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Applied Geography 55 (2014) 19e29

Contents lists available at ScienceDirect

Applied Geography
journal homepage: www.elsevier.com/locate/apgeog

Comparative tsunami vulnerability assessment of an urban area:


An analysis of Setbal city, Portugal
Angela Santos a, Alexandre O. Tavares b, Antonio Emidio a, *
a
Centre for Geographical Studies, Institute of Geography and Spatial Planning, Universidade de Lisboa, Edifcio da Faculdade de Letras,
Alameda da Universidade, 1600-214 Lisboa, Portugal
b
Centro de Estudos Sociais e Dep. de Ci^encias da Terra da, Universidade de Coimbra, Portugal

a r t i c l e i n f o a b s t r a c t

Article history: Portugal's historical vulnerability to natural hazards has been well documented and the need exists to
Available online create a local assessment framework at the municipal scale. Therefore, the objectives of this paper are to
implement and compare two methodologies for assessing the vulnerability of buildings in urban area of
Keywords: Setbal city. In this study, the area inundated by the tsunami was obtained from other authors who
Urban area carried out the tsunami numerical simulation of the 1755 Lisbon Tsunami in Setbal. The methodologies
Tsunami
used were the PTVA e 3 model and Model B, which incorporate several parameters that inuence
Vulnerability
vulnerability. These parameters were dened on the basis of post-tsunami eld surveys carried out by
PTVA-3
Setbal city
other authors. They were classied according to their inuence on the capacity to protect or cause
damage and incorporated into a GIS environment by applying multi-criteria analysis and calculating
vulnerability indexes. The results show the presence of 481 potentially affected buildings. Approximately
90% (using both methodologies) were classied as very low or low vulnerability. Within these categories,
it is important to note that two buildings associated with the emergency response service are potentially
affected, in addition to ve buildings important to the normal functioning of society. The buildings that
were classied as high vulnerability are storage facilities used by shermen and an annex to the port of
Setbal. In addition, the PTVA e 3 model highlights the number of oors in the buildings. The methods
can be developed to include physical, social and economic indicators.
2014 Elsevier Ltd. All rights reserved.

Introduction capacity to assess vulnerability is seen as an essential step towards


reducing risk. In this sense, there has been a growing interest and
Despite efforts to reduce vulnerability to disasters, there has studies produced on assessing vulnerability associated with natural
been an increase of the impact of hazards on society, with com- hazards (Adger, 2006; Jeffers, 2013; Kappes, Papathoma-Kohle, &
munities being more vulnerable than ever (Pine, 2009, p. 285). Keiler, 2012; Santos, Tavares, & Ze^zere, 2014).
Among the factors that led to this are the mobility and the con- Following the 2004 Indian Ocean Tsunami, various methodol-
centration of people, activities and critical infrastructures in risk ogies have been developed to assess vulnerability to various types
areas, as for example, coastal regions (Queiro  s, 2009; Wisner, of natural hazards, including tsunamis (Atillah et al., 2011;
Blaikie, Cannon, & Davis, 2004, p. 447). Dall'Osso, Gonella, Gabbianelli, Withycombe, & Dominey-Howes,
Regardless of the importance and current interest surrounding 2009; Dominey-Howes & Papathoma, 2007; Eckert, Jelinek, Zeug,
the concept of vulnerability, there is no clear and consensual de- & Krausmann, 2012; Ghobarah, Saatcioglub, & Nistorb, 2006; Ismail
nition of this term: different approaches and conceptual models et al., 2012; Leone, Lavigneb, Parisc, Denaina, & Vineta, 2011;
may be found in the literature on the subject depending on Murthy, Usha, Pari, & Reddy, 2011; Papathoma, Dominey-Howes,
research orientation and perspectives (Cutter, Emrich, Webb, & Zong, & Smith, 2003; Pendleton, Barras, Williams, & Twichell,
Morath, 2009, p. 44). Birkmann (2006) considers that the 2010, p. 26; Reese et al., 2007; Sinaga, Nugroho, Lee, & Suh, 2011;
Taubenbock et al., 2008; Usha, Murthy, Reddy, & Mishra, 2012;
Wood, 2009). To date, most of the existing approaches assume
that vulnerability would be uniform across the entire inundated
* Corresponding author.
area, although Papathoma et al. (2003) demonstrate that it should
E-mail addresses: angela.santos@campus.ul.pt (A. Santos), atavares@ci.uc.pt
(A.O. Tavares), a.emidio@campus.ul.pt (A. Emidio).
be assessed as a dynamic component that changes in time and

http://dx.doi.org/10.1016/j.apgeog.2014.08.009
0143-6228/ 2014 Elsevier Ltd. All rights reserved.
20 A. Santos et al. / Applied Geography 55 (2014) 19e29

space and depends on a series of parameters. These conclusions led areas and buildings to tsunami inundation in order to implement
to many studies which combine a set of parameters to create a specic regulatory standards for building projects, improve emer-
vulnerability index using a weighted average, as is the case of the gency response plans and apply the appropriate mitigation mea-
PTVA (Papathoma Tsunami Vulnerability Assessment) model sures. The aim of this study is therefore to apply the methodology
(Papathoma & Dominey-Howes, 2003; Papathoma et al., 2003), to the urban center of a medium-sized Portuguese city. Two
later revised by Dominey-Howes and Papathoma (2007) e PTVA 2, methodologies for assessing the structural vulnerability of build-
and by Dall'Osso et al. (2009) e PTVA 3. This methodology (PTVA) ings in the event of a tsunami were used for the city of Setbal,
was rst applied in Greece in 2003, then tested on the effects of the incorporating the results of the tsunami numerical modeling pro-
2004 Indian Ocean Tsunami in the Republic of the Maldives, and duced by Santos and Koshimura (2013a). To achieve this, three
subsequently improved and applied in Sydney in 2009 (PTVA-3). objectives were identied for the study:
The Sydney study focused only on building vulnerability, analyzing
the data in relation to each building and the surrounding area,  the most vulnerable infrastructures in the urban coastal area
therefore on a larger scale in comparison to the other models.  the parameters which have the greatest inuence on variations
Before the PTVA-3 model (Dall'Osso et al., 2009), the different in structural vulnerability in the buildings potentially affected
methodologies assessed the vulnerability to tsunamis by analyzing  how a tsunami with characteristics similar to the one which
land use, population and buildings (not taking into account many took place in 1755 would affect essential facilities and services
characteristics of each building). In many cases the information was in the urban area of Setbal city
obtained by remote sensing and not by eld work. The PTVA-3
model details the assessment of vulnerability to tsunamis
focusing exclusively on buildings. It considers a high number of Description of the study area
parameters validated in post-tsunami eld surveys (Dalrymple &
Kriebel, 2005; Dominey-Howes & Papathoma, 2007; Olwig et al., The study area is located in the Lisbon Metropolitan Area, in the
2007; Reese et al., 2007), and introduces a rigorous method of urban area of the city of Setbal next to the estuary of the River
weighting them. Tarbotton et al. (2012) considered this to be the Sado (Fig. 1). The municipality of Setbal, which has a total area of
best methodology for assessing the vulnerability of buildings to the approximately 172 km2 and 121,185 inhabitants (INE, 2011), is one
effects of tsunamis. of the main urban centers in the Lisbon Metropolitan Area, both in
The 1755 Lisbon Tsunami which inundated the Portuguese population and functional terms (CCDR/LVT, 2010, p. 368), due to its
coastline caused many fatalities and damage (Santos, Koshimura, & excellent (road, rail and maritime) access and its proximity to Lis-
Imamura, 2009). Tsunami impact assessment is even more relevant bon. These factors have made Setbal an average-sized Portuguese
due to changes in land use and occupation along the coast, as well city and one of the main economic centers in the country, whose
as in population density and growing urbanization. (Freire, commercial and industrial importance is highlighted by the
Aubrecht, & Wesgscheider, 2013; Mendes-Victor et al., 2005; numerous infrastructures and facilities located along its coastline
Nunes, Ferreira, & Lus, 2009; Ribeiro, Silva, & Leita ~o, 2011). (CM Setbal, 2013). In terms of the tsunami hazard, Setbal is
Given the existing historical reports associated with the occur- classied as at moderate, based on tsunami travel times and wave
rence of this type of event in Portugal (Santos & Koshimura, 2013b; height (Santos & Koshimura, 2013a).
Santos et al. 2009), the importance of an objective assessment of The study area (Fig. 1b) was dened by the cross between the
the exposure and vulnerability of coastal areas is clear, particularly inundated area calculated by Santos and Koshimura (2013a) and
with regard to urban areas, using a local-based methodology. the urban subsections of the coastal area. A total of 66 statistical
Bearing in mind the growing expansion of cities and infrastructures subsections were considered (Fig. 1c), corresponding to an area of
built in coastal areas, it is necessary to identify the most vulnerable approximately 1.1 km2.

Fig. 1. Study area. a) Municipality of Setbal; b) Study area; c) Subsections of the study area.
A. Santos et al. / Applied Geography 55 (2014) 19e29 21

Fig. 2. Photographs of the urban coastal area of Setbal (Photos taken by the rst author on October 29, 2011).

The study area has a gentle slope (less than two degrees), with  The fact that the urban area is densely populated and is a low
altitudes ranging from 3 to 4 m in most of the area. The geology area of less than 4 m with gentle slope (Santos & Koshimura,
consists mainly of alluvial deposits and landll sites. A small number 2013a);
of units composed of sand and clay can also be found, particularly in  The presence of various industrial and port infrastructures
the northeast and northwest zones of the study area (LNEG, 1994). which are important to the local and national economy;
Land use and occupation are mainly linked to the port areas,  The existence of sensitive infrastructures and facilities vital to
industry and commercial activities associated with shing. The the normal functioning of society.
resident population represented by a total of 923 inhabitants,
equivalent to 0.8% of the total for the municipality (INE, 2011).
Materials and methods
These numbers are explained by the fact that most of the sub-
sections are dedicated to commerce, services and tourism. Tourism
The cartographic sources used in this study included the inun-
stands out due to the high concentration of daily commuters,
dated area produced by the tsunami numerical model of Santos and
related not only to its riverfront, restaurants and gastronomy, but
Koshimura (2013a), which supports the entire analytical process.
also to the ferry connection to the beaches of the Tro  ia peninsula, a
This model, which has a resolution of 10 m, takes a tsunami with
tourist destination. 388 residential buildings were identied, 257
the same characteristics as the one which occurred on 1 November
(66%) of which are exclusively residential, 79 (20%) mainly resi-
1755 (Fig. 3).
dential and 52 (14%) mainly non-residential (INE, 2011).
The tsunami numerical model results show the tsunami reaches
The reports on the 1755 earthquake and tsunami for Setbal
400 m inland. The inundation depth is less than 1 m over most of
indicate the existence of three waves ranging from 6 to 17.5 m in
the area, with the highest values (less than 4 m) found in the area
height which entered the city and inundated it up to a distance of
around the three docks and the Setbal Port terminals (Fig. 3)
750 m, probably causing over 2000 deaths (Santos & Koshimura,
(Santos & Koshimura, 2013a).
2013a). The historical accounts also report that The largest
In this study the PTVA-3 model was chosen for three reasons:
destruction was at Fontainhas and Troino neighborhoods. []
the relatively recent and up-to-date methodology for parameters
many people died under the ruins of the buildings and drowned on
considered to inuence the structural vulnerability of buildings;
the waves, there were also res that caused big loss. (Santos &
the application of an analytic hierarchy process for weighting the
Koshimura, 2013b). The choice of this area was essentially based
various parameters; the fact that it could be applied on a local scale.
on three main factors (Fig. 2):
In addition to this model, the Structural Vulnerability Index (SVI)

Fig. 3. Tsunami inundation numerical model for the urban centre of Setbal (Santos & Koshimura, 2013a).
22 A. Santos et al. / Applied Geography 55 (2014) 19e29

Fig. 4. Diagram of the various stages.

proposed by Ismail et al. (2012) was also applied, henceforth addition, it should be emphasized that GIS allows for the use of
referred to as Model B, since it was developed from the PTVA-3 various tools, ranging from data collection to the visualization of
model. This study enables comparisons to be made between the results to support decision-making.
two above methodologies applied to the same area, discussion of Using these two building vulnerability assessment models in
the results and identication of the positive and negative points of conjunction with the inundated area obtained from the tsunami
each. It therefore brings a new approach to tsunami vulnerability numerical model, the affected buildings were identied and the
studies, since these methodologies have previously only been various parameters classied with the aid of orthophotography
applied separately and never to the same area. The models involve validated by eldwork (Fig. 4).
the use of GIS-based multi-criteria analysis in order to calculate the
Structural Vulnerability Index (SVI) resulting from the set of pa- The PTVA-3 model
rameters classied. The advantages include the capacity to incor-
porate information into spatial databases and the possibility of The PTVA-3 model, developed by Dall'Osso et al. (2009) for use
easily updating the parameters used in the analysis at any time to in urban coastal areas, differs from its predecessors (that take into
produce alternative scenarios in particular spatial contexts. In account representative attributes of buildings, population and land

Table 1
Classication of attributes inuencing the structural vulnerability of buildings (Dall'Osso et al., 2009).
A. Santos et al. / Applied Geography 55 (2014) 19e29 23

Table 2
Classication of attributes inuencing the level of protection of buildings (Dall'Osso et al., 2009).

Table 3 which uses the characteristics of buildings and their surrounding


Classication of inundation depth (Ex) in PTVA-3 model (Dall'Osso et al., 2009). area to identify vulnerability in terms of exposure and prolonged
Inundation depth contact with inundated area. The model is based on post-tsunami
Original 0e1 m 1e2 m 2e3 m 3e4 m >4 m
eld-survey used to analyze the parameters with the greatest in-
Reclassied 1 2 3 4 5 uence on variations in vulnerability, subsequently assigning
weighting coefcients according to their importance and calcu-
lating composite vulnerability indexes. The parameters are
collected and classied at intervals ranging from 1 to 1, in
use) focusing on structural vulnerability, collecting data on build- which positive values indicate increasing vulnerability and nega-
ings and the surrounding area, and is therefore able to assess tive values lower vulnerability. This use of positive and negative
vulnerability on a high scale of analysis. It is a deterministic model values enables the overall score for a building to be expanded to

Fig. 5. Diagram of the various stages.


24 A. Santos et al. / Applied Geography 55 (2014) 19e29

Table 4
Classication of inundation depth (Ex) in Model B (Ismail et al., 2012).

Inundation depth (m)

Original <0.5 0.5e1 1e2 2e3 >3


Reclassied 1 2 3 4 5

reect a wider range of values and the classication is based on the


approach used by Cutter, Boruff, and Shirley (2003). Thus, a
building with a score of 0 for each parameter represents average
structural vulnerability. A total of 13 parameters were considered,
seven of which concerned building structure (Table 1), four the
level of protection (Table 2), one the inundation depth (Table 3) and
one vulnerability to water intrusion.
Since the attributes do not all have the same importance in
terms of inuencing vulnerability and in order to avoid subjective
assessments of the signicance of each, the analytic hierarchy Fig. 7. Distribution of buildings by vulnerability class in PTVA-3 model.
process was applied to assign the weightings of the various pa-
rameters. The analytic hierarchy process, which is based on pair-
wise comparisons of criteria, depends on expert judgments to
vulnerability to water intrusion (WV); exclusion of the protective
produce the priority scales. In this way a decision is ranked as a set
brick wall (w); classication of all parameters at intervals varying
of attributes/alternatives, constructing a pair-wise comparison
from one (minimum vulnerability) to ve (maximum vulnera-
matrix to enable them to be classied in order of importance (Saaty,
bility), alteration of the inundation depth category (Ex) to a
2008).
maximum of 3 m instead of the 5 m used in the PTVA-3 model,
The nal result of the PTVA-3 model is a Relative Vulnerability
(Table 4), based on the tsunami inundation modeling. Furthermore,
Index (RVI) calculated for each building, which varies from one
a vulnerability index was calculated for each stage. The Physical
(very low vulnerability) to ve (very high vulnerability). This index
Vulnerability Index e PVI- is assessed on the basis of a set of ve
is calculated as the weighted sum of two separate elements: the
parameters dened by the geomorphological characteristics of the
vulnerability of the carrying capacity of the building structure
coastal area. Considering the scale of analyzes of the studied area,
(associated with the hydrodynamic force of the water ow e g e
only the last stage will be used in the study, obtaining a Structural
and structural vulnerability e SV), and the vulnerability of the
Vulnerability Index e SVI. This is designated in this study by Model
building elements associated with prolonged contact with water
B.
intrusion (WV). The parameters, weightings and the integration of
The weighting coefcients are the same as those used in the
the various components are shown in the diagram in Fig. 5.
PTVA-3 model, with changes made only to the equation for inte-
grating the parameters referring to level of protection (Prot), due to
Model B
the exclusion of the above mentioned parameter corresponding to
protective brick walls (w).
More recently, Ismail et al. (2012) proposed a tsunami vulner-
ability assessment technique, which was structured in three stages
featuring different scales of analysis. Each stage was inuenced by Results
the results of the previous one e classication of the tsunami
impact (macro scale), assessment of physical vulnerability (local A total of 481 buildings were identied as potentially affected,
scale), and assessment of structural vulnerability (micro scale). On 61% (292) of which were dedicated exclusively to commerce and
the last stage, the above authors based their proposal on the services, 28% (135) were mixed use and only 11% (54) were exclu-
approach presented by Dall'Osso et al. (2009) e PTVA-3, by incor- sively residential. Identication of the building stock highlights the
porating some small changes: exclusion of the element referring to two main economic activities characteristic of this riverside area e

Fig. 6. Relative vulnerability index (RVI) of PTVA-3 model.


A. Santos et al. / Applied Geography 55 (2014) 19e29 25

Fig. 8. Buildings classied as high vulnerability in PTVA-3 model.

commerce and catering associated with the shing sector and in- four as high vulnerability (1%). No buildings were classied as very
dustry in the port of Setbal. high vulnerability (Figs. 6 and 7).
The overall results indicate very low levels of vulnerability. In Four buildings located in the dock furthest to the left of the
general, the most vulnerable buildings were located in the Setbal study area and in the Setbal port terminal were classied as high
port area and the area surrounding the three docks, due to four vulnerability. These buildings comprise storage facilities, and an-
main factors: the inundation depth values, number of oors in the nexes for shermen and a warehouse (Fig. 8). They fall into this
buildings, ground oor hydrodynamics and building order. The category because of the inundation depth, the fact that they are
buildings mainly comprised warehouses and annexes/storage fa- windowless or have few windows, shallow foundations, and also
cilities for sherman and the Setbal port, typically with a single- because they have only one oor.
storey typology and windowless ground oor. 28 buildings, also not used for residential purposes, were
The classication obtained using the PTVA-3 model varies from registered as having moderate vulnerability. Essentially three types
very low to high vulnerability. Out of a total of 481 affected of building were identied with particular characteristics in this
buildings, 302 (63%) were classied as very low vulnerability, 147 category, as shown in Fig. 9: warehouses in an advanced state of
low vulnerability (30%), 28 moderate vulnerability (6%), and only disrepair, annexes to restaurants situated near the docks, and

Fig. 9. General characteristics and examples of buildings classied as average vulnerability in PTVA-3 model.
26 A. Santos et al. / Applied Geography 55 (2014) 19e29

warehouses located in the Setbal port area. They are included in


this category due to their fragile building type, the fact that they
have only one oor, their state of repair and their shallow
foundations.
The great majority of the buildings were classied as low and
very low vulnerability. The central zone in the study area is high-
lighted in these categories, due to the concentration of various
buildings that would be of particular importance to any emergency
response, as well as to the normal functioning of society (Fig. 10).
These buildings comprise a re station (marked no. 1 in Fig. 10),
kindergarten (no. 2), court (no. 3), the Setbal Port Captain's Ofce
(no. 4), the Setbal and Sesimbra Port Administration building (no.
5), police station (no. 6) and another Setbal Port Administration
building (no. 7). Although potentially affected, all these buildings
would only be hit by inundation to a height of less than 1 m and the
vulnerability classication therefore varies between very low and
low according the number of oors (only one oor e low vulner- Fig. 11. Distribution of buildings by class of vulnerability in model B.
ability; more than one oor e very low vulnerability).
The results of applying Model B to the buildings identied port of Setbal and are associated with inundation depths that are
indicate that 94% (453) of the buildings were classied as very low higher than those of the other buildings.
vulnerability. Of the remainder, 26 buildings were classied as low The results obtained using this methodology show a clear
vulnerability and only two as moderate vulnerability (Fig. 11). relationship between the areas with a greater inundation depth
Hence none of the buildings were classied as high or very high and the buildings classied as more vulnerable, and there is no
vulnerability. longer a marked distinction between single-storey buildings and
Fig. 12 shows the most vulnerable (low and moderate vulnera- those with more than one oor as indicated by the PTVA-3 model.
bility) buildings in the area surrounding the port of Setbal and the These changes are mainly due to not using the water intrusion
dock on the eastern part of the study area. The exception to this are parameter (WV), and the nal result is quite similar to the struc-
the four buildings located in the dock on the west which, as in the tural vulnerability index for the PTVA-3 Model. Overall, however,
PTVA-3 model, stand out from the other buildings in the area, Model B classies some buildings in the port of Setbal as having
comprising annexes and storage facilities for shermen. The two higher levels of vulnerability in comparison to the PTVA-3 model,
buildings with moderate vulnerability, comprising one-storey due to the changes made to the inundation depth category (Ex),
warehouses with a windowless ground oor, are located in the therefore highlighting the buildings in this area.

Fig. 10. Location and classication of buildings of particular importance in PTVA-3 model.
A. Santos et al. / Applied Geography 55 (2014) 19e29 27

Fig. 12. Structural Vulnerability Index (SVI) of model B.

Discussion and conclusions recalculate the weightings attributed to the parameters for the
degree of protection component, given that it excludes one of them
The general results of the two methodologies clearly show the (protective brick walls (w)).
low vulnerability of the buildings in the study area. The main The vulnerability to water intrusion component (which features
reason is due to the low inundation depth (Ex) and building ma- in the PTVA-3 model) signicantly highlights single-storey build-
terial (m). This reects similarities with other results obtained by ings, raising their level of vulnerability. The parameters with more
applying these methodologies in other coastal areas of Portugal inuence in the nal results are the number of stories (s), the
(Barros, Emdio, Tavares, & Santos, 2013). Similar results were also building material (m), the presence of movable objects around the
obtained in other countries where the overall results are low/ building (mo) and the inundation depth (ex). In addition to the
moderate and no buildings are classied as very high vulnerability, maximum weighting coefcient, the parameter referring to the
for ex. in Australia and Italy (Dall'Osso et al., 2009; Dall'Osso et al., number of stories also has a strong relationship with other pa-
2010). rameters such as building materials (m) and foundation type (f),
However, a comparison of the results of the two methodologies since buildings with a large number of stories usually have a very
reveals certain differences in the classications obtained. Even resistant structure and deep foundations.
though the two results indicate low levels of vulnerability overall, The results clearly highlight the Setbal port area, where the
Model B (Ismail et al., 2012) still presents a signicant number of typical building has a single-storey typology and windowless
buildings with lower vulnerability in relation to the PTVA-3 model ground oor. Around this buildings also exists many and large
(Dall'Osso et al., 2009) (170), and only three buildings are assigned movable objects (as for example containers) which has a great
a higher classication (Fig. 13). potential to cause damage to building structure. In addition, the low
The fact that these buildings have a higher level of vulnerability relevance of the level of protection component is emphasized, due
is explained by the changes made to Model B in terms of the to the lack of coastal protection features and natural barriers.
inundation depth classication, since this model allows for a In the Setbal case study, it may be concluded that Model B is
greater differentiation between the inundation depth classes, more suitable for assessing building vulnerability, essentially due to
which is more appropriate for the Setbal case study. Thus, build- its classication of the inundation depth and the exclusion of pa-
ings with the same inundation depth had a higher level of rameters which overemphasize single-storey buildings, in partic-
vulnerability in this parameter in the model B compared with the ular in an area in which no buildings with more than one oor
PTVA-3 model. One limitation of Model B is the fact that it does not would be affected.

Fig. 13. Variation in Model B results in relation to the PTVA-3 model.


28 A. Santos et al. / Applied Geography 55 (2014) 19e29

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