System-based approach to vital systems for proper growth in Rotterdam

Cities are growing. However, many vital and physical systems – from energysupplies and water management to mobility – are under strain. At the same time,transitions demand adaptation. What approach to our vital systems is needed for aproper growth of our city? The municipality of Rotterdam asked TNO Vector thisparticular question. Together, they developed a system-based approach andcoordination for vital systems, which is also useful to other municipalities.

Vital, but not self-evident

Vital systems are often taken for granted. They function, keep functioning and we can connect anything we want to them. This is no longer the case. They are becoming more heavily burdened and complex. They require more space and must adapt to the energy transition. New European regulations and climate change have an impact, as do external factors such as the Russian invasion of Ukraine, which had far-reaching consequences for the energy supplies.

Proper growth, but how?

Vital systems are a prerequisite for Rotterdam’s ‘proper growth,’ a main goal of the Rotterdam environmental vision “City of Change” (2021).

Rotterdam was familiar with the need to consider what a network can handle related to traffic and mobility networks, says Marije ten Kate, chief planner of the municipality of Rotterdam: “But you cannot see underground material, like sewage and electricity. You tend to think: the capacity will be fine. That was no longer the case.”

Within the municipality, there is sufficient knowledge of the individual vital systems, says Ten Kate: “But if you are looking at just one system, you don’t know what it takes to ensure strategic proper growth as there is cohesion between the systems. They affect one another. That aspect was a black box for us, though.”

Questions to TNO Vector

1. Help us develop a cross-industry approach for urban vital systems

How can we get a better insight of what is happening within and between vital systems? What approach to vital systems matches ‘a proper growth’? The municipality of Rotterdam asked TNO Vector to help answer these questions.

Resources: a survey and further development of an analysis method. The goal is a change approach that shifts the municipality from ‘reacting to incidents in operations’ to ‘anticipating strategic choices.’

2. Consider Governance

As chief planner, I seek space for the continuous growth and change of the city, such as the changing housing needs, says Ten Kate. “However, focus on new requests is not yet sufficiently incorporated in our ‘standard procedures,’ but it should be. Therefore, we also wanted to look at governance with TNO.”

3. Collaborate in Co-Creation

Rotterdam and TNO Vector worked closely together. Rotterdam provided a process manager; TNO Vector provided the content manager, Geiske Bouma, who specialises in innovative urban issues: “Taking a step that has not yet been taken delights me,” says Bouma. “This requires the commitment of various expertise groups and perspectives. It is my role to orchestrate them and ensure they connect.” A small core team managed the project. Experts were consulted in working sessions.

Result: The Exploration of vital systems in Rotterdam (2023)

This report contains insights, the development and testing of the vital systems analysis method, and recommendations for governance and organisation. The summary and the entire report Exploration of Vital Systems in Rotterdam are available upon request from Geiske Bouma.

Key Points of the Exploration of Vital Systems in Rotterdam

• Current Situation: Rotterdam struggles with policy goals without adequate implementation strategies, with silo-thinking and fragmented decision-making, and alack of coordination and spatial management.
• Preferred situation: A more collaborative, system-based approach and coordination of vital systems, as changes in vital systems are interconnected and affect each other.
• System thinking is core: Do not just look at the symptoms, but identify underlying causes and connections as well.
• Three Types of Issues in Vital Systems: Simultaneously, three types of issues -possibly linked - play a role. Firstly, system issues (is there enough capacity?), spatial distribution issues (where in the city is space for what functions, how to achieve good distribution or concentration?), and integration issues (how do we rightfully fit in all requirements in the available plot or in public areas?).
• The 7-step ‘Vital Systems Analysis Method’ provides insight: With this tool, a municipality can map the system, bottlenecks, opportunities, and dependencies itself.
• Extensive internal and external collaboration is key: Vital systems are currently managed by industry, while systems increasingly affect and compete with each other. The old project-based approach leaves many risks and opportunities undetected. Strategic issues now end up at operational levels. The Exploration provides recommendations for governance and organisation of a system-based approach, such as a forum for cross-industry issues.

Success Factors

• It takes two to pioneer: The question for TNO Vector was clear: we are looking for a director who is able to find out with us what needs to be done. This question was quite specific. Whilst working this out, we found out this was pioneering, which can only be achieved through good collaboration and trust.
• Leadership within the municipality: The project outcome was not predefined; that was precisely the innovation for which TNO Vector was asked. Quite exciting. Due to support from the municipal board, budget was eventually made available. And importantly: time from content experts for the working groups.
• Structured Approach: pioneering too requires management. There was a strict plan of action.
• Frustrations are part of the deal: Experts sit around the table. ‘Their’ systems turnout to have similar issues, but sometimes they conflict with each other. People are proud of their systems, but they are all speaking a different ‘language.’ Conversations can sometimes lead to tension. These frustrations are part of the process. When managed well, you can get an open conversation. It’s all about learning and reflection.

What surprised me most in this project is how the vital systems are already strongly cohesive and separated at the same time, says Ten Kate: “Issues with and between external partners are often ‘solved’ legally. With a lawyer’s letter. But lawyers are not going to solve these issues, because it is not a legal problem. We need to take issues seriously and resolve them rather than shoving them off our plate.”

Innovating together, for other cities too

Freedom of pioneering together was a nice condition for this project, says Bouma: “The municipality and TNO were exploring together. Together they looked at what was needed at that moment. I also thought: TNO Vector can learn something here. Developing knowledge about the approach to a system issue. Also, to help other cities - nationally and internationally. Rotterdam thought this was a good idea. So, we have created a versatile approach now. From now on, every municipality can start ‘tweaking’ it for their own purposes.”

TNO has a national and international perspective, concludes Ten Kate: “We benefited from their examples and networks of other capital cities. This is how we knew that this had never been done before this way, as we often heard: you’d better ask someone else. Or: you’d better get that information from somewhere else. My reply to that would be: we asked precisely that question because the knowledge is not available anywhere yet. We need to develop it together. And so we did.”

Want to know more about this approach? Contact Geiske Bouma.