Designing
for
Tsunamis
Seven Principles for Planning and Designing for Tsunami Hazards
March 2001
A multi-state mitigation project of the National Tsunami Hazard Mitigation Program (NTHMP)
National Oceanic and Atmospheric Administration (NOAA)
U.S. Geological Survey (USGS)
Federal Emergency Management Agency (FEMA)
National Science Foundation (NSF)
State of Alaska
State of California
State of Hawaii
State of Oregon
State of Washington
Funding for this project was provided by the U.S. Department of Commerce and the National Oceanic
and Atmospheric Administration (NOAA).
The opinions and recommendations contained in this report do not necessarily represent those of the
member agencies of the National Tsunami Hazard Mitigation Program Steering Committee.
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Designing for Tsunamis
REPORT CREDITS
Page iii
Report Credits
R. Scott Simmons
George Priest
USGS Alaska Division of Emergency Services
Oregon Department of Geology
California
Craig Weaver Washington
Lori Dengler
National Earthquake Hazards Reduction Program
Department of Geology, Humboldt State University George Crawford
Washington State Military Department,
Richard Eisner
Emergency Management Division
Governor’s Office of Emergency Services
Timothy Walsh
Division of Geology and Earth Resources
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Report Credits
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Designing for Tsunamis
TABLE OF CONTENTS
INTRO Introduction
Page vii
Table of Contents
P•2 Principle 2: Avoid new development in tsunami run-up areas to minimize future tsunami losses
P•4 Principle 4: Design and construct new buildings to minimize tsunami damage
Page viii
Table of Contents
The Role of Infrastructure and Critical Facility Location and Design in Reducing Tsunami Risk 41
Process for Implementing Infrastructure and Critical Facility Location and Design Strategies 41
Specific Infrastructure and Critical Facility Location and Design Strategies to Reduce Tsunami Risk 44
Page ix
Table
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GLOSSARY
Glossary 53
RESOURCES
Resources for Local Government Officials and the Public 55
BIBLIOGRAPHY
Bibliography 57
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Designing for Tsunamis
Introduction
INTRO
Burning petroleum storage tanks along the are susceptible to tsunamis; as many as 900,000
Seward, Alaska, waterfront after the 1964 The Threat of Tsunamis to Coastal residents of these cities would be inundated by a
tsunami and earthquake. Credit: Anchorage
Communities 50-foot tsunami.
Museum of History and Art
Page 1
Introduction
Purpose and Organization of the These guidelines are organized according to seven
Guidelines basic principles:
The purpose of these guidelines is to help coastal Principle 1: Know your community’s tsunami risk:
hazard, vulnerability, and exposure
communities in the five Pacific states—Alaska,
California, Hawaii, Oregon, and Washington— Principle 2: Avoid new development in tsunami run-up
areas to minimize future tsunami losses
understand their tsunami hazards, exposure, and
vulnerability, and to mitigate the resulting risk Principle 3: Locate and configure new development
Damage from the 1964 tsunami in Kodiak, Alaska.
through land use planning, site planning, and that occurs in tsunami run-up areas to minimize future
Credit: NOAA
tsunami losses
building design. Emergency response and evacua-
tion are addressed extensively in other publications Principle 4: Design and construct new buildings to
minimize tsunami damage
and are only discussed in these guidelines as they
relate to land use, siting, and building design and Principle 5: Protect existing development from
tsunami losses through redevelopment, retrofit, and
construction issues (see the references at the end of
land reuse plans and projects
the guidelines concerning emergency response and
evacuation planning for tsunamis). Principle 6: Take special precautions in locating and
designing infrastructure and critical facilities to
These guidelines are intended for use by local minimize tsunami damage
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Introduction
region are addressing tsunami hazards. The guide- • Oregon and Washington require local plans to be
lines also contain references and contacts for consistent with statewide planning goals.
California and Hawaii have statewide planning
obtaining further information about planning for
guidelines that are advisory only. Alaska requires
tsunami hazards. More detailed information on each
a consistency review of coastal resource district
of the topics discussed in the guidelines is contained
plans with statewide standards and with other
in a companion set of background papers that were districts’ plans.
compiled during the preparation of these guidelines.
• California, Oregon, and Washington require
hazard mitigation as part of their general land
The Regulatory Context use planning process. Alaska requires it for
coastal resource district plans only. Hawaii only
All development in coastal areas is subject to federal,
suggests that this topic be addressed.
state, and local policies and regulations. Understand-
ing the regulatory context is critical to the successful • California, Oregon, and Washington require
conformance with a state model building code
implementation of a tsunami mitigation program.
based on the Uniform Building Code (UBC).
State and Local Development Regulations Alaska only mandates adoption of a fire code,
and Hawaii does not have a state-mandated
Every coastal community in the five Pacific states has
building code. All of the counties in Hawaii and
a land use planning and regulation process that
the larger cities in Alaska have adopted a version
responds to state mandates or guidelines, which vary
of the UBC.
among the states:
A community’s comprehensive plan is at the top of
• All five Pacific states require local land use
the local land use planning/regulatory process
planning, and all except Alaska have statewide
hierarchy. The comprehensive plan is implemented
planning guidelines. Alaska has statewide
day-to-day through project review and permitting.
planning guidelines for coastal resource districts.
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Introduction
Local governments typically require formal approv- The National Flood Insurance Program (NFIP), estab-
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als for land divisions, the establishment of certain lished in 1968, is part of a comprehensive approach to
new uses (“conditional uses”), and the physical reduce flood damage and to cope with the disastrous
layout of new development. effect of floods. The NFIP is administered by the Federal
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coastal resources.
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Designing for Tsunamis
P•1
U nderstanding your community’s tsunami resulting from the triggering earthquake such as
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hazard, vulnerability, and exposure to damage groundshaking, surface faulting, liquefaction, or
is the foundation for land use and building strategies landslides. Distant tsunamis may travel for hours
that can mitigate tsunami risk. While much remains to before striking a coastline.
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be learned about tsunamis, sufficient knowledge,
In the open ocean, a tsunami may be only a few feet
technical information, and expertise already exist to
high but can travel up to 500 miles per hour. As a
assess the tsunami hazard and risk in all coastal
tsunami enters the shoaling waters near a coastline,
communities.
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its speed diminishes, its wavelength decreases, and its
height increases greatly. However, the first wave
The Nature of Tsunamis usually is not the largest. Several larger and more
destructive waves often follow the first one. While
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A tsunami is a series of long waves generated A tsunami is a series of long waves generated by a
by a sudden displacement of a large volume of tsunami waves slow upon reaching the coastline,
sudden displacement of a large volume of water.
water. they still travel faster than Olympic long-distance
Tsunamis are triggered by submarine earthquakes,
submarine volcanic eruptions, underwater landslides runners can run—faster than 15 miles per hour.
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or slumps of large volumes of earth, meteor impacts,
The configuration of the coastline, the shape of the
and even onshore slope failures that fall into the
ocean floor, and the characteristics of advancing
ocean or a bay.
waves play important roles in the destructiveness of
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Most tsunamis originate in the Pacific “Ring of Fire,” the waves. A wave may be small at one point on a
which is the most active seismic feature on earth. coast and much larger at other points. Bays, sounds,
Tsunamis are typically classified as either local or inlets, rivers, streams, offshore canyons, islands, and
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distant. Locally-generated tsunamis have minimal flood control channels may cause various effects
warning times and may be accompanied by damage that result in greater damage than many people
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Principle 1: Know your community’s tsunami risk: hazard,
vulnerability, and exposure
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would expect. It has been estimated, for example, boats or ships straining at
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canyons can focus tsunami wave energy and islands strong currents, collisions
can filter the energy. The orientation of the coast- with other objects, or
line determines whether the waves strike head-on impact with the harbor
or are refracted from other parts of the coastline. bottom.
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Principle 1: Know your community’s tsunami risk: hazard,
vulnerability, and exposure
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Outflow following inundation also creates strong The Destructiveness of Tsunamis
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currents, which rip at structures and pound them with
Though rare, tsunamis are devastating events for
debris, and erode beaches and coastal structures.
humankind. In recorded history, hundreds of
As tsunamis reach the shoreline, they may take the thousands of people all over the world have died as
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form of a fast-rising tide, a cresting wave, or a bore. The a result of tsunamis. Some scholars believe that a
bore phenomenon resembles a step-like change in the tsunami resulting from the eruption of the volcano
water level that advances rapidly (from 10 to 60 miles Thera destroyed the Minoan culture in the Mediter-
As a tsunami approaches shore, it slows down
ranean in 1628 B.C.
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and dramatically increases in height. per hour). Normal tidal bores at the Bay of Fundy,
Canada, or the Yellow River, China, provide examples
Since 1946, six destructive tsunamis have caused
of this phenomenon. nearly 500 deaths and damaged hundreds of
millions of dollars of property in Alaska, Hawaii, and
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The force and destructive effects of tsunamis should
along the U.S. West Coast.
not be underestimated. At some locations, the advanc-
ing turbulent wave front will be the most destructive The destructive potential of tsunamis was most
part of the wave. In other situations, the greatest dramatically illustrated by the 1960 Chile earth-
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damage will be caused by the outflow of water back to quake and the 1964 Alaska earthquake, two of the
the sea between crests, sweeping all before it and largest earthquakes ever measured.
undermining roads, buildings, bulkheads, and other
The 1960 earthquake off coastal Chile devastated
structures. This outflow action can carry enormous
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parts of Chile and almost instantly raised a Califor-
amounts of highly damaging debris with it, resulting in
further destruction. Ships and boats, unless moved nia-sized piece of land on the ocean floor about 30
away from shore, may be dashed against breakwaters, feet. Its companion series of tsunami waves resulted
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wharves, and other craft, or be washed ashore and left in further losses in many other Pacific Rim and
grounded after the withdrawal of the seawater. island locations, including Hilo, Hawaii, and Japan.
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Principle 1: Know your community’s tsunami risk: hazard,
vulnerability, and exposure
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Over 2,000 lives were lost, including 61 in Hawaii Exposure to Tsunamis Potential destructiveness of tsunamis in
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The tsunamis generated by the 1964 Alaska tating tsunami events, coastal communities have
earthquake also spread destruction around the continued to develop in recent times with new
Pacific Rim. In Alaska alone, waves and the effects of housing, maritime facilities, and resort develop-
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groundshaking and submarine landslides destroyed ments. As a result, more people and facilities are
portions of numerous coastal communities. Whittier threatened by the destructive force of tsunamis.
suffered losses to docks, oil facilities, and rail According to one recent estimate, 489 cities in
facilities with wave run-up noted at an elevation of Alaska, California, Hawaii, Oregon, and Washington
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104 feet in a narrow passage. Kodiak suffered are susceptible to tsunami inundation, with an
estimated 900,000 people living or working within
subsidence due to the groundshaking, followed by
areas that could be inundated by a 50-foot tsunami.
multiple tsunami waves that inundated the low-
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town. Seward experienced 30- to 40-foot tsunamis Understanding the tsunami threat is the first step in
and local submarine landslides, causing extensive reducing potential losses. These guidelines repeatedly
damage to the docking areas and fires in petroleum stress the importance of compiling and applying good
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Principle 1: Know your community’s tsunami risk: hazard,
vulnerability, and exposure
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Tsunami risk is a function of three factors: 1) the state agencies are conducting ongoing tsunami
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nature and extent of the tsunami hazard; 2) the mapping programs. The methodologies used and
vulnerability of facilities and people to damage; and the geographic coverage of efforts vary from state
3) the amount of development or number of people to state. Generally, the mapping programs involve
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exposed to the hazard. some combination of computer modeling,
historical research, and field confirmation. The
There is no substitute for having a local evaluation
current round of tsunami inundation mapping is
of a community’s hazard, vulnerability, and
designed primarily to support evacuation plan-
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Damage to Crescent City, California, from the exposure. The information will help communities
ning, but provides a good starting point for land
1964 tsunami. Nearly 900,000 people in the five understand the causes and consequences of a
Pacific states live in the inundation zone for a use planning as well.
50-foot tsunami. Credit: Del Norte Historical
tsunami in order to design specific loss-prevention
Society measures and programs. Because of the often simplistic assumptions that
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are made in a statewide study, local land use
managers should conduct their own more refined
Process for Obtaining Local Tsunami assessments of tsunami inundation potential. Each
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Hazard Information level in the land use planning, site planning, and
building design hierarchy requires a different level
1) Prepare Tsunami Inundation Studies
of refinement in the information concerning
The first step in understanding your risk is to potential inundation and destructive effects. In
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estimate the extent and pattern of your many cases, it will only be possible to gather
community’s potential tsunami inundation, adequate information about the potential effects
tsunami frequency (recurrence interval), and the of local tsunamis because distant tsunamis are
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reliability of the estimate. In all five Pacific states, more difficult to model.
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Principle 1: Know your community’s tsunami risk: hazard,
vulnerability, and exposure
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Principle 1: Know your community’s tsunami risk: hazard,
vulnerability, and exposure
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studies, and differing interpretations or conclu- Strategies for Applying Hazard
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sions need to be identified and discussed. Information to Reducing Future
Losses
The case study on page 14 describes an earthquake
and tsunami scenario for the north coast of Strategy 1: Incorporate Hazard Information
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California, including damage probability and into Short- and Long-Term Planning Processes
assessments for a variety of facilities, infrastruc- One of the best ways to prevent future losses from
tures, and services. The Federal Emergency natural hazards is to ensure the subject is ad-
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Management Agency (FEMA) has developed a dressed along with all other issues in short- and
geographic information system (GIS)-based natural long-term comprehensive planning programs and
hazard loss estimation methodology, called project reviews. Some jurisdictions require that
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HAZUS, that can be adapted to address tsunami public safety considerations or specific hazards be
hazards in scenario studies. addressed. The resulting information becomes part
of the evaluation and decision-making processes.
Release of any loss scenario study should be
The scope of the hazard information will vary with
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accompanied by briefings of key community
the breadth or narrowness of the project, such as
groups and leaders, the media, elected and
amending a growth management plan, reviewing a
appointed officials, and others important to
specific development proposal, or modifying a
adopting and applying loss reduction measures.
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zoning ordinance.
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factored into decisions, approvals, and permits.
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Principle 1: Know your community’s tsunami risk: hazard,
vulnerability, and exposure
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Moreover, knowing that such information will be management becomes a regular part of the
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needed, owners and developers should be required to decision-making processes leading to sustainable
supply detailed hazards data and mitigation measures and more disaster-resistant communities.
as part of their proposals. Communities should have
Strategy 3: Estimate Reduced Future
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Public and Political Support for Mitigation from natural hazards, especially for rare events
Measures such as tsunamis, is to show that mitigation
Hazard information, loss estimates, and planning measures would be effective. At the community
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scenarios are powerful tools to create understand- level, the value of mitigation investments can be
ing and commitment to mitigation. They should be estimated by using scenarios and maps to evaluate
used to acquaint the populace with their exposure actions taken to reduce vulnerability and exposure
and vulnerability, empower them to take precau- to tsunami hazards. Informed judgments can be made
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tionary measures, build political consensus about by quantifying the losses that likely would have
acceptable risk-reducing policies and programs, occurred if such precautions had not been taken.
and strengthen emergency preparedness and
Strategy 4: Periodically Re-evaluate Community
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warning programs.
Vulnerability and Exposure
Moreover, hazard information, or procedures for The tsunami hazard is unlikely to change over time,
consulting such information, should be included in but communities are changing constantly. This
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other programs and processes affecting current dynamic process leads to changes in vulnerability
and future development. This will ensure that risk and exposure. Effective long-term tsunami
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Principle 1: Know your community’s tsunami risk: hazard,
vulnerability, and exposure
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mitigation means that loss studies should be
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reviewed and revised periodically—at least every five
years—to reflect changes in development patterns
and demographics. Regular review and revision will
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ensure that the most current information is applied,
and it could help to demonstrate the effectiveness of
loss prevention.
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Community vulnerability certainly should be
re-evaluated following a disaster or other severe
Damage from the 1960 tsunami in the Waiakea
area of Hilo, Hawaii. Parking meters were bent event, perhaps including comparable events in other
by the force of the debris-filled waves. Credit: locations around the world.
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U.S. Navy
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Principle 1: Case Study
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Norte Counties
City (Del Norte County). This report is an example of local hazard and risk
information that can be used to support mitigation efforts.
arrive minutes after the earthquake. The maps depict potential structure and
infrastructure damage and show locations likely to be flooded by a tsunami
caused by a potential great earthquake (magnitude 8.4) occurring offshore on
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other risk mitigation efforts. Excerpt from Scenario Map for Humboldt and Del Norte Counties
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Designing for Tsunamis
T sunami risk can be mitigated most effectively ordinances, and subdivision regulations. It focuses on
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by avoiding or minimizing the exposure of the types, patterns, and densities of uses that could
people and property through land use planning. and should be allowed within potential tsunami
Development should be prevented in high-hazard inundation areas based on consideration of the risk.
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areas wherever possible. Where development It is important to remember that the more locational
cannot be prevented, land use intensity, building mitigation (Principle 2) is used, the less design
value, and occupancy should be kept to a minimum. mitigation (Principles 3 and 4) is required.
Where these strategies are not available and
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Aerial view of tsunami and earthquake damage
to Valdez, Alaska, showing the extent of development will occur in possible tsunami inunda-
Process for Implementing Land Use
inundation along the coastline from the 1964 tion areas, planners and designers must look to
Great Alaska Earthquake. Coastal-dependent Planning Strategies
mitigation through site planning techniques as
development can conflict with safety goals.
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Credit: U.S. Department of the Interior discussed under Principle 3 or building construction The following outlines the steps that can be taken
techniques as discussed under Principle 4. when formulating a community land use strategy for
tsunami risk mitigation.
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The Role of Land Use Planning in 1) Understand Locational Context
Reducing Tsunami Risks Opportunities for reducing tsunami risk differ
depending on local circumstances, so a one-size-
Land use planning in communities guides the
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fits-all approach cannot be used. The presence or
location, type, and intensity of development and
absence of development within tsunami hazard
can, therefore, be used to reduce the community’s
areas will determine the type of planning ap-
exposure to tsunami hazards. Principle 2 focuses on
proach that is feasible. For example, vacant land
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large-scale land use planning issues, such as those
conversion, such as expansion of an existing
that are dealt with in comprehensive plans, zoning
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Principle 2: Avoid new development in tsunami run-up areas to
minimize future tsunami losses
community or development of a new community, 3) Review and Update Existing Safety Element
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will require different mitigation strategies than will The existing safety or natural hazards element of the
other forms of development such as infill, redevelop- comprehensive plan should be reviewed to deter-
ment, reuse, or changes in occupancy (see Principle 5). mine if it adequately recognizes tsunami hazards and
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planning issues and tsunami hazards. For example, the • technical information such as inundation zones
hazardous conditions such as erosion, flooding,
public access emphasis in Coastal Zone Management • loss scenario information hurricanes, and seismic hazards can assist in
mitigating tsunami risk. Credit: Oregon Department
(CZM) programs argues for locating visitor-serving
• goals and policies of Land Conservation and Development
development along the coastline; yet this access can be
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Principle 2: Avoid new development in tsunami run-up areas to
minimize future tsunami losses
the tsunami hazard, and be updated as necessary. consistency between the comprehensive plan and
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Land use policies and programs should address zoning and subdivision regulations vary among the
tsunami hazards as part of a comprehensive states. In California, for example, the zoning code
tsunami mitigation program. is considered part of the local coastal program
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(LCP) for coastal communities and is required to be
Such an update should focus on the location and
consistent with the general plan.
vulnerability to damage of existing and planned
land uses in the community, including the following: 6) Planning for Post-Tsunami Reconstruction
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• residential Disasters create the opportunity to eliminate
nonconforming uses and reshape existing patterns
• commercial/visitor-serving
of development to minimize future losses. On the
• industrial (general)
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other hand, they can also create enormous
• industrial (hazardous materials) pressure to rebuild the community quickly and
• public facilities (transportation and water exactly as it was before the disaster. These rebuild-
systems) ing issues should be addressed through the land
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• critical facilities and systems (communication, use planning process before a disaster strikes so
emergency response, electrical power, water that a community is prepared to deal with rebuild-
supply, and natural gas systems)
ing issues in the event of a disaster.
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5) Review and Update Existing Zoning,
Subdivision, and Other Regulations
Existing zoning, subdivision, and other regulations
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should be reviewed and updated with an eye toward
mitigating future tsunami losses. Requirements for
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Principle 2: Avoid new development in tsunami run-up areas to
minimize future tsunami losses
Specific Land Use Planning Strategies approaches such as zoning. Acquisition ensures that
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acquisition is cost.
reduce tsunami risk.
Strategy 2: Acquire Tsunami Hazard Areas or scenic easement that restricts the uses to which
for Open-Space Uses the property owner may put the land. A PDR
A second strategy is to acquire tsunami hazard areas program can also be constructed to purchase a fee-
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for open-space uses. Open-space acquisition has simple interest in a property and then to resell the
several advantages over strictly regulatory property with an easement restricting future
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Principle 2: Avoid new development in tsunami run-up areas to
minimize future tsunami losses
development. A similar result can be obtained Strategy 4: Support Land Use Planning
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through purchasing a fee-simple interest and then through Capital Improvement Planning and
leasing the property with restrictions on use. PDR Budgeting
programs are more effective in preserving land
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The capital improvement planning and budgeting
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from development where development pressure process can be used to reinforce land use planning
has not yet driven up land prices. policies. A major factor in determining future
development patterns is where a local jurisdiction
Large-lot zoning can ensure that only very low
Strategy 3: Restrict Development through
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chooses to extend sewer and water lines, roads, and
density residential uses are allowed in hazard Land Use Regulations
areas. other public facilities and services. Decisions can
In areas where it is not feasible to restrict land to
either discourage or encourage development in
open-space uses, other land use planning measures
tsunami and other hazard areas.
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can be used. These include strategically controlling
the type of development and uses allowed in hazard Natural hazard risk mitigation should be integrated
areas, and avoiding high-value and high-occupancy into infrastructure policy. Infrastructure policies by
uses to the greatest degree possible. themselves will not preclude development in certain
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areas, but they can reinforce land use plans, and they
For example, plan designations and zoning districts
can shape market forces to encourage development
can use density restrictions or large-lot zoning (e.g.,
in less hazardous areas by not subsidizing infrastruc-
10-acre minimum) to ensure that only very low-
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ture that serves a higher-risk hazardous area.
Development can be clustered on site areas density residential uses are allowed in hazard areas.
where risks are the lowest.
Another technique is to require clustering of develop-
ment on site areas where risks are the lowest.
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Principle 2: Avoid new development in tsunami run-up areas to
minimize future tsunami losses
Requirements
The safety element of a comprehensive plan and the
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Page 20
Designing for Tsunamis
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tsunami hazard area, the physical configu- Planning Strategies
ration of structures and uses on a site can reduce
The following outlines the steps that can be taken
potential loss of life and property damage. This
when formulating a site planning strategy for
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includes the strategic location of structures and
open space areas, interaction of uses and landforms, tsunami hazard mitigation.
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Cooperative, Comprehensive, and Integrated
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The Role of Site Planning in Reducing
The most effective site planning in coastal areas
Tsunami Risk
The waterfront area of Crescent City, California, includes a project review process that reflects the
flooded by the 1960 tsunami. Credit: USGS
Within the broader framework of a comprehensive area’s vulnerability and exposure to tsunami
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plan, site planning determines the location, configu- hazards, considers the broader policy and regula-
ration, and density of development on particular tory context, and is part of a larger mitigation
sites and is, therefore, an important tool in reducing strategy. An interactive and informed site planning
tsunami risk.
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and review process can save time for project
sponsors and provide better mitigation solutions.
At the site planning level in the planning/regulatory
hierarchy, the focus typically is on a single parcel or
Communities interact with project proponents at
collection of parcels of land 2 to 200 acres in size,
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various levels in the preparation and review of site
under the control of a single owner. This scale of
plans. The level of review relates to the scale and
planning provides limited opportunities for avoiding
context of a project. Some projects require site and
the tsunami hazard entirely, but can provide a broad
concept review, while others require a review of
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range of opportunities to design a project to
fully developed designs. Community-level project
minimize tsunami damage.
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Principle 3: Locate and configure new development that occurs in
tsunami run-up areas to minimize future tsunami losses
review can occur parallel to the design process in The site analysis phase can be used to establish site
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an interactive fashion. Alternatively, project site plan parameters for tsunami mitigation. Many
review can be more reactive based on predeter- communities have mapped hazard areas. Within these
mined criteria or plans. areas, communities may also have more detailed
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process that involves different disciplines and areas, but typically they do not reflect the catastrophic
multiple departments and decision-making bodies. potential of a tsunami that is accompanied by other
disasters. Besides inundation, near-source earth-
2) Understand Local Site Conditions
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of tsunami inundation, speed of currents, presence of should identify other hazardous conditions besides
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breaking wave or bore conditions, debris load, and elevation and shoreline configuration.
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Principle 3: Locate and configure new development that occurs in
tsunami run-up areas to minimize future tsunami losses
3) Choose a Mitigation Strategy for the Site they can be used to harden structures and sites to
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Many communities work with project sponsors to withstand the force of a tsunami. The efficacy of
select a mitigation approach during the site plan- these techniques depends on the intensity of the
ning process. Generally, this includes siting solutions tsunami event. If the tsunami hazard is underesti-
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that avoid, slow, steer, or block inundation. These mated, development in the area may still be vulner-
can be blended with building design and engineer- able to a larger event.
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Avoiding
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handling the force of a tsunami (see Principle 4).
Avoiding a tsunami hazard area is, of course, the
most effective mitigation method. At the site
Specific Site Planning Strategies to
planning level, this can include siting buildings and
Reduce Tsunami Risk
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infrastructure on the high side of a lot or raising
structures above tsunami inundation levels on piers
There are four basic site planning techniques that
or hardened podiums.
can be applied to projects to reduce tsunami risk:
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1) Avoid inundation areas Strategy 2: Slowing
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4) Block water forces
and strain debris from waves. To work effectively,
These basic strategies can be used separately or be these techniques are dependent on correctly
combined into a broader strategy. The methods can estimating the inundation that could occur.
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be used in passive ways to allow tsunamis to pass
through an area without causing major damage, or
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Principle 3: Locate and configure new development that occurs in
tsunami run-up areas to minimize future tsunami losses
Steering techniques guide the force of tsunamis In small communities, individual homes and infill
away from vulnerable structures and people by housing are the most common forms of develop-
strategically spacing structures, using angled walls ment. Often, there is great political pressure to allow
P•2
and ditches, and using paved surfaces that create a development of smaller sites that do not permit
low-friction path for water to follow. locating development out of the hazard area.
Communities can require that these smaller projects
P•3
Blocking, however, may result in amplifying wave with them. In some cases, new infill buildings can be
height in reflection or in redirecting wave energy to sited on the high side of a lot to avoid being hit by
other areas. another structure.
P•5
Page 24
Principle 3: Locate and configure new development that occurs in
tsunami run-up areas to minimize future tsunami losses
• siting primary access roads outside inundation structures above estimated inundation levels, and
P•1
areas and secondary access roads perpendicular buffering smaller buildings with larger hotels and
to the shore waterfront structures.
P•2
New hotels in coastal areas are typically multi- The downtowns of most coastal communities are
level concrete frame structures. The lower levels located adjacent to piers and beach areas. The primary
of these buildings can be designed for public areas access roads typically follow the coastline and are lined
P•3
P•3
Elevated restaurant in Hilo, Hawaii. Lower level is such as lobbies and support uses (such as parking) with commercial enterprises. Both of these develop-
designed to allow waves to pass through. Credit: for upper level rooms. In Hawaii, for example, ment patterns are susceptible to damage by tsunamis.
Mintier & Associates
lower levels of hotels have been designed to allow Strengthening and expanding harbor structures can
waves to pass through the ground floor parking, help protect adjacent commercial areas. Depending on
P•4
lobby, and service spaces, leaving upper level the tsunami, however, breakwaters can be swamped
rooms and meeting spaces undamaged. These by the rising tide and be ineffective. New buildings can
buildings must be designed to withstand both be elevated above inundation levels or hardened and
P•5
tsunami and earthquake forces. designed to withstand tsunami forces.
4) Resorts 6) Industrial
Resorts can include a broad range of facilities and Dry docks, refineries, power plants, and other
P•6
services, such as small-scale cottages, large hotels, shoreline industrial facilities are of special concern.
tennis facilities, swimming pools, golf, and beach- Destruction or flooding of industrial facilities can add
related recreation. Resort planning can draw on a another environmental dimension to a tsunami
P•7
variety of mitigation methods, including open disaster with burning oil, toxic chemicals, and other
space and tsunami forests, elevating or locating hazardous materials. Floating buildings, debris, and
Page 25
Principle 3: Locate and configure new development that occurs in
tsunami run-up areas to minimize future tsunami losses
mitigation technique.
Page 26
Principle 3: Case Study
Case Study: Hilo Downtown Development Plan Plan to provide parking for downtown businesses and to use parking
P•1
structures as a protective barrier from a tsunami for inland structures.
P•2
inundation lines. All redevelopment in the Safety District was subject to Downtown Hilo Redevelopment Plan under the authority of Chapter 27,
urban design and building design standards. Any structure below the 20- Flood Control, of the Hawaii County Code.
foot elevation contour line was required to be designed to withstand the
P•3
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force of a major tsunami. A Parking District was also designated in the
P•4
P•5
P•6
P•7
A section through the lower downtown area from the Hilo Downtown Development Plan. Credit: County of Hawaii
Page 27
P•7 P•6 P•5 P•4
P•4 P•3 P•2 P•1
Page 28
Designing for Tsunamis
W here buildings are to be constructed in a • intensity and frequency of the tsunami hazard
P•1
tsunami hazard area, the design and selected for design
P•2
specific design features–can reduce loss of life and
• reliability of utilities
property damage.
• professional abilities of designers
P•3
Reducing Tsunami Risk • level of confidence in these factors
As discussed under Principles 2 and 3, in areas Hospitals, fire stations, and schools would be
P•4
assigned higher performance objectives than those
P•4
subject to tsunamis and damaging run-up, the most
effective mitigation technique is to locate new assigned to tourist accommodations.
Damage to building in Hilo, Hawaii, from the 1960
tsunami. Although there are engineering techniques buildings away from potential inundation areas.
Potential tsunami damage to buildings can be
and materials that can be used to resist tsunami Where this is not possible, building design and
minimized during the early project design stage
P•5
forces and inundation, in cases of intense tsunamis,
construction will play a critical role in the perfor-
they will reduce losses but not prevent severe where performance objectives are decided, govern-
damage. Credit: Pacific Tsunami Museum mance of structures in the event of a tsunami.
ing standards are reviewed, and the configuration of
P•6
building’s final design and its actual construction.
A performance objective for a building depends
However, while special engineering techniques and
upon several considerations:
materials can be used to resist tsunami forces and
• location of the building and its configuration inundation, in the case of an intense tsunami, they
P•7
(size, shape, elevations, and orientation)
will reduce losses but not prevent severe damage.
Page 29
Principle 4: Design and construct new buildings to minimize
tsunami damage
Building Codes adoption of a fire code, and Hawaii does not mandate
P•1
Building construction in the United States is governed the use of a model code, leaving the option to county
at the local level by building codes. Building codes governments. All the counties in Hawaii and the larger
establish minimum acceptable requirements for cities in Alaska have adopted a version of the UBC. The
P•2
protecting life, addressing property damage, and states mandating the use of the UBC allow local govern-
preserving the public health, safety, and welfare in the ment amendments that are more stringent than the
built environment. Building codes are applied to new mandated code provisions.
Codes and Design Standards other states and municipalities. Guidance for architects
and engineers in the design for tsunami forces is
P•6
state governments mandate code adoption and uses more current information.
Page 30
Principle 4: Design and construct new buildings to minimize
tsunami damage
2) Ensure That Codes and Standards analyses will vary depending on location, building
P•1
Address the Full Range of Potential Hazards size, and type of construction, such as reinforced
While these guidelines emphasize tsunami loss concrete, wood, light metal, and others.
P•2
groundshaking should, of course, also be addressed
It is essential in the local hazard study to estimate tsunami
in the design of new buildings. Landslides, liquefac-
intensity for various return intervals. Small tsunamis are
tion, and other ground failures are potential
less damaging, but they may be more frequent than
Design solutions to tsunami effects
P•3
problems in many coastal areas, as are seasonal
occasional greater events. Smaller tsunamis might serve
floods where rivers and streams enter the ocean.
as the basis for designing most buildings. However, the
Loss-prevention measures have already been
rarer large events with higher water levels and
P•4
adopted for most of these hazards, and it is impor-
stronger forces should be the basis for designing critical
P•4
tant to recognize them in the effort to minimize
facilities, such as hospitals, fire stations, and refineries.
direct tsunami losses.
5) Define the Building’s Performance Level
3) Apply Locally Valid Tsunami Hazard
P•5
Performance levels describe expectations of owners,
Information
occupants, and regulators relative to the amount of
Where a tsunami hazard study has been prepared to damage a building could sustain from a tsunami and
inform local design decisions, the information can the building’s ability following a tsunami event to
P•6
be used to decide whether to permit construction at support the uses for which it was intended. The design
a given site. If construction is to be permitted, the of a building to achieve a particular performance level
building design must address tsunami-related involves a set of decisions that begins with determining
forces, including water pressure, buoyancy, currents the importance of the building and understanding the
P•7
and waves, debris impact, scour, and fire. The consequences of damage to the building.
Page 31
Principle 4: Design and construct new buildings to minimize
tsunami damage
There are four performance levels that can be Finally, the most demanding requirements are used to
P•1
considered for buildings: minimum, safety, design buildings to meet the operational level of
reoccupancy, and operational levels. performance. These buildings should be capable of
resisting all expected forces and hazards. They must
Buildings located, designed, and constructed to the
P•2
precautions should be taken so they can be reoccu- Substantially constructed buildings of concrete,
pied within a few days to weeks after cleanup, minor masonry, and heavy steel frames are likely to perform
repairs, and the restoration of utilities. This level fairly well in a tsunami unless compromised by
P•7
requires the careful choice of the building location earthquake shaking. Wood-frame buildings,
and the use of flood-resistant materials.
Page 32
Principle 4: Design and construct new buildings to minimize
tsunami damage
manufactured housing, and light steel-frame struc- Strategy 2: Require Qualified Architects and
P•1
tures at lower elevations close to the shoreline are Engineers to Design Large Buildings
likely to fare poorly in a tsunami. Not every area Building design is governed by engineering prin-
affected by tsunami run-up, however, will experience ciples and practices and by building codes that
P•2
damaging forces. Buildings in less hazardous areas establish minimum standards relating to public
affected by shallow run-up water depths should health and safety; however, codes are no substitute
survive with repairable damage if they are designed for competent engineering, design, construction, and
and constructed well. The force of currents and
P•3
quality assurance.
breaking waves, fast-moving waterborne debris, and
scouring currents may exceed the resisting capabilities Specialized expertise is often needed when design-
of most buildings unless the buildings are constructed ing and constructing large, complex, or unusually
P•4
P•4
with specific design elements and materials. shaped buildings. Communities should identify
proposed projects that require specially qualified and
The table on page 35 lists the possible effects of
licensed professionals, see that the owning/develop-
tsunamis on structures (such as flooding, water
ing organizations secure such assistance early in the
P•5
pressures and forces, buoyancy, debris impacts,
project planning phase, and help locate sources of
foundation scouring) and suggests possible
qualified assistance. Professional associations can
design solutions for each of the potential effects
help local officials find needed experts such as
(such as elevating and anchoring buildings;
P•6
architects and geotechnical, coastal, and structural
designing for water forces, pressures, and impact
engineers who are familiar with coastal design and
loads; and using deep piles or piers). As noted construction issues.
above, it is important that the design measures be
P•7
based on the local hazard study so that expected Some jurisdictions require that such professionals be
involved in building design and be identified on the
forces determine the design solutions.
Page 33
Principle 4: Design and construct new buildings to minimize
tsunami damage
Page 34
Principle 4: Design and construct new buildings to minimize
tsunami damage
P•1
design solutions
P•2
P•3
P•4
P•4
P•5
P•6
P•7
Page 35
P•7 P•6 P•5 P•4 P•3 P•2 P•1
Page 36
Designing for Tsunamis
T he challenges in protecting existing develop While many tsunami mitigation techniques used in
P•1
ment from tsunami losses are many and new development can be applied to existing develop-
complex. For coastal communities that are nearly ment, their application will be limited by site con-
built out, protecting existing development may be straints and building conditions.
P•2
the only real mitigation option available. However,
The reconstruction process following a disaster
land uses, buildings, and infrastructure change over
provides an opportunity to create or modify land uses,
time, creating opportunities to incorporate tsunami
implement redevelopment plans, rehabilitate build-
(and other hazard) loss-prevention measures to help
P•3
Astoria, Oregon, at the mouth of the Columbia ings, and vacate high-hazard lands subject to repetitive
River. Many of the tsunami risk mitigation make communities less vulnerable in the future.
losses–all with the intent of reducing future losses.
techniques used for new development can be
applied to existing development, but their
application will be limited by site constraints and The Role of Renewal in Reducing
P•4
building conditions. Credit: Army Corps of
Process for Reducing Vulnerability
Tsunami Risk
Engineers Through Renewal Efforts
Efforts to renew communities can take many forms,
1) Inventory At-Risk Areas and Properties
P•5
including redefining permitted land uses, changing
P•5
If not already available, an inventory should be
zoning standards, changing building uses and
completed of buildings, critical facilities, and
occupancies, retrofitting and rehabilitating buildings,
infrastructure elements in the potential tsunami
and redeveloping districts to improve their economic
inundation area (see Principle 1 for a more detailed
P•6
vitality. There may also be special considerations in
discussion of this topic). More than a simple tally, this
tsunami-vulnerable areas such as protecting land-
marks and historic structures, creating scenic vistas, inventory should take into account the type of
providing improved access to coastal amenities, structure, its age, size and configuration, construction
P•7
improving services, and accommodating needed material, and use.
Page 37
Principle 5: Protect existing development from tsunami losses through
redevelopment, retrofit, and land reuse plans and projects
For risk-mitigation purposes, it is important to Building codes primarily address new construction;
P•1
assess the condition of buildings and their construc- generally, they do not address renovations and
tion characteristics. Significant deterioration may retrofitting comprehensively or in detail. Local
demand replacement, but retrofit and rehabilitation building codes should be amended to fully address
P•2
may be appropriate in other cases. risk mitigation in the context of building renovation.
As a starting point, there are several examples of
Some buildings are complex, having been modified
code amendments concerning retrofitting buildings
or expanded over time. It is rare that adequate
for earthquake hazards that can be adapted for
P•3
drawings of older buildings are available. This Anchor bolts. Measures to resist earthquake
tsunami hazards. The Federal Emergency Manage- shaking, such as anchoring and bracing
usually means that an engineering study is needed buildings, can also help to reduce tsunami
ment Agency (FEMA) sponsored the preparation of a
to determine the actual characteristics of the damages. Credit: Northridge Collection,
multiple-volume guide on rehabilitating buildings to Earthquake Engineering Research Center,
building before project-specific rehabilitation or
P•4
resist earthquake forces. Several states and commu- University of California, Berkeley
retrofit plans can be made.
nities have also adopted laws and ordinances
2) Evaluate and Revise Plans and governing the retrofitting and rehabilitation of
P•5
Page 38
Principle 5: Protect existing development from tsunami losses through
redevelopment, retrofit, and land reuse plans and projects
P•1
Reduce Tsunami Risk Measures to Support Loss Prevention
One key to the success of redevelopment and other
Strategy 1: Adopt Special Programs and
renewal measures is helping building owners bear the
Development Regulations
P•2
cost of the proposed changes. There are many
There is a variety of specific development regulations commonly used incentives that help spur renewal,
and programs that local communities can implement such as reduced property taxes, waiving of permit and
to minimize tsunami risk, including: inspection fees, and low interest loans. Local officials
P•3
An excerpt from the tsunami inundation map in
should ensure that whatever incentives are used
the Hilo Downtown Development Plan. Credit: • redesignating and rezoning land in tsunami hazard
County of Hawaii areas for uses more consistent with the risk as non- include risk mitigation as an eligible purpose.
P•4
• limiting additions to existing buildings in tsunami
sions for the Retrofit of Existing Buildings
hazard areas
Retrofit of existing buildings should be encouraged
• buying specific properties in tsunami hazard areas
P•5
when the effort will improve tsunami resistance to
P•5
and removing or relocating buildings
a level capable of meeting identified performance
Strategy 2: Use Redevelopment Strategies to objectives, or to minimize floating debris that can
P•6
Redevelopment land acquisition and financing required for all buildings within a hazard zone, or
powers can be used on a district-wide scale to may be mandated only when substantial modifica-
reconfigure uses or infrastructure, retrofit specific tions are made to existing structures or when there
P•7
tsunami hazard areas.
Page 39
Principle 5: Protect existing development from tsunami losses through
redevelopment, retrofit, and land reuse plans and projects
The complexities associated with strengthening hazards are more likely to be feasible. These include
P•1
existing structures may require the development, elevating buildings above the base flood elevation,
adoption, and implementation of special codes, improving foundations to resist scour and erosion,
standards, and procedures. Moreover, special purpose and anchoring and bracing the buildings to resist
P•2
requirements may exist, such as codes governing the earthquake shaking. Although these measures can
rehabilitation of historic buildings, that may or may reduce tsunami damage, especially in the statistically
not contain provisions for protecting against hazards. more-frequent small tsunamis, they will not ensure
Flexibility may be needed to ensure that effective that a building is able to withstand the intense forces
P•3
mitigation techniques can be applied to such proper- associated with larger events.
ties without seriously disrupting their original
characteristics.
Strategy 5: Require Qualified Architects and
P•4
Page 40
Designing for Tsunamis
C ertain facilities in a community deserve special The Role of Infrastructure and Critical
P•1
attention in the planning and design process Facility Location and Design in
to minimize damage to them. Infrastructure such as Reducing Tsunami Risk
transportation systems for people and goods, and
Infrastructure and critical facilities are often located
P•2
utility systems such as communications, natural gas,
on the coast within tsunami hazard areas. In some
water supply, power generation, and transmission/
cases, such as fire stations, the facilities may need to
distribution systems are essential to the continued
be located in tsunami hazard areas; in other cases,
operation of a community and need to be
P•3
they could just as easily be located outside the
functional—or easily and rapidly repairable—
tsunami hazard area.
Bore advancing through the railroad bridge at the
following a disaster.
Wailuku River in Hilo, Hawaii, during the 1946
Because of the services these facilities provide—or
tsunami. Credit: Pacific Tsunami Museum
P•4
Other facilities in the community are considered the harm they could cause—to the community, their
critical because of their occupants or the functions performance during natural hazard events is a
they contain. These include: 1) essential service community-wide concern that needs to be consid-
facilities such as fire stations; 2) hazardous facilities ered as part of a tsunami risk management effort.
P•5
such as chemical plants or fuel storage tanks; and 3)
special occupancy structures with uses such as Process for Implementing
government functions important to sustaining a Infrastructure and Critical Facility
P•6
Location and Design Strategies
P•6
community, buildings with large numbers of occu-
pants, or buildings such as convalescent homes with
1) Understand Tsunami Mitigation
occupants who cannot evacuate the premises readily.
Responsibilities
P•7
Managing the tsunami risk is a responsibility shared
by the government and private sectors. Depending
Page 41
Principle 6: Take special precautions in locating and designing
infrastructure and critical facilities to minimize tsunami damage
on the community, infrastructure systems and damage area and describe why their functions
P•1
critical facilities may be owned and managed by make tsunami resistance an important issue for
the community and what makes each facility
local or state agencies, special districts, private
vulnerable to damage from tsunami forces.
companies, nonprofit organizations, federal depart-
P•2
ments and agencies, joint powers authorities, or • Identify the responsible organizations and include
their representatives in the mitigation process.
others. Mitigation programs need to involve all
participants in the planning process.
3) Adopt Comprehensive Risk
P•3
Extent of the Tsunami Hazards for Infrastruc- Communities should adopt policies to manage the A boat washed up over 400 feet onshore from
ture and Critical Facilities tsunami risk and integrate them into coastal the wharf by the 1946 tsunami in Hilo, Hawaii.
Credit: Pacific Tsunami Museum
management programs, land use plans, floodplain
P•4
studies, it is important to include information about programs, and other procedures used to control
infrastructure and critical facilities and to identify the use and safety of facilities near the shoreline.
P•5
• Define the tsunami hazard (see Principle 1) and could be adapted for tsunami hazards. The UBC
describe it by intensity (expected effects) and requires the use of enhanced seismic and wind
probability of occurrence. forces for design, and enhanced structural
• Inventory and gather data about infrastructure inspection during construction of essential service
P•7
elements and critical facilities in the potential facilities. To ensure stronger structures, the UBC uses
Page 42
Principle 6: Take special precautions in locating and designing
infrastructure and critical facilities to minimize tsunami damage
P•1
critical facilities
by 15 to 50 percent over those calculated for other design measures are implemented. Proposals for
INFRASTRUCTURE occupancy categories. new infrastructure should be evaluated in terms of
P•2
example, construction of new buildings and
• Roads, highways, bridges, parking lots and
and Critical Facility Plan
structures, and traffic control systems facilities may be facilitated by the provision of new
Communities should revise or adopt measures that
• Railroads track beds, bridges, and rail and water or wastewater collection services in the
switching yards for freight and passengers deal with existing and new infrastructure, critical
hazard area.
P•3
• Transit systems (rail, trolley, tram, and motor facilities, and waterfront-dependent uses in relation
coach), storage and maintenance facilities, to tsunami hazards. These comprehensive infra- Existing infrastructure and critical facilities are
power systems and substations, control
structure and critical facility plans should define particularly problematic. It is difficult and expen-
systems, bridges, tunnels, and tubes
P•4
performance objectives for the various types of sive to improve the tsunami performance of
• Airports and control towers
existing and planned facilities in the community. existing facilities and infrastructure, and relocation
• Maritime ports, and maritime traffic control
systems, marine terminals, loading/unloading Strategies should include relocating or, if possible, is usually impractical, especially in the short term.
facilities, storage facilities (including tank farms), However, understanding the risk to these existing
strengthening existing infrastructure and critical
docks, and ship moorings, piers, seawalls, and
P•5
bulkheads facilities against tsunami forces. They should also facilities and anticipating the consequences of
include providing redundant facilities and emer- tsunami events can lead to long-term risk-reduc-
Utility Systems
gency response measures to lessen the impact of ing strategies (see Principle 5 for a more detailed
• Electrical generation, transmission, substations,
P•6
losing infrastructure and critical facilities that
P•6
and distribution systems discussion of issues related to existing buildings).
P•7
stations, trunk lines, and data lines
considered carefully to determine whether the importance to the community and to establish
(cont.)
Page 43
Principle 6: Take special precautions in locating and designing
infrastructure and critical facilities to minimize tsunami damage
actions. This work includes the following: Facility Location and Design Strate- • Cellular systems, switching stations,
gies to Reduce Tsunami Risk antenna, and towers
• Determine appropriate performance levels
(i.e., acceptable damage condition for a given • Cable systems for television, radio, and data
Strategy 1: Locate New Infrastructure and
P•2
tsunami intensity and probability). See Principle 4 • Satellite systems for television and data
Critical Facilities Outside the Tsunami Hazard
for a discussion of performance levels. • Potable water systems: wells, water supply
Area or Design to Resist Tsunami Forces sources, storage, pumps, and treatment
• Determine how each existing system and facility has
• Examine plans for infrastructure and critical and distribution systems
addressed tsunami and earthquake mitigation plus
P•3
facilities to see if other, equally efficient alterna- • Sewerage collection, mains, pumps,
any important site hazards, such as potential
tive locations, alignments, and routes can be treatment facilities, and outfalls
landslides or soil failures.
used. Most critical facilities need not be located in • Pipelines that transport oil, fuels, and other
• Establish a scale of relative importance to help focus petroleum products
a tsunami hazard area to serve their intended
P•4
mitigation efforts (e.g., preventing losses of the • Storm water runoff facilities, drainage, and
purpose. Some essential facilities may need to be
potable water systems may be more important pipelines
located in a tsunami hazard area because
than preventing losses of the wastewater system).
alternative locations will not serve the day-to-
• Set acceptable outage intervals for each element day needs of the community. CRITICAL FACILITIES
P•5
mine appropriate performance levels and whether • Hospitals with surgery, acute care, or
• Prohibit new critical facilities in tsunami hazard emergency rooms
their use is dependent on a waterfront location.
areas unless: 1) they are waterfront dependent • Emergency operations and communications
• For existing infrastructure and critical facilities, facilities and equipment
and the design can mitigate the vulnerability to
determine which mitigation options or combina-
P•7
such an extent that the resulting facility will • Garages and shelters for emergency
tion of options can reduce the risk and whether vehicles and aircraft
perform as needed; 2) risk is reduced through
the remaining risk would be acceptable.
(cont.)
Page 44
Principle 6: Take special precautions in locating and designing
infrastructure and critical facilities to minimize tsunami damage
P•1
or 3) the need for the facility outweighs the sources of qualified assistance that can be
• Standby power-generating equipment for consequences of its loss during a tsunami (e.g., a contacted when needed.
essential services
small hospital in a remote, tsunami-prone area
• Where it is impractical to locate infrastructure and
• Tanks or other structures containing water may be justified because it needs to be close to
P•2
or other fire-suppression material or critical facilities outside tsunami hazard areas,
the population for routine emergencies).
equipment required to protect essential, ensure that adequate mechanisms exist to isolate
hazardous, or special occupancy facilities • Prohibit infrastructure improvements that will the damaged area, such as shutoff valves, detours,
• Permanent lifeguard stations encourage construction of other facilities that and others.
P•3
cannot withstand the tsunami hazard.
Strategy 2: Protect or Relocate Existing
Special Occupancy Structures
• Consider the impact of new infrastructure on Infrastructure and Critical Facilities
• Schools
hazard intensity and distribution. For example,
• Do not allow expansion or renovation of existing
• Universities and colleges does it change drainage patterns, increase
P•4
facilities in tsunami hazard areas without requir-
• Residential treatment centers and nursing exposure to inundation, or channel currents in a
ing measures to reduce the risk.
and convalescent homes way that will increase the hazard?
• Retirement communities • Construct barriers (reinforced walls and columns)
• Provide redundant facilities and infrastructure
to protect against impact forces and scour.
• Large-occupancy structures
P•5
outside tsunami hazard areas where elements
• Power-generating stations and other utility and facilities must serve high-hazard areas. • Elevate existing facilities above the inundation
facilities needed for continuous operations elevation.
• Employ design professionals qualified in coastal,
• Relocate portions of at-risk facilities.
P•6
Hazardous Facilities structural, and geotechnical engineering on
P•6
infrastructure and critical facility projects in • Take advantage of the eventual obsolescence of
• Fuel docks and storage
high-hazard areas. Communities should identify existing infrastructure and critical facilities as an
• Spent nuclear fuel storage
proposed projects that should involve specially opportunity to phase out the facility, relocate the
• Chemical storage facilities
qualified and licensed professionals, see that the facility, or incorporate design standards that will allow
P•7
• Rail tank cars and trucks with chemicals owning organizations secure the specialized for acceptable performance following a tsunami.
• Munitions storage, loading docks, and assistance as early as possible in the project
harbors
Page 45
Principle 6: Take special precautions in locating and designing
infrastructure and critical facilities to minimize tsunami damage
response, recovery, and replacement facilities. It Petroleum tank on fire due to damage from the
is important to remember that in a tsunami an 1964 tsunami on Highway 101 near Crescent
expendable building may turn into debris that City, California. Credit: Del Norte Historical Society
Page 46
Designing for Tsunamis
T he primary strategy for saving lives immedi- areas where building and population densities are
P•1
ately before tsunami waves arrive is to evacu- high, where roads, bridges, and other horizontal
ate people from the hazard zone. Two methods are evacuation methods are limited, or where warning
generally available: time may be insufficient, vertical evacuation may
P•2
be needed as an alternative or supplement to
• horizontal evacuation—moving people to more
horizontal evacuation. Land use planning, site
distant locations or higher ground
planning, and building design discussed in the
Vertical and horizontal evacuation • vertical evacuation—moving people to higher
previous principles play an important role in a
P•3
floors in buildings
community’s ability to rely, at least partially, on
Horizontal evacuation and other emergency
vertical evacuation to protect people.
response measures are outside the scope of these
P•4
guidelines and have been addressed in other
publications (see Resources and Bibliography at the Process for Implementing a Vertical
end of the guidelines). Vertical evacuation, however, Evacuation Strategy
is addressed in these guidelines since it is linked to
P•5
issues of land use, siting, and building design and
1) Inventory Existing Buildings
P•6
The Role of Vertical Evacuation in
serve as vertical evacuation shelters. This may be
Reducing Tsunami Losses
difficult because important information about
Evacuating people can save lives and reduce existing buildings, such as drawings and calculations,
P•7
P•7
injuries, but it will have little, if any, effect on may not be available. Professional engineers play a
reducing property and economic losses. In coastal key role in evaluating the capacity of structures to
Page 47
Principle 7: Plan for evacuation
resist expected forces, and their reports often lead to 3) Designate Emergency Services Personnel
P•1
Page 48
Principle 7: Plan for evacuation
Specific Vertical Evacuation Plan used to allow the waves to pass through with minimal
P•1
Strategies to Reduce Tsunami impact on the building. Further information about
P•2
Strategy 2: Work Out Agreements and
Serve as Vertical Shelters
Procedures with Building Owners
Some existing buildings can serve as vertical shelters
and newer ones can be located, designed, and To a large extent, vertical evacuation shelters will be
P•3
constructed with that use in mind. Local building designated in privately owned buildings. For a
officials and consulting engineers can help inventory program to be effective, therefore, appropriate
the community’s stock of candidate buildings, agreements should be negotiated with the owners,
evaluate the buildings’ tsunami- and earthquake- and the owners or their representatives should be
P•4
resistant capabilities, and establish criteria and involved in the creation and maintenance of the
Tsunami evacuation route sign in Crescent City, standards for rehabilitation or new construction that program. While they will vary among communities
California. Credit: FEMA and states, issues related to notification, standards of
meet the expected hazard forces so the buildings will
care, compensation, duration of occupancy, security,
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be able to serve as shelters.
and liability will be important to the owners.
Factors to be considered in determining a building’s
suitability include size, number of stories, access, Strategy 3: Ensure Procedures Exist to
contents, and available services. Only those buildings Receive and Disseminate Warnings
P•6
judged able to withstand the potential tsunami and
It is very important that tsunami-vulnerable commu-
earthquake forces and that meet other occupancy
nities have adequate procedures and systems for
criteria should be designated as shelters. For example,
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notification by official warnings so appropriate
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if expected tsunami wave heights will not exceed one
actions can be taken, sometimes many hours in
story (about 10 feet), then open-floor designs can be
Page 49
Principle 7: Plan for evacuation
advance for distant tsunamis. Local tsunamis pose Strategy 5: Maintain the Program Over the
P•1
Communities can use brochures, single-page instruc- reviewed and revised regularly. Since cooperation is
tions, periodic warning system tests, electronic and essential, these reviews should include building
P•4
print media information, signs, and emergency owners and others involved in the program. Periodic
response exercises to maintain awareness and instill simulations are a valuable learning exercise, and
effective response behavior. Some of this information regular informational and instructional materials
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will be directed towards specialized institutions, such should be provided to those occupying potential
Tsunami evacuation map from the civil defense
as schools, hospitals, and convalescent-care facilities, tsunami damage areas.
section of the Hilo, Hawaii, telephone book
and non-English speaking community members.
Because of seasonal tourism in many coastal commu-
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Page 50
Principle 7: Case Study
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T he following is a description of tsunami warning programs. This topic is not directly related to
vertical evacuation, but provides helpful background information.
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As part of an international cooperative effort to save lives and protect property, the National Oceanic and
Atmospheric Administration’s (NOAA) National Weather Service operates two tsunami warning centers.
The West Coast and Alaska Tsunami Warning Center (WCATWC) in Palmer, Alaska, serves as the regional
tsunami warning center for Alaska, British Columbia, Washington, Oregon, and California.
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Tsunami hazard zone logo
The Pacific Tsunami Warning Center (PTWC) in Ewa Beach, Hawaii, serves as the regional tsunami
warning center for Hawaii and as a national/international warning center for tsunamis that pose a
Pacific-wide threat. This international warning effort became a formal arrangement in 1965 when PTWC
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assumed the international warning responsibilities of the Pacific Tsunami Warning System (PTWS). The
PTWS is composed of 26 international member states that are organized as the International Coordina-
tion Group for the Tsunami Warning System in the Pacific.
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The two tsunami warning centers coordinate the information being disseminated. The objective of the
tsunami warning centers is to detect, locate, and determine the magnitude of potentially tsunamigenic
earthquakes. Earthquake information is provided by seismic stations. If the location and magnitude of an
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earthquake meet the known criteria for generation of a tsunami, a tsunami warning is issued to warn of
an imminent tsunami hazard. The warning includes predicted tsunami arrival times at selected coastal
communities within the geographic area defined by the maximum distance the tsunami could travel in a
few hours. A tsunami watch with additional predicted tsunami arrival times is issued for a geographic
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area defined by the distance the tsunami could travel in a subsequent time period.
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Principle 7: Case Study
Tsunami watch, warning, and information bulletins are disseminated to appropriate emergency officials
and the general public by a variety of communication methods:
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• Tsunami watch, warning, and information bulletins issued by PTWC and WCATWC are disseminated to
local, state, national, and international users as well as the media. These users, in turn, disseminate
the tsunami information to the public, generally over commercial radio and television channels.
• The NOAA Weather Radio System, based on a large number of VHF transmitter sites, provides direct
P•4
• The U.S. Coast Guard also broadcasts urgent marine warnings and related tsunami information to
coastal users equipped with medium frequency (MF) and very-high-frequency (VHF) marine radios.
P•5
• Local authorities and emergency managers are responsible for formulating and executing evacuation
plans for areas under a tsunami warning. The public should stay tuned to the local media for evacua-
tion orders should a tsunami warning be issued. And, the public should not return to low-lying areas
until the tsunami threat has passed and the local authorities announce the “all clear.”
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Designing for Tsunamis
GLOSSARY
Amplitude: Period:
The tsunami’s rise above or drop below the ambient water level as read on a The length of time between two successive peaks or troughs. May vary due to
tide gauge. complex interference of waves. Tsunami periods generally range from 5 to 60
minutes.
Bore:
Traveling wave with an abrupt vertical front or wall of water. Under certain Run-up:
conditions, the leading edge of a tsunami wave may form a bore as it Maximum height of the water onshore observed above a reference sea level.
approaches and runs onshore. A bore may also be formed when a tsunami Usually measured at the horizontal inundation limit.
wave enters a river channel, and may travel upstream penetrating to a
greater distance inland than the general inundation. Seiche:
An oscillating wave in a partially or fully enclosed body of water. May be
Harbor Resonance: initiated by long period seismic waves, wind and water waves, or a tsunami.
The continued reflection and interference of waves from the edge of a harbor
or narrow bay. This interference can cause amplification of the wave heights Tidal Wave:
and extend the duration of wave activity from a tsunami. Common term for tsunami used in older literature, historical descriptions, and
popular accounts. Tides, caused by the gravitational attractions of the sun and
Horizontal Inundation Distance: moon, may increase or decrease the impact of a tsunami, but have nothing to
The distance that a tsunami wave penetrates onto the shore. Measured do with their generation or propagation. However, most tsunamis (initially)
horizontally from the mean sea level position of the water's edge, it is usually give the appearance of a fast-rising or fast-ebbing tide as they approach
measured as the maximum distance for a particular segment of the coast. shore, and only rarely appear as a near-vertical wall of water.
Inundation: Travel Time:
The depth, relative to a stated reference level, to which a particular location is Time (usually measured in hours and tenths of hours) that it took the tsunami
covered by water. to travel from the source to a particular location.
Inundation Area: Tsunami:
An area that is flooded with water. A Japanese term derived from the characters “tsu” meaning harbor and
Inundation Line (limit): “nami” meaning wave. Now generally accepted by the international scientific
The inland limit of wetting, measured horizontally from the edge of the coast, community to describe a series of traveling waves in water produced by the
defined by mean sea level. displacement of the sea floor associated with submarine earthquakes,
volcanic eruptions, or landslides.
Local/Regional Tsunami:
Source of the tsunami is within 1000 km of the area of interest. Local or near-
field tsunami has a very short travel time (30 minutes or less), mid-field or
regional tsunami waves have times on the order of 30 minutes to 2 hours.
Note: “local” tsunami is sometimes used to refer to a tsunami of landslide
origin.
Page 53
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Designing for Tsunamis
RES
RESOURCES
RESOURCES FOR LOCAL GOVERNMENT OFFICIALS AND U.S. Federal Emergency Management Agency, 1993. Are You Ready? Your
Guide to Disaster Preparedness. Washington, D.C.: U.S. Federal Emergency
THE PUBLIC
Management Agency.
Compiled by Lee Walkling, Library Information Specialist, Washington U.S. Federal Emergency Management Agency, 1998. Property Acquisition
Department of Natural Resources, Division of Geology and Earth Resources Handbook for Local Communities. 3 vol. poster (FEMA 317). Washington, D.C.:
U.S. Federal Emergency Management Agency. (For more information: http://
BOOKS www.fema.gov/mit/handbook/)
American Institute of Professional Geologists, 1993. The Citizens' Guide to U.S. Federal Emergency Management Agency, 2000. Coastal Construction
Geologic Hazards—A Guide to Understanding Geologic Hazards, Including Manual—Principles and Practices of Planning, Siting, Designing, Constructing,
Asbestos, Radon, Swelling Soils, Earthquakes, Volcanoes, Landslides, Subsidence, and Maintaining Residential Buildings in Coastal Areas. 3rd. ed., 3 vol. (FEMA
Floods, and Coastal Hazards. Arvada, CO: American Institute of Professional 55) Washington, D.C.: U.S. Federal Emergency Management Agency. (For more
Geologists. (Good overview and easy-to-understand explanations) information: http://www.fema.gov/MIT/bpat/bpn0600e.htm)
Myles, Douglas, 1985. The Great Waves. New York: McGraw-Hill Book Com-
PERIODICALS
pany. (For the general public)
Mileti, Dennis S., 1999. Disasters by Design—A Reassessment of Natural Natural Hazards Observer (print and online versions)
Hazards in the United States. Washington, D.C.: John Henry Press. (Prepared- (http://www.colorado.edu/IBS/hazards/o/o.html)
ness and mitigation) The bi-monthly newsletter of the Natural Hazards Center. It covers current
Atwater, Brian F.; Marco V. Cisternas; Joanne Bourgeois; Walter C. Dudley; disaster issues; new international, national, and local disaster management,
James W. Hendley, II; Peter H. Stauffer, compilers, 1999. Surviving a Tsunami— mitigation, and education programs; hazards research; political and policy
Lessons from Chile, Hawaii, and Japan. U.S. Geological Survey Circular 1187. developments; new information sources; upcoming conferences; and recent
publications.
U.S. Federal Emergency Management Agency, 1998. The Project Impact
Hazard Mitigation Guidebook for Northwest Communities—Alaska, Idaho, TsuInfo Alert Newsletter
Oregon, Washington. Washington, D.C.: U.S. Federal Emergency Management The bi-monthly newsletter of the National Tsunami Hazards Mitigation
Agency. (Good list of additional resources and websites and books in the Program is distributed to approximately 250 emergency managers of the five
appendix) Pacific coastal states. Back issues are online: http://www.wa.gov/dnr/htdocs/
ger/tsuinfo/index.html
Page 55
RESOURCES
WEBSITES VIDEOS
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Designing for Tsunamis
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