Scenario Earthquakes for Urban Areas Along the Atlantic Seaboard of the United States: Conclusions
The current efforts in the eastern U.S., including New York City, to start the enforcement of seismic building codes for new constructions are important first steps in the right direction. Similarly, the emerging efforts to include seismic rehabilitation strategies in the generally needed overhaul of the cities’ aged infrastructures such as bridges, water, sewer, power and transportation is commendable and needs to be pursued with diligence and persistence. But at the current pace of new construction replacing older buildings and lifelines, it will take many decades or a century before a major fraction of the stock of built assets will become seismically more resilient than the current inventory is. For some time, this leaves society exposed to very high seismic risks. The only consolation is that seismicity on average is low, and, hence with some luck, the earthquakes will not outpace any ongoing efforts to make eastern cities more earthquake resilient gradually. Nevertheless, M = 5 to M = 6 earthquakes at distances of tens of km must be considered a credible risk at almost any time for cities like Boston, New York or Philadelphia. M = 7 events, while possible, are much less likely; and in many respects, even if building codes will have affected the resilience of a future improved building stock, M = 7 events would cause virtually unmanageable situations. Given these bleak prospects, it will be necessary to focus on crucial elements such as maintaining access to cities by strengthening critical bridges, improving the structural and nonstructural performance of hospitals, and having a nationally supported plan how to assist a devastated region in case of a truly severe earthquake. No realistic and coordinated planning of this sort exists at this time for most eastern cities.
The current efforts by the Federal Emergency Management Administration (FEMA) via the National Institute of Building Sciences (NIBS) to provide a standard methodology (RMS, 1994) and planning tools for making systematic, computerized loss estimates for annualized probabilistic calculations as well as for individual scenario events, is commendable. But these new tools provide only a shell with little regional data content. What is needed are the detailed data bases on inventory of buildings and lifelines with their locally specific seismic fragility properties. Similar data are needed for hospitals, shelters, firehouses, police stations and other emergency service providers. Moreover, the soil and rock conditions which control the shaking and soil liquefaction properties for any given event, need to be systematically compiled into Geographical Information System (GIS) data bases so they can be combined with the inventory of built assets for quantitative loss and impact estimates. Even under the best of conceivable funding conditions, it will take years before such data bases can be established so they will be sufficiently reliable and detailed to perform realistic and credible loss scenarios. Without such planning tools, society will remain in the dark as to what it may encounter from a future major eastern earthquake. Given these uncertainties, and despite them, both the public and private sector must develop at least some basic concepts for contingency plans. For instance, the New York City financial service industry, from banks to the stock and bond markets and beyond, ought to consider operational contingency planning, first in terms of strengthening their operational facilities, but also for temporary backup operations until operations in the designated facilities can return to some measure of normalcy. The Federal Reserve in its oversight function for this industry needs to take a hard look at this situation.
A society, whose economy depends increasingly so crucially on rapid exchange of vast quantities of information must become concerned with strengthening its communication facilities together with the facilities into which the information is channeled. In principle, the availability of satellite communication (especially if self-powered) with direct up and down links, provides here an opportunity that is potentially a great advantage over distributed buried networks. Distributed networks for transportation, power, gas, water, sewer and cabled communication will be expensive to harden (or restore after an event).
In all future instances of major capital spending on buildings and urban infrastructures, the incorporation of seismically resilient design principles at all stages of realization will be the most effective way to reduce society’s exposure to high seismic risks. To achieve this, all levels of government need to utilize legislative and regulatory options; insurance industries need to build economic incentives for seismic safety features into their insurance policy offerings; and the private sector, through trade and professional organizations’ planning efforts, needs to develop a healthy self-protective stand. Also, the insurance industry needs to invest more aggressively into broadly based research activities with the objective to quantify the seismic hazards, the exposed assets and their seismic fragilities much more accurately than currently possible. Only together these combined measures may first help to quantify and then reduce our currently untenably large seismic risk exposures in the virtually unprepared eastern cities. Given the low-probability/high-impact situation in this part of the country, seismic safety planning needs to be woven into both the regular capital spending and daily operational procedures. Without it we must be prepared to see little progress. Unless we succeed to build seismic safety considerations into everyday decision making as a normal procedure of doing business, society will lose the race against the unstoppable forces of nature. While we never can entirely win this race, we can succeed in converting unmitigated catastrophes into manageable disasters, or better, tolerable natural events.