Environment Waikato Policy Series 1997/12
Earthquake Risk Mitigation
Plan
Prepared by:
M Malcolm and D Parkin
Natural Hazards Programme
For:
Environment Waikato
PO Box 4010
HAMILTON EAST
March 1998
Document #: 487363
Acknowledgements
The authors wish to acknowledge the following staff for their key contributions to this
plan:
Scott Fowlds, Don Scarlet, Jim Dahm and Margot Rawlings.
The valuable input from the Executive Management Team and Councillors is also
acknowledged.
We would also like to acknowledge the advice provided by external agencies and
individuals: Janet Gough of Lincoln Environmental, Tonkin and Taylor and Opus
International Consultancy.
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Table of Contents
ACKNOWLEDGEMENTS
I
EXECUTIVE SUMMARY
III
BACKGROUND AND EXPLANATION
V
PRINCIPLES
1 HAZARD PLANNING AND MANAGEMENT
Issue
Objective
Policy
Actions
Explanation and principal reasons for adopting
ENVIRONMENTAL RESULTS ANTICIPATED
2 RESPONSE AND RECOVERY
ISSUE
OBJECTIVE
POLICY
ACTIONS
Explanation and principal reasons for adopting
Environmental Results Anticipated
3 MONITOR AND REVIEW
Issue
Objective
Policy
Actions
Explanation and principal reasons for adopting
Environmental Results Anticipated
VII
1
1
1
1
1
2
7
10
10
10
10
10
11
12
13
13
13
13
13
13
13
APPENDIX I: SUMMARY OF ACTIONS - REDUCING ADVERSE EFFECTS
15
APPENDIX II: SUMMARY OF ACTIONS - RESPONSE AND RECOVERY
16
APPENDIX III: SUMMARY OF ACTIONS - MONITOR AND REVIEW
17
APPENDIX IV: EXISTING MANAGEMENT – LEGISLATION
18
APPENDIX V: EXISTING MANAGEMENT – LOCAL GOVERNMENT DOCUMENTS
19
APPENDIX VI: EARTHQUAKE HAZARD AND NZ 4203 SEISMIC RISK ZONES
20
GLOSSARY
22
Acronyms
23
REFERENCES
25
BIBLIOGRAPHY
27
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Table of Figures
Figure 1:
Figure 2:
Figure 3:
The Planning Framework
Earthquake Hazard and NZ 4203 Seismic Risk Zones
Information Exchange and Dissemination
ix
3
5
Table of Tables
Table 1:
Table 2:
Table 3:
Table 4:
Table 5:
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Groundshaking Categories
Application of Loadings Standard and the Earthquake Hazard Map
Approximate Population and Land Area within Peak Ground Acceleration Classes
Roles and Responsibilities
Continuum of Earthquake Risk Management
2
6
6
8
9
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Executive summary
The Earthquake Risk Mitigation Plan has been written:
a)
To achieve the objectives of the Waikato Regional Policy Statement. These are
to define the management functions of Environment Waikato and the territorial
authorities and to minimise the adverse effects associated with natural hazards.
This document has been used as a foundation document for the RPS variation.
b)
In response to Environment Waikato’s responsibilities under the Resource
Management Act 1991 (RMA) to control the use of land for the purpose of the
avoidance or mitigation of natural hazards.
c)
To achieve Environment Waikato responsibilities under the Civil Defence Act
1983. The three aims of civil defence are to prevent the loss of life, to help the
injured and to relieve personal suffering and distress.
d)
To meet the International Decade for Natural Disaster Reduction requirements
for mitigation plans involving long term prevention, preparedness and community
awareness.
e)
To integrate Environment Waikato activities with other organisations, and assist
them to achieve their organisational and professional responsibilities.
The first section of this document deals with the environmental problems that
earthquakes can cause. Earthquakes cannot be modified; therefore the only means of
reducing the adverse effects caused by earthquakes is to reduce community
vulnerability. This section sets out the proactive actions that Environment Waikato and
other groups will take to reduce community vulnerability before an earthquake occurs.
Good information and communication is critical.
There are a number of groups with responsibilities and expertise in earthquake risk
management. For this reason it is important to clarify the roles and responsibilities of
these groups. This will enable efficient and effective earthquake risk management.
The second section is focused on planned response and recovery. The aim of this
section remains to reduce the adverse effects of earthquakes by acknowledging that no
matter how effectively pre-event planning reduces the vulnerability of the community to
earthquakes there will always be a residual risk. Planning for response and recovery
can mitigate the consequences.
This planning will ensure agencies can carry out their response and recovery functions
in an effective and co-ordinated way.
Individuals and community groups have an important role in reducing the adverse
effects of earthquakes by ensuring they know what to do when an earthquake occurs
and that they have plans in place to assist their recovery.
The third section is focused on the value of monitoring and review. This is aimed both
at reviewing information - to ensure the best information is being used for pre-event
planning and on reviewing plans to ensure they are achieving their objectives.
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Background and explanation
Historically, earthquakes have not been seen as a major hazard in the Waikato Region.
In recent times there have been few large earthquakes that have affected people within
the Region. This lack of experience with earthquakes may have led to a false sense of
security within the community and may affect the community’s ability to effectively
respond and recover from a large-scale event.
The Earthquake Hazard Analysis has identified some areas in the Region with a high
earthquake hazard. There is a potential earthquake hazard for the whole Region.
Environment Waikato and territorial authorities have responsibilities to manage the risk
from earthquakes.
Environment Waikato has a leadership role for natural hazard risk management under
the Resource Management Act 1991, and is responsible for the control of the use of
land for the purpose of the avoidance or mitigation of natural hazards. Under this Act
the territorial authorities function is focused on the control of the effects of the use of
land for the avoidance and mitigation of natural hazards. Therefore territorial
authorities have a role in implementing the overall objectives of earthquake risk
management.
Both Environment Waikato and territorial authorities have
responsibilities for pre-event planning, response and recovery under the Civil Defence
Act 1983. Environment Waikato has a regional perspective and a co-ordination role.
Territorial authorities are focused on their districts and are therefore the appropriate
agency to deliver preparedness information to the public. Territorial authorities also
have specific responsibilities under the Building Act 1991 to enforce building standards
and to ensure developers assess the risk from hazards on their proposed development.
The purpose of this plan is to define the role and future direction of Environment
Waikato, territorial authorities, utility providers, iwi and the public in managing the
effects of earthquakes.
This document outlines the methods that will be used to reduce the adverse effects of
earthquakes, as well as integrating the hazard response function of Environment
Waikato and territorial authorities.
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Principles
a)
Promote a Strategy of Avoidance then Mitigation
The Resource Management Act 1991 (RMA) and the Waikato Regional Policy
Statement (Waikato RPS) give a strong lead for avoidance and mitigation through
the control of land use. Land known to be subject to natural hazards should be
subject to land use controls. New developments in particular should be analysed
for exposure to natural hazards. Mitigation is a tool applicable to existing
situations where a combination of the natural hazard and the vulnerability of the
community create a risk. Mitigation can also be used to reduce the level of risk for
new development.
The mitigation plan will focus on what risk reduction is possible through pre-event
planning and action. The plan acknowledges that the earthquake risk cannot be
entirely eliminated, but must be appropriately managed.
b) Information Readily Available
High quality information on hazards and potential risks and the widespread
dissemination of this information are vital for effective risk management and risk
reduction.
c)
Sustainability
Earthquake mitigation options should be assessed in terms of their sustainability.
It is important that earthquake mitigation options reduce the risk from earthquakes
to the community, however it is also important that this is not at the expense of the
natural and physical resources or the social, economic and cultural well-being of
communities.
Sustainability of response and recovery measures should also be assessed. While
human safety is the priority, post earthquake recovery should not occur in way that
is environmentally unsustainable.
d) Partnership with Territorial Authorities
Environment Waikato and territorial authorities both have responsibilities for
natural hazard management. This plan is among foundation documents for the
RPS natural hazards variation. The proposed variation advocates a partnership
approach for the management of natural hazards. The RPS is a statutory
document and the proposed variation will go through a public process.
e)
Mitigation Choices will Emerge from the Community
Environment Waikato recognises that community-based solutions that result from
a facilitation process have a better chance of acceptance and implementation by
the community.
The Local Government Amendment Act 1996 establishes a framework for
identifying the beneficiaries of services, and highlights a user-pays approach. This
reinforces the difficulty of imposing solutions to natural hazard problems on to a
community - the beneficiaries of services, especially expensive solutions.. An
approach that allows the community to choose the mitigation options that best
meet its needs and financial resources will enable communities and commercial
businesses to make sound decisions.
f)
Community Safety
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Environment Waikato recognises the value of community input in decision making.
However individuals and communities may opt to increase their risk to earthquakes
in order to receive a short-term benefit at the expense of wider community safety.
Environment Waikato and territorial authorities have a responsibility to enable
communities to provide for their health and safety under the RMA. Environment
Waikato has responsibilities for community safety under the Civil Defence Act
1983. The Waikato Region Civil Defence Plan 1996 states the three aims of civil
defence. These are:
i)
ii)
iii)
To prevent loss of life.
To help the injured.
To relieve personal suffering and distress.
Therefore when Environment Waikato assesses earthquake risk management
options, community safety has overriding importance.
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The Planning Framework
New Zealand Coastal
Policy Statement
(Gazetted May 1994)
National Policy
Statements and
Environmental
Standards
(optional)
Regional Policy Statement
Regional Coastal Plan
Waikato
Regional
Plan(s)
District
Plans
DISTRICT COUNCILS
CENTRAL GOVERNMENT
REGIONAL COUNCILS
Statutory
Documents
Resource Management Act
1991
Non-statutory
Documents
Actions plans
Earthquake
Mitigation Plan
Flood
Mitigation Plan
Coastal Erosion
Mitigation Plan
Figure 1: The Planning Framework
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1
Hazard planning and management
Issue
Communities and individuals may suffer serious avoidable property damage,
interruption of commercial activities and risk injury or death if the earthquake
hazard is not identified and understood.
Objective
Communities understand their vulnerability to the earthquake hazard, and their
resilience to the earthquake hazard is increased.
Policy
Environment Waikato, in conjunction with territorial authorities and
communities, will take a strategic approach to reduce community vulnerability.
Actions
1.
Environment Waikato will provide and maintain an overview assessment of
earthquake risk in the Region, including:
a)
b)
c)
d)
2.
Improve and maintain information availability to decision makers and the Public
through:
a)
b)
c)
d)
e)
3.
Hazard assessment 1:250 000.
Risk analysis of high hazard areas - this may lead to further investigation in
critical areas.
Make use of the geohazard warning network operated by IGNS.
Environment Waikato will work in partnership with territorial authorities and
other utility providers to assess and mitigate the vulnerability of the
essential utility services in the Waikato Region to natural hazard damage.
Environment Waikato and territorial authorities working together through
the Waikato Regional Information Syndicate to enable the flow of
information between Environment Waikato and territorial authorities.
Territorial authorities collecting hazard information from consent applicants,
in addition to the information provided by Environment Waikato. Territorial
authorities will disseminate this information to the public through Land
Information Memoranda (LIM) and Property Information Memoranda (PIM).
Environment Waikato regionally co-ordinating education programmes.
Territorial authorities will have the primary role for delivering education
programmes. Environment Waikato will provide support to territorial
authorities.
Two-way flow of information between the community and Environment
Waikato and territorial authorities.
Territorial authorities will implement earthquake risk management. Some district
councils may use their district plans, however most earthquake management will
be undertaken through hazard registers and other territorial authorities planning
mechanisms such as building standards. Implementation will be based a full
range of mitigation options, to determine the appropriate option on a case-bycase basis.
options include:
a)
Avoid.
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b)
c)
d)
e)
4.
Mitigate.
Retreat.
Accept.
Transfer.
The impediments to effective earthquake risk management will be removed by
clarifying the roles and responsibilities of Environment Waikato and territorial
authorities and other groups. The responsibilities outlined in this document are
being confirmed through the official RPS variation process.
Explanation and principal reasons for adopting
There are two components of the earthquake risk. These are the earthquake hazard a physical event with the potential to cause loss or harm. The other component that
makes up risk is community vulnerability, including personal values, economics,
buildings and lifelines. Risk is measured in likelihood and consequences. The
collection and exchange of information about the earthquake risk is an ongoing task.
Environment Waikato commissioned the Institute of Geological and Nuclear Sciences
(IGNS) to carry out an earthquake hazard analysis for the Waikato Region. The hazard
map identifies active fault lines. A concentration of active faults is found running
between Turangi and Rotorua. There is also an area in the Hauraki Plains. Another
map illustrates the varying susceptibility of geological materials in the Region to ground
shaking. This map ranks ground shaking in four categories. (Figure 2).
There is an overlap in those areas with active faults and high level of ground shaking.
This information indicates there is a significant potential earthquake hazard in Region.
Environment Waikato and territorial authorities have a statutory obligation to manage
the risk from the earthquake hazard. (See Appendix V for a summary of statutory
responsibilities).
The earthquake hazard information is currently available on Environment Waikato’s
Geographic Information System (GIS). The GIS system can be used to analyse the
risk from earthquakes in the Region.
Table 1: Groundshaking Categories
Hazard Category
Land Area as %
of Region
Approx. Population within
Category
Highest Hazard
11.8 %
75900
High Hazard
22.1 %
190800
Low Hazard
50.3 %
62200
Lowest Hazard
15.8 %
8100
The following map is a combination of the ground shaking and fault maps that were
produced by IGNS and the Seismic Risk Zones map from the Loadings standard.
Appendix VI illustrates how these maps can be used to estimate peak ground
acceleration.
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Figure 2:
Earthquake Hazard and NZ 4203 Seismic Risk Zones
A consortium of local authorities, national utility providers and private utility companies
has agreed to undertake a Lifelines study for the Waikato Region. The aim of the study
is to identify all lifelines, including roads, rail, gas, water, electricity, and to assess the
vulnerability of the lifelines in relation to hazards, including the earthquake hazard.
The Waikato Lifelines Study will use GIS to produce maps to overlay utility and hazard
information. The information produced by The Waikato Lifelines Study will form the
basis for mitigation and planned response and recovery. The vulnerability of lifelines
provides useful information to the public and businesses. This information can be used
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to assess mitigation and preparedness measures to reduce the impact of the hazard on
people’s lives.
There are a number of different GIS systems being operated in the Region by
Environment Waikato and territorial authorities, therefore the transfer of electronic
hazard information will not be straightforward. The Waikato Regional Information
syndicate is a group that includes Environment Waikato and all the territorial authorities
in the Region. One of the aims of the group is to facilitate the exchange of information.
Environment Waikato has distributed the Earthquake Hazard Analysis report to the
territorial authorities in the Region. Territorial authorities will use this information to
provide information for developers through LIM and PIM.
Territorial authorities have a role in collecting information. Some of this information can
be collected from consent applicants who are required to assess the risk from hazards
for their proposed development. This site-specific information will be disseminated to
Environment Waikato to contribute to the overall regional hazard information.
Territorial authorities have a responsibility under the Building Act 1991 to collect
information on the vulnerability of buildings to earthquakes. This information will be
used by both Environment Waikato and territorial authorities to highlight high-risk areas
and to assist with response and recovery planning.
Earthquakes may have a significant and dramatic adverse effect on people’s lives and
lifestyle. This is an important adverse effect and has to be considered for effective
earthquake risk management. Community perception of a hazard will determine the
way individuals prepare for a potential hazard, the way they respond to warnings and
the way they recover from an event. Community perception is linked to hazard
awareness.
Ultimately individuals and communities have the ability to reduce their vulnerability to
earthquakes. Environment Waikato and territorial authorities have a role in helping
people understand the benefits they will receive from considering the risk earthquakes
pose and avoiding and mitigating these risks. Effective risk communication is a twoway process. Environment Waikato is committed to listening to community concerns.
The public will be able to request information from Environment Waikato and territorial
authorities. This will allow them to make their own personal risk management
decisions in an informed fashion.
Environment Waikato’s role for education will involve information collection and coordination of education programmes and to analyse the success of programmes by
measuring change in community perception of natural hazards. Territorial authorities
will have a primary role in delivering education programmes directly to the public,
providing information for developers and preparedness information to the community.
Environment Waikato will provide support to territorial authorities in this role.
Information for public education should be targeted and useful. Target groups may
include schools, businesses, iwi and the general public. Environment Waikato will
provide information for the community in a form that is useful and written in plain
English. This method is consistent with the Environment Waikato Environmental
Education strategy.
The flow of information between Environment Waikato, territorial authorities and the
public is illustrated by figure 3: Information flow and dissemination.
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Comprehensive
EQ Hazard &
Risk Information
EW
TLA's
* Consents
* Expert Hazard Info
* Taonga Info
* Perception Info
* Info requests
* Education
* Consents
* Expert Building
Safety Info
Public
* Communities
* Iwi
* Professionals
* LIM & PIM
* Education
* Landuse restriction
* Building standards
Figure 3: Information Exchange and Dissemination
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Territorial authorities have the primary role in implementing earthquake risk reduction
measures. Education achieves this by empowering individuals to consider the
earthquake risk and to take precautions that will reduce the impact of an earthquake.
However there is a range of methods for reducing the adverse effects of earthquakes.
Environment Waikato and territorial authorities have a responsibility, under s32 of the
RMA, to consider a range of different options for earthquake management and to
inform the public about the earthquake risk management options available to them.
Territorial authorities will include land use restrictions in their district plans to control
adverse effects of natural hazards. It is unlikely that a territorial authorities would limit
all development in high earthquake hazard area, however critical facilities, such as
essential lifelines, should avoid the hazard as far as is practical.
Building standards will be used to mitigate the effect of earthquakes to an acceptable
level. National standards such as the loadings standard outline how seismic risk should
be assessed for building.. Territorial authorities have the responsibility for the
enforcement of these national standards which are based on industry guidelines.
The seismic zones in the Loadings Standard can be overlaid on the hazard map (see
Figure 2). The relationship of the Seismic Zones and ground shaking susceptibility of
different soil types can be used by territorial authorities to estimate Peak Spectral
Acceleration and Peak Ground Acceleration. This is further explained in appendix VI
The Loadings Standard Peak Seismic Coefficients (Ch ) for different sub-soil categories.
These categories relate to the ground shaking classes (A,B,C,D) identified by IGNS.
The Risk Zones ( Z = 1.2 –0.6) from the Loadings Standard when multiplied by the
Peak Seismic Co-efficient (Z Ch ) gives an approximation of Peak Spectral
Acceleration. There is a relationship of approximately 0.4 between Peak Spectral
Acceleration and Peak Ground Acceleration.
Table 2: Application of Loadings Standard and the Earthquake Hazard
Map
Sub-Soil Condition
(NZS 4203 terminology)
Hazard
Zone/Unit
Peak Seismic Coefficient:
Ch
(proportion of g)
Rock or very stiff soils
4/D
0.68
Intermediate soils
3/C
0.80
Intermediate soils
2/B
0.90
Flexible or deep soils
1/A
1.0
Table 3: Approximate Population and Land Area within Peak Ground
Acceleration Classes
450 yr PGA
NZS 4203
Approx. Land Area as a %
of Region
Population Within Category.
PGA = > 3.5
25%
32400
PGA 3.5 –2.5
35%
121800
PGA =< 2.5
40%
182700
Mitigation measures aimed at building safety are an effective means of reducing
casualties and economic disruption. Design standards should meet a chosen
performance level according to the building’s importance. Essential community
facilities such as hospitals will have high importance and should therefore have a
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structure that can withstand an earthquake without the need for significant repair. The
design performance of the building can be expressed as follows:
a)
b)
c)
d)
Sacrificial, ruined by an earthquake.
Not usable without significant repair.
Partially usable without significant repair.
Fully functional but needing cosmetic repair.
In some cases improving the construction can mitigate the vulnerability of existing
buildings. This is the responsibility of the owner.
Territorial authorities have a responsibility to assess buildings’ vulnerability to
earthquakes. Buildings that have a high vulnerability to the earthquake risk may be
deemed inappropriate to be inhabited. In some cases it may not be feasible to mitigate
this risk and demolition or abandonment may be a more appropriate option.
Communities may choose to accept the risk of earthquakes. Significant earthquakes
do not occur regularly in the Waikato Region. Environment Waikato and territorial
authorities will present all the relevant information to the public. When communities
have this information they may judge the risk from earthquakes is acceptable.
However Environment Waikato and territorial authorities have an obligation to ensure
community safety under the Civil Defence and other Acts. Communities may want to
increase their earthquake risk to make short term gains. Environment Waikato and
territorial authorities can override community decisions if they are likely to put
community safety at risk.
Individual can use insurance to transfer the risk of earthquakes. Insurance spreads the
risk and reduces the financial impact when earthquakes occur. Insurance provides a
market-led mitigation option. Insurance companies may charge higher premiums for
buildings that are structurally susceptible to earthquakes, or development that is near
active faults. Earthquake insurance creates a value for earthquake risk and mitigation
information in the market.
Environment Waikato and territorial authorities have different roles in ensuring effective
earthquake risk management. Environment Waikato provides leadership and coordination. Environment Waikato is the main agency for information collection.
Environment Waikato has the main role in assisting territorial authorities and the
community in understanding and using the available hazard information. Territorial
authorities collect some information, however their main focus is on implementing and
enforcing earthquake risk reduction measures.
This document has clarified the roles and responsibilities of all the relevant agencies
for earthquake risk management in the Waikato Region. See Table 4.
Environmental results anticipated
1
A well-educated community that understands the risk from earthquakes and
the relationship that exists between people and the effects of natural events.
2
Development and land use that reduces community vulnerability to the earthquake
hazard.
3
A reduction in the expected post earthquake damage:
a) reduced cost of recovery
b) reduced temporary loss of production
c) reduced time to permanent recovery
d) reduced permanent loss of production.
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Table 4: Roles and Responsibilities
Environment Waikato
a)
Provide an overview of earthquake risk management in the Region.
b)
Take a lead role in the collection, analysis, storage and communication of natural
hazard information to territorial authorities.
c)
In consultation with territorial authorities and the Region’s community, prioritise
risks from natural hazards across the Region for further investigation.
d)
Develop and implement, in conjunction with territorial authorities and the wider
community, the Earthquake Risk Mitigation Plan.
e)
Co-ordinate responses to regionally significant earthquake events with those of
territorial authorities, public utility operators, government departments and other
relevant agencies.
f)
Support the development and implementation of environmental education
programmes related to earthquakes.
Territorial Authorities
a)
Develop specific objectives, policies in District Plans that control the use of land
(except for in the beds of lakes and rivers and the Coastal Marine Area) for the
avoidance or mitigation of the adverse effects of earthquakes.
b)
Deliver environmental education programmes on local earthquake hazards and
risks to their communities.
c)
Implement the earthquake risk mitigation plan through building consents and
other regulatory and non-regulatory methods.
d)
Provide information on the presence of earthquake hazards at specific sites
through Land Information Memoranda and Property Information Memoranda
where such information is known by the territorial authorities.
e)
Work in partnership with their communities and Environment Waikato to ensure
efficient and effective response and recovery to natural hazard events including
planning for emergencies.
Utility Providers
a) Provide input into the risk assessment through the lifelines study.
b) Plan operations to reduce the impact of an earthquake on the community.
c) Prepare business continuance plans.
Individuals and Communities
a) Provide input into risk assessment, particularly vulnerability information.
b) Iwi will provide input into risk assessment: for example taonga and wahi tapu that
are vulnerable to the earthquake hazard.
c) Provide input through submissions.
d) Take action to reduce vulnerability.
e) Prepare for response and recovery.
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Table 5:
Continuum of Earthquake Risk Management
Environment Waikato
Identify the Hazard
Mitigation Plan
GIS layers
Prioritisation of risks
Scope lifelines study
District Plans
ORGANISATIONAL ROLE
Territorial Authorities
At a scale of 1:250 000.
Write plan.
Input maps to GIS.
Prioritise earthquake risk areas.
Scope utility providers and territorial
authorities on their interest in supporting a
lifeline study.
Submit on district plans.
Geohazard
Warning
Systems
Building Act
Communication of warnings.
Possible input into the warning system.
Preparation
Co-ordinates education programmes over the
Region.
Provide information to businesses on the
importance of business continuance plans.
Focus on large regionally important
businesses.
Environment Waikato developed the Regional
Civil Defence Plan.
CD Plans
EARTHQUAKE
Response
Recovery
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Input to the mitigation plan.
Prioritise earthquake risk areas.
Develop plans.
Implement Waikato RPS and district plan
objectives through the control of the use of land.
Land use Controls
Business Continuance
Planning
Private Sector
IGNS are working on a geohazard
warning system.
Enforce the standards established in the
Building Act 1991.
Deliver education programmes to encourage
communities to be prepared for earthquakes.
Provide advice and resources to businesses on
how to produce a business continuance plan.
Businesses
design
and
implement
a
business
continuance plan to suit their
needs.
Territorial authorities have developed district
civil defence plans.
Responds to regionally significant events.
Response for events that are smaller than
regional.
Priorities for recovery: safety of individuals,
social recovery, economic recovery and
physical recovery.
Priorities for recovery: safety of individuals,
social recovery, economic recovery and
physical recovery.
Regionally co-ordinate. Collect and collate
information on damage.
Set recovery
deadlines, co-ordinate resources and aid.
Collect district information and communicate
with Environment Waikato. Co-ordinate district
recovery programme.
Communities and individuals are
responsible for their own health
and safety.
NZ Society of Earthquake
Engineering Guidelines.
The expectation is that all
individuals and organisations
will deal with their own
problems and assist others to
the best of their abilities.
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2
Response and recovery
Issue
Uncoordinated emergency response could lead to increased trauma and loss of
life. Unplanned recovery could increase the adverse effects on the Regional
economy.
Objective
The community returns to its normal routine as soon as possible following an
earthquake.
Policy
Environment Waikato will plan earthquake response and recovery strategies, and
will assist territorial authorities and the Region’s communities in preparing their
own response and recovery strategies.
Actions
1
Environment Waikato will work with territorial authorities and emergency services
to co-ordinate response strategies. This will involve:
a) regular meetings with Environment Waikato, territorial authorities and
Emergency services
b) review of district civil defence plans
c) co-ordinating communication procedures for information communication
following an earthquake
d) consider the development a lifelines co-ordination centre at a regional level.
e) co-ordinate aid before an event
f) Environment Waikato will participate and keep abreast of any changes that
may result for the review of emergency management.
2
Environment Waikato will implement a training plan, as part of its Regional Civil
Defence Plan, to ensure all staff with civil defence responsibilities are trained and
competent to undertake their assigned tasks.
3
Territorial authorities will, with support from Environment Waikato, educate the
public about how to prepare for an earthquake, what to do during and following an
earthquake.
4
Environment Waikato will encourage public and private sector organisations to
produce business continuance plans.
5
Environment Waikato will establish its own business continuance plan by:
a) establishing priorities for business continuance
b) ensuring communication facilities are capable of functioning following an
earthquake.
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Explanation and principal reasons for adopting
Regional and territorial authorities have responsibilities to plan their natural hazard
response and recovery strategies under the Civil Defence Act 1983.
Environment Waikato’s civil defence responsibilities are outlined in the Waikato Region
Civil Defence Plan. Each district has a civil defence plan outlining their responsibilities.
Response and recovery plans that are co-ordinated with emergency service providers
will ensure quick and effective response following an earthquake.
A serious earthquake in the Waikato Region could affect the national economy,
particularly because important utilities such as gas and electricity flow through the
Waikato and on to Auckland and the Bay of Plenty. Aid agreements need to be coordinated before events occur to ensure prompt recovery.
Environment Waikato needs to ensure that staff who have civil defence responsibilities
are trained and competent so response and recovery efforts operate as planned.
Environment Waikato has developed a training plan which outlines the level of training
obtained by those staff with civil defence responsibilities.
Planning for response and recovery is not just the responsibility of the local authorities
who will co-ordinate the response effort. Individuals and businesses have an interest
to ensure they are capable of responding to and recovering from earthquakes.
Environment Waikato will consult with communities to determine community perception
of earthquake risk. The Waikato Region has not experienced a serious earthquake in
recent times. Therefore, communities may not be aware of the potential risk and may
have a false sense of security.
Territorial authorities have the primary role in communicating the need for individuals to
prepare for an earthquake, to know what to do during an earthquake and to know
where to seek help after an earthquake has occurred. For education programmes to
be most effective they should be targeted to specific groups.
Iwi is an important target group for education. Following an earthquake Maori
communities may seek marae refuge in the Waikato Region. This occurred following
the Edgecumbe earthquake in 1987. It is important that iwi groups are prepared for a
possible influx onto marae following a serious earthquake. An influx of displaced
people onto marae in the Waikato Region could occur if there was a significant
earthquake outside of the Region.
Environment Waikato and territorial authorities also have a role in communicating the
importance for businesses to plan for natural hazards and to have strategies to ensure
their businesses can recover following an earthquake.
An earthquake could adversely effect the Regional economy. The development and
implementation of business continuance plans will increase the resilience of the
regional economy.
Environment Waikato will provide information to the businesses on the likely effect of
an earthquake on lifelines and the Region generally. Environment Waikato will provide
business continuance resources to large businesses that if disrupted by an earthquake
would cause a Regional impact. Territorial authorities will be responsible for providing
resources on how to develop a business continuance plan to businesses within their
territory.
Environment Waikato may suffer damage in a serious earthquake. Environment
Waikato needs a business continuance plan to ensure it can provide its response and
remedial functions. Currently Environment Waikato has methods in place to ensure
Doc # 487363
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business recovery. Environment Waikato is actively developing a comprehensive risk
management and business continuance plan with the assistance of Jardines Risk
Consultants.
The communication of preparedness, response and recovery information will occur
before, during and after an earthquake event. Therefore, it is important that
Environment Waikato maintains its communication network so it is capable of operating
effectively following an earthquake.
Environmental results anticipated
A prepared community.
1.
Minimal casualties and financial loss, including a minimal impact on the national
economy, following an earthquake.
2.
Reduced disruption and damage to communities, buildings and infrastructure
following an earthquake.
3.
Reduced cost of cleanup following an earthquake event.
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3
Monitor and review
Issue
Information, technology and community needs and expectations are constantly
changing. Plans and information that do not keep up with these changes will be
ineffective in achieving their aims.
Objective
Plans and information that keep abreast of changes in understanding,
technology, community vulnerability and community expectations.
Policy
Information, plans and procedures will be monitored, reviewed and refined on an
ongoing basis.
Actions
1.
Environment Waikato will regularly review hazard information, vulnerability
information, and the prioritisation of risk.
2.
There will be five yearly reviews of the effectiveness of this Plan in achieving its
objectives.
Explanation and principal reasons for adopting
Monitoring and review is an ongoing process. It has two aspects: The monitoring and
review of the hazard and vulnerability information to assess its accuracy and
usefulness, and the monitoring and review of the polices and plans in achieving their
objectives.
Review is an ongoing process that will evolve through information exchange. Regular
Monitoring at five yearly intervals will incorporate any additional information.
Monitoring and review will also occur after an earthquake to determine how well plans
have operated. This is consistent with the direction under the Environmental
Information Strategy.
Environmental results anticipated
1. Earthquake risk information that is accurate and useful.
2. Plans that achieve effective earthquake risk management and meet community
expectations.
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Appendix I:
Summary of actions reducing adverse effects
Action
1. Initial overview assessment.
a)
b)
250,000 hazard.
Lifeline study.
Who
When
Environment Waikato.
Environment Waikato and
consortium of the Region’s
utility providers and territorial
authorities.
1995/96
Phase 1. Scope begins 97/98
year.
Phase 2: Mapping 97/98.
Phase
3:
vulnerability
assessment 98/99.
Phase 4: mitigation options,
response and recovery.99/00.
2. Prioritise for future work.
3.
a)
b)
c)
d)
e)
f)
g)
Environment Waikato and
territorial authorities.
Raise public awareness through information exchange.
Information exchange.
Environment Waikato and
territorial authorities. Through
the WRIs forum and the
lifelines study.
GIS integration.
Not an integrated Regional
GIS but developing exchange
of GIS information through
WRIS (including Environment
Waikato
and
territorial
authorities) and the lifelines
study.
Information
dissemination to public:
LIM and PIM.
Territorial authorities.
environmental education Environment Waikato.
programmes that focus Lifelines study is education for
on major businesses
major utility providers.
Implementation
of Territorial authorities, support
environmental education. from Environment Waikato.
Two-way
flow.
information
Environment
Waikato,
territorial
authorities
and
communities.
1997/98 ongoing.
In place, ongoing, outlined in
the Waikato RPS.
1998/99
Outlined in district plans.
In place, ongoing. Outlined in
Waikato RPS.
In place - ongoing. Outlined
in Waikato RPS and district
plans.
In place – ongoing, supported
by the environmental
information strategy.
4. Implementation and enforcement of mitigation options.
a)
b)
c)
d)
e)
f)
g)
Acceptance.
Mitigation - Structural
improvements
to
buildings
and
infrastructure.
Avoid.
Land
use,
building
standards.
Transfer.
Environment Waikato.
Territorial authorities and the
private sector.
Ongoing, outlined in the RPS.
Territorial authorities.
District plans.
Retreat.
Abandonment
buildings.
Territorial authorities.
Insurance companies
individuals.
and
As required.
Premiums are being adjusted
according to risk.
Ongoing, cases by case. outlined in the Building Act
1991.
of
5. Roles and responsibilities.
Environment Waikato
territorial authorities.
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and
July 1997.
Page 15
Appendix II:
Summary of actions response and recovery
Action
1.
a)
b)
c)
d)
2.
Who
Co-ordinate response strategies.
Regular meetings with
Ministry of Civil Defence,
emergency services.
Environment Waikato,
territorial authorities and
emergency response
Services.
Review territorial authorities
Environment Waikato.
civil Defence Plans.
Co-ordinate aid.
Environment Waikato.
Co-ordinate information
release procedures.
Civil defence training.
Environment Waikato,
territorial authorities.
Territorial authorities..
Environment Waikato.
3.
4.
5.
a)
b)
When
In Place - outlined in the civil
defence plan.
three yearly 7/8 reviewed for
this cycle.
In place - specified in the
regional civil defence plan.
In place - procedures in civil
defence SOPs.
In place - ongoing,
procedures outlined in
district civil defence plans.
In place - ongoing,
procedures outlined in
regional civil defence plan
and Environment Waikato
emergency training Plan.
Community preparedness.
Territorial authorities
(primary) Environment
Waikato.
Business continuance plans - public and private sector.
• Environment Waikato
• Information
• Focus on large
business.
• Lifelines study
Territorial authorities
(implementation advice).
Business continuance - Environment Waikato.
Organised framework.
Environment Waikato.
Communication facilities are
Environment Waikato.
backed up, alternative
sources of power.
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In place - outlined in the civil
defence plan.
1997/98 Ongoing.
Built into programme and
performance plans.
In place - in district civil
defence plans.
1997/98.
In place - requirements
outlined in chapter 10 civil
defence plan. Part 10.3
Civil defence SOPs.
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Appendix III: Summary of actions monitor and review
Action
1.
Who
When
Review of information.
Environment Waikato and
territorial authorities.
As new information becomes
available.
Following an earthquake.
five yearly.
2.
Review of effectiveness of plans.
Environment Waikato and
territorial authorities.
New information becomes
available.
Following an earthquake.
five yearly.
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Appendix IV:
Legislation
Statute
Existing Management –
Duty
Resource Management Act 1991
Part III
Section 30.
Regional councils: the control
of the use of land for avoidance
or mitigation of natural hazards.
Section 31.
Section 32.
Section 35.
Building Act 1991
Part V
Section 30
Part IX
Section 66
Civil Defence Act 1983
Part II
Part IV
Territorial authorities: The
control of actual or potential
effects of use of land for
avoidance or mitigation of
natural hazards.
Consider alternatives asses
benefits and costs.
To gather information, monitor
and keep records.
plan
Environment Waikato will not
directly define appropriate land
use, but works with territorial
authorities to establish
acceptable levels of risk.
Territorial authorities control
land use.
The management functions
determined in the plan are the
most effective and efficient.
Cost and benefit analysis will
be applied for any risk
management option.
Environment Waikato is
information broker.
Environment Waikato and
territorial authorities have an
important role in
communicating information to
the public.
Territorial authorities to provide
PIM.
PIM is a method for collection
of detailed hazard and risk
information and a method of
disseminating information to
the public - Territorial authority
function.
Territorial authorities deem
buildings earthquake prone and
restrict the use of these
buildings.
Territorial authority function.
Planning responsibilities for
regional and territorial
authorities.
Emergency response for
Regional and territorial
authorities.
Integration of regional and
territorial authorities response
and recovery planning.
Integration of Environment
Waikato, territorial authorities
and emergency services
response and recovery
functions.
Earthquake Commission Act 1993
Part II
Onus on individuals to have
insurance.
Local Government Information and Meetings Act 1987
Part VI
Territorial authorities provide
Section 44
LIM.
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How
does
this
achieve the duty?
The plan puts an emphasis on
personal preparedness.
LIM is a method for collection
of detailed hazard and risk
information and a method of
disseminating information to
the public - territorial authority
function.
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Appendix V: Existing Management –
Local Government Documents
Environment Waikato
Documents
Duty
Waikato Regional Policy Statement
Part 3.8
Management
Adverse Effects
Environmental Information Strategy
Monitor and review information.
Environmental Education Strategy
Raise public awareness about
environmental issues through
education.
Waikato Regional Civil Defence Plan
Outline regional civil defence
responsibilities and actions.
Territorial authorities Civil Defence Plan
Outlines territorial authorities
civil defence responsibilities
and actions.
Environment Waikato Emergency Training Plan
Statement of those people that
have
been
trained
for
emergency management roles
and outlines those staff that will
require training.
Territorial authorities training plans
Statement of those staff and
volunteers that have been
trained
for
emergency
management roles and outlines
those staff that will require
training.
Risk Management in Environment Waikato
Report undertaken by Jardines
risk consultants for Environment
Waikato recommending risk
management actions.
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How Does the Plan
Achieve this Duty?
Clarifies management roles
and responsibilities.
Emphasis on reducing adverse
effects by reducing community
vulnerability. This is consistent
with the Waikato RPS.
Review of information.
Review of plan.
Environmental education is an
important method for achieving
the Plans objectives.
Clarifies the role of regional
and territorial authorities for
civil defence and outline
preparedness
actions
for
Environment
Waikato
and
territorial authorities.
Clarifies the role of regional
and territorial authorities for
civil defence and outline
preparedness
actions
for
territorial authorities.
Trained staff are essential to
carry out the response and
recovery functions of Regional
and territorial authorities.
Trained staff is essential to
carry out the response and
recovery functions of Regional
and territorial authorities.
Environment Waikato has an
important role in assisting the
community to response to and
recover from an earthquake.
Business continuance and
disaster recovery planning are
important
activities
so
Environment Waikato can fulfil
its emergency management
responsibilities.
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Appendix VI: Earthquake Hazard and NZ
4203 Seismic Risk Zones
The code of practice (NZ 4203:1992) gives ‘basic seismic hazard acceleration
coefficients’ (Ch ) for three different sub – soil conditions. It is reasonable to divide the
intermediate category into two so there are four categories to match the IGNS hazard
units. For example the peak values could be chosen as follows.
Sub-Soil Condition
(NZS 4203 terminology)
Hazard
Zone/Unit
Peak Seismic Coefficient: Ch
(proportion of g)
Rock or very stiff soils
4/D
0.68
Intermediate soils
3/C
0.80
Intermediate soils
2/B
0.90
Flexible or deep soils
1/A
1.0
For design: the peak spectral accleration is obtained by multiplying the above values
(ch) by the Zone factor (Z). In effect, the product (ChZ) is the design peak spestral
acceleration for a 450yr return period earthquake. This would be a reasonable hazard
index which takes account of both site conditions and level of shaking, as well as
making reference to the potential of the location for seismic activity.
Ground Shaking Hazard Units -IGNS Earthquake Hazard Analysis
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Glossary
Land Information Memorandum: Territorial authorities are required, under the Local
Government Information and Meetings Act 1987, to provide information to any one
requesting it, in relation to matters affecting any land in the district. The information
requirements are the same as those for PIM.
Lifelines: Infrastructure networks: water, sewage, communications, electricity, gas,
road and rail.
Mitigation: There are two meanings for mitigation. Both of these are used in the
document:
a)
b)
Those activities directed towards eliminating or reducing the probability of
occurrence of a disaster-producing event. This is the definition used by IDNDR,
and is the meaning of mitigation in the title.
Reducing the effects of those events that are unavoidable. This is the definition
used in the RMA. This definition is used in the management options.
Natural Hazard: Natural event that is a source of harm or has the potential to cause
loss.
Preparedness:
Those activities that prepare a framework for organised and
immediate response to disaster situations that cannot be mitigated, the purpose if
which is to save lives, minimise disaster damage and effects and to facilitate recovery.
Property Information Memorandum: Territorial authorities are required under the
Building Act 1991 to provide this information to any one who requests it, with regard to
proposed construction requiring a building consent. Information identifies the natural
hazards of the land concerned, including but not limited to: potential erosion, avulsion,
falling debris, subsidence, slippage, alluvion or inundation as well as other information.
Recovery: Those activities undertaken to return the community routine to return the
community routine to an acceptable level whereby special measures are no longer
required. A return to pre-disaster conditions is not always desirable; indeed many
recovery operations incorporate mitigation measures so that the community does not
suffer as badly the next disaster.
Regional Significance: means one or more of the following:
a) Matters or values of national significance.
b)
Issues and/or effects that are of concern to substantial parts of the regional
community.
c)
Values associated with natural and physical resources or any structure, place or
feature which are rare or unique within the Region.
d)
The existence of significant cross administrative boundary issues and cumulative
effects, where resources or effects cross administrative boundaries, and where
co-ordination or integration of policies, actions or decision-making is required.
e) Matters or effects which are of greater than local significance to tangata whenua.
Response: Those activities that provide for temporary care and relief for victims of a
disaster, and ensure that avoidable casualties and property damage do not occur.
Outside assistance and support is frequently required.
Risk: The interaction of the hazard and the vulnerability of the community. The
degree of risk is determined by the magnitude and probability of the hazard and the
level of importance placed on vulnerable community assets. Risk is measured in terms
of consequences and likelihood.
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Vulnerability: Community assists at risk from the hazard. Including personal values,
infrastructure, buildings and the economy.
Acronyms
LIM: Land Information Memoranda
PIM: Property Information Memoranda
RMA: Resource Management Act 1991
RPS: Regional Policy Statement.
WRIS: Waikato Region Information Syndicate.
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References
1.
Environment Waikato March 1996: Waikato Regional Policy Statement.
2.
Beanland.S, Drummond.G, Huber.P, Hull.A, Townsend.T 1996. Earthquake
Hazard Analysis Environment Waikato (Regional Council) Area. Prepared
for Environment Waikato by IGNS.
3.
Environment Waikato 1996: The Waikato Region Civil Defence Plan.
4.
Environment Waikato July 1996: Environmental Education Strategy.
5.
Environment Waikato 1996: Environmental Information Strategy.
6.
Jardines Risk Consultants Ltd. 1997.
Waikato.
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Risk Management in Environment
Page 25
Bibliography
Beanland.S, Drummond.G, Huber.P, Hull.A,Townsend.T 1996. Earthquake Hazard
Analysis Environment Waikato (Regional Council) Area. Prepared for Environment
Waikato by IGNS.
Bent.D. 1993.
Local Authorities and Earthquakes - Some Guidance for
Councillors and Managers Edition No. 1. Developed for the Ministry of Civil
Defence.
Environment Waikato July 1996: Environmental Education Strategy.
Environment Waikato 1996: Environmental Information Strategy.
Environment Waikato 1996: The Waikato Region Civil Defence Plan.
Environment Waikato March 1996: Waikato Regional Policy Statement.
Gough.J.D.Pyle.E. 1991. Environmental Risk Assessment for New Zealand.
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This document was approved for issue by Environment Waikato on (March 1998). It is
intended to review the document in 2003/2004. Note that the Civil Defence Act 1983
has now been replaced by the Civil Defence and Emergency Management Act 2002.
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