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Home » Mining Area Agreement (BBFV) RUHR – Study Regarding the Effectiveness of a New Form of Cooperation

Mining Area Agreement (BBFV) RUHR – Study Regarding the Effectiveness of a New Form of Cooperation

The mining industry of the past has left long-lasting tracks in the territorial structure of the Ruhr area. Dealing responsibly with the area’s mining heritage in terms of sustainable regional developments is a major challenge. In 2014, the 17 pertinent municipalities and districts, together with the state government of North-Rhine Westphalia, RAG Aktiengesellschaft and the Ruhr Regional Association (RVR), concluded the “Mining Area Agreement | Agreement on the Forward-looking Revitalisation of Significant Mining Areas” (BBFV). The agreement formally sets forth the understanding of a common regional responsibility to ensure a sustainable subsequent use for mining areas of regional economic and urban development significance. The negotiations between the partners laid the foundation for a common understanding of the prioritisation of areas for development. The agreement provides a framework for short information and decision-making paths as well as for a growing exchange and transfer of knowledge. The integrated area developments are clearly supported by interdepartmental coordination and funding priorities of the Federal State of North-Rhine Westphalia. The parties share to their mutual benefit the experience they gain from the developments in the various projects at the individual sites. The RVR coordinates the cooperative activities and provides platforms for interaction among the municipalities on specific and general issues. The bundling of the increasing knowledge and experience from the projects reveals challenges that can be considered characteristic for tasks of mining and industrial area development in North-Rhine Westphalia.

Author/Autor: Dipl.-Ing. Jürgen Brüggemann, Forschungszentrum Nachbergbau (FZN), Technische Hochschule Georg Agricola (THGA), Bochum/Germany

Introduction

Fig. 1. Mining Area Agreement (1). // Bild 1. Bergbauflächen-Vereinbarung (1).

The Ruhr area is a particularly striking expression of a development in mining history. Its territorial structure has been strongly influenced by the functional requirements of the mining, coal and steel industries of the past. In the Ruhr and the Ibbenbüren coal region, the challenge was and is the successful transformation of the former mining region. In 2014, the 17 pertinent municipalities and districts, together with the state government of North-Rhine Westphalia, the mining company RAG Aktiengesellschaft with its real-estate subsidiary and the Ruhr Regional Association (RVR), concluded the “Mining Area Agreement | Agreement on the Forward-looking Revitalisation of Significant Mining Areas” (BBFV) (1). The BBFV (Figure 1) was concluded against the backdrop of the then pending closures of the last three mines: Auguste Victoria in Marl (2015) and Prosper-Haniel in Bottrop (2018) and in Ibbenbüren (2018). The objective was to create a long-term funding perspective for the municipalities and the landowner. The state government was supposed to communicate to the involved players that there was a common basic understanding that the subsequent use of the areas required “plenty of stamina”. The BBFV marks the start of a new cooperation process designed to ensure a successful transformation in former mining regions through the common efforts of the parties.

At the heart of the agreement are 20 mining areas in the Ruhr and the Steinfurt District. These areas are regarded as especially significant for economic and ecological renewal tailored to the specific local conditions and their development potential. The cooperation partners selected the areas on the basis of their common understanding of challenges and quality and defined their objectives, requirements and forms of cooperation. Each partner assumed a specific area of responsibility and committed to a speedy and site-appropriate development of the areas.

Reason for the study

After a period of seven years, the question arises whether additional insights could be gained beyond the annual evaluation found in the progress reports. The objective is to analyse the BBFV as an instrument featuring innovative forms of cooperation to determine what has been learnt from the experience so far. This is important both for further inter-community and interdisciplinary cooperation on the transformation of the Ruhr and as a model for other mining regions in Europe.

After seven years, huge quantities of facts and figures on the development progress on the sites and sufficient experience from working together in this innovative cooperation scheme have been gathered. Besides the knowledge gained for future regional development processes, the results of the study can also be used as guideposts for European networking related to the topic.

The RVR engaged the Post-Mining Research Centre (FZN) at the TH Georg Agricola University (THGA) in Bochum to investigate scientifically the effectiveness of the new form of cooperation.

Contents

In 2014, the previously informal cooperation between the municipalities was expanded to include the other partners – the Federal State of North-Rhine Westphalia and RAG Aktiengesellschaft – and contractually secured by the BBFV. The agreement formally sets forth the understanding of a common regional responsibility to ensure a sustainable subsequent use for mining areas of regional economic and urban development significance.

The 2008 coal exit decisions opened a ten-year window until the final closure in 2018 for anticipatory action and joint preparation for the time “without coal”. The municipalities and districts had jointly decided to use this window of opportunity to achieve the transformation from a stronger position. This resulted in the willingness to engage in inter-community coordination and dialogue process so that they would be well prepared for the then new EU funding period (2014 to 2020). The many years of experience with inter-communal processes in the Ruhr, which had been put into place for the IBA Emscher Park, the Emscher Landscape Park and the Emscher renaturation, created a basis of trust.

The region presented a strategic perspective for the next decade, the “Ruhr Concept” (0.42008). Building on the contents of the previous urban development policy, it took up the challenges of the future and described how they could be mastered while assuring the high quality of realisation. (2) This perspective was precisely aligned with the priorities of the new funding period 2007 to 2013. Early clarification of the effects of possible closures were aimed at preventing dramatic regional collapses that might be possible. The “Ruhr Concept” perspective was a tremendous opportunity for a ten-year anticipation process. The position paper “Transformation as an Opportunity” (10.2008) concretised the objectives of “Ruhr Concept” to provide an assessment of the common implementation of medium to long term effective concepts in response to coal decisions. (3) It applied to more than 40 cities and municipalities in the Ruhr and Steinfurt District. The position paper described the general conditions in the regions and formulated principles of common action. Fields of action for a coordinated strategy of all players and specific projects with a local and regional orientation were designated within the scope of the perspective:

  • New use and develop (BBFV);
  • Fund and support (education report);
  • Renew and invent (Commercial Zone Management Ruhr).

The first step was to secure the areas and subsequently develop them sustainably. The focus here was also on coordinated research and technology support. The guiding principle “New use and develop” laid the groundwork for concentrating on significant mining areas. The BBFV was developed from this foundation and was finally signed by all project participants in 2014.

Development

The BBFV is intended to focus on active support of the overall process for sustainable urban and regional development on a-reas with potential in the Ruhr. During the negotiations between the future partners, the foundation for a common understanding of the prioritisation of areas for development was laid.

Criteria such as sustainable subsequent uses, urban development significance, coordination with regional planning, settlement and employment effects, stabilisation of social structures and limitation of land consumption were the guiding principles. The selection of the 20 mining areas and the agreement on common goals to be achieved with shared responsibility between the partners are the pillars of the BBFV (Figure 2).

Fig. 2. Sites of BBFV and RAG Aktiengesellschaft (4). // Bild 2. Standorte der BBFV und der RAG Aktiengesellschaft (4).

The objective of the agreement describes the realised subsequent use of mining areas that were previously closed or scheduled for closure. The common understanding of the parties is documented in the assessments. The specific duties and responsibilities are defined within the purviews. Since the signing of the BBFV, the development of the 20 selected mining sites has been prioritised with shared responsibility among the partners. The informal cooperation and inter-community exchange already practised prior to the BBFV have been cast in an authoritative structure in the BBFV (informal and formal exchange).

Structures

The steering committee set up concurrently with the BBFV coordinates and controls the overall process. Its authority is a consequence of the participation of the decision-making level consisting of the main administrative officials of the municipalities, the regional director of the RVR, the state secretary of the Ministry of Economics of the Federal State of North-Rhine Westphalia and a member of the board of RAG. At the annual conference, specific local features along with fundamental issues relating to funding, project development and general financing are discussed and debated. Deliberations are based on the annual status reports and their area evaluations.

The joint consultations based on annual area evaluations allow obstacles and progress in area development to be identified in good time. In consequence, measures can be adapted, obstacles analysed and solutions initiated. The steering committee members act as multipliers by communicating needs to the organisations they represent, making decisions and initiating any required measures. The various area developments are dependent on the specific local conditions, and each proceeds at its own pace. The coordinating function of the RVR favours the exchange of knowledge and experience among local project managers on issues of relevance. This transfer of know-how realises added value for the completion of tasks on site.

As part of the inter-community exchange of experience, challenges that can be considered specific to the transformation of mining areas and that require separate solutions are also identified. As the largest in terms of numbers and most “multifaceted” partner, the municipal side also uses the exchange to coordinate overarching issues within the sense of regional consensus, enhancing the clarity of the municipal profile and strengthening the municipal position.

Added value

The partners agree in their assessment that the BBFV provides a framework for short information and decision-making paths as well as for a growing exchange and transfer of knowledge. The goal of integrated area developments is clearly supported by interdepartmental coordination and funding priorities of the Federal State of North-Rhine Westphalia. A key element is the bundling of activities at the leading Ministry of Economics, including the coordination of departmental collaboration and the expansion of utilisation options from strictly commercial to integrated area development.

The specific structures and instruments created in accordance with the BBFV facilitate acceleration of the processes and decisions. The annual progress reports on developments in the individual areas offer a transparent presentation of progress and possible obstacles. They are regularly used as a basis for joint informal consultation. Thanks to this groundwork, any need for action can be identified promptly and required decisions can be prepared.

The landowners and the municipalities with their planning sovereignty retain responsibility for the development measures of specific sites. Starting from the BBFV, special frameworks and structures are also created locally, e. g., through cooperation agreements specifying concrete details or the establishment of project companies. Experience from local developments is shared within the framework of the BBFV to the mutual benefit of all concerned in both bilateral discussions and in the inter-community meetings coordinated by the RVR. This transfer of knowledge benefits both the project managers and the local sites.

Fig. 3. Project Freiheit Emscher, Essen: aerial photograph, framework plan & Emil Emscher (5, 6). // Bild 3. Freiheit Emscher, Essen: Luftbild, Rahmenplan & Emil Emscher (5, 6). Photo/Foto: RVR

Cooperation and coordination processes are set in motion on the individual areas such as Freiheit Emscher, which has two BBFV sites (Figure 3). One example is seen in the forward-looking coordination of the mine operator’s final operating plan procedure with the related urban development planning, which is the responsibility of the municipality. Such processes lead to a minimisation of the use of resources as experience grows.

The inter-community coordination of focal points for use and development as well as market access have led to joint rather than competitive action. The exchange relating to specialist topics at problematic locations leads to a common understanding and added value among the involved parties as possible solutions can be identified and discussed at an early stage. At the same time, regular exchange and evaluation prevent activities that hinder the process (Figure 4).

Fig. 4. Freiheit Emscher, general schedule. // Bild 4. Freiheit Emscher, Rahmenterminplan. Source/Quelle: FZN

Since the signing of the BBFV, the selection of areas has been translated into corresponding funding priorities on the part of the state government of North-Rhine Westphalia, benefiting the local area projects because of the focusing and bundling of funding. The openness of the economic authorities to the use-neutral or integrated approaches to area development as well as interdepartmental coordination permit integrated funding and long-term perspectives as well.

The quality of the cooperation between the municipalities, the Federal State of North-Rhine Westphalia and RAG is enhanced with each positive experience of their work together. Conversely, changes in the structure affecting the specific responsibility of single partners can lead to confusion among other partners to the agreement. The reliability of every single partner concerning the responsibility it has assumed can be considered an essential criterion for the successful collaboration of the partners within the framework of the BBFV.

The steering committee set up in the BBFV has a positive impact on the optimisation of processes and decisions. The staffing of the steering committee, which enables joint consultation of all partners at decision-making level, is felt to be especially effective.

The coordinating and facilitating function of the RVR encourages the exchange of experience and the transfer of knowledge among the partners. On-site project managers can benefit. The knowledge gained from the experience also offers starting points and insights that can be used for the development of industrial sites in North-Rhine Westphalia.

The BBFV has created a more specialised focus of financial and human resources on common priorities in the transformation of mining areas. Regular area evaluations lead to particularly high transparency of development processes. Successes and challenges become visible at an early stage and can be assessed accordingly. The partners have also adjusted structurally to the BBFV so that the cooperation of the stakeholders can generate accelerated effects on the development of financing models and the realisation processes.

Site-based cooperation has also secured greater attention and consideration for the individual sites. The BBFV has increased the importance of single areas among project participants without losing sight of the overall focus. Coordinated objectives and plans can ward off regional competition and promote interdisciplinary action. These processes result in a greater openness to a diversity of uses with a specifiable market entry.

Commensurate with the duration of the cooperation and the development progress, the awareness of the BBFV as a new form of cooperation for the revitalisation of (former) mining areas is rising. Third parties — both in Germany and in Europe — are enquiring about the experience and findings from the BBFV. As a model approach for the reactivation and reuse of mining and industrial sites, the BBFV could in future have an even more powerful effect as testimony to the competence and solution orientation that burnishes the image of North-Rhine Westphalia as a whole and especially of the Ruhr and the Ibbenbüren coal region.

Exemplary nature and future prospects

The current results are definitive proof of the exemplary nature of the BBFV approach for the transformation of mining and industrial areas. As a regional instrument for the transition of a region that takes into account social, ecological and economic goals, it can provide valuable guidance for area projects in other locations in Germany and Europe, especially since for many regions the time of post-mining has just begun with the exit from coal, the energy transition and the “green transformation”. In North-Rhine Westphalia and especially in the Ruhr, this structural change has been guided for a long time. However, the transformation of mining and industrial areas remains an ongoing task in Germany as well as in other countries.

The experience from the BBFV can serve as stimuli for the tasks in North-Rhine Westphalia, in other federal states and in exchange with other parts of Europe and give rise to new approaches to action. The long-term cooperation of the key players toward a common development goal with the voluntary commitment to specific duties and responsibilities can be seen as exemplary.

The BBFV is nothing less than the formal structuring of informal cooperation and trust among the municipalities that has evolved in the Ruhr over the years. Within this framework, the 17 municipalities and districts work in close interaction towards the common goal of successfully realising the area and project developments on the local mining areas as integrated regional building blocks. The RVR coordinates the cooperative activities and provides platforms for interaction among the municipalities on specific and general issues. Inter-community coordination is intended to strengthen the position of the municipalities as a group vis-à-vis the other partners. The inter-community exchange also seeks to facilitate the transfer of knowledge between local project managers and to develop competencies in area development further.

In the Ruhr and in North-Rhine Westphalia as a whole, successful cooperation within the framework of the BBFV was and is based on special prerequisites. Inter-community cooperation in the field of regional development is one of these prerequisites. It builds on the many years of experience that have created trust in inter-community processes. Being jointly “impacted” by the challenges of structural change and the strengthened position through cooperation increased the chances to use the lead time of the coal exit decisions – ten years – for anticipatory action. The inter-community coordination and dialogue process enabled the best possible preparations for the EU funding period (2014 to 2020) that was due to begin at that time and to use the experience gained for the following European funding period from 2021 onwards.

Specific factors that have proven to be contributors to success:

  • the ownership structure with one owner for all areas;
  • the integration of the general economic conditions of the landowner;
  • the legal regulations in Germany governing the final operation planning for mining areas;
  • the successful joint prioritisation in the region of 20 areas; and
  • the documentation of the use of funding and the progress of development.

A transfer or exploitation of experience from the BBFV would be successful solely in awareness and appreciation of these specific prerequisites. In other words, the general conditions existing at a different location must be examined closely to determine their similarity to those of the BBFV.

The increasing knowledge and experience from the projects reveal challenges that can be considered characteristic for tasks of mining and industrial area development in North-Rhine Westphalia. Such challenges may come from unforeseen barriers because of pollution and/or mining damage, questions about dealing with industrial buildings that would be worthy of preservation and the effects of European state aid law on ownership, settlement and marketing activities. These crossover challenges could be systematically documented within the framework of the BBFV and prepared for further consideration.

The growing know-how and experience from the BBFV’s area development projects have also created a knowledge resource that could be shared and developed through specific exchange and transfer for the mutual benefit of the partners and as a regional competence. Scientific support could help to consolidate this competence and make it available to others.

External stakeholders and players could, e. g., obtain insights into the complexity of the projects and processes. Last, but not least, the BBFV is also seen as a framework for initiating and testing customised solutions for the specific challenges in area revitalisation.

References/Quellenverzeichnis

References/Quellenverzeichnis

(1) Regionalverband Ruhr (2014): Bergbauflächen-Vereinbarung: Vereinbarung zur vorausschauenden Revitalisierung bedeutsamer Bergbauflächen. Online: www.rvr.ruhr/politik-regionalverband/europa/bergbauflaechen/die-bergbauflaechenvereinbarung/, letzter Zugriff: 25.08.2021.

(2) Wirtschaftsförderung metropoleruhr GmbH (2008): Konzept Ruhr: Nachhaltige Stadt- und Regionalentwicklung in der Metropole Ruhr. Online: www.konzept-ruhr.de/fileadmin/user_upload/metropoleruhr.de/Konzept_Ruhr/Veroeffentlichungen/Konzept_Ruhr_-_Strategie_2008.pdf, letzter Zugriff: 25.08.2021.

(3) Wirtschaftsförderung metropoleruhr GmbH (wmr) (2008): Wandel als Chance: Positionspapier der Metropole Ruhr und des Kreises Steinfurt aus Anlass einer Bewertung von Folgen der Kohlebeschlüsse. Online: www.kreis-unna.de/fileadmin/user_upload/Kreishaus/kfp/pdf/Zukunftsdialog/Wandel_als_Chance_03.11.08.pdf, letzter Zugriff: 25.08.2021.

(4) RVR (o.J.): Übersicht der 20 Standorte der Bergbauflächen-Vereinbarung. Zur Verfügung gestellt vom RVR – ohne Copyright.

(5) RVR (2021): Essen Emil Emscher/Hafen Coelln: Teil des Verbundprojektes „Freiheit Emscher“. Online: www.rvr.ruhr/politik-regionalverband/europa/bergbauflaechen/die-20-standorte/essen-emil-emscher-/-hafen-coelln/, letzter Zugriff: 25.08.2021.

(6) RVR (2021): Bottrop – Prosper II: Teil des Verbundprojektes „Freiheit Emscher“: Online: www.rvr.ruhr/politik-regionalverband/europa/bergbauflaechen/die-20-standorte/bottrop-prosper-ii/, letzter Zugriff: 25.08.2021.

Author/Autor: Dipl.-Ing. Jürgen Brüggemann, Forschungszentrum Nachbergbau (FZN), Technische Hochschule Georg Agricola (THGA), Bochum/Germany