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Practical Lessons from the Loma Prieta Earthquake: Report from a Symposium Sponsored by the Geotechnical Board and the Board on Natural Disasters of the National Research Council
PRACTICAL LESSONS FROM THE LOMA PRIETA EARTHQUAKE
Report from a Symposium Sponsored by the Geotechnical Board and the Board on Natural Disasters of the National Research Council
Symposium Held in Conjunction with the Earthquake Engineering Research Institute
Geotechnical Board Commission on Engineering and Technical Systems
Board on Natural Disasters Commission on Engineering and Technical Systems and
Commission on Geosciences, Environment, and Resources
National Research Council
NATIONAL ACADEMY PRESS
Washington, D.C.
1994
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Practical Lessons from the Loma Prieta Earthquake: Report from a Symposium Sponsored by the Geotechnical Board and the Board on Natural Disasters of the National Research Council
NOTICE: The project that is the subject of this report was approved by the Governing Board of the National Research Council, whose members are drawn from the councils of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine. The members of the panel responsible for this report were chosen for their special expertise and with regard for appropriate balance between government, industry, and academia.
This report has been reviewed by a group other than the authors according to procedures approved by a Report Review Committee consisting of members of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine.
The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. On the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Bruce M. Alberts is president of the National Academy of Sciences.
The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. Robert M. White is president of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of the appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an advisor to the federal government and, upon its own initiative, to identify issues of medical care, research, and education. Dr. Kenneth I. Shine is president of the Institute of Medicine.
The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy's purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Bruce M. Alberts and Dr. Robert M. White are chairman and vice-chairman, respectively, of the National Research Council.
SPONSORS: The U.S. Department of the Interior, the U.S. Geological Survey, under Agreement No. 1434-92-A-1091, provided support to the National Research Council for this project. The National Science Foundation, Federal Emergency Management Agency, and National Institute of Standards and Technology provided support for the symposium through the Earthquake Engineering Research Institute.
Library of Congress Catalog Card Number 94-66357
International Standard Book Number 0-309-05030-8
B-275
Copyright 1994 by the National Academy of Sciences. All rights reserved.
Printed in the United States of America
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Practical Lessons from the Loma Prieta Earthquake: Report from a Symposium Sponsored by the Geotechnical Board and the Board on Natural Disasters of the National Research Council
COMMITTEE FOR THE SYMPOSIUM ON PRACTICAL LESSONS FROM THE LOMA PRIETA EARTHQUAKE
MEMBERS
LLOYD S. CLUFF, Chair,
Pacific Gas and Electric Company, San Francisco, California
CLARENCE R. ALLEN,
California Institute of Technology, Pasadena
THOMAS R. BECKHAM,
South Carolina Emergency Preparedness Division, Columbia
IAN G. BUCKLE,
State University of New York, Buffalo
WILFRED D. IWAN,
California Institute of Technology, Pasadena
SHIRLEY MATTINGLY,
City of Los Angeles, California
ROBIN K. MCGUIRE,
Risk Engineering, Inc., Golden, Colorado
CHRIS D. POLAND,
H.J. Degenkolb Associates, San Francisco, California
DENNIS E. WENGER,
Texas A&M University, College Station
T. LESLIE YOUD,
Brigham Young University, Provo, Utah
LIAISON REPRESENTATIVES
Geotechnical Board
JAMES K. MITCHELL, Chair,
University of California, Berkeley
Earthquake Engineering Research Institute
PAUL SOMERVILLE,
Woodward-Clyde Consultants, Pasadena, California
SUPPORTING AGENCIES
WILLIAM ANDERSON,
National Science Foundation, Washington, D.C.
WILLIAM BAKUN,
U.S. Geological Survey, Menlo Park, California
GARY JOHNSON,
Federal Emergency Management Agency, Washington, D.C.
RANDALL G. UPDIKE,
U.S. Geological Survey, Reston, Virginia
ROBERT WESSON,
U.S. Geological Survey, Reston, Virginia
RICHARD WRIGHT,
National Institute of Standards and Technology, Gaithersburg, Maryland
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Practical Lessons from the Loma Prieta Earthquake: Report from a Symposium Sponsored by the Geotechnical Board and the Board on Natural Disasters of the National Research Council
GEOTECHNICAL BOARD
MEMBERS
JAMES K. MITCHELL, Chair,
University of California, Berkeley
CLARENCE R. ALLEN,
California Institute of Technology, Pasadena
JOAN Z. BERNSTEIN,
Waste Management, Inc., Oak Brook, Illinois
DAVID E. DANIEL,
University of Texas, Austin
WILLIAM S. GARDNER,
W.S. Gardner and Associates, Blue Bell, Pennsylvania
JAMES P. GOULD,
Mueser Rutledge Consulting Engineers, New York, New York
FRANÇOIS E. HEUZE,
Lawrence Livermore National Laboratory, Livermore, California
CHARLES C. LADD,
Massachusetts Institute of Technology, Cambridge
JAMES D. MURFF,
Exxon Production Research Company, Houston, Texas
SHLOMO P. NEUMAN,
The University of Arizona, Tucson
THOMAS D. O'ROURKE,
Cornell University, Ithaca, New York
REUBEN SAMUELS,
Parsons Brinckerhoff, New York, New York
ROBERT L. SCHUSTER,
U.S. Geological Survey, Denver, Colorado
DON W. STEEPLES,
The University of Kansas, Lawrence
STAFF
MAHADEVAN MANI, Director,
Division on Infrastructure, Energy and Environmental Engineering
PETER H. SMEALLIE, Director,
Geotechnical Board (1990 through 1993)
JENNIFER T. ESTEP, Administrative Assistant
AMELIA B. MATHIS, Senior Secretary/Project Assistant
BROOK WILLIAMS, Assistant to Project (through January 1993)
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Practical Lessons from the Loma Prieta Earthquake: Report from a Symposium Sponsored by the Geotechnical Board and the Board on Natural Disasters of the National Research Council
BOARD ON NATURAL DISASTERS
MEMBERS
WALTER LYNN, Chair,
Cornell University, Ithaca, New York
MARY B. ANDERSON,
Collaborative for Development Action, Cambridge, Massachusetts
ALAN G. DAVENPORT,
University of Western Ontario, London
RICHARD FISKE,
Smithsonian Institution, Washington, D.C.
ROBERT D. HANSON,
University of Michigan, Ann Arbor
WILFRED D. IWAN,
California Institute of Technology, Pasadena
LUCILE M. JONES,
U.S. Geological Survey, Pasadena, California
LESTER B. LAVE,
Carnegie Mellon University, Pittsburgh, Pennsylvania
SHIRLEY MATTINGLY,
City of Los Angeles, California
ROBERT L. ODMAN,
State Farm Fire and Casualty Company, Bloomington, Illinois
E.L. QUARANTELLI,
University of Delaware, Newark
LACY E. SUITER,
Tennessee Emergency Management Association, Nashville
STAFF
CAROLINE CLARKE GUARNIZO, Director
ROBIN L. ALLEN, Senior Project Assistant
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Practical Lessons from the Loma Prieta Earthquake: Report from a Symposium Sponsored by the Geotechnical Board and the Board on Natural Disasters of the National Research Council
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Practical Lessons from the Loma Prieta Earthquake: Report from a Symposium Sponsored by the Geotechnical Board and the Board on Natural Disasters of the National Research Council
Preface
The Loma Prieta earthquake struck the San Francisco area on October 17, 1989, causing the loss of 63 lives and $10 billion of damage. As the results of the research, conducted in response to the earthquake, became known over the following three years, the U.S. Geological Survey, the sponsor of much of the research, approached the National Research Council (NRC) about how the results of the Loma Prieta earthquake research could be applied to other earthquake-prone areas of the country.
The NRC's Geotechnical Board and Board on Natural Disasters formed a committee, under the auspices of the NRC, to plan a major symposium on lessons learned from research and related activities conducted on the Loma Prieta earthquake. The Committee on Practical Lessons from the Loma Prieta Earthquake, chaired by Lloyd Cluff, accepted the responsibility to develop the symposium agenda, invite the speakers, review the keynote papers, and coordinate activities with the Earthquake Engineering Research Institute, which was responsible for managing the symposium and inviting symposium participants. The Symposium on Practical Lessons from the Loma Prieta Earthquake took place in San Francisco on March 22-23, 1993, and was attended by over 400 individuals.
The committee also agreed to develop these proceedings, which consist of six keynote papers solicited by the committee for the major sessions of the symposium: Geotechnical; Buildings; Emergency Preparedness and Response; Lifelines; Highway Bridges; and Recovery, Mitigation, and Planning. Selected remarks by panels of discussants on the applicability to other areas of the country of each keynoter's lessons are included following each keynote paper. The
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Practical Lessons from the Loma Prieta Earthquake: Report from a Symposium Sponsored by the Geotechnical Board and the Board on Natural Disasters of the National Research Council
report also contains the opening keynote presentation by L. Thomas Tobin, the Executive Director of the California Seismic Safety Commission.
Drawing on the keynote papers and discussions at the symposium, an overview chapter has been written by the committee to present its summary of the principal lessons learned from the Loma Prieta earthquake. The overview contains, in addition, recommendations the committee believes are appropriate to improve seismic safety and earthquake awareness in areas of the country vulnerable to earthquakes but not as well-prepared as California.
The Geotechnical Board and the Board on Natural Disasters wish to thank the Earthquake Engineering Research Institute for its cooperation in planning and conducting the symposium. The boards also acknowledge the generous contributions of time and thought donated by all the speakers, discussants, and participants at the symposium.
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Practical Lessons from the Loma Prieta Earthquake: Report from a Symposium Sponsored by the Geotechnical Board and the Board on Natural Disasters of the National Research Council
Contents
OVERVIEW: LESSONS AND RECOMMENDATIONS FROM THE COMMITTEE FOR THE SYMPOSIUM ON PRACTICAL LESSONS FROM THE LOMA PRIETA EARTHQUAKE
1
General Observations
4
Earth Sciences
5
Geotechnical and Structural Engineering
6
Planning and Emergency Response
12
Note on Supporting Sources
17
1.
LEGACY OF THE LOMA PRIETA EARTHQUAKE: CHALLENGES TO OTHER COMMUNITIES
L. Thomas Tobin
19
Introduction
19
The Need to Reach Out
20
The Need for Sustained Advocacy
20
Irreversible Change
23
Rome Wasn't Built in a Day
24
If You Can't Do It Right, Don't Do It
25
The Ability to Predict Damage
26
Conclusion
27
2.
THE GEOTECHNICAL ASPECTS
G. Wayne Clough, James R. Martin, II, and Jean Lou Chameau
29
Introduction
29
Overview
30
Liquefaction
32
Site Amplification and Response Spectra
41
Slopes, Fills, and Embankments
44
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Practical Lessons from the Loma Prieta Earthquake: Report from a Symposium Sponsored by the Geotechnical Board and the Board on Natural Disasters of the National Research Council
Waterfront Containment Structures, Piers, and Lateral Retaining Structures
51
Foundations
52
Tunnels and Underground Structures
54
Lessons Learned from the Geotechnical Aspects of the Loma Prieta Earthquake
57
Acknowledgements
60
References
60
Discussants' Comments: Geotechnical Issues
William Cotton, Maurice S. Power, Thomas Hanks, C. Thomas Statton
64
3.
BUILDINGS
Paul F. Fratessa
69
Introduction
70
Methodology
72
The Role of Research in the Practical Lessons Process
73
The Role of Observations in the Practical Lessons Process
75
Principal Findings
76
Conclusions
94
Closure
97
Cited References
98
General References
99
Documents
99
Discussants' Comments: Buildings Session
James Beavers, Stephen Mahin, Gerald Jones, William Holmes
100
4.
EMERGENCY PREPAREDNESS AND RESPONSE
Kathleen J. Tierney
105
Introduction
105
Overview of Preparedness and Response Studies
105
How the Public Responded in Loma Prieta: Individual and Household Responses
107
Response of Groups, Organizations, and Interorganizational Networks
113
Concluding Comments
124
Acknowledgements
125
References
125
Discussants' Comments: Emergency Preparedness and Response
Henry Renteria, Richard D. Ross, Richard Andrews, Lacy Suiter
129
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5.
LIFELINE PERSPECTIVE
Ronald T. Eguchi and Hope A. Seligson
135
Abstract
135
Introduction
135
Lifeline System Performance during the 1989 Loma Prieta Earthquake
137
Research Activities Initiated after the Earthquake
143
Transferability of Results
154
Future Research Directions
156
References
158
Discussants' Comments: Lifelines
Thomas D. O'Rourke, Donald Ballantyne, Charles R. Roberts, Steve Phillips
160
6.
HIGHWAY BRIDGES
James E. Roberts
165
Introduction
165
Performance of Prior Research Results
167
Problems with Existing Criteria, Details, and Practice
169
Research in Seismic Response of Bridges
173
Practical Lessons Applicable to Other Areas and States
197
Cited References
201
General References
206
Commissioned Research Projects
209
Discussants' Comments: Bridges
James D. Cooper, Gregoy Orsolini, Nicholas F. Forell, John Clark
213
7.
RECOVERY, MITIGATION, AND PLANNING
George G. Mader
219
Funding
220
Recovery Plans and Regulations
222
Mitigation
225
Importance of State Legislation
226
Demolition
228
Housing
229
Business Recovery
230
Conclusions
232
References
233
Discussants' Comments: Recovery, Mitigation, and Planning
Kenneth C. Topping, Patricia A. Bolton, Jerold H. Barnes
234
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Practical Lessons from the Loma Prieta Earthquake: Report from a Symposium Sponsored by the Geotechnical Board and the Board on Natural Disasters of the National Research Council
APPENDIXES
A. Symposium Presenters
241
B. Symposium Agenda
245
C. Attendees at the Symposium
249
D. Biographical Sketches of the Members of the Committee on Practical Lessons from the Loma Prieta Earthquake
271
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PRACTICAL LESSONS FROM THE LOMA PRIETA EARTHQUAKE
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