Understanding transboundary water cooperation: Scoping Study of the Vechte, Berkel and Oude IJssel River Basins

"The Vechte river basin is one of the largest regional transboundary river basins of the Netherlands, with a relatively equal contribution between Germany and the Netherlands. From the perspective of JCAR ATRACE it was identified as good research subject to examine more closely," Angela Klein explains, shedding light on the motivation behind the study. The overall goal: combining all available information to assess the status of flood and drought risk and their transboundary management.

Building on the most important knowledge gaps identified, the study presents a series of follow-up activities which can be carried out in the scope of JCAR ATRACE or in other research projects. Those include joint activities that range from quantitative impact assessments to the establishment of a transboundary groundwater monitoring network.

The study adopted a comprehensive research approach using “a mix of desk research, to look into existing reports, interviews with the authorities and other stakeholders in the area”, Klein elaborates.  

This truly embodies the spirit of JCAR ATRACE by bridging regional knowledge and perspectives, drawing upon the expertise of Dutch and German research institutions. With representatives from universities in Osnabrück, Aachen, and Twente, the study team capitalised on local insights and conducted interviews within their respective countries. This fostered an understanding of the cultural nuances and governance structures, essential for understanding the complexity of transboundary river management. 

"We use an international team, a mix of Dutch and German organisations... The idea of the scoping study is that it is a joint project of input from both countries," Klein says, emphasising the collaborative nature of the study. 

The study showcases how multi-layered transboundary collaboration can be. One of the layers of complexity comes from the differences in governance in the study area. It is not only divided between two countries, but also into multiple levels within the countries themselves. The area spans two federal states in Germany: Lower Saxony and North Rhine-Westphalia, as well as three provinces in the Netherlands: Drenthe, Overijssel, and Gelderland. In addition, the hierarchy structure is different in each country. Evelyn Lukat from Osnabrück University in Germany, who has extensively studied water governance and management, provides an insight into the country’s processes. “In Germany, decision making happens on the state level and not in the organisations that implement the regulations. Effectiveness would increase if institutional decision makers as well as the implementers were on board. We see this in the Netherlands, where the Waterschappen combine these two governance functions."

Going further, Lukat reflects on the complexities of aligning governance systems across borders: “It's unlikely to adapt the German governance system to the Dutch water governance system. It is part of a larger system that has developed during centuries, building a particular governance culture. While in the Netherlands decision-making may take place on the lower governance levels, the hierarchical culture of governance in Germany harmonises governance between the 16 states and between nine transboundary partner countries. Such a complex task needs coherence.”

The study's findings revealed several compelling insights. Notably, existing transboundary cooperation primarily revolved around flood risk management, with emerging attention towards drought mitigation in light of recent climatic shifts.  

The international research team helped gather insights, but also highlighted complementary knowledge. Stefan Kuks is water manager at Waterschap Vechtstromen, a Dutch-based organisation responsible for regional water management in Twente, Vechtdal, and Southeast Drenthe. In addition, at the national level, he is chairman of the Transboundary Platform on Regional Water Management (GPRW) as well as chairman of the Delta programme on spatial adaptation. Regarding the study, Kuks highlighted several points on knowledge exchange, linked to different geography and climate situation: “Germans have advanced methods for managing water scarcity and reallocating water usage rights, including setting limits on groundwater availability. This approach contrasts with our current practices in the Netherlands, prompting a re-evaluation of our strategies for water management and rights allocation.” 

The Waterschap Vechstromen is part of the Transboundary Platform on Regional Water Management (GPRW), which was founded in 2011 and currently consists of seven partners. On the German side these are the counties Borken, Steinfurt, Grafschaft Bentheim, and Emsland and Bezirksregierung Münster, and from the Netherlands the Water Authority Rijn and IJssel and Vechtstromen. The JCAR ATRACE program will support this platform, which in the past worked together on different projects in the region, a.o. the development of a shared early warning system for floods.

Klein and Lukat observed already a clear willingness to collaborate across Germany and the Netherlands in this region. However, while information sharing flourishes, translating this collaboration into joint analyses and projects still poses considerable challenges. Fragmented knowledge systems further complicated matters, highlighting the need for comprehensive, cross-border studies to better understand systemic dynamics and vulnerabilities. 

"Unfortunately, transboundary collaboration often depends on individuals who act as the knowledge carriers. But when these 'connectors' leave the systems, they often leave a void" Lukat comments, “and not every organisation has the capacity to dedicate a team to collaboration, even if it is crucial."

The results of the study should not only serve as a compass for future research but also help shed light on the need for more collaboration. For Stefan Kuks, “an important goal of this project is to raise awareness on both sides of the border and to garner the attention of policymakers in Germany and the Netherlands. By illustrating the potential impact of significant flooding, we hope to influence decision-making regarding spatial planning and encourage alternative approaches.”  

This message resonated with the spirit of the presentation of the study on the 24 April 2024. The results were showcased at a workshop held appropriately on the Dutch-German border at the premises of EUREGIO in Enschede. The need for more collaboration was acknowledged by the participating governmental stakeholders from both sides of the border. Following a lively discussion on the findings of the study, there was a shared interest in taking up different components of the recommended further investigations. Those included a transboundary stress test for extreme flood and drought events, a comprehensive evaluation of the recent Christmas highwater, a future-proof flood and drought forecasting system, more effective transboundary governance, increasing the sponge function of the landscape to mitigate floods and droughts and transboundary groundwater monitoring as the start of a joint drought management strategy. 

In conclusion, the Scoping Study of the Vechte, Berkel and Oude IJssel River Basins supports how water management that further evolves towards inclusive transboundary cooperation. Unveiling some of the challenges, and the potential for deepening cooperation between countries, it is an exciting first step of our research programme. As governments grapple with increasingly complex hydrological challenges, international collaboration efforts - such as JCAR ATRACE - can help tackle these challenges. The final report of the scoping study will become available on short notice through our website.