t y n e i g H B o U r H o o D S Gentrification is the process leading to the revaluation of

an area when existing and new residents and entrepreneurs identify opportunities, unfurl initiatives (new

investments and businesses) that prove successful and develop a higher quality environment. Opportunities

for gentrification can primarily be found in the old city neighbourhoods surrounding Rotterdam city centre.

In those areas where there are indications that there is a possibility of gentrification we will stimulate this

process through the sale and consolidation of rental homes and extra investment in the outside space.

Figuur 9. Strategy attractive residential city

Figuur 8. creating attractive residential environments by taking maximum advantage of the allure of neighbourhoods

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We can only realise a strong economy and an attractive residential city if certain conditions are satisfied in

the area of public space, water management, infrastructure and the environmental. Indeed, water is one of

the essential conditions of an attractive residential city.

2.3 Water and cl imate One of the most pressing and visible developments for our present-day surroundings is the global

climate change. Not a day goes by without the media presenting the latest predictions regarding the

development of the worlds climate. Water is one of the key themes in this discussion. It is clear that over

the next decades, we will be dealing with an ever-increasing volume of water. And for Rotterdam, it will

literally come from all four corners: from the sea, the rivers, the air and the soil. The water issue, which is

urgent as it is, will only become more prominent.

The consequences of climate change can already be observed. The heavy rainfall over the past few years (and months) show that the existing water system is already stretched to its limits. Stories about the noordereiland, which risks flooding as a consequence of an exceptionally high river level, basements that flood due to heavy rainfall and problems with the groundwater levels are of the order of the day. The fire brigade reports and the numerous messages in the different media all testify to this situation.

The rising temperature will cause the sea level to rise, leading to an increased risk of flooding. The winters

will become wetter and the summer dry spells will be longer. At the same time, there will be more and

more peak showers, causing more and more nuisance such as flooded tunnels, flooded streets, cellars

and basements and more instances of the sewers overflowing into the surface water. As a consequence of

the dryer summers, the rivers will drain off less water and the river level will subside. As a consequence,

the salt-water wedge will advance further upstream, the quality of the river water will decline and in the

long term it will no longer be possible to let in fresh water during the dry summers. If we dont take the

necessary measures soon, there will be more fish mortality and it will be increasingly difficult for the

existing green belts and trees to survive the dry summers. And due to the steadily progressing subsidence of

the soil, it will become increasingly difficult to deal with the groundwater problem.

S e c U r i t y a n D t H e r i S i n g S e a l e v e l There is no general consensus as to which extent the sea level

will rise. One thing is for sure, however: there will be changes. According to a 2007 publication of the

Intergovernmental Panel on Climate Change, the sea level has risen by 18 to 59 centimetres compared

to 1990. Between 1993 and 2003, the measured increase was 3 centimetres, which comes down to 30

centimetres per century.

There is considerable debate both in the media and the scientific community regarding the precise level

of increase and Mans contribution to this increase. It has however been established that the sea level

will rise. It is therefore advisable to take the necessary measures now rather than wait and see what will

happen. If only because an additional rise in the sea level is expected in the period after 2100.

Predictions regarding possible increases in the sea level raise the question to which extent Rotterdam

is protected from floods. After all, the security of the various areas both within and beyond the regions

dykes needs to be guaranteed. In an area where a large variety of functions compete for the same space,

maintaining a sufficient level of security may not be an easy job, but it is necessary nonetheless. An

assignment that can only be successfully executed via a partnership between the municipalities, the water

boards, Rijkswaterstaat and the Province.

The primary dams protect the hinterland to the north and south of Rotterdam against high water levels in

the river. Parts of these dams traverse the urban landscape, and other sections are part of the outside space.

The Flood Defences Act (Wet op de Waterkering) requires the management authorities of the primary flood

defences in this case the water boards and Rijkswaterstaat to carry out a safety assessment every five

years. If it turns out that the flood defence or a section of the flood defence no longer meets the requirements,

the structure needs to be reinforced. Such improvement measures may claim additional space.

For this reason, the water boards have for many years reserved space to accommodate possible

reinforcements of the defences both today and in the future.

Rotterdam is situated in what is known as Dijkring 14 (Dyke Ring 14). This interconnected ring of

flood defences encircles a large section of the Netherlands that is home to millions of people and has a

considerable economic potential. Indeed, the human and economic consequences of a possible collapse of

this defence would be enormous. At present, Rotterdam satisfies the current standards for collapse and

flood prevention for nearly all its dyke sections. Dyke reinforcements are being carried out in those sections

where they are necessary. For lack of the correct assessment tool, the Parksluizen locks and the sections

along the Vierhaven and Merwehaven have not yet been assessed, but this assessment will be rounded off in

the course of the plan period.

Map II The primary dykes

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e c o n o M i c r e q U i r e M e n t S

rotterdam faces the task of building a strong economy and an attractive residential environment. the main issue is to increase

quality of life in the city and improve the investment climate. to make rotterdam an attractive place to live, study, work

and visit. Water is an important condition for an attractive city, particularly for rotterdam, which positions itself as a water

city. the key requirement of this water plan is to determine how to utilise the various basic water requirements to make an

attractive city. only if we can connect the water requirements to useful solutions that have significance for rotterdam and the

rotterdammers will the water policy really earn support and will we be able to make a success of its implementation!

3 6 3 7

Former Minister of Public Housing, Spatial Planning and the

Environment Pieter Winsemius is known in the worlds of both

politics and business as a genuine heavyweight. He is not your

typical administrator: he is averse to doctrines and if necessary

is prepared to defy convention in an attempt to find new

solutions. As far back as the 1980s he succeeded in putting the

environment high on the political agenda, and yet he describes

the issues surrounding the threat from flooding as reasonably

new. We dont have anything like all the answers yet.

Who is doing what? And who is waiting for whom? When it comes to climate

change issues, administrators, businesses and consumers often point the

finger of accusation at each other, while hardly anything actually gets done.

Pieter Winsemius is familiar with these reflexes and is working to promote

a joint offensive. The amazingly fast conversion from leaded to lead-free

petrol is still a source of inspiration to me when it comes to the possibility

of bringing about fast and far-reaching beneficial changes. Politicians,

consumers and business people had no trouble joining forces then, and at

that time it made a significant contribution to the environment. In that

particular case the government was just slightly ahead of the game: There

was a sudden changeover, partly because at that time the government

made leaded petrol a little bit more expensive through extra duty, which

also meant that the price of lead-free petrol could be reduced somewhat.

To combat climate change and to counter water-related problems, he now

expects the government to fulfil the same role.

Where there are commercial incentives, including in the case of environmentally friendly business, governments do not need to intervene. Things will happen automatically. But if you look at investments where the returns as poor, such as with solar panels, then as a government you have to do all you can to send out a signal and have clear and reliable incentive policies.

Rather than in individual initiatives, Winsemius has faith in a collective

awareness that should continue to grow and then be translated as quickly

as possible into action. Here in the netherlands, there are programmes like

Room for the River, and the ministry of Public Housing, Spatial Planning

and the environment will also shortly be bringing out a new water

management plan. These are all useful developments. But the realisation

that the netherlands is seriously under threat is still reasonably new from

a historical point of view. That realisation has to grow. The only thing you

can do now is help accelerate this process by emphasising the urgency

of the situation. until that great breakthrough comes, Winsemius, as a

pragmatic man, will continue to push for what he calls small steps in the

right direction. I see Water Plan 2 as just such a step.

Small steps in the right direction

P I e T e R W I n S e m I u S

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B o x i i - r i S k a p p r o a c h

r i S k S a S S o c i at e D W i t H f l o o D i n g Residential districts of Rotterdam that lie outside dykes are built at a very

high elevation in order to prevent their being flooded by the river. In some cases they are even four to five metres

above sea level, but the actual height depends on the chance of flooding. At present it is assumed that residential

areas should not be subject to flooding more than once every 10,000 years. However, we are starting to realise that

the chance of flooding does not actually mean very much. It is much more important to look at the possible risks to

people, buildings, infrastructure, etc. For example, the situation that arises when water cannot escape after a flood,

such as in the case of a polder, is different to that of areas that lie beyond dykes. The disaster in new Orleans is a case

in point. It is therefore time for a risk approach to flooding, all the more so given that forecasts about rising sea levels

are still uncertain.

t H e ta S k up to now it has been the case that when an area located outside dykes is being developed or redeveloped,

one factor that is considered is the acceptable level of risk of flooding. For residential areas this means that the river

water can flow over the dykes once every 10,000 years, with the expected rises in sea levels taken into account. At the

same time predictions about the climate developments are uncertain and it may well be that in a few decades, these

areas will be too low or too high. The task facing Rotterdam is to develop new areas outside dykes in such a way that new

residential environments are created by the water. The rise of water levels should be factored into the developments and

they should be safe. It is important that they are designed to cope with the risk of flooding as well as the uncertainty of

the rise in water levels and, at the same time, that the environment created is an attractive one.

The risk approach in relation to building in areas outside dykes entails the examination not only of the chance of the area

becoming flooded but also the consequences of any such floods. This is shown in the illustration below. The risk in this

approach is defined as the possibility multiplied by the consequences. The essence of this is that we find it acceptable for

an area to be flooded from time to time provided the damage to persons and property (the consequences) is limited.

Conversely, if the potential damage is great, then the chance of flooding occurring should be very slight.

By using this approach, the construction of very high banks can be avoided in the design and development of areas

beyond dykes without the safety of such areas being under threat. It can even open up opportunities for attractive

towns: less sensitive features of the area, such as parks, can be exposed to greater risks of flooding and are therefore

more suited to lower-lying land than are sensitive features, such as residential areas or major traffic arteries. This

means that towns in areas outside dykes can be tailor-made the water can play a prominent role in the quality of

the surroundings without undermining safety.

The lack of certainty in the predictions of future water levels requires a flexible approach to and design of these

areas, which can grow even as water levels rise, whether they are 20 cm or six metres. This calls for innovative

concepts for these areas in the form of modified buildings that can be made watertight, new design layouts, or banks

with flexible damming capacities.

W H at i S a n a c c e P ta B l e r i S k ? At present, it is not clear what constitutes an acceptable risk when it comes

to building in areas that lie beyond dykes. Consultations on water safety are currently underway at provincial level

at which this theme is being discussed. One option being considered is the introduction of a minimum level of

protection, while another possible basis for determining acceptable risk could be that it is set at an equivalent level

to the risk faced by areas that lie within dykes. Water Boards are responsible for water safety in the areas inside the

dykes, but in the case of areas under development outside the dykes this lies with the parties wishing to build there.

The position in relation to existing areas is not entirely clear. It can be assumed that no immediate, life-threatening

situations will occur because the level of the water will never rise that much anyway given the elevated nature of

the location. The level of acceptable risk is therefore determined by the extent to which the damage is covered by

insurance. A great deal of experience has already been gained in this area in some countries, where the greater the

risk is, the more expensive the cover. If the risk becomes too great, it automatically becomes more attractive to take

measures to reduce the level of risk or limit the damage.

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S a f e t y r e q U i r e M e n t S

rotterdam also needs to be protected from high water in the long term. this means that a further reinforcement of

the primary and regional flood defences is inevitable. We must already start reserving space for these measures today,

taking the water levels into account that can be expected in 2050 and 2100. according to the current norms, the primary

flood defences need to have the required height by 2010. for the regional flood defences, the target date is 2015, with a

possible extension until 2020.

in the area outside the dykes, the present structures and layouts need to be analysed with the help of risk calculation,

taking account of both their lifespan and the climate change. this can result in measures being taken to protect against

or limit the damage as the result of flooding. this project includes the elaboration of a communication strategy.

for new development projects in areas outside the dykes, the risks will be weighed in advance through use of risk

calculation.

4 2 4 3

It has since turned out that the Maeslantkering storm surge barrier does not meet the existing norms

with regard to risk of failure. The effects of a possible failure on the water defences and the area outside

the dykes behind the Maeslantkering were published by Rijkswaterstaat in late 2006 in the report

Achterlandstudie Maeslantkering. Although the risk of failure is theoretical and involves a wide variety of

factors, the issue can primarily be traced back to the software used to operate the barrier. Nevertheless, the

fact remains that this means the barrier falls short of the safety requirements.

As a consequence, there are insufficient guarantees that inundation of the areas outside the dykes is ruled out

as stipulated in the security policy. This will possibly have consequences for the height of the primary water

defence along the Nieuwe Maas waterway. In addition, this complex discussion with enormous potential financial

repercussions also takes the design lifespan of the Maeslantkering into account. This means that we already have

to make decisions at this point about the strength of the defences, granting altitudes and construction outside the

dykes in fifty years time and beyond.

The above information will be incorporated in the Water Safety Programme, which is coordinated by the

Province of South Holland and represents a variety of parties, including all the water plan partners. This

programme will deal in general terms with the question whether the low-lying part of our country will remain

inhabitable in the longer term and following from this question the shift in public attitudes towards

security risks. What is still acceptable, and what is the governments role in this all? Communication about the

risks and possible measures against these risks play a key role.

D r a i n a g e e M B a n k M e n t S a n D P o l D e r D y k e S Drainage embankments are regional flood defences (dykes)

that protect polders from inundation from the canals and large waterways. The Province of South Holland

has established security norms for the regional embankments. These norms indicate which level of security

the drainage embankments have to meet. The next step is to assess whether the drainage embankments fulfil

the set criteria. The first assessment report on this matter is expected to be published on 1 January 2009. The

embankments in question subsequently have to be in order in terms of safety by 2015. This is a target date,

with a possible extension until 2020.

A risk calculation (risk = possibility x consequence) is used to determine the safety of a drainage embankment.

For each polder, this assessment reviews the height of the damage caused by possible inundation: what are

known as the security classes. These security classes determine which investment is subsequently made in

protection. For instance, in a particular case the polder may have a higher building density, which increases

the damage (costs) should the dyke give way. In this case, the security level of the polder needs to be enlarged,

and the parties that initiate the building plans need to take dyke reinforcements into account for example

(the cost driver principle). In view of the considerable interests involved, it is therefore essential to involve

the Municipality in such evaluations (both the risk calculation and the possible consequences). This means

that in Rotterdam too, the Municipality needs to take a keener interest in its role and responsibilities and the

activities that are possibly required on the basis of this position.

Similarly to the case of the drainage embankments and polder dykes, more and more attention is paid to the

potential risks of an inundation. This means that besides reducing the possibility of a flood, there is also the

option of design measures in the area outside the dykes that limit the damage caused by an inundation or offer

the possibility of an evacuation at all times (in other words, restrict the damaging effects of an inundation).

This makes the flood risk more controllable and attunes it to the local function. However, it is an essential

condition that responsible choices are made and that the communication on this subject is completely clear

and transparent.

a r e a o U t S i D e t H e D y k e S The areas that lie outside Rotterdams dykes are among the highest-lying parts

of the city. Due to their relatively high altitude, these areas usually do not require the protection of a dam.

Certain measures are necessary to keep it this way, however. With the increasing pressure on public space and

Rotterdams unique location on the Nieuwe Maas waterway, over the next few years there will be a growing

demand to start building outside the main flood defences. With its adapted line of policy for the Major Rivers,

national government has also opened up the possibility of building in the rivers winter bed, on the condition

that the river water can be stored and drained off safely. The primary flood risk for areas outside the dykes

lies with the area developer. In Rotterdam, the Public Works Department bears responsibility for determining

the granting altitude. A high granting altitude does however entail extremely high development costs, in

connection with the high costs involved in raising a building location.

Map III Inundationmap

4 4 4 5

4 6 4 7

Good sewerage systems extend our life expectancy, protect the environment

and help combat infectious disease, but as a subject, they are not particularly

sexy. As the director of the Rioned Foundation, the Netherlands national centre

of expertise for urban sewerage systems and water, Hugo Gastkemper should

know. The tasks associated with sewerage systems are wide-ranging, the

financing is complex, as is the field of legal responsibilities between government

and citizens. Nevertheless, the general policy line for the 21st century is clear:

more room is needed for water due to heavier downpours of rain.

As an average citizen, how often do you stop to think about drainage? And do you wake up

in the morning with an image of a sewerage tunnel in your minds eye? not very often in

fact, probably never. In spite of this, Hugo Gastkemper is attempting on behalf of Rioned to

move the subject higher up the political and business agenda by, for example, drawing their

attention to the www.riool.info website, where the general public can access a great deal

of vital knowledge and information on the subject. Although the technological aspects of

sewerage systems are largely the responsibility of local authorities, and a report by Rioned

suggests that performance levels understandably vary, there is agreement at national level

as to how things should be in the future. Gastkemper says, Climate change means that the

focus will have to shift towards measures designed to control rainwater temporarily and in an

environmentally friendly way instead of just pumping it and draining it away.

during those few crucial periods a year when there is an extremely high amount of rainfall, the essential question will no longer be about how we keep our feet dry but rather, how can we manage water in such a way that flooding and damage to the environment are kept to a minimum?

There is after all a direct link between how rainwater is processed and drained and the

quality of water, which according to Water Plan 2 Rotterdam also has to comply with the

guidelines of the european Water Framework directive. The technology for draining

polluted water and rainwater separately is of course already in place, says Gastkemper,

by draining it through two different pipes, for example. However, the problems revolve

around the existing urban structures, the costs, and the possible pollution of rainwater.

As far as setting priorities is concerned, Rioned is for the moment looking at keeping

existing sewerage systems in the netherlands up to scratch. When they are replaced, as

many measures as possible are taken to combat flooding and to improve water quality.

Gastkemper continues, A large proportion of the present sewerage systems were built in

the 1960s and 1970s, and now need to be replaced. That is the reason why considerable

increases in the sewerage taxes are inevitable, across the whole country.

nevertheless, the first signs of this new thinking about dealing with excess water are

now visible in Rotterdam, for example, on Westersingel, where an urban flood plain

serves as a catchment area when there is heavy rain. The Water Plan 2 Rotterdam

contains the citys cohesive vision on the water management challenges of the near and

more distant future, says Gastkemper. That is progress. now it is time for action. I hope

that Rotterdam will take it.

The technology is there. It is costs that are a problem.

H u G O G A S T K e m P e R : d O n T J u S T P u m P I T C O n T R O L I T !

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Over the past few years, the water boards have made various calculations focusing on the basic water

requirements in 2015 and 2050. These concern the cubic metres of extra water that need to be accommodated

by the surface water system. Analysis of the existing water system tells us that there is a shortage of storage

facilities throughout virtually the entire city. A total of some 600,000 m of extra water storage facilities still

have to be realised in Rotterdams urban area between now and 2015. And with the expected impact due to

climate change, in the long term (2050) this requirement even rises