Good Practices and Policy Recommendations_Final Version

Good Practices and Policy Recommendations
on Theme 1

Good Practices & Policy Recommendations / 2011 2
Contents
0. Introduction................................................................................................................................3
1. Description of the situation in the Tagus Estuary......................................................................4
1.1. Situation in the Tagus Estuary............................................................................................5
1.1.1. Main physical and human features ...........................................................................5
1.1.2. Institutional framework ..........................................................................................12
1.1.3. Identification and brief description of the Estuary Integrated Management Plan..27
1.1.4. Identification of protected and particularly sensitive areas....................................30
1.2. Good Practices in the Tagus Estuary................................................................................38
1.3. Conclusions and Recommendations.................................................................................40
2. Description of the situation in the Elbe Estuary......................................................................41
2.1. Situation in the Elbe Estuary ............................................................................................41
2.1.1. Main physical and human features .........................................................................41
2.1.5. Identification of the main problematic issues.........................................................48
2.2. Good Practices in the Elbe Estuary ..................................................................................48
3. Description of the situation in the Severn Estuary ..................................................................51
3.1. Situation in the Severn Estuary.........................................................................................51
3.1.3. Integrated Management Plan..................................................................................55
3.2. Good Practices in the Severn Estuary...............................................................................61
4. Situation in the Rhine-Scheeldt Meuse Delta..........................................................................65
4.1. Description of the situation in the Rhine-Scheldt Meuse Delta .......................................65
4.2. Good Practices in Rhine-Scheldt Meuse Delta.................................................................75
5. Dealing with the topic “Integrated Delta Approach” ..............................................................80
5.1. Joint problems and issues .................................................................................................80
5.2. Lessons, Conclusions and Recommendations ..................................................................81
Literature Cited.............................................................................................................................83

0. Introduction
The delta and estuary regions in Europe encounter similar characteristics, problems and
opportunities, as they have to deal with a very dynamic development of urbanisation, economic
activities, infrastructure and natural and technological risks.
The high spatial and economic demands are threatening the sustainable development and
maintenance of the special character of Delta regions. These areas are often characterized by
both very important ecological values (river basin and coastal zone), and concentrations of
urban and economic activities.
Regional policy measures are often inefficient and ineffective as an integrated and sustainable
approach is often absent. That is why some Delta areas throughout Europe decided to start a
cooperation to exchange experiences and improve their regional policy instruments, methods
and approaches.
Taking into account this problematic issue, this report is focused on the identification of good
practices for a “Better Integrated Delta Approach” (Theme 1), based on the experience of the
Tagus Estuary, Elbe Estuary, Severn Estuary and Rhine-Scheldt Meuse Delta (Figure 1).
For each estuary or delta, a brief description of their situation is presented (main physical and
human features, institutional framework, identification and brief description of the estuary
management plan, identification of protected and particularly sensitive areas and identification
of the main problematic issues). Good practices concerning estuary management are also
analysed.
Supported by the experience of these estuaries and deltas, the report includes a reflection about
the joint problems and presents lessons, conclusions and recommendations for a “Better
Integrated Delta Approach”.

Figure 1. Network of Estuaries and Deltas on Theme 1
(“Better Integrated Delta Approach”)
Source: Own elaboration.

1. Description of the situation in the Tagus Estuary
1.1. Situation in the Tagus Estuary
1.1.1. Main physical and human features
Physical features
The Tagus Estuary (Figure 2) is one of the largest estuaries in Europe occupying an area of 320
km2
(from the estuary’s mouth to Vila Franca de Xira, the upstream limit of saline water
intrusion under normal hydrological conditions).
Figure 2. The Tagus Estuary location

The North bank has a more accentuated orography and the South bank alluvial floodplains
resulting from river erosion and deposition. The estuary presents an unusual morphology
characterized by an extensive and shallow interior region with widths that can reach 15 km, and
then follows a NNE-SSW direction into a narrow and deep channel with a minimum width of
1.8 km towards ENE-WSW (Cf. FREIRE, TABORDA & ANDRADE, 2006: 2-3) – Figure 3.
Figure 3. The Tagus Estuary
Source: Administration of the Port of Lisbon, S.A.
According to FREIRE, TABORDA & ANDRADE (2006: 3), the internal estuary is characterised by
longitudinal sediment furrows, cut by tidal channels and extensive zones of tidal flats, mainly
adjacent to the left bank, supporting the development of important areas of salt marshes.
The Tagus Estuary has several alluvial flats as a result of river erosion, transport, deposition and
accumulation of matter transported by the river. “The estuary is subjected to constant silting,
requiring occasional dredging to maintain the navigational channels (…) the estuary is navigable
Fotografia: João Ferrand

in all of its extension for vessels with draught to 2.5 m, and 20 m of mast, because of the
bridges” (GOMES, 2008: 10).
According to GOMES (2008: 29-31), the estuary presents five distinct zones (Figure 4):
• Zone 1 – The Upper Estuary: between Muge and Vila Franca de Xira, it is sailable
(cruising navigation) in any tide up to Cais da Palhota, three miles from Muge, needing
afterwards the help of the tide upstream;
• Zone 2 – The Middle Upper Estuary: between Vila Franca de Xira and the Vasco da
Gama Bridge, characterized by the widening of the estuary, with the appearance of bars
or mouchões (alluvial islands), salt marshes, and extensive areas of ebb, and included
almost in total in the Natural Reserve of the Tagus Estuary, with an average depth of 2
m;
• Zone 3 – The Middle Lower Estuary: between the Vasco da Gama Bridge and the line
between Lisbon and Almada (better known as Mar da Palha/Palha Sea), with an average
depth of 7 m.
• Zone 4 – The Lower Inner Estuary: between Lisbon/Almada and the Line-Between-
Towers (Linha-Entre-Torres) downstream, comprises a narrow and deep channel, with
shallows near Bugio.
• Zone 5 – The Lower Outer Estuary: this zone comprises the ebb stream of imprecise
limits until Cascais and the waiting buoy; includes the entrance channels to the Lisbon
port.

Figure 4. The Tagus Estuary Zones
Source: Own elaboration, based in GOMES, 2008.
The main physical characteristics of the estuary are presented in the following table:
Table 1. Main physical characteristics of the Tagus Estuary (under average hydrological conditions)
Physical Characteristics Values
Upstream limit of tidal action 80 km (Muge)
Upstream limit of salt water intrusion 50 km (Vila Franca de Xira)
Total area 320 km
2
(Vila Franca de Xira)
Intertidal area 130 km
2
Maximum width 15 km
Average width 4 km
Maximum depth 46 m
Average depth 10.6 m
Average total volume 1800 x 10
6
m
3
Source: FREIRE, TABORDA & ANDRADE, 2006.

The tide is an important factor in the Tagus Estuary given that the average tidal volume (600 x
106 m3
) is significant in relation to the water volume below the low-tide level (1900 x 106 m3
).
This estuary corresponds to a “positive type” estuary, also being characterised as a partially
stratified estuary (Cf. ICN, 2002: 5).
The tidal range observed and the geomorphological characteristics at its mouth, both at the
upper and lower estuary, allow for the inclusion of the Tagus Estuary in the class of meso-tidal
estuaries, subject to a tide with a semi-diurnal period and with the rising tide taking longer than
the ebb tide (Cf. ICN, 2002: 5-6).
Human features
The resident population of the 12 municipalities1
that make up the margins of the Tagus Estuary
is 1.762 million inhabitants. It is on the North bank that the greatest population concentration
occurs (1.180 million inhabitants – 67.0% of the total), with particular concentration in the city
of Lisbon, with 479 thousand inhabitants (40.7% of the resident population on the North bank of
the estuary). In its turn, on the South bank of the Tagus Estuary, the greatest concentration
occurs in the Almada-Seixal-Barreiro area with 421 thousand inhabitants (72.4% of the resident
population of this bank of the estuary).
Table 2. Resident population per municipality (2001 and 2009)
Resident population (inhabitants)
Municipality
2001 2009
Alcochete 13 010 18 113
Almada 160 825 165 991
Barreiro 79 012 77 529
Benavente 23 257 28 890
Cascais 170 683 189 606
Lisboa 564 657 479 884
Loures 199 059 193 630
Moita 67 449 71 844
Montijo 39 168 41 623
Oeiras 162 128 172 609
Seixal 150 271 178 332
Vila Franca de Xira 122 908 144 123
Total 1 752 427 1 762 174
Source: INE, XIV Recenseamento Geral da População, 2001 and INE,
Anuário Estatístico da Região de Lisboa – 2009, 2010
1
North bank of the Tagus Estuary: Cascais, Oeiras, Lisbon, Loures and Vila Franca de Xira; South bank of the
Tagus Estuary: Almada, Seixal, Barreiro, Moita, Montijo, Alcochete and Benavente.

Compared to 2001, the resident population of Tagus Estuary region increased by 9,747
inhabitants, which represents a population change of +0.6%. This overall change hides two
different realities: the Northern bank losing -3.2% while the Southern bank grew by +9.3%.
Figure 5. Resident population per municipality (2001)
Source (Statistical): INE, XIV Recenseamento Geral da População, 2001.
Source (Map): Own elaboration.

Figure 6. Resident population per municipality (2009)
Source (Statistical): INE, Anuário Estatístico da Região de Lisboa – 2009, 2010.
Source (Map): Own elaboration.
On the other hand, the Tagus Estuary region occupies a strategic location (in the centre of the
Lisbon Metropolitan Area) which allied to its natural characteristics has allowed it to become,
through time, an important catalyst in the development of various economic activities related to
the diversity of uses of the estuary (water plan) and adjacent areas. Among these, the following
stand out: agricultural activities, fishing and aquaculture, forestry, recreation and leisure
activities, shipping, naval construction, industrial uses and transportation (Figure 7).

Figure 7. Economic activities developed in the Tagus Estuary
Source: Own elaboration based in MONIZ, 2009 and APL, 2007.
1.1.2. Institutional framework
There are several entities, which are directly and indirectly involved in the planning and
management of the Tagus Estuary (estuarine fringes and water plan) as well as in the planning
and management of the activities, which occur in the latter. Among these entities are: the
Regional Coordination and Development Committee Lisboa and Vale do Tejo, the Tagus River
Basin District Administration, the Institute for the Conservation of Nature and Biodiversity, the
Administration of the Port of Lisbon and Town Councils.

In what concerns to the Regional Coordination and Development Committee Lisboa and Vale
do Tejo, the Regional Plan of the Lisbon Metropolitan Area2
(Resolution of the Council of
Ministers no. 68/2002, of 4 April) is currently under revision (in public discussion until 31
January 2011). The Regional Plan of Oeste and Vale do Tejo was approved in 2009 (Resolution
of the Council of Ministers no. 64-A/2009).
The territorial strategy defined in Regional Plan of the Lisbon Metropolitan Area (plan under
revision) centres itself on 4 objectives:
• To re-centralise the Metropolitan Area on the Tagus Estuary, preserving the natural
values and protected areas;
• To develop the Grande Lisboa, a city of two banks, anchored in the city of Lisbon;
• To develop a more polycentric regional urban system;
• To value the territorial diversity, by correcting existing unbalances. (Cf. FONSECA
FERREIRA & VARA, 2002: 30).
In this way, one of the fundamental vectors to promote the Plan strategy is the presence of the
water, which “should be valued as a resource with environmental and aesthetic value, and the
Tagus Estuary as a space of territorial differentiation” (FONSECA FERREIRA & VARA, 2002: 32).
The Tagus Estuary is here interpreted as a territorial unit of “strategic importance at a
metropolitan and national level. Its natural values stem from its size, diversity, richness of the
flora and fauna and, from an overall perspective, the variety of ecosystems found here”
(FONSECA FERREIRA & VARA, 2002: 42).
In regards to the General Rules of Regional Plan of the Lisbon Metropolitan Area, these
prioritize:
• Preserving and restoring the natural values of great biodiversity and ecological richness
which make up the Tagus Estuary, a central and shaping element of the Lisbon
Metropolitan Area, creating the opportunity for its use in tourism, recreation and leisure,
in harmony with the development of urban riverside centers and existing natural values;
2
According to Law no. 48/1998, of 11 August, the regional plans for land use planning “establish the guidelines for
the planning of the regional territory and define regional networks of infrastructure and transports, providing a
frame of reference for the development of local spatial planning plans”.

• Renew riverside urban spaces and the margins of the estuary by promoting a functional
integration with the landscape;
• Requalification of areas/spaces and functional units that encompass large disused, or
falling in disuse, industrial complexes which must be integrated in projects aimed at
redeveloping riverside areas, namely the riverfront between Lisbon and Vila Franca de
Xira and the riverfront of the Almada-Seixal-Barreiro area. (Cf. FONSECA FERREIRA &
VARA, 2002: 95)
In its turn, the Proposal to Revise the Regional Plan of the Lisbon Metropolitan Area3
argues
that the territorial unit “Tagus Estuary” has remained unaltered or almost so in relation to the
scenario proposed in 2002, with the following aspects being singled out as most important for
this unit:
• Strategic importance for the conservation of nature and biodiversity;
• Importance of the diverse economic activities;
• Conflicts and threats occurring due to the existence of several uses and functions;
• Urban renewal of some areas on the South bank of the estuary;
• Lack of a Management Plan for the Tagus Estuary;
• Susceptibility to seismic activity and flooding by tsunamis. (ALMEIDA, SANTANA &
FONSECA FERREIRA, 2010: 47)
The proposal to revise the Regional Plan of the Lisbon Metropolitan Area defines the following
strategic options for the territorial unit “Tagus Estuary”:
• To ensure that decisions regarding the localization of infrastructure and establishments,
essential to the economic activities sustained by the estuary, are taken with the principle
of conservation and sustainability;
3
The revision of the “Regional Plan of the Lisbon Metropolitan Area” was determined by the Resolution of the
Council of Ministers no. 92/2008, of 5 June. This revision is largely justified by the need to adapt this instrument
for territorial management (i) to current changes in the decisions regarding the localization of large infrastructure in
the Lisbon Metropolitan Area, (ii) to the proposals stipulated in the National Programme for Spatial Planning
Policy and (iii) to the strategic options defined in the National Strategic Reference Framework 2007-2013 and the
Regional Strategy Lisboa 2020.

• To value the economic and cultural aspect of fishing communities in the land use
planning processes;
• To ensure the realisation of the strategic objectives of the project “Arco Ribeirinho Sul”,
namely urban renewal interventions;
• To preserve the natural habitat of the estuary margins, bays and creeks, especially salt
marshes and other wetlands;
• To promote a spatial planning of the estuary margins that is adapted to the seismic
activity and susceptibility to flooding by tsunamis. (ALMEIDA, SANTANA & FONSECA
FERREIRA, 2010: 48)
Lastly, in the Regional Plan of Oeste and Vale do Tejo4
, the Natural Reserve of the Tagus
Estuary is composed of the territorial units “Lezíria do Tejo” and “Charneca Ribatejana”.
According to Resolution of the Council of Ministers no. 64-A/2009, of 6 August, the former is
thought to “play a fundamental ecological and economic role due to the soil’s potential for
agriculture”. The latter contains “a great number of species to be preserved and conserved”.
Another Instrument for Territorial Management in effect in the Tagus Estuary region is the
River Basin Management Plan5
(Sectoral Plan), whose preparation was framed by the following
strategic objectives:
• Recuperation and prevention of the loss of quality of surface and underground waters,
protection of the aquatic and riparian ecosystems and promotion of a good water quality;
• Promotion of the sustainable use of water, in a balanced and long-lasting manner,
ensuring the provision of water in the sufficient quantity and quality to satisfy the human
consumption and other socioeconomic activities,
• Prevention and mitigation of the effects of floods and droughts, as well as the effects of
serious pollution incidents;
• Planning of the occupation and uses of the watershed and floodable areas (Instituto da
Água, 2000a: 6-7).
4
Resolution of the Council of Ministers no. 64-A/2009, of 6 August.
5
Approved by the Regulatory Decree no. 18/2001, of 7 December.

In this document, the importance of the Tagus Estuary is revealed, at both an ecological level
and the economic and social functions it carries out. It is highlighted, however, that the estuary
is a target of “intense aggression on behalf of large urban and industrial developments and of
vast areas of irrigated land surrounding it, as well as the significant pollution associated with
some watercourses that flow into the estuary” (Instituto da Água, 2000b: 16). As such, these
problematic issues are analysed in this Plan.
More recently, the new Water Law6
introduced and determined the creation of Special Plans for
Land Use Planning with a principle objective of protection and valuing of the water resources
encompassed in Management Plans for estuaries.
In agreement with Article 22 of the Law no. 58/2005, of 29 December, these plans “aim to
protect the waters, beds and margins and the ecosystems which are found in them, as well as
social, economic and environmental valuing of the surrounding terrestrial areas and, namely:
a) To assure the integrated management of transition waters with interior and adjacent
coastal waters, as well as the respective sediments;
b) To preserve and restore protected or endangered aquatic and freshwater species and their
habitats;
c) To plan the occupation of coastal areas and preserve places of special urban, recreational,
tourist and aesthetic interest;
d) To indicate the permitted uses and constraints for the industrial and transport activities
located in the estuary”.
Taking into account the new Water Law, the Decree-Law no. 129/2008, of 21 June, established
the regime of estuaries management plans. The development of the Tagus Estuary Management
Plan is a responsibility of the Tagus River Basin District Administration (see chapter 2.1.3).
Another strategic institutional player in the Tagus Estuary is the Institute for the Conservation of
Nature and Biodiversity. Among the duties of this public institute, established in Article 3 of the
Decree-Law no. 136/2007, of 27 April, is to “assure the preservation and conservation of nature
6
Law no. 58/2005, of 29 December, transposes into national legislation the Council Directive 2000/60/EC of the
European Parliament and Council of 23 October, and establishes the basis and institutional framework for the
sustainable management of the waters.

and biodiversity and the sustainable management of native wild flora and fauna species and
habitats, promoting the development and implementation of plans, programs and actions,
namely in the areas of inventory, monitoring, supervision and information systems”.
Within its duties this institute is responsible for the management of the Natural Reserve of the
Tagus Estuary7
having coordinated the development of the Management Plan for the Natural
Reserve of the Tagus Estuary8
. The Resolution of the Council of Ministers no. 44/2001, of 10
May, which determines the development of this plan, recognizes that the correct territorial
management of this Natural Reserve requires a spatial plan that ensures the achievement of the
objectives which lead to its classification as a protected area and, as such, contributes in an
effective way to the realization of the nature conservation policy”.
It is a Special Plan for land use planning that acts upon this area of the Reserve. The protection
rules for the estuary area as defined in the Management Plan for the Natural Reserve of the
Tagus Estuary, state that:
• Complete Protection – the areas of the Natural Reserve of the Tagus Estuary under total
protection encompass the salt marshes of Pancas and the intertidal zone associated with
this system along a 1000 m section of the estuary. These areas are natural zones where
biological and/or ecological values are exceptional from the point of view of nature
conservation and are characterised by their heightened environmental sensitivity. These
areas are to experience minimum disturbance to ensure the continuation of natural
processes whose development is to be left entirely to nature with no human interference.
They are therefore areas not necessary to Man and whose intervention is not necessary
Figure (ICNB, 2007: 14) – Figure 8.
• Partial Protection Type I – areas of partial protection type I encompass the remaining salt
marshes areas of the Natural Reserve of the Tagus Estuary and margin reedbeds of the
intertidal zone. These are areas with natural and landscape values which have a moderate
ecological sensitivity. They contribute to the maintenance of the natural and landscape
characteristics. (Cf. ICNB, 2007: 14-15)
7
Created under the Decree-Law no. 565/76, of 19 June, covering a total area of 14,416.14 ha (corresponding to
most of the estuary waters).
8
Resolution of the Council of Ministers n.º 44/2001, which determines the creation of the Special Plan of the
Natural Reserve of the Tagus Estuary, committing to it the Institute for the Conservation of Nature and
Biodiversity.

• Partial Protection Type II – the partial reserve type II encompasses the salt production
fields, the lake of the Mouchão do Lombo do Tejo and the remaining inter-tidal zones.
They are areas which contain natural and landscape values of moderate sensitivity,
including areas which make up the transition to areas with higher protection status.
These areas contribute to the maintenance and value of the natural and landscape
characteristics, and the uses and activities associated with them. (ICNB, 2007: 15)
Figure 8. Natural Reserve of the Tagus Estuary
Source: ICNB, 2007.

The Management Plan for the Natural Reserve of the Tagus Estuary also plans to balance
economic actions and activities that take place inside this protected area with nature
conservation and the preservation of natural values. These activities include: fishing and
commercial catch; recreation fishing; aquaculture; buildings and infrastructures; nature tourism;
scientific research and monitoring; military exercises.
Another Instrument for Territorial Management focused upon the area of the Tagus Estuary,
coordinated by the Institute for the Conservation of Nature and Biodiversity, is the Sectoral Plan
of Natura 20009
. This plan “aims to preserve and value the Sites and Zones of Special Protection
on continental territory, as well as the maintenance of species and habitats at a favorable
conservation status. In its essence, it is an instrument for biodiversity management (...) and sets
the strategic guidelines for land use management of these areas taking into account the natural
values which can here be found here” (ICNB, 2007).
For the Site “Tagus Estuary” (PTCON0009) – Figure 9 –, this document identifies the following
threat factors: industrial, domestic and agricultural pollution or even from dredging, ballast
water and ship tank washing; harmful fishing techniques; agro-forestry-pastoral management
practices and other activities detrimental to the conservation of protected species; tourist and
urban pressures; hunting (ICNB, 2008a: 6).
The following main management guidelines have been established:
• The management of this Site should pay particular attention to the preservation of the
diverse habitats associated with the estuarine ecosystem as well as the conservation or
restoration of terrestrial freshwater areas, namely by promoting the maintenance of
riparian native vegetation and limiting interventions on the margins and bed of
watercourses, fundamental to the conservation of many faunal species;
• The management of this Site implies the appropriate planning, namely of urban-touristic
constructions and infrastructure and the promotion of the sustainable use of the existing
resources, ensuring the economic and social competitiveness of the activities;
• The detrimental fishing practices must be avoided or corrected;
9
Approved by the Resolution of the Council of Ministers no. 115-A/2008, of 21 June.

• The natural regeneration of protected forest habitats must be encouraged and the
sustainability of economic activities associated with them increased to serve the purpose
of conservation. (ICNB, 2008a: 6).
Figure 9. Site “Tagus Estuary”
In its turn, for the Special Protection Zone “Tagus Estuary” (PTZPE0010) – Figure 10 – its
proximity to urban and industrial areas under expansion is considered to “raise a series of
problems related to buildings and communications as well as tourist and urban pressure”,
highlighting the undergoing threats of “industrial, domestic and agricultural pollution or from
dredging, ballast water and washing ship tanks; harmful fishing techniques; agro-forestry-

pastoral management practices and other activities detrimental to the conservation of protected
species; tourist and urban pressures; hunting” (ICNB, 2008a: 6).
Figure 10. Special Protection Zone “Tagus Estuary”
In relation to the guidelines for the management of this Special Protection Zone, it has been
established that:
• The management guidelines for this zone are mainly directed at water fowl, certain
species of raptors, migratory woodland passerines and migrating riparian reedbed
passerines;

• Within this approach the maintenance of activity in aquatic habitats is fundamental.
Complementary to this, the retention of natural and semi-natural habitat patches in
agricultural and forestry activities must be ensured as must the promotion of the
sustainable use of existing resources to guarantee economic and social competitiveness
of the activities and raising awareness concerning the value of the Special Protection
Zone;
• Special attention must be given to the food availability of target species encouraging
measures that limit significant changes to the fish and benthic invertebrate communities.
(ICNB, 2008b: 6).
Another institutional actor that intervenes in the Tagus Estuary is the Administration of the Port
of Lisbon. The area under the jurisdiction of the port10
encompasses a significant part of the
estuarine territory, including 11 municipalities (Oeiras, Lisboa, Loures, Vila Franca de Xira,
Benavente, Alcochete, Moita, Montijo, Barreiro, Seixal and Almada – 110 km of riverfront) and
32,500 ha of marine area (see Figure 11).
In regards to the duties of the Administration of the Port of Lisbon, the regime established by
the Law no. 58/2005, of 29 December, determines, in the Article 13, that “in marine areas of
public domain under port administration, the duties of the Administration of the Port of Lisbon
concerning licensing and supervision of the use of water resources, are delegated to the port
administration”.
The guidelines for the development of the Port of Lisbon’s activities are defined in the Strategic
Plan for the Development of the Port of Lisbon. This Plan prioritizes the organization of port
activity into three areas of business: containers; foodstuffs; tourism, recreation and leisure.
10
Defined by the Decree-Law no. 336/98, of 3 November.

Figure 11. Jurisdiction Area of the Port of Lisbon
The spatial model for the development of the Port of Lisbon is based on the following spatial
planning principles:
• The Tagus Estuary will become an area of integration of the various port activities,
through the development of fluvial transportation of cargo (containers and bulk cargo)
and passengers;
• Container terminals must be connected with a set of regional logistic platforms,
preferentially through rail and fluvial transportation and, in this way, priority should be
given to logistic platforms connected by these modes of transport;
• The use of existing port infrastructures must be optimized;

• Projects to integrate port uses and urban uses must be created, bearing in mind the
balance needed between the uses without compromising the efficiency and economic
profitability of strategic port activities. (Cf. APL, 2007: 21)
To achieve the realization of the defined strategy, and subsequently the development of the Port
of Lisbon, the following actions are considered central:
• Reorganisation of the Alcântara Container Terminal (Figure 12): the objective is, with a
minimum of public investment, to gradually increase the handling capacity of containers
from the current 350,000 TEU to 700,000 TEU and 1,000,000 TEU.
• Expansion of the Santa Apolónia Cruise Terminal and explore new markets: the
objective is to concentrate and increase the area of tourist cruises in the centre of Lisbon,
making the offer more appealing and the service more efficient.
• Redirecting the management of recreational nautical activities: the objective is to take
advantage of the potential of the estuary, considering two lines of development- “river-
system” and “Atlantic-system”.
• A system of fluvial transportation of cargo and logistics (containers and bulk foodstuff):
the objective is to use the estuary and river as a mean of connecting the areas of port
operation with logistic platforms reducing the traffic on urban road infrastructures and
the subsequent environmental effects.
• Implementing the connections of the Port of Lisbon and promote its integration with
logistic areas: the objective is to integrate the Port of Lisbon with logistic areas
connected (currently, or in the future) by river and/or rail transport.
• Territorial management of the jurisdiction area: the objective is to undertake an
integrated and sustainable management policy, in economic and planning terms, of the
whole area, including margins without port activities. (APL, 2007: 22-25)

Figure 12. Alcântara Container Terminal
Source: Administration of the Port of Lisbon, S.A
For the development and correct planning and management of recreational nautical activities in
the Tagus Estuary, the Administration of the Port of Lisbon has under development the Tagus
Estuary Integrated Plan of Supporting Infrastructures for Nautical Recreation (Figure 13).
This document holds as a general objective the creation of an integrated network of
infrastructures:
• Adequate to the territory characteristics;
• Adequate to the demand;
• Complemented by an offer of activities and good support services;
• Based on environmental and social sustainability criteria. (Cabral, 2010: 5)

Figure 13. Tagus Estuary Integrated Plan of Supporting Infrastructures for Nautical Recreation –
Territorial Model
Source: Own elaboration based in CABRAL, 2010.
Finally, the riverfront municipalities make up an important set of institutional actors within the
Tagus Estuary. The Municipal Master Plans are determinant factors in the organization, use and
occupation of the surrounding areas concerning the estuary water plan (Figure 14).

Figure 14. Municipal Master Plans in Tagus Estuary Region
Source: Own made.
1.1.3. Identification and brief description of the Estuary Integrated Management Plan
As mentioned previously, the Tagus Estuary Management Plan is a Special Plan for Land Use
Planning (as defined in the legal regime of Instruments for Territorial Management), under the
responsibility of the Tagus River Basin District Administration.
This instrument bridges an important gap left in coastal management, which results from the
non-inclusion of port areas in the Coastal Zone Management Plans. The Tagus Estuary
Management Plan, by giving prevalence to the integrated land use planning and management of
the estuary, must also contribute to the balance of economic activities – port activities and

industrial activities –, urban land use, nature protection and recreational and leisure activities
that take place in the estuary and along the estuarine margins.
Encompassing transition waters, river beds and estuarine margin, and also an estuarine fringe
with a maximum width of 500 m (Figure 15), the Tagus Estuary Management Plan places itself
as a tool to promote change, with the objective of balancing the planning of hard spaces (land
uses and occupation) with soft spaces (coordination, collaboration and institutional mediation
spaces).
Figure 15. Tagus Estuary – Estuarine fringe
The general objectives of the Plan are, essentially, the following:

• To protect and value the environmental characteristics, assuring the sustainable use of
water resources, as well as the natural values associated with these;
• To assure the integrated management of transition waters with interior and adjacent
coastal waters, as well the respective sediments;
• To assure the sustainable functioning of estuarine ecosystems;
• To preserve and restore protected or endangered aquatic and riparian species and their
respective habitats;
• To guarantee the integration with the Instruments for Territorial Management, plans and
programs of local, regional and national interest, applicable to the area encompassed by
the Tagus Estuary Management Plan. (MONIZ, 2009: 23)
The specific objectives of this Plan are, in essence, five:
• To define utilisation rules of the estuary, by identifying the protection and valorisation
measures of water resources;
• To define rules and safeguarding measures for the use of the estuarine fringe taking into
account the available Instruments for Territorial Management, which allow a sustained
management of the associated ecosystems;
• To define complementary measures and different levels of protection, that are
fundamental for nature and biodiversity conservation, in areas not under a legal
protection status;
• To establish preferred, conditional or prohibitive uses to preserve areas of local urban,
recreational, touristic, landscape, environmental and cultural interest;
• To guarantee the conditions for the development of port activity and the associated
maritime transport and land transport accessibilities. (SILVA & MONIZ, 2010: 11)
The Tagus Estuary Management Plan should be a supplementary instrument in regards to the
subject matter and approach, and must generate flexible and adaptive management models. This
Plan must also ensure the articulation with other Instruments for Territorial Management.
The opportunities and challenges of the Plan are the following:

• Correct identification of the land uses and activities that interfere with the good status of
the water bodies and regulations and measures to implement to redress this issue;
• Involving the key actors in the development of a Plan for the Tagus Estuary with an aim
to promote the conciliation of interests, in order to create consensus and bring about a
shared responsibility of the land use planning and management;
• Adequate articulation of the economic activities – port activities, industrial activities,
tourism and fishing activities – with the function of protecting natural values and with
recreation and leisure activities;
• Inter-municipal cooperation in the articulation of projects bringing value to riverfront
areas;
• Identification of partnerships associated with specific actions in the management of the
estuary’s water resources. (MONIZ, 2009: 25)
It is important to emphasize that the constant involvement of local stakeholders whose activities
are centred on the estuary is fundamental to the dynamic, efficient and innovative character of
the planning stage and consequently the successful completion of the Plan objectives. It is
precisely with this objective that the Decision no. 21020/2009, of 10 September, of the Ministry
of Environment, Spatial Planning and Regional Development states that “the development of a
Tagus Estuary Management Plan will be an important source of discussion – between the actors
that utilise and act upon it – of the planning and management options about an estuary of
international importance in order to achieve an integrated and sustainable approach for water
management and uses”.
1.1.4. Identification of protected and particularly sensitive areas
The Tagus Estuary is an important strategic area for nature conservation with an important
biological potential, and it is a central environmental element in the Lisbon Metropolitan Area.
It is widely accepted that “its natural values stem, particularly, from its size and functional
diversity, from the richness of the fauna and flora and, in a general way, from the diversity of
ecosystems that can be found within it”. (FONSECA FERREIRA & VARA, 2002: 42)

In fact, it is a region denoted by an extraordinary diversity of landscapes as well as high
biodiversity (both flora and fauna). This natural heritage richness is highly susceptible and
vulnerable and therefore it is imperative to know and characterize the areas under a legal
protection status.
The following middle and upper estuary areas have been classified with a national, European
and international conservation status:
Natural Reserve of the Tagus Estuary
The Natural Reserve of the Tagus Estuary, created by the Decree-Law no. 565/76, of 19 July, is
located in the furthermost upstream section of the estuary, with an area of 14,192 ha. This area
includes a large surface of estuarine waters, alluvial deposits, mouchões (alluvial islands), salt
production fields, salt marshes and marshlands (lezírias) – Figure 16.
Figure 16. Tagus marshlands
Source: Administration of the Port of Lisbon, S.A.
The central part of the estuary is permanently submerged and is an important area for coastal
fish populations’ survival (e.g. European seabass Dicentrarchus labrax, Soles Solea solea and
Solea senegalensis, European anchovy Engraulis encrasicolus). It also functions as a transition
zone for diadromous fishes such as Sea Lamprey Petromyzon marinus, River Lamprey

Lampetra fluviatilis, Allis Shad Alosa alosa, Twaite Shad Alosa fallax and the European eel
Anguilla anguilla.
The alluvial deposits are large expanses of mud under the influence of tidal action and created
through the deposition of very fine suspension particles carried by the water. These are
frequently colonised by various benthic macroinvertebrates the most common being the
Ragworms Nereis diversicolor, the Peppery furrow shell Scrobicularia plana, the gastropod
Laver spire shell Hydrobia ulvae and the isopode Cyathura carinata.
The salt marshes have an equally important role as nurseries for various fish species as in the
case of the Sole, European Seabass, Blackeye Goby and Shrimp (sedentary species) and the
Lamprey, Twaite shad and Eel (migratory fish). The salt production fields are a choice location
for some fish species, shrimp Palaemonetes varians, insect larvae, small coleopterans and small
crustaceans such as brine shrimp Artemia sp.
The marshlands correspond to flat land surfaces that have become part of the estuary bed. They
are home to the steppe bird Little Bustard Tetrax tetrax, as well as the Black-winged Kite
Elanus caeruleus and the Common Goose Anser anser.
Altogether the Natural Reserve of the Tagus Estuary has a wintering bird population of over
10,000 anatids and 50,000 waders, making it the most important wetland in Portugal and one of
the most important in Europe.
Within the Natural Reserve of the Tagus Estuary there are the reserves of Mouchão do Lombo
do Tejo and Pancas which are under the Protection of the Management Plan for the Natural
Reserve of the Tagus Estuary.
Site of the National List of Sites – Natura 2000 – Habitat Directive
The Habitat Directive is the name given to the Council Directive 92/43/EEC, of 21 May 1992,
on the conservation of natural habitats and of wild fauna and flora. It was transposed to the
Portuguese legal system by Decree-Law no. 140/99, of 24 April, and after that through Decree-
Law no. 49/2005, of 24 February.
Within the Tagus Estuary, an area of 44,609 ha contains 25 natural habitats of Community
interest (Annex B-I of the Decree-Law no. 49/2005, of 24 February), 5 of which are priority

habitats. Adding to these, there are 12 animal and 3 plant species from the Directive (Annex B-
II, IV and V).
Site of the National List of Sites – Natura 2000 – Birds Directive
The Birds Directive corresponds to the Directive 79/409/EEC which has as its objective the
coordination of measures conducive to the protection of wild populations of several bird species
on European Union territories. In the Tagus Estuary an area of 44,772 ha comes under this
directive. This area is classified as a Zone of Special Protection, meaning that it is of crucial
importance to those species.
Ramsar Site
Taking into account the importance that the Natural Reserve of the Tagus Estuary has in terms
of habitat for water fowl, this area has been classified on the list of Wetlands of International
Importance – Ramsar Convention11
.
Important Bird Area – Tagus Estuary
This is an area of 45,071 ha in the Tagus Estuary and due to its natural characteristics presents
itself as an advantageous area for the conservation of birds at a global scale, namely birds with a
threatened conservation status.
To summarize, the classification of the Tagus Estuary as an exceptional natural heritage site, is
based on the role it plays in being home to a variety of rich and interrelated ecosystems, mainly
in regard to birds but also fish and plant species.
The recognition of the Estuary’s environmental value makes it essential that within strategic
options of land use planning the necessity to “preserve the natural habitats of the estuary´s
margins, bays and adjacent creeks, particularly salt marshes and other wetland areas” (ALMEIDA,
SANTANA & FONSECA FERREIRA, 2010: 48), is taken into account in order to assure the
sustainability of the Tagus Estuary.
11
Ratified by Decree no. 101/80, of 9 October.

1.1.5. Identification of the main problematic issues
There still remain conflicts and threats in the Tagus Estuary upon which it is important to act.
The following aspects are noted:
• Existence of conflict between uses, which is largely caused by the multifunctional land
use of the Tagus Estuary. The existence of underused port areas on the riverfronts of the
Tagus Estuary and the reclaiming of these areas to urban uses (urban renewal and leisure
and recreational uses of the riverfront) is an example of this conflict. However, the
Administration of the Port of Lisbon, acknowledging the existence of areas for which no
port activity is planned, recently began establishing agreements for transferral of these
areas to Town Councils (the first of these occurred in June 2010 with the Town Council
of Lisbon). Another example of a conflict situation resulted from the Proposal to Revise
the Regional Plan of the Lisbon Metropolitan Area, specifically with a proposal that
could eventually allow for Trafaria (Figure 17) to be used as an option in the expansion
of the Port of Lisbon. This proposal constitutes a conflict with the development options
of Trafaria as defined by the Town Council of Almada and other local entities, which
include urban renewal, and valorisation of the area’s environment.
• Existence of conflict between activities, which stem from the diversity of activities
present on the Tagus Estuary, the negative externalities that some of these activities
generate and the incompatibility between some of these. As an example of this, it is
important to note the effect that industrial residue and contaminant deposition (namely
produced by the large industrial complexes present in this estuary during the second half
of the last century) and agricultural runoff in the estuary have on the environmental
quality and even on the development of primary activities (e.g. oyster farming).

Figure 17. Trafaria and the Tagus Estuary
• Existence of areas occupied by disused and/or abandoned facilities along the margins as
a result of the decline in the industrial activity of the Tagus Estuary region (mainly in the
decade of 1980), particularly occurring on the South bank. With the collapse of industrial
activity these important land areas were freed up for new activities. To this end, the Arco
Ribeirinho Sul Strategic Plan was approved in 200912
in which it is stated that “the
renewal of the old industrial complexes of Margueira, Siderurgia Nacional and
CUF/QUIMIGAL presents itself as an opportunity to support the development of the
South bank in the context of the Lisbon Metropolitan area” (Figure 18). However, the
environmental problems and soil contamination, as a consequence of industrial activities
that occurred in these areas, is a delicate problem to solve.
12
Resolution of the Council of Ministers no. 65/2009, of 7 August.

Figure 18. Old industrial complexes in the Tagus Estuary
• The existence of a high number of Instruments for Territorial Management focussed on
the Tagus Estuary region as well as a high number of qualified institutions (e.g.
licensing, spatial planning, maritime safety) in this area.
• The existence of urban pressure on the margins of the Tagus Estuary and adjacent areas,
upon which there were 1,762 million people in 2009 (16.6% of Portugal’s resident
population). With planned large-scale investment in transport infrastructure and logistics
(namely the New Lisbon Airport, the third bridge over the Tagus Estuary, the Poceirão
Logistic Plataform and the Castanheira do Ribatejo Logistic Plataform – Figure 19),
these pressures will increase.

Figure 19. Planned investments in transport and logistics infrastructures
• The existence of point sources of water pollution, particularly of urban, industrial and
agricultural origin, both on the margins of the Tagus Estuary and its tributaries. It should
be noted that only in 2011 all sewage water of domestic origin will cease to be
discharged as raw sewage into the Tagus Estuary.
• The existence of erosion problems on the estuary margins and beds, brought about by the
decrease in sediments carried by the Tagus river, the extraction of sand and also due to
wave action caused by shipping in the Estuary. The erosion problems experienced in
Alburrica and Ponta do Mexilhoeiro (Barreiro) are an example of this problem. This
situation it is a result of waves generated by catamarans (used in passenger transport)
that navigate in the estuary (Figure 20). These waves introduce a new factor of sediment
transport, increasing the erosion process at these areas and putting at risk both the
environmental and man-made heritage.

Figure 20. Catamarans in Tagus Estuary
Source: Transtejo, S.A.
1.2. Good Practices in the Tagus Estuary
The Tagus Estuary Management Plan is proposed as good practice and it is an instrument that
aims to:
• To protect and value the environmental characteristics, assuring the sustainable use of
water resources, as well as the natural values associated with these;
• To assure the integrated management of transition waters with interior and adjacent
coastal waters, as well the respective sediments;
• To assure the sustainable functioning of estuarine ecosystems;
• To preserve and restore protected or endangered aquatic and riparian species and their
respective habitats;
• To guarantee the integration with the Instruments for Territorial Management, plans and
programs of local, regional and national interest, applicable to the area encompassed by
the Tagus Estuary Management Plan. (MONIZ, 2009: 23)

In addition to the integrated and systematic approach which is envisaged for the document, in
itself constituting good practice for planning and integrated management of the estuary, it is
important to note the participatory approach with which this document has been created.
The entity responsible for its development (the Tagus River Basin District Administration)
highlights that “all citizens and interested entities have the right and duty to actively participate
in the production of the plan” and currently “under development is a collaborative program to
support the dissemination of works regarding the development of the plan and collecting
people’s contributions for it” (ARHT, 2010).
The following table presents the public debate sessions and workshops (Figure 21) held in 2009
and 2010 in the context of this plan’s development:
Table 3. Public Participation Sessions and Workshops held in the context of
the development of the Tagus Estuary Management Plan
Theme Date
1st
Debate Session 2009-06-23
2nd
Debate Session 2009-11-20
1st
Public Participation Workshop 2010-10-27
Source: ARHT, 2010.
Figure 21. First Public Participation Workshop on Tagus Estuary Management Plan (2010)

Source: ÁLVARES & LACERDA, 2010.
1.3. Conclusions and Recommendations
The Tagus Estuary plays an important role at a metropolitan and national level, due to two main
aspects. On the one hand, it is a central environmental element in the Lisbon Metropolitan Area,
which arises from its biological potential, and its natural and unique heritage richness. On the
other hand, concentrates several uses - tourism, recreation, leisure - and economic and social
functions, which need to be in balance with development.
The variety and high quality of the ecosystems and the multifunctional land use of the Tagus
Estuary, led to three main problems that have to be solved: the conflict between uses and
activities; the disused and/or abandoned facilities; and the existence of urban pressure, which is
one of the several point sources of water pollution. The solution for these weaknesses can be
achieved by the development of an integrated estuary management plan (in course – Tagus
Estuary Management Plan).
To promote a balanced approach in the planning and management of the Tagus Estuary in order
to promote the development of a sustainable, competitive and integrated area. It is necessary to
address two main issues: ensure an integrated land use planning and management of the estuary
and create a balance of economic activities – port activities and industrial activities –, urban land
use, nature protection including biodiversity and nature conservation resources, and recreational
and leisure activities that take place in the estuary and along the estuarine margins.
An important challenge lies in the creation of projects to integrate port uses and urban uses,
bearing in mind the balance needed between the uses without compromising the efficiency and
economic profitability of strategic port activities.
The participation of all citizens and interested entities, as well as the riverfront municipalities in
the production of the solutions is crucial to ensure that the proposal presented succeeds.
A vision for an integrated estuarine development should integrate a realistic solution to the
problems not only ensuring the sustainable functioning of estuarine ecosystems, but also the
integration and applicability of the Instruments for Territorial Management, plans and programs
of local, regional and national interest.
More information:

www.arhtejo.pt
http://portal.icnb.pt/ICNPortal/vPT2007-AP-EstuarioTejo
2. Description of the situation in the Elbe Estuary
2.1. Situation in the Elbe Estuary
The Estuary of the Elbe River is situated mainly in low lying northern German marshland but its
extensive catchment area reaches through the former German Democratic Republic up into the
Czech Republic hosting a great variety of old abandoned industrial sites that still contribute
contaminated sediments, which, after their journey downstream, concentrate in the Hamburg
Port Area. There, in the situation of a natural inland delta, extended by the building of the port,
the flow velocities reduce and the sediments settle.
From seawards more, but cleaner, sediments are travelling upstream into the same area. This
upstream transport results from strong flood currents and relatively weaker ebb currents, an
effect called tidal pumping that has increased especially over the past decade. Thus, it is
obvious, that sediment management in order to ensure safe water depths for the large vessels
calling at Hamburg is of special concern. A sediment management concept has been set up by
the HPA and the WSV and is approved by the responsible ministries of the Lander.
A weir at Geesthacht upstream of Hamburg today limits the Tidal influence. The tidal range in
Hamburg is 3.6 meters; it has increased from about one meter over the last fifty years due to
various hydro morphological changes. The brackish influence reaches up to Wedel, about 10 km
inland. This is also roughly the peak of the turbidity zone and, in summer, often biologically
limited by low oxygen saturation.
Despite massive human induced changes over the past centuries – e.g. over 90% of the former
tidally influenced marshland area has been embanked as well as the shipping channel has been
modified – the Elbe Estuary is still a precious natural habitat and therefore - in addition to the
already existing national protected sites - was designated as part of the European network
Natura 2000 with over 90% of its area.
The Estuary is home to a great variety and number of species, some even endemic like oenanthe
coneoides. Many fish species have returned or recovered after the water quality has improved
after the break-up of the iron curtain such as the twaite shad, salmon or the asp. The extensive

mudflats and the surrounding grasslands are habitat to many migratory and breeding birds such
as barnacle geese, shelduck, teal or the northern shoveler. In the wide mouth with its sand banks
seals are common residents.
Figure 22. The Tidal Elbe and the administrative responsibilities
Source: HPA.
Figure 23. The mouth of the Tidal Elbe

Source: HPA.
Figure 24. The Tidal Elbe at Brunsbüttel with Kiel Canal
Source: HPA.

Figure 25. The Tidal Elbe downstream of Hamburg with islands and channels
Source: HPA.
Figure 26. The City and Port of Hamburg
Source: HPA.

The Elbe Estuary is situated at the German North Sea coast reaching inland from the Waddensea
roughly 120 km up to the Free and Hanseatic City of Hamburg with its Port, the third largest in
Europe. The Estuary is administratively divided between the federal states Schleswig-Holstein
(north shore), Lower Saxony (south shore) and Hamburg (upstream end). The Federal
Administration for Waterways and Navigation (WSV) governs its waters, with one of the
world’s most frequented shipping lane – only the Hamburg part is delegated to the City
respectively the Hamburg Port Authority (HPA). Other important cities are Stade, Cuxhaven
and Brunsbüttel. In Brunsbüttel the famous Kiel Canal connects the Elbe with the Baltic Sea.
The region is also called metropolitan region of Hamburg and home to some four million
inhabitants.
To harmonise the obligatory implementation of the European Birds and Habitats Directives with
the extensive ongoing human activities a Natura 2000 steering group was set up in 2004
consisting of high ranking representatives of the nature and economy ministries of the Lander,
the WSV and the HPA.
As a first activity a frame concept of the conservation objectives has been worked out, taking
into account, that the Elbe estuary is a cultural landscape and that many of its today ecological
values are due to the activities of men. This study was finished in 2005 and reported to the EU.
In 2007 the partners signed a contract, which obliged them to set up an integrated management
plan. This plan, binding to the partners, will be accomplished by autumn 2011. However a major
part of the plan is already drawn, including over hundred potential measures. The set up of the
plan went along with an extensive stakeholder involvement so that the outcomes of the plan are
in principal of mutual agreement. Nevertheless, when it comes to the actual implementation of
measures, the usual planning procedures have to be thoroughly conducted.
Stakeholders were also asked to contribute to the plan by describing their activities and their
relations to the Natura 2000 objectives. One of the most important contributions is the input on
waterways and navigation by the WSV and HPA. There especially the sediment management

and the maintenance activities are described with a special focus on the current and potential
synergies with the Natura 2000 objectives including plans for a scientific monitoring.
The Elbe Estuary, from its weir at Geesthacht to its mouth into the Waddensea national park is
almost completely designated as Natura 2000 sites, including the shipping channel. Only the
Hamburg port area and some industrialized spots at Stade and Brunsbüttel are excluded. But still
over 90% are part of the network. The predominant habitat type is 1130 estuaries. Many sites,
such as the Mühlenberger Loch in Hamburg are also protected RAMSAR sites. In addition
many sites are protected under national law.
According to its wide range of habitats the Elbe estuary hosts a broad diversity of species. Its
extensive mudflats provide fodder to a great variety of waders, geese and ducks such as the
shoveler or the teal. Geese and other birds of the open grasslands can be found on the
agricultural marshland as well as on the dyke foreland, e.g. the barnacle goose or terns. The
alluvial forests and reed beds in turn are nesting zones for many songbirds as bluethroat or birds
of prey such as the sea eagle.
Under water a great variety of fish returned and recovered after the fall of the iron curtain and
many environmental improvements in the Elbe catchment. So, for example, the upper part of the
estuary is an important spawning ground for the twaite shad. Also the asp is quite typical, the
salmon returned and some efforts are even made to re-establish the sturgeon. Also lamprey can
be found in significant numbers. In total 223 species are currently counted in the tidal and the
outer Elbe, twelve of these from Annex II of the Habitats Directive.
Looking at the flora, most valuable are probably the freshwater tidal alluvial forests. There even
the endemic Oenanthe coneoides can be found, a herb that is very specialised with its needs.
Another endemic, Deschampsia wibeliana, is more widely spread and can even be found on
embankments.
Due to the hydro morphological developments some habitats are more endangered than others.
So, alluvial forests or the shallow water areas are decreasing, especially in the upper part of the
estuary. In contrast, mudflats and reed beds are advancing fast. This is the result of natural
succession and of strong siltation. For the mudflats, due to increased flow velocities, there is

also in many places a development towards a more coarse grain size which often is of lower
ecological value. Especially the tidally influenced brackish and freshwater parts of the estuary
are ecologically rating high as worldwide these very special environments are on the loose.
Figure 27. Characteristics of the Elbe estuary and key aspects of spatial development
Twait Shad, Mudflats
Gate to
Waddensea
Hot Spot of Flora
Diversity
Grassland
Reed and
Alluvial Forest
Connectivity
Grassland Habitats
Birds
Reed and Alluvial Forest
Grassland: Breeding- and Resting Birds
PORT
Industry
City
PORT
Connectivity
Source: Kieler Institut für Landschaftsökologie, 2010; HPA.

As in most delta regions and estuaries, also at the Elbe human activities and nature are often
direct competitors in space. Constrained by the often narrow dykelines, the characteristic tidal
habitats have been displaced and cut off over the centuries. In addition, the use as an important
shipping lane has required many deepenings and other river engineering. Through these
modifications profound changes in the hydro-dynamic system occurred. Symptomatically the
tidal range in Hamburg has increased more than a meter within the last fifty years, which, by the
way, is the result of many changing factors. This in turn has led to an increased upstream
transport of fine sediments that congest valuable shallow water habitats as well as navigation
channels or port basins. On top, the sediments originating from upstream are gradually
contaminated as many abandoned industrial sites in the catchment area are still contributing
contaminants – a special and international challenge for the sediment management.
But also from the nature protection perspective alone, target conflicts are quite common in such
an ever changing environment. The development of suitable habitats for some species is often
detrimental to others. A demonstrative example are mudflats, precious habitats for birds like the
shoveler. But where these develop, shallow water areas – important for oxygen production, fish
and the hydro dynamics – often decrease at the same time. A general problem of nature
protection is the natural succession. Many protected habitats and species disappear as nature
develops. Thus continuous maintenance is often required as well as clear conservation
objectives for certain areas. These aspects are of highest importance in extremely dynamic
landscapes like estuaries and might need further guidance from the legal side.
All these demanding challenges are especially tricky, when many different authorities are
responsible. So the Elbe estuary is governed by three different states, federal agencies and also
dependant on the regulations of the EU. And responsibilities never really follow natural spatial
borders but are historically administrative. Working together thus is crucial as is the proper
understanding of such a dynamic system as a whole. Then, as at the Elbe, win-win solutions can
be identified and achieved.
2.2. Good Practices in the Elbe Estuary
The setting up of the integrated management plan for the Elbe estuary can contribute with a
couple of good practises:

• The integrated approach of the organisational framework: not only nature but also
economic representatives are equally and actively involved from the beginning. Actually
the initiative for the steering committee was for a major part taken by the Hamburg Port
Authority.
• The integrated approach, historically: It is of mutual agreement by the partners, that the
estuary is a cultural landscape. Human activities have shaped the region and todays
precious habitats. So, back to wilderness is not the aim.
• The integrated approach, technically: The aims and measures of the management plan
always take all the relevant aspects into account and are designed to achieve many
synergies. For example, a lot of common objectives were identified between the
sediment management mandatory to maintain the water depths and Natura 2000
objectives.
• The integrated approach, regionally: It is common understanding of the plan, that the
Elbe estuary can only be managed as one system. Even though the administrative
responsibilities are widely divided, the plan ensures that the regional impacts are
considered before local activities are begun. The (eco)systematic approach is a guideline
to both economic and ecological activities.
• The integrated approach in communication: Though of extremely complex geographical
and administrative structures, the process of setting up the plan has benefitted a lot to the
mutual understanding. The open discussion of the plan with all the stakeholders from
scratch on has contributed a lot to a greater confidence in the region that allow conflicts
to be debated more openly.
From the experiences at the Elbe estuary it can be concluded, that the integrated approach has
the greatest beneficial potential, especially to find sustainable solutions. The integrated
management plan will be the general basis for the future implementation of local plans and
activities. Especially the very early and open involvement of the stakeholders has contributed a
lot to the mutual confidence. The identification of potential synergies is an important
prerequisite for intelligent measures of both sides: economy and nature conservation. Shifting

from sectoral thinking and planning towards a more generic approach can be in general
recommended for all delta regions.
More information can be found here:
• www.natura2000-unterelbe.de
• www.tideelbe.de
• www.portal-tideelbe.de

3. Description of the situation in the Severn Estuary
3.1. Situation in the Severn Estuary
The Severn Estuary is situated in the Bristol Channel in the south west of the British Isles. The
estuary, which has the highest tidal range in Europe, is surrounded by extensive low-lying areas
much of which are at potential risk from flooding, particularly in the context of sea level rise
predictions. Supported by excellent land and sea communications, including significant links to
Britain’s major motorway network and the Atlantic, major cities, industrial and port areas
flourish on the estuary’s shores. Deep-water navigation channels, plentiful cooling water, cheap
waste disposal and offshore aggregates (for construction) constitute the estuary’s natural
‘resources’ to support these activities. The estuary’s nature conservation and archaeological sites
are, however, also very important, as detailed below along with significant agricultural, tourism
and recreational use. The potential for offshore renewable, particularly tidal, energy generation,
periodically also receives considerable interest from UK Government.
The Severn Estuary is administratively complex. Not only does it include several port
authorities, but also numerous local authorities including seventeen local planning authorities
which plan for the land areas down to the low water mark. It is also a cross border estuary,
spanning the shores of England and Wales, which, in the context of recent devolution in the
United Kingdom, provides a challenge for holistic, integrated estuary management. Much of the
management of activities is also sectorally based, reflecting the development of sectoral
legislation within the British system over the last century (see Figure 28).

Figure 28. Relevant Authorities’ Areas of Jurisdiction
Source: Severn Estuary Partnership, 2003.
Interest in a collaborative, estuary-wide approach dates back to the 1980s when local authorities
around the Severn became concerned about the potential implications of a proposed Severn
Estuary Barrage. Realising the value of collaborative working, the Standing Conference of
Severnside Local Authorities (SCOSLA) was established to provide a forum for discussing local
authority concerns. The Severn Estuary Strategy (SES), as it was then known (now the Severn
Estuary Partnership – see below) was established alongside the development of a considerable
number of other coastal and estuarine partnerships in England. These were part of English
Nature’s Estuaries Initiative, designed to promote co-operative approaches to sustainable
estuary management.
The Severn Estuary Partnership
In the context of this institutional and administrative complexity, a voluntary, estuary-wide
initiative was initiated to attempt to provide a strategic framework, including key policies, to

help guide policy development for the area in the mid 1990s. After several years of public and
stakeholder involvement and consultation, the Severn Estuary Strategy document was finally
published in 2001 to fulfil this role. The Severn Estuary Partnership (SEP) was then established
to help implement the Strategy. This independent, non-statutory, partnership includes local
authorities and statutory agencies as well as a wide variety of other organisations and
individuals who have declared their interest in caring for the estuary and want to encourage a
more co-ordinated approach to estuary planning and management. Its main area of interest isa
the nearly 400 square kilometres of the estuary between Hurlstone Point, near Minehead, on the
English coast, Nash Point on the Welsh Coast and the limit of tidal influence above Gloucester.
Figure 29. The Structure of the Severn Estuary Partnership
Forum Joint Advisory
Committee
Management
Group
Staff
The Partnership aims to facilitate the co-ordination of key estuary sectors and, through its Joint
Advisory Committee (JAC), annual Severn Estuary Forum, monthly e-news and periodic
newsletter Severn Tidings, provides a valuable platform for communication and information
dissemination amongst a wide range of stakeholders, including statutory bodies and estuary-user
groups. Through its JAC, the Partnership promotes a strategic estuary-wide perspective as well
as periodically reviewing progress under the SES. The work of the partnership is assisted and
guided by partnership staff and a Management Group of key stakeholders. Over the last few
years SEP has developed its secretariat services for various other estuary-wide initiatives,

including the Severn Estuary Coastal Group and Associated of Severn Estuary Relevant
Authorities, both of which are summarised below. In addition to its role in facilitating effective
communication and attempting to provide coordination between other organisations, the
partnership also aims to:
• Establish and embed a set of ‘common principles’ for sustainable estuary use that are
delivered locally through individual strategies, policies and action plans;
• Promote and publicise the estuary;
• Add value and fill gaps in effective estuary management.
As part of its role the Partnership has been actively involved in a number of European projects
and initiatives, where it has not only been able to learn from the experiences of other European
estuaries and coastal areas, but has also been able to show case some of its own achievements as
well as trialling new approaches to Integrated Coastal Zone Management. Of particular note has
been the Partnership’s involvement with the Les Estuariales network and the INTERREG
COASTATLANTIC, COREPOINT (IIIb) and IMCORE (IVb) projects.
The Association of Severn Estuary Relevant Authorities
The designation of the Severn Estuary as a European marine site imposes an obligation on the
Relevant Authorities of the estuary to operate within compliance of the EC Habitats Directive.
The Association of the Severn Estuary Relevant Authorities (ASERA13
) was established as the
co-ordinated inter-agency organisation to oversee the development and implementation of the
Management Scheme for this marine site. It includes a wide range of bodies, including statutory
conservation agencies, local authorities, port authorities and water companies.
The Severn Estuary Coastal Group
13
Website: http://www.severnestuary.net/asera/asera.html

Alongside the formation of coastal defence groups for the regional coastal sediment cells of
England and Wales in the early 1990s, the Severn Estuary Coastal Group (SECG) was
established in 1993 to oversee the development and operation of the first generation shoreline
management plan (SMP) for the Estuary. The Group includes Coastal Defence Authorities and
operating authorities which have a major responsibility with regards to protection from coastal
erosion and flooding. These include both English and Welsh local authorities, drainage boards,
conservation agencies, the Environment Agency and representatives of central government. The
establishment of these types of regional, coastal groups has been important for the delivery of a
more sustainable and co-ordinated approach to coastal defence. In particular, they have
facilitated discussion and cooperation between those responsible for coast protection with those
with responsibilities for sea defence.
3.1.3. Integrated Management Plan
There is no single, estuary integrated management plan for the Severn. However, the Severn
Estuary Strategy document, referred to above, was an early attempt to provide a non-statutory
framework to inform ‘integrated’ policy and management actions. An ambitious document, the
Strategy covered thirteen sectoral areas, identified and addressed 95 issues and contained over
350 proposals for action.
To bring together all those involved in the development, management and use of the Estuary
within a framework which encourages the integration of their interests and responsibilities
to achieve common objectives.
The aim of the Strategy for the Severn (2001)
Whilst there has not been a complete revision of the Strategy document, there has been partial
reviews of the delivery of actions as part of SEP business and action plans. Preparations for the
current Severn Estuary Business Plan (2011) have involved the most thorough review of the
Strategy document. Drawing on a number of consultations during the latter part of 2009,
including two workshops at Joint Advisory Committee meetings, the document sets out a clear
direction for the organisation over the next five years and, thus, may be considered to be an
important tool for harnessing íntegrated estuary management and policy in the Severn Estuary.
It includes proposals for action in the previous Strategy which had not been delivered, but were

still relevant. The document also restates the role of the Partnership and explains how this
relates to the aspirations of other interested organisations within the area. The plan includes
over fifty actions which are grouped under the following headings
• Membership and Involvement
• Organisational Status
• Key roles – encouragement of the delivery of principles
• Key roles – promoting and publicising the estuary
• Key roles – adding value and filling gaps
• Key roles – ensuring effective communication
• Selling the service
• Key roles – resources and operations
The plan highlights the need for the collective deliver of its key outcomes which it suggests will
require the engagement and support of not only the organisations currently actively involved in
the Partnership, but also a wide range of other bodies.
The Estuary is internationally recognised for nature conservation, having the status of Special
Protection Area (SPA) under the EC Conservation of Wild Birds Directive and is a RAMSAR
site. A significantly large area of the Estuary, including the subtidal zone, is a possible Special
Area of Conservation (pSAC) under the European Habitats Directive. The area is of national and
local conservation status with a variety of national and local conservation designations.
The Estuary is an important migratory route for salmon and internationally rare fish species such
as Shad. It supports commercial elver fisheries and is a habitat for a range of other species. It is
also well known for the wealth of archaeological and historic interest features, as well as the
high quality of its historic landscape. Having a high tidal range, the Severn Estuary presents a
challenging and dynamic environment for coastal defence.

This estuary has the largest tidal range in Europe and it is an internationally important area for
fish and bird populations (waders, wildfowl and terns), saltmarsh, intertidal and subtidal benthic
communities. Its rich feeding grounds on mud make up over 10,860 ha. It has nationally
important intertidal communities, such as Honeycomb reef worm Sabellaria alveolata,
Tubularia indivisa and piddock biotopes, not only in soft rock with fucoids - outcrops of Mercia
mudstone (Triassic), and in south of Penarth, but also in clay, soft red clay near Penarth and on
ledges on the north side of the estuary.
Figure 30. Tubularia indivisa on bedrock Flatholm
Source: BRAZIER & WYN, 2007.
Figure 31. Polydora and piddock holes
Source: BRAZIER & WYN, 2007.
The Severn Estuary has a wide range of special features: coastal sand dunes; sand beaches; sand
dune pastures; salt marshes; salt pastures; salt steppes; tidal rivers; estuaries; mud flats; sand
flats; and lagoons (including saltwork basins).

Concerning the Designated Ecological Features, the Severn Estuary has remarkable importance:
International Level
RAMSAR Wetlands of International Importance – The Convention on Wetlands of International
Importance, called the RAMSAR Convention, is an intergovernmental treaty that provides the
framework for national action and international cooperation for the conservation and wise use of
wetlands and their resources. The Convention establishes that “wetlands should be selected for
the List on account of their international significance in terms of ecology, botany, zoology,
limnology or hydrology”.
European Level
SPA Special Protection Area (Birds and their Habitats) – Areas which have been identified as
being of international importance for the breeding, feeding, wintering or migration of rare and
vulnerable species of birds found within European Union countries. They are European
designated sites, classified under the ‘Birds Directive 1979’ which provides enhanced protection
given by the Site of Special Scientific Interest (SSSI), a status all SPAs also hold.
SAC Special Area of Conservation (Habitats and Species – other than birds. E.g. Fish) –
Designated in 2007, this designation includes: estuaries; Atlantic salt meadow; mudflats and
sandflats (not covered by sea water at low tide); reefs; sandbanks (slightly covered by sea water
all the time) and species – lampreys, twaite shad.
National UK Level
SSSI Site of Special Scientific Interest (Habitats, Species, Geology) – Designated in 1976 and
revised in 1989, this designation includes: whole estuary; saltmarsh and brackish standing
water; shad, salmon, trout and lampreys; breeding bird assemblages (lowland and sand dune);
marine habitats, rare and scarce marine invertebrates and marine eelgrass habitat and species.

There have been various attempts to identify and categorise coastal issues by the Severn Estuary
Partnership. These include those listed within the Strategy document (2001), a further issue
prioritisation process by the Severn Estuary Partnership Joint Advisory Committee (2005) and a
more recent issue identification exercise as part of the INTERREG IVB IMCORE project. The
following list highlights those issues of most concern:
• The future of coastal defences alongside the impact of climate change and rising sea
level on coastal squeeze (of habitats) and existing coastal development;
• Pressures from urbanisation and development on estuarine habitats, landscape and
seascape, flood plain capacity, rural areas and areas of natural, cultural, archaeological or
scientific interest;
• Effects of increasing traffic and planned transport facilities and infrastructure on the
estuary;
• Impacts of development on the historic landscape of the Severn Levels and the
inadequate information and awareness of the Severn’s archaeology and historic features;
• Fisheries management and the decline of fish stocks, including eels, elvers and salmon;
• Degradation of internationally important habitats and migratory bird populations through
increasing development, land and marine-based pollution and fisheries decline;
• Biological disturbance through selective extraction of species from activities including.
bait digging, wildfowling, commercial and recreational fishing;
• Management of wildlife habitats and areas of geological value and the impacts of nature
conservation designations on other users;
• Effects of agricultural sources of pollution including the impacts of intensive farming
practices in conservation areas;
• Environmental impacts of aggregate dredging on fisheries, coastal sediment transport
and wildlife along with issues of mineral extraction regulation;

• The impacts of increasing tourism and recreation including issues associated with coastal
access and water use particularly navigational safety issues with untrained recreational
users;
• Impacts of pollution on human health, wildlife and visual amenity and the
implementation of pollution management through waste reduction initiatives;
• Impacts of increasing coastal litter and fly tipping through development, urbanisation
and the growing tourism and recreation industries;
• Concerns over compliance with various EU water quality standards including those
under the Bathing Waters Directive;
• Managing demands on water resources and balancing the need of abstractors with other
users;
• Renewable energy concerns regarding proposals and ideas related to offshore tidal
energy regeneration;
• Concern over inadequate and variable policy and planning guidance;
• Marine spatial planning and reduction of conflict between recreation, ports, industry and
conservation;
• Need for coordinated information and sound scientific data for effective estuary
management;
• Issue of wider public participation in estuary management planning.
In addition there are a number of concerns relating to SEP and its capacity to provide an
integrated approach. These include:
• Inadequate and short-term resourcing including lack of financial support from national
level;
• A policy vacuum on land-sea integration;
• Integrated coastal/estuary approaches are not sufficiently embedded within the current
governance system;
• Vulnerable to changing local government and agency priorities;

• Limited involvement of industry/business.
• Over-reliance on EC projects.
3.2. Good Practices in the Severn Estuary
The good practices in the Severn Estuary include the approach of the Severn Estuary Partnership
in fostering a coordinated estuary-wide view amongst multiple stakeholders.
The Severn Estuary Partnership
This neutral body attempts to provide integration amongst the many, statutory and other bodies
with an interest in the estuary. Good practice by SEP includes its communication activities,
event design and management, fostering of science-policy integration and its role providing a
secretariat for various other estuary-wide groups.
SEP communication activities:
• Easy to read website (http://www.severnestuary.net) which include a web-based ‘who
does what’guide (see Figure 32);
• Severn Tidings – the SEP newsletter with topical coverage of Severn issues;
• Information leaflets on a variety of estuary topics;
• e-news – a monthly online newsletter with topical updates available to 2000 people;
• Extensive contact database of several hundred stakeholders, categorised into various
types.

Figure 32. The Severn Estuary Gateway website
Source: Severn Estuary Partnership, 2009.
SEP Events
These include:
• The Severn Estuary Forum (an annual event since 05) which draws in a wide audience of
practitioners, policy makers and users of the estuary
• Severn Wonders Festival (06) – a celebration of the diversity of the estuary – a
conference and series of events for various stakeholder groups
• Workshops & conferences – on a range of themes, including specific conferences
targeted at planning professionals
SEP secretariat services
SEP provides a secretariat for various estuary-wide sectoral groups and in so doing, promotes a
better understanding of each group’s purpose and liaison amongst groups as well as providing a
cost-effective and well informed service. Groups, which SEP provides a secretariat for, include:

• ASERA – related to the estuary Natura 2000 site;
• SECG – related to shoreline management (coastal flood & erosion risk management);
Science-policy integration
Through SEP’s involvement with the INTERREG IIIB COREPOINT and the INTERREG IVB
IMCORE projects, it has fostered integration of science and policy with particular reference to
climate change impacts and adaptation. This has involved:
• The translation of scientific knowledge on climate change into non-technical summaries
for policy and general audiences;
• The establishment and running of the Severn Estuary Climate Change Research
Advisory Group.
The above discussion points to the continued need to promote a balanced approach to planning
and management on the Severn Estuary in order to promote the development of a sustainable,
competitive and integrated region. Additionally, SEP, whilst providing a vital impetus for an
integrated estuary-wide view requires further support and a number of other measures, as noted
below.
Promoting a balanced, estuary-wide view
This should attempt to:
• protect and enhance:
o conservation including biodiversity and nature conservation resources
o the countryside and undeveloped coastline
o open space including the river valleys and green corridors
• ensure that new development:
o addresses both mitigation and adaptation aspects of climate change including
reducing carbon emissions
o responds to increased flood risk;
o makes efficient use of energy and water and renewable energy
o makes provision for new sustainable waste management methods

o employs high quality, locally distinctive and sustainable design
• regenerate
o deprived communities
o district and local city centres
Needs of the Severn Estuary Partnership
Longer-term resourcing is needed to secure the Partnership’s future and its role in promoting
further cooperation amongst the plethora of estuary users and policy makers. This could be
facilitated by better recognition of its value as a key proponent and deliverer of an Integrated
Coastal Zone Management (ICZM) process. Considerable effort also needs to be made to
engage with industry and business as well as with the emerging marine planning process for
offshore to ensure not only integration across the estuary, but across the land-sea divide as well.

4. Situation in the Rhine-Scheldt Meuse Delta
4.1. Description of the situation in the Rhine-Scheldt Meuse Delta
The Rhine-Scheldt Meuse Delta is a cross-border area extending over parts of Flanders
(Belgium) and The Netherlands. It is a densely populated area in North-West Europe. The river
Scheldt has a length of 355 km from source to mouth (the line Vlissingen-Breskens). The source
is situated in the north of France (St. Quentin) about 110 m above sea level and the estuary
becomes much wider beyond Vlissingen (The Netherlands), where the mouth of the estuary
gradually flows into the North Sea. The total catchment area is approximately 21,863 km².
About 10 million people (477 inhabitants/ km) live in the river basin. The Scheldt is a typical
rain-fed lowland river.
The longitudinal salinity profile of the Scheldt estuary is primarily determined by the magnitude
of the river discharge, with the transition between fresh and salt water being particularly
variable. The estuary is well mixed (except during peak discharges), which means that vertical
salinity gradients are small or negligible.
Major changes in the morphology of the estuary occurred during the last centuries. Still in the
20th century about 16 % of the total surface was lost due to industrial, agricultural and urban
developments.
Due to dike enforcement, many of the marshes in front of the seawalls have disappeared which
has disrupted the connectivity of marshes along the salinity gradient.
Bad water quality severely impacted benthic invertebrates and fish resulting in the freshwater
part of the estuary harbouring less species than normally expected (Remane’s curve). Despite
the geomorphological changes in the lower estuary and the bad water quality in the upper
estuary, the Scheldt estuary is one of the most important estuaries along the NW-European
migration route for water birds, where maximum numbers reach up to 230,000 individuals. For
21 water bird species, the Scheldt has international importance.
The delta area is characterized by open countryside surrounded by urban areas.

Gradual transitions of sea and land broaden the coastal defense zone, providing opportunities for
the development of various other functions like nature, recreation, housing, harbours, marinas
and agriculture. Agglomerations, cities and industries are historically developed close to the
riverbanks of the Zeeschelde.
The Rhine-Scheldt Delta Co-operative Organisation is an example of cross-border co-operation
between the Flemish and Dutch governments (Benelux, central government, provincial and city
authorities), Chambres of Commerce, the seaports authorities, the private sector and
environmental organisations in developing the land and waterways in the delta area of the rivers
Rhine, Maas and Scheldt. The organisation was established in 1999.
This co-operation is mainly aimed at the economic, ecological and multi-modal development of
the Delta area. Co-operation takes place as a result of jointly harmonising policies and
developing planning viewpoints, schemes and projects.
Co-operation in this region is very important because the geographical area covered by the delta
exhibits a high degree of cohesion, ecologically as well as economically. Within this delta area
is a resident population of about 6,5 million as well as 8 major seaports, including the ports of
Rotterdam and Antwerp. It is important that there is a cross-border agreement on harmonisation
and an integrated outlook on planning with regard to urbanisation, economic policy, mobility,
nature and water management.
The ambition of the organisation is to work towards realising symbiotic harmonization, shared
choices and a joint vision for the entire delta area. The execution of activities is project-
orientated and results-based being manifested in concrete plans and activities. The organisation
and its representatives support the results through an active network. An important part of the
objective of the co-operation in relation to the Rhine-Scheldt Delta area is to keep each other
well informed, of developments and resolutions, by establishing and maintaining good lines of
reciprocal communication from an early stage. The communication must provide a clear insight
into cohesive information on the entire Delta area and the broad external dissemination of such
information.

To guarantee sustainable development in the future, a target for 2030 was already set and
subscribed by the Dutch and Flemish governments in 2001 (the Longterm Vision Scheldt
estuary).
It focuses on five objectives:
1. preservation of the geomorphology;
2. safety against floods;
3. optimal accessibility of the ports;
4. a healthy dynamic ecosystem;
5. transboundary cooperation.
However, the target of 2001 does not propose elaborated projects. To define more precise
projects, ProSes (Scheldt Estuary Development Project) was established in March 2002. ProSes’
main task was to make a solid, broadly supported development plan, so that a step towards the
target for 2030 will be achieved.
The project management was focussed on being an intermediary between the various interests
and ambitions, aiming to present proposals that can count on both political and social support
and understanding.
The approach in preparing the development plan was two-pronged: research and advisory
consultation. Both routes, research and advisory consultation, have resulted in political decisions
on the Scheldt Estuary development plan by the Flemish and Dutch governments in 2005.
Hereafter, the development plan formed the basis for further decision making on the
implementation and realization of the chosen measures and projects.
The development plan 2010 for the Scheldt estuary
The governments of the Netherlands and Flanders recently approved the ‘Scheldt Estuary
Development Outline 2010’, which contains dozens of resolutions regarding how the two
governments intend to improve the safety, accessibility and natural environment of the estuary.

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