A sustainable future for
Curaçao
Strategic options for ISLA and the ISLA site
Phase 1, part 1
Final report
Client: Ministry of Economic Development
Rotterdam, 31 January 2011

A sustainable future for Curaçao

Strategic options for ISLA and the ISLA site

Client: Ministry of Economic Development

Rotterdam, 31 January 2011

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2

A sustainable future for Curaçao

Table of contents

Preface

5

Summary

7

1

2

Introduction

11

1.1 Background

11

1.2 Objective

12

1.3 Elaboration of the questions addressed

12

1.4 Structure of the report

13

Ambitions, vision development and methodological framework

15

2.1 Sustainable development: key policy issue for the new Government of Curaçao

15

2.2 Vision and ambitions

15

2.3 Methodological Framework: How to determine the economic value
of a policy intervention
3

16

Description of the strategic options to be explored

19

3.1 Introduction

19

3.2 Track A: a refinery at Curaçao which operations will last far beyond 2019

19

3.3 Track B: ‘corner’ solutions for re-development of the ISLA area (after closure of ISLA in
2019 or earlier)

4

5

20

3.4 Reference option or “base case”

20

3.5 Strategic options to be considered in more detail

21

Comparison of the effects and feasibility of the strategic options

23

4.1 Characteristics of the base case

23

4.2 Determining factors for the three main strategic options

23

4.2.1

Analysis of determining factors of option A1

24

4.2.2

Analysis of determining factors of option A2

26

4.2.3

Analysis of determining factors of option B

28

4.3 Effects of strategic options on actors

30

Information gaps to be elaborated in phase 2

33

5.1 Information gaps related to the refinery

33

5.2 Information gaps related to dismantling the refinery and cleaning the refinery area

34

5.3 Information gaps related to location Bullenbaai and ISLA site after cleaning

35

5.4 Information gaps related to redevelopment of the ISLA site after cleaning

35

Annex 1 List of interviewees

37

A sustainable future for Curaçao

3

Preface

On behalf of the Ministry of Economic Development of Curaçao, in this report ECORYS presents
the results of phase 1, part 1 dealing with the strategic options for ISLA and the ISLA site and
focussed on providing information to the Ministry of Economic Development of Curaçao to be used
as a basis for answering questions concerning strategic long term economic development
specifically the potential of oil refining on Curaçao.
ECORYS is grateful for the pleasant and productive cooperation and useful discussions with the
core team of the principal, the Ministry of Economic Development of Curaçao during the short
period in which this assignment had to be carried out.
Furthermore, we wish to particularly thank all our interview partners and the institutions they
represent for the highly useful and practical information that added significant value to this report.

The ECORYS team:
Leo Beumer
Ilse van de Velde
Nol Verster
In cooperation with Rob van den Bergh (Curconsult)

Rotterdam/Curaçao, 31TH of January 2011

A sustainable future for Curaçao

5

Summary

Vision and ambition
The Government of Curaçao wants to formulate a political vision, showing its realistic ambition to
realise an economically, socially and ecologically sustainable development of the island. Obviously,
two well-known dossiers will play an important role in this process, the ISLA refinery and the site on
which it is located for more than a century. Which is the role the national Government should play
on this field? How far should the ambitions of the Government reach, and how do they relate to
possible initiatives of private parties?
From the problem, stated in the ToR, it becomes clear in what direction the ambition for both
elements points. We indicate them hereafter as track A and track B.

 Track A: development of a clear, well underpinned and socio-economic motivated viewpoint of
the Government of Curaçao regarding continuation, or closure and relocation of refinery
activities on the island after 2019 (or earlier).

 Track B: recovering the ISLA area, an industrial site, which – given its prime location – would be
extremely suitable for a number of useful and value generating economic applications if only it is
no longer protractedly and heavily polluted by former and present petrochemical processes.
What will – seen from a welfare economic point of view – be the involvement of the Government if
one or both tracks will be followed? And will the tasks the Government should play be different for
both tracks?

 Investment and operation of a refinery is first of all a private matter. It is therefore the task of
private parties to take initiatives. Governments may try to stimulate their decisions by facilitating
private initiatives and giving incentives, but it is not their role to start investing in or to operate
this type of business.

 However, if after termination of the refinery-activities a heavily polluted site remains, and the
costs of cleaning and clearance can not be recovered from (former) users, the Government has
a different responsibility. It is then legitimate for the Government to make the first move, and –
within acceptable limits - to take financial risks on behalf of the community, if and as far as
removal and cleaning are commercially not (sufficiently) profitable for private parties (for
instance by recycling and selling recovered petrochemical products), and if the site shows
considerable potential for a sustainable welfare increase on the long term.
Objective of the project
The Ministry of Economic Development of Curaçao asked Ecorys to carry out a financial and
economic (or social) cost-benefit analysis for three scenarios and formulating concrete
recommendations that may assist in the process of making a strategic choice for the future of the
ISLA area, including the oil refinery on Curaçao.

A sustainable future for Curaçao

7

The three scenarios (or hereafter called “strategic options”) are linked to track A and B and are the
following1:

 A1 Keeping the ISLA refinery at its current location and “upgrading” it
The upgraded refinery will be in operation from 2019 onwards (or, if possible starting its operations
earlier), fully using the same extensive area of 600 ha;

 A2 Building a new refinery at a different location in Curaçao
The new (modernized) refinery will be built at Bullenbaai and will be in operation from 2019
onwards (or, if possible starting its operations earlier), using a much smaller area (currently
unknown) compared to the ISLA site.

 B ‘corner’ solutions for re-development of the ISLA area (after closure of ISLA in 2019 or earlier)
Three possibilities for using the clean area are: industry (B1), residential area (B2), tourism/offices
B3). It is assumed for the time being that the entire ISLA area is destined for one of these corner
solutions. It is obvious that a mix of these three uses is more realistic. In later stages a mix of uses
has to be discussed explicitly.
Elaboration of questions addressed
To realize the objective mentioned above much data and information is needed and many
additional studies have to be carried out for updating old information and/or filling in the remaining
gaps. This will take much time and effort.
Therefore, to speed up the process the project is divided into two phases, which are defined as
follows:

 Phase 1: providing information to the Ministry of Economic Development of Curaçao to be used
as a basis for answering questions concerning strategic long term economic development
specifically the potential of oil refining on Curaçao as well as setting up a work plan for Phase 2;

 Phase 2: carrying out the financial and economic cost-benefit analysis for the three strategic
options, based on the activities described in the work plan and to be started after its approval.
In this report the focus is on part 1 of phase 1, dealing with information to be provided to Ministry of
Economic Development of Curaçao. Part 2, the work plan to be set up for phase 2, is not described
in this report but will be reported separately.
Comparison of the effects and feasibility of the strategic options
For each of the strategic options the following determining factors have been investigated:
economic effects, opportunities, limitations and risks. In accordance with the methodology of the
cost-benefit analysis a marginal approach has been followed meaning that the options have been
compared to the base case. The base case is defined as the closure of the ISLA refinery in 2019,
dismantling, removal and minimal containment and cleaning (according to the basic guidelines for a
healthy and safety environment) and no possibility for re-development of the ISLA site up to 2045.
Strategic option A1 compared to the base case

 Main economic effect: Significant contribution to the diversity of the island economy due to the
continued presence of the refinery. The upgraded refinery warrants structural and temporary
employment.

 Main limitation: Upgrading of the refinery leads to some more contamination of the site and
activities to clean the site has to be postponed to 2040/452.

1

8

These scenarios are deviating significantly from the original ones mentioned in the Terms of Reference (ToR) and are based
on advanced insight and open discussions with the client. The main change is the additional option(s) of restructuring and
development of the ISLA area after ISLA’s closure, dismantling and cleaning of the area.

A sustainable future for Curaçao

 Main opportunities:
-

Possibility to create a fund for cleaning the ISLA site in the long run.

-

Possibility to negotiate new favourable contractual provisions regarding inter alia financial
and fiscal arrangements.

-

Possibility to attract additional refinery related activities to Curaçao.

-

Ability to comply with the (inter)national environmental standards.

-

Possibility to acquire other potential investor(s)/operators.

 Main risks, which can be considered as a precondition for the feasibility of this strategic option:
-

Uncertainty about the commercial/financial rate of return of the upgraded refinery.

-

Strong dependence on the government of Venezuela and the crude oil production from
Venezuela.

Strategic option A2 compared to the base case

 Main economic effect: Significant contribution to the diversity of the island economy due to the
continued presence of the refinery. The new refinery warrants structural and temporary
employment.

 Main limitation: Land zoning and preparation costs at the Bullenbaai site, costs for extension of
infrastructure and environmental pressure.

 Main opportunities:
-

New favourable financial and fiscal arrangements.

-

Possibility to attract additional refinery related activities to Curaçao.

-

Ability to comply with the (inter)national environmental standards.

-

Possibility to acquire other potential investor(s)/operators.

 Main risks, which can be considered as a precondition for the feasibility of this strategic option:
-

Uncertainty about the commercial/financial rate of return of the upgraded refinery.

-

Moderate dependence on the government of Venezuela and the crude oil production from
Venezuela.

Strategic option B compared to the base case

 Main economic effect: Generation of employment and income resulting from dismantling and
cleaning activities and from the development and establishment of new activities. However, the
generated employment will be negatively influenced due to the lay off of the specialist personnel
of the refinery.

 Main limitation: Investments in dismantling and cleaning the ISLA site and preparing the site for
construction of infrastructure.

 Main opportunity: The development of sustainable and prosperity generating activities on the
ISLA site after dismantling the refinery and cleaning the site.

 Main risks, which can be considered as a precondition for the feasibility of this strategic option:
-

Longstanding lack of demand for activities to be developed on the ISLA site.

-

Delay in dismantling, cleaning and re-development which will reduce the interest of
stakeholders and the economic impact.

Actors involved/affected
The strategic options have an impact on a wide variety of actors on Curaçao. The following actors
are involved in the upgrading or construction of a new refinery: RdK (financing), PdVSA (initiating,
managing and financing), contractors and suppliers (employment). The operation of the refinery has
an impact on employees of the refinery, contractors and suppliers (employment). Upgrading the
refinery or a new refinery gives the Government of Curaçao the opportunity to enter into new and
2

The year 2040/45 is taken as the final year in the period of the analysis. This is based on the fact that both for upgrading
the refinery and for building a new refinery, the economic lifetime is about 25 years (see also section 3.5)

A sustainable future for Curaçao

9

more favourable financial and fiscal arrangements. Finally, the general health of the population will
improve.
Dismantling and cleaning of the ISLA site will generate employment for contractors. It will enable a
share of the technical workers employed at ISLA during its operation, to find a job that fits well with
their education/profession. This is due to the assumption that the refinery at the ISLA site will be
closed in 2019 and no new refinery will be built at Bullenbaai resulting in a decrease of direct and
indirect employment of about 2,000 people in total. In case a new refinery is established at
Bullenbaai, dismantling and cleaning activities create additional jobs.
The cleaned area will be redeveloped with support of property developers and the government of
Curaçao which has to change zoning plans depending on the chosen new activities. The
investments in new economic activities and the operation of these activities result in respectively
temporary and structural jobs and income for the population of Curaçao.
Information gaps to be elaborated in Phase 2
The information gaps relate to:

 The refinery. The following studies have to be carried out:
-

Study into the international oil market

-

Feasibility study for upgrading the existing ISLA refinery at Curaçao

-

Feasibility study for building a new (modernized) refinery at a different location in Curaçao

-

Appraisal of the current and future market value of the ISLA refinery

 Dismantling the refinery and cleaning the refinery area. The following studies have to be carried
out:
-

Dismantling and removal of the ISLA refinery

-

Cleaning of the total site of ISLA (soil and bottom) taking into account the redevelopment of
the area

 Preparation activities concerning location Bullenbaai and ISLA site after cleaning
 Redevelopment of the ISLA site after cleaning

10

A sustainable future for Curaçao

1

Introduction

1.1

Background
In 1915, the Royal Dutch Shell started the construction of the oil refinery in Curaçao. Refining
operations began in 1918. During more than 70 years Shell was responsible for the management
and operations of the refinery and thousands of people were employed, attracted from all over the
world. In 1985, the Shell left the island, bringing the Shell Curaçao N.V.’s activities to a complete
stop. Then, in 1986, at the request of the local governments, Petroleos de Venezuela S.A. (PdVSA)
– the Venezuelan state-owned oil company – took over the refinery on a lease contract that expires
towards the end of 2019. The shares in the refinery (locally known as ISLA) are administered on
behalf of the Government of Curaçao by Refineria di Korsou N.V. (RdK). In 1986 about 1,800
people were employed at the refinery and in the year 2010 employment has been decreased to
about 1,000 employees.
PdVSA has the refinery on lease from the island government for approximately NAf 33 million a
year. This lease amount does not include the necessary investments that need to be made in the
refinery, mainly to make it more efficient and environmentally friendly. As per existing agreements,
any such investments shall be for the account of PdVSA and RdK (on a 50-50 base). Since the
takeover in 1985 to date, PdVSA’s total realized investments in the ISLA refinery amount to USD
641 million3. In 2002 and 2003, the RdK and ISLA jointly implemented the investment project “Build
Own and Operate “ (BOO) and the investment project “ Integrated Refinery Upgrading Program”
(IRUP). IRUP was mainly (61%) aimed at improving the ISLA refinery’s efficiency.
Studies carried out since 2004 have shown the latter investments to be insufficient if the refinery is
to comply with applicable (international) environmental and safety standards and be able to adjust
its production processes to market developments. It was also established that, in particular, the use
of high-sulphur fuels and outdated facilities, as well as delays in the full implementation of IRUP’s
environment-and-safety module are both contributing to pollution of the environment. For this and
other reasons, the Clean Environment on Curaçao Foundation (Schoon Milieu op Curaçao, or
SMOC) initiated legal proceedings against ISLA in 2005. In January 2010, the Court ruled that ISLA
has to pay NAf 75 million (approximately USD 41.5 million) a year in penalties if the maximum
allowed environmental standard output of 80 μg/m3 of sulphur-dioxide (SO2) per year as provided in
the pollution permit4 is exceeded.
Partly as a result of the fact that PdVSA’s lease contract will be expiring in 2019, and with the aim
to comply with and further reinforce the applicable environmental standards as provided in the
pollution permit and the Court’s judgement, a vision of the ISLA refinery’s future is being developed
within the framework of Curaçao’s Social-Economic-Initiative (SEI) program and as part of an effort
to develop a long-term economic vision for the new country of Curaçao. This vision of the future is
based on three possible scenarios that need to be developed and substantiated.

3
4

Source: PdVSA, August 2010 (through the ToR)
Exec. Council Decree 1997 No 96/7305/97/5421 (Refineria ISLA (Curazao) S.A. Pollution-Permit Provisions).

A sustainable future for Curaçao

11

1.2

Objective
The objective of this project, according to the ToR is to carry out a financial and economic (or
social) cost-benefit analysis for three given scenarios and formulating concrete recommendations
that may assist in the process of making a strategic choice for the future of the ISLA area, including
the oil refinery on Curaçao.
In developing the cost-benefit analysis for these three scenarios, special attention should be given
to the financial, socio-economic and social aspects of the subject matter, taking into account the
applicable international environmental and safety standards.
The three scenarios (or from the point of view of Ecorys hereafter called “strategic options” or
“policy interventions”) are the following5:
a.

Shutting down the refinery, dismantling and clearing the facilities, and cleaning up the area,

b.

Shutting down the refinery, dismantling and clearing the facilities, and cleaning up the area and

including option(s) for restructuring and development of the recovered area;
building a new (modernized) oil refinery at a different location, including option(s) for
restructuring and development of the recovered area; and
c.

Upgrading the refinery at its present location. The development of this scenario should include
an exposition of future alternatives for the refinery regarding inter alia its lease or possible sale.

1.3

Elaboration of the questions addressed
To realize the objective mentioned above, i.e. carrying out a financial and economic cost-benefit
analysis for the three strategic options and to formulate concrete recommendations on behalf of the
strategic choices to be made for the refinery’s future and the ISLA area, much data and information
is needed and many additional studies have to be carried out for updating old information and/or
filling in the remaining gaps. This will take much time and effort.
Therefore, to speed up the process the project is divided into two phases, which are defined as
follows:

 Phase 1: providing information to the Ministry of Economic Development of Curaçao to be used
as a basis for answering questions concerning strategic long term economic development
specifically the potential of oil refining on Curaçao as well as setting up a work plan for Phase 2;

 Phase 2: carrying out the financial and economic cost-benefit analysis for the three strategic
options, based on the activities described in the work plan and to be started after its approval.
Phase 1 contains the following four tasks:
1. Defining base case and strategic options for the refinery’s future and the ISLA site;
2. Evaluation of the economic effect, limitations, opportunities and risks;
3. Defining the actors affected or involved in the strategic options;
4. Preparation for phase 2: assessing the information gaps for conducting a cost-benefit analysis
including setting up a work plan.

5

12

These scenarios are deviating significantly from the original ones mentioned in the Terms of Reference (ToR) and are based
on advanced insight and open discussions with the client. The main change is the additional option(s) of restructuring and
development of the ISLA area after ISLA’s closure, dismantling and cleaning of the area.

A sustainable future for Curaçao

Figure 1.1 Approach phase 1

In order to define the strategic options (task 1), the elements that have a positive or negative impact
on the strategic options (task 2) and the actors involved and affected (task 3), several discussions
with the client have taken place. Furthermore, all relevant stakeholders have been interviewed in a
very short period (see annex 1 for a list of interviewees). The outcome is an overview of the
economic effects, limitations, opportunities and risks for each strategic option as well as an
overview of the different actors involved in Curaçao. In task 4 the necessary studies to be
implemented in phase 2 have been identified and a work plan for phase 2 has been drawn.

1.4

Structure of the report
In this report the focus is on part 1 of phase 1, dealing with information to be provided to Ministry of
Economic Development of Curaçao. Part 2, the work plan to be set up for phase 2, is not described
in this report but will be reported separately.
This report is structured as follows. Ambitions of the Government of Curaçao and a first step for
vision development aimed at sustainability as well as the methodological framework are described
and explained in Chapter 2. Chapter 3 is dealing with a detailed description of the strategic options
to be explored. Next, in Chapter 4 a tentative analysis will be presented of the feasibility of the three
strategic options, based on a qualitative assessment of economic effects, limitations, opportunities
and risks. This chapter ends with an overview of the effects on the actors involved. Finally, in
Chapter 5, gaps of information resulting from the analysis in chapter 4 will be discussed. A
summary of the main findings can be found at the beginning of this report.

A sustainable future for Curaçao

13

14

A sustainable future for Curaçao

2

Ambitions, vision development and
methodological framework

2.1

Sustainable development: key policy issue for the new Government of Curaçao
The national Government of Curaçao aims at a sustainable development of the island. Sustainable
development is a pattern of resource use, aimed to meet human needs while preserving the
environment so that these needs can be met not only in the present, but also for generations to
come.
For the use of available space for national economic development this means that areas, used for
industrial purposes like the ISLA site, should – after ending such use – be restored in such a way
that it doesn’t impede possible new uses by future generations.

2.2

Vision and ambitions
The Government of Curaçao wants to formulate a political vision, showing its ambition to realise an
economically, socially and ecologically sustainable development of the island. Obviously, two wellknown dossiers will play an important role in this process, the ISLA refinery and the site on which it
is located for more than a century. Which is the role the national Government should play on this
field? How far should the ambitions of the Government reach, and how do they relate to possible
initiatives of private parties?
From the problem, stated in the ToR and in the introduction, it becomes clear in what direction the
ambition for both elements points. We indicate them hereafter as track A and track B.

 Track A: development of a clear, well underpinned and socio-economic motivated viewpoint of
the Government of Curaçao regarding continuation, or closure and relocation of refinery
activities on the island after 2019 (or earlier).

 Track B: recovering the ISLA area, an industrial site, which – given its prime location – would be
extremely suitable for a number of useful and value generating economic applications if only it is
no longer protractedly and heavily polluted by former and present petrochemical processes.
Both tracks are mutually dependent. Sustainable reclamation of the ISLA area will only be possible
if refinery activities will come to a complete stop, if they would be continued in a new refinery on
another site (for instance Bullenbaai), or if upgrading of the ISLA-installations on the present site
are combined with economies of space and thorough cleaning.
What will – seen from a welfare economic point of view – be the involvement of the national
Government if one or both tracks will be followed? And will the tasks the Government should play
be different for both tracks?

 Investment and operation of a refinery is first of all a private matter. If there are – given
expected developments on the global markets for crude oil and refinery products - chances to
realise commercial profits, it will chiefly be the task of private parties to take initiatives.
Governments may try to stimulate their decisions by facilitating private initiatives and giving
incentives, but it is not their role to start investing in or to operate this type of business.
It is neither advisable for governments to take over the operations on a structural basis. In order
to prevent closure the government must be able to take over the operations during a possibly

A sustainable future for Curaçao

15

transitional period to prevent a socio-economic deterioration. On the other hand, however, it is a
task of the Government to accompany closure processes from the sideline, for instance in order
to prevent a too abrupt deterioration in welfare of employees involved and to monitor proper
dismantling and cleaning operations. It is also possible that the authorities take measures to
delay an imminent close-down. In such cases they must, however, be sure not to accept too
large losses in national welfare (for instance allowing that existing emission or pollution
standards are heavily exceeded), especially so if it is clear that delay will in the end not lead to a
cancellation of closure.

 However, if after termination of the refinery-activities a heavily polluted site remains, and the
costs of cleaning and clearance can not be recovered from (former) users, the Government has
a different responsibility. It is then legitimate for the Government to make the first move, and –
within acceptable limits - to take financial risks on behalf of the community, if and as far as
removal and cleaning are commercially not (sufficiently) profitable for private parties (for
instance by recycling and selling recovered petrochemical products), and if the site shows
considerable potential for a sustainable welfare increase on the long term.

2.3

Methodological Framework: How to determine the economic value of a policy
intervention
What are the welfare consequences for the national economy of policy interventions according to
track A (flanking incentives and coordination measures to promote private investments in upgraded
or new refinery activities) and track B (initiating, financing and carrying out removal and cleaning
operations)? To get an answer on this question the Government of Curaçao wants to commission
an economic Cost-Benefit Analysis (CBA) regarding a number of possible policy interventions (also
called ‘strategic options’ or ‘project alternatives’).
By performing a CBA the national economic development, to be expected if a well-specified policy
intervention will be carried out, is compared with the ‘base case’ development. This is the
development which would take place on the island in case of the complete absence of any
intervention according to track A or B, or if interventions are limited to an unavoidable and bare
minimum. In the base case or minimum intervention case no new policy interventions or financial
effort will take place to facilitate the preservation of a refinery or supervise its closure, combined
with removal and the minimum level of cleaning required to prevent safety and health risks for the
island population.
The annual differences in development between a policy intervention case and the base case are
called the annual effects of the policy intervention. In an economic CBA these effects must – as far
as possible - be valued (in the national currency) and discounted to the present (their present value
in 2011).
It is quite foreseeable that especially policy interventions of type B will generate important effects
which during Phase 2 of the study will probably result in substantial financial losses. This is due to
the risk that it may take many years before the (large) costs of removal and cleaning will be
followed by benefits, generated by new uses of the ISLA site. By discounting costs and benefits at a
conventional economic rate (of 8% to 12 %) the net welfare change and the internal rate of
economic return will almost certainly be negative.
This is a well-known phenomenon in the economic CBA practice for projects or interventions with
an important ecological content. As the benefits of this type of projects are expected to be realised
in the rather remote future, and will mainly accrue to future generations, the underlying time
preference rate has a negative effect.

16

A sustainable future for Curaçao

One can of course try to move the benefits forward in time, on the one side by speeding up the
necessary removal and cleaning activities and preventing them to drag on too long, and on the
other side by readjusting existing zoning plans elsewhere on the island, abandon the intended
occupation of already zoned areas and block them for specific uses. It remains to be seen if this
would suffice to turn the CBA outcome into a positive result.
Another conceivable possibility is to lower the discount rate, by explicitly assigning a larger weight
to the interests of future generations. It is advisable to examine if and to what extent this way of
thinking might be defensible for this type of policy interventions (i.e. track B).
An economic CBA is an analytical instrument, meant to bring the welfare implications of complex
policy options in a consistent and transparent way out into the limelight. The results offer policy
makers important information, but as a matter of course the outcomes are not meant to tell them
what to do. Political decision makers should take note of the welfare-economic analysis, but have
the responsibility to weight themselves all pros and cons in their own way.
Important aspects, like uncertainties about nature and size of future benefits of the cleaning
operation, the wish to explicitly give proper weights to the welfare contributions of new sustainable
uses for present and future generations, and improvement of the image of the island of Curaçao
boosting new élan, might be reasons for the Government to not let itself too easily become deterred
by potential negative outcomes of policy interventions of type B.
For that reason it deserves serious consideration to present the economic valuation of the policy
options of type B not as an economic Cost-Benefit Analysis, but rather as a Cost-Effectiveness
Analysis (CEA). In a CEA the effects to be realised - e.g. cleaning level x for y hectares of the ISLA
site, to be zoned for specific use z – are specifically and precisely defined. Then the costs are
identified of all possible ways to realize this objective.
In the end the outcome of the CEA can be corrected for all identifiable socio-economic benefits,
arising from the proposed future use. The final result will be consistent with a proper CBA.

A sustainable future for Curaçao

17

3

Description of the strategic options to be
explored

3.1

Introduction
Based on the ToR and already mentioned briefly in the introduction chapter, we propose to
distinguish two tracks (A and B) in describing the strategic options in more detail.
However, before starting the explanation and elaboration of the two tracks, it is useful first to
explain very briefly, some basic elements of an economic (or social) cost-benefit analysis. Although
this analysis will only be carried out in the second phase, an agreement on the definition of the
strategic options as well as on the so-called reference option (hereafter called “base case”), is
crucial.
A cost-benefit analysis can be characterized as an incremental or marginal approach: benefits, or
welfare effects of the investments, are always defined as differences (advantageous or
disadvantageous effects) between the development of a strategic option with the development
according to the base case. These differences are also called project impacts or intervention
effects. Therefore, apart from defining the strategic options in a detailed way (section 3.2 and 3.3),
it is essential also to define the base case (section 3.4).

3.2

Track A: a refinery at Curaçao which operations will last far beyond 20196
In track A two strategic options are distinguished: A1: upgrading the present refinery, and A2:
building a new (modernized) refinery at a different location within Curaçao.
A1 Keeping the ISLA refinery at its current location and “upgrading” it

 The upgraded refinery will be in operation from 2019 onwards (or, if possible starting its
operations earlier), fully using the same extensive area of 600 ha;

 In upgrading the refinery, some variants are possible. Compare for instance the two options7
proposed by Purvin & Gertz in 2005, on behalf of RdK: a ‘delayed coker case’ and a
‘gasification case’.

 Upgrading the ISLA refinery also implies a certain degree (to be determined afterwards) of
cleaning and containment (in order to prevent further dispersion of soil- and bottom
contamination, to avoid acute danger for public health and safety).
A2 Building a new refinery at a different location in Curaçao

 The new (modernized) refinery will be built at Bullenbaai8 and will be in operation from 2019
onwards (or, if possible starting its operations earlier), using a much smaller area (currently
unknown) compared to the ISLA site.

6

7

8

For both strategic options A1 as well as A2 variants are possible. However, not to loose oneself not in too much detail,
variants will not be considered until further notice.
Today, it is not clear if the two options proposed in 2005 are still valid. But, in case it is, the related investment and
operational costs as well as the gross margins need to be updated.
Bullenbaai is probably the only option available in Curaçao that fulfils fully one of the main requirements to establish a new
refinery. It already has the required infrastructure (and super structure) to accommodate deep-sea vessels as mammoth

A sustainable future for Curaçao

19

3.3

Track B: ‘corner’ solutions for re-development of the ISLA area (after closure of
ISLA in 2019 or earlier)
In track B three strategic options will be dealt with, which have to be seen as ‘corner’ solutions for
re-development of the ISLA area until further notice.
B1 Proposed use: industrial activities
This strategic option includes the following:

 Dismantling and removal of the existing ISLA refinery;
 Containment and cleaning activities directly fine-tuned for industrial purposes;
 Industrial activities to be established at the “clean up” site being port related (so-called ‘wet’
activities) and/or service related (so-called ‘dry’ activities).
B2 Proposed use: residential areas for local people and immigrants
This strategic option includes the following:

 Dismantling and removal of the existing ISLA refinery;
 Containment and cleaning activities directly fine-tuned for residential purposes;
 Residential areas to be developed with diversification by type of accommodation (single-family
dwellings, apartments, residences, etc.).
B3 Proposed use: tourism areas and offices
This strategic option includes the following:

 Dismantling and removal of the existing ISLA refinery;
 Containment and cleaning activities directly fine-tuned for tourism and office purposes;
 Tourism areas to be developed by type of tourism (marina’s, hotels, golf course, etc.) as well as
offices.
In all three strategic options it is expected that huge volumes of oil residues have to be removed
which leaked into the soil of the ISLA area during decades. One possibility is to recover the oil
residues making use of some of the existing ISLA refinery installations. In that particular case,
some parts of the dismantling operations have to be postponed.
In general, the cleaning and recovery operations differ from variant to variant. In strategic option B3,
with a proposed tourist use, cleaning operations need to be more intensive than for example in
strategic option B1, in which the area is meant for industrial purposes.

3.4

Reference option or “base case”
As already discussed in the introductory section of this chapter, all strategic options have to be
compared to the reference option or “base case”.
The base case (R0) is defined as the closure of the ISLA refinery and includes the following:

 The refinery will be closed in 2019 (or possibly earlier), which implies that there will no longer be
a refinery operational at Curaçao;

 Dismantling and removal of the existing ISLA refinery;
 Take into account the possibility to phase the dismantling operations, because a part of the
existing ISLA refinery installations might be needed to recover leaked oil residues;
tankers (VLCC & ULCC) up to 500,000 DWT supplying crude oil and transporting the outputs to the various export
markets.

20

A sustainable future for Curaçao

 Minimal containment and cleaning activities (according to the basic guidelines for a healthy and
safety environment) in order to prevent further dispersion of soil- and bottom contamination, to
avoid acute danger for public health and safety.

 On the long run (suggestion up to 2045) no possibility for re-development of the ISLA site for
new activities (fallow area strictly forbidden to enter).

3.5

Strategic options to be considered in more detail
Based on the strategic options described in the previous sections, quite a number of combinations
of options can be made. Before doing that, it is important to pay attention to the following:

 In case of upgrading the ISLA refinery (option A1), the options mentioned under track B are not
valid during the entire period up to 2045;

 In case of building a new refinery (option A2) four combinations have to be taken into account9:
-

A2 with – after closure of ISLA – dismantling activities as well as minimal containment and
cleaning activities (like in R0); and

-

A2 with one(or a mix) of the three ‘corner solutions’ (B1, B2 or B3).

Table 3.1 Strategic options to be considered in more detail
Strategic

Refinery on Curaçao

option

after 2019?

R0

No

Dismantling and cleaning ISLA site?

Redevelopment ISLA
site?

Minimal cleaning for human health and

-

safety, minimal costs
A1

Upgrading ISLA

Containment only (as in R0)n or more?

-

A2+B1

New refinery at

Dismantling + cleaning for industrial use

Industrial use

A2+B2

New refinery at

Dismantling + cleaning for residences

Residential use

A2+B3

New refinery at

Dismantling + cleaning for tourism or

Tourism or service

Bullenbaai

service related activities

related use

A2+mix B

New refinery at

Dismantling + cleaning for mixed use

Mixed use

B1

No refinery at Curaçao

Dismantling + cleaning for industrial use

Industrial use

Bullenbaai
Bullenbaai

Bullenbaai
B2

No refinery at Curaçao

Dismantling + cleaning for residences

Residential use

B3

No refinery at Curaçao

Dismantling + cleaning for tourism or

Tourism or service

Mix B

No refinery at Curaçao

service related activities

related use

Dismantling + cleaning for mixed use

Mixed use

For each of the options mentioned above, a time horizon has to be specified. The main reason is
that in the financial and economic cost-benefit analysis10 during that period all annual costs
(investments, exploitation, maintenance) and benefits (value of direct, indirect and external effects)
have to be determined and discounted (to the year 2011). With an economic lifetime of the new
refinery of 25 to 30 years, the time horizon should be fixed at the year (2019+25=) 2045. The same

9

10

As mentioned before, options B1, B2 and B3 are to be considered as ‘corner solutions’. This means that it is assumed for
the time being that the entire ISLA area (for 100%) will be zoned for respectively industry, or residential purposes, or for
tourism/offices. It is obvious that a mix of these three destinations (and maybe others as well) would be more realistic.
However, the simplistic assumption is chosen to keep the methodological structure clear and to avoid that too many
options are put on the table at an early stage. In later stages a mix of uses has to be discussed explicitly.
These analyses will be carried out later on in Phase 2 of the study.

A sustainable future for Curaçao

21

holds for upgrading the existing ISLA refinery: here we also assume an economic lifetime of 25
years after the upgrading investments have been implemented.

22

A sustainable future for Curaçao

4

Comparison of the effects and feasibility of
the strategic options

Each strategic option has advantages and disadvantages compared to the base case. A
quantitative analysis of the effects and a calculation of the economic value of the strategic options
is not feasible in this stage of the study. However, based on information provided by stakeholders,
the client and our own expertise, it is possible to indicate the following types of determining factors
for each strategic option:

 Economic effects;
 Opportunities;
 Limitations; and
 Risks.
This chapter shows the supposed nature of these determining factors for each strategic option
compared to the base case. In the second phase of this study the hypotheses, presented here, will
be tested and extended with a quantitative analysis, based on additional information to be gathered
during the second phase.

4.1

Characteristics of the base case
In this chapter the strategic options distinguished will be compared to the base case. The base
case is defined as the closure of the refinery in 2019, followed by dismantling and a minimum of
cleaning the area. In order to make a sound analysis it is necessary to indicate at first the most
significant characteristics of the base case. To that end we make a comparison of the situation after
2019 with the current situation (2011). The following issues are relevant:

 Decrease of employment (direct 1,000 fte11 and indirect 600 – 1,000 fte) and GDP12 (minus
about 7 percent) in the refinery sector and their local suppliers and consumers;

 Reduction of diversification (industry mix; interindustry linkages) of the economy of Curaçao;
 Complete disappearance of the ISLA air emissions (resulting in an significant improvement of
the environment, health and safety);

 After closure (2019) dismantling and a minimal degree of site cleaning and containment will take
place without establishing any kind of new economic activity;

 All planned initiatives (tourism, housing, industrial services, etc.) will be implemented on the
current zoned locations, pointed out in the EOP13 of Curaçao, which means that the ISLA site is
not considered to be a possible substitute for already zoned locations.

4.2

Determining factors for the three main strategic options
Each strategic option has its own economic effects, limitations, opportunities and risks. In this
section these factors will be presented for each strategic option. The Figures 4.1 to 4.3 give an
overview of the factors, identified for the development according to each strategic option and
compared to the base case development, and refer to the period 2019 to circa 2045. As described
11
12
13

fte = full time equivalent
GDP = Gross Domestic Product
Economisch Ontwikkelings Plan (Economic Development Plan)

A sustainable future for Curaçao

23

in Chapter 3, nine strategic options are distinguished. In this section the following three main
strategic options are discussed (again: developments are each time compared to the base case):

 A1 Upgrading the ISLA refinery;
 A2 Closure of the ISLA refinery and construction of a new refinery at Bullenbaai. (please note:
Dismantling, cleaning and containment of the ISLA site are not part of this option, but are dealt
with in option B);

 B Dismantling, cleaning, containment and alternative use of the ISLA site.
Strategic option B has not been split up into B1, B2 and B3 since for the moment we are only able
to define the general economic effect, limitations, opportunities and risks that are applicable to any
kind of re-development at the ISLA site. Furthermore, strategic option B can be combined with
strategic option A2. The strengths of both options A2 and B can be added up. For instance the
determining factors of strategic option A2+B2 is the sum of options A2 and B presented in the
tables below.
4.2.1 Analysis of determining factors of option A1
The economic effects, limitations, opportunities and risks of the strategic option “upgrading” the
ISLA refinery (A1) are summarised in the figure below.
Figure 4.1 Determining factors strategic option A1 (compared with the base case development)

(E = economic effect, L = limitations, O = opportunities, R = risks)

Economic effects
A strong advantage of this option, compared to the base case development, is the significant
contribution to the diversity of the island economy due to the continued presence of the refinery.
The upgraded refinery warrants structural employment during some decades for technical skilled
employees as well as structural employment for subcontractors working at the site for regular

24

A sustainable future for Curaçao

maintenance and shutdowns and for all kind of suppliers. A permanent increase in employment is
expected after the implementation of the investments to upgrade the refinery14.
During the construction phase of the upgrading process, temporary employment for contractors and
suppliers will be created.
Limitations
This strategic option has, compared with the base case, one main limitation: upgrading of the
refinery leads to some more contamination of the site (than the base case), and activities to clean
the site have to be postponed to at least 2040/45.
Opportunities
Upgrading the refinery results in the following opportunities:

 Possibility to create a fund for cleaning the ISLA site after 2040/45: with this fund (part of) the
costs of cleaning the ISLA site can be paid in case the refinery will be closed in 2040/204515.

 New favourable financial and fiscal arrangements: the upgrading of the refinery gives the
government of Curaçao the opportunity to negotiate new and more favourable contract
provisions regarding inter alia financial and fiscal arrangements. (The current lease contract
with PdVSA and the agreed fiscal arrangements are not very satisfactory for the government of
Curaçao.)

 Possibility to attract additional refinery related activities to Curaçao. This will result in a further
diversification of the island economy.

 Ability to comply with the (inter)national environmental standards.
 Possibility to acquire other potential investor(s)/operators.
Risks
The two most significant risks are:
1. Uncertainty about the commercial/financial rate of return of the upgraded refinery (commercial
viability of a refinery on Curaçao).
2. Strong dependence on the government of Venezuela and the crude oil production from
Venezuela.
Both factors are a precondition for the feasibility of this strategic option. If the upgrading of the
refinery is commercially not viable or if PdVSA decides not to invest in the ISLA refinery and no
other investors are interested, this strategic option will not be implemented.
Commercial/Financial rate of return: At this moment it is unclear whether the investments are
financially sustainable and commercially viable or not. The technical, financial sustainability and
commercial viability of this option have to be determined and tested in phase 2 of this study.
The development on the international oil markets will be one of the key factors influencing the
commercial/financial rate of return of the investments. Fluctuating oil prices, a swing in processing
locations to the Eastern part of the world among other things could have an impact on the demand
for oil refining at Curaçao. If demand is weakening, investments in new activities or in upgrading are
risky.
Example of developments on the oil market that might affect the upgrading of the refinery
In the period 2009-2015 it is expected that in “the West“ (North and South America) refineries will be closed
with a total capacity of 4.9 million bpd and new refineries will be built with a total capacity of only 0.4 million
14
15

Based on the two upgrading options defined in 2005 by Purvin & Gertz (2005)
The final decision to upgrade the refinery again in 2040/45 or to close the refinery definitively has to be taken after the year
2035

A sustainable future for Curaçao

25

bpd. On the contrary, in “the East” (Europe, Africa and Asia) refineries will be closed with a total capacity of
2.6 million bpd and new refineries will be built with a total capacity of up to 6.1 million bpd.

If an upgrading of the refinery is not commercially viable, this strategic option will not be realistic.
Strong dependence on crude oil production from Venezuela and on the government of Venezuela
The upgraded refinery heavily depends on the crude oil production and supply from Venezuela.
Although the facilities and installations are technically designed for processing all type of crude oil
including the specific crude oil from Venezuela, the latter is the only crude currently feasible from an
economic point of view. Therefore, it is highly uncertain if crude oil originating from other countries
will be processed in an upgraded refinery on Curaçao in the short and medium term.
Furthermore, the willingness of PdVSA to continue its operations and also to invest significantly in
an upgrading of the existing refinery is highly uncertain. Nevertheless, a strong initiator and
financier are essential for a successful investment in upgrading the refinery.
4.2.2 Analysis of determining factors of option A2
The economic effects, limitations, opportunities and risks of the strategic option “building a new
refinery” (A2) are summarised in the figure below.
Figure 4.2 Determining factors option A2 (compared with the base case development)

(E = economic effect, L = limitations, O = opportunities, R = risks)

A strong advantage of this option is, just like in the case of option A1, the significant contribution to
the diversity of the island economy due to the presence of the refinery (compared to the base
case). In case of a new refinery at Bullenbaai, it is expected that employment will remain stable
(compared to the present situation) or slightly decrease due to increased efficiency of the new
(modernized) refinery. Investments in a new refinery will generate temporary employment for

26

A sustainable future for Curaçao

contractors and suppliers during the construction phase. Moreover, the new refinery creates
structural employment for technical skilled employees as well as structural employment for
subcontractors working at the site for regular maintenance and shutdowns and for all kind of
suppliers.
Another effect of this strategic option is the possibility to create some “economies of scale”. If the
refinery activities will be moved to Bullenbaai, tanker transport and towing services will also shift
from Schottegat to Bullenbaai, resulting in a concentration of these activities on one spot.
Finally, the removal of the refinery from Schottegat to Bullenbaai and the redevelopment of the
ISLA site may significantly improve the island community’s self-confidence: Curaçao succeeds in
solving the “refinery issue” at the ISLA site.
Limitations
Two elements can be considered as the main limitations of strategic option A2: Costs and pressure
on the environment (soil and water contamination).

 Costs: In this strategic option, the following costs have to be taken into account:
-

Land zoning and preparation costs at the Bullenbaai site;

-

Infrastructure costs: The erection of a new refinery at Bullenbaai will result in an increasing
pressure on the existing infrastructure at Bullenbaai. Additional investments are needed to
improve and to extend the infrastructure.

In this stage of the project these costs are unknown. The area needed and available for a new
refinery at Bullenbaai, the costs for land preparation, infrastructure improvement and the
investment costs for the refinery itself will be examined in phase 2 of this project.

 Pressure on the environment: The operation of the refinery at Bullenbaai will result in an
increase in soil and water pollution (compared to the base case). This is inevitable, when
operating a refinery, despite all measures taken according to environmental and safety
standards.
Opportunities
A new refinery at Bullenbaai results in the following opportunities:

 New favourable financial and fiscal arrangements: the upgrading of the refinery gives the
government of Curaçao the opportunity to negotiate new and more favourable contract
provisions regarding inter alia financial and fiscal arrangements. (The current lease contract
with PdVSA and the agreed fiscal arrangements are not very satisfactory for the government of
Curaçao.)

 Possibility to attract additional refinery related activities to Curaçao resulting in a more
diversified economy.

 Possibility to comply with the (inter)national emission standards after building a new refinery at
Bullenbaai.

 Possibility to acquire other potential investor(s)/operators.
Risks
The two most significant risks which can be considered as are a precondition for the feasibility of
this strategic option are:
1. Uncertainty about the commercial/financial rate of return of the new refinery.
2. Moderate dependence on the government of Venezuela and the crude oil production from
Venezuela. This is due to the possibility that other potential investors/operators are interested in
new refinery activities.

A sustainable future for Curaçao

27

One additional risk can be mentioned; the unknown available area capacity at Bullenbaai related to
the area required for building a new refinery. If the available capacity is not sufficient for the new
refinery, an arrangement has to be made to extend the capacity like for instance changing the
existing zoning plan.
4.2.3 Analysis of determining factors of option B
The economic effects, limitations, opportunities and risks of the strategic option B dismantling,
cleaning, containment and alternative use of the ISLA site are summarised in the figure below.
Figure 4.3 Determining factors strategic option B (compared with the base case development)

(E = economic effect, L = limitations, O = opportunities, R = risks)

Economic effects
The most significant effect of this strategic option (compared to the base case) is the generation of
employment and income resulting from dismantling and cleaning activities and from the
development and establishment of new activities on the ISLA site. Several factors will stimulate the
development of these new activities:

 The availability of a location situated at the centre of the island with entrance for deep sea
vessels. This is a very strong asset for attracting (new) economic activities such as harbour
related activities, tourism (mega-yachts), etc;

 The improved public image of Curaçao after closing the refinery. This will have an impact on the
tourism sector as well;
Limitations
Investments in dismantling and cleaning the ISLA site and preparing the site for construction of
infrastructure are the main limitations of this strategic option. The total amount of these necessary
investment costs is unknown. Furthermore the investment cost for cleaning the ISLA site highly
depend on the activities to be developed on the ISLA site.

28

A sustainable future for Curaçao

Dismantling and cleaning
Dismantling and cleaning of the ISLA site will take place in strategic option B. A first rough estimate of the
16

cost incurred was made in 2005 , summing up to USD 310 million for dismantling activities and to USD 85
million for cleaning activities (both in 2005-prices). It has to be stressed here that these estimates were
cursory and very conservative. For instance, the cleaning costs only covered the application of isolation
techniques needed for developing an industrial area, and therefore has to be seen as an absolute
minimum. Both activities (dismantling and cleaning) will be subject of a more detailed study during phase 2
in which accurate estimates will be made of dismantling costs as well as cleaning costs taking into account
the actual pollution of the soil and water, the available techniques also in relationship to the alternative
activities that might be established on the clean area.

Depending on the new use of the ISLA site, nuisance like noise, soil, air etc. and traffic congestion
might occur as a consequence of the new activities which have corresponding negative effects for
population in the neighbourhood.
Opportunities
The main opportunity of strategic option B, compared to the base case, is the development of
sustainable and prosperity generating activities on the ISLA site after dismantling the refinery and
cleaning the site. This is supported by the following other opportunities:

 Historical trade reputation and geographical situation of Curaçao: possibility to extent
international trade and transhipment;

 Establishing an ecologic reputation of Curaçao in the Caribbean: dismantling the refinery and
carrying out intensive cleaning of the ISLA site could give Curaçao rather an ecologic reputation
in stead of the reputation of polluter as it currently is;

 An improved and more attractive urban development structure of Willemstad: alternative use of
the ISLA site for e.g. tourism activities (hotels, marinas etc.), residences, offices, etc. makes this
site more attractive compared to the base case;

 Gain in space for preservation of vulnerable nature areas: because of the prime location of the
ISLA site it is expected that planned expansion of several activities elsewhere in Curaçao
(according to the base case) will be realised in on the ISLA site instead of for instance in more
remote and vulnerable areas (e.g. Caracas Bay, East Point). This means also that vulnerable
nature reserves will be preserved.

 The availability for new users of already existing infrastructure (roads, electricity and water
networks) on the site.
Risks
The most important risk is a longstanding lack of demand for activities to be developed on the ISLA
site. If there is insufficient demand for the new activities on the ISLA site, this strategic option will
not be feasible.

 The ISLA site can be developed for export generating activities like tourism and port-related
industry. A survey on the possible international demand for these activities/products should be
the basis for the decision on the total amount of area that needs to be developed in the long
run, to establish these activities at the ISLA site as well as for a decision on the planning stages
during a period of 20 to 30 years. Overcapacity is a serious threat and should in any case be
avoided.

16

Ecorys Report 2005

A sustainable future for Curaçao

29

 This is also valid for the development of new areas on the reclaimed site for residences, local
industrial products and services. The demand of the population of Curaçao should be the basis
for the decision on the capacity for those activities to be developed at the ISLA site.
Another risk is the process of dismantling, cleaning and re-development. It will take a very long
period and/or the necessary decisions could also be delayed year after year. If this will be the case
the interest of property developers, investors/financiers, etc. will reduce significantly and as a
consequence the economic impact of this strategic option will diminish considerably. It is an
absolute necessity to keep up the pace. This requires strong leadership for managing the whole
process from dismantling up to re-development, and also sufficient community support.

4.3

Effects of strategic options on actors
The strategic options discussed above all have an impact on various actors at Curaçao. This
section presents for each strategic option which actors and in what way these actors are involved
and/or affected.
Strategic option A1
The investments in upgrading the refinery should be initiated, managed and financed. At present it
is not certain and clear who will take the lead, but one might expect that PdVSA could fulfil this role.
Upgrading the refinery results in temporary employment and income for contractors and suppliers,
who participate in the construction activities of the upgrading works. When the upgraded refinery is
in operation it creates additional structural employment for employees of the refinery, contractors
and suppliers of the refinery (compared to the base case).
Upgrading the refinery gives the Government of Curaçao the opportunity to enter into new and
more favourable financial and fiscal arrangements. Tax revenues could increase and the balance of
payments could improve.
Finally, the general health of the population will improve slightly (compared to the present situation)
assuming the adoption of the (inter)national emission standard and enforcement.
Strategic option A2
The actors involved and affected in strategic option A2 are similar to the ones mentioned in
strategic option A1. An exception is the structural employment and income for employees of the
refinery. In case of a new refinery at Bullenbaai, it is expected that employment will remain stable or
slightly decrease compared to the present situation due to increased efficiency of the refinery. The
employment will increase if we compare option A2 with the base case (which is a closure of the
refinery in 2019). Supplementary to option A1 is:

 Additional temporary employment and income with regard to the preparation of Bullenbaai for
the establishment of industrial activities.

 Curaçao Port Authority (CPA), responsible for tanker transport and towing services, will benefit
of moving the refinery from Schottegat to Bullenbaai. The activities will be concentrated on one
spot.

 Possibly new investors/operators interested in new refinery activities, will (partly or entirely)
initiate, manage and finance these activities.

30

A sustainable future for Curaçao

Strategic option B
An important element of strategic option B is the effort to dismantle and clean the ISLA area. This
will generate temporary employment for contractors. The total duration foreseen is a 5 to 10 years
period. Dismantling and cleaning of the ISLA site will generate employment for contractors. It will
enable the majority of the technical workers employed at ISLA during its operation, to find a job that
fits well with their education/profession. This is due to the assumption that the refinery at the ISLA
site will be closed in 2019 and no new refinery will be built at Bullenbaai resulting in a decrease of
direct and indirect employment of about 2,000 people in total. In case a new refinery is established
at Bullenbaai, dismantling and cleaning activities create additional jobs.
The cleaned area will be redeveloped with support of property developers and the government of
Curaçao which has to change zoning plans depending on the chosen new activities.
The investments in new economic activities on the clean ISLA site will result in temporary jobs and
income for the population of Curaçao. When the new activities are in operation, additional
employment and income will be generated. It is expected that a mix of all, or in any case several, of
the following activities is the best option:

 Tourism: hotels, marinas, mega-yachts facilities etc.;
 Harbour related industrial activities: transhipment, storage etc.;
 Non-harbour related industrial activities;
 Residential area;
 Green area.

A sustainable future for Curaçao

31

5

Information gaps to be elaborated in phase 2

The outcome of phase 1 of this study is a qualitative assessment of the three identified strategic
options. It can be concluded that much (quantitative) information, needed for a qualitative
assessment and an economic valuation, is not available at this moment. In the following section the
main gaps of information will be discussed and will be taken into account in the proposal for
carrying out phase 2.

5.1

Information gaps related to the refinery
Study into the international oil market
A study has to be carried out into the main developments in the international oil market, at least
taking into account a.o.:

 Types and quality of products the market requires;
 Competition from other refineries serving the same market (including trends in supply and
demand and capability of these refineries);

 Net prices expected for the refinery in Curaçao;
 Product quality regulations in relation to the current products of the ISLA refinery which are at a
lower end of the quality spectrum;

 Product quality requirements to be used in evaluating upgrading options;
 Environmental issues.
Feasibility study for upgrading the existing ISLA refinery at Curaçao
A feasibility study has to be carried out for upgrading the existing oil refinery at its current location.
Based on the technical condition of the ISLA refinery, the current products and product quality
requirements from the international oil market as well as the current and future market outlook for
ISLA to be a competitive market player in the region in the long run (see 5.2.1), the possibilities for
upgrading the refinery have to be assessed from a technical, financial and commercial point of
view17. Among other things, in any case the following issues have to be dealt with:

 Commercial and financial rate of return;
 Gross margin;
 Estimate of total investments costs and breakdown into details (including environmental
investments);

 Estimate of total operational costs (including O&M, overhead, regular shutdowns, etc.);
 Employment and type of skills needed;
 Possibilities for outsourcing maintenance activities to local contractors;
 Duration of the investment/implementation period..
Feasibility study for building a new (modernized) refinery at a different location in Curaçao
A feasibility study has to be carried out for building a new (modernized) refinery at a different
location in Curaçao with a capacity of 220,000 up to 250,000 barrels per day. Based on the market
outlook of the international oil market and the position of Curaçao in the regional oil market in the
long run (see 5.2.1), the possibilities for building a complete new refinery at Curaçao at Bullenbaai,
fully complying with international environmental standards have to be assessed from a technical,

17

In that respect it is worthwhile to first find out if the strategic options of upgrading the refinery proposed in the Purvin &
Gertz study (2005) are still valid and can be used as starting point in the analysis.

A sustainable future for Curaçao

33

financial and commercial point of view18. Among other things, in any case the following issues have
to be dealt with:

 Commercial and financial rate of return;
 Gross margin;
 Estimate Investments costs including breakdown into details;
 Estimate of the operational costs (O&M, overhead, regular shutdowns, etc.);
 Employment and type of skills
 Possibilities for outsourcing maintenance activities to local contractors;
 Duration of the investment/implementation period.
Appraisal of the current and future market value of the ISLA refinery
An appraisal of the refinery has to be carried out by a certified appraiser in order to establish the
market value of the ISLA refinery in each year from 2010 up to 2019 (inclusive). In that respect it
should be noted that the facilities and installations of the ISLA refinery are basically designed for
processing the specific crude oil from Venezuela. Crude oil originating from other countries can not
be processed in this refinery.

5.2

Information gaps related to dismantling the refinery and cleaning the refinery area
Dismantling and removal of the ISLA refinery
A study has to be carried out dealing with the costs of shutting down and dismantling the refinery
(and its removal). This study among others has to include accurate estimates of costs for:

 Asbestos removal;
 Dismantling and removal of equipment for re-sale;
 Dismantling and removal of remaining equipment for scrap;
 Dismantling and removal of underground piping;
 Dismantling and removal of the foundation;
 Possibilities of sales of scrap.
Cleaning of the total site of ISLA taking into account the redevelopment of the area
A study has to be carried out dealing with cleaning the total site of ISLA taking into account the
redevelopment of the area for alternative use(s) as tourism activities, industry (port related and
service related), residential area, offices, etc.
In this study the following issues (among others) have to be dealt with:

 Finding out and mapping the degree of soil- and bottom contamination for the whole ISLA area
(including the hot spots);

 Finding out what type of measures can be taken to solve the soil and bottom contamination
identified above and the costs of those measures (in unit prices);

 Categorize the type of measures that can be taken (given the degree of contamination
identified) in relationship with the possible alternative use(s), as mentioned above;

 Indicate the constraints for alternative uses based on the various locations on the site and the
degree of contamination;

 Estimate the minimum and maximum costs of cleaning taking into account the various
measures and the alternative uses, given a few proposals for zoning the ISLA site;

 Estimate the duration of the cleaning activities taking into account possible alternative uses.

18

34

In that respect it is worthwhile to first find out if the strategic options of upgrading the refinery proposed in the Purvin &
Gertz study (2005) are still valid and can be used as starting point in the analysis.

A sustainable future for Curaçao

5.3

Information gaps related to location Bullenbaai and ISLA site after cleaning
Location Bullenbaai
In consultation with the Ministry of Traffic, Transport and Spatial Planning (former DROV) at least
the following information has to be gathered and analysed:

 Total industrial area of Bullenbaai differentiated into “occupied” and “not occupied” (in ha);
 Current use of the total industrial area by type of industry;
 Possibility of the COT area to built a new refinery (after closure of ISLA and closure of the
activities of PdVSA at COT);

 Possibility of extension of the industrial area;
 Estimates of costs of extension (including preparation of the site for industrial purposes);
 Possible consequences for infrastructure (electricity, water, roads, etc.);
 Constraints (legal, environmental, etc.);
 Duration of activities required.
Location ISLA after closure and after cleaning the site (including bottom)
In consultation with the Ministry of Traffic, Transport and Spatial Planning (former DROV) at least
the following information has to be gathered and analysed:

 Activities to be carried out before allowing new activities to be established on the cleaned area:
-

Preparation of the site, including costs?

-

Infrastructure needed, including costs?

 Duration of activities required;
 Constraints for zoning plan and zoning plan process.
5.4

Information gaps related to redevelopment of the ISLA site after cleaning
A study has to be carried out in which the “corner” solutions for re-development of the ISLA area, as
mentioned in section 3.3, will be further elaborated. This has to be done in close consultation with
the Ministry of Traffic, Transport and Spatial Planning (former DROV). The result will be a few
realistic proposals for a zoning plan to be discussed with the various stakeholders. The final result
will be the basis for an Economic Impact Assessment, used as input for the Cost-Benefit Analysis
for strategic option B.

A sustainable future for Curaçao

35

Annex 1 List of interviewees

Government institutions
Mrs. M. Jonker

Ministry of Traffic, Transport and Spatial Planning

Mr. L.J. Janga

Ministry of Traffic, Transport and Spatial Planning

Mrs. E. Biesbrouck-Palm

Ministry of Health, Environment and Nature

Mr. U. Sillié

Ministry of Health, Environment and Nature

Private Organisations
Mr. S. Maduro

RdK

Mr. A.C. Casperson

Aqualectra

Mr. M.R.J. de Lannoy

CPA

Mr. G.J. Capella

Curoil

Mr. E. Paulina

Curoil

Mr. G. Louisa

Curoil

Mr. E.R. Smeulders

Curinde

Mr. E.J. Yzer

Curinde

Mr. H. Clarinda

CTB

Mr. I.S. Martina

Buskabaai NV

Mr. N. George

Foundation Humanitarian Care

Mr. P. van Leeuwen

SMOC

Mr. M. Ruijter

SMOC

Mr. J. Hernandez

Former director PdVSA

Mr. R.H. Ignacio

CGTC/ABVO

Mr. K.E. Valpoort

CGTC/CTDF

Principal
Mr. L. Girigorie

Ministry of Economic Development Curaçao

Mr. A. Janga

Ministry of Economic Development Curaçao

Mrs. N. Petronella

Ministry of Economic Development Curaçao

Mrs. S. van Rijn

Government of Curaçao

A sustainable future for Curaçao

37

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