Don’t Wing It Airports and Bay Area Earthquakes DECEMBER 2000 ASSOCIATION OF BAY AREA GOVERNMENTS Don’t Wing It Airports and Bay Area Earthquakes Using Airport Vulnerability Data and Response Capability to Improve Planning for Post-Earthquake Transportation Disruptions in the San Francisco Bay Region DECEMBER 2000 ASSOCIATION OF BAY AREA GOVERNMENTS Mailing Address: P.O. Box 2050 -- Oakland, CA 94604-2050 Location: Joseph P. Bort MetroCenter -- Eighth and Oak Streets -- Oakland Phone: (510) 464-7900 -- Fax: (510) 464-7979 Internet Access through abagOnline at http://quake.abag.ca.gov Publication Number: P00002EQK i CREDITS ... Report Authors: Jeanne B. Perkins – Earthquake Program Manager, Association of Bay Area Governments ABAG Technical Assistance: William Lettis & Associates – Keith Knudsen, John Baldwin, and Jeff Bachhuber Kathleen Mikulis – Regional Planner, Association of Bay Area Governments Patricia R. Perry – Senior Regional Planner, Association of Bay Area Governments ABAG Management: Eugene Y. Leong -- Executive Director Acknowledgements: The description of the vulnerability of airport runways draws from a report prepared by William Lettis & Associates, particularly Keith Knudsen, John Baldwin and Jeff Bachhuber. METROPOLITAN MTC TRANSPORTATION COMMISSION ASSOCIATION ABAG OF BAY AREA GOVERNMENTS The research, writing, and production of this report and planning effort was supported, in part, by the National Earthquake Hazards Reduction Program of the Federal Aviation Administration (FAA), through funding from the Metropolitan Transportation Commission, as well as by the Association of Bay Area Governments. Any opinions, findings, conclusions or recommendations expressed in this material are those of the authors and do not necessarily reflect the views of the funding agencies. ii TABLE OF CONTENTS ... Page Background and Objectives Iv Findings – Earthquakes and Airports 1 The Issue – Why Worry About Airport Disruptions 2 Following Future Earthquakes in the Bay Area? Past Earthquakes – What Happened Last Time? 3 1989 Loma Prieta Earthquake 3 1994 Northridge Earthquake 5 1995 Kobe, Japan Earthquake 6 1999 Turkey Earthquake 7 1999 Taiwan Earthquake 8 The Airport System – How Does It Operate? 9 The Vulnerabilities – What Problems Do We Expect? 12 ISSUE 1 - Liquefaction Damage to Airport Runways 12 ISSUE 2 - Structural Damage to Air Control and Terminal Facilities 19 ISSUE 3 - Power and Communications Disruptions 20 ISSUE 4 - Disruptions to the Transportation System Serving the Airports 20 The Airport System in an Emergency – What Are Our Current Procedures? 22 Federal Aviation Administration (FAA) 22 Bay Area International Airports 22 General Aviation Airports 23 Out-of-Region Airports 23 Travis Air Force Base 24 Air Cargo Carriers 24 Airline Passenger Carriers 25 Bay Area Red Cross and Other Disaster Service Providers 25 Business Users 26 Ideas for Action – How Can We Better Plan? 27 REFERENCES 29 APPENDIX A – Table – Runway Information for Airports 30 APPENDIX B – Table – Airport Liquefaction Hazard and Access Vulnerability 36 iii BACKGROUND AND OBJECTIVES ... These materials build on two reports on the Our work on airports and earthquakes has five vulnerability of the region’s transportation principal overall objectives: system to earthquakes published by ABAG – ! To develop a long-term partnership among air ! Riding Out Future Quakes – October 1997 transportation providers, users, the earthquake ! Riding Out Future Quakes – Ideas for research community, and earthquake responders to Action – March 1999 foster cooperation for response and recovery. ! To assess the vulnerability of our air transportation The Riding Out Future Quakes project was system to liquefaction and land-side access issues initiated by ABAG and Caltrans following the given the scenario earthquakes considered likely Bay Northridge and Loma Prieta earthquakes. We Area. learned that we need our transportation systems to ! To assist in collaborative planning for emergency be functional after earthquakes for two principal response among the airports, emergency responders, and cargo and passenger carriers. Emergency reasons: responders are depending on our airports for ! Emergency responders need to use transportation delivering disaster cargo and disaster relief workers. systems, including airports, after earthquakes. ! To identify methods for minimizing long-term Transportation system disruptions, including ! impacts of reduced land-side access and airport disruptions to airports, can have a severe impact on damage following future earthquakes, thereby a region’s economy for months, if not years. minimizing impacts on airport business, the cargo As a second step in the planning process, ABAG industry, and our regional economy. held a series of five subregional workshops ! To increase public awareness and support of discussing hypothetical road and rail closures emergency planning activities at and among airports. resulting from selected scenario earthquakes in As a first step in this process, ABAG has been October and November 1998. “Tabletop” actively involved in the discussion of earthquake disaster drills and extensive discussion led to issues as part of the Regional Airport System Plan identification of the major issues, interagency (RASP) Update 2000 process. In addition, ABAG dependencies, and areas of potential conflict held a workshop on October 10, 2000, to discuss the likely to face transportation providers, potential problems outlined in this report and to governments, utilities and businesses as they begin the process of developing strategies to cope to struggle to address the transportation impacts earthquake-related disruptions to airports. after a large earthquake. The Riding Out Future ! What are the options for bringing relief aircraft into Quakes – Ideas for Action report is both the the region if all runways at one or more major proceedings of those workshops, as well as a tool airports are damaged beyond immediate repair? to inspire innovative planning for minimizing ! What kinds of concerns should airport safety transportation disruption following future managers be addressing? What specific Bay Area earthquakes. One conclusion of these workshops earthquake issues should be included in their earthquake plans? was the importance of airports in the region’s ! What are the potential problems and solutions response and recovery to earthquakes. related to land-side access? At the same time, MTC is continuing to test and ! How should emergency plans be improved to deal refine the Trans Response Plan (TRP) which with areas likely to be damaged in an earthquake? ! If an airport lifeline network is established, what are integrates response and recovery efforts among all the critical land-side components of that network modes of transportation. The TRP coordinates (control towers, runways, key access routes, etc.)? the activities of MTC, Caltrans, State and local Offices of Emergency Services, and other transportation providers, including transit agencies and airports. iv 222 FINDINGS – EARTHQUAKES AND AIRPORTS What Are the Threats Based on past experience in California and other recent earthquakes, the threats to Bay Area airport operations following future earthquakes fall into to Airport Operations four general categories: Following Future Q liquefaction damage to airport runways, particularly at San Jose (until Earthquakes in the the new runways are completed), Oakland, San Francisco, and, perhaps, Moffett Federal Airfield; Bay Area? Q shaking damage to air control and terminal facilities, particularly older facilities that may be present at Oakland, Moffett, Hayward, San Francisco, Half Moon Bay, Buchanan, and Livermore airports; Q power and communications disruptions; and Q disruptions to the transportation systems serving the airports. 1. We need to better understand and mitigate the liquefaction hazard Our Airport Systems to runways. Thus, we need to expand on the liquefaction analysis Can and Should Be conducted for the runways at the three major airports (OAK, SFO, and Made More SJC) to: ¨ gain further information on the vulnerability of other major Earthquake-Ready! airports, particularly Moffett Federal Airfield on the Peninsula and Travis Air Force Base in Solano County, and, if feasible, Buchanan, Hayward, and Livermore in the East Bay; and ¨ incorporate more recent geotechnical information becoming available for OAK, SJC and SFO. We need to ensure that the design of new runways also mitigates liquefaction hazards associated with the connections to the existing runway system. Any runway expansions at SFO and OAK that tie into sections of existing runways which are vulnerable to liquefaction will make the expansions vulnerable as well. Current runway work at SJC is designed to minimize the liquefaction hazard. 2. We need to improve emergency planning at individual airports and to better coordinate emergency planning among airports and with other forms of transportation. Some ideas focusing on employees and operations at individual airports are listed at the end of this report. However, airport participation in coordinated emergency planning is also essential. MTC is starting this planning as part of the integrated Trans Response Plan (TRP) for earthquakes. 3. We need to identify alternate locations capable of handling large commercial and cargo jets after an earthquake should Bay Area commercial airports loose capacity due to road transportation system disruptions, runway damage, or structural damage. Travis AFB will have