A process design for situations of temporal water scarcity in -Estuary Drechtsteden by implementing adaptive water management case study research

MSc Thesis Niña Visser March 2015

Name Donja Janinka Visser Student number 1311158 E-mail [email protected] Program Systems Engineering, Policy Analysis and Management Degree Master of Science (MSc.) Graduation section Policy Analysis Faculty Faculty of Technology, Policy and Management University University of Technology

Graduation committee Professor Prof.dr.ir. W.A.H. Thissen First supervisor Dr.ir.drs. A.R.C. de Haan Second supervisor Dr. M.L.C. de Bruijne

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Preface

This report is the final result of my graduation that completes the master of science in Systems Engineering, Policy Analysis and Management at the faculty of Technology, Policy and Management at Delft University of Technology. Reading guide During my master thesis project I made many analysis which resulted in illustrations. These pictures became an important part of the report. Therefore I have organised the chapters 2, 3 and 4 in such a way that the running text is on the right hand page and illustrations with short explanations can be found on the left hand page.

Those readers interested in the water system and how it is organised are referred to chapter 2 for normal situations and chapter 3 for situations of temporal water scarcity. The water system is analysed from three different perspectives; Technology, Institutions and Process. Chapter 4 presents the process design. Chapter 5 and 6 provides respectively conclusion and a reflection on this project. Acknowledgements I would like to thank my graduation committee members. Alexander de Haan for guiding my graduation process. Looking back at our meetings on Mondays I am happy how many times I went home with new ideas and inspiration for improvements. de Bruijne for all the feedback on my report and the brainstorming sessions about the process design. Wil Thissen for his valuable criticism during the graduation meetings.

Finally I would like to thank Tineke Ruijgh – van der Ploeg for introducing me to Alexander de Haan as possible supervisor for my thesis. Special thanks to Sasha for the time to read through and correct my report and my parents for their advice. I would like to thank my family and friends for their support during this project and my entire study.

Niña Visser

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Summary During normal situations there is enough fresh water available for all functions in the . But in times of droughts fresh water supply and water safety are at risk. For these periods of water scarcity, a sequence of priority on available fresh water distribution is present. However, experts consider that even these precautions are insufficient. It is expected that due to climate change droughts will increase and become more severe. But, economic and spatial development in the Netherlands are only possible when water safety and fresh water supply are safeguarded. The impact and consequences on society of failure of water functions caused by even these temporal water shortages can be high. Water stress has negative economic, environmental and social consequences, because fresh water is an important resource for drinking water production, electricity production, agriculture, industries, recreation and fishery.

The Advisory Council for Transport, Public Works and Water Management advised the Dutch government that due to climate change a more proactive way of dealing with uncertainties is necessary for the future (Raad voor Verkeer en Waterstaat, 2009, p. 53). In sum, implementing adaptive management is necessary as future developments will probably lead to a higher negative impact of water scarcity situations as more fresh water is needed for social and economic development. Especially during these situations trade-offs between water uses have to be made. Therefor the following research question will be answered: How to analyse the Dutch socio-technical water system to design for a process to improve long term adaptive management of temporary water scarcity?. By answering this research question the following design objective be reached: A process design for long term adaptive management for situations of temporary water scarcity in the Dutch socio-technological water system.

Because no standard blue print for process designs exist, a case study is used to develop a process design for dealing with long term adaptive management of water scarcity situations. The case of the Rhine-Estuary Drechtsteden has been selected, because of the complexity of this area. This area has been appointed by the Delta Commission as an area of special attention, because of future water challenges. Next to this there is also an institutional complexity with many different water users and water managers.

For dealing with water scarcity in Rhine-Estuary Drechtsteden it recommended to implement the process design within the current policy cycles of water management. is a total overview of the process design. The process design is a total concept consisting of a mode of thinking, method of working, instruments and process rules. For presenting the process design the structure of Bekkering et al. (2007, pp. 94, 95) is adapted.

- Adaptive management - Process management - IWRM mode of thinking

- outline of the process

method of working

- Mediated modelling workshops

instruments

openness Protection of core values speed substance process rules Figure: Overview of the process designed in chapter 4.

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The mode of thinking of this process design is based on the following concepts: Adaptive management (Folke, Hahn, Olsson, & Norberg, 2005; Mysiak, Henrikson, Sullivan, Bromley, & Pahl-Wostl, 2010; Pahl- Wostl, 2008; Raad voor Verkeer en Waterstaat, 2009), Process management (de Bruijn & ten Heuvelhof, 2008; de Bruijn et al., 2002) and Integrated Water Resource Management (Falkenmark & Rockström, 2004; GWP, 2000; Savenije & Van der Zaag, 2008; UN-Water, 2008). Adaptive Management and Integrated Water Resource Management are widely accepted in the field of water management. Although these concepts are widely accepted, the process of implementation lacks. The suggested method of working consists of the implementation of revision points in combination with social learning within the current policy cycle of the water management. Because the current synchronisation in time between the plans is maintained, it is possible to integrate these revision points in the current policy cycle. For this process design the instrument of mediated modelling workshops of Van den Belt (2004) is suggested as method of working for the implementation of social learning in decision making processes. The mediated modelling workshops are especially suitable, because it is applied within the field of environmental consensus building. Process rules are suggested based on De Bruijn et al. (de Bruijn et al., 2002).

This process is designed for long term adaptive water management for dealing with temporal water scarcity for the case of Rhine-Estuary Drechtsteden. Aspects of this process design are more generally applicable for other cases of temporal resource scarcity. The set-up of this process design with the mode of thinking, method of working, instruments and process rules has given a good overview of the total concept of a process design. Therefore it is recommended to be used in designing processes.

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Content Preface ...... 3 Reading guide ...... 3 Acknowledgements...... 3 Summary ...... 5 Content...... 7 1 Introduction ...... 9 1.1 Research problem ...... 10 1.2 Research approach ...... 11 1.2.1 Integrated Water Resource Management ...... 11 1.2.2 Adaptive management ...... 12 1.2.3 Socio-technological systems ...... 13 1.2.4 Process management ...... 13 1.2.5 Case study Rhine-Estuary Drechtsteden ...... 13 2 Rhine-Estuary Drechtsteden ...... 16 2.1 Technological analysis ...... 18 2.2 Institutional analysis...... 22 2.3 Process analysis...... 28 3 Rhine-Estuary Drechtsteden in situations of water scarcity...... 30 3.1 Technology ...... 32 3.2 Institutions ...... 34 3.2.1 Interactions between actors...... 34 3.2.2 LCW & regional drought commissions ...... 34 3.2.3 Sequence of priority on available water distribution during water scarcity ...... 36 3.2.4 Water agreements for small water supplies during droughts ...... 38 3.3 Process ...... 38 4 Process design ...... 40 4.1 Mode of thinking ...... 42 4.2 Method of working ...... 42 4.3 Instruments ...... 44 4.4 Process rules...... 48 4.4.1 Rules to facilitate openness in the process...... 48

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4.4.2 Rules to protect core values in the process ...... 48 4.4.3 Rules to speed up the process ...... 48 4.4.4 Rules to facilitate the focus on substance in the process ...... 48 5 Conclusion & recommendations ...... 49 5.1 How is the water system managed under normal circumstances? ...... 49 5.2 How is the water system managed during periods of water scarcity? ...... 49 5.3 What process design for dealing with water scarcity can contribute to the current water management system? ...... 50 5.4 Recommendations ...... 51 6 Reflection ...... 52 6.1 Process ...... 52 6.2 Using TIP as an structure for describing the water system ...... 52 6.3 Designing the process design ...... 52 6.4 Choice of the subject ...... 53 7 References ...... 54 8 Appendix 1: Creation of figure 3-5 ...... 57 9 Appendix 2: Risk matrix – table in total ...... 62 10 Appendix 3: Overview of actors ...... 65

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1 Introduction Fresh water in the Netherlands is normally available to meet all water demands. However, once in about 10 years an extensive period of drought occurs, which leads to water scarcity. Organising an efficient and equitable water distribution during that time presents a big challenge. Due to climate change it is expected that longer periods of drought will occur more often (Directoraat Generaal Water, 2004; KNMI, 2008, 2012; Programmateam Rijnmond-Drechtsteden, 2012a). Droughts affect both water quality as well as the quantity of available water. The quality of water will decrease as a result of saline water intrusion from the sea and higher water temperatures. Water quantity will decrease due to higher evaporation rates of the surface water level during droughts. And also the inflow of water from the Rhine and will decrease. Summarizing, in order to fulfil all water functions during droughts relatively more fresh water is needed in the near future, while the supply is actually decreasing. The availability of fresh water for all the different functions will thus be in danger because there is less good quality water available.

Water stress has severe negative economic, environmental and social consequences, because fresh water is considered a critical necessity. Fresh water is an important resource for a wide range of stakeholders and a variety of functions. For example, drinking water production, electricity production, agriculture, cooling water or process water for large industries, as well as recreation and fishery. In 2003, the costs of a fairly substantive period of drought were estimated at over €11.6 billion in the European Union (EurAqua, 2004). For the agricultural sector in the Netherlands alone, it is estimated that an extreme dry year may result in an economic loss of €1,800 million, which equals 0.3% of the Dutch GDP (Jeuken & Beek, 2012).

Flood safety is also under threat in times of water scarcity (Directoraat Generaal Water, 2004; Programmateam Rijnmond-Drechtsteden, 2012a, 2012b; Runhaar, 2006). Examples of this aspect of droughts were the collapse of the peat dikes at Wilnis (August 26) and Terbregge (August 31) in 2003 (Ministerie van Infrastructuur en Milieu, 2004). In the Netherlands there are many dikes made of peat. The stability of these dikes depends among other factors on ground water levels. During droughts water in the peat dikes evaporates, which decreases the ground water level. The dike will dry out and the strength of the dike is then at risk.

Suffice it to conclude that water scarcity is an aspect worthy of our attention. However, water scarcity is by no means a new subject. Institutions in the Netherlands that are engaged in water management have extensive experience with water scarcity and droughts. And because of the fact that safety and economic aspects are tightly connected to the topic of water scarcity, the Dutch national government has involved itself in dealing with water scarcity. In the Netherlands the central government has set standards for the “sequence of priorities” (in Dutch: verdringingsreeks) to decide on the allocation of fresh water in times of water scarcity ("Waterwet," 2009). The sequence of priorities was determined based on the importance of water functions for society. A total of four categories was identified. The first priority is flood safety (i.e. prevention of loss of life) and the prevention of irreversible damages to the environment. The second priority is to continue the provision of fresh water supply for drinking water utilities. The third category is small scale, high quality water use for capital intensive crops and for process water. The fourth category is related to various other water uses, such as shipping, water recreation and - as long as no irreversible damage occurs to nature - fishery, agriculture and industry.

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The fact that a sequence of priorities exists would make it seem as though a solution exists for water scarcity. On the national level the priority sequence is applied very strictly for water distribution problems concerning the main waterways. The water that enter the Netherlands at Lobith (Rhine) and St. Pieter (Meuse) is distributed over the various branches and the amount of water that is available for each category is determined based on the sequence of priority. There is a physical aspect of the water system that must be taken in to account as well. The water is already distributed, as large volumes are already stored in basins, pipes, groundwater reservoirs, smaller rivers, canals, etc. Due to the specifics of the water system, for example, the supply of drinking water is not immediately at risk during times of water scarcity. Drinking water companies have large reservoirs. 1.1 Research problem While extreme droughts in the Netherlands only rarely take place, decision making on distribution of water resources during water scarcity is markedly different in comparison to how decisions are made under normal circumstances. The impact of a period of drought on society and the ecosystem in the long term depends on how available water resources are managed. Effects of a drought can have irreversible damages for nature. (Falkenmark & Rockström, 2004, p. 3) describe the importance of water as the bloodstream of the biosphere and the necessity of incorporating water for ecosystems, next to water supply for humans. (Falkenmark & Rockström, 2004, p. 21) point out three main categories of special attention for a policy- maker: secure, avoid and foresee. With regard to droughts they explicitly refer to the category of foresee or anticipate. Although climate change creates more uncertainties, it is recommended to anticipate on droughts. The Council for Transport and Water Management concluded in their advice on pro-active adaptation to climate change that ‘a fundamental different approach to the uncertainties associated with climate change must be adopted in policy-making and in government’ (Raad voor Verkeer en Waterstaat, 2009, p. 53). The approach that the Council recommends involves a proactive way of dealing with uncertainties, which they describe as ‘planned adaptation’ or ‘adaptive policy-making’. In the adaptive resource management handbook by (Mysiak et al., 2010, p. 7) it is pointed out that: “the central contribution of adaptive water management within the context of Integrated Water Resource Management (IWRM) is that it provides added value through explicitly embracing uncertainty”. Being able to deal with uncertainty becomes more and more important in light of climate change.

Tolba, former Executive Director of the United Nations Environment Programme, points out in the foreword of Balancing water for Humans and nature (Falkenmark & Rockström, 2004, p. xi): “Normally water is a minor cost relative to total production costs, but when real water scarcity occurs, it can be a significant constraint on economic development”. (Huisman, 2004, p. 22) describes in Water in the Netherlands that statistically, in the Netherlands, periods of dry weather of for instance 10 days occur every year. Every 5-6 years periods of at least 3 weeks of dry weather occur. Less than once in every ten years periods of dry weather cause a drought. But during situations of water scarcity, managing water resources is about making trade-offs. Making hard choices about the distribution of water. (Falkenmark & Rockström, 2004, p. 219) recommend that securing social acceptance of the trade-offs is an essential component of integrated catchment management. Therefore stakeholder participation is highly recommended in the implementation of water resources management (Mostert, 2003; Soncini-Sessa, Castelletti, & Weber, 2007; Van den Belt, 2004). And even more so in case of drought.

The participatory principle is embraced by governmental bodies in water resource management (GlobalWaterPartnership, 2010; UN-Water, 2008). More specifically, the Water Framework Directive

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(Quevauviller, 2010; Soncini-Sessa et al., 2007) stimulates stakeholder participation in the river basin plans and creates tools for stakeholder participation. Although stakeholder participation is highly recommended and embraced by governmental bodies in water resources management, the actual implementation is difficult (Junier & Mostert, 2012). In the Netherlands, stakeholder participation in dealing with water scarcity is still absent.

The goal of this research is to reach the following design objective:

A process design for long term adaptive management for situations of temporary water scarcity in the Dutch socio- technological water system

In order to develop a process design I will answer the following research question:

How to analyse the Dutch socio-technical water system to design for a process to improve long term adaptive management of temporary water scarcity?

To enable me to answer this research question I use the following sub research questions:

1. How is the water system managed under normal circumstances? 2. How is the water system managed during periods of water scarcity? 3. What process design for dealing with water scarcity can contribute to the current water management system? 1.2 Research approach In order to develop a process design for long term adaptive management for situations of water scarcity in the Dutch socio-technological system a research approach is presented. The choice for the theories and methods are explained in the following sections. Especial attention is given to the relations between the theories.

1.2.1 Integrated Water Resource Management Managing situations of water scarcity involves the management of the resource - water. Integrated Water Resource Management (IWRM) is the approach for managing water resources. This approach is commonly accepted in the world. During the World Summit on Sustainable Development (WSSD) in Johannesburg in 2002 the IWRM approach was adopted by 104 countries, including the Netherlands (UN-Water, 2008). In the European The Global Water Partnership (GWP, 2000, p. 22), the global knowledge organization for IWRM has defined IWRM as:

“a process which promotes the co-ordinated development and management of water, land and related resources, in order to maximize the resultant economic and social welfare in an equitable manner without compromising the sustainability of vital ecosystems.”.

In pursuing IWRM there are three overriding criteria that should be taken into account (GWP, 2000, p. 29). The first criteria is Economic efficiency in water use. Water is a finite and vulnerable resource and because of the increasing demand upon it, it is necessary to use the water as efficient as possible. The second criteria is

Process design for situations of temporal water scarcity in Rhine-Estuary Drechtsteden 11/67 equity. Access to water of adequate quantity and quality is a basic right for all people. The third criteria is environmental and ecological sustainability. Water usage should not compromise the availability of water for future generations. The water cycle can regenerate fresh, usable water and the water resources should be managed in a way that this future use will be possible. The approach involves an integrated manner in coordinating water resources at different scales, across sectors and interests.

Originally IWRM was developed as an answer to sub-sector problems (Savenije & Van der Zaag, 2008). In the 1960s engineers would predict the level of water demand for individual projects and provide to the needs. Due to the increasing demand and the declining availability of fresh and usable water, problems began to arise. There was a lack of coordination between the engineers of the various projects and environmental consequences where ignored. In sub-sectors the interests are transparent and the consequences of the lack of supply are clear. Therefore, by creating coordination of all projects, water resources can be managed in a transparent and more efficient way. Fresh water has become scarcer and effects on the environment caused by pollution and mismanagement are on the rise. Savenije and Van der Zaag (2008) state that, ideally, in decision making, these different objectives would be integrated. Yet that is not always possible, therefore it is necessary to carefully make trade-offs and set priorities. Where in the 60s and 70s this was only a clear trade-off for example between water supply to irrigation or industry, nowadays it is much more complex, because many parties are involved, many interests should be met and the ambitions are higher while the availability of fresh and usable water is decreasing.

1.2.2 Adaptive management As pointed out in the research problem the Advisory Council for Transport, Public Works and Water Management recommended in their advice to the Dutch government to pursue a proactive way of dealing with uncertainties that due to climate change (Raad voor Verkeer en Waterstaat, 2009, p. 53). Pahl-Wostl (2008, p. 19) state that increasing awareness of the impacts of climate change has led to the insight that water management must become more flexible in order to deal with uncertainties and surprise.” In order to increase the adaptive capacity of water systems she recommends adaptive management. Pahl-Wostl defines adaptive management as “a systematic process for improving management policies and practices by learning from the outcomes of implemented management strategies” (Pahl-Wostl, 2008, p. 12). This new awareness led to an advice of the Advisory Council for Transport, Public Works and Water Management in the Netherlands. They recommend different features that support adaptive policy making in policy development for the Netherlands (Raad voor Verkeer en Waterstaat, 2009, p. 55):

 “using scenarios and other tools to identify and characterise uncertainties and vulnerabilities;  defining indicators and developing a monitoring system in order to flag up changes to the assumptions on which policy is based;  defining the points at which the revision of existing policy is triggered;  incorporating review points into the investigation-to-implementation process, so that adaptations may be made along the way;  anticipating change by developing standby measures for implementation in the event of the existing policy proving inadequate.”

Missing in this list of features recommended by the Advisory Council are stakeholder participation processes. Folke, Hahn, Olsson & Norberg (2005, p. 462) point out that “An important aspect of adaptive

Process design for situations of temporal water scarcity in Rhine-Estuary Drechtsteden 12/67 management is the usage of collaborative and participatory approaches”. Also Pahl-Wostl (2008, p. 19) states that an important requirement for adaptive management is the role of actor platforms and processes of social learning in multi-level governance regimes. In addition she strongly recommends to implement social learning cycles as an integral part of water management. Although implementing participatory approaches and good results in the long term are not easy to achieve. Folke et al. (2005, p. 462) describe a tendency for “scientists to do the science first or government governmental agencies to develop the agenda first, present it to the different groups, and incorporate these groups in already established frameworks”. The process has been underestimated and the attempts fail.

1.2.3 Socio-technological systems Management of water scarcity situations in the Netherlands can be characterised via a socio-technical system approach. De Bruijn and Herder (2009, p. 1) describe that ‘socio-technical systems involve physical technical elements and networks of interdependent actors’. The water system involves physical technical elements like sluices, inlets, pumping stations, pipes, groundwater reservoirs, rivers, canals, drinking water production facilities and waste water treatment plants. Managing water resources in situations of water scarcity involves many actors. The actors are water users like electricity companies, drinking water production companies, industries, navigation, households, etc. Water resources and water system are managed on different institutional levels, namely on river basin level, national level and regionally. Water users and ecosystems share the same water (Falkenmark & Rockström, 2004, p. 7). All the actors are directly or indirectly, interdependent and therefore it can be concluded that the system involves a network of interdependent actors. The analysis of the involved actors is part of the analysis of the water system.

1.2.4 Process management The characteristics of a socio-technical system involve a network of actors. De Bruijn and Ten Heuvelhof (2008, p. 35) state that, in a network, decisions are made in a process of interaction. This creates a shift from substance towards how the process of interaction takes place. Because the characteristics of a socio-technical system and the problems with regard to uncertainties in water management which are complex and interrelated, a solution cannot simply be found in one technological solution. Also because the problems are changing over time. Therefore these dynamic problems require a process design (de Bruijn et al., 2002, p. 18).

1.2.5 Case study Rhine-Estuary Drechtsteden Since it is claimed that there is no best system for governing water resources (Ostrom, 2010), the implementation of IWRM is unique for each situation and depends on the existing institutions and water systems. Although there is no blueprint available for each situation of water scarcity in every socio-technical system, a part of the goal and elements of the process design are generally applicable and therefore can be used to develop of a process design for a specific case study. Koppenjan and Groenewegen (2005) point out with regards to redesigning complex socio-technical systems to redesign not only the technical aspect, but to take into account the institutional perspective and to redesign the process as well. Therefore in this research a process design will be made for one case which will be reviewed from the three perspectives of the Technology-Institutions-Process approach. This approach is used in this research as a method of analysis. By using the TIP analysis the different elements that a redesign should involve are covered.

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The chosen case study is the Rhine-Estuary Drechtsteden region, because this region can be characterised as a socio-technical system. The area is located between sea and rivers in the delta of the Netherlands. The region is highly urbanised. Economic and spatial development are possible only when flood safety and fresh water supply are guaranteed (Programmateam Rijnmond-Drechtsteden, 2014a). For the Netherlands and particularly for this region the water demand will increase and will be important for economic development. Many different institutional boundaries are present in the Rhine-Estuary-Drechtsteden region: the national water policies and institutions play a role as well as five water boards, three drinking water companies, a province, over 40 municipalities and the Ministry of Infrastructure and the Environment (Programmateam Rijnmond-Drechtsteden, 2014a). Next to the many governmental agencies, also many stakeholders are present, for instance the agricultural companies in the Westland, industries in the port of and residents. The region is a sub programme of the Delta Programme (Programmateam Rijnmond- Drechtsteden, 2014a), because of the water challenges for the future and the importance for that region.

For the case study first an analysis will be made using the TIP analysis method (Koppenjan & Groenewegen, 2005). In order to be able to make a process design for situations of water scarcity, special attention is given to these situations and to the inquiry how the system will function during these circumstances. The last 50 years serious droughts in The Netherlands occurred in 1976 and 2003 (Ministerie van Infrastructuur en Milieu, 2004) and in 2010 a dry period occurred. Therefore first an analysis is provided of the normal state of the system in chapter 2. Chapter 3 will analyse the system during situations of water scarcity. In chapter 4 an answer will be given to the third sub research question: What process design for dealing with water scarcity can contribute to the current water management system?. In the case study different analyses are used. These analysis are presented making use of illustration, some of which I found in literature and others made by myself in order to get more insight in the system from a certain perspective (technological, institutional and process). The next chapters (2, 3 and 4) are organised in such a way that the running text is on the right hand page and illustrations with short explanations can be found on the left hand page. The illustrations with explanations are showed in a blue box. In chapter 5 the conclusion and recommendations are presented by given an answer to the research question: How to analyse the Dutch socio-technical water system to design for a process to improve long term adaptive management of temporary water scarcity?. In chapter 6 a reflection on this research is given.

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Figure 1-1: Rhine-Meuse Delta (Delta Alliance, 2009)

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2 Rhine-Estuary Drechtsteden Analysis of Technology, Institutions & Process during normal circumstances

Rhine-Estuary Drechtsteden region is chosen as a case study for the design of a process for long term adaptive management for situations of water scarcity in socio-technological systems. The region is situated at the mouth of the rivers Rhine and Meuse and is therefore a natural entrance to a large part of Europe. This placement between the sea () and in the middle of important rivers was of major importance for the economic and social development of the area. Nowadays it is a highly urbanised region with over 1.6 million residents. The Rotterdam harbour and the inland harbours of , Moerdijk, and form a cluster of harbours. The Rotterdam Harbour is the largest harbour of Europe and an important hub and industrial cluster. The direct related added value was €12,886 million in 2012, of which €6,307 million with the hub function (Port of Rotterdam, 2014). The north-western part of the region forms an important area of agricultural production. This, so-called Greenport Westland-Oostland which includes the municipalities of , , Midden-Delfland, , Westland and covers some 4500 ha, roughly half of the Dutch greenhouse farming acreage. The gross value added (GVA) of the Greenport Westland-Oostland is €2 billion a year and provides employment to 50,000 people (Taskforce DGWO, 2006). The Rhine-Estuary Drechtsteden region is thus of great economic importance for the Netherlands.

In this chapter the region will be analysed from three perspectives: Technology, Institutions and Process, because as pointed out in the methodology chapter, a redesign of a socio-technical system should involve these three perspectives. In order to be able to make a redesign involving technology, institutional and process aspects, it is necessary to have insight in the current situation of Rhine-Estuary Drechtsteden from these three perspectives. In this chapter the current situation under normal circumstances will be described and in the next chapter the case will be analysed for situations of water scarcity.

First a technological analysis is made. Due to the fact that the water system consists of many different aspects and elements and because many different analytical tools are possible, a general analysis is made concerning the water system in Rhine-Estuary Drechtsteden region with a special focus to the water supply.

To make a process design of how to deal with water scarcity situations, it is also necessary to understand the functioning of system under normal circumstances. This is necessary since management not only takes place during water scarcity situations, but is embedded within the more generic management of the water system under ‘normal’ circumstances. In the second section an institutional analysis is made by using the four layer model of Williamson (1998) adapted by Koppenjan and Groenewegen (2005). This analysis involves the institutions on different levels and shapes the interactions by actors in the system. The last section analyses the system from a process perspective by describing several different continuing processes which are imbedded in the policy cycles in the Netherlands and processes that have started after important incidents in the area of water management in the Netherlands.

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Water system of Rhine-Estuary Drechtsteden

Noordzeekanaal Oranjesluizen

Spuitkoker Bodegraven Oude Rijn Gemaal de ARK aanvoerder

Vliet

Gemaal Dolk

Waaiersluis

Rotte Hollandse IJssel Noordergemaal Schie el ss Pr Beatrix sluize3n IJ 3 m /s 23 m3/s Amerongen Driel 3 Prinses Irenesluizen 273 m /s 3 1100 m /s Gemaal Vreeswijk Hagestein 3

Nieuwe Maas Koekoek 3 m3/s 22 m /s

l a

North Hartelkanaal ARK a

n a

Sea k

h

3 c 780 m /s s

Noord n 300 m3/s

e d

3 r

360 m /s e

Bernisse n

Waal

n a

Prins Bernhardsluizen P 10 m3/s Bovenrijn 1090 m3/s 1100 m3/s Lobith Berenplaat Dordtse Kil 3 1400 m /s Nieuwe Haringvlietsluizen Biesbosch

3 50 m /s Bergsche Maas Volkeraksluizen 3 3 130 m /s 30 m /s

Legend Maas Rhine-Estuary Drechtsteden St. Pieter Waters – main water system 80 m3/s Waters – regional water system Sluice Weir Inlet Pumping station intermediate storage (boezemgemaal) Main pumping station (hoofdgemaal) Drinking water abstraction location Discharge location

Figure 2-2: Water system of Rhine-Estuary Drechtsteden. The figure is created (see Appendix 1) based on the main water system map of (Spijker, Brink, Graaf, & Coonen, 2013) in combination with information about the main regional waters and water works of Rhine-Estuary-Drechtsteden region (Geudens, 2012; Hoogheemraadschap van , 2005a; Krekt, Eshuis, Gijselman, Berg, & Stalenberg, 2011; Provincie Zuid-Holland, 2013b), important drinking water inlets (Geudens, 2012) and discharge locations of industries (Kallen, Goede, & Boderie, 2008).

Figure 2-2 shows Rhine-Estuary-Drechtsteden region from the perspective of the inflowing waterways, the Rhine and the Meuse. The water of the Rhine is very important for the region and is used to flush the regional water system and maintain the water levels throughout the region. At Lobith the Rhine enters the Netherlands. In normal circumstances the discharge of the Rhine at Lobith is between 1400 m3/s and 1800 m3/s. The main water system is schematically shown with the blue lines and the larger regional waters with black lines. Within the Rhine-Estuary region the waterways are coming together again and flow via the New Waterway into the North Sea.

The Rhine-Estuary Drechtsteden region has many pumping stations, abstraction and discharge locations. Only the main points are shown in figure 2-2. The main water users of these abstraction and discharge locations are drinking water production companies, waste water treatment companies, electricity producers and large industries. Another important group of water users is the agricultural sector in the northern part of the region. They depend on the water level in regional water system. Greenhouses store rainwater in basins and are also using water of the regional water system for irrigation purposes. The quality of the regional water system is managed by flushing the water system using the inflowing water from the main water system.

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2.1 Technological analysis In the Netherlands the water system is characterised by human interventions during the past centuries. In peat and clay areas the continuous lowering of the groundwater table causes irreversible subsidence and needs to be controlled (Huisman, 2004). Furthermore, man-made dikes and waterworks protect the lower areas against flooding and salinization. The Rhine-Estuary Drechtsteden region is characterized by deep polders. Figure 2-2 shows the water system of Rhine-Estuary Drechtsteden. The lowest point in the region is the , at 7 metres below sea level (Krekt et al., 2011). Polders are defined as lower laid areas in comparison with the surrounding natural water courses, where the water levels are artificially managed (Huisman, 2004). Pumping stations take the water from the polders to the intermediate storage areas (boezem). A vulnerability of the areas below sea level is that an upward seepage flow in the polder will occur, due to differences in water levels inside and outside polders. In order to have good conditions for agriculture and horticulture it is essential to avoid salinization of the soil. Normally saline seepage water is flushed to the sea by flushing the regional water with fresh water from surplus precipitation and water from the Rhine river. Maintaining the water levels in the regional water system is therefore important for a good functioning ecosystem. Surface water of the branches of the Rhine and Meuse is also used for other purposes, like cooling water for electricity production and process water for large industries. Most of the industries that use surface water as a resource have their own intake and discharge location.

The main resource for drinking water in this part of the Netherlands is surface water, because brackish groundwater due to the seepage flow. Drinking water production companies use surface water and, depending on the abstraction locations, naturally clean water via different types of infiltration processes. The inlets are scattered over the area in the Biesbosch, Berenplaat, Haringvliet, Afgedamde Meuse, and in the river banks of the Lek. For instance, the water from the Meuse is first transported to the dunes by pipes and then purified by natural infiltration processes in the dune area. This process creates a natural reservoir and serves as a buffer in order to guarantee continuous supply of drinking water. The abstraction locations and inlets are shown in the map in figure 2-2. Normally the abstraction locations are continuously in process, but by using several buffers the intake can be temporarily postponed in case of bad quality at the intake. So even when the intake of raw water is temporarily impossible, the supply of drinking water to households can still be continued.

Keeping the water level at a certain point is important for different functions. For river navigation a stable water level is necessary. Especially in this area, which forms the main entry for the Dutch inland waterways, navigation is an important function. Next to the Port of Rotterdam, also in Drechtsteden region, there are many important inland ports. Situated in the ports are industries which depend on the Rhine not only for the transport by water, but also for the availability of fresh water for different uses, like cooling water and process water. Due to this location in the delta - between rivers and sea – flood safety is an important guarantee for the economic and social functioning of the region.

In the Netherlands there is a system of waterworks and dikes that protect the land against flooding. The land is compartmentalised by dikes, which are called dike rings. The safety standard for the main dike rings vary between 1/2000 and 1/10000 years. The Minister of Infrastructure and The Environment decided that people working and living behind the dikes have the right to a basic standard for water safety (Programmateam Rijnmond-Drechtsteden, 2014b, p. 7). These norms will be sharpened in the future, because for Rhine-Estuary Drechtsteden it is expected that there will be an increasing risk of flooding

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Future strategies on water safety

Figure 2-3: Advice on future development in Rhine-Estuary Drechtsteden on water safety by (Programmateam Rijnmond-Drechtsteden, 2014b, p. 7)

The Programme team of Rhine-Estuary Drechtsteden has given an advice for the future development on water safety in the region (Programmateam Rijnmond-Drechtsteden, 2014b). In this advice the Program Team have indicated different types of strategies depending on the character of these specific areas, because there are huge differences between them. Some parts are highly urbanised and others are rural lands with mainly greenhouses. These different aspects are reflected in different strategies. The first is the Strong Urban Dikes strategy (orange with the dikes shown in black lines). This strategy is applied in the urban areas and the future development is focused on the water ways. The second strategy is Robust Sea Clay Islands (light green with in the middle with dots) and the development strategy is described as ‘room for development’. The third strategy is Future adaptive river dikes (the little turquoise bounded rivers with green at the sides). This strategy has to create flexibility for the future. The last strategy More Room for the River (turquoise bounded rivers with green parts within) is a powerful combination of dike improvements and river widening. These four strategies: Strong Urban Dikes, Robust Sea Clay Islands, Future adaptive river dikes and More Room for the River together form the strategy on water safety for Rhine-Estuary Drechtsteden.

Process design for situations of temporal water scarcity in Rhine-Estuary Drechtsteden 19/67 around year 2100 based on estimations of the effects of climate change. In this area it is also expected that the risk of damage and casualties will increase, due to increasing economic development and residents. The main approach in this region is on preventive measurements. Many areas are situated so low, that during a flood they will be submerged very quickly and deeply. A flood will therefore lead to very large disruptions and long recovery times. The Programme team for Rhine-Estuary Drechtsteden (2014b, p. 6) advises that future developments for Rhine-Estuary on water safety remain focused on preventing flooding by means of a combination of dikes, storm surge barriers and river widening projects as a basis. This can also be seen on the map in figure 2-3. The areas that aren’t protected by dikes are also interesting. Especially in the region of Rotterdam and Dordrecht housing and industries are built in areas without dike protection. An estimated 64,000 people are living outside protected areas. For these areas the storm surge protection barriers are of particular importance.

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Formal chart of actor relations

European Union

Ministry of Infrastructure and Environment

LCW Rijkswaterstaat

Province of South-Holland Interprovinciaal Overleg Water users Local residents Elektricity producers Unie van waterschappen Water boards Industries port of R’ Other industries HH Delfland Navigation Drinking water Fishery HH Schieland en companies Water recreant Green houses Dunea HH van Rijnland Agriculture Oasen Horticulture WS Hollandse Delta Evides Floriculture Nature managers WS Rivierenland Other water users

Municipalities Bernisse Rotterdam Port of Rotterdam Bergambacht Binnenmaas Barendrecht Lanslingerland Capelle a/d IJssel Oud-Beijerland Midden-Delfland Greenport Westland- Cromstrijen Waddinxveen Dordrecht Delft Schiedam Westland Oostland Hendrik-Ido-Ambacht Goeree-Overflakkee Zuidplas Drechtraad Gouda Strijen Vlaardingen Zwijndrecht Korendijk Krimpen a/d IJssel

Safety regions Haaglanden Hollands Midden Rotterdam-Rijnmond Zuid-Holland Zuid

Legend

Regulatory relation Representative relation Hierarchical or ownership relation General influence relation

Figure 2-4: Formal chart of actor relations

The formal chart shows the formal relations and institutions that exist between the actors in the Rhine- Estuary. The different relations which are displayed in the formal chart are regulatory relations. These relations are represented by the purple arrows going from the regulator towards the actor that is being regulated. The representative relations are shown by green arrows. The Hierarchical / ownership relation is shown with a blue arrow. The owner has the dotted end of the arrow. The yellow arrows are relations of general influence.

This picture has been simplified in order to be understandable. Therefore all the different municipalities, water boards and safety regions are placed in a box with the others. The same has been done for the water users.

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2.2 Institutional analysis In order to answer the sub-research question: How is the water system managed under normal circumstances? first an overview is given of the actors in Rhine-Estuary Drechtsteden. In figure 2-4 are the actors mapped and are relations between the actors shown. In their advice on the Dutch Water governance the OECD has mapped the institutional setting for water quality management (OECD, 2014). They have indicated the main actors: the European Union, the Ministry of Infrastructure and the Environment, the National Water Authority (In Dutch: Rijkswaterstaat) and regional water authorities. The European Union and the Water Framework Directive together have a regulatory role. The Ministry of Infrastructure and the Environment also has a regulatory role, in addition to strategic planning. The National Water Authority is responsible for the operational management of the main water system, which includes the main rivers and inland waterways. The main water system is financed via the Ministry of Infrastructure and the Environment. The operational management for regional water systems is the responsibility of the regional water authorities who are regulated and financed by a separate tax system. In the Rhine-Estuary Drechtsteden the following regional water authorities are responsible: Hoogheemraadschap Delfland, Hoogheemraadschap Schieland en Krimpenerwaard, Waterschap Hollandse Delta, Waterschap Rivierenland and Hoogheemraadschap van Rijnland.

Other actors that were indicated by the OECD on the institutional map of the Netherlands (OECD, 2014) are the Provinces and Municipalities. The provinces are responsible for regulating ground water levels and the operational management. The Provinces are financed separately. The region of Rhine-Estuary Drechtsteden falls within Province Zuid-Holland. In the advice of the Delta Commission the Province becomes overall responsible for strategic planning in the future. Their advice is that Province Zuid-Holland will set up a standard for water supply in the Provincial Water Plan (Programmateam Rijnmond- Drechtsteden, 2014b, p. 23). Municipalities are responsible for operational & strategic urban water management. In the Rhine-Estuary Drechtsteden there are 36 responsible municipalities. The cities Albrandswaard, Dordrecht, Hendrik-Ido-Ambacht, Papendrecht, Sliedrecht and Zwijndrecht have formed a regional authority: the Drechtraad. Barendrecht, Lansingerland, Midden-Delfland, Waddinxveen, Westland and Zuidplas are working together in Greenport Westland-Oostland. These municipalities form an important agri-, flori- and horticultural region.

The OECD (OECD, 2014) identifies different advisory groups. These can be roughly divided in a group that focusses on strategic planning and advice: the Delta Commissioner, Advisory Committee on Water, Advisory Committee on Legal Water and Public Work Affairs, the Council for the Environment and Infrastructure. A second of data gathering and sharing knowledge on ecological status can be identified: the Environmental Assessment Agency (PBL), Royal Netherlands Meteorological Institute (KNMI) and various other research centres and think tanks. The International Water Commissions (Rhine, Meuse and ) is active in both functions. Next to these the OECD have also listed various interest and lobby groups: the Association of Regional Water Authorities (UvW), the Association of Dutch Provinces (IPO), the Association of Netherlands Municipalities (VNG), nature and environmental NGOs, Agricultural organisations, Consumer organisations, the Confederation of Netherlands Industry and Employers (VNO- NCW), the Association of Dutch Water Companies (VEWIN), the Organisation of Entrepreneurs (MKB). Specifically for the Rhine-Estuary Drechtsteden also the Greenport Westland-Oostland and Platform Zoetwaterregio West-Nederland are important interest groups.

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Four layer model of Williamson applied

Layer 1 – interactions by actors

Port of Rotterdam Electricity producers Drinking water companies Greenport Navigation Water boards Westland-Oostland Municipalities Interprovinciaal overleg (IPO) Unie van waterschappen (UvW) Safety regions Fishery EU Nature managers Ministry of I&E Rijkswaterstaat

L

Province of Zuid-Holland Industries Agricultural companies Think tanks VEWIN s l

o e

w v

VNO-NCW MKB e

Platform Zoetwaterregio e l

r Research centres

r

l

West-Nederland e Delta Commissioner ICPR e

v

KNMI Recreants w

e o

l l

s Residents

International Water Commission Meuse Nature and environmental NGOs s

i

Advisory Council n e

f p

l

u a

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h s

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c &

e

s

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Layer 2 – institutional arrangements n

e i

v a

International Comission for r

e t

l s

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Ruimte voor de Rivier Nationaal Bestuursakkoord Water Protection of the Rhine (ICPR) n

IPO p o

m

c

e

Programme team for Rhine- s

Platform Zoetwaterregio West-Nederland l

UvW n e

VEWIN t v Estuary Drechtsteden

National Water o

e l

f

Safety regions

r

Management Plan h e Greenport Westland-Oostland Regional Water Management Plan i

g h

h

Provincial Water Plan g i Water Plan Municipality e

National Water Plan r H

l

e

v

e

l Layer 3 – Formal institutions s Water framework directive Water Law Waterbesluit

Layer 4 – Informal institutions Little public awareness of risk Not shifting water problems Development towards adaptive policy making on water scarcity Effect of climate change on water management Integrated approach Little public awareness of Participation of stakeholders in water management risks on flooding

Figure 2-5 Four layer model of Williamson applied for Rhine-Estuary Drechtsteden

In Figure 2.5 an overview has been provided of the four layer model for the Rhine-Estuary Drechtsteden region for water management issues. The first layer is the level of interactions by actors. The important actors for Rhine-Estuary Drechtsteden are the water managers on different levels (the Ministry of I&E, the National Water Authority, Regional Water Authorities, the Province Zuid-Holland and municipalities) and large water users (drinking water companies, shipping, residents, fishery, electricity producers, large scale industries and agricultural companies). The interactions between these different actors are shaped and constrained by institutions. The second level consists of institutional arrangements. These arrangements are for instance contracts, covenants, alliances and (public-private) partnerships. The third level consists of formal institutions, which are formal rules, laws and regulations. The most important ones are the European Water Framework Directive and the Dutch Water Law with the more practical Water Agreement. The fourth level of are informal institutions such as cultures, values and norms.

(Koppenjan & Groenewegen, 2005, p. 247) have described that the model also specifies the relations between the levels and institutions: “The higher level constrains and shapes the lower ones and in which lower levels have influence on the development of higher ones”. These vertical relations are shown in the arrows on the right of the levels.

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Many individual actors are involved in the case of Rhine-Estuary Drechtsteden. First of all over 1.6 million residents are living in this area. Most of them have an individual household connection to the drinking water distribution system and the sewer system. They are using drinking water for many different purposes like cooking, cleaning, irrigation of their gardens, etc. In the Greenport Westland-Oostland area many agricultural companies are situated. For their water supply they use a mix of resources from rain water basins, groundwater and surface water. Fresh water is also used as process water by electricity producers and large industries.

Another group of individual users are the shipping companies and the port authorities, like the Port of Rotterdam. As described in the previous section about the water system, the Rhine-Estuary Drechtsteden serves as a gateway to the inland waterways. And finally, next to the commercial use of the waterways, the waters in the area are also used for recreational purposes.

After a review of listed actors (see appendix 3 for the list of actors) involved in the water system of the Rhine-Estuary Drechtsteden, it can be concluded that many public and private parties are involved. Not only many water users, but also many water managers are involved. Koppenjan & Groenewegen (2005, p. 244) point out that technological systems are not auto-executive. Instead, the technical systems require ‘rules of the game’ to guide and coordinate the behaviour of the different actors. Especially a water system like the Rhine-Estuary Drechtsteden that can be characterised as a man-made environment (Huisman, 2004, p. 33). A set of “rules of the game” that regulate interaction between actors involved in the functioning of the system, can be called institutions or institutional arrangements (Koppenjan & Groenewegen, 2005, p. 244). In order to analyse the different institutions of the Rhine-Estuary Drechtsteden region the four layer model of Williamson (1998) adapted by Koppenjan & Groenewegen (2005, p. 246) is used. They adapted the model with regard to the functioning of complex (technological) systems. On the left page a box shows and explains the four layer model applied for the Rhine-Estuary Drechtsteden (figure 2-5). Next to the individual actors and their interactions the four layer model consists of the levels: Informal institutions, Formal institutions, and Institutional arrangements.

The layer of informal institutions consists of cultures, values, norms and attitudes. These informal rules of the game have an important influence on how actors will interact with each other. These informal rules are implicit most of the time. For water management there are values and approaches which are accepted and recommended worldwide. These approaches have also been adopted in the Netherlands within the formal institutions (in the Dutch Water Law ("Waterwet," 2009) and agreed upon in institutional arrangements for example in the water plans. Applying and using them in daily interactions can be more difficult, but they are the official norm. The most important approaches are:

 not shifting water problems to another area (Ministerie van Infrastructuur en Milieu, 2009)  integrated approach (Ministerie van Infrastructuur en Milieu, 2009)  participation of stakeholders (Ministerie van Infrastructuur en Milieu, 2009)  development towards adaptive policy making (Ministerie van Infrastructuur en Milieu, 2009; Raad voor Verkeer en Waterstaat, 2009)  recognition of effect of climate change on water management (Raad voor Verkeer en Waterstaat, 2009)

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Structure of water plans

Water Plan Municipality

Water Management Plan Waterboard

Provincial Water Plan

National Water National Management Plan Water Plan

River Basin Management Plan

2010 2015 2020 t

Figure 2-6: Visualisation of the planning structure in the Netherlands is based on Huisman (2004, p. 82)

The visualisation above shows the structure of the Water Plans in the Netherlands. The National Water Plan is determined by the Ministry of Infrastructure and Environment. The National Water Authority is responsible for the National Water Management Plan. The National Water Plan is the basis for the Provincial Water Plan. The National and Provincial water plans are on a strategic level. Also the municipalities are obliged to make a Water Plan for their water system of the sewer system and the local water system. The Water Boards are responsible for a water management plan for their region. The Water Plans of the Water Boards and municipalities are operational. For the rivers Rhine, Meuse and Scheldt plans are made which are part of the River Basin Management Plans of the European Union. All these plans are vertically coordinated with each other. Three successive policy cycles are shown in figure 3-4 for three policy cycles of five years. The policy cycles are synchronised and the plans applies for the same time spam. The National Water Plan forms the main input for the regional water plans. The National Water Plan is written in a way that it can be implemented by the development of the regional plans. The water boards, provinces and municipalities

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Formal institutions can be described as formal rules of the game. These determine the legal positions of the parties and the mechanisms available to coordinate transactions. Examples specific for this case are the Water Law and the European Water Framework Directive is also an important regulative institution.

The institutional arrangements are designed to coordinate specific transactions among multiple actors and at the network level arrangements also facilitate the functioning of networks (Koppenjan & Groenewegen, 2005). Examples for the Rhine-Estuary Drechtsteden are the Greenport Westland-Oostland, Platform Zoetwaterregio West-Nederland and Ruimte voor de Rivier and the Nationaal Bestuursakkoord Water (NBW), national policy agreement water. The NBW is an agreement between the Dutch government, the provinces, the association of municipalities (VNG) and the association of water boards (UWV) (Rijksoverheid, 2008). Agreements are made in the NBW-actueel in order to stimulate the collaboration between parties on the water challenges in the Netherlands. The guidelines for integrated water management are institutionally determined and implemented by the Water Plans. The National Water Plan has been created for the Netherlands for a period of 5 years. The Provinces have applied the concepts of the National Water Plan in their Provincial Water Plan and set goals for the next five years. Whereas the Provincial Water Plan is more abstract, the Water Management Plan is a concrete plan of the water boards for their specific region. The policy cycles of the water plans are visualised via de ‘vertical’ flows between the different cycles in figure 2-6.

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Visual on different processes of change

Delta Decisions

Room for the River Adaptive Policy making

EU

Dutch parliament

Province Zuid-Holland

Water boards

municipalities

t

Figure2-7: Visual on different policy processes of change

This figure illustrates the different processes that are influencing changes in policymaking. In this illustration the normal policy cycles of elections of the European, national, provincial, municipalities and water boards are shown. Normally the elections take place every four years. They are presented by the different lines. For the Rhine-Estuary Drechtsteden case, there are elections of the European Parliament, Dutch Parliament, Province Zuid-Holland, the three water boards (Hoogheemraadschap Rijnland, Hoogheemraadschap van Delfland and Waterschap Hollandse Delta) and many municipalities. Next to the normal policy cycles which are influenced by elections, two important incidents are indicated which have a huge influence on policy making for water issues. The first is the flood disaster of 1953. This has led to the for the protection against flooding by the sea. In 2008 a second advice was given by the Delta Commission not only on water safety but also on fresh water. Another important incentive for a change in policy making was the one given by the Advisory Council (Raad voor Verkeer en Waterstaat, 2009) on adaptive management as an answer for dealing with climate change.

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2.3 Process analysis In order to understand and be able to design a process design for adaptive management it is necessary to analyse the current incentives that have led to changing policies or for starting a process to change policies. These different policy cycles or developments are visualised and explained in the block on the left page (figure 2-7).

After the flood disaster in 1953 a national Delta plan was made to protect the Netherlands against floods and to prevent a new disaster. This plan included several Delta Works and led to a change in policy making on water safety. In 2008 an important advice of the Second Delta Commission was given, after the flood of New Orleans in 2005 (Programmateam Rijnmond-Drechtsteden, 2014b). A major reason for the second advice was to be prepared for the future and be able to deal with climate change (Deltacommissie, 2008). This commission not only advised on the problems with regard to water safety, but also about fresh water supply in the Netherlands. For the region of the Rhine-Estuary Drechtsteden specific recommendations were made for improvements (Programmateam Rijnmond-Drechtsteden, 2014b, p. 4). These recommendations were the reason for starting up a programme team for Rhine-Estuary Drechtsteden. In June 2014 the Programme team of Rhine-Estuary Drechtsteden delivered an advice on water safety and fresh water supply in this region. Development towards a more robust fresh water supply, innovation to improve more efficient water use and prevention of salinization are the main elements of the recommendation with regard to fresh water supply (Programmateam Rijnmond-Drechtsteden, 2014b, pp. 28-31).

Another important process that has started is the development towards a more long term adaptive policy making within water management. The Advisory Council for Transport and Water Management and their advice on proactive adaptation to climate change (Raad voor Verkeer en Waterstaat, 2009) have stimulated towards implementing and developing adaptive policy making.

In the Netherlands there is a separate water policy cycles in place with a partly separate tax system for water. The influence of policy making is relatively less influenced by short term decision making in comparison with other sectors like education and health care. In the Netherlands there are elections on different policy levels, namely for the European Parliament, Dutch parliament, the provinces, municipalities and for the water boards. These elections take place every 4 years. An important notion is that the duration of the four year term is relatively short compared to the long term development processes in water management.

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Figure 3-1: Rhine watershed (ICPR, 2013, p. 30)

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3 Rhine-Estuary Drechtsteden in situations of water scarcity Analysis of Technology, Institutions & Process

Normally there is enough water in the Netherlands to fulfil all needs. The Rhine, as the major source of fresh water resource for this region also forms a risk. Failure of a major supply pumping station or inlet can lead to a blocked supply of fresh water. Also environmental problems which affect water quality of major fresh water supplies can have a negative impact on the water supply. But the major reason for a situation of water scarcity is an extreme and lasting period of drought. Droughts affect the total water system in many different areas and in many different ways, because next to a limited supply of Rhine water, also the demand for water use is higher during droughts.

Over the past years a shift has been noticed in the discharge pattern of the Rhine over het hydrological year. Recording to the International Commission for the Protection of the Rhine (ICPR) (Gerlinger, 2009, p. 5) different independent investigations have shown that climate change is already detectable in temperature and precipitation monitoring of data in the Rhine basin. The average discharge over the hydrological year stays more or less the same, but there will be a shift between the annual seasons. The runoff will shift from the hydrological summer to the winter (Parmet, Kwadijk, & Raak, 1995). The shift in the discharge pattern shows that the Rhine is slowly changing from a melting water river towards a more rain-fed river. So the risk of an extreme low discharge of the Rhine will increase in the future in the spring and summer due to the changing behaviour of the Rhine. For the

The Rhine is for Rhine-Estuary Drechtsteden the most important water resource. A too little Rhine runoff can lead to situations of water scarcity in this area. In this chapter the situations of water scarcity will be analysed by using the TIP-analysis method as was used in the previous chapter. First in the technological analysis several aspects of water scarcity situations are chosen to be described to find the main problems for which a process design should be made. These involve the impact of water scarcity, which problems should the process design solve and which goal for a process design should be developed. The institutional analysis point out several important institutions for water scarcity situations. The last section is the process analysis. The process analysis is an analysis of the process that is formally in place for situations of water scarcity in Rhine-Estuary Drechtsteden.

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Impact of water scarcity

‘non - irreversible’ ‘irreversible’ During PLUS water Yield start-up Irreversible scarcity

Figure 3-2: Temporal impact

The impact of water scarcity is shown on a temporal impact scale (figure 3-2) and on a temporal- geographical scale (figure 3-3). These pictures are based on a risk analysis of the different water use categories, which are themselves based on the sequence of priority of water distribution during scarcity. These water use categories are shown with illustrations with the name of the category of

water users. For the temporal scale roughly four impact differences can be distinguished: during water scarcity, during water scarcity plus start-up, yield and irreversible impact. For the geographical scale different scales have been used based on boundaries that can be made logically within the

water system.

Europe [± 10.180.000 km2]

Rhine [± 185.000 km2]

The Netherlands [± 41.500 km2]

Meuse [± 35.000 km2]

Rhine-Estuary-Drechtsteden [± 750 km2] During PLUS water Yield Irreversible start-up HIGH scarcity

Dike ring [± 2 – 2.250 km2]

Polder [± 250 km2]

Cooperative / Neighbours [± 25 km2]

Farm / parcell [± 0,01 - 2 km2]

Figure 3-3: Temporal impact in relation to geographical impact

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3.1 Technology In order to get insight into the effect of water scarcity situations for different water uses, the impact of the effects is analysed via a risk analysis (Appendix 2). The results of the risk analysis are shown divided in the geographical and temporal impacts of the effect of water scarcity situations.

The scale that is used to map temporal impacts can be roughly divided in four categories. The first is impact ‘during water scarcity’. This involves for example the navigation function of the waterways. Below a certain water level in the Rhine the National Water Authority or Regional Water authorities can set shipping limitations for waterways. When the water levels in the water system of the Rhine-Estuary-Drechtsteden are sufficiently high, the ships can navigate them again. The impact of the income loss is therefore limited to the period ‘during water scarcity’. At the second category named “during water scarcity PLUS start-up” the system is damaged due to the water scarcity event and can’t start directly with continuing the service. Therefore the temporal impact of water scarcity event is not only during the event of water scarcity. The system needs to start-up again before it can perform on the same level as before the period of water scarcity. For agricultural companies a period of water scarcity can result in crop failure. The investments in the yield are lost. The effect can vary strongly between agricultural companies, for example for tree nurseries compared to vegetables, such as a lettuce yield. At the other side of the temporal impact, irreversible effects can be found. Irreversible damages to nature can result in subsidence which can damage even infrastructure and housing.

The different categories are also plotted on the geographical impact of the drought by adding a geographical scale (see figure 3-3). The figures 3-2 and 3-3 show that the impact of the risk and the carrier of the risks are sometimes limited to individual water users, like the industries using water for cooling and other industrial purposes or agricultural companies. On the other hand, categories that are high in the sequence of priority, like water safety, drinking water, electricity production, and subsidence, have an impact that exceeds those of the immediate users; those categories involve many different stakeholders. For example it is calculated that the potential maximum total loss caused by subsidence can be as much as € 40 billion in the Netherlands (Klijn, Velzen, Maat, & Hunink, 2012).

In the evaluations of the drought in the summer of 2003 the biggest problems were the discharge of cooling water and flood safety. Cooling water couldn’t be discharged anymore because of the water temperature of the surface waters. During this period the regulations for discharging cooling water for electricity production facilities were temporarily eased. The breakthrough of the peat dike at Wilnis introduced a new risk for the water authorities (Klijn et al., 2012; Vliet, Bruin, Vries, & Zwanenburg, 2013) of flood safety; the result of the drying out of a peat dike. The damage for agriculture and nature was limited, because the rainfall deficit was not extreme, 230 mm, and because the deficit took place at a relatively late moment in the growing season (Ministerie van Infrastructuur en Milieu, 2004).

The water use within the Rhine-Estuary Drechtsteden region can be divided across the functions that have been identified. Agricultural water use is around 15% of the total demand. Another 15% is used for drinking water and industrial water for processes. Over 15% is used for preventing salinization and maintaining the water quality on an acceptable level (Platform Zoetwater West Nederland, 2011, p. 4). The main water

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Power – interest diagram

HIGH Port of Rotterdam LCW Greenport Westland-Oostland Water boards

Rijkswaterstaat Agricultural companies Elektricity producers

Nature managers

Drinking water companies

Fishery Interest

Ministry of I&E

Industries Safety regions Navigation - inlands

Province of Zuid-Holland

Consultancy Unie van waterschappen

Municipalities LOW Power Power HIGH

Interprovinciaal overleg

Interest

Zeetransport LOW

Figure 3-4: Actors on a power – interest diagram

The actors of the Rhine-Estuary Drechtsteden are placed in a power – interest diagram. On the horizontal axe the actors are placed on a low to high power scale. This power represents the influence an actor has on the subject of water scarcity in Rhine-Estuary Drechtsteden. The vertical axe represents the interest the different actors has dealing with water scarcity. In figure 4-3 there is made a distinction between water users ( ) and the water managers ( ).

Process design for situations of temporal water scarcity in Rhine-Estuary Drechtsteden 33/67 demand (over 50%) for the region Rhine-Estuary Drechtsteden is used for flood safety and preventing irreversible damages to the ecosystem by maintaining sufficient surface and ground water levels. 3.2 Institutions

3.2.1 Interactions between actors In order to get insight in how the Dutch water system works during water scarcity it is necessary to get insight in the interactions between actors. The interactions of the various actors is partially determined by the interest they have in the subject and the actual power that the actors have with regard to the subject. Therefore a power – interest diagram is been made. In figure 3-4 the actors are placed on a power – interest scale. The different water users like the nature managers, fishery, and agricultural companies have high interests, but relatively low powers. They are obliged to follow the regulations. During water scarcity the water users are restricted in their water supply, while especially then water demand of water users is expected to increase due to an increase in evaporation. The authorities are managing the available fresh water resources. The safety regions are important for enforcement of the regulations set by the national water authority, water boards, municipalities and provinces.

3.2.2 LCW & regional drought commissions When there is a situation of water scarcity in the Netherlands, the National coordination commission for water distribution (LCW) decides on the water distribution of the available fresh water resources of the main waters (HKV, 2004). Formally the LCW does not have a decision making role, they merely advise the National Water Authority. The director-general of the National Water Authority decides whether he will take over and implement the advice. The Commission consists of representatives from the Ministry of Infrastructure and Environment, regional departments of the National Water Authority, Association of Regional Water Authorities (UvW) and Association of Dutch Provinces (IPO).

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Water scarcity

Normal situation Indication water shortages Actual water shortages (Potential) Crisis · Warning water · Actual low discharges · Actual water shortages · National reduced discharge below · Threatening regional · National water shortages water supply for criterion water shortages in category 3 and 4 of category 3 and 4 of · threateningly low sequence of priority sequence of priority discharge · Regional water shortages · Regional water · Regional water in category 1 and 2 supply for category 1 shortages expected sequence of priority and 2 of sequence of priority in danger

Stage 1 Stage 2 Stage 3 Stage 4

Figure 3-5: Four stages of water scarcity based on Handreiking watertekort en warmte (HKV, 2004)

For the water system in the Netherlands there are four stages of water scarcity indicated. The four

stages are shown in figure 3-5. Stage 1 is the normal situation. In stage 2 there is an indication of water shortages. In stage 3 there are actual water shortages and in stage 4 is the system in crisis. In

figure 3-5 are also the criteria described. The National Water Authority is responsible for monitoring and deciding on the status of a water scarcity situation.

When the water system is in a stage of water scarcity the Sequence of Priority will be determine the

distribution of available fresh water. The sequence of priority on water distribution during water scarcity is set in the Dutch Water Law. The first category has the highest priority to be fulfilled during situations of water scarcity. Within category 1 three priorities are distinguished. The second category Public services also distinguishes two sub priorities. When enough water for category 1 can be supplied, Drinking water supply is the following priority to be fulfilled. For the third and fourth categories there is no difference be made for the subcategories. This should be done regionally, but

is not set within the water law. An overview of the national sequence of priority on available fresh water distribution is shown in figure 3-6.

Category 1 Category 2 Category 3 Category 4

SAFETY AND PREVENTION OF PUBLIC SERVICES SMALL SCALE HIGH END USE OTHER INTERESTS IRREPARABLE DAMAGE - Temporarily irrigation of 1. Stability of water works 1. Drinking water supply capital intensive crops - Navigation ‘capital intensive crops’ - Agriculture 2. Irreversible subsidence - Nature 2. Energy supply - Process water - Industry 3. Nature - Water recreation ‘Process water’ (conditions of soil) - Fishing - Other interests ‘irreversible’

Figure 3-6: National sequence of priority “water hierarchy” on available fresh water distribution

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3.2.3 Sequence of priority on available water distribution during water scarcity The water law has replaced different water acts on for example the drinking water supply, pollution of surface waters, groundwater etc. Article 2.9 of the water law ("Waterwet," 2009) determines that during water scarcity or in case of threatening water shortages the sequence of priority [in Dutch: verdringingsreeks] determines the distribution of available fresh water resources to different water functions. Article 2.1 ("Waterbesluit," 2009) describes the priority sequence as determined in the Water law. The sequence of priority in the Netherlands was determined in order to decide how available fresh water will be distributed during water scarcity. The sequence of priority, showed in figure 3-6, consists of four categories.

The first priority is category 1. Category 1 includes flood safety and the prevention of irreversible damages. These damages includes the stability of water works. This is also the highest priority within the first category. The second sub priority is irreversible subsidence. This can have for example big consequences for infrastructures and buildings. The third priority within category 1 is nature and the soil condition. When the priorities of category 1 are safeguarded the priorities of category 2 need to be safeguarded. This priority consists of public services, more specifically the safeguarding of the drinking water and energy supplies. The following category 3 involves small scale, high end use of fresh water. This can for example be the temporary irrigation of capital intensive crops or the use of process water. The last category, 4, involves other interests, who will firstly be limited in their water use. These other interests are navigation, agriculture, nature, industry, water recreation and fishing.

For the management of the water system for example sluices, pumping stations and inlets are in place to distribute the water resources based on the set priorities. Steering possibilities are shown in the figure 3-5. The priorities are translated into water levels for the water system. For the main water system it is the National Water Authority that manages water levels in the main waters like the Nieuwe Waterweg. The water levels are determined within the national priority sequence for situations of water scarcity. The sequence of priority on a national level is very strict. Locally, the provinces in consultation with the water boards and National Water Authority are responsible for different regulations that determine how the interests in the third and fourth category of the water hierarchy are divided. In this part of the sequence there is room for regional variation. For example the National Water Authority can set a temporary surface water abstraction prohibition or an irrigation prohibition. At this moment there isn’t a predetermined regional water hierarchy for the Rhine-Estuary-Drechtsteden region. During water scarcity the interests between different stakeholders are weighed and the priorities will be determined by the water boards.

The water users and managers and their possible responses are during a situation of water scarcity locked- inn. Most of the steering possibilities are already in the water system present. During a situation of water scarcity only these possible responses can be used. Therefore possible solutions to deal with water distribution in a more efficient and equal way could only be developed before the system is in crisis.

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Water system of Rhine-Estuary Drechtsteden

Noordzeekanaal Oranjesluizen

Spuitkoker Bodegraven Oude Rijn Leidse Rijn Gemaal de 6,9 m3/s 7 m3/sARK aanvoerder

Vliet

Gemaal Dolk Gouwe 2,9 m3/s

Waaiersluis

3 7 m /s Hollandse IJssel Noordergemaal 4,9 m3/s Schie 3 l 1 m /s e ss Pr Beatrix sluize3n IJ 3 m /s 31 m3/s Nieuwe Waterweg Amerongen Driel 3 645 m3/s Prinses Irenesluizen 135 m /s Gemaal Vreeswijk Hagestein 3 Lek Koekoek 2 m3/s Nederrijn 22 m /s l a

North Hartelkanaal ARK a n a

Sea k

h

3 c 435 m /s s n 160 m3/s e d

3 r

230 m /s e

Bernisse n Waal n a

Prins Bernhardsluizen P 20 m3/s Oude Maas Bovenrijn 620 m3/s 640 m3/s Lobith Berenplaat Dordtse Kil Waal 3 Spui 800 m /s Haringvlietsluizen Afgedamde Maas Biesbosch Haringvliet Hollands diep Bergsche Maas Volkeraksluizen 3 Volkerak 5 m /s

Legend Maas

Rhine-Estuary Drechtsteden HH Delfland

HH Schieland en Krimpenerwaard St. Pie3ter Waters – main water system 18 m /s Waters – regional water system HH Rijnland WS Hollandse Delta Sluice WS Rivierenland Weir HH De Stichtse Rijnlanden Inlet Pumping station intermediate storage (boezemgemaal) Main pumping station (hoofdgemaal) Drinking water abstraction location Discharge location

Figure3-7: Water system of Rhine-Estuary Drechtsteden. The figure is created (see Appendix 1) based on the main water system map of (Spijker et al., 2013) in combination with information about the main regional waters and water works of Rhine-Estuary-Drechtsteden region (Geudens, 2012; Hoogheemraadschap van Rijnland, 2005a; Krekt et al., 2011; Provincie Zuid-Holland, 2013b), important drinking water inlets (Geudens, 2012) and discharge locations of industries (Kallen et al., 2008).

Figure 3-7 shows the Rhine-Estuary-Drechtsteden region from the perspective of the inflowing waterways, the Rhine and the Meuse. The water of the Rhine is very important for the region and is used to flush the regional water system and maintainance of the water level. At Lobith the Rhine enters the Netherlands. In situations of water scarcity the discharge of the Rhine at Lobith is below 1400 m3/s, for instance 800 m3/s. The main water system is schematically shown with the blue lines and the larger regional waters with black lines. Within the Rhine-Estuary region the waterways are coming together again and flow via the New Waterway into the North Sea.

The route for small water supply is being used in this map.

The responsible water boards for the Rhine – Estuary Drechtsteden region are showed with dotted areas in different colours. Note that in this region five different water boards are responsible.

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3.2.4 Water agreements for small water supplies during droughts For the north part of the Rhine-Estuary Drechtsteden it is of great importance that it can be supplied with fresh water. Two crucial functions of the water level in the regional system are: preventing instability of water works and preventing subsidence in urban and rural areas as a consequence of lowering ground water and surface water levels. Normally the fresh water supply is coming from inlets in the Hollandse Ijssel at Gouda and Bernisse (see figure 3-7). Due to salinization of the inlets during droughts this supply route isn’t available to supply the region with water. The northern part is an important agricultural area and therefore salinization of the regional water system should be prevented (Krekt et al., 2011; Programmateam Rijnmond-Drechtsteden, 2012a, 2014b).

For maintaining the necessary water levels in the regional water system an extra technological possibility is created. An emergency route for water supply is in place and agreed upon in the Water Agreement Small Water Supplies (KWA) by the water boards Hoogheemraadschap De Stichtse Rijnlanden, Hoogheemraadschap Rijnland, Hoogheemraadschap Delfland and Hoogheemraadschap Schieland and Krimpenerwaard (Hoogheemraadschap van Rijnland, 2005b). This agreement arranges a water supply during water scarcity in the polders of Rijnland, Delfland and Schieland en Krimpenerwaard. When the KWA is into force the inflow to the polders is via gemaal De Aanvoerder, Noordergemaal and Vreeswijk (figure 3-7). The water flows via Hoogheemraadschap De Stichtse Rijnlanden in the water system of Hoogheemraadschap Rijnland and continues to the water system of Hoogheemraadschap Delfland. Due to the inflow of river water (KWA) the water level in the polders can be maintained and flushed with fresh water, which prevents salination. For long term adaptive management not only the situation during periods of water scarcity are important, but even more important are the measures that are taken in advance to prevent or reduce the impact of scarcity. 3.3 Process For the Dutch water system there are determined four stages of water scarcity. In figure 3-5 the four stages are shown. Figure 3-5 is adopted from the guide water shortages and heat (HKV, 2004).

In the first stage the water system is still in a normal situation, but there are warnings that water shortages are expected and the discharge will drop below the described criterion. When the system is in stage 2 the discharge of the Rhine and Meuse are low. The indicator for the low discharges described in the four stages of water scarcity in the Netherlands are the discharges of the Rhine at Lobith and of the Meuse at St. Pieter. These thresholds are:

 discharge of the Rhine at Lobith is under the minimum discharge criterion. The minimum discharge is 1000 m3/s for January till April and September till December, 1100 m3/s for August, 1200 m3/s for July, 1300 m3/s for June and for May 1400 m3/s (Hooven, 2011);  discharge of the Meuse at St. Pieter is under the minimum discharge criterion. The minimum discharge at Sint-Pieter is 25 m3/s (Hooven, 2011);  temperature of the surface water is above 27 °C.

In stage 3 and 4 there are actual water shortages. The water system is shown in a state of water scarcity in figure 3-5. The criteria and guidelines for water distribution over the main waterways are determined in the National Water Management Plan.

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Process design for situations of temporal water scarcity in Rhine-Estuary Drechtsteden 39/67

4 Process design For the design of a process design for long term adaptive management for water scarcity situations the case of the Rhine-Estuary Drechtsteden was chosen. For the Rhine-Estuary Drechtsteden different problems are identified by the Programme team of Rhine-Estuary Drechtsteden (2014b), particularly for the fresh water supply in the region. Water scarcity events of only a couple of weeks can have irreversible consequences for society as shown in chapter 3.

In the handbook for Adaptive Management (Mysiak et al., 2010, pp. 70,73) it is pointed out that an important element to include for the implementation of adaptive long term management, is a social learning cycle in addition to the normal policy cycle. Furthermore, Folke et al. (2005) describe that “the emergence of “bridging organizations” seem to lower the costs of collaboration and conflict resolution, and enabling legislation and governmental policies can support self-organization while framing creativity for adaptive co-management efforts”. Consequently, an important goal to achieve for the process design is the creation of an embedded system for social learning in addition to the normal policy cycle which also includes several supporting elements like a monitoring system and scenario analysis. With these supporting elements the social learning cycle can be used to review current policies and develop innovations as advised by the Advisory Commission. For a good functioning of the social learning cycle it is important that the cycle is embedded in an system or institution which can function as a bridging organisation. In this process design the current cycle of policy making on Water (Management) Plans will be extended by a mediated modelling process in order to create an embedded system for social learning.

Although the process design is but an element in the total process of decision making in water management, the focus of this process design is aimed at issues involving water scarcity in the Rhine-Estuary Drechtsteden. As part of the process design the evaluations of important incidents together with the goals from the previous plans and the new National Water Plan are included as input for a mediated modelling process. During the mediated modelling process the water authorities, municipalities and Province of are creating input for the new water plans. This collaboration also includes participation of stakeholders (water users) and scientists. The output of the mediated modelling process are the ‘add-ins’ for the regular policy cycles and water plans and new data for scientists on risks and responses with regard to water management for situations of water scarcity. By using this artefact in addition to the current system of decision making on water plans, more collaboration is created between municipalities, the Province of South Holland and the water boards. The evaluations of the incidents that happened are taken into account in a structural way in decision making on the new water (management plans).

In the description of the process design the structure is used of Bekkering, Glas, Klaasen and Walter (2007, p. 95) for management of processes. They describe a structure of four different elements: mode of thinking, method of working, instruments and tricks. By using this structure it is possible to describe the process design on different aggregation levels. The mode of thinking, mode of working and instruments are also applicable for designing a process. The structure of Bekkering et al. (2007, p. 95) will be adapted in the lowest layer, tricks. Tricks were described by Bekkering et al. (2007, p. 95) as manipulations of people that were founded in practical experience and have a proven track record in processes. Presenting a process design with a set of tricks to be used by actors to improve their individual strategies on manipulation of other actors will harm their reliability and in the end harm trust between actors in the process.

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Process design – structure applied

- Adaptive management - Process management - IWRM mode of thinking

- outline of the process

method of working

- Mediated modelling workshops

instruments

openness Protection of core values speed substance process rules Figure 4-1: Structure for describing the process design

The adapted structure of Bekkering et al. (2007) is applied in figure 4-1. It gives an overview of the process approach and consists of four elements: mode of thinking, method of working, instruments and tools. The different elements are displayed in the triangle with different layers. At each layer the name of the element is placed bottom right. The arrows indicate the basic relation between these elements, in which the structure is composed, i.e. top-down.

For the case of water scarcity situations in the Rhine-Estuary Drechtsteden the mode of thinking is based on the key notions of adaptive management, Integrated Water Resource Management (IWRM) and Process management. The mode of thinking determines the method of working. It sets the goals and scope of the method of working. The method of working consists of an outline of the process. The instruments to be used are depending on the chosen method of working and should be consistent with the mode of thinking. For this process design the instrument is the mediated modelling workshop. The last elements are the process rules. These consists of rules which are based on achieving the core elements of a process design and are consistent with the mode of thinking.

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The rules of the game as described by de Bruijn & ten Heuvelhof (2008, p. 90) have the function to moderate the strategic behaviour of actors in a network. De Bruijn & ten Heuvelhof state that “Moderate behaviour of actors towards each other will increase their reliability and their chance of reaching agreement”. Therefore the structure for describing a process design is adapted by replacing tricks with process rules. The structure of the process design is shown on the left page in figure 4-1. 4.1 Mode of thinking The mode of thinking is the more or less strategic view in which the water management problem should be considered. For the case of water scarcity situations in the Rhine-Estuary Drechtsteden different theoretical concepts, which were introduced in chapter 2 are necessarily used. These are: Integrated Water Resource Management and Adaptive Management. The institutional analysis in chapter 3 showed that informal institutions on water management are made explicit and there exists worldwide agreement upon the increased use of stakeholder participation. These informal institutions are the norms and values, principles and approaches about how to deal with water scarcity situations. An important example are the three overriding criteria for managing water resources as stated by the Global Water Partnership: Economic efficiency in water use, Equity and Environmental and ecological sustainability (GWP, 2000, p. 29). In the Netherlands also approaches are in development to bring these criteria in practice, like the ‘not-shifting of water problems’ principle. Although the mode of thinking is widely accepted, implementation has proven difficult. For instance land use has direct consequence for the water demand. Another known element is that land use also has consequences for the local climate (Fenicia, Savenije, & Avdeeva, 2009), which can also influence the runoff behaviour of the Rhine.

In designing the process for the case of water scarcity situations of Rhine-Estuary Drechtsteden the mode of thinking for a process design comes from knowledge from the theory of process management. Core elements are described by De Bruijn, Ten Heuvelhof and In ‘t Veld (2002, pp. 46-56) such as the protection of core values, openness, speed and substance. This mode of thinking will be used in designing the process, especially with regard to the process of decision making. With regard to the substance of the process, adaptive management and IWRM are the important basics for the process design.

Experiences of the NeWater case studies in the Adaptive Water Resource Management Handbook (Mysiak et al., 2010, pp. 32 - 34, 187 - 191) showed that adaptive management needs effective leadership and broad support of institutions. Therefore an experienced process manager with excellent communication skills is of great importance (Mysiak et al., 2010, pp. 120 - 123). 4.2 Method of working The method of working is determined by the mode of thinking. The method of working is described by Bekkering et al. (2007, p. 94) as a set of actions that repeats with regard to the issue of in this case water scarcity in the Rhine-Estuary Drechtsteden. Because Bekkering et al. have described it is a repetitive set of actions in this process design the method of working is described by making an outline of the process. The process is based on the current situation and structure of decision making with regard to water plans in the Rhine-Estuary Drechtsteden. In the current situation especially municipalities develop water (management) plans with the help of for instance consulting companies and the water boards. The National Water Plan sets important guidelines for the regional water (management) plans that are set at the same time. This current synchronisation in time of the Water Plans in the current policy making cycle, makes it possible to

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Method of working

2010 2015 2020 t

Figure 4-2: Outline process design

The process is an addition to the current decision making cycle of the Water (Management) Plans that were described in chapter 2. The current structure with the plans, as described in chapter 2 and figure 2-6, is taken as a basis. These are shown by the different clustered document symbols ( ). Every 5 years new plans have to be made at the different policy levels. A process of mediated modelling workshops will be implemented in the preparation phase for these plans. The blue lines are influencing relations between the water plans on different policy levels. From bottom to top are the levels are: European ( ), national ( ),

provincial ( ), water boards ( ) and municipal ( ).

Outcomes of evaluations of events are directly used as input for the process. Events with an implication for water scarcity are shown with a star ( ) and the evaluation with a circle ( ). Other important input flows are the arrows of the old water plans. The process of

mediated modelling workshops is shown by a flow diagram ( ). The outcome of the mediated modelling workshops are ‘add-in’ for the next version of Water Plans. These are indicated by the light green lines ( ). The developed knowledge about risks and responses are indicated as dark green lines ( ).

Two complete cycles are shown in the outline. Process design for situations of temporal water scarcity in Rhine-Estuary Drechtsteden 43/67 develop these plans together. It is suggested in chapter 1 that for the implementation of adaptive management social learning cycles should be integrated in already existing water management policy cycles. A separate process should be avoided. The method of working is graphically shown on the left page.

For the implementation of notions of long term adaptive management several elements are important to include in the process design. The Advisory Council for Transport, Public Works and Water Management has advised to define the points at which the revision of existing policy is triggered. This trigger can be implemented as an addition to the policy cycle of the water (management) plans to avoid a separate stand- alone process. In figure 4-2 a graphical overview is given of the adapted policy cycle. The policy cycle of the water (management) plans are synchronised in time between all water policy makers. The current plans have a time span of 5 years for each policy level (municipalities, water authorities, provinces and the national government). The trigger for revision consists of an joint social learning process by the policy makers that are responsible for the local and regional water plans. The current structure of synchronised Water (Management) Plans on different policy levels makes it possible to add a joint social learning cycle. Evaluations of events with implications to dealing with water scarcity will be input for this process of social learning. 4.3 Instruments Instruments are a set of tools which can be used for moderating the process (Bekkering et al., 2007, pp. 94,95). For the tools it is important that these are consistent with the mode of thinking in this process design. Stakeholder participation is an important element of the mode of thinking from the perspective of adaptive management and also of IWRM. For this process I suggest a mediated modelling workshop structure of Van den Belt (2004), because these workshops are suitable for the implementation of social learning in decision making processes. Especially with regard to environmental consensus building. This structure of the mediated modelling workshops are tested and validated (Van den Belt, 2004). Stakeholders, for example water users or water boards that connect with the delta area, can be included in the process and develop a shared view on water scarcity situations and collaborate together to investigate potential solutions and an updated vision. The mediated modelling workshop structure can be applied as different decision making rounds just before the launch of a new policy cycle. Therefore this is a good fit the suggested method of working. The basic set-up of the mediated modelling workshops consists of three stages: Start-up, Workshops and Follow-up. In this process the suggestion is made to use the input of the old water plans and evaluations. The output consists of newly developed knowledge with regard to water scarcity situations and follow-up is ensured as the output is considered as the ‘add-in’ for the new water (management) plans.

Similar components were used in case studies for flood management of the Rhine river basin (Mysiak et al., 2010, pp. 117-128) but not yet brought together. In the case study of the a participatory process resulted in a shared water management plan (Mysiak et al., 2010, pp. 120 - 123). In the case study of the (Mysiak et al., 2010, pp. 118 - 120) scenario analysis was used and resulted in good collaboration between stakeholders, but there wasn’t a direct link to decision making. By introducing mediated modelling workshops within the policy cycle of the water plans, a direct link will be created. Results of the workshops can be used in the development of water plans that are the result of collaboration.

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Process of mediated modelling workshop

NO GO GO

Preparation of Start process the process GO Workshops Follow - up

Authors Water Setting up process rules Implementing (Management) Plans Introduction ‘Add–in’ in NEW Water (Management) Plans Collecting input data Researchers evaluations All Identified Collecting input data Developing vision Problem definition risks & responses available Water users previous water plans for further research

Identifying risks

Identifying & developing shared responses

Identifying & developing responses on different geographical & impact levels

Identifying & developing necessary communications on starting-up responses

Presenting all identified risks & responses

Develop ‘add – in’ for new water plans

Figure 4-3: mediated modelling workshop

The mediated modelling workshop consists of 5 steps: - The start of the process o preparation of the process o Go – No go decision - Workshops - Follow up

These steps are shown from left to right. Important elements or sub steps are shown in the parts below the name of the steps. For the workshops this part is the largest, because the rough steps of the workshop are also described. For the preparation and the follow-up the concrete input (with orange the evaluations and the water plans with blue) and output (with dark and light green) are indicated.

The Go – No go decision indicates the only point in the process where entry (and exit) is possible in the process. The parties have to agree upon the process rules.

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At the left page the outline of the mediated modelling workshops is graphically shown (figure 4-3). The different elements are described.

1. Start of the process Every 5 years new water (management) plans have to be made by the national government, the province of Zuid-Holland, municipalities and water authorities. The parties already need to invest time and money in order to develop new plans. The mediated modelling process stimulates collaboration between the authorities during this policy making phase of the water (management) plans. Stakeholders of the Rhine-Estuary Drechtsteden that are affected by situations of water scarcity are also invited to join. Scientists are important to be involved in order to bring knowledge and facilitate the process. 2. Preparation of the process An important part of the preparation for the process are the development of the “Rules of the game”. The rules of the game involve for example entry-exit rules, the attendance of the workshops by participants, the level of information sharing about individual water problems and possible responses. The rules are further described in the next section. 3. GO / NO GO decision - All the participants have also agreed upon the “rules of the game” - Entering the process by new participants can be done until this moment in time 4. Workshops - Mediated modelling, scenario analysis are used to develop new knowledge together - The workshops can held in parallel tracks on different topics dealing with water scarcity and/or in different geographical boundaries - Involve experts and a facilitator of the process in order to present and facilitate the participants - 40 – 60 hours or 5 to 7 working days for the workshops based on (Van den Belt, 2004) 5. Input - Evaluations of water scarcity situations - Advices of important knowledge bodies or Advisory Commission related to water scarcity situations in the Netherlands - Old water (management) plans 6. Output - “Add-in” paragraphs for new water (management) plans on different levels. These ‘add-ins’ are created during the mediated modelling workshops by the participants. The ‘add-in’ can be shared knowledge and visions between the different water authorities on a general level and practical measures on a regional level. - Risks and responses as newly developed knowledge on dealing with water scarcity in the Rhine- Estuary Drechtsteden and in general

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Core elements of a process design

Openness

Process Protection of Substance design core values

Speed

Figure 4-4: Core elements of a process design (de Bruijn et al., 2002, p. 46)

The process rules are based on the core elements of a process design as described by De Bruijn et al. (2002, pp. 45 -56). They define a good process as: “an open process, in which parties’ core values are protected, which has sufficient incentives for speed and offers sufficient guarantees for the substantive quality of the results.” The process design should always take four core elements (openness, protection of core values, speed and substance) into account and will always be a trade- off between them. The core elements are graphically shown in figure 5-4. The input for the trade- offs to be made, lies in the mode of thinking and lessons learned from similar case studies. The process rules for this process design are directly based on reaching a particular core element. The core elements are described by De Bruijn et al. (2002, pp. 45, 46) in the following way: Openness: process management means that unilateral decisions are made by the initiator, but other parties are allowed to participate in steering the decision making. Protection of core values: a process should be a safe environment for the parties. They must be certain that the process does not harm their core values, regardless of the outcome of the process. Speed: the first two elements offer insufficient guarantees for a good decision-making process. There is a substantial risk that no decision will be taken, because open decision making in which the parties’ core values are protected. Without creating sufficient speed and progress in the process, the only outcome are sluggish processes. Substance: the requirement of substantive quality should be met, because otherwise decisions that are made are insufficient or even incorrect from a substantive point of view. The process should prevent the process drives out content mechanism.

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4.4 Process rules Important process rules for a process design are described in the following sections. These rules are consistent with the mode of thinking and should lead to the core elements of a process design as pointed out by De Bruijn et al. (2002, pp. 46-56). These are further described in the box on the left page (figure 4- 4). Although a new process of decision-making starts after 5 years, the rules of the game of the previous decision-making round should be evaluated and if necessary amended. In the following subsections various examples will be provided of specific sets of rules.

4.4.1 Rules to facilitate openness in the process A monitoring system is important to be able to implement adaptive management (Folke et al., 2005; Mysiak et al., 2010; Pahl-Wostl, 2008; Raad voor Verkeer en Waterstaat, 2009). Sharing data between water authorities, provinces, municipalities and the International Commission for the Rhine is important to identify vulnerabilities in the system. Therefore during the workshops the sharing information should be promoted. For individual water users information about water use can be of competitive value, especially in the Rotterdam area. But similar cases in the Rhine basin area (Mysiak et al., 2010, pp. 118 - 123) showed that openness about data wasn’t the main issue which limited stakeholder participation.

4.4.2 Rules to protect core values in the process The process of the mediated modelling workshops creates the possibility to the writers of the water plans to develop water plans together. The process works towards ‘add-ins’ which can be used in the new water plans. This creates the possibility for the parties to commit themselves to the process and develop together in a social learning cycle new ‘add-ins’ for the water (management) plans. The usage of the add-ins in the water (management) plans of the individual stakeholders is part of their own policy cycle on the water plans. Therefore actors are allowed to postpone their commitment to specific add-ins, while the current procedure of decision making on water plans is in place.

4.4.3 Rules to speed up the process The short time span of the mediated modelling workshops and the intensive character is designed to create speed in the process. By using the evaluations that are made after the incidents and allowing parties to collaborate during a specific moment in the policy cycle of the water plans a momentum can be created. Command and control or a more project managerial approach can be applied to the organisation of the mediated modelling workshops. Every “water user” can enter the process at regularly identified entry & exit-moments. For every new mediated modelling workshop round a new opening for entry of parties is provided. Creating commitment for the process is important because experiences of the NeWater cases (Mysiak et al., 2010, p. 120) showed that continuity in participation of the workshops was difficult, because daily work was more important for participants. Consequently creating speed in the process and commitment at the start of the workshops is an important process characteristic to realise and manage.

4.4.4 Rules to facilitate the focus on substance in the process Mediated modelling workshops should be designed in such a way that the focus is on substance. An important driver is to fill knowledge gaps and develop the new water plans. Rules should facilitate learning and collaboration processes that should lead towards a shared understanding about the risks and possible responses on different levels.

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5 Conclusion & recommendations In this thesis a process design for long term adaptive management for situations of water scarcity in socio- technological systems is being developed. The impact of temporary water scarcity is huge on social and economic development, because next to individual water users also the land system and ecosystem are depending on a functioning water system. While extreme droughts in the Netherlands only occur occasionally, decision making on the distribution of water resources during water scarcity, is different in comparison with normal situations. The Council for Transport and Water Management concluded in their advice on pro-active adaptation to climate change that ‘a fundamental different approach to the uncertainties associated with climate change must be adopted in policy-making and in government’ (Raad voor Verkeer en Waterstaat, 2009, p. 53). In order to develop a process design for long term adaptive management for situations of temporal water scarcity in socio-technological systems, I will answer the following research questions: How to analyse the Dutch socio-technical water system to design for a process to improve long term adaptive management of temporary water scarcity?. This research question is answered with making use of three sub research questions, which will be answered in the following sections. 5.1 How is the water system managed under normal circumstances? In chapter 2 an analysis is made of the water system Rhine-Estuary Drechtsteden under normal circumstances. The analysis is made from three different perspectives; technological, institutional and process. The technological analysis has given insight in the functioning of the water system Rhine-Estuary Drechtsteden. Next to an important urban area is this area also an important port and agricultural area. Flood safety and securing water demand. The main fresh water resource of this area is the Rhine river. In the institutional analysis not only actors in Rhine-Estuary Drechtsteden are described, but also the institutions that arranges the interactions between actors. The actors can be divided in roughly two groups; water users and managers. 5.2 How is the water system managed during periods of water scarcity? In chapter 3 the impact of temporal water scarcity is first analysed. The impact of water scarcity is diverse for different water users. Temporal water scarcity can have only a limited impact to only one group of water user, for instance navigation, during a limited period of time. On the other hand can there be limitations for the electricity producers, which effect the electricity supply for the society. Another example is the increasing risk on floods, because the surface and ground water levels are necessary for the water works to have their strength. In the Netherlands there is a national sequence of priority on available fresh water distribution during water scarcity taking into account these public values of water. The water demand of the water users during water scarcity is depending on decisions made prior to the situation of water scarcity. Therefore is dealing with water scarcity not only something that can be done during a situation of water scarcity, but responses to the risks of temporal water scarcity can be transferred, reduced or of course being accepted. Especially at the local levels are possibilities for improvement.

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5.3 What process design for dealing with water scarcity can contribute to the current water management system? For dealing with water scarcity in Rhine-Estuary Drechtsteden it recommended to implement the process design in addition to the current water management system. Figure 5-1 is a total overview of the process design. The process design is a total concept consisting of a mode of thinking, method of working, instruments and process rules.

- Adaptive management - Process management - IWRM mode of thinking

- outline of the process

method of working

- Mediated modelling workshops

instruments

openness Protection of core values speed substance process rules Figure 5-1 Overview of the process designed in chapter 4.

The key characteristics for this process design are coming from several methodologies: Adaptive management (Folke et al., 2005; Mysiak et al., 2010; Pahl-Wostl, 2008; Raad voor Verkeer en Waterstaat, 2009), Process management (de Bruijn & ten Heuvelhof, 2008; de Bruijn et al., 2002) and Integrated Water Resource Management (Falkenmark & Rockström, 2004; GWP, 2000; Savenije & Van der Zaag, 2008; UN- Water, 2008). These concepts can be seen as the mode of thinking of this process design. Chapter 1 shows that Adaptive Management and Integrated Water Resource Management are widely accepted in the field of water management. Although these concepts are widely accepted in water management, the process of implementation lacks. Revision points in combination with social learning is an important element for improving adaptive management. Therefore there is a need for a long term process on dealing with water scarcity which is supported by regular points of evaluation and revision and allow for the development of new knowledge. The outcome of these revision points form the input for new water (management) plans. Because the current synchronisation in time between the plans is maintained, it is possible to integrate these revision points in the current policy cycle.

For this process design the instrument of mediated modelling workshops is suggested as method of working for implementing the revision points. For this process I suggest a mediated modelling workshop structure of Van den Belt (2004), because these workshops are suitable for the implementation of social learning in

Process design for situations of temporal water scarcity in Rhine-Estuary Drechtsteden 50/67 decision making processes. Especially with regard to environmental consensus building. The mediated modelling workshops of Van den Belt (2004) are widely tested and validated. Next to these experiences are several case studies in the River Rhine basin done on for example developing a shared water management plan (Mysiak et al., 2010, pp. 117 - 128). For this process design I suggested example process rules based on De Bruijn et al. (de Bruijn et al., 2002) and the analysis of the water system. 5.4 Recommendations Interesting to see is which elements are case specific and which elements can be applied in general for situations of temporal resource scarcity in socio-technological systems. An important notice to be made is that Rhine-Estuary Drechtsteden is normally not in water stress. Therefore the system can set up measurements to be prepared for these situations during normal situations. For regions where water stress is a common situation the incentives for parties are very different and also the technological solutions have another dynamic. Therefore in applying elements of the process design to other cases, it is important to know whether the cases are comparable on the characteristics of the socio-technical system.

The used framework for presenting the total concept of the process design in the four layers of mode of thinking, method of working, instruments and process rules, was very useful and is recommended to be used in designing processes. The different aggregation levels enables the process designer to show the concepts of the design, without making preliminary trade-offs.

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6 Reflection In this reflection I will reflect on the following different aspects of my master thesis: the process, using the TIP analysis, designing the process design and the choice of the subject. 6.1 Process The case study gave more insight in the bottle necks and gave a new focus on the necessary process. At the start of my thesis I wanted to design a process that could be used during times of water scarcity. During my midterm meeting the description of the water system from three perspectives was discussed. From my graduation committee I got the advice by doing a case study finding the bottle necks as input for the process design. The decision was made not to use interviews as proposed research method in the initial research proposal, but the case study. The reason for this choice was that for finding bottle necks a sufficient amount of interviews is necessary and the risk is that interviewee will bring forward the severity of their water scarcity problems.

The results of the case study showed that the focus of the to be designed process was too narrow, because a process design for during water scarcity was quite limited. The water users and managers and their possible responses are during that time locked-inn. Possible solutions to deal with water distribution in a more efficient and equal way could only be developed before the system is in crisis. Therefore I made a shift to design a process within the current policy making cycle on water management in the Rhine-Estuary Drechtsteden region. Evaluations on adaptive management pointed out that adaptive management should only work when there is an embedded system. Therefore I searched during designing the process to a way of implementing the aspects direct in the current policy cycle.

The process design is strongly based on literature of process management of De Bruijn et al (de Bruijn & ten Heuvelhof, 2008; de Bruijn et al., 2002). Cases from the Adaptive Water Resource Management Handbook were used to find lessons learned. For the mediated modelling workshops I used the basics of a mediated modelling process described by (Van den Belt, 2004) in her book Mediated modelling: a system dynamics approach to environmental consensus building. This instrument is already validated and applied often for similar problems. An important recommendation for further research is to do a validation step for improving the process design, for instance by interviewing different experts. 6.2 Using TIP as an structure for describing the water system During my master thesis I used different methodologies. I will reflect in the following paragraph on the question whether the TIP structure was appropriate to use and helped with reaching the goal of my master thesis. My choice for setting-up the description of the water system of Rhine-Estuary-Drechtsteden by using the Technology-Institutions-Process approach helped me to focus and show the water system from many perspectives. By using this perspective I found elements for the process design that were otherwise left behind. 6.3 Designing the process design The TIP analysis of the Rhine-Estuary Drechtsteden region for normal situations and situations of water scarcity gave a set of requirements and nice-to-have elements that could be used in the process design. Bringing these together with the concepts of process management, IWRM and adaptive management gave

Process design for situations of temporal water scarcity in Rhine-Estuary Drechtsteden 52/67 a list of elements that were required in a process design. Together with Mark de Bruijne I discussed different possible elements of the process and processes. This resulted in a more or less scattered process design. The conclusion was that although the process management theories gave input for elements of a process design, I needed a structure that could present the process design as a total concept. I found the pyramid structure of Bekkering et al. (Bekkering et al., 2007) for a process approach of mode of thinking, method of working, instruments and tricks. The last element of the approach was not consistent with my view on process management, therefore I adapted the structure and replaced the layer of tricks by process rules. With this structure I was able to create a process design that could described the different layers of the process design.

An interesting element that I found was that in water management the mode of thinking is widely accepted. For finding the mode of thinking I have used the institutional analysis. There I found that IWRM is accepted by 104 countries in the world. The aspects are for instance included in the European Water Framework Directive and also in the Dutch National Water Plan. Bringing the mode of thinking into practice is a challenge. Because the mode of thinking is so strongly present in water management the process design is not designed to work towards a new mode of thinking, but is leading towards implementation of a specific structure that fits within the mode of thinking. How I used it and I think in the case of water resource management the pyramid structure was quite hierarchal and the mode of thinking was leading. In other cases, in other fields, where a mode of thinking is not already an informal institution, the result and outcome of a process can be a new mode of thinking. The mode of thinking should then be agreed upon by the parties involved. 6.4 Choice of the subject Looking back on my master thesis I am happy with my choice for water scarcity and the sequence of priorities. During my master Systems, Engineering, Policy Analysis and Management I have specialised in water resource management and hydrology. This subject was a really nice fit to my specialisation and the design objective, a process design, is at the core of my master. The subject was quite complicated and large. The challenge to unravel the problem more and more by creating structures to do so, was also a nice aspect of my thesis.

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7 References Bekkering, T., Glas, H., Klaassen, D., & Walter, J. (2007). Management van processen: Succesvol realiseren van complexe initiatieven (Vol. 4). : Spectrum. de Bruijn, H., & Herder, P. M. (2009). System and Actor Perspectives on Sociotechnical Systems. Systems, Man and Cybernetics, Part A: Systems and Humans, IEEE Transactions on, 39(5), 981-992. doi: 10.1109/TSMCA.2009.2025452 de Bruijn, H., & ten Heuvelhof, E. F. (2008). Management in Networks: On multi-actor decision making. London: Routledge. de Bruijn, H., ten Heuvelhof, E. F., & in 't Veld, R. J. (2002). Process management. Why project management fails in complex decisionmaking processes. Boston: Kluwer. Delta Alliance. (2009). Rhine-Meuse Delta. Retrieved 7-8-2014, 2014, from http://www.delta- alliance.org/deltas/rhine-meuse-delta Deltacommissie. (2008). Samen werken met water Bevindingen va de Deltacommissie 2008. Den Haag: Deltacommissie. Deltaprogramme Commisioner. (2014). Rhine Estuary-Drechtsteden. Delta programme. Retrieved 19-2-2014, 2014, from http://www.deltacommissaris.nl/english/organization/sub- programmes/rhine_estuary_and_drechtsteden/Rhine_Estuary_Drechtsteden.aspx Directoraat Generaal Water. (2004). Evaluatienota waterbeheer aanhoudende droogte 2003. Utrecht: Ministerie van Verkeer en Waterstaat. EurAqua. (2004). Discussion document Towards a European drought policy. Falkenmark, M., & Rockström, J. (2004). Balancing water for humans and nature: the new approach in ecohydrology. London: Earthscan. Fenicia, F., Savenije, H. H. G., & Avdeeva, Y. (2009). Anomaly in the rainfall-runoff behaviour of the Meuse catchment. Climate, land-use, or land-use management? Hydrology and Earth System Sciences, 13(9), 1727-1737. Folke, C., Hahn, T., Olsson, P., & Norberg, J. (2005). Adaptive governance of social-ecological systems. Annual Review of Environment and Resources, 30(1), 441-473. doi: doi:10.1146/annurev.energy.30.050504.144511 Gerlinger, K. (2009). Analysis of the state of knowledge on climate changes so far and on the impact of climate change on the water regime in the Rhine watershed Literature evaluation. Koblenz. Geudens, P. J. J. G. (2012). Dutch drinking water statistics 2012. : Association of Dutch water companies (VEWIN). GlobalWaterPartnership. (2010). Wat is IWRM? Retrieved 19-03, 2012 GWP. (2000). Integrated Water Resource Management TAC Background Papers NO. 4. Stockholm: Global Water Partnership Secretariat. HKV. (2004). Handreiking watertekort en warmte: introductie. Lelystad: Rijkswaterstaat Retrieved from http://publicaties.minienm.nl/documenten/handreiking-watertekort-en-warmte-introductie. Hoogheemraadschap van Rijnland. (2005a). Kaartbijlage KWA. Retrieved 28-3-2014, 2014, from http://www.rijnland.net/regels/waterakkoorden/waterakkoord_kwa/bijlage Hoogheemraadschap van Rijnland. (2005b). Waterakkoord KWA. Retrieved 28-3-2014, 2014, from http://www.rijnland.net/regels/waterakkoorden/waterakkoord_kwa Hooven, D. t. (2011). Draaiboek droogte Gelderland in geval van watertekort en/of laag water. Arnhem: Provincie Gelderland. Huisman, P. (2004). Water in the Netherlands. Managing checks and balances (2006 ed. Vol. 6). Utrecht: Netherlands Hydrological Society. ICPR. (2013). De Rijn en zijn stroomgebied in vogelvlucht. Koblenz. Jeuken, A., & Beek, E. v. (2012). Balancing supply and demand of fresh water under increasing drought and salinisation in the Netherlands. In R. v. Duinen, A. v. d. Veen, A. Bocalon, J. Delsman, P. Pauw, G. Oude Essink, S. v. d. Zee, S. Stofberg, K. Zuurbier, P. Stuyfzand, W. Appelman, R. Creusen, M. Paalman, D. Katschnig, J. Rozema, M. Mens, J. Kwakkel, W. Thissen, J. Veraart, L. Tolk, & A. d. Vries (Eds.), Midterm report Knowledge for Climate Theme 2: Kennis voor klimaat. Junier, S. J., & Mostert, E. (2012). The implementation of the Water Framework Directive in The Netherlands: Does it promote integrated management? Physics and Chemistry of the Earth, Parts A/B/C, 47–48(0), 2-10. doi: http://dx.doi.org/10.1016/j.pce.2011.08.018

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Kallen, M. J., Goede, E. D. d., & Boderie, P. M. A. (2008). Bepaling koelcapaciteit van Rijkwateren Statistische analyse landelijke warmtelozingscapaciteit en koelcapaciteit Hollandsch Diep onder kritische en extreme omstandigheden: Deltares. Klijn, F., Velzen, E. v., Maat, J. t., & Hunink, J. (2012). Zoetwatervoorziening in Nederland aangescherpte landelijke knelpuntenanalyse 21e eeuw: Deltares. KNMI. (2008, 3-9-2008). KNMI Klimaatscenario's; deltacommissie scenario. Retrieved 9-12-2013, 2013, from http://www.knmi.nl/klimaatscenarios/aanvullend/DC/index.php KNMI. (2012, 18-10-2012). KNMI Klimaatscenario's. Retrieved 9-12-2013, 2013, from http://www.knmi.nl/klimaatscenarios/ Koppenjan, J., & Groenewegen, J. (2005). Institutional design for complex technological systems. International Journal of Technology, Policy and Management, 5(3), 240-257. doi: 10.1504/ijtpm.2005.008406 Krekt, A., Eshuis, L., Gijselman, N., Berg, K. v. d., & Stalenberg, B. (2011). Ruimtelijke ontwikkelingen in relatie tot waterveiligheid en zoetwatervoorziening in de regio Rijnmond-Drechtsteden Een beeldende verkenning van plannen en ambities in een verstedelijkte delta tot 2040 ten behoeve van het Deltaprogramma Rijnmond-Drechtsteden: Deltaprogramma Rijnmond-Drechtsteden en Deltares. Leenaers, H., & Camarasa, M. (2010). De Bosatlas van Nederland waterland. Groningen: Noordhoff atlasproducties. Ministerie van Infrastructuur en Milieu. (2004). Evaluatienota waterbeheer aanhoudende droogte 2003. Utrecht: Ministry of Infrastructure and Environment. Ministerie van Infrastructuur en Milieu. (2009). Nationaal Waterplan 2009 - 2015. Utrecht: Rijksoverheid. Mostert, E. (2003). The challenge of public participation. Water Policy, 5(2), 81-97. Mysiak, J., Henrikson, H. J., Sullivan, C., Bromley, J., & Pahl-Wostl, C. (Eds.). (2010). The adaptive water resource management handbook. London: Earthscan. OECD. (2014). Water Governance in the Netherlands: Fit for the future? : OECD Publishing. Ostrom, E., Stern, P.C., Dietz, T. (2010). Water Rights in the Commons. In P. G. Brown, Schmidt, J.J. (Ed.), Water ethics: Foundational Readings for Students and Professionals (pp. 147-154). Washington: Island Press. Pahl-Wostl, C. (2008). Requirements for Adaptive Water Management. In C. Pahl-Wostl, P. Kabat, & J. Möltgen (Eds.), Adaptive and Integrated Water Management (pp. 1-22): Springer Berlin Heidelberg. Parmet, B., Kwadijk, J., & Raak, M. (1995). Impact of climate change on the discharge of the river rhine. In R. S. A. R. v. R. M. T. J. K. S. Zwerver & M. M. Berk (Eds.), Studies in Environmental Science (Vol. Volume 65, pp. 911-918): Elsevier. Platform Zoetwater West Nederland. (2011). Zoetwatertekort in West Nederland. Houten: Platform Zoetwater West Nederland. Port of Rotterdam. (2014). Key figures. Retrieved 19-12-2014, from http://www.portofrotterdam.com/nl/Over-de-haven/havenstatistieken/Pages/kerncijfers- statistieken.aspx Programmateam Rijnmond-Drechtsteden. (2012a). Deltaprogramma 2013 probleemanalyse Rijnmond-Drechtsteden. Arnhem: Rijkswaterstaat. Programmateam Rijnmond-Drechtsteden. (2012b). Verkenning mogelijke strategieën voor Rijnmond-Drechtsteden. Arnhem: Rijkswaterstaat. Programmateam Rijnmond-Drechtsteden. (2014a). Aanleiding deelprogramma Rijnmond-Drechtsteden. Deltaprogramma. Retrieved 17-2-2014, 2014, from http://www.rijksoverheid.nl/onderwerpen/deltaprogramma/deelprogramma-s/deelprogramma- rijnmond-drechtsteden/aanleiding-deelprogramma-rijnmond-drechtsteden Programmateam Rijnmond-Drechtsteden. (2014b). Advies Deltaprogramma Rijnmond-Drechtsteden. Rotterdam: Deltaprogramma. Provincie Zuid-Holland (Cartographer). (2013a). Gemeenten in Zuid-Holland. Provincie Zuid-Holland (Cartographer). (2013b). Waterschappen in Zuid-Holland. Retrieved from www.zuid-holland.nl/documenten/opendocument.htm?llpos=8096516&llvol=0 Quevauviller, P. (Ed.). (2010). Water System Science and Policy Interfacing. Cambridge: RSC Publishing. Raad voor Verkeer en Waterstaat. (2009). Witte zwanen, zwarte zwanen. Advies over proactieve adaptatie aan klimaatverandering. Den Haag: Raad voor Verkeer en Waterstaat. Rijksoverheid. (2008). NBW-actueel. Den Haag: Rijksoverheid. Runhaar, J. (2006). Natuur in de verdringingsreeks (pp. 104). Wageningen: Alterra. Savenije, H. H. G., & Van der Zaag, P. (2008). Integrated water resources management: Concepts and issues. Physics and Chemistry of the Earth, 33(5), 290-297. doi: 10.1016/j.pce.2008.02.003

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Soncini-Sessa, R., Castelletti, A., & Weber, E. (2007). Integrated and participatory water resources management: theory (Vol. 1A). Amsterdam: Elsevier. Spijker, M., Brink, M. v. d., Graaf, J. d., & Coonen, M. (2013). Waterverdelings- en verziltingsvraagstukken in het hoofdwatersysteem in West- en Midden-Nederland Eindrapport. Amersfoort: Hydrologic. Taskforce DGWO. (2006). Facts and figures. Retrieved 7-8-2014, 2014, from http://www.greenportduurzaam.nl/facts.aspx UN-Water. (2008). Status Report on Integrated Water Resource Management and Water Efficiency Plans for CSD16. Van den Belt, M. (2004). Mediated modeling: a system dynamics approach to environmental consensus building. Washington DC: Island Press. Vliet, L. v., Bruin, H. T. J. d., Vries, G. d., & Zwanenburg, C. (2013). Stabiliteit veenkade m.o. klimaatverandering. Retrieved 19-5-2014, 2014, from http://deltaproof.stowa.nl/Publicaties/deltafact/Stabiliteit_veenkade_m_o__klimaatverandering. aspx?pId=19#Ervaringen Waterbesluit, BWBR0026872 C.F.R. (2009). Waterwet, BWBR0025458 C.F.R. (2009). Williamson, O. E. (1998). Transaction Cost Economics. The economist, 146(1), 23-58.

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8 Appendix 1: Creation of figure 3-5 In this appendix the data sources of figure 3.5 are shown. In figure 3-5 I have combined different sources of information in order to have a complete overview of the water system of Rhine-Estuary-Drechtsteden.

Noordzeekanaal Oranjesluizen

Spuitkoker Bodegraven Oude Rijn Leidse Rijn Gemaal de 6,9 m3/s 7 m3/sARK aanvoerder

Vliet

Gemaal Dolk Gouwe 2,9 m3/s

Waaiersluis

3 Rotte 7 m /s Hollandse IJssel Noordergemaal 4,9 m3/s Schie 3 l 1 m /s e ss Pr Beatrix sluize3n IJ 3 m /s 31 m3/s Nieuwe Waterweg Amerongen Driel 3 645 m3/s Prinses Irenesluizen 135 m /s Gemaal Vreeswijk Hagestein 3 Nieuwe Maas Lek Koekoek 2 m3/s Nederrijn 22 m /s l

Hartelkanaal a North ARK a n a

Sea k

h

3 c 435 m /s s Noord n 160 m3/s e d

3 r

230 m /s e

Bernisse n Waal n a

Prins Bernhardsluizen P 20 m3/s Oude Maas Bovenrijn 620 m3/s 640 m3/s Lobith Berenplaat Dordtse Kil Waal 3 Spui 800 m /s Nieuwe Merwede Haringvlietsluizen Afgedamde Maas Biesbosch Haringvliet Hollands diep Bergsche Maas Volkeraksluizen 3 Volkerak 5 m /s

Legend Maas

Rhine-Estuary Drechtsteden HH Delfland

HH Schieland en Krimpenerwaard St. Pie3ter Waters – main water system 18 m /s Waters – regional water system HH Rijnland WS Hollandse Delta Sluice WS Rivierenland Weir HH De Stichtse Rijnlanden Inlet Pumping station intermediate storage (boezemgemaal) Main pumping station (hoofdgemaal) Drinking water abstraction location Discharge location

Figure 8-1 Copy of Figure 3-5: Water system of Rhine-Estuary Drechtsteden placed in perspective of inflow

Figure 10-1 (copy of figure 3-5 in chapter 3) is primary based on the map of (Spijker et al., 2013) shown in figure 10-2.

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Figure 8-2 Water balance mid and western part of the Netherlands for an extreme dry situation (Spijker et al., 2013)

I included the following information:

 the Maas branch, starting from St. Pieter, Meuse inflow point in the Netherlands. The lower discharge limit is based on the limits described in the Handreiking waterdroogte en warmte (HKV, 2004)  the outflow in the North Sea  the regional important water ways, inlets and pumping stations based on the map about the regional water system of Rotterdam and surroundings (Leenaers & Camarasa, 2010) showed in figure 10-3.

Figure 8-3: Inflow and outflow regional water system Rotterdam and surroundings (Leenaers & Camarasa, 2010)

 Another used source for the regional water system was the map of the small scale water supply as showed in figure 10-1 and copied in this appendix figure 10-4.

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Figure 8-4: copy of figure 4-2: Waterakkoord Kleinschalige Water Aanvoervoorzieningen KWA (Hoogheemraadschap van Rijnland, 2005a)

 Drinking water inlets from Evides, Dunea and Oasen are displayed as bright blue dots in figure 10- 1. These inlets are based on the map of drinking water abstraction locations in the Netherlands of (Geudens, 2012).

Figure 8-5: drinking water abstraction locations in the Netherlands (Geudens, 2012)

 Water board boundaries based on the map of (Provincie Zuid-Holland, 2013b) in figure 10-6, showed as a dotted background in different colours in figure 10-1. The regional waters that are managed by the water boards are coloured in the same colours in figure 10-1 also based on this map.

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Figure 8-6: Water boards in province Zuid-Holland (Provincie Zuid-Holland, 2013b)

 Important industrial discharge locations (Kallen et al., 2008) are showed in figure 10-1 by red dots are based on the map showed in figure 10-7.

Figure 8-7: map of the Netherlands with the placement of discharge locations (1-9) and reference locations (10-12) (Kallen et al., 2008)

 The boundaries of Rhine-Estuary-Drechtsteden is the boundaries defined by the Deltaprogramme (Deltaprogramme Commisioner, 2014; Krekt et al., 2011), in figure 10-8 an map with all the delta programmes is showed.

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Figure 8-9: Map of Province Zuid-Holland including the boundaries Figure 8-8: Sub delta programmes (Programmateam of Rhine-Estuary Drechtsteden Rijnmond-Drechtsteden, 2012a) (Provincie Zuid-Holland, 2013a)

I displayed the boundaries on the map of province Zuid-Holland as showed in figure 10-9. Based on these boundaries I could determine the showed boundaries in figure 10-1.

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9 Appendix 2: Risk matrix – table in total

Sequence of water demand Impact during geographical response: cause risk effect water demand (quantity) temporal impact Priority (quality) drought 2003 impact response: avoid transfer response: reduce response: accept 1.1 Area behind the dike For example cost knowledge gap in temporarily extra depending on the Safeguarding peat dike will will be flooded and Wilnis 2003: € 1,2 effect of drought on water supply via KWA Peat dike will fail unknown - knowledge gap exact water safety stability of dry-out dike should be million (Vliet et al., long term stability route of inflowing inspections on water function of the dike water works restored. 2013) of peat dikes Rhine water works Accept Necessary water demand for flushing water system: temporarily extra Subsidence stability of Possible damages on See figure 12-5 for Rijnland: < 4 m^3/s (+2,9 water supply via caused by too infrastructures infrastructures and geographical impact m^3/s to HHD), Delfland: KWA route of irreversible temporarily extra low ground are becoming buildings by and differences in 1,9 m^3/s (+1 m^3/s to inflowing Rhine water supply via KWA water level less subsidence the Netherlands HHSK), Schieland & water route of inflowing 1.2 Subsidence Krimpenerwaard: 1 m^3/s Rhine water Accept Necessary water demand for flushing water system: temporarily extra too little fresh Rijnland: < 4 m^3/s (+2,9 water supply via Effect per local Depending on water of good Soil dries out "droogschade" m^3/s to HHD), Delfland: KWA route of water system, consequence, temporarily extra 1.3 Nature quality 1,9 m^3/s (+1 m^3/s to inflowing Rhine "peilvlak" irreversible water supply via KWA (conditions of HHSK), Schieland & water route of inflowing soil) Krimpenerwaard: 1 m^3/s Rhine water Accept chlorideconcent Inlet of ration < 150 temporarily extra too little fresh systemvreemd mg/l (in 2011 water supply via Effect per local Depending on water can't be used water of good water with temporarily KWA route of water system, consequence, temporarily extra for irrigation 1.3 Nature quality inadequately increase to 200 inflowing Rhine "peilvlak" irreversible water supply via KWA (conditions of quality mg/l) (Noordtzij water route of inflowing soil) & Dansik, 2012) Rhine water Accept - reservoir buffer - accept limited Water supply to end- Intake: Evides: 202 (Dunea) = 2 to 3 intake of water user is still Mm^3/jaar waarvan 47 No problems, Supply areas of weeks - reservoir (maximum buffer = Water intake is Reservoirs are 2.1 guaranteed, damages Mm^3/jaar industriewater. reserves could be Dunea, Oasen and irreversible buffer (Evides) = 2 2 weeks, already 1 limited empty Safeguarding on the nature of the Dunea: 72 Mm^3/jaar (Klijn used Evides months - limiting week is extreme to supply of reservoirs et al., 2012) water demand of stop the drinking water households infiltration) Limited supply of Pressure in drinking water to depending on drinking water households, quality structure of during water Water reservoir distribution of drinking water is Warme-zomerafzet distribution system scarcity and starting is empty, water system is too lacking due to water 18Mm^3/month (august No problems - limiting water and possibilities to up distribution 2.1 supply is limited low and limited distribution system 2003) - temporarily supply demand of partially disconnect water system again Safeguarding supply of gets contaminated by grey water - reservoir households - water networks supply of drinking water too low pressure in buffers drinking water saving drinking water the pipes companies measurements Accept - Temporarily Reserve capacity was extended norms for Loss of Load almost below critical risk of cascading discharging cooling Water Probability (LOLP) . 2996 MW of minimum. They effect of black out water in order to temperature is Limited Supply of energy is current total temporarily caused by during water avoid consequences too high for electricity No data limited, reserve production extended the imbalance in scarcity - limiting fossil fuels as of too low reserve discharging production 2.2 capacity is too little capacity temperature norms elektricity system, resource for elektricity capacity elektricity waste water Safeguarding with risk of black out for the discharge of Europe production - relocate network - building supply of waste water elektricity production temporarily elektricity locations to sea alternative cooling Accept capacity (f.i. cooling towers)

112 Mm^3 from surface Cooling water water in the Netherlands, discharge was a big Water ca. 47 Mm^3/year problem during the during water temperature is Limited delivered by Evides in Loss of income drought of 2003 scarcity and starting too high for production No data Rotterdam harbour, effect per company during limitations (Klijn et al., 2012; up costs for discharging capacity Western Brabant and insurance for MinisterieVanInfrast restarting process waste water Zeeland . For example is the - water bassins, ground consequences ructuurEnMilieu, 3.a Process netto buffer at water extraction of droughts - water saving 2004) water Hydrobusiness 10 hours possibility for companies measuments Accept Temporarily chlorideconcent 3.b irrigation ration < 150 No large bottlenecks, Temporarily prohibition or mg/l (in 2011 loss of income over because the rainfall yield, but very irrigation of too low surface crop failure temporarily No data effect per company insurance for the yield deficit was not capital intensive capital water quality for increase to 200 consequences extreme intensive irrigation. No mg/l) (Noordtzij of droughts - water saving crops irrigation & Dansik, 2012) '- water bassins for companies measuments Accept effect on total river Navigation is water level in loss of income during < 1250 m^3/s Rhine at basin and during water limited or Not applicable rivers is too low water scarcity Lobith, cargo is limited connectivity by ship scarcity prohibited 4.a Navigation to inlands insurance ? Accept Temporarily chlorideconcent irrigation ration < 150 No large bottlenecks, prohibition or mg/l (in 2011 loss of income over because the rainfall too low surface crop failure temporarily No data effect per company yield insurance for the yield deficit was not water quality for increase to 200 consequences extreme irrigation. No mg/l) (Noordtzij of droughts - water saving 4.b Agriculture irrigation & Dansik, 2012) '- water bassins for companies measuments Accept chlorideconcent ration < 150 No large bottlenecks, Water level in mg/l (in 2011 Dry out of higher risk on fire in because the rainfall effect in local water non-irreversible water system is temporarily No data nature nature areas deficit was not system "peilvlak" damages too low increase to 200 Accept too - small reservoirs extreme mg/l) (Noordtzij small water that can be used Accept low water 4.c Nature & Dansik, 2012) supply during water scarcity quality chlorideconcent ration < 150 No large bottlenecks, mg/l (in 2011 poor surface WFD - standards values of nature are because the rainfall effect in local water non-irreversible temporarily No data water quality are exceeded not reached deficit was not system "peilvlak" damages increase to 200 extreme mg/l) (Noordtzij Accept low Accept too small 4.c Nature & Dansik, 2012) water quality water supply 3700 Mm^3 water/year, limitations in Cooling water during water Water intake is loss of income during 470 Mm^3 with non cooling production No data discharge was a effect per company scarcity PLUS limited water scarcity water function in the -water saving processes large problem starting up costs 4.d Industry Netherlands measumements Accept poor surface water quality loss of income for effect per restricted and poor habitat Swimming “swimming during water tourism/recreation No data No data water recreation quality prohibition water levels” scarcity sector spot 4.e Water (botulism, recreation cyanobacteria) Accept poor surface see figure 4.2 Effect water quality per fishing company prohibition for loss of income during during water and poor habitat No data No data No data due to specific navigation water scarcity scarcity quality (high fish fishing area, limited 4.f Fishing mortality and to fresh water Accept

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cyanobacteria fishing companies (blauwalg) and harbour location 4.g Other interests

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10 Appendix 3: Overview of actors In the table below an overview is given of the relevant actors in the Rhine-Estuary-Drechtsteden with the attitude, power and interest on the subject ‘water scarcity in the Rhine-Estuary-Drechtsteden region’. The interests are given, the geographical and the area of interest.

Stakeholder Attitude Power Interest Geographical area of interest Area of interest (glas)tuinbouwbedrijven + - + Barendrecht, Lansingerland, Midden- Availability of fresh water for (groenten- en Delfland, Waddinxveen, Westland, Zuidplas irrigation and maintaining bloementeelt) conditions of soil Akkerbouw + - + Barendrecht, Lansingerland, Midden- Availability of fresh water for Delfland, Waddinxveen, Westland, Zuidplas irrigation and maintaining conditions of soil Binnenvaart + - + Main waters Water level in main waters Bomen- en bollenteelt + - + Barendrecht, Lansingerland, Midden- Availability of fresh water for Delfland, Waddinxveen, Westland, Zuidplas irrigation and maintaining conditions of soil Elektriciteitscentrales + - + Discharge locations at 1e Petroleumhaven, Availability of fresh water for and ARK (see figure 4-1) cooling water purposes Greenport Westland- + - + Barendrecht, Lansingerland, Midden- Availability of fresh water for Oostland Delfland, Waddinxveen, Westland, Zuidplas irrigation and maintaining conditions of soil Port of Rotterdam + - + Port of Rotterdam Garanderen van bereikbaarheid voor de scheepvaart en beschikbaarheid van zoet water voor industrie

maritieme gebruikers + - + Drechtraad, Rotterdam Water level in water ways van natte bedrijfterreinen Melkveehouderij + - + Barendrecht, Lansingerland, Midden- Maintaining conditions of soil Delfland, Waddinxveen, Westland, Zuidplas Nature manager + - + Maintaining conditions of soil, preventing nature damage, maintaining conditions for water recreation Fishery + - + Waters Good ecological water quality Navigation (Sea) + - - Port of Rotterdam Water level in port of Rotterdam Drinking water companies Dunea + - + For abstraction locations Bergambacht and Water quality and quantity at Brakel. For supply: Zuidplas, Lansingerland, drinking water abstraction locations and reservoirs Evides + - + For abstraction locations: Biesbosch, Water quality and quantity at Beerenplaat, Ridderkerk. For supply: Midden- drinking water abstraction Delfland, Westland, Vlaardingen, Maassluis, locations and reservoirs Schiedam, Capelle a/d Ijssel, Rotterdam, Albrandswaard, Barendrecht, Bernisse, Brielle, Goeree-Overflakkee, Hellevoetsluis, Spijkenisse, Westvoorne, Binnenmaas, Cromstrijen, Korendijk, Oud-Beijerland, Strijen, Dordrecht Oasen + - + For abstraction locations: Locations in the Water quality and quantity at Lek. For supply: Bergambacht, Nederlek, drinking water abstraction Ouderkerk, Waddinxveen, Krimpen a/d Ijssel, locations and reservoirs Ridderkerk, Gouda, Hendrik-Ido-Ambacht, Zwijdrecht, Papendrecht, Molenwaard, Sliedrecht Municipalities Albrandswaard + - + Albrandswaard Barendrecht + - + Barendrecht Bergambacht + - + Bergambacht Bernisse + - - Bernisse Binnenmaas + - - Binnenmaas Brielle + - - Brielle Capelle a/d Ijssel + - - Capelle a/d Ijssel Cromstrijen + - - Cromstrijen Delft + - - Delft Dordrecht + - + Dordrecht Goeree Overflakkee + - - Goeree Overflakkee Gouda + - - Gouda Hellevoetsluis + - - Hellevoetsluis Hendrik-Ido-Ambacht + - + Hendrik-Ido-Ambacht Korendijk + - - Korendijk Krimpen a/d Ijssel + - - Krimpen a/d Ijssel Lanslingerland + - + Lanslingerland Maassluis + - - Maassluis Midden-Delfland + - + Midden-Delfland Molenwaard + - - Molenwaard Nederlek + - - Nederlek Oud-Beijerland + - - Oud-Beijerland Ouderkerk + - - Ouderkerk Papendrecht + - + Papendrecht Ridderderk + - - Ridderderk Rotterdam + - + Rotterdam Schiedam + - - Schiedam Sliedrecht + - + Sliedrecht Spijkenisse + - - Spijkenisse Strijen + - - Strijen Vlaardingen + - - Vlaardingen Waddinxveen + - + Waddinxveen Westland + - + Westland Westvoorne + - - Westvoorne Zuidplas + - + Zuidplas Zwijndrecht + - + Zwijndrecht Landelijke + + + The Netherlands Water distributions takes place Coördinatiecommissie based on water hierarchy and Waterverdeling (LCW) good collaboration with regions Ministry of + + + The Netherlands Infrastructure and Environment Rijkswaterstaat + + + main rivers Interprovinciaal overleg + - - The Netherlands Promotes interests of provinces and stimulates collaboration between provinces Vereniging van + - - municipalities Promotes interests of Nederlandse municipalities Gemeenten (VNG) Province Zuid-Holland + + + Zuid-Holland Social and economic development of Zuid-Holland, water scarcity will be dealt with in the least disruptive way Safety regions 15 Haaglanden + + - Haaglanden 16 Hollands Midden + + - Hollands Midden 17 Rotterdam-Rijnmond + + - Rotterdam-Rijnmond 18 Zuid-Holland Zuid + + - Zuid-Holland Zuid 20 Midden en West + + - Midden en West Brabant Brabant Water boards Hoogheemraadschap + + + Delfland Delfland Hoogheemraadschap + + + Schieland en Krimpenerwaard Schieland en Krimpenerwaard

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Hoogheemraadschap + + + Rijnland van Rijnland Waterschap Hollandse + + + Hollandse Delta Delta Waterschap + + + Rivierenland Rivierenland Unie van + - + The Netherlands Promotes interests of water Waterschappen (UvW) boards and stimulates collaboration between water boards

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