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FEMA P-1019 Emergency Power Systems for Critical Facilities

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FEMA P-1019 Emergency Power Systems for Critical Facilities Emergency Power Systems for Critical Facilities: A Best Practices Approach to Improving Reliability FEMA P-1019 / September 2014 FEMA P-1019 Emergency Power Systems for Critical Facilities: A Best Practices Approach to Improving Reliability Prepared by APPLIED TECHNOLOGY COUNCIL 201 Redwood Shores Parkway, Suite 240 Redwood City, California 94065 www.ATCouncil.org Prepared for FEDERAL EMERGENCY MANAGEMENT AGENCY Michael Mahoney, Project Officer Greg Wilson, Task Monitor John Gillengerten, Technical Monitor Washington, D.C. ATC MANAGEMENT AND OVERSIGHT Christopher Rojahn (Program Executive) Jon A. Heintz (Program Manager) Ayse Hortacsu (Project Manager) PROJECT TECHNICAL COMMITTEE PROJECT REVIEW PANEL Robert Bachman (Project Technical Director) Chad Beebe Donald Bliss Robert Berninger Philip Caldwell James Carlson David Low William Coulbourne Derek Wilson Therese McAllister Steven Winkel Steve Sappington September 2014 Notice Any opinions, findings, conclusions, or recommendations expressed in this publication do not necessarily reflect the views of the Applied Technology Council (ATC), the Department of Homeland Security (DHS), or the Federal Emergency Management Agency (FEMA). Additionally, neither ATC, DHS, FEMA, nor any of their employees, makes any warranty, expressed or implied, nor assumes any legal liability or responsibility for the accuracy, completeness, or usefulness of any information, product, or process included in this publication. Users of information from this publication assume all liability arising from such use. Preface The importance of emergency power in keeping critical facilities operational during and after a major natural disaster was apparent with Hurricane Sandy in 2012. FEMA P-942, Mitigation Assessment Team Report, Hurricane Sandy in New Jersey and New York (FEMA, 2013a), contains observations and recommendations that should be considered in planning for emergency power in the event of a disaster. In addition, hazard-specific guidance documents developed over the years, including FEMA E-74, Reducing the Risks of Nonstructural Earthquake Damage – A Practical Guide (FEMA, 2012b) have addressed various aspects of protecting emergency power systems from the damaging effects of natural hazards. In September 2013, the Federal Emergency Management Agency (FEMA) awarded the Applied Technology Council (ATC) a task entitled “Emergency Power for Critical Facilities Guidance” under its “Seismic Technical Guidance Development and Support” contract (HSFE60-12-D-0242). Funding for this task was made available under the Hurricane Sandy Federal Disaster Declaration (DR-4085). Designated the ATC-118 Project, the primary objective of this work was to create a unified guidance document on emergency power vulnerabilities faced by critical facilities during natural disasters, along with associated mitigation strategies and code requirements intended to minimize these vulnerabilities. ATC is indebted to the leadership of Bob Bachman, Project Technical Director, and to the members of the ATC-118 Project Team for their efforts in the development of this report. Work was performed and guided by the Project Technical Committee, consisting of Don Bliss, Phil Caldwell, David Low, Derek Wilson, and Steve Winkel. Technical review and comment at key stages of the project were provided by the Project Review Panel consisting of Chad Beebe, Bob Berninger, Jim Carlson, Bill Coulbourne, Mark Early, Terri McAllister, and Steve Sappington. Material forming the basis of this publication was developed under a prior contract, and David Low deserves special recognition for his efforts in developing the initial draft report and recommendations under that contract. The names and affiliations of all who contributed to this report are provided in the list of Project Participants. FEMA P-1019 Preface iii ATC gratefully acknowledges Michael Mahoney (FEMA Project Officer), Greg Wilson (FEMA Task Monitors), and John Gillengerten (FEMA Technical Monitor) for their input and guidance in the preparation of this report. ATC also acknowledges Ayse Hortacsu for project management, and Amber Houchen for report production services. Jon A. Heintz Christopher Rojahn ATC Director of Projects ATC Executive Director iv Preface FEMA P695 Table of Contents Preface .......................................................................................................... iii List of Figures .............................................................................................. ix List of Tables .............................................................................................. xiii 1. Introduction ...................................................................................... 1-1 1.1 Purpose ..................................................................................... 1-2 1.2 Emergency Power from a Code Perspective ............................ 1-3 1.2.1 Emergency System ...................................................... 1-3 1.2.2 Legally Required Standby System .............................. 1-3 1.2.3 Optional Standby System ............................................ 1-4 1.2.4 Critical Operations Power System .............................. 1-4 1.3 Planning for Facility Resilience ............................................... 1-4 1.4 Target Audience ....................................................................... 1-5 1.5 Report Organization ................................................................. 1-6 1.6 How to Use this Document ...................................................... 1-7 2. Natural Hazard Effects on Utilities and Building Systems .......... 2-1 2.1 Overview of Utility Power Transmission and Distribution Systems ..................................................................................... 2-1 2.1.1 Failures of Transmission Systems ............................... 2-1 2.2 Winter Storms .......................................................................... 2-3 2.2.1 Effects of Winter Storms on Power Lines .................. 2-4 2.2.2 Effects of Winter Storms on Building Systems .......... 2-6 2.2.3 Case Study – Winter Storms of 2007 .......................... 2-6 2.3 High Winds .............................................................................. 2-7 2.3.1 Effects of High Winds on Power Lines....................... 2-9 2.3.2 Effects of High Winds on Building Systems .............. 2-9 2.3.3 Case Study – 2011 Tornadoes in the Southeastern United States ............................................................. 2-10 2.3.4 Case Study – Derecho Winds – June 2012 ............... 2-12 2.3.5 Case Study – 2012 Superstorm Sandy in Long Island ......................................................................... 2-12 2.4 Flooding ................................................................................. 2-13 2.4.1 Effects of Flooding on Power Lines.......................... 2-14 2.4.2 Effects of Flooding on Building Systems ................. 2-16 2.4.3 Case Studies .............................................................. 2-16 2.5 Earthquakes ............................................................................ 2-18 2.5.1 Effects of Earthquakes on Power Lines and Sub-stations ............................................................... 2-19 2.5.2 Effects of Earthquakes on Building Systems ............ 2-20 2.5.3 Case Study – 1994 Northridge Earthquake ............... 2-24 2.6 Other Events ........................................................................... 2-25 2.6.1 Case Study - Solar Storms of 1989 and 2012 ............ 2-26 FEMA P-1019 Table of Contents v 2.6.2 Case Study – Northeast Blackout of 2003 ................. 2-26 3. Disaster Management and Operations Continuity ....................... 3-1 3.1 Critical Facilities ...................................................................... 3-2 3.1.1 Determining if a Facility is Critical ............................. 3-4 3.2 Emergency Preparedness and Business Continuity Planning .................................................................................... 3-4 3.2.1 PS-Prep ........................................................................ 3-4 3.2.2 Issues to be Considered in the Disaster Preparedness Plan .............................................................................. 3-8 4. Identifying Emergency Power Needs in Critical Facilities............................................................................................. 4-1 4.1 Requirements for Emergency Power Specified by Building Codes and Standards ........................................ 4-2 4.2 Emergency Power Requirements .................................... 4-3 4.3 Assessing Emergency Power Needs in Detail ................ 4-5 4.3.1 Life-Safety Equipment ....................................... 4-6 4.3.2 Fire Pumps ....................................................... 4-12 4.3.3 Lighting ............................................................ 4-14 4.3.4 Mechanical Equipment .................................... 4-15 4.3.5 Other Building Systems ................................... 4-21 5. Emergency Power Sources and Systems ........................................ 5-1 5.1 Emergency Power Sources ............................................. 5-1 5.1.1 Stored Energy Devices ....................................... 5-1 5.1.2 Emergency and Standby Generators .................. 5-3 5.2 Emergency Power Distribution .................................... 5-10 5.3 Optional Standby Generators .......................................
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