Flood Management and Ecological Improvement - The Creation of Lake Phoenix
Full Solution
View of the restored Emscher stream with its new floodplain bypassing Lake Phoenix
Source: Gabi Lyko, EGLV
Due to mining and industry, streams in the densely populated Emscher catchment were once open sewage canals. A steel production company dominated the landscape until 2001, forcing the stream to flow in an underground channel. After the industrial area was abandoned, the factory was demolished and – after much debate - developed into a multipurpose lake. Large-scale restoration has returned the stream and much of the catchment to a natural state, including the ecological hotspot Lake Phoenix.
Last update: 09 Mar 2021
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Context
Challenges addressed
The first challenge was to decide about the future use of the abandoned, formerly industrial area as well as to secure financing for implementing the solution. To evaluate the feasibility and risks involved, a long planning phase was needed. The multiple objectives in the solution required compromises to be made, for example between ecological objectives (i.e. size of the lake and natural areas) and economic priorities (i.e. make the land available for real estate development).
Location
Dortmund, Germany
West and South Europe
Process
Summary of the process
Successful implementation of the project required that a robust framework be developed (building block 3), which synergistically combined various interests, ambitions, and challenges in order to address the diverse problems and goals involved in the restoration project (building block 1). The multitude of interests addressed by and benefits delivered from the project enabled sufficient funds to be secured for planning and implementation activities (building block 2).
Building Blocks
Synergistically addressing diverse problems and goals
In order to find an EbA solution for e.g. the development of an area in which multiple actors have an interest in, it is important to synergistically combine various interests, ambitions, challenges and goals.
Enabling factors
A crucial factor for the realization of Lake Phoenix was the successful linking of various problems (flood risks; abandoned brownfield site) and goals (flood retention; river restoration; increase of attractiveness of the city, etc.) to gain support from a range of actors. To this end, the lake was designed to serve as a biodiversity hotspot, flood retention basin, and recreational area. Most significantly, it increased the attractiveness of the city by rejuvenating an underprivileged district.
Lesson learned
Achieving multiple objectives required compromising, for example between ecological objectives (i.e. size of the lake and natural areas) and economic priorities (i.e. land being available for real estate development). As a result of a common will to succeed and a number of group and bilateral meetings between key stakeholders, these compromises could be reached. Interviewees also highlighted that the actors’ good relations and belief in the project helped find solutions, just as it helped to settle discussions concerning upcoming additional costs and risks. The (historical) role and position of the water board as a mediator was important in this respect. The realization of Lake Phoenix was furthermore facilitated by favorable timing, being that the Emscher conversion coincided with the abandonment of the brownfield site. The obligations and environmental objectives resulting from the implementation of the Water Framework Directive can also be seen as an important facilitating factor.
Securing sufficient funds for a multi-purpose EbA solution
As this solution serves various goals and meets several objectives, it was possible to secure sufficient funding from diverse parties, domains and funding bodies to cover the entire implementation of the project. In the case of the creation of Lake Phoenix, this included funding for water management from the water board; funding for ecology from the ecological funding program by the federal state; funding for urban development from etc. The water board, for instance, provided the amount of money that was already budgeted for the construction of a flood retention basin. This basin was not needed anymore, as the lake solution already provided the required flood retention function. Some additional potential funding sources were not even used in the end, because it would have slowed down the marketing of the real estate and would have tied the project to certain restrictions, which were not desired by the decision-makers.
Enabling factors
Given that the solution serves various goals, funding was able to be secured from a range of parties, sectors and sources. The marketing of real estate properties along the new lake shore was a financial aspect considered from the project’s start in order to make the project implementation financially partly self-supporting. The project consortium took great care of timing, for instance regarding the deadlines of the various funding programs.
Lesson learned
Establishing the diverse benefits provided by a solution is an important step in the planning process, as it highlights the various sectors and stakeholders who can potentially be involved in and benefit from the solution. Drawing attention to the potential benefits, and underlying this with a sound scientific evidence base with which to approach these parties, can facilitate the successful generation of funds from a range of sources. Innovative financing approaches can also act as ‘self-sustaining’ and generate funds during the course of the project to fund some of the foreseen activities.
Setting the framework for successful restoration activities
The implementation process began with the founding of the PHOENIX-See Entwicklungsgesellschaft (EG ) - as a subsidiary of the municipal utility company - to manage this large-scale project. An external project leader was employed and expert engineering offices were contracted. The EG was involved on all topics relating to water management of the Emscher and the Pheonix lake. From the governmental side, a large number of agencies were involved in the process. Public participation was realized through formal and informal meetings and discussions. Of importance were also the feasibility and assessment studies initiated in 2001 to improve the design of the solution and convince decision makers that the risks involved were acceptable. The plan was finally approved in 2005, with digging operations starting in 2006. A year later, the new wastewater sewer was finished and in 2009 the renatured Emscher started to flow in its new bed. Finally, the lake was flooded in 2010 and officially opened in 2011. The construction of houses along the lake started in this period and in 2013 the Entwicklungsgesellschaft “delivered” the lake back to the city of Dortmund.
Enabling factors
There were a few conflicting goals which needed to be resolved in order to begin with the restoration activities, including a conflict for space. A compromise had to be found between ecological (size of the lake) and economical (size of the real estate area) demands. The good relations, enthusiasm, and belief of the actors in the project helped to reach agreement on this conflict of interests, and concerning upcoming additional costs and risks.
Lesson learned
It was important to conduct feasibility and assessment studies to improve the design of the solution and convince decision makers that the risks involved were acceptable. As huge amounts of soil had to be moved, which is very energy consuming and expensive, good soil management was very important. A large amount could be left on the building site for modelling the embankment areas and the terraces for the housing.
Impacts
Lake Phoenix serves as a flood retention basin, biodiversity hotspot, and place for local recreation, water sports, and sports along the lake shore. Furthermore, its existence has made the area and thus the city as a whole more attractive for both people and businesses.
Beneficiaries
The inhabitants benefited a new recreation area, flood protection and increased amenity values. Biodiversity also benefited from the new urban ecosystem, as well as the water board from the creation of a new flood retention basin.
Sustainable Development Goals
SDG 1 – No poverty
SDG 3 – Good health and well-being
SDG 8 – Decent work and economic growth
SDG 9 – Industry, innovation and infrastructure
SDG 11 – Sustainable cities and communities
SDG 13 – Climate action
SDG 14 – Life below water
SDG 15 – Life on land
Story
Aerial photo of Lake Phoenix surrounded by residential areas and yet to be built new real estate properties along the lake shore
Hans Blossey, Emschergenossenschaft
Until 2001, a steel production company was located where Lake Phoenix is now situated, with the Emscher stream flowing underneath. In the 1990s, the steel works were coming to an end and a brainstorming took place on how to develop the area. In 2001, the factory was shut down and deconstructed. The city of Dortmund bought the area, which was owned until then by the mining company. In discussions about future uses, the idea to transform it into a lake was proposed - and initially only laughed at! However, a few committed individuals pushed for this idea and were able to propel the project and inspire a feasibility study and public discussions. The idea of a multipurpose lake surrounded by new properties ultimately turned out to be feasible: It could serve as a biodiversity hotspot, a flood retention basin, and a place for local recreation, while making the city more attractive for both people and businesses. This combination of various problems (flood risks; abandoned brownfield site) and goals (flood retention; Emscher conversion; attractiveness of the city, etc.) served multiple interests and was a crucial success factor. The PHOENIX-See Entwicklungsgesellschaft was founded to manage this large-scale project, while the local water board was involved in all topics related to water management. In this coalition, various parties with different problem perceptions, solutions and resources worked together, with a clear division of tasks, responsibilities and expertise. From the governmental side, a large number of agencies were involved in the process. Public participation was realized through formal and informal meetings and discussions. Further feasibility and assessment studies were conducted to improve the solution and convince decision-makers that the risks were acceptable. After a long planning phase, digging operations started in 2006. In 2010 the lake was flooded and officially opened in 2011. The construction of houses along the lake also began in this period. In 2013, the Entwicklungsgesellschaft “delivered” the lake back to the city of Dortmund. Given that the project served various goals, funding could be organised from several parties and domains, e.g. the Emschergenossenschaft provided the amount of money that was already budgeted for the construction of a flood retention basin. The marketing of the real estate developments was a further financial aspect considered from the start in order to make the project partly self-supporting.
