Preparing for the "Big One" -- Saving Lives Through Earthquake Mitigation in Los Angeles, CA

OVERVIEW OF EXISTING MITIGATION PROGRAMS

I. Introduction

All levels of government are involved in earthquake mitigation efforts. The Federal Government's strategy is two-pronged: the Federal EmergencyManagement Agency and other agencies fund and implement mitigation measures as one element of the Federal emergency response to an earthquake disaster, while the National Earthquake Hazards Reduction Program (NEHRP) focuses on federally sponsored research on earthquake hazard issues. On the State level, California is an active leader in earthquake preparedness. Local jurisdictions, including the City and County of Los Angeles, are also working aggressively to recover from the Northridge earthquake, but their mitigation activities have been slowed by funding problems and competing recovery needs.

II. National Earthquake Hazards Reduction Program (NEHRP)

NEHRP, established under the 1977 Earthquake Hazard Reduction Act, provides the foundation of research and code standards for Federal earthquake risk reduction efforts. It is a consortium of four agencies:

The Federal Emergency Management Agency (FEMA), the agency with primary responsibility for Federal disaster assistance, coordinates the NEHRP research agenda, and supports activities leading to the implementation of prudent earthquake risk reduction measures.

The U.S. Geological Survey (USGS) conducts the research necessary to characterize and identify earthquake hazards, assess risk, monitor seismic activity, and improve earthquake prediction.

The National Science Foundation (NSF) funds research on the causes and behavior of earthquakes, as well as on topics related to earthquake engineering and human responses to earthquakes.

The National Institute of Standards and Technology (NIST) undertakes a wide range of research and development activities designed to translate the wealth of theoretical knowledge, experimentation, and observation on earthquakes and their effects into building codes, engineering standards, and construction practices that will improve the seismic safety of structures and essential infrastructure systems.

Collectively, the four agencies received $93 million to fund NEHRP earthquake research activities in FY 1993.

In response to a request made to President Bill Clinton by nine members of the House of Representatives, the White House Office of Science and Technology Policy (OSTP) is currently conducting a comprehensive review of NEHRP that will explore the concerns voiced at the 1993 NEHRP reauthorization hearings. These topics include:

• Lack of an overall strategic plan for NEHRP.

• Insufficient coordination among the agencies to shape a unified, coherent program.

• Too little emphasis on research designed to determine how to mitigate earthquake damage.

Inadequate application of NEHRP research findings to policies, programs, and practices that will actually save lives and limit losses from earthquakes.

OSTP expects to complete and transmit to Congress a report that will review current Federal earthquake risk reduction efforts and recommend future activities.

III. Federal Earthquake Mitigation Efforts

Although a large number of Federal agencies participate in disaster relief and recovery efforts, FEMA provides most of the funds specifically intended to support mitigation. HUD, the Small Business Administration, and a handful of other Federal agencies have programs that include some mitigation activities as eligible uses; others play specialized supporting roles in the Federal effort through their regulatory and research functions.

Federal Emergency Management Agency (FEMA)

Working closely with Federal, State, local, and volunteer organizations, FEMA coordinates assistance programs designed to start disaster victims and their communities on the road to recovery. Mitigation assistance became a central element of this effort with the passage of the 1988 Robert T. Stafford Disaster Relief and Emergency Assistance Act. But while the Stafford Act expanded FEMA's hazard mitigation programs and activities, it explicitly linked their use in a particular locality to a presidential declaration of a major disaster. Thus FEMA's role in funding earthquake mitigation measures is primarily limited to post-disaster assistance.

FEMA administers three disaster assistance programs that can be used to support mitigation activities:

• FEMA's major mitigation initiative is the Hazard Mitigation Grants Program (HMGP), which funds improved seismic safety for undamaged buildings through activities identified by the locality in its required post-disaster hazard mitigation plan. FEMA will fund up to 75 percent of the eligible costs of each projectthe remainder must be raised from State or local sources. This matching requirement does not need to be met in cash; the value of in-kind services and donated materials may be applied as well. The level of HMGP grants made available in the disaster area cannot exceed 15 percent of the FEMA funds allocated through its Public Assistance and Individual Assistance programs (described below). FEMA also provides some support for pre-disaster efforts to state and local governments, but it only funds mitigation planning, rather than actual seismic upgrade and retrofit activities.

• The Public Assistance Program authorizes funding for the repair, restoration, or replacement of damaged facilities belonging to public entities and eligible private nonprofit organizations, as well as for other associated expenses, including emergency protective measures and debris removal. These funds may also be used for appropriate, cost-effective hazard mitigation measures related to damaged public facilities.

• The Individual Assistance Program provides two mechanisms for assistance to individuals adversely affected by a major disaster. The first is the Individual and Family Grant Program, which provides funding to States for the purpose of making grants to individuals or families with serious, unmet disaster-related needs. Eligible uses include measures necessary to protect damaged homes against the immediate threat of weather-related damage. The Minimal Repair Program makes direct grants to individuals for repairs needed to make their homes safe, sanitary, and secure.

As of July 1994, FEMA had approved applications for over $1 billion in disaster assistance related to the Northridge earthquake and the amount continues to grow. The Hazard Mitigation Grants Program is currently funding around $800 million in mitigation projects.

Small Business Administration (SBA)

Disaster assistance is part of the mission of the Small Business Administration (SBA), which provides individuals with loans for privately owned properties, including businesses and residences. Low-interest SBA disaster assistance loans can be used to rebuild a damaged structure, including the cost of bringing it up to the applicable building code standards. Loans also can pay for some smaller projects that are not required by code. At the applicant's request, loans may be increased by up to 20 percent for necessary or appropriate hazard mitigation measures. SBA has approved over 87,000 loans for $2.7 billion in the aftermath of the Northridge earthquake.

Department of Housing and Urban Development (HUD)

HUD's involvement in earthquake hazard mitigation issues can be traced to the 1971 San Fernando earthquake. Today, additional allocations made under HUD's Section 8 rental assistance and Community Development Block Grant (CDBG) programs provide crucial assistance in major disaster areas. CDBG, which provides aid to communities to carry out a wide range of community development activities, can be used for disaster recovery projects that have mitigation implications. These include repairing multifamily residential structures, rehabilitating commercial and industrial facilities, and making infrastructure improvements. Jurisdictions can also use CDBG grants as matching funds for FEMA disaster assistance and mitigation programs.

All CDBG activities must benefit low- and moderate-income persons, aid in the prevention or elimination of slums and blight, or address other community development needs that present a serious and immediate threat to the health or welfare of the community. Los Angeles has received $400 million in supplemental CDBG funds for Northridge earthquake relief and housing rehabilitation, in addition to annual grants of approximately $80 million to the City of Los Angeles and $35 million to Los Angeles County. Through the HUD Earthquake Loan Program (HELP), the Department has also made available $100 million in flexible subsidy loans for repairing HUD- assisted multifamily properties in the Los Angeles area. And, an additional $100 million in HOME funds were allocated for multifamily rehabilitation and other earthquake recovery activities.

HUD regulations promote the safety and soundness of all public and HUD-insured housing by requiring that these structures meet the Minimum Property Standards (MPS) established by the Department, which are more stringent than many local code standards. Under newly revised Minimum Property Standards for single-family and multifamily housing, seismic safety is a mandatory standard for applicable housing. Earthquake safety issues will also be addressed in revised design and construction standards currently being drafted for manufactured homes.

Other Federal Agencies

A number of other Federal agencies also have a fundamental interest in earthquake risk reduction. For example, agencies such as the Departments of Defense and Energy and the Nuclear Regulatory Commission engage in independent hazard identification and risk reduction programs for their mission- oriented facilities. Other active agencies include:

• The Department of Transportation (DOT), which requires that all projects receiving DOT grants meet NEHRP standards. It sponsors research on reducing the vulnerability of DOT-funded buildings and structures, including bridges and tunnels. It has also developed instructional products, such as seismic retrofit design manuals, design criteria, and a primer on how to manage transportation systems.

• The Environmental Protection Agency (EPA) incorporates seismic safety standards into its regulation of activities and facilities for chemical processing, waste water treatment, and toxic waste disposal.

• The Department of Veterans Affairs (VA) has spent over $1.1 billion to retrofit and upgrade its hospitals and facilities. The VA Seismic Strengthening Program has made significant progress since it began in 1971. The screening of 1,064 VA buildings revealed that of the 497 structures at major risk of seismic damage, 301 required seismic strengthening as soon as possible. To date, 117 buildings have been retrofitted, and corrections to 13 other structures are in the planning or design stage. The VA Seismic Strengthening Program faces two major challenges in the future: it must compete with direct medical care needs for scarce funds, and it requires large capital investments for seismic safety improvements that do not address deficiencies in functional space and systems.

IV. Statewide Earthquake Mitigation Efforts

The State of California is a leader in earthquake preparedness. Under a program authorized by Proposition 122, the Earthquake Safety and Public Buildings Rehabilitation Fund of 1990, the State legislature has offered $250 million for the financing of seismic retrofitting, reconstruction, repair, replacement, or relocation of state buildings or facilities and another $50 million in matching funds to help localities retrofit public buildings. Two statewide institutions the Governor's Office of Emergency Services and the independent Seismic Safety Commission are principally responsible for coordinating the State's earthquake preparations.

Office of Emergency Services (OES)

The Governor's Office of Emergency Services (OES) coordinates most State disaster preparedness programs. It maintains California's Emergency Plan, which outlines the responsibilities of State and local officials during emergencies. Through its three regional offices, OES provides technical assistance to local officials in the development of emergency plans, aids in the coordination of emergency services during a crisis, and distributes Federal and State relief funds. OES also administers the California Specialized Training Institute (CSTI), which trains officials at all levels of government in emergency management, earthquake preparedness, and the use of relief programs.

Seismic Safety Commission (SSC)

The nonpartisan Seismic Safety Commission (SSC) was established by the California legislature in 1975 to improve earthquake safety in California. To accomplish this, the Commission works with federal, state and local agencies, as well as the private sector, on a variety of activities including issuing policy studies, sponsoring legislation, and coordinating seismic safety activities through oversight and leadership. The Commission is also responsible for: (1) annually revising the California Earthquake Hazard Reduction Program; (2) implementing Chapter 250, Statutes of 1986, which requires local governments to inventory hazardous buildings, develop a mitigation plan, and report to the Commission; (3) reviewing the state's progress in preparing for the inevitable earthquakes; (4) pursuing programs to strengthen state-owned buildings that lack seismic resistance; (5) studying the effects of the 1989 Loma Prieta (Bay Area) earthquake to assist in the preparation for earthquakes of an equal or greater magnitude; (6) advising the Legislature and the Administration on seismic safety policies and issues; and (7) conducting research and development studies on earthquake safety in public buildings.

V. Los Angeles Area Mitigation Efforts

Because of the tremendous pressure on local governments to meet the most immediate needs of their constituents, post- disaster efforts revolve around short-term recovery instead of long-term mitigation. However, even within this more limited sphere, local governments are finding that they can address less than half of the repair and rebuilding needs. After the Northridge earthquake, the City and County of Los Angeles immediately set up new offices and ad hoc groups to plan for post-earthquake recovery. However, only a few of these task forces are considering mitigation needs in their damage assessments and recommendations.

City of Los Angeles

The Mayor's Blue Ribbon Panel on Seismic Hazard Reduction was established in 1993 to identify seismic risks and promote voluntary and mandatory retrofitting. The Panel is comprised of five subcommittees: Buildings, Structures, and Lifelines; Seismic Risk; Land Use and Construction; Insurance, Banking, and Real Estate; and Educational Programs and Outreach.

The City's Task Force on Evaluating Damage from the Northridge Earthquake consists of 15 subcommittees, which are charged with investigating earthquake damage in buildings with selected design or site characteristics, such as cripple walls, sloping hillside lots, and slab-on-grade construction. The subcommittees are expected to report their findings and recommendations in August 1994.

The City Council of Los Angeles also has an active Ad Hoc Committee on Earthquake Recovery which has drafted and approved numerous ordinances related to hazard mitigation issues. The Committee continues to meet on an ongoing basis. The City Council recently approved an ordinance which requires all new construction projects to include gas shut-off valves.

County of Los Angeles

As a first step to recovery, the County Office of Recovery (COR) was created to develop a strategic plan for restoring government services impacted by the Northridge disaster. COR consists of representatives from various County offices, including the Community Development Commission and Office of Emergency Management, as well as other personnel experienced in facilities and social recovery. The task of developing an action plan for recovery has been placed in the hands of a Recovery Coordinators Task Force made up of local officials involved in directing recovery efforts and filing FEMA claims.

Funding Sources

In June 1994 voters rejected Measure 1A, a proposed $2 billion bond issue earmarked for earthquake relief. The resulting lack of funds caused Governor Pete Wilson to cancel a $575 million California Natural Disaster Assistance Program, which was to have provided loans for housing reconstruction. The loss of the State loans cast doubt on the future of 2,750 apartment buildings, primarily in the San Fernando Valley and Hollywood, that had been vacated because of earthquake damage. An additional 28,000 houses and apartment units could be abandoned as owners and tenants lose faith that repair funds can be obtained. These losses would diminish the affordable housing stock and increase blight.

However, in August 1994, President Clinton responded to an appeal from Los Angeles Mayor Richard Riordan by asking Congress to redistribute $225 million from highway and school retrofitting projects. With these funds, the cities of Los Angeles and Santa Monica would be able to make 30-year, no-interest deferred loans to owners of damaged buildings. It is estimated that the new money will help rebuild 17,000 units, or about half the number that Mayor Riordan has said are at risk for lack of the necessary funds. Loans will be targeted to "ghost towns," crime-infested enclaves of vacant, damaged buildings.

Footnotes

1. National Earthquake Strategy Working Group for White House Office of Science and Technology Policy. National Earthquake Strategy, revised draft, Washington, DC, June 28, 1994, p.7.

2. Federal Emergency Agency, "Hazard Mitigation Grant Program: Interim Guidance", Washington, DC, June 1992, p. 2-4.

3. Office of Management and Budget, "Six Months after the Northridge Earthquake: A Look Back at the Federal Response", Washington, DC, July 27, 1994, p. 2.

4. Ibid.

5. Ibid, p. A-2.

6. "59 Federal Register" 36692, July 19, 1994

7. Program and its findings are described in the Seismic Safety Commission, "California at Risk; Reducing the Earthquake Hazards, 1987 to 1992", Sacramento, CA, December 31, 1991.

8. Dawley, Gregory, Assistant Chief of Staff. Office of the Mayor. City of Los Angeles. Letter. January 11, 1995.

9. Doug Smith, "Quake Recovery Program Cancelled", Los Angeles Times, June 10, 1994.

10. Doug Smith, "Cisneros, Riordan Tour Quake "Ghost Towns", Los Angeles Times, August 5, 1994.

11. Ibid.

12. Hugo Martin, "More Funds for Quake 'Ghost Towns' Sought", Los Angeles Times, August 3, 1994.
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