Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

Competition between multiple uses of water in the Metropolitan Area: the Paraopeba River water basin

Marília Carvalho de Melo1, Nilo Oliveira Nascimento2, Fabrício Lisboa Vieira Machado3, Andressa de Oliveira Lanchotti4, Leonardo Castro Maia5, Fernando António Leal Pacheco6

KEYWORDS

Water Security, risk management

ABSTRACT

This article analyses a large-scale event, a tailings dam failure (dam break), and its impact on one of the river basins supplying water to a large metropolitan area, the Belo Horizonte Metropolitan Region (Região Metropolitana de Belo Horizonte – RMBH), in . The RMBH area encompasses 34 municipalities and is the home to 5,961,895 people. In part of the RMBH area, the so-called Iron Quadrangle (quadrilátero ferrífero) is one of the richest iron ore provinces in Brazil, having mining activities as a major driver of both the regional and national economy. Most of the iron ore mining sites adopt tailings dams for mining tailings disposal and, for various reasons, such structures pose a high technological risk, with great damage potential regarding the environment, economics and society. In January 2019, one of the tailings dams of the Córrego do Feijão mining site collapsed, resulting in the tailings and metals contamination of an important water source for the RMBH. This source was able to yield 5 m3/s of water, and was part of the RMBH integrated water supply system with sources in two river basins, the Velhas River and the Paraopeba River, with a total output of 19.6 m3/s. The system affected by the tailings was designed to increase the RMBH water security, contributing to the water storage recovery of three reservoirs in the Paraopeba River basin during the rainy seasons, thus supplying water during the dry seasons that last from 6 to 7 months. This article evaluates the emergency actions for crisis management triggered by the dam collapse, and discusses a regional risk management policy in a metropolitan area where 129 tailings dams are located.

1 Institute of Water Management of and University of Vale do Rio Verde 2 Federal University of Minas Gerais (UFMG) 3 State Secretary of Environmental and Sustainable Development of Minas Gerais 4 Public Prosecutor of Minas Gerais 5 Public Prosecutor of Minas Gerais 6 University Trás-os-Montes e Alto Doro (UTAD)

Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

1 INTRODUCTION

Water and sanitation is an essential right to the full enjoys of life and human rights, and States are responsible for its promotion and protection (UNITED NATIONS, 2010). In this context, the concept of water security has been used worldwide to designate the objective of providing water in quantity and quality for multiple uses, including the needs of aquatic ecosystems, as well as reducing risks related to extreme hydrological events (GWP, 2009; Cook and Bakker, 2012; Gerlak et al, 2018; UN-Water, 2013; OECD, 2013). The concept encountered specific application to urban areas, where public supply has been a major challenge in water management (Romero-Lankao and Gnatz, 2016; Chen et al., 2017; Jensen and Wu, 2018; Hoekstra et al., 2018; Wang et al., 2019; Aboelnga et al., 2019 ). Variables that can compromise water supply are called stressors and comprise: (1) physical availability of water; (2) relationship between storage and flow; (3) relationship between demand and availability of water; (4) quantity available per capita; (5) water quality, represented by concentrations of organic contaminants, nutrients or pathogenic elements; (6) rainfall deficits and surpluses; (7) vulnerability/resilience to changes in natural flows and hydrologic regime; (8) flood events; (9) percentage of river basin with natural vegetation and green area in cities (Raskin et al., 1997; Sullivan et al., 2003; Chaves and Alipaz, 2007; Brown and Matlock, 2011; van Leeuwen et al., 2012; Mason and Calow, 2012; GWP, 2014; Arcadis, 2016; Gain et al., 2016; Wang et al., 2017; Jensen and Wu, 2018b; van Ginkel et al., 2018 ). The practical evaluation of water security risks attends the selection of stressors according to the characteristics of each region, their economic vocations and especially the model of land use and occupation of the river basin. The evaluation of water security in this article was focused on the Metropolitan Region of Belo Horizonte (RMBH) located in the state of Minas Gerais, southeast region of Brazil. The RMBH is composed of 34 municipalities with five million inhabitants (26% of state’s population) and a GDP of US$ 56.8 million (40% of state’s GDP) (IBGE, 2020). The RMBH is contained in the Velhas and Paraopeba river basins, tributaries of São Francisco river that blooms in Minas Gerais, flows through seven (7) Brazilian states along 3,160 km, and debouches into the Atlantic Ocean between the states of Alagoas and Sergipe as presented in Figure 1 (CBHSF, 2016). Being in the Iron Quadrangle (quadrilátero ferrífero), the RMBH has iron mining as one of its economic activities, which on the one hand represents relevance in economic development and on the other hand represents a risk to environmental quality, public water supply and consequently to water security in the region. Tailings dams have been widely used in mining activities for tailings disposal. Currently, there are 846 tailings dams in Brazil (ANM, 2020), 408 of which are in Minas Gerais and 129 in the RMBH (IDE-SISEMA, 2019). The risks related to these structures have been widely discussed (Rotta et al., 2020; Cionek et al., 2019; Silveira et al., 2019) and are recognized as variable related to the ecosystem dimension in the National Plan for Water Security (ANA, 2019). In Minas Gerais, one of the dams located in the municipality of Mariana collapsed in 2015, affecting the Doce river and more than 200 municipalities across two Brazilian states.

Figure 1- RMBH Location. Source: the authors.

Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

On January 25, 2019, in the municipality of , Minas Gerais, the Dam I and subsequent Dams IV and IV-A of the Córrego do Feijão Mine operated by the mining company Vale S.A. broke. As a result, 13 million m3 of mining waste were dumped into the Ribeirão Ferro-Carvão, an affluent of the Paraopeba river, with the destruction of riverside ecosystems and the death of 270 people, marking the region as the place of a major tragedy in Brazil. In the Paraopeba river, 29 municipalities, part of them located in the RMBH, were affected by this sequence of dam breaks. This major disaster motivated for conducting the present study. The dams were 19 km away from a key RMBH's water supply source located in the Paraopeba river, which was interrupted after the rupture. The high turbidity levels and concentrations of several substances, many of them toxic and in disagreement with the established environmental standards (Neves-Silva, Heller, 2020; Peixoto, Asmus, 2020; Polignano, Lemos, 2020), marked the river’s contamination with mining waste. This source provided 5 m3/s of water, which represented approximately 30% of RMBH’s production capacity. Under this circumstance, the competent authorities initiated a series of emergency actions to minimize the disaster impacts on the public water supply and established interventions to increase water security in the RMBH. This article evaluates those actions and interventions, coupling them with a discussion about regional risk management policy in a metropolitan area where 129 tailings dams are located.

2 METHODS

This research used public and available data from environmental agencies, the water resources institute and the water utility responsible for water supply and sanitation for the RMBH, as well as

Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

documents form processes no. 5044954-73.2019.8.13.0024 and no. 5026408-67.2019.8.13.0024 that run in the 2nd Court of Public Treasury and Autarchies of Belo Horizonte. 2.1 Characterization of the study area The water supply to RMBH comprises two main systems sourced on the Velhas and Paraopeba river watersheds (Figure 2), which produce 16.7 m3/s and together represent 91% of the water production. In the Velhas River basin, there is an abstraction site in the municipality of , which provides about 6.95 m3/s and the current authorization allows the withdrawal of 8.77 m3/s from this source. In the Paraopeba River basin, there are three reservoirs, here-in named , Serra Azul and Vargem das Flores, which currently supply 5.33, 1.18 and 1.14 m3/s, respectively (Figure 3). Other minor sources provide additional 1.0 m3/s. From 2012 to 2015, the southeastern region of Brazil experienced a severe drought that culminated in a situation of crisis for the public water supply to the state capitals of Minas Gerais, Rio de Janeiro and São Paulo (Nobre et al., 2015). In order to reverse the critical situation of Paraopeba system reservoirs, the water and sanitation utility (COPASA) developed a new water supply source in the Paraopeba River, with a capacity of 5 m3/s, in the municipality of Brumadinho. This allowed the three reservoirs to substantially increase their supply capacity. Figure 2 – Schematic of RMBH's water supply producing systems. Source: COPASA, 2020.

Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

Figure 3 - Main water supply sources of RMBH. Source: the authors.

The Velhas and Paraopeba river basins are highly demanded for water uses and the disposal of raw sewage due to insufficient infrastructure for wastewater treatment affects water quality. In the Velhas River basin, the total granted flow is 20.89 m3/s, 10.84 m3/s of which is committed to public supply (51.88%), 7.2 m³/s to irrigation (34.46%), 0.187 m³/s to industrial activities (0.89%), and 2.613 m³/s to mining activities (12.50%). In the Paraopeba river basin, the granted flow is 41.43 m³/s being distributed by activities as follows: 21.73 m³/s for public supply (52.45%), 5.12 m³/s for irrigation (12.36%), 8.91 m³/s for industrial activities (21.50%), and 3.69 m³/s for mining activities (8.91%) (IDE- SISEMA, 2019). The water quality index (IQA) estimated for 2019 with water quality data from 118 monitoring sites distributed within the Velhas (81 sites) and Paraopeba (37) river basins points out that none of these sites are in excellent or very bad state. In the Velhas River basin, 30.86% presented low IQA (bad), 43.21% average values and 25.93% high values (good). In the Paraopeba River basin, the situation was similar: 29.73% presented bad conditions, 54.05% average conditions and 16.22% good conditions based on IQA values (IDE-SISEMA, 2019). 2.2 Risks associated with water supply The evaluation of risks associated with public water supply in the RMBH was based on the model of Melo (2016). The selection of stressors, assessed through the parameters listed in Table 1, attended the region specificities.

The reference flow rate (Q7,10) was determined using the data from the fluviometric monitoring stations of Honório Bicalho, do Paraopeba and Jardim (ANA Hidroweb - http://www.snirh.gov.br/hidroweb/serieshistoricas). The software SisCAH – Computational System for Hydrologic Analysis software (SOUZA, 2011) allowed to estimate the reference discharge Q7,10.

Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

The qualitative risk was assessed for each water supply source, considering the stressors characterization in the drainage area upstream from the abstraction points (Figure 3). The water quality was evaluated at the stations BV139 (Rio da Velhas system), BPE2 (Paraopeba river) and BP066 (Rio Manso system). These stations are part of the monitoring network under the responsibility of IGAM, the Minas Gerais water management institute. Table 1 - Variables adopted to evaluate the risks associated with public water supply in the RMBH.

Parameter of Year of Stressor evaluation analysis Data sources

Pressure on % of the area without environmental natural vegetation 2018 Plataforma MapBiomas (2020) conditions cover of the river basin Water demand Outorga de direito de uso de Water stress index , (pressure on 2019 recursos hídricos e vazão máxima I * quantity) eh outorgável (IDE-SISEMA, 2019) Water quality index, Polluting load Monitoramento de qualidade da água IQA** 2019 (pressure on quality) (IDE-SISEMA, 2019)

Mining tailings dams Number of tailings Inventário de barragens de rejeito (pressure on the dams upstream of the 2019 (IDE-SISEMA, 2019) ecosystem) water source 푑푒푚푎푛푑 푄표푢푡 ∗ I푒ℎ⁄% = = ∙ 100 , where the demand is the sum of water users and the availability is 푎푣푎𝑖푙푎푏𝑖푙𝑖푡푦 푄푟푒푓 represented by a reference flow (Q7.10, minimum 7-day duration flow with a 10-year return period) ** IQA; http://pnqa.ana.gov.br/indicadores-indice-aguas.aspx

2.3 Emergency actions established to mitigate the impact on public water supply Data and information from processes no. 5044954-73.2019.8.13.0024, 5087481- 40.2019.8.13.0024 and 5026408-67.2019.8.13.0024, which run at the 2nd Public Treasury and Autarchies Court of Belo Horizonte, were used as research material. The emergency actions were presented in chronological order, and evaluated from the perspective of reducing the risks associated with public water supply (Section 2.2).

3 RESULTS

3.1 Risks associated with water supply The area upstream of Velhas River abstraction section is characterized by large and continuous portions of natural vegetation, occupying 648 km² or 38.6% of the basin (Figure 4). In the Paraopeba, the area upstream of the water supply sources is dominated by anthropic uses such as pasture and agriculture, representing about 3,835 km² or 67.6% of the basin. In the catchments that contribute to the Rio Manso, Serra Azul and Vargem das Flores systems, the predominant occupation around the reservoirs is forest. However, the main land use in the catchments is pasture in the first two systems (48.7% and 45.6% of the basins, respectively). The preserved areas around the reservoirs (12,200 ha) are owned by the water supply utility. It is also worth mentioning that the watershed between the Rio Manso and Serra Azul basins is an important mining area of Minas Gerais state, and therefore a stress factor to water quantity and quality. In the Vargem das Flores system, urbanization is the main stressor factor within the basin. The urban areas occupy 29.5 km² or 24.4% of the catchment, being characterized by the presence of densely anthropized neighborhoods in the municipalities of and .

Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

The water stress indices (Ieh; Table 1) of RMBH water supply systems are depicted in Table 2 and the water users represented in Figure 5. The prevailing condition of poor and medium IQA (Figure 6) demonstrates that raw sewage dumping into the rivers is an important pressure factor in the region. Figure 4 - Characterization of land use and occupation within the RMBH. Source: the authors.

Table 2 – Water stress indices (Ieh; last column) within the RMBH supply systems. Source: the authors.

Water supply Drainage Area Number of water Q7,10 Authorized flow Water stress 2 3 3 source (Km ) users (m /s) (m /s) index (Ieh) Rio Manso system 617 199 1.96 0.228 11.63% Serra Azul system 281 162 0.5 0.116 23.20% Vargem das Flores 121 31 0.36 0.149 41.39% system Rio Paraopeba 3973 1427 18.04 12.91 71.56% system Rio das Velhas 1682,5 337 11.46 10.39 90.66% system

Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

Figure 5 - Water users upstream of RMBH supply systems. Source: the authors.

Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

Figure 6 - Water quality at the monitoring points. Source: the authors.

The tailings dams located upstream of each RMBH supply source were identified and quantified. The corresponding stability condition was evaluated according to the independent audit of the entrepreneur (Table 3; Figure 7). Table 3 - Condition of tailings dams in RMBH supply systems. Source: the authors.

Number of upstream Guaranteed Stability not Water supply source tailings dams stability guaranteed

Rio Manso system 38 37 1 Serra Azul system 19 19 0 Vargem das Flores system 0 0 0 Rio Paraopeba system 102 100 2 Rio das Velhas system 62 49 13

Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

Figure 7 - Tailings dams and stability condition. Source: the authors.

The systematization of stressors for an integrated evaluation of the risk to water security in the RMBH supply systems is presented in Table 4. Table 4 - Integrated analysis of stressors in the RMBH supply system. N.a. – not assessed because monitoring stations are lacking. Source: the authors. % of the area Water Number of tailing Water supply Water stress without natural quality dams upstream of the source index, 퐈 vegetation cover 퐞퐡 index, IQA water source Rio Manso 58.4 74.5 11.63% 38 system (average) Serra Azul 65.6 23.20% n.a. 19 system Vargem das 60.1 41.39% n.a. 0 Flores system Rio Paraopeba 78.8 71.56% 49.1 (low) 102 system Rio das 55.6 61.2 90.66% 62 Velhas system (average)

The Rio Paraopeba system is in the most critical condition, because the status of three among four stressors are the worst within the RMBH, namely the number of tailing dams upstream the water sources, the area without natural vegetation cover and the water quality. The Rio das Velhas system is stressed by the highest Ih and the second highest number of tailing dams upstream the abstraction point.

Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

The Rio Manso system is preoccupying because 74.5% of the contributing area lacks natural vegetation cover. The Vargem das Flores system has a lower risk condition, since it has no upstream tailing dams and the Ih = 41.39%. However, the natural vegetation cover may be affected by urban expansion following a recent change in the master plan of Contagem municipality. 3.2 Emergency actions established to mitigate the impact on public supply After the dam rupture in Brumadinho, it was necessary to undertake several measures in order to minimize the impacts and damages caused by the disaster in the public water supply system. Intense extrajudicial negotiations were established and, on July 8, 2019, a Term of Commitment (“Water TAC”) was signed between the Public Prosecutor's Office of Minas Gerais (MPMG) and Vale S.A., with the intervention of Minas Gerais State, COPASA and the Federal Public Prosecutor's Office. In addition, an independent audit has begun to monitor the volume of water stored in the reservoirs of RMBH, to assess the need to adopt measures to promote consumption reduction and to permit rotation to water withdrawal among water users, except for drinking water and/or water rationing. On October 21, 2019, an additive agreement to the "Water TAC" was signed to account for other emergency measures, such as the drilling of about 50 artesian wells to supply approximately 40 essential clients (hospitals, universities and prisons, among others) and the reactivation of COPASA’s wells located in municipalities of the RMBH North Vector. On February 7, 2020, a new agreement was signed that foresees the elaboration of technical- environmental feasibility studies and subsequent implementation of structural engineering projects that aim to fulfill the current water demand of RMBH (15 m3/s). Through this agreement, Vale S.A. will fund and build: (1) a water supply source and reservoir in the Ribeirão da Prata with a minimum flow rate of 0.6 m3/s; (2) a water supply source (abstraction site) and reservoir in the region called "Ponte de Arame", in the Velhas river, to ensure a minimum flow rate of 2.0 m3/s and the necessary operating flow rate also during dry periods; (3) a water supply source and reservoir with a minimum flow rate of 2.5 m3/s in the Ribeirão Macaúbas; (4) the expansion of the Rio Manso system between the current abstraction point and Morro Vermelho reservoir, including the Water Treatment Station - WTP, pipelines, pumping stations and power substation, in order to reach a nominal flow rate of 9.0 m3/s; and (5) an additional connecting pipeline between the Paraopeba river basin systems and the Rio das Velhas system, with a capacity of 3.2 m3/s. The new water supply sources are represented in Figure 8. The proposed measures, besides recovering the 5 m3/s by allocating a new source in the Paraopeba river, at a region not impacted by the tailings (upstream from the confluence with the Ribeirão Ferro-Carvão), will increase the production capacity of RMBH by at least 5.1 m3/s. The actions are to be implemented in two stages. The contingency stage involves the Ribeirão do Prata, Rio das Velhas and Ribeirão Macaúbas interventions. The second stage foresees the construction of reservoirs to regularize the flow in the Rio das Velhas ("Ponte de Arame") and Ribeirão Macaúbas. The reservoirs are technically necessary to reduce the water security risks, considering the above-mentioned condition of water stress in the Velhas and Paraopeba river basins. Finally, the proposal to build a connecting pipeline between the Paraopeba systems and the Rio das Velhas system allows generating redundancy within the systems. Currently, there is a pipeline, named "Blue Line", which allows the transference of water from the Rio das Velhas system to complement the Paraopeba systems up to 2 m3/s, but reversing the transference is not possible. This is a critical risk factor considering the existence of 62 tailings dams upstream the Rio das Velhas system. However, the proposed actions are restricted to infrastructure and therefore they increase water availability but do not cover conservation or protection measures to preserve or improve raw water quality.

Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

Figure 8 - Location of water supply sources included in the judicial measures. Source: the authors.

Conclusions

The rupture of Vale's dams in Brumadinho interrupted the water supply from the Paraopeba River and drew attention to the vulnerability status of RMBH's public supply system. It also called for the discussion about risk management policy for public water supply, in order to set up contingency plans and reduce the risks of shortage in the capital of Minas Gerais state and its metropolitan region. After ample and intensive negotiations, three agreements were signed between MPMG and Vale S.A. (“Water TAC”), with the intervention of the state of Minas Gerais and COPASA, which provide fundamental measures for guaranteeing the water supply to RMBH. However, the threats to RMBH's water supply system are still present. Currently, there are 221 tailings dams upstream of the water supply systems and 16 of these dams do not have a structural stability condition statement issued by an independent auditor, which is an important risk factor. The system's resilience depends on the implementation of large-scale works, such as the construction of reservoirs to regularize the flows of Velhas River and Ribeirão Macaúbas. It also depends on the construction of a transfer pipeline between the Paraopeba River basin systems and the Velhas River system. These measures are accounted for in the “Water TAC”. However, the improvements on infrastructure need to be complemented with measures to avoid the loss of productive capacity in the water supply sources. A few examples of good measures include the restoration (e.g., through reforestation) of important areas upstream the water supply sources for the sustainability of water quality and quantity in the medium and long terms, or the total recovery of Paraopeba river basin, heavily impacted by the disaster in Brumadinho.

Second International Conference « Water, Megacities and Global Change » Pre-Conference December 2021 7-11 December 2020

RMBH has been developing an intense and detailed regional development planning process since 2011, however pending conclusion and effective implementation. One relevant concept for the environmental protection of the region adopted in this planning process is the green and blue network, inspired by the "trame verte et bleue" adopted in France and other green and blue infrastructure strategies in other countries. All the basins that are strategic sources for the supply of water to RMBH have been specifically zoned, reflecting the metropolitan interest in protecting these areas. This planning process sought to reconcile local interests with those of water security on a regional scale (Nascimento et al., 2019). The recent water crisis experienced by southeastern Brazil between 2012 and 2015 has shown that educational actions can have a positive effect on demand management. In the RMBH, actions of this type have led to a reduction in consumption of about 15% of drinking water, although this policy was abandoned with the increase in annual precipitation and structural actions from 2016. Changes in the profile of water consumption based on technological improvement of the production process have also been noted in the agricultural and industrial sectors. There is a growing interest in alternative sources of water supply, in particular rainwater harvesting and the reuse of water to meet demands that do not require drinking water quality. The volumes provided by these sources are still small in RMBH, although in industry they are very significant. Recent simulations of rainwater harvesting for the city of Belo Horizonte suggest that it is possible to meet up to 15% of the supply demand with this source (Chaib et al, 2015; Chaib, 2016). Taken altogether, these experiences and evaluations open positive perspectives for increasing water security in a large and populated urban area, balancing supply management with demand management actions.

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