This pdf was recreated from the original publication files in March 2011. Please Note: The contact details given in this 1995 publication are no longer correct. Current contact information (2011) is: New Zealand Centre for Advanced Engineering Private Bag 4800, Christchurch 8140, New Zealand Phone: +64 3 364 2478 Fax: +63 3 364 2069 E-mail: [email protected] Web: www.caenz.com The Challenge of Rebuilding Cities Proceedings of a conference held in Wellington, New Zealand, 27-29 March 1995 July 1995 Jointly published by: EQC EARTHQUAKE COMMISSION and the Centre for Advanced Engineering ISBN 0-908993-10-2 First published July 1995 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, transmitted, or otherwise disseminated, in any form or by any means (except for the purposes of research or private study, criticism or review) without the prior permission of the Earthquake Commission. Copyright © 1995 Earthquake Commission, Wellington Compiled by Geoff Gregory, Word Therapy, Paraparaumu Editorial Services and Book Design Janine Griffin and Charles Hendtlass, Centre for Advanced Engineering Printing Piranha Print, Christchurch Cover Design Ken Hudson Graphics, Christchurch Cover Photograph View to the southwest over Wellington's central business district, built largely on reclaimed land which is susceptible to liquefaction during a major earthquake. The Wellington fault runs close to the base of the hills in the background. (Photo: Lloyd Homer, Institute of Geological & Nuclear Sciences). Disclaimer It will be noted that the authorship of this document and comments have been attributed to the many individuals and organisations involved. While all sections have been subject to review and final editing, the opinions expressed remain those of the persons responsible and do not necessarily reflect the views of the Earthquake Commission or the Centre for Advanced Engineering. Foreword he Wellington after the Quake conference sought to answer the questions faced by everyone in authority when cities commence recovery after a disaster: What happens next? T What do I do now? I proposed the conference within the Earthquake Commission (EQC), both to provide background for our own disaster management planning and to assist public and private planning for disaster recovery. All other government agencies or departments, local authority councils, businesses, or large organisations that face severe damage in a disaster need to plan their recovery. In order to do so, they, like EQC, need a basis for their planning. The conference set out such a basis by identifying the problems sure to be faced and by indicating possible solutions based on world and New Zealand experience. Much of the planning in the public sector relating to disasters has focused on the response phase — people’s needs immedi- ately after a disaster. So, too, with businesses, disaster recovery planning has focused on ways of getting the business up and running immediately, somewhere, somehow. Neither has dealt to any extent with the longer-term recovery from a disaster, including reconstruction of facilities, rebuild- ing of communities, and rebuilding of organisations. This conference brought together world and New Zealand authorities, with academic and technical expertise and with practical experience. The conference concentrated on Wellington, but by bringing to bear the best knowledge from around the world, its results are applicable to many cities around the world. The insights from this conference should be of value in every city that faces a risk of natural disaster. The conference was substantially supported by major sponsors, who are listed on page iii. The Earthquake Commission thanks the sponsors on its own behalf and on behalf of all those who attended the conference. Thanks are also due to the members of the organising committees for their invaluable help in making the conference a success. Ian McLean Chairperson, The Earthquake Commission i ii Acknowledgements EQC expresses its thanks to: Principal Sponsors New Zealand Fire Service Commission Alexander Howden Group Ltd NZ National Society for Earthquake Engineering E W Payne and INSTRAT (UK) Willis Faber & Dumas Sponsors Canon Machines (NZ) Ltd • Institute of Geological & Nuclear Sciences Ltd • Marsh & McLennan Ltd • Wairarapa Electricity Ltd • Frank Russell Company iii Members of the working committee Ian McLean, Chairperson, EQC • David Middleton, General Manager, EQC • Leicester Steven, Commissioner, EQC • Jacquie Hamer, NovaTech (NZ) Ltd, Project Manager • Lawrie Bryant and Rosemary Miller, International Public Relations • Geoff Gregory, Word Therapy • Bruce Jones, NZ Fire Service Commission • Neil Britton, Wellington City Council Members of the steering committee Those listed above, plus Dallas Moore, Ministry of Civil Defence • Paul Officer, Ministry of Civil Defence • Pat Helm, Prime Minister’s Department • Graham Miller, Wellington Regional Council iv Contents Page Foreword i Acknowledgements iii Wellington After the Quake: Introduction The scenario: The great Wellington quake of 1995 3 Executive summary and recommendations 7 Organisation, Government and Legislation The significance of Wellington being the capital in a disaster 15 John Roberts Organisation, government and legislation: Who coordinates recovery? 23 Jim Rolfe and Neil R Britton Panel Discussion 35 Rebuild? Where? Urban relocation after earthquakes: Why do cities stay where they are no matter how many times they are damaged? 41 Dennis S Mileti Planning for reconstruction: Opportunities and constraints facing Wellington 47 Steven P French Keeping catastrophic change in context 55 Christopher McDonald Discussion 61 Economic and Social Framework The economic impact of earthquake disasters 65 Hal Cochrane Disaster recovery as a social process 81 Joanne M Nigg Discussion 93 v Page Physical Reconstruction 1 Physical reconstruction: Timescale for reconstruction 97 Claire B Rubin Assessment of resources required for reinstatement 111 David C Hopkins Physical reconstruction: Availability of material, labour and plant from within New Zealand and the role of the private sector 121 Tony Lanigan Physical Reconstruction 2 The role of overseas organisations in disaster recovery efforts 139 W R Washburn The logistics of importing materials to the Wellington region, housing the workforce and construction bases 145 John H Christianson Discussion 157 Legislative Framework Current planning and construction law: The practical consequences for rebuilding Wellington after the quake 161 John E Feast Discussion 171 Social Aspects of Recovery 1 Earthquakes: A Maori dimension 175 Wira Gardiner Social Aspects of Recovery 2 Coordination and accessibility of post-disaster counselling and community support services 183 Rachel Scott Social aspects of recovery: The response of government agencies 191 Hon Bruce Cliffe Discussion 197 vi Page Recent Overseas Experience Kobe presentation 201 Kiyoyuki Kanemitsu The great Hanshin earthquake 205 Robert Park The Philippines after the 1990 quake and the Pinatubo eruptions 209 Jose P de Jesus Insurance and Financial Markets 1 Handling risk and claims after a catastrophe — An engineer’s perspective 217 Peter I Yanev with Charles R Scawthorn and W Rodney Smith Role of insurance companies in disaster recovery 229 Christopher Henri The Earthquake Commission’s preparations for disaster 245 David A Middleton Insurance and Financial Markets 2 Reinsurance — Its contribution to risk assessment and disaster management 255 Werner Schaad The role of the finance industry 263 Sir Frank Holmes Discussion 271 Conclusions Looking forward from the conference: Where to now? 275 Ian McLean Index 279 vii viii Scenario Wellington After the Quake: Introduction 1 Wellington After the Quake 2 Scenario The scenario: The great Wellington quake of 1995 he early morning flight from Christchurch There are problems, too, in the harbour. A had begun its leisurely descent to Welling- number of vessels appear to be damaged, T ton, still some 15 minutes away. The quiet of indicating vertical movement of the harbour bed. the cabin was broken by the voice of the aircraft That is the extent of the pilot’s report so far. captain from the flight deck: Reports of damage are now coming in from Ladies and Gentlemen, I am sorry to tell you that Masterton and Palmerston North and from since we left Christchurch there has been drama Blenheim, but as yet there are no details. elsewhere. At about the time we left Christchurch, As further information comes to hand, we will the Wellington region was hit by what is believed bring it to you. I fear that this is the day we all to be a major earthquake. The situation is still hoped we would never see. very confused but it is believed that damage is severe and extensive. Air Traffic Control have Four weeks later, an extract from the midday news advised that we are not to attempt to land at bulletin: Wellington, but along with all other aircraft destined for the capital we are to return to the For the past four weeks, Wellington has been point of departure. counting the cost of the recent earthquake. Priority is being accorded to the restoration of And later that morning on national television: essential services and the provision of temporary accommodation for those whose homes have We interrupt this programme to bring you a either been destroyed or that are for other special news bulletin. Central New Zealand was reasons uninhabitable. Access to the city area is this morning rocked by a major earthquake