The implementation of the government’s freshwater policy is falling behind schedule. As a result, the measures cost more and the societal losses continue to mount. Moreover, the Minister of Infrastructure and Water Management is providing insufficient direction. The Netherlands Court of Audit draws this conclusion today in its report “Concerns about Freshwater”.
Nearly three quarters of the measures examined under Phase 1 of the Freshwater Delta Programme, which ran from 2015 to 2021, were delayed during implementation. For measures concerning the main water system, the average delay was three years. Moreover, delayed measures almost always cost more than originally budgeted. As a result, expenditure from the Delta Fund and by the regions on the measures in the first phase totalled €513 million. This was 40% more than originally budgeted (€365 million).
Examples of delayed projects include the implementation of the IJsselmeer Water Level Decree, which was delayed by five years, and the measure to continuously and accurately measure the exact amount of water flowing (the discharge) along the Nederrijn–Lek stretch of river. The latter measure was delayed by four years.
The Court of Audit considers the delays a cause for concern because, until now, the Minister has regarded the measures as low-hanging fruit. Many of the measures had already been planned and were included in the Delta Programme. They were therefore not new. Moreover, progress in Phase 2, covering the period from 2022 to 2026, has once again fallen behind schedule.
Main water system measures delayed by an average of 3 years
The changes compared with the original planning of the measures examined. Some measures were completed ahead of schedule, but nearly three quarters were delayed. On average, the 15 measures examined in the main water system were delayed by 3 years.
Damage caused by freshwater shortages
Drought-induced freshwater shortages result in recurring damage across many sectors. To quantify this damage, the Court of Audit examined the average annual damage over a 26-year period for the natural environment, agriculture, shipping and industry. The damage is difficult to express in monetary terms, but losses can be expressed as changes compared with the previous year. The figure below shows the average percentage loss over the period 1998–2023. Think, for example, of a deterioration in the natural environment and poorer harvests. Even a small decline can, over time, lead to significant societal and economic damage. The extreme drought in the summer of 2026 has not yet been included in this study.
Dutch sectors suffer significant damage from drought
Drought causes recurring damage in many sectors. For the natural environment, agriculture, shipping and industry, we examined the average annual damage over a 26-year period. This damage is difficult to express in monetary terms, but losses can be expressed as percentage changes, such as a deterioration in the natural environment and poorer harvests.
Co-financing and stronger leadership
The Netherlands Court of Audit’s investigation resulted in a number of recommendations for the Minister of Infrastructure and Water Management. The Court of Audit found that measures often did proceed as planned when the Minister contributed to their funding (co-financing) and decentralised authorities, such as water authorities and provincial authorities, were involved at an early enough stage in the development of the plans. This builds support in the regions. However, this type of support for the regions and for measures under the Delta Programme is not always available on an ongoing basis. The Netherlands Court of Audit therefore recommends that the Minister provide ongoing co-financing to the freshwater regions.
The Court of Audit further concludes that the Minister needs to take greater control, for example by making the Freshwater Delta Plan’s objectives concerning freshwater shortages more specific and by planning more realistically. The Minister can also ensure that freshwater shortages receive sustained attention in the House of Representatives. Meanwhile, the costs to society, including those relating to the natural environment, agriculture, shipping and industry, continue to rise.