Journal of Environmental Science and Engineering B 1 (2012)

Formerly part of Journal of Environmental Science and Engineering, ISSN 1934-8932

D DAVID PUBLISHING

Methodological Proposition of an Integrated System for

Urban Floods Control

Priscila Dionara Krambeck Braun and Carlos Loch

Laboratory of Fhotogrametry, Remote Sensing and Geoprocessament, University Federal of Santa Catarina, Florianopolis
88040-900, Brazil

Received: July 9, 2012 / Accepted: August 2, 2012 / Published: August 20, 2012.

Abstract: In the State of Santa Catarina, Brazil, especially in the Itajai 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 the
coexistence with such natural disasters possible, most particularly with floods, a integration is required among 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 among the several public entities involved in the flood control, along with the CTM
(Multipurpose Technical Cadastre) and GIS tool. In order to solve or minimize the problems, the model proposed here aims at
promoting a balance between the agents involved, and enables to rank the degrees of importance assigned to the different needs, thus
allowing to eliminate or to improve those areas and processes that are duplicated or superimposed.

Key words: Flood control, urban floods, methodological proposition.

1. Introduction1 Nowadays, one of the key issues, if not the main

The
one, regarding the hydric resources in Brazil is the
history of human adaptation to the
impact derived from urban development, both at an
environmental condition and its transformation due to
internal level, which affects the municipalities, as well
human activities has been a relationship of conflict
as at an external level, which means “exporting”
and harmony, though such conditions have kept
pollution and flooding further downstream [1].
within its confines for centuries without causing
Within the scope of the Brazilian governmental
significant environmental impact. As cities’
hydric projects, it is rather usual the use of wordings
populations grow geometrically and their occupation
such as “integration”, “joint action” and “task force”
sprawls over increasingly wider areas, also the onset
as a way to express the need that the several sectors
of major magnitude events is on the rise, at the same
involved in both the management of hydric resources
time, the risks from such events are also expanding in
and the control of urban floods should operate jointly.
spatial terms.
It is also usual that these words convey more of the
people’s desire than an effective action by the
Corresponding author: Priscila Dionara Krambeck Braun,
doctor, main research fields: water resources and CTM. E-mail: government.
priscila.krambeck@macroplast.com.br. Elements of a so-called political nature, combined
 1 Cadastro Técnico Multifinalitário—CTM (Multipurpose

Technical Cadastre)
with a chronical deficit in managing time schedules
2 Methodological Proposition of an Integrated System for Urban Floods Control
and financial resources usually prevail over the scope
of the national governmental projects in Brazil.
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 [2-4].
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 [2] 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 [5, 6].
Also, 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 [6], among which are worth
mentioning: (1) lack of knowledge on flood control by
urban planners; (2) lack of organization in all
government levels-federal, state, and local regarding
flood management; (3) scarce technical information
on this subject at the engineering courses on a
graduate level; (4) 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; (5) the
population’s lack of information about flood control;
(6) 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 [2-19].
Thus, when it comes to flood control funding, in
most Brazilian states and municipalities the work by
the public authorities is not carried out in tandem,
whether it is among the authorities themselves, or
among governments and other sectors of society—in
fact, such integration does not exist even among
departments of one same public body [7].
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
inefficient implementation or the changes in urban
occupation do not represent the array of needs from
this urban area and its population anymore.
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, but it is 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 CTM (cadastro técnico
multifinalitário—Multipurpose Technical Cadastre)
and the GIS (geographical information system) tool.
2. The CTM and Its Relevance in the
Mitigation of Flood Problems
A regular assessment of urban floods allows for the
development of follow-up 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,
encouraging an orderly growth of the urban
 Methodological Proposition of an Integrated System for Urban Floods Control
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 [8].
The physical and spatial assessment on different
dates is the 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 [9].
Retrieving information in temporal series through
an cartography with geometric and thematic quality
allows for an 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 [10].
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 [11].
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 [12].
Viewing the urban floods as part of a higher order
(the basin’s cycle), as well as their disagreeable
3
consequences (the floods), cannot be relegated to the
back-burner, for it is known that more lives and goods
can be lost at each new episode [13].
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
GIS (Geographic Information Systems), 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 [11].
The CTM combined with the GIS tool allows for 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 none of the above elements
individually covers the range required for preventing
damages. Also, it all makes no sense if it is not taken
in consideration 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, the private initiative, educators, and
the community. That is, every proposition should be
impregnated by the required environmental awareness
and the participation of the people [14].
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 obtain a better
characterization of the urban expansion.
3. Characterization of the Study Area
The Ribeirao Garcia (Garcia Stream) basin is
located in the south region of the municipality of
Blumenau, in the physiographical zone of the state of
4 Methodological Proposition of an Integrated System for Urban Floods Control
Santa Catarina called Itajai-Açu Basin. It is located
between 26º55′ and 27º08′ S and 49º01′ and 49º10′ W
of Greenwich, time zone 22. To the south, the basin is
bordered by the municipalities of Guabiruba, Botuverá
and Indaial; to the east, by Luis Alves and Gaspar and,
to the west, by Indaial, Timbó and Pomerode (Fig. 1).
The city of Blumenau, where the Garcia basin is
inserted, sits on the bottom of a valley surrounded by
hills at the margins of the Itajai-Açu River, which
divides the city in two portions: east and west. The
basin’s outfall on the right margin of the Itajai-Açu
River is in the downtown area, at an altitude of only
14 meters above the sea level.
Ribeirao 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 Itajai-Açu river, which measures 15.111 km2 [15]
and covers 30.1% of the total area of the municipality.
Fig. 1 Location of the Ribeirao Garcia watershed in the municipality of Blumenau.
Ribeirao Garcia is approximately 41.7 km long from
its main spring to its mouth in the Itajai-Açu River.
The city of Blumenau is crossed from south to north
by the Ribeirao Garcia, which practically comprises
the city’s 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.
Approximately 22.7 km2 are covered by the basin’s
urban area. From the central portion of the river
toward its mouth, is where the greatest portion of the
population is concentrated; people live in the “bairros”
(neighborhoods) of Garcia, Progresso, Gloria,
Valparaíso, Ribeirão Fresco, Vila Formosa, downtown
and Jardim Blumenau (Fig. 2). According to data from
1996 supplied by the municipal authority (Prefeitura
M u n i c i p a l d e B l u m e n au ) , t h e p o p u l a t i o n
Journal of Environmental Science and Engineering B 1 (2012)
Formerly part of Journal of Environmental Science and Engineering, ISSN 1934-8932

living in the Ribeirão 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 Itapuí (Itapuí
Street), which delimits the neighborhood (Table 1).
The excessive human occupation around the Garcia
stream area, as well as in other neighborhoods
belonging to the same watershed is a fast-paced
process that started in the 1950’s 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 is characterized
by remarkable differences in terms of topography and
land morphology, with altitude range and higher
slopes to the south of the municipality. The Vale do

Fig. 2 Neighborhoods inserted in the Ribeirão Garcia Hydrographic Basin.

Table 1 Area in km2, projection of total population and number of households in the neighborhoods located within the Ribeirao
Garcia watershed.
Neighborhoods Area (km2) Population 2010* Number of households
Ribeirão Fresco 1.22 1,360 535
Garcia 4.53 16,900 6,118
Da Glória 1.95 6,384 2,117
Progresso 6.68 14,272 4,180
Valparaíso 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
* The ratio of people residing per km2 was used for demographic projections in neighborhoods and households..(Source: Ref. [16])
Journal of Environmental Science and Engineering B 1 (2012)
Formerly part of Journal of Environmental Science and Engineering, ISSN 1934-8932
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
(Fig. 3).
In addition to these factors, the geographical
position of the Itajai 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), expose the city and,
consequently the Garcia stream 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
Ribeirao Garcia. The first major flood recorded in
Blumenau, with 16.30 meters, dated back to 1852, two
years after the colony was founded. The worst flood
ever recorded dated 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
Fig. 3 Planialtimetric mapping of Blumenau city in the north-south direction.
Source: Adapted from [17].
registered in November 2011, when the Itajai-Açu
river reached the water level of 12.60 meters.
In the Garcia stream basin there is a prevalence of
abrupt floods (torrents of rainwater) generated in 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 flood 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 Mayor’s
Office.
By analyzing the work system of the Municipal
Government of Blumenau city, as well as that of the
local government departments involved therein, it is
noticeable 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 an in-depth analysis was carried out
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,
Journal of Environmental Science and Engineering B 1 (2012)
Formerly part of Journal of Environmental Science and Engineering, ISSN 1934-8932
such as the 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 integration
between the activities developed in the scope of the
municipality of Blumenau, state of Santa Catarina
(SC), Brazil. The analysis was focused on the Garcia
stream hydrographic basin located in the southern
region of the municipality of Blumenau, SC.
5. Results and Discussion
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,
Fig. 4 Integrated flow system to control urban floods.
environmental awareness and cognition by the
population, among the other model proposed below
aims at promoting a balance between the agents
involved in the municipality of Blumenau, SC (Fig.
4).
The water movements above and below soil surface
in the urban area, the quality of rain water, and the
final condition of nearby rivers have been deeply
affected by the urbanization process in the landscape
of the Garcia stream hydrographic basin.
The increased demographic densit y i n the
municipality of Blumenau, particularly in the Garcia
Stream hydrographic basin as of the 60’s, led to a
significant rise in the number of constructions and the
Journal of Environmental Science and Engineering B 1 (2012)
Formerly part of Journal of Environmental Science and Engineering, ISSN 1934-8932

resulting soil sealing in the urban area. Added to the
local topographic, geological, and pedological
features, 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 flood problems around the
Garcia stream watershed basin (Fig. 5) are further
aggravated by the poor maintenance provided by
public authorities and the occupation of inappropriate
areas, such as thalwegs, secondary river beds, and
permanent protection areas (APPs) by the population.
Differently from flood events in the Itajai-Açu
River, the most common flood events of the Garcia
stream are short-term, concentrated floods produced in
the very basin of the streams or rivers encompassed in
its drainage network, which characterizes these events
as storm flood surges.
Key factors contributing to the vulnerability of the
area are: (1) soil compaction and sealing
(impermeabilization); (2) dense construction of
buildings on secondary stream beds; (3) deforestation
of hillsides, and silting of streams; (4) 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 of 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

(a) Occupation of thalweg on Alterosa Street, Garcia (b) Occupation of a permanent protection area by the
neighborhood, municipality of Blumenau / SC. Garcia stream.

(c) Stream confined under a road, Rua Anchieta, Garcia (d) Storm drain completely damaged on Rua da Gloria,
neighborhood. Gloria neighborhood.
Fig. 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.
Journal of Environmental Science and Engineering B 1 (2012)
Formerly part of Journal of Environmental Science and Engineering, ISSN 1934-8932
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 requires a
Fig. 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
systematic accompaniment of the dynamics of
phenomena that interfere in the rural or urban space,
and demands 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 the
managers can visualize the present and understand the
seasonal changes through such analysis (Fig. 6).
Comentado [by2]: The legends in the figure are too small.
Please revise.
with another problem, landslides, as these areas are
generally occupied by substandard housing units.
Based on this vision, the CTM, with the support of
the GIS tool, plays a critical role in the elaboration of
projects of this kind, as the basic information required
for the elaboration of management plans for rural and
urban
Table 2 Time-space evolution of the urban area in the Garcia
stream hydrographic basin.
Year Area Maximum height %- of the total
10 Methodological Proposition of an Integrated System for Urban Floods Control
basin area
(m2) (m)
1957 6,345,738.92 115 3.97
1978 12,185,943.62 225 7.63
2003 13,841,347.02 250 8.66
areas are provided by the CTM, 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, which 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.
6. Conclusions
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 Ribeirão Garcia
watershed basin, in the town of Blumenau, state of SC
(Santa Catarina), 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 non-compliant 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, it could
be verified 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 same areas subject to water flood and
landslides.
With each new disaster, discussions arise regarding
the co-responsibility of municipal authorities on the
severity of the events. As it is well known, 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 the public funds should 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
 Methodological Proposition of an Integrated System for Urban Floods Control
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 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, it is worth highlighting 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 [18].”
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.
Acknowledgments
The author thanks the Coordination of
Improvement of Personnel of Superior Level
(CAPES-Brazil) for granting the doctorate scholarship
to the first author—Ph.D. Braun.
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