Re s i l i e n c e by D e s i g n

1

Re s i l i e n c e by D e s i g n

M y Fe l l ow A n g e l e n o s : A s M a yo r, I h a ve n o g re a te r re s p o n s i b i l i t y t h a n t h e p u b l i c s a fe t y o f Lo s A n g e l e s . A n d h e re i n o u r c i t y, i t ’s n o t a q u e s t i o n o f i f t h e s o - c a l l e d “ B i g O n e ” w i l l h i t. I t ’s a m a t te r o f w h e n . S o we c a n n o t a f fo rd to b e c o m p l a c e n t. T h e k n ow n r i s k s – to l i fe , p ro p e r t y a n d o u r ove ra l l e c o n o my – a re to o g re a t. Lo s A n g e l e s h a s a l w a y s b e e n a n e p i c e n te r o f s e i s m i c r i s k . N ow, t h e a c t i o n s te p s i n t h i s re p o r t w i l l m a ke o u r c i t y a n a t i o n - l e a d i n g e p i c e n te r o f s e i s m i c p re p a re d n e s s , re s i l i e n c e , a n d s a fe t y. T h i s p a c ka g e o f a c t i o n s te p s re p re s e n t s a te c to n i c s h i f t o f h ow e a r t h q u a ke p o l i c y i s m a d e i n Lo s A n g e l e s . To t h i s p o i n t, e a r t h q u a ke p o l i c y h a s m o re o f te n t h a n n o t b e e n d eve l o p e d i n t h e i m m e d i a te a f te r m a t h o f a m a j o r e a r t h q u a ke . A n d eve n t h e n , m o m e n t u m q u i c k l y d i e d o u t, l e a v i n g g ra ve v u l n e ra b i l i t i e s b e h i n d . To d a y, Lo s A n g e l e s i s a d d re s s i n g o u r g re a te s t e a r t h q u a ke v u l n e ra b i l i t i e s p ro a c t i ve l y a n d s t ra te g i c a l l y. I h a ve s e t a c l e a r a g e n d a fo r my Ad m i n i s t ra t i o n – to g e t C i t y H a l l “ b a c k to b a s i c s ” a n d to fo c u s C i t y g ove r n m e n t o n o u r c o re re s p o n s i b i l i t i e s . U n fo r t u n a te l y, h e re i n e a r t h q u a ke c o u n t r y, t h o s e re s p o n s i b i l i t i e s h a ve b e e n p u t to t h e wa y s i d e fo r fa r to o l o n g . T h a t ’s w hy I a p p o i n te d re n ow n e d s e i s m o l o g i s t D r. L u c y J o n e s a s my S c i e n c e Ad v i s o r fo r S e i s m i c S a fe t y. T h ro u g h a n u n p re c e d e n te d p a r t n e rs h i p w i t h t h e U. S . G e o l o g i c a l S u r ve y, s h e h a s s p e n t t h e l a s t ye a r s t u d y i n g o u r v u l n e ra b i l i t i e s ; c o nve n i n g s ta ke h o l d e rs a n d ex p e r t s f ro m a c a d e m i a , i n d u s t r y, b u s i n e s s , g ove r n m e n t a n d o u r c o m m u n i t i e s ; a n d d eve l o p i n g t h i s a c t i o n p l a n . T h e o u tc o m e o f t h i s ex te n s i ve p ro c e s s , w h i c h a l s o i n c o r p o ra te s c u t t i n g e d g e re s e a rc h a n d l e s s o n s l e a r n e d f ro m p a s t e a r t h q u a ke s , i s t h a t we a re fo c u s i n g o n t h re e m a j o r s e c to rs : fo r t i f y i n g o u r b u i l d i n g s , fo r t i f y i n g o u r wa te r s y s te m a n d fo r t i f y i n g o u r te l e c o m m u n i c a t i o n s n e t wo r k s . T i e d to g e t h e r, t h e s e a c t i o n s w i l l s t re n g t h e n re s i l i e n c e i n o u r c i t y fo r d e c a d e s to come. T h e s e a c t i o n s te p s a re d e s i g n e d to b e b e s t- i n - c l a s s a n d a c h i ev a b l e . T h i s i s n o t i n te n d e d to s i m p l y b e t h e l a te s t “ b l u e r i b b o n c o m m i s s i o n ” re p o r t t h a t s i t s o n a s h e l f. I t ’s d e s i g n e d s o t h a t g ove r n m e n t, p ro p e r t y ow n e rs , a n d c o m m e rc i a l a n d re s i d e n t i a l te n a n t s c a n c o m e to g e t h e r to s t re n g t h e n Lo s A n g e l e s a g a i n s t a k n ow n a n d m a j o r t h re a t to l i fe , p ro p e r t y, a n d o u r e c o n o my. T h i s re p o r t re p re s e n t s a f u l l ye a r o f wo r k by d oze n s o f p e o p l e u n d e r t h e l e a d e rs h i p o f D r. J o n e s . I t i s w i t h t h e d e e p e s t g ra t i t u d e to t h e m t h a t I p re s e n t “ Re s i l i e n c e by D e s i g n . ” S i n c e re l y,

ERIC GARCETTI M a yo r

Executive Summary

R e s i l i e n c e b y D e s i g n p re s e n t s t h e re c o m m e n d a t i o n s o f t h e M a yo ra l S e i s m i c S a fe t y Ta s k Fo rc e , t h e m e m b e rs o f w h i c h a re l i s te d i n t h e Ac k n ow l e d g e m e n t s S e c t i o n o f t h i s d o c u m e n t.

These

re c o m m e n d a t i o n s a d d re s s t h e c i t y ’s g re a te s t v u l n e ra b i l i t i e s f ro m e a r t h q u a k e s w i t h s i g n i f i c a n t a n d a t ta i n a b l e s o l u t i o n s to :

• • • •

P ro te c t t h e l i ve s o f o u r re s i d e n t s I m p rove t h e c a p a c i t y o f t h e C i t y to re s p o n d to e a r t h q u a k e s P re p a re t h e C i t y to re c ove r q u i c k l y f ro m e a r t h q u a k e s P ro te c t t h e e c o n o my o f t h e C i t y a n d a l l o f S o u t h e r n C a l i fo r n i a .

The Mayoral Seismic Task Force evaluated four areas of seismic vulnerability, namely: • • • •

P re -1 9 8 0 “ n o n - d u c t i l e re i n fo rc e d c o n c re te ” b u i l d i n g s P re -1 9 8 0 “ s o f t- f i rs t- s to r y ” b u i l d i n g s Wa te r s y s te m i n f ra s t r u c t u re ( i n c l u d i n g i m p a c t o n f i re f i g h t i n g c a p a b i l i t y) Te l e c o m m u n i c a t i o n s i n f ra s t r u c t u re

4

Strengthen Our Buildings

T h e m o s t o bv i o u s t h re a t f ro m e a r t h q u a k e s i s p hy s i c a l d a m a g e to v u l n e ra b l e b u i l d i n g s . S o f t s to r y a n d c o n c re te b u i l d i n g s b u i l t b e fo re t h e i m p l e m e n ta t i o n o f Lo s A n g e l e s ’ 1 976 rev i s i o n o f t h e b u i l d i n g c o d e p o s e a s i g n i f i c a n t r i s k to l i fe i n s t ro n g e a r t h q u a k e shaking.

5

6

Strengthen Our Buildings

Assess And Retrofit Pre-1980 Soft Story And Concrete Buildings T h i s re p o r t re c o m m e n d s t h a t t h e s e b u i l d i n g s b e a s s e s s e d a n d re t ro f i t te d a s n e c e s s a r y :

Soft Story S o f t s to r y b u i l d i n g s a re wo o d f ra m e b u i l d i n g s w h e re t h e f i rs t f l o o r h a s l a rg e o p e n i n g s , fo r ex a m p l e t u c k - u n d e r p a r k i n g , g a ra g e d o o rs , a n d re ta i l d i s p l a y w i n d ow s . T h i s R e p o r t re c o m m e n d s t h a t b u i l d i n g ow n e rs b e re q u i re d to , w i t h i n o n e ye a r o f p a s s a g e o f t h e i m p l e m e n t i n g l e g i s l a t i o n , s u b m i t to t h e C i t y d o c u m e n ta t i o n e s ta b l i s h i n g t h a t a n a c c e p ta b l e re t ro f i t h a s a l re a d y b e e n c o n d u c te d , o r t h a t a re t ro f i t i s re q u i re d . I t i s f u r t h e r re c o m m e n d e d t h a t re t ro f i t t i n g b e re q u i re d s o t h a t f i rs t f l o o rs a re s t re n g t h e n e d to t h e s a m e c a p a c i t y a s s e c o n d f l o o rs w i t h i n f i ve ye a rs .

Concrete “ N o n - d u c t i l e re i n fo rc e d c o n c re te ” b u i l d i n g s ( m o s t c o n c re te b u i l d i n g s b u i l t b e fo re t h e i m p l e m e n ta t i o n o f t h e 1 976 c o d e) a re a t h i g h e r r i s k o f c o l l a p s e , b e c a u s e s o m e p a r t s o f t h e b u i l d i n g s u c h a s c o l u m n s a n d f ra m e c o n n e c to rs a re to o b r i t t l e a n d b re a k i n s t ro n g s h a k i n g . T h e w e i g h t o f t h e c o n c re te m a k e s t h e m p a r t i c u l a r l y d e a d l y w h e n t h e y fa i l .T h i s R e p o r t re c o m m e n d s t h a t b u i l d i n g ow n e rs b e re q u i re d to , w i t h i n f i ve ye a rs o f p a s s a g e o f t h e i m p l e m e n t i n g l e g i s l a t i o n , s u b m i t to t h e C i t y d o c u m e n ta t i o n e s ta b l i s h i n g t h a t a n a c c e p ta b l e re t ro f i t h a s a l re a d y b e e n c o n d u c te d , o r t h a t a re tro f i t i s re q u i re d . I t i s f u r t h e r re c o m m e n d e d t h a t re t ro f i t t i n g b e m a n d a te d w i t h i n 2 5 ye a rs to e i t h e r t h e B a s i c S a fe t y O b j e c t i ve o f t h e A m e r i c a n S o c i e t y o f C i v i l E n g i n e e rs ( A S C E ) s ta n d a rd 4 1 o r to t h e e q u i v a l e n t s ta n d a rd i f o t h e r a p p ro a c h e s a re a p p rove d .

7

Strengthen Our Buildings

Implement a Seismic Safety Rating System O u r b u i l d i n g c o d e i s d e s i g n e d a ro u n d a l i fe - s a fe t y re q u i re m e n t t h a t m a n d a te s c o n s t r u c t i o n t h a t e n s u re s a l ow p ro b a b i l i t y o f c o l l a p s e i n t h e wo rs t e a r t h q u a k e . T h e c o d e i s n o t d e s i g n e d , h ow eve r, to m a k e i t s o b u i l d i n g s , w h i l e s t i l l s ta n d i n g , a re a l s o l i ke l y to re m a i n u s a b l e a f te r a n e a r t h q u a k e . T h i s re p o r t re c o m m e n d s a vo l u n ta r y ra t i n g s y s te m to e n c o u ra g e b u i l d i n g ow n e rs to i nve s t i n t h e re s i l i e n c e o f t h e i r b u i l d i n g s s o t h a t t h e y n o t o n l y s ta y s ta n d i n g a f te r a n e a r t h q u a k e , b u t s o t h a t t h e y a l s o re m a i n f u n c t i o n a l .

Create a Back To Business Program I n t h e a f te r m a t h o f a m a j o r e a r t h q u a k e , i t i s i m p o r ta n t t h a t o u r b u s i n e s s c o m m u n i t y i s a b l e to re b o u n d a s q u i c k l y a s p o s s i b l e to m i n i m i ze n e g a t i ve e c o n o m i c i m p a c t s a n d to p rov i d e re s i d e n t s a c c e s s to i m p o r ta n t g o o d s a n d s e r v i c e s . Fo l l ow i n g a m a j o r e a r t h q u a k e , h ow eve r, t h e C i t y ’s a b i l i t y to c e r t i f y b u i l d i n g s a s s a fe fo r u s e w i l l b e h a m p e re d by c i t y s e r v i c e s b e i n g fo c u s e d o n e m e rg e n c y re s p o n s e a n d by h i g h d e m a n d o n o u r c a d re o f b u i l d i n g i n s p e c to rs . D e p l oy i n g i n s p e c to rs f ro m o u t s i d e o f t h e c i t y t h ro u g h m u t u a l a i d a g re e m e n t s i s t i m e c o n s u m i n g . T h i s re p o r t re c o m m e n d s t h a t t h e C i t y d eve l o p a “ B a c k to B u s i n e s s ” p ro g ra m to ra p i d l y s u p p l e m e n t t h e c a p a c i t y o f t h e c i t y ’s b u i l d i n g i n s p e c t i o n fo rc e i n t h e eve n t o f a major earthquake.

Mandatory Retrofit of Buildings that are Excessively Damaged in Earthquakes M a n d a te re t ro f i t t i n g o f b u i l d i n g s t h a t i n c u r ex c e s s i ve d a m a g e i n a l ow l eve l o f earthquake shaking.

8

Fortify our Water System

T h e w a te r s y s te m i s t h e u t i l i t y m o s t v u l n e ra b l e to e a r t h q u a k e d a m a g e , a n d t h a t d a m a g e c o u l d b e t h e l a rg e s t c a u s e o f e c o n o m i c d i s r u p t i o n fo l l ow i n g a n e a r t h q u a k e . Po r t i o n s o f t h e s y s te m a re m o re t h a n a c e n t u r y o l d a n d v u l n e ra b l e to m a ny t y p e s o f d a m a g e . La c k o f w a te r wo u l d i m p e d e re c ove r y a n d t h e l o n g - te r m l o s s o f a w a te r s u p p l y c o u l d l e a d to b u s i n e s s fa i l u re a n d eve n m a s s ev a c u a t i o n . D eve l o p i n g a m o re re s i l i e n t w a te r s y s te m i s i m p e ra t i ve fo r t h e f u t u re o f Lo s A n g e l e s .

9

Fortify our Water System

T h i s re p o r t re c o m m e n d s t h e fo l l ow i n g a c t i o n s :

Develop an Alternative Water System For Firefighting C re a te a re s i l i e n t, re d u n d a n t a l te r n a t i ve w a te r s y s te m fo r f i re f i g h t i n g by u s i n g re c l a i m e d w a te r, p re s s u r i ze d s e a w a te r, s e i s m i c re s i l i e n t p i p e s a n d o t h e r m e t h o d s .

Fortify the Los Angeles Aqueduct Lo s A n g e l e s i s d e p e n d e n t o n i m p o r te d wa te r t h a t i s t ra n s p o r te d a c ro s s t h e S a n A n d re a s Fa u l t i n a q u e d u c t s . T h e re fo re , m i t i g a t i o n a l te r n a t i ve s fo r t h e Lo s A n g e l e s Aq u e d u c t c ro s s i n g t h e S a n A n d re a s Fa u l t s h o u l d b e i d e n t i f i e d a n d i m p l e m e n te d .

Fortify Other Aqueducts T h e c i t y i s d e p e n d e n t o n s eve ra l o t h e r a q u e d u c t s t h a t a re t h e re s p o n s i b i l i t y o f o u t s i d e a g e n c i e s w i t h w h o m w e m u s t c o o p e ra te to e n s u re o u r w a te r s u p p l y. T h e C i t y s h o u l d c re a te a S e i s m i c R e s i l i e n c e Wa te r S u p p l y Ta s k Fo rc e w i t h t h e DW P, C a l i fo r n i a M W D, a n d t h e DW R , i n a n e f fo r t to c re a te a c o l l a b o ra t i ve a n d re g i o n a l a p p ro a c h to p ro te c t i n g t h e re s i l i e n c y o f o u r w a te r s u p p l y.

Fortify Water Storage DW P d a m s m u s t b e m a i n ta i n e d a t a l eve l t h a t e n s u re s a re l i a b l e w a te r s u p p l y a n d p u b l i c s a fe t y i n t h e eve n t o f a n e a r t h q u a k e .

Increase Local Water Sources I n c re a s e d u s e o f l o c a l w a te r re d u c e s t h e r i s k p o s e d by re l i a n c e o n w a te r i m p o r te d v i a fa u l tc ro s s i n g a q u e d u c t s . I n i t i a t i ve s to i m p rove l o c a l w a te r s u p p l i e s t h ro u g h s to r m w a te r c a p t u re , wa te r c o n s e r v a t i o n , w a te r re c yc l i n g , a n d S a n Fe r n a n d o Va l l e y G ro u n d w a te r B a s i n c o n ta m i n a t i o n re m e d i a t i o n p rov i d e t h e b e s t p o s s i b l e p ro te c t i o n a n d s h o u l d b e s u p p o r te d a s f u n d a m e n ta l e a r t h q u a k e re s i l i e n c e m e a s u re s .

Create a Seismic Resilient Pipe Network T h e wa te r d i s t r i b u t i o n p i p e s t h a t c a r r y w a te r to o u r h o m e s a re v u l n e ra b l e to fa i l u re d u r i n g e a r t h q u a ke s , a n d l a rg e e a r t h q u a k e s t h a t c a u s e s h a k i n g ove r w i d e g e o g ra p h i c a re a s c a n c a u s e h u n d re d s o r t h o u s a n d s o f s i m u l ta n e o u s p i p e b re a k s . DW P s h o u l d c o m m i t to a f u t u re w a te r s y s te m t h a t u t i l i ze s s e i s m i c a l l y re s i l i e n t p i p e s . T h e l o n g - te r m g o a l s h o u l d b e to d o t h i s a c ro s s t h e C i t y. D u e t h e c o m p l ex i t y o f t h e w a te r s y s te m a n d t h e c o s t o f p i p e re p l a c e m e n t, t h i s w i l l b e a l o n g - te r m p ro j e c t t h a t b e g i n s i n s t ra te g i c a l l y c r i t i c a l a re a s s e r v i n g e s s e n t i a l fa c i l i t i e s a n d f i re f i g h t i n g n e e d s .

10

Implement a Resilience by Design Program at DWP L . A . ’s p ow e r a n d w a te r i n f ra s t r u c t u re i s i n c re d i b l y c o m p l ex a n d s u s c e p t i b l e to e a r t h q u a k e d a m a g e . T h e C i t y s h o u l d e s ta b l i s h a Re s i l i e n c e by D e s i g n P ro g ra m w i t h i n t h e DW P, c ove r i n g b o t h t h e p owe r a n d w a te r s y s te m s , w i t h re s o u rc e s a n d a u t h o r i t y to k e e p a n i n s t i t u t i o n a l e m p h a s i s o n s e i s m i c re s i l i e n c e a s a c o re f u n c t i o n o f t h e a g e n c y.

Develop a Statewide Seismic Resilience Bond Measure D eve l o p i n g a s t ro n g re s i l i e n c e e f fo r t i n a t i m e l y m a n n e r re q u i re s a n i nve s t m e n t g re a te r t h a n c u rre n t l y a v a i l a b l e b u d g e t a l l o c a t i o n s . T h e C i t y s h o u l d wo r k w i t h l o c a l , re g i o n a l , a n d s ta te p a r t n e rs to d eve l o p a s e i s m i c re s i l i e n c e b o n d m e a s u re to h e l p fo r t i f y o u r w a te r i n f ra s t r u c t u re a n d m a k e o t h e r c r i t i c a l i nve s t m e n t s .

11

Enhance Reliable Telecommunications

M o d e r n s o c i e t y a n d e c o n o m i c a c t i v i t y a re d e p e n d e n t o n te l e c o m m u n i c a t i o n s , i n c l u d i n g c e l l p h o n e s a n d I n te r n e t a c c e s s . T h e N o r t h r i d g e e a r t h q u a k e o c c u r re d p r i o r to t h e s e s e r v i c e s b e i n g w i d e l y a v a i l a b l e , s o w e d o n o t h a ve d i re c t ex p e r i e n c e w i t h t h e i r v u l n e ra b i l i t i e s . We c a n , h ow eve r, u s e t h e ex p e r i e n c e s i n o t h e r c o u n t r i e s a n d i n o t h e r d i s a s te rs to i n fo r m t h e e f fo r t s n e e d e d to p ro te c t v i ta l c o m m u n i c a t i o n s s y s te m s .

12

13

Telecommunications

T h i s re p o r t re c o m m e n d s i n i t i a t i ve s to :

Maintain Internet Access After Earthquakes To m i t i g a te s e r v i c e i m p a c t s a f te r a n e a r t h q u a k e , t h e C i t y s h o u l d p a r t n e r w i t h s e r v i c e p rov i d e rs to re m ove b a r r i e rs to b a n d w i t h a n d I n te r n e t a c c e s s d u r i n g e m e rg e n c i e s . U n d e r t h e s e a g re e m e n t s , s e r v i c e p rov i d e rs wo u l d , d u r i n g d e c l a re d d i s a s te rs , s h a re b a n d w i d t h a n d a l l ow f re e te m p o ra r y W i - F i a c c e s s i n p u b l i c l o c a t i o n s .

Protect the Power System at Fault Crossings O u r c e l l u l a r n e t wo r k i s v u l n e ra b l e to p ow e r o u ta g e s c a u s e d by e a r t h q u a k e s , a n d o u r e l e c t r i c g r i d i s a t h i g h r i s k c a u s e d by p ow e r l i n e s t h a t c ro s s t h e S a n A n d re a s Fa u l t. T h e C i t y s h o u l d c re a te a S o u t h e r n C a l i fo r n i a U t i l i t y R e s i l i e n c y C o n s o r t i u m to d eve l o p s o l u t i o n s fo r c a s c a d i n g fa i l u re s i n t h e i n te ra c t i n g u t i l i t i e s a s t h e y c ro s s t h e S a n A n d re a s fa u l t. T h e l i fe l i n e s b e l o n g to m a ny d i f fe re n t e n t i t i e s , p u b l i c a n d p r i v a te , t h a t w i l l n e e d to c o o p e ra te to f i n d s o l u t i o n s to t h e p ro b l e m s .

Create a Citywide Backup Internet System D eve l o p a s o l a r- p ow e re d C i t y w i d e W i - F i to p rov i d e re s i d e n t s w i t h a w a y to a c c e s s t h e I n te r n e t a t a t i m e w h e n t h e p r i m a r y s y s te m i s d i s r u p te d . T h i s l ow p ow e r s y s te m c o u l d a l s o s e r ve a s w a y to m a i n ta i n c o m m u n i c a t i o n t h ro u g h e m a i l a n d tex t i n g s h o u l d e l e c t r i c a l s y s te m fa i l u re s c a u s e o t h e r c o m m u n i c a t i o n s s y s te m s to fa i l .

Fortify Cellular Towers C e l l u l a r tow e rs a re d e s i g n e d a n d c o n s t r u c te d to l i fe - s a fe t y s ta n d a rd s , m e a n i n g t h a t t h e y a re d e s i g n e d to b e u n l i k e l y to c o l l a p s e , b u t n o t n e c e s s a r i l y b e f u n c t i o n a l fo l l ow i n g a n e a r t h q u a ke . T h e C i t y s h o u l d a m e n d i t s b u i l d i n g c o d e to re q u i re n e w f re e s ta n d i n g c e l l u l a r c o m m u n i c a t i o n tow e rs to b e b u i l t w i t h a n I m p o r ta n c e Fa c to r o f 1 . 5 . Ex i s t i n g tow e rs wo u l d n o t b e a f fe c te d .

Advancement of Earthquake Early Warning T h e C i t y o f Lo s A n g e l e s a n d t h e U. S . G e o l o g i c a l S u r ve y h a ve a g re e d to b e g i n i m p l e m e n ta t i o n o f e a r l y w a r n i n g i n S o u t h e r n C a l i fo r n i a w i t h p ro j e c t s w i t h t h e Lo s A n g e l e s F i re D e p a r t m e n t a n d t h e Lo s A n g e l e s U n i f i e d S c h o o l D i s t r i c t. T h i s p a r t n e rs h i p w i l l a l l ow t h e e a r l y w a r n i n g d eve l o p m e n t to eve n t u a l l y c re a te a b e t te r s y s te m fo r a l l o f C a l i fo r n i a a n d o t h e r s ta te s . T h e C i t y s h o u l d wo r k w i t h C o n g re s s i o n a l re p re s e n ta t i ve s to e n s u re a ro b u s t E a r t h q u a k e E a r l y Wa r n i n g s y s te m .

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