Methodological Proposition of an Integrated System for Urbanfloods Control (2)

7/29/2019 Methodological Proposition of an Integrated System for Urbanfloods Control (2)

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METHODOLOGICAL PROPOSITION OF AN INTEGRATED SYSTEM FOR

URBAN FLOODS CONTROL

Priscila Dionara Krambeck Braun1

, Carlos Loch1

1 Federal University of Santa Catarina (UFSC) Technological CenterLaboratory ofPhotogrammetry, Remote Sensing and Geoprocessing

88040-900 Florianopolis, SC

[email protected]

[email protected]

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, economicand 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;

1 Introduction

The history of human adaptation to the environmental conditions and itstransformation due to human activities has been a relationship of conflict andharmony, though such conditions have kept within its confines for centuries withoutcausing significant environmental impact. As cities' populations grow geometricallyand their occupation sprawls over increasingly wider areas, also the onset of majormagnitude events is on the rise, while the risks from such events are alsoexpanding in spatial terms.

1 Cadastro Tcnico Multifinalitrio CTM (Multipurpose Technical Cadastre)
mailto:[email protected]:[email protected]:[email protected]:[email protected]


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Nowadays, one of the key issues, if not the main one, regarding the hydricresources in Brazil is the impact derived from urban development, both at aninternal 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 away to express the need that the several sectors involved in both the managementof hydric resources and the control of urban floods should operate jointly. It is alsousual that these words convey more of the people's desire than an effective actionby the government.

Elements of a so-called political nature, combined with a chronical deficit inmanaging time schedules and financial resources usually prevail over the scope ofthe national governmental projects in Brazil.

According to Tucci (2007), the water management, including all of its

constituent elements water sources, sanitary sewerage, solid waste, riparianflooding, land use, and urban drainage has been done in a non-integratedmanner, with little focus on the city as a whole, acting on specific issues but neverdeveloping a preventive, inductive planning. Adding to that, there is a limitedinstitutional ability of municipalities and the sectorialization of the municipaladministration, which makes it even more difficult to implement an integrated watermanagement.

The current trend of a limited urban planning that handles the urbanwater management in an isolated, compartmentalised way is leading cities tourban environmental chaos, which inflicts a high toll to society, since the mitigationof floods and other environment-related problems is clearly interdisciplinary, anddemands a broad view to search for proper solutions (ASHLEY et al., 2005).

Also, according to Tucci (2007), the institutional environment of flood controldoes not lead to a sustainable solution. As a rule, flood emergency services areonly provided after the flood onset. The problem tends to fall in oblivion after eachoccurrence, 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 urbanplanners, b) lack of organization in all government levels - federal, state, and local regarding flood management; c) scarce technical information on this subject atthe Engineering courses on a graduate level; d) the political stress for publicadministrators arising from a non-structural control (zoning) mechanism, since the

population always expects some hydraulic works to be performed; e) thepopulation's lack of information about flood control; f) the lack of interest inpreventing floods, since their occurrence entail the status of public disaster for theCity/State, which allows the municipality to receive outright grants with no need ofpublic tenders to justify how these funds are employed.

Thus, when it comes to flood control funding, in most Brazilian states andmunicipalities the public authorities do not work in tandem, whether it is among theauthorities themselves, or between governments and other sectors of society infact, such integration does not exist, even among departments of one same publicbody (Ostrowsky, 2000).

Currently, after the occurrence of another predictable flood event, as a

result of social pressure and resource availability some measures are thenadopted, which do not take into account the key aspects of integrated plans, also


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because these usually do not exist. Such measures, due either to their slowimplementation or the changes in urban occupation do not represent anymore thearray 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 theirconsequences, besides the very need of developing a model that shifts the currentflow 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 urbanfloods based on the integration among the different public sectors involved in suchcontrol, with the help of the Multipurpose Technical Cadastre ("Cadastro TcnicoMultifinalitrio CTM") and the GIS (Geographical Information System) tool.

2 The Multipurpose Technical Cadastre (CTM) and its relevance in themitigation 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 itis essential to have an updated Multipurpose Technical Cadastre which, along withthe regulations that govern the land and subsoil use, encourage an orderly growthof the urban expansion.

The territorial management needs a systematic follow-up of the dynamics ofthose phenomena affecting the physical space, both rural and urban, and requiresmaps of the interest areas, which have been elaborated on different dates, so thatthe 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 differentdates is key for preparing a plan if one intends to perform regular assessments ofthe floods. The past conditions must be retrieved in order to show thetransformations that led to the present situation, besides enabling us to project thefuture and the interventions that might correct any faults found along the processof spatial evolution

Retrieving information in temporal series through a Cartography withgeometric and thematic quality allows for in-depth detailed evaluation of thephysico-spatial reality. Besides, it enables to perform a didactic 'reading' of the cityat the public hearings where the community will become familiar with the spatialtransformations that occurred over time, allowing to identify and acknowledgeproblems, and thus facilitating the proposition of solutions (PEREIRA, LOCH EGEISSLER, 2008).

Once that people are motivated and aware of the physico-spatial evolutionof each neighborhood, they will be able to take part more conscientiously aboutthe directions they want to follow regarding their own neighborhoods orhomogeneous zonings (Lang e Blaschke, 2009).

The analysis of the flooding causes and consequences must be performedwithin this frame. However, the mere identification of causes and consequencesdoes not lead to solving the problem. Other agents are required to intervene intothis process. The technical analysis of the social pressure, which will always exist,

and the financial resource availability should be understood as conditioningelements for problem solving (Carneiro, 2008).


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Viewing the urban floods as part of a higher order (the basin's cycle), aswell as their disagreeable consequences (the floods), cannot be relegated to theback-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 disseminationof 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 eBlaschke, 2009).

The CTM combined with the GIS tool allows an even wider understandingof the problems and further refinement in the level of technical interaction betweenthe propositions, thus enabling to make decisions and political choices with greatercertainty

The human factor should be taken into account, considering that any of theabove elements individually does not cover the range required for preventing thedamages. Also, it all makes no sense if we fail to consider that there are peopleliving in the places for which the works or didactic actions are proposed. For theproposed measures to be accepted, it is essential to consider the people's needsand the way how they interact with their environment. Instead of interventionistmeasures, it would be better if these measures could be perceived as a joint effortfrom the State government, private initiative, educators, and the community. Thatis, every proposition should be impregnated by the required environmentalawareness and the people's participation. (WMO / GWP, 2008).

The adoption of integrated measures facilitates an overall comprehension ofproblems and brings the sectors involved together. A regular assessment feedsback the process and allows to obtain a better characterization of the urbanexpansion.

3 CHARACTERIZATION OF THE STUDY AREA

The Ribeiro Garcia [Garcia River] basin is located in the South region ofthe Municipality of Blumenau, in the physiographical zone of the state of SantaCatarina called Itaja-Au Basin. It is located between 2655 and 2708' SouthLatitude 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 andIndaial; to the East, by Luis Alves and Gaspar and, to the West, by Indaial, Timband Pomerode (Illustration 1). The city of Blumenau, where the Garcia basin isinserted, sits on the bottom of a valley surrounded by hills, by the margins of theItaja-Au River, which divides the city in two portions: east and west. The basin'soutfall on the right margin of the Itaja-Au River is in the downtown area, at analtitude of only 14 meters above the sea level.


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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 municipalterritory. It comprises a surface of 159.77 km2 (15,977 hectares), whichcorresponds to 1.06 % of the area of the Itaja-Au river, which measures 15.111km2 (SANTA CATARINA, 1997:24)] and covers 30.1 % of the total area of themunicipality. Ribeiro Garcia is approximately 41.7 km long from its main spring toits 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 arelocated approximately 24 km in a straight line from downtown Blumenau, in amountainous region within the environmental conservation area called Parquedas Nascentes [Water Springs Park] with a total area of 5,300 ha in the higherportions of the basin.

The basins urban area covers approximately 22.7 km2. From the centralportion of the river toward its mouth, is where the greatest portion of the populationis concentrated; they live in the 'bairros' [neighborhoods] of Garcia, Progresso,Gloria, Valparaso, Ribeiro Fresco, Vila Formosa, downtown and JardimBlumenau (Illustration 2). According to data from 1996 supplied by the municipalauthority [Prefeitura Municipal de Blumenau], the population living in the RibeiroGarcia area is estimated at 47,350 inhabitants, and, in their opinion, Bairro Garciahas already reached its occupancy capacity limit (special limit) and recorded a truepopulation explosion toward the hilltops of Rua Itapu [Itapu Street], which delimitsthe neighborhood (Table 1).

Table 1 - Area in km

2

, projection of total population and number of households in theneighborhoods located within the Ribeirao Garcia watershed.


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Neighborhoods Area in Km2 Population2010*

Number ofHouseholds

Ribeiro Fresco 1.22 1,360 535

Garcia 4.53 16,900 6,118

Da Glria 1.95 6,384 2,117Progresso 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 peopleresiding 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 inother neighborhoods belonging to the same watershed is a fast-paced processthat started in the 1950s and has been contributing to the disfigurement of thelandscape, 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 termsof topography and land morphology, with altitude range and higher slopes to theSouth of the municipality. The Vale do Garcia [Garcia Valley], especially its lower

course, is a landscape strongly conditioned by processes of anthropogenic origin


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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 andnortheast), favors the incoming of humidity from the ocean toward the continent.Furthermore, the fact that the valley has a hot and humid climate favors theoccurrence of intense rainfalls.

The local low declivity together with high rainfall rates, plus the aggravatingfactor of environmental degradation (deforestation, silting, erosion andinappropriate soil management), exposes the city and, consequently the RibeiroGarcia watershed to frequent and strong floods and torrents of rainwater.

The history of floods runs side-by-side with the history of the settlement anddevelopment of the Blumenau Colony, which started by the margins of RibeiroGarcia. The first major flood recorded in Blumenau, with 16.30 meters, dates backto 1852, two years after the colony was founded. The worst flood ever recordeddates back to 1880 and reached 17.10 meters. In 1983 and 1984, the water levelof 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 floodoccurrences recorded since 1852, with the last occurrence registered inNovember 2011, where the Itaja-Au river reached the water level of 12.60meters.

In the Ribeiro Garcia watershed basin there is a prevalence of abrupt

floods (torrents of rainwater) generated within the basin itself with short-timeconcentration. The strong rains associated with the construction of houses withoutproper living conditions (shanty houses), large-scale clearings, landfills, and theoccupation of natural drainage areas result in events with increasing destructionpower.

In the municipality of Blumenau, emergency actions to fight the risks arisingfrom 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 BlumenauCity, as well as that of the local government departments involved therein, we can

see that many works are carried out twice because the different governmentoffices do not communicate with each other appropriately. From the internal point


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of view, there is a pseudo-methodology adopted by each department to carry outthe 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 fromthe 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 municipalgovernment which take part in the process intended to control and mitigate theeffects of floods, either gradual floods or surges in the hydrographic basin of theGarcia Stream, such as transportation, land use, urban infrastructure,environmental awareness and cognition by the population, among other, wepropose below a model aimed at promoting a balance between the agentsinvolved in the municipality of Blumenau, SC (Illustration 4).


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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 belowthe soil surface in the urban area, the quality of rain water, and the final conditionof nearby rivers. The increased demographic density in the municipality ofBlumenau, particularly in the hydrographic basin of the Garcia Stream as of the60s, led to a significant rise in the number of constructions and the resulting soilsealing in the urban area. Added to the local topographic, geological, andpedological characteristics, these factors increased both the volume and speed ofdirect superficial water flow, since only a minor portion of the rainfall in this areagets 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 superficialwater runoff enhances the frequency and peak flow rates of floods.


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

(a) Occupation of thalweg on Alterosa Street,

Garcia neighborhood, municipality ofBlumenau/SC;

(b) Occupation of a permanent protection

area by the Garcia stream.

(c) Stream confined under a road, RuaAnchieta, Garcia neighborhood. (d) Storm drain completely damaged on Ruada 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 floodevents in the Garcia stream are short-term, concentrated floods produced in thevery 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 buildingson secondary stream beds ; (c) deforestation of hillsides, and silting of streams; (d)accumulation of debris in rainwater drainage galleries, drainage channels, andwater courses.

The public entities responsible for analyzing the causes and consequencesof floods in the specific case of the municipality of Blumenau, which comprehendsthe 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 andbase their interdisciplinary projects on a single database that gathers reliable and


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updated information, in order to use appropriate instruments to assess andreassess the process and learn from failures and successes. The technicalanalysis of causes and consequences of floods must be an integral part of theelaboration of proposals aimed at controlling and organizing the urban expansion.

The structuring of projects intended to plan the urban expansion and controlfloods require a systematic accompaniment of the dynamics of phenomena thatinterfere in the rural or urban space, and requires the use of maps of the areas ofinterests in a scale compatible with the analysis to be executed and elaborated atdifferent times in history, so that managers can visualize the present andunderstand seasonal changes through such analysis (Illustration 6).


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

Based on the themed maps that delimit the urban area of the Garcia streamhydrographic 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 highercontrol by the State a significant reduction in the expansion rate in this area. Inspite of the reduction in the expansion rate, a significant expansion was observedin the occupied level (altimetry). This fact further aggravates the flooding problemsin the basin and associates them with another problem, landslides, as these areasare generally occupied by substandard housing units.

Table 2. Time-space evolution of the urban area in the Garcia stream hydrographic basin.

YEAR AREAMaximum

height %

(sq m) (m)1957 6,345,738.92 115 3.97

197812,185,943.6

2 225 7.63

200313,841,347.0

2 250 8.66

200914,064,360.8

2 250 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 thisnature, as the CTM provdes the basic information required for the elaborationmanagement plans for rural and urban areas, while the GIS tool enables the filing,management, handling, analysis, and distribution of data, also enabling genericinformation, that is, raw data, to be transformed into useful, politically relevantinformation.

The political decision is then taken based on reliable information with therequired technical support by the sectors involved. This way, the State andMunicipal administrators are less exposed to social pressure and financialresources, often limited, can then be applied in a rational way.

The projects are then approached as a whole, detailing the selection ofstructural measures in the case of civil works, and non-structural measures in thecase of the control of the use and occupation of soil and subsoil. Such integrationprevents the proposal of incompatible measures and improves the quality of theproject, optimizing the use of resources.

The assessment and reassessment of processes must be carried outthrough an analysis of the history of integrated actions.

4. Final Remarks


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This paper developed an analysis of the causes and consequences offloods and the work methodologies historically adopted to propose solutions aimedat mitigating the flood effects at the Ribeiro Garcia watershed basin, in the townof Blumenau, State of Santa Catarina (SC), Brazil.

The historical analysis of the solutions adopted demonstrates that prioritywas given to structural, one-off measures distributed all over the municipality. Thisway of elaborating propositions to mitigate flood events, besides being non-compliant with the recommendations made by the United Nations and theInternational Development Bank for developing interdisciplinary projects aimed atsolving or mitigating problems with a sub-basin approach, only lessens specificflood problems, but overall pushes the issues further downstream.

BY studying the Garcia stream sub-basin, we could verify that despite thefrequency and intensity of the floods having been kept on the same level, thedamages 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 ofmunicipal authorities on the severity of the events. As we all know too well, thedisaster stems from the vulnerability of a particular place regarding an event, andthe risk that a specific event might occur at that place. The increase or decrease ofsuch vulnerability is a task for humans, and to great extent, for the municipalaction.

Part of the problems faced by the community can be solved by theimplementation of public policies or integrated measures that provide guidanceand help preventing damages. Through these public policies it is established

where should the public funds go to, since they are a set of procedures thatexpress the authority relationships, decisions and actions concerning theallocation of manpower and resources for a given purpose.

As a rule, no measures could be identified at the municipalities which linktheir territorial policies with water protection or flood prevention.

From a technical standpoint, three key constraints emerge to justify suchlack of integration. The first one refers to the precarious knowledge of the naturaland artificial drainage systems, as well as on their conservation status andoperating conditions. The second one relates to the precarious knowledge aboutthe hydrologic processes and the hydraulic functioning of the systems put in place.

There is insufficiency or even absence of hydrologic monitoring of sub-basins inurban areas. And the third constraint relates to the inadequacy, in terms of quantityand quality, of the technical and managerial teams responsible for flood-relatedissues.

Undoubtedly, it is in the state's institutional weakness and lack ofmethodologies to obtain effective measures that lies the core vulnerability ofmunicipalities vis-a-vis the flood and landslide events. Such a vulnerability must bereduced by the evolution in the municipalities' managerial ability, which needs tobe 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:


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Section.5 - Art. 225. All have the right to an ecologically balancedenvironment. which is an asset of common use and essential to a healthyquality of life, andboth the Government and the communityshall havethe duty to defend and preserve it for present and future generations."

Actions for reducing losses and damages in cases of flood and surges, aswell as other geo-environmental problems are not the sole responsibility of thepublic power, but of the society as a whole.

Acknowledgements

CAPES, for granting the doctorate scholarship to the first author.

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Methodological Proposition of an Integrated System for Urbanfloods Control (2)

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