Content
Problem Definition
The megasite of the Port of Rotterdam fulfils an important role as a hub for
international goods flows and as a business location for industry and logistic
services. The port and industrial complex is of great significance for the European,
national and regional economies. The Rotterdam megasite is situated at the delta
of the rivers Rhine and Meuse and covers an area of 10,500 acres, which makes
it the world's largest harbour. The main activities that are taking place in
the Rotterdam harbour are the transhipment and processing of bulk goods such
as oil, chemicals, coals and ores. Because of the groundwatercontamination individual
contaminated sites cannot be remediated without consequences for the whole harbour
area. Therefore the Rotterdam harbour could be regarded as a megasite. The stepwise
approach has been used as a method to reach an agreement between authorities
and the several industrial landusers. Final decisions are expected in the coming
years.
Checklist of existing information
| Information | Port of Rotterdam |
| Megasite area Impact area |
400 km2 Unknown |
| Land use (maps) | General topographic map Contract locations (port of Rotterdam) Industrial activity map Industrial landuse in harbour with residential and alternated infrastructure, recreation and polder area's |
| Documents from involved stakeholders and other institutions | Industry: site management plans, response to questionnaire Soil management board/PoR: general risk management strategy |
| Historical timeframe (use/production) |
Industrial activity from 1920 until today through a gradual expansion from city of Rotterdam towards the sea, with artificial land made in the 1980-1990 (maasvlakte) |
| Range of substances produced/used/present in soil and groundwater | Soil contamination data (Soqumas database of PoR) and information from industrial companies. |
| Potential sources (existing landfills, etc.) | Soil contamination data and information from industrial companies in combination with activity maps. |
| Potential receptors (residential areas, protected areas, rivers, etc.) | Land use/topographic maps Surface water Pleistocene aquifer Future residential use in Eastern harbor region in vicinity of city of Rotterdam (relevant for redevelopment) |
| Predominant stakeholders | Port of Rotterdam, Municipality of Roterdam, Ministry of Environment, Ministry of Waterways, industrial site users (united in Deltalinqs) |
Organizing Stakeholders
Organizing stakeholders
Stakeholders organization structure for Port of Rotterdam (PoR) megasite
The various stakeholders in PoR are divided in public and private parties.
Public parties
In the Rotterdam Harbour area, soil and groundwater remediation and quality control are to an increasing extent considered in a regional and integral context. Here in, governments and industrial companies seek cooperation and communication in order to find the best economical and ecological approaches. Therefore, already some years before the WELCOME project started, a board of joint authorities in the Rotterdam area has been initiated. Companies have the opportunity to generate a location management plan, which serves as a remediation plan for the whole location and this plan will be evaluated by these authorized authorities. This will prevent new activities from going through separate procedures each time. The following public groups of interest in the environmental management of the Rotterdam area are represented in the board:
- Port of Rotterdam (PoR),
- Environmental Agency for Rotterdam region (DCMR),
- Department of Public Water Works (RWS),
- Department of Environment (VROM).
DCMR. The Environmental Agency is the authority for contaminated land, within the framework of the Dutch soil protection act and provides permits within the framework of the provincial environmental protection law.
RWS. The department of public works ("Rijkswaterstaat" which is an institution of the Ministry of transport and waterways) regulates water quality (i.e. by wastewater discharge permits) and quantity, within the framework of the Dutch law on control of surface water.
VROM. The Ministry of Public Housing, Spatial Planning and Environment (VROM), has in the Rotterdam region a primary task to supervise all local and regional authorities.
Besides the parties represented in the board, other municipalities (located within the Harbour region boundaries) and the Province of Zuid-Holland (regulating of quality of groundwater, and other environmentally specific permits) are involved, incidentally.
Private parties
The most important private parties are companies (tenants/long-term leaseholder of locations in the (PoR). The biggest companies are united in Deltalinqs, a cooperation platform on different issues of the Rotterdam Industry. Deltalinqs promotes the collective interests of the harbour- and industrial companies in the Mainport of Rotterdam. Deltalinqs focuses on strengthening of the competitive position and the sustainable development of the harbour- and industrial areas, and creates a political and social basis for activities carried out by its members. Deltalinqs represents approximately 600 companies that are active in the Mainport of Rotterdam. The aim of Deltalinqs is to avoid (future) liabilities and handle soil (inclusive of groundwater problems) in a cost-effective and sustainable way according to the existing legislation.
Property developers are important when sites are re-developed. In the area of the old harbour close to the Rotterdam city centre, this will be the case. A transition from harbour function into high value inner city developments (office, shopping, and residential area) is to be expected the next two decades. Environmental groups, civilians, water boards and water companies, are occasionally involved as stakeholders.
Group of Stakeholders (GOS) Port of Rotterdam
In the frame of the WELCOME project a group of stakeholders has been formed, with representatives of different public and private parties mentioned above.
The different stages of the megasite management plan for the Rotterdam Harbour Area, following the IMS systematics, has been discussed in meetings together with the IMS expert team for Rotterdam, with a frequency of about three times a year. An independent chairman and a secretary have been elected and control the meetings and file all documents and decisions. Decision making is based on balancing economical versus environmental interests, and future functions in the region. Below an overview of meetings and important decisions are shown.
| Action | Information from: Stakeholders to IMS team |
IMS team to Stakeholders | Discussion between IMS team and GOS |
| Starting IMS | |||
| Form a group of stakeholders | Initiative to form a Group of Stakeholders (GOS) | ||
| Make an overview of boundary conditions | Stakeholders provide information on objectives and interests | IMS team provides overview of objectives and interests as well as the current and possible future strategy for managing contaminated land. | Continuous update of boundary conditions and discussions about the possible future strategy |
| Build the conceptual model | The stakeholders' perception of the situation | Conceptual model outline: basic picture including the transfer pathways that are taken into account and the planes of compliance | Approval and adjustments of conceptual model concept: discussion on receptors (what are the receptors?) |
| Final conclusion for megasite approach | Decision about further IMS development | ||
| Risk Assessment | |||
| Make a megasite description | Stakeholders provide information and data for the megasite | Presenting regular update of the contaminant situation and other megasite characteristics | The conditions for providing the data: confidentiality and the way the results are presented |
| Determine risks and derive local standards | Stakeholders gave suggestions for clustering, including organizational arguments as basis for clustering (such as similarity of activities and the cooperation and synergy between neighboring sites) | IMS team presents arrangement of clusters based on the determined risks and organizational considerations | Finalization of the clusters is still in progress. The formation of clusters only based on risks is unfeasible. Organizational arguments play an important role |
| Finalize risk based clusters | Industrial companies provide their current strategy and criteria formulated in site plans (LBP) | The IMS team presents the delineation of the RMZ, considering the strategy of the industrial companies | No discussion on delineation of RMZ (groundwater systems outside the megasite), but discussion on the position and objectives for the planes of compliance (aquifer situated below the harbour) |
| Risk Management Scenarios | |||
| Define risk management objectives | Discussion on objectives is ongoing | As starting point the IMS team proposed objectives based on discussions between stakeholders | Intensive communication between the IMS team and GOS |
| Prioritization and optimization of risk management scenarios | Not done yet | Not done yet. Scenarios will be proposed to the GOS | Discussion concerning prioritization and selection of the final scenario |
| Implementation | |||
| Build IMS implementation plan | Give comments and suggestions for improvement of implementation plan | Developed IMS implementation plan | Approval and commitment of the implementation plan |
| Develop monitoring program | Provide practical considerations and synergy with existing monitoring programs at site level | Propose a monitoring program at cluster level which is in line with the existing monitoring programs at site level | Intensive communication between the IMS team and GOS |
| Medium-Long term IMS process review | Continuous commitment required | ? | Intensive communication between IMS team and GOS |
The IMS expert team Rotterdam meets as frequently as needed and is represented in each group of stakeholders (GOS) meeting, presenting the technical basis for issues to be discussed. Important meetings are organised with individual stakeholders concerning data transfer to the IMS expert team of Rotterdam. This is experienced as a delicate and time consuming process, but an absolute crucial part in building an Integrated Management Strategy for the whole region.
Financing soil and groundwater quality management
Current practice is the polluter pays - principle. Occupiers have to deliver the sites in original state, as much as possible. In practice, a function-oriented approach for site remediation is granted. The permission of leaving residual-contamination, can be compensated by an integral insurance claim for the damage and depreciation of the land. The Port of Rotterdam is responsible for the remediation of sites that are managed by its organisation, including public areas.
Port of Rotterdam has ordered an investigation to estimate the budget that is needed to meet different soil quality objectives in future, i.e. for full conventional clean-up, and for different cost-effective, regionally oriented risk based approaches. These calculations were done on rough assumptions on extent of contamination and measures needed to reduce risks. This is used as a base for further detailing the risk based approach by following the WELCOME IMS systematics.
Financing in future will be probably done in the framework of a soil and groundwater quality management organisation, under the control of PoR. Financing will be supplied partially by Port of Rotterdam, the Ministry of Ministry of Public Housing, Spatial Planning and Environment (VROM), and industrial companies. The owner or lessee of an industrial site who is responsible for the remediation of the contaminated soil can in this frame make use of the so-called "company regulation" as issued by VROM. The precise elaboration of this joined financing structure was not finalised yet at the moment of completing this IMS. The amount of funds available for management and remediation of the whole harbour region will be probably in the order of 10 to 20 million Euro per year for the coming 10 to 20 years.
Boundary conditions
Boundary conditions
Boundary conditions
- Employment
The megasite of the Port of Rotterdam fulfils an important role as a hub for international goods flows and as a business location for industry and logistic services. The port and industrial complex is of great significance for the European, national and regional economies. The port offers employment to more than 60,000 people in Rotterdam as well as to an additional 255,000 people in the rest of the country. The direct gross added value of the port and industrial area amounts to 7.7 billion euro. This is 1.9 % of the Dutch Gross National Product.
The main objective for managing contaminated land in the Rotterdam harbour is to keep the industrial sites fit for purpose. This means that industrial activities are not hindered by the presence of contamination and that the transfer of sites after the termination of the rental period is not frustrated. In practice agreements are made between the companies and the Port of Rotterdam to leave the site at the same quality level or pay for the cleanup of additional contamination. At the same time it is avoided to enforce the companies to pay a disproportionate high amount of money for clean-up, in order to keep the harbour attractive for the settlement of new industries. In this way to promote and assure the long-term regional employment. - Increase of neighbouring property value
The industrial activities that take place in the Rotterdam harbour attract related activities in the tertiary sector. On a regional scale this has a strong effect on the value of the neighboring property. - Increased tax revenues
Industrial companies in the Rotterdam harbour contribute significantly to the tax revenues. However, an increase of tax revenues due to remediation or management of contaminated land is not expected, because no redevelopment is taking place in most part of the Rotterdam harbour. An increase of tax revenues is however expected for the acquisition of new harbour areas such as the 2nd Maasvlakte which are retained from the sea
- Infrastructure
To support the harbour activities infrastructure is continuously maintained and improved. The presence of contamination and remediation does not significantly influence the planning of infrastructure. - Improvements in environmental quality
Due to long industrial history of the Rotterdam harbour, the soil and groundwater have become contaminated. The management of contaminated land at the Rotterdam megasite will prevent a further deterioration of the subsurface and the neighboring (ground)water systems. There are no nearby human and ecological receptors that are at stake in the Rotterdam harbour (assuming that the industrial companies take sufficient protective measures for their workers). Nor are there any restrictions for the current use of groundwater or surface water. Nevertheless the management op contaminated land is required to keep the sites fit for their functional industrial use. Some stakeholders believe that the subsurface and aquifer have an intrinsic value to be protected for future generations, regardless of the risk that exist. - Protection and improvement of public health
Not relevant for the Rotterdam megasite. - Reduced urban sprawl
Not relevant for the Rotterdam megasite. - Financial resources and costs
The polluter pays - principle is generally accepted. Occupiers have to deliver the sites in original state, as much as possible. In practice a function-oriented approach remediation for site remediation is granted. The permission of rest-contamination, in this case will be compensated by an integral insurance claim for the damage and depreciation of the land. The Port of Rotterdam is responsible for the remediation of sites in their own management, including public areas.
The owner or lessee of an industrial site who is responsible for the remediation of the soil contamination can use the so-called "company regulation". Depending on the time on which the contamination was caused, the involvement of the owner or lessee with that and/or the moment on which the terrain was bought, the government will contribute in the payment of the soil remediation. The remaining amount will be passed on to the contaminator. Generally this can only be successful if there is a clear polluter and when the owner still has an enduring relation with them.
By order of the port of Rotterdam an investigation is being made at this moment to estimate the amount of budget that is needed to meet the objectives. The yearly costs of a cost effective approach of soil and groundwater contamination will be calculated. After tying up this inventarisation (summer 2002), clearness will be given about the future way of contaminated site management by means of a contaminated site management board, the way of financing and the role the different parties concerned will have.
| Expected benefits Expected loses |
Carrying redevelopment |
Doing nothing |
| Impact on neighboring property values | Limited effect, indirectly by keeping the industrial sites fit for purpose | Possible negative effect due to loss of industrial activities |
| Employment | Limited effect, indirectly by keeping the industrial sites fit for purpose | Possible negative effect due to loss of industrial activities |
| Stabilization in the taxes revenues | Limited effect, indirectly by keeping the industrial sites fit for purpose | Possible negative effect due to loss of industrial activities |
| Infrastructure | No influence | Possible negative effect due to loss of industrial activities |
| Environment and health | Improvement of environment and ensuring that workers are not exposed | Deterioration of environmental quality |
Inventory of information
Inventory of information
Inventory of information
In case of the port of Rotterdam (PoR) several databases were used for the megasite description. Some of them were maintained by the Rotterdam authorities for long time, and were already available when the project has started. For soil description, geochemical and contamination data from the following sources were used:
- the Soqumas contains information from all soil investigations that have been carried out for the Port of Rotterdam. It contains contaminant data of analysis of soil as well as groundwater samples for many types of contaminants. Also data on location, depth, soil, groundwater level etc. can be found in the SOQUMAS database. Data are primarily from industrial sites in the harbour area,
- Information had been provided by several industries including:
- industrial activities;
- contamination;
- subsurface conditions;
- geohydrology.
Difficulties found during data acquisition
The Port of Rotterdam has a central database called Soil Quality Management System (SOQUMAS). SOQUMAS contains information from soil investigations that have been carried out for the Port of Rotterdam. It contains data of soil and groundwater analysis for many types of contaminants. Also data on location, depth, soil, groundwater levels, etc., can be found in the SOQUMAS database. Data are primarily from industrial sites in the harbor area.
The SOQUMAS does not contain all required data. Other information, like geohydrological data, is kept in several databases and a lot of site-specific information is kept by the industrial companies (in many cases the information is confidential).
A significant part of data management for the Port of Rotterdam megasite consists of combining and synchronising the information from several datasources in such a way that they have the same units, sequence and structure.
Combining data from diverse databases is a tedious and time-consuming task, which is strongly dependent on agreements on availability and confidentiality. Future plans are made to synchronise the different databases to the SOQUMAS database using data-interfaces. This should improve the uniformity and safe time for the future runs (updates) with the IMS. For other megasites that are dealing with multiple data sources, it is highly recommendable to start with data synchronisation at the beginning of the IMS.
Conceptual Model
Conceptual model
Potential sources and contaminants
The Port of Rotterdam megasite covers an area which approximates the "Rijnmond" region, and includes the entire harbour area, the municipality of Rotterdam and the surrounding polder areas. The harbour area is the main source area of contaminants, and the polders are the receptor since, due to the groundwater flow direction, they are in potential danger of receiving contaminated groundwater.
The PoR megasite includes residential, recreational, agricultural and industrial areas. The prevalent types of industry include wet and dry bulk, food, distribution, containers, sludge dumps, and other activities. An overview is shown in the figure below.
Hence, in the case of the PoR megasite, it was possible to infer the presence of certain pollutants in the soil and groundwater based on the records of past and present industrial activities. The relation between activities and expected potential contamination was determined specifically for the Rotterdam harbour conditions.
Top view
Decision on IMS
Decision on IMS
Delineation of RMZ at the Rotterdam megasite
Refering the risk-based approach, the entire harbour area of the Rotterdam is considered as one area combining
all contaminated sites. This area provides time and space for natural attenuation processes to take place
and prevent that contaminants reach the borders of the harbour area. Therefore this area is further referred
to as Risk Management Zone (RMZ).
For the Rotterdam harbour, the RMZ is delineated by so-called planes of compliance. The planes of
compliance are the boundaries of receptors that need to be protected. Objectives will be formulated
for these planes of compliance, and also be monitored here to see if the situation complies with the
formulated objectives. The 1st plane of compliance marks the direct groundwater influence to the
surface water (harbour). Regarding the deep groundwater at the Rotterdam harbour, two receptors
have been identified: the aquifer directly below the harbour and the aquifer outside the harbour
area. The 2nd plane of compliance marks the boundary with the aquifer directly below the harbour
area, and the 3rd plane of compliance the boundary with the aquifer outside the harbour (see figure).
