METHODOLOGICAL PROPOSITION OF AN INTEGRATED SYSTEM FOR URBAN FLOODS CONTROL

Priscila Dionara Krambeck Braun 1, Carlos Loch 1

1

Federal University of Santa Catarina (UFSC) Technological Center Laboratory of Photogrammetry , Remote Sensing and Geoprocessing 88040-900 Florianopolis, SC

priscila.krambeck@macroplast.com.br carlos.loch@ufsc.br Abstract: Specific natural disasters such as landslides, floods, soil subsidence and erosion are increasingly present in the daily life of people in Brazil, disregarding whether or not they live in risky areas. Accounting for significant damages and losses of social, economic and environmental character, the natural disasters have had recurrences and impacts increasingly more intense. In the State of Santa Catarina, especially in the Itaja valley, there are records of accidents and disasters mainly associated to landslides and floods, which have caused significant damages and losses, including human lives. In order to make possible the coexistence with such natural disasters, most particularly with floods, it is required an integration between the technical, political, environmental, and human knowledge. Measures that encompass integrated actions for the entire river basin, with the help from an updated technical cadastre and tools, such as the GIS, allow the development of planning tools that might effectively help the people to live with the water, or else to cope with floods in a more appropriate manner. This paper attempts to propose a methodology for urban flood control, based on the integration between the several public entities involved in the flood control, along with the Multipurpose Technical Cadastre (CTM)1 and GIS tool. In order to solve or minimize the problems, we propose a model that aims at promoting a balance between the agents involved, and enables to assign degrees of importance to the different needs, thus allowing to eliminate or improve areas and processes that are superimposed, as much as to dismantle any local "fiefdoms" as well as conflict areas or unnecessary tasks. Key-words: flood control, urban floods, methodological proposition;

Introduction

The history of human adaptation to the environmental conditions and its transformation due to human activities has been a relationship of conflict and harmony, though such conditions have kept within its confines for centuries without causing significant environmental impact. As cities' populations grow geometrically and their occupation sprawls over increasingly wider areas, also the onset of major magnitude events is on the rise, while the risks from such events are also expanding in spatial terms.
1

Cadastro Tcnico Multifinalitrio CTM (Multipurpose Technical Cadastre)

Nowadays, one of the key issues, if not the main one, regarding the hydric resources in Brazil is the impact derived from urban development, both at an internal level, which affects the municipalities, as well as at an external level, which means 'exporting' pollution and flooding further downstream (Baptista e Nascimento, 2002). Within the scope of the Brazilian governmental hydric projects, it is rather usual the use of wordings such as "integration", "joint action", and "task force" as a way to express the need that the several sectors involved in both the management of hydric resources and the control of urban floods should operate jointly. It is also usual that these words convey more of the people's desire than an effective action by the government. Elements of a so-called political nature, combined with a chronical deficit in managing time schedules and financial resources usually prevail over the scope of the national governmental projects in Brazil. According to Tucci (2007), the water management, including all of its constituent elements water sources, sanitary sewerage, solid waste, riparian flooding, land use, and urban drainage has been done in a non-integrated manner, with little focus on the city as a whole, acting on specific issues but never developing a preventive, inductive planning. Adding to that, there is a limited institutional ability of municipalities and the sectorialization of the municipal administration, which makes it even more difficult to implement an integrated water management. The current trend of a limited urban planning that handles the urban water management in an isolated, compartmentalised way is leading cities to urban environmental chaos, which inflicts a high toll to society, since the mitigation of floods and other environment-related problems is clearly interdisciplinary, and demands a broad view to search for proper solutions (ASHLEY et al., 2005). Also, according to Tucci (2007), the institutional environment of flood control does not lead to a sustainable solution. As a rule, flood emergency services are only provided after the flood onset. The problem tends to fall in oblivion after each occurrence, only to be resumed the next time. This is due to several reasons, among which we could mention: a) lack of knowledge on flood control by urban planners, b) lack of organization in all government levels - federal, state, and local regarding flood management; c) scarce technical information on this subject at the Engineering courses on a graduate level; d) the political stress for public administrators arising from a non-structural control (zoning) mechanism, since the population always expects some hydraulic works to be performed; e) the population's lack of information about flood control; f) the lack of interest in preventing floods, since their occurrence entail the status of public disaster for the City/State, which allows the municipality to receive outright grants with no need of public tenders to justify how these funds are employed. Thus, when it comes to flood control funding, in most Brazilian states and municipalities the public authorities do not work in tandem, whether it is among the authorities themselves, or between governments and other sectors of society in fact, such integration does not exist, even among departments of one same public body (Ostrowsky, 2000). Currently, after the occurrence of another predictable flood event, as a result of social pressure and resource availability some measures are then adopted, which do not take into account the key aspects of integrated plans, also

because these usually do not exist. Such measures, due either to their slow implementation or the changes in urban occupation do not represent anymore the array of needs from this urban area and its population. The absence of a methodology aimed at systematizing the workflow, which approach contemplates the integration of issues linked to urban floods and their consequences, besides the very need of developing a model that shifts the current flow and considers each of its elements as an inseparable part of the whole issue, is but one of the aspects of the whole problem. Thus, this paper aims at proposing a methodology for the control of urban floods based on the integration among the different public sectors involved in such control, with the help of the Multipurpose Technical Cadastre ("Cadastro Tcnico Multifinalitrio CTM") and the GIS (Geographical Information System) tool.
2 The Multipurpose Technical Cadastre (CTM) and its relevance in the mitigation of flood problems

A regular assessment of urban floods allows for the development of followup and monitoring mechanisms whenever a flood occurs. It is worth saying that it is essential to have an updated Multipurpose Technical Cadastre which, along with the regulations that govern the land and subsoil use, encourage an orderly growth of the urban expansion. The territorial management needs a systematic follow-up of the dynamics of those phenomena affecting the physical space, both rural and urban, and requires maps of the interest areas, which have been elaborated on different dates, so that the administrators can apprehend, by means of analysis, the changes over time (Loch e Erba, 2007). According to Loch (2008), the physical and spatial assessment on different dates is key for preparing a plan if one intends to perform regular assessments of the floods. The past conditions must be retrieved in order to show the transformations that led to the present situation, besides enabling us to project the future and the interventions that might correct any faults found along the process of spatial evolution Retrieving information in temporal series through a Cartography with geometric and thematic quality allows for in-depth detailed evaluation of the physico-spatial reality. Besides, it enables to perform a didactic 'reading' of the city at the public hearings where the community will become familiar with the spatial transformations that occurred over time, allowing to identify and acknowledge problems, and thus facilitating the proposition of solutions (PEREIRA, LOCH E GEISSLER, 2008). Once that people are motivated and aware of the physico-spatial evolution of each neighborhood, they will be able to take part more conscientiously about the directions they want to follow regarding their own neighborhoods or homogeneous zonings (Lang e Blaschke, 2009). The analysis of the flooding causes and consequences must be performed within this frame. However, the mere identification of causes and consequences does not lead to solving the problem. Other agents are required to intervene into this process. The technical analysis of the social pressure, which will always exist, and the financial resource availability should be understood as conditioning elements for problem solving (Carneiro, 2008).

Viewing the urban floods as part of a higher order (the basin's cycle), as well as their disagreeable consequences (the floods), cannot be relegated to the back-burner, for we know that at each new episode more lives and goods can be lost. (Tucci, 2005). Most data examined in flood-related issues are strongly tied to the spatial aspect. The collection, filing, management, handling, analysis and dissemination of areal data are tasks performed by the Geographic Information Systems (GIS), and can be solved with the help of this tool. This system allows generic information (raw data) to be transformed into useful, politically relevant information (Lang e Blaschke, 2009). The CTM combined with the GIS tool allows an even wider understanding of the problems and further refinement in the level of technical interaction between the propositions, thus enabling to make decisions and political choices with greater certainty The human factor should be taken into account, considering that any of the above elements individually does not cover the range required for preventing the damages. Also, it all makes no sense if we fail to consider that there are people living in the places for which the works or didactic actions are proposed. For the proposed measures to be accepted, it is essential to consider the people's needs and the way how they interact with their environment. Instead of interventionist measures, it would be better if these measures could be perceived as a joint effort from the State government, private initiative, educators, and the community. That is, every proposition should be impregnated by the required environmental awareness and the people's participation. (WMO / GWP, 2008). The adoption of integrated measures facilitates an overall comprehension of problems and brings the sectors involved together. A regular assessment feeds back the process and allows to obtain a better characterization of the urban expansion. 3 CHARACTERIZATION OF THE STUDY AREA

The Ribeiro Garcia [Garcia River] basin is located in the South region of the Municipality of Blumenau, in the physiographical zone of the state of Santa Catarina called Itaja-Au Basin. It is located between 2655 and 2708' South Latitude and 49 01 and 4910' of Longitude West of Greenwich, time zone 22. To the south, the basin is bordered by the municipalities of Guabiruba, Botuver and Indaial; to the East, by Luis Alves and Gaspar and, to the West, by Indaial, Timb and Pomerode (Illustration 1). The city of Blumenau, where the Garcia basin is inserted, sits on the bottom of a valley surrounded by hills, by the margins of the Itaja-Au River, which divides the city in two portions: east and west. The basin's outfall on the right margin of the Itaja-Au River is in the downtown area, at an altitude of only 14 meters above the sea level.

Illustration 1. Location of the Ribeirao Garcia watershed in the municipality of Blumenau.

Ribeiro Garcia plays an outstanding role in the hydrography of Blumenau, inasmuch as it has the largest drainage extension area within the municipal territory. It comprises a surface of 159.77 km2 (15,977 hectares), which corresponds to 1.06 % of the area of the Itaja-Au river, which measures 15.111 km2 (SANTA CATARINA, 1997:24)] and covers 30.1 % of the total area of the municipality. Ribeiro Garcia is approximately 41.7 km long from its main spring to its mouth in the Itaja-Au River. Ribeiro Garcia crosses the city of Blumenau from South to North, comprising practically the entire south region. The springs of its main formers are located approximately 24 km in a straight line from downtown Blumenau, in a mountainous region within the environmental conservation area called Parque das Nascentes [Water Springs Park] with a total area of 5,300 ha in the higher portions of the basin. The basins urban area covers approximately 22.7 km2. From the central portion of the river toward its mouth, is where the greatest portion of the population is concentrated; they live in the 'bairros' [neighborhoods] of Garcia, Progresso, Gloria, Valparaso, Ribeiro Fresco, Vila Formosa, downtown and Jardim Blumenau (Illustration 2). According to data from 1996 supplied by the municipal authority [Prefeitura Municipal de Blumenau], the population living in the Ribeiro Garcia area is estimated at 47,350 inhabitants, and, in their opinion, Bairro Garcia has already reached its occupancy capacity limit (special limit) and recorded a true population explosion toward the hilltops of Rua Itapu [Itapu Street], which delimits the neighborhood (Table 1).
Table 1 - Area in km2, projection of total population and number of households in the neighborhoods located within the Ribeirao Garcia watershed.

Neighborhoods

Area in Km2

Population 2010*

Number of Households

Ribeiro Fresco 1.22 1,360 535 Garcia 4.53 16,900 6,118 Da Glria 1.95 6,384 2,117 Progresso 6.68 14,272 4,180 Valparaso 1.92 5,705 1,912 Vila Formosa 0.80 698 265 Jardim Blumenau 0.64 2,040 853 TOTAL 17.24 47,359 15,980 *For demographic projections in neighborhoods and households we used the proportion of people residing per km2 Source: PMB et al, 2009.

Illustration 2. Neighborhoods inserted in the Ribeiro Garcia Hydrographic Basin.

The excessive human occupation in the Garcia river area, as well as in other neighborhoods belonging to the same watershed is a fast-paced process that started in the 1950s and has been contributing to the disfigurement of the landscape, exposing highly steeped terrains to a continued process of erosion, which is aggravated after strong and/or continued rainfalls. The urban space in Blumenau City features remarkable differences in terms of topography and land morphology, with altitude range and higher slopes to the South of the municipality. The Vale do Garcia [Garcia Valley], especially its lower course, is a landscape strongly conditioned by processes of anthropogenic origin

and is considered today as the most critical area in the municipality of Blumenau (Illustration 3).

llustration 3. Planialtimetric mapping of Blumenau City in the North-South direction. Source: Adapted from PMB and PORATH (2004).

In addition to these factors, the geographical position of the Itaja Valley, facing East (Atlantic Ocean), toward the prevailing winds (southeast and northeast), favors the incoming of humidity from the ocean toward the continent. Furthermore, the fact that the valley has a hot and humid climate favors the occurrence of intense rainfalls. The local low declivity together with high rainfall rates, plus the aggravating factor of environmental degradation (deforestation, silting, erosion and inappropriate soil management), exposes the city and, consequently the Ribeiro Garcia watershed to frequent and strong floods and torrents of rainwater. The history of floods runs side-by-side with the history of the settlement and development of the Blumenau Colony, which started by the margins of Ribeiro Garcia. The first major flood recorded in Blumenau, with 16.30 meters, dates back to 1852, two years after the colony was founded. The worst flood ever recorded dates back to 1880 and reached 17.10 meters. In 1983 and 1984, the water level of the river exceeded 15 meters and flooded approximately 70% of the urban area. Ever since then, the city has been flooded over 10 times, totaling 78 flood occurrences recorded since 1852, with the last occurrence registered in November 2011, where the Itaja-Au river reached the water level of 12.60 meters. In the Ribeiro Garcia watershed basin there is a prevalence of abrupt floods (torrents of rainwater) generated within the basin itself with short-time concentration. The strong rains associated with the construction of houses without proper living conditions (shanty houses), large-scale clearings, landfills, and the occupation of natural drainage areas result in events with increasing destruction power. In the municipality of Blumenau, emergency actions to fight the risks arising from natural disasters are coordinated and carried out by the Civil Defense Force, which is directly subordinated to the Mayors Office. By analyzing the work system of the Municipal Government of Blumenau City, as well as that of the local government departments involved therein, we can see that many works are carried out twice because the different government offices do not communicate with each other appropriately. From the internal point

of view, there is a pseudo-methodology adopted by each department to carry out the works, but in the overall picture, that is not what happens. 4 METHODOLOGY For this paper we performed an in-depth analysis of the Work Plans from the Civil Defense and other Departments or Secretariats involved in the pre-event, event, and post-event phases of flood occurrences: Secretariat of Urban Planning (SEPLAN), Secretariat of Geology (SEGEO), Secretariat of Civil Works (SEMOB), and Secretariat of Urban Services (SESUR). This paper also considers the relationship between the activities in the scope of the Municipality of Blumenau, State of Santa Catarina (SC), Brazil. The analysis was performed on the Garcia stream hydrographic basin, located in the southern region of the municipality of Blumenau, SC. 5 RESULTS AND DISCUSSIONS

In order to systemize the integration of areas within the municipal government which take part in the process intended to control and mitigate the effects of floods, either gradual floods or surges in the hydrographic basin of the Garcia Stream, such as transportation, land use, urban infrastructure, environmental awareness and cognition by the population, among other, we propose below a model aimed at promoting a balance between the agents involved in the municipality of Blumenau, SC (Illustration 4).

Illustration 4. Integrated flow system to control urban floods.

The urbanization process in the landscape of the Garcia stream hydrographic basin has deeply affected the water movements above and below the soil surface in the urban area, the quality of rain water, and the final condition of nearby rivers. The increased demographic density in the municipality of Blumenau, particularly in the hydrographic basin of the Garcia Stream as of the 60s, led to a significant rise in the number of constructions and the resulting soil sealing in the urban area. Added to the local topographic, geological, and pedological characteristics, these factors increased both the volume and speed of direct superficial water flow, since only a minor portion of the rainfall in this area gets to infiltrate the soil, while most of it runs through the urban drainage system, and a small part flows along the pavement-sealed streets. This quick superficial water runoff enhances the frequency and peak flow rates of floods.

On top of this fact, the poor maintenance by the public authorities and the occupation of inappropriate areas, such as thalwegs, secondary river beds, and permanent protection areas (APPs) by the population further aggravate the flood problems around the Garcia stream watershed basin (Illustration 5).

(a) Occupation of thalweg on Alterosa Street, Garcia neighborhood, municipality of Blumenau/SC;

(b) Occupation of a permanent protection area by the Garcia stream.

(c) Stream confined under a road, Rua Anchieta, Garcia neighborhood.

(d) Storm drain completely damaged on Rua da Gloria, Gloria neighborhood.

Illustration 5. (a) and (b) Occupation of inappropriate areas in the Garcia stream hydrographic basin ; (c) and (d) poor maintenance of the urban drainage system in the Garcia stream hydrographic basin, municipality of Blumenau, SC.

Differently from flood events in the Itajai-Au river, the most common flood events in the Garcia stream are short-term, concentrated floods produced in the very basin of the streams or rivers encompassed in the drainage network, which characterizes these events as storm flood surges. The key factors that contribute to the vulnerability of the area are: soil compaction and sealing (impermeabilization); (b) dense construction of buildings on secondary stream beds ; (c) deforestation of hillsides, and silting of streams; (d) accumulation of debris in rainwater drainage galleries, drainage channels, and water courses. The public entities responsible for analyzing the causes and consequences of floods in the specific case of the municipality of Blumenau, which comprehends the Garcia stream hydrographic basin, are the Secretariats of Urban Planning, Geology, Civil Works, and Urban Services. It is paramount that these secretariats assess the basin as a whole and base their interdisciplinary projects on a single database that gathers reliable and

updated information, in order to use appropriate instruments to assess and reassess the process and learn from failures and successes. The technical analysis of causes and consequences of floods must be an integral part of the elaboration of proposals aimed at controlling and organizing the urban expansion. The structuring of projects intended to plan the urban expansion and control floods require a systematic accompaniment of the dynamics of phenomena that interfere in the rural or urban space, and requires the use of maps of the areas of interests in a scale compatible with the analysis to be executed and elaborated at different times in history, so that managers can visualize the present and understand seasonal changes through such analysis (Illustration 6).

Illustration 6. Time-space analysis of the urban area in the hydrographic basin of the Garcia stream.

Based on the themed maps that delimit the urban area of the Garcia stream hydrographic basin from 1957 to 2009, it is possible to notice a significant expansion of the urban area in the 1960s, and as of 1978 due to a higher control by the State a significant reduction in the expansion rate in this area. In spite of the reduction in the expansion rate, a significant expansion was observed in the occupied level (altimetry). This fact further aggravates the flooding problems in the basin and associates them with another problem, landslides, as these areas are generally occupied by substandard housing units.
Table 2. Time-space evolution of the urban area in the Garcia stream hydrographic basin. Maximum height (m) 115 225 250 250

YEAR 1957 1978 2003 2009

AREA (sq m) 6,345,738.92 12,185,943.6 2 13,841,347.0 2 14,064,360.8 2

% 3.97 7.63 8.66 8.80

% - of the total basin area.

Based on this vision, the Multipurpose Technical Cadastre (CTM), supported by the GIS tool, plays a critical role in the elaboration of projects of this nature, as the CTM provdes the basic information required for the elaboration management plans for rural and urban areas, while the GIS tool enables the filing, management, handling, analysis, and distribution of data, also enabling generic information, that is, raw data, to be transformed into useful, politically relevant information. The political decision is then taken based on reliable information with the required technical support by the sectors involved. This way, the State and Municipal administrators are less exposed to social pressure and financial resources, often limited, can then be applied in a rational way. The projects are then approached as a whole, detailing the selection of structural measures in the case of civil works, and non-structural measures in the case of the control of the use and occupation of soil and subsoil. Such integration prevents the proposal of incompatible measures and improves the quality of the project, optimizing the use of resources. The assessment and reassessment of processes must be carried out through an analysis of the history of integrated actions.

4.

Final Remarks

This paper developed an analysis of the causes and consequences of floods and the work methodologies historically adopted to propose solutions aimed at mitigating the flood effects at the Ribeiro Garcia watershed basin, in the town of Blumenau, State of Santa Catarina (SC), Brazil. The historical analysis of the solutions adopted demonstrates that priority was given to structural, one-off measures distributed all over the municipality. This way of elaborating propositions to mitigate flood events, besides being noncompliant with the recommendations made by the United Nations and the International Development Bank for developing interdisciplinary projects aimed at solving or mitigating problems with a sub-basin approach, only lessens specific flood problems, but overall pushes the issues further downstream. BY studying the Garcia stream sub-basin, we could verify that despite the frequency and intensity of the floods having been kept on the same level, the damages are increasingly magnified, since the population easily forgets the events and occupies again those areas subject to water flood and landslides. With each new disaster, discussions arise about the co-responsibility of municipal authorities on the severity of the events. As we all know too well, the disaster stems from the vulnerability of a particular place regarding an event, and the risk that a specific event might occur at that place. The increase or decrease of such vulnerability is a task for humans, and to great extent, for the municipal action. Part of the problems faced by the community can be solved by the implementation of public policies or integrated measures that provide guidance and help preventing damages. Through these public policies it is established where should the public funds go to, since they are a set of procedures that express the authority relationships, decisions and actions concerning the allocation of manpower and resources for a given purpose. As a rule, no measures could be identified at the municipalities which link their territorial policies with water protection or flood prevention. From a technical standpoint, three key constraints emerge to justify such lack of integration. The first one refers to the precarious knowledge of the natural and artificial drainage systems, as well as on their conservation status and operating conditions. The second one relates to the precarious knowledge about the hydrologic processes and the hydraulic functioning of the systems put in place. There is insufficiency or even absence of hydrologic monitoring of sub-basins in urban areas. And the third constraint relates to the inadequacy, in terms of quantity and quality, of the technical and managerial teams responsible for flood-related issues. Undoubtedly, it is in the state's institutional weakness and lack of methodologies to obtain effective measures that lies the core vulnerability of municipalities vis-a-vis the flood and landslide events. Such a vulnerability must be reduced by the evolution in the municipalities' managerial ability, which needs to be encouraged and followed as a precautionary and preparatory measure for new, upcoming events. Finally, we highlight an extract of Section 5 of the Brazilian Constitution:

Section.5 - Art. 225. All have the right to an ecologically balanced environment. which is an asset of common use and essential to a healthy quality of life, and both the Government and the community shall have the duty to defend and preserve it for present and future generations."

Actions for reducing losses and damages in cases of flood and surges, as well as other geo-environmental problems are not the sole responsibility of the public power, but of the society as a whole. Acknowledgements CAPES, for granting the doctorate scholarship to the first author. Bibliographic References
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