SR-8-B (118)
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LUTM:PPD:SF:TR
f:\ppd\share\ccreport\finurm1
Council Meeting: June 21, 1994
Santa Monica, California
TO: Mayor and city Councll
FROM: City staff
SUBJECT: Recommendation to Adopt an Emergency Ordinance
Establishing New Standards for the Repair and
Retrofit of Potentlally Hazardous Structures
INTRODUCTION
This report recommends City Council adoption of an emergency
ordinance containing new repair and retrof i tting standards for
potentially hazardous structures in order to protect against
damage from future earthquakes.
BACKGROUND
In reviewing the damage to buildings in the city resulting
from the January 17 Northridge earthquake,
staff has
identified improvements that need to be made to building codes
in order to strengthen specific types of buildings that
sustained consistent damage.
Worklng closely with the
Building and Safety Commlssion, staff has prepared an
emergency ordinance containing specific standards for the
repair and retrofitting of a variety of potentially hazardous
structures, including the following types:
o Unreinforced masonry structures (URM'S)i
o SOft-story constructlon
o "Tilt-up" pre-cast concrete buildings
1
o Steel-frame buildings; and,
o Non-ductile/reinforced pre-cast concrete frame
buildings.
The proposed emergency ordinance addresses several repalr,
retroflt, and hazard mltigation issues which staff believes
are urgent and should be dealt with immediately. staff will
continue to work with the Building and Safety Commission to
evaluate and develop refinements to other building standards
to address other ldentifled issues.
In developlng these recommendations, staff has relied
extensively upon the expertise and recommendations of the
Building and safety commission. since March, 1994, the
Building and Safety CommisSlon has devoted six meetings to
thls subject. Unless expllcitly stated otherwise, the
recommendations set forth ln this report carry the support of
the Commission.
The purpose of the proposed new standards is to significantly
reduce potential damage from future earthquakes by addressing
specific types of buildings which the January 17 earthquake
has shown to be especlally susceptible to significant
earthquake damage, and which current City code standards do
not adequately address. By adopting these standards, the city
may help to reduce hazards as well as significantly lessen the
devastating economic impact of future earthquakes.
2
Table I shows the number of potentially hazardous structures
by building type as identified by staff. The table shows the
universe of structures that would be subject to the new
requirements. Many of the structures may already meet the
proposed new structural requirements and therefore would not
require retrofitting. However, in order to determine if a
building is in compliance with the proposed standards, an
engineering analysis will be required.
The following discussion addresses each of the potentially
hazardous building types, the problems observed in these
structures as a result of the Northridge earthquake, and the
proposed standards to address the public safety problems.
Unreinforced Masonry Buildinqs
During the last two decades, the City has undertaken several
measures to address the potential hazards associated with
unreinforced masonry (URM) buildings. In 1978, the city
council authorized staff to prepare an lnventory of all
unreinforced, pre-1933 masonry buildings and notlced owners of
potential hazards. Included in the inventory were 252
potentially hazardous structures. Most of these were located
in the Downtown and Main Street commercial areas, as well as
along Santa Monica Boulevard, Wilshire Boulevard, pica
Boulevard, Montana Avenue, Broadway, Lincoln Boulevard, and
Ocean Front Boulevard. Since that time, 128 have undergone
3
TABLE I
Number of Potentially Hazardous
Structures by BUilding Type
URM's
Soft- Story
Tllt- up
. Steel-frame
I" Precast Concrete
Non-ductile concrete. Incl
123r23/URMoth1
Figures for Tilt-up, steel-frame, precast concrete, and non-ductile
concrete are preliminary are subject to change pending further detailed
field investigations
i
above- grade parking I
218
1,921
<20
<50
<10
50-100
seismic upgrading, 27 have been demolished (prior to the
earthquake), and 5 were removed from the list after more
detailed structural engineering reports showed that they were
not unrein forced masonry-bearing wall structures after all.
Ninety (90) non-retrofitted URM's remain. since the
earthquake, 9 of the 218 URM's remaining prior to the
earthquake have been demolished.
In July, 1992, to comply with state legislation, the City
adopted a mandatory seismic retrofitting ordinance based upon
the state Model Ordinance for Seismic Retrofit of Hazardous
URM's. The Clty'S URM ordinance requires that all URM's
undergo out-of-plane strengthening, in addition to roof and
floor strengthening and in-plane strengthening of exterior
walls. Under the ordinance, all retrofitting must be
conducted within one to ten years.
since the January 17 Northridge earthquake, the Building and
Safety staff has examined all URM's to assess the extent of
damage. In particular, staff has examined the extent of
damage by geographlc area, the extent of damage depending upon
whether or not the building was retrofitted, and the type of
damage.
What the evaluatlons show is that damage varied depending upon
geographic area of the city. For example, the 38 URM's on
4
Main street experienced llttle or no damage. Among the 29
URM's located on the Third street Promenade, only 3
experienced moderate damage. Moderate damage involves severe
cracking of walls and/or a collapsed parapet. Conversely, of
the 37 URM's on Santa Monica Boulevard, 20 sustained moderate
damage and 4 sustained severe damage. Severe damage involves
a wall or ceiling collapse. Similarly, on Montana Avenue, 5
of the 9 URM's sustained moderate damage.
One possible explanation for these differences is that most of
the URM's on the Third Street Promenade and Maln street are
immediately adjacent to other buildings, giving them added
sheer strength to resist lateral groundshaking, whereas many
of the URM's on Santa Monica Boulevard and Montana Avenue
stand alone. Another explanation for the different levels of
damage is that the URM's on Montana Avenue and Santa Monica
Boulevard were closer to the areas of the most severe
groundshaklng.
Non-retrofitted URM's generally sustained greater damage than
retrofitted URM's. As shown in Table II, approximately 42
percent of the non-retrofitted URM's experienced moderate or
severe damage, compared to 21 percent of the retrofitted
URM's.
5
The damage information also shows that wall and parapet
cracking and collapse were common in both retrofitted and non-
retrofitted URM's. Based upon this information, staff
believes that the existing URM retrofit standards to not
adequately protect against wall and parapet damage and/or
collapse.
General URM Repair/Retrofit criteria
staff recommends the application of the following criteria for
the repair and reconstruction of all unreinforced masonry
structures:
o When a portion of a URM building such as a parapet,
wall or other structure collapses, and when the
reconstructed portion Slts atop an unreinforced
masonry structure, the reconstructed portion must
be constructed of material that is structurally
compatible with the underlying unreinforced
masonry, such as wood frame or steel.
masonry
and
concrete
are
not
Relnforced
considered
structurally compatible with underlying
unreinforced masonry.
o Upon commencement of any required structural
alterations to a URM, a pedestrian canopy shall be
constructed under the portion of the URM adjacent
to the publlC right of way.
6
TABLE II
Earthquake Damage to Retrofitted and
Non-Retrofitted URM's
Amt of Damage . Non-Retrofitted URM's
%
Retrofitted URM's
""
. TOTAL
: Minimal or None
i Moderate
i Severe
,
52
28
10
578%
31 1%
11 1%
96 750% 148'
25 195%. 53!
7 55%. 17!
128 1000% 218'
!TOTAL 90 1000%1
None - No damage
MinImal - Minor crackIng of walls and/or parapet
Moderate - Severe cracking of walls, and/or collapsed parapet
Severe - Wall or ceiling collapse
123r23/urmsolo1
o For landmark and landmark-eligible structures, an
owner may request a modification of any of the
repair and retroflt standards WhlCh may be granted
so long as the requested modification is consistent
with Part 8, Title 24, California Code of
Regulations, the state of Callfornia Historical
Building Code.
Parapets
The earthquake resulted in the damage and collapse of URM
parapets throughout the city, including many URM's that had
been upgraded to conform to the City's URM Ordinance
standards. Parapet collapse can be costly and even hazardous.
Had the Northridge earthquake occurred at another time of day,
numerous injuries could have resulted from collapsing
parapets.
Experience from recent earthquakes have highlighted that
replacing collapsed portlons of URM buildings with new
reinforced masonry on top of unreinforced masonry is
problematic. The primary problem is that the added weight of
masonry creates additional stress on the underlYlng structure,
thus increasing the chances of damage or collapse during
future groundshaking. Thus, staff is proposing new standards
for the repair of parapets. Specifically the standards
require:
7
o Zone definitions for the purposes of establishing
priorities for retrofitting parapets and walls:
Zone 1 shall be defined as the area which poses an
immedlate hazard to the public right-of-way,
specifically, (a) for one-story buildings, the area
within 9 feet of a public right-of-way; and, (b)
for two- or more story buildings, the area within
20 feet of a public right of way. Zone 2 shall be
defined as all areas not in Zone 1.
o All URM Parapets: If any part of a URM parapet is
located within Zone 1, the parapet must be braced
to the roof per current UBC standards within 18
months of the adoption of the Ordinance, or as part
of earthquake repair. For all parapets located in
Zone 2, the parapet must be braced as part of any
structural upgrade pursuant to the timetable
contained in the City'S existing URM Ordinance.
o Damaqed URM Parapets: If damage to a URM parapet
resultlng from the Northridge earthquake exceeds 10
percent of any glven length of the parapet
elevatlon or where the cost of repair exceeds
$50,000, the parapet must be braced to the roof per
current UBI standards within 18 months of the
adoption of the Ordinance.
8
Wall Failures
Neither the existing URM Ordinance nor the building code
address the method of repalring damaged URM walls. In light
of the fact that much of the URM damage from the Northridge
earthquake involved only portions of structures, staff is
recommending the following standards:
o If damage to any elevation is minor (<10 percent
cracking) and the wall remains connected to
floor/ceilings and is in plane and plumb, cosmetic
repairs with grout or epoxy shall be made wlthin 18
months of the effective date of the proposed
ordinance or as part of any earthquake repair
buildlng permit.
o If any elevation lS out of plane by less than 2
percent, the property owner shall submit to the
City within 6 months of the effective date of the
ordinance an Engineer's report on the extent of the
damage and necessary repairs. If the wall is 2
percent or more out of plumb or out of plane,
within 18 months the damaged portion of the wall
shall be removed to the next available horizontal
and vertical structural boundary and rebuilt to the
current code with non-masonry alternate materials.
o For vacant, non-retrofitted URM's located within
Zone 1 where the value of repair exceeds $10,000,
the property owner shall within 18 months brace or
9
retrofit at least those portions of the building
which reside ln Zone 1.
URM Evaluation
Some of the URM's damaged by the earthquake may be weakened
and therefore more susceptible to further damage from
additional earthquake or aftershocks. Staff is recommending
re-inspection of all URM's and accelerated retrofitting of
damaged structures, as follows:
o Where City inspections indicate that structural
damage may have occurred, the city will notify the
property owner that within 60 days of notification,
the property owner shall submit an engineering
report identifying the extent of damage and
necessary repairs. Necessary repairs shall be made
within 18 months of notification by the city.
o For buildings that have not been damaged, retrofit
will occur under City's existing URM retrofiting
standards.
IISoft-story" Construction Mitiqation
A number of potential building failures throughout the City
and region have been observed in structures using gypsum board
or stucco shear walls, elevated flag-pole column systems, and
open first floor car port designs using combinations of the
above in rotation--otherwise known as "soft-story"
10
construction. Severe racking at the foundation level of soft-
story carports caused many of the units above the carports to
be red- or yellow-tagged.
As a result of a prellminary survey, city staff has identified
approximately 1,900 soft-story buildings, consisting of
predominantly mUlti-family residential buildings containing
an estimated 14,000 dwelling units. Table III shows the total
number of sOft-story buildings identlfied and their
distribution throughout dlfferent geograph~cal areas of the
city.
Under the proposed ordinance,
apply to the repair and
construction:
o Within 120 days of the effective date of the
ordinance, the owner of a soft story structure in
which the cost of earthquake damage repair is less
than 50 percent of the replacement value shall
submit an engineering report demonstrating whether
the building complies with the Earthquake Design
standards contained in the UBC adopted by the city.
If the structure does not comply with these
standards, it shall be strengthened according to
these minimum specifications.
the following criteria will
retrofitting of soft-story
1 1
TABLE III
NUMBER OF SOFT-STORY STRUCTURES
By City section including Red/Yellow Tag status.
RED TAG
TOTAL
1,921
16
NORTH OF WILSHIRE
823
9
COLORADO TO WILSHIRE
501
7
PICO TO COLORADO
147
SOUTH OF PICO
450
* Damage assessment status as of February 15, 1994
YELLOW TAG
49
33
12
1
3
o within 120 days of the date the ordinance becomes
effective, property owners of sOft-story buildings
not damaged by the earthquake shall submit a
structural engineering report and non-rotational
lateral analysis to evaluate conformity with the
current Earthquake Design Standards of the UBC. If
the building does not meet these buildings code
specifications,
the
engineering
report
shall
describe the repairs needed to meet the minimum UBI
lateral force levels in non-rotational evaluatlon.
o
Timelines:
All sOft-story portions of buildings
shall be required to be retrofitted to a minimum of
the current earthquake building code design
standards according to the following timelines,
effective upon adoption of the ordinance:
I - Essentlal Faclllties - 1 Year
II - High Risk (> 100 occupant load) - 2 Years
III - Medium Risk (10 - 100 occupant load) - 3
Years*
IV - Low Risk (<10 occupant load) - 4 Years*
*Unless building has any occupied square
footage other than parking and/or storage, on
the bottom, soft/weak-story floor or portion
of the building, ln WhlCh case the retrofit
shall be required in 2 years.
12
These standards are based upon the occupant load
and bUlldlng type standards contalned in the City's
URM retrofit ordinance.
Pre-1976 "Tilt-up" Precast Concrete Buildings
"Tilt-up" buildings get their name from the fact that their
concrete walls are generally poured on site and tilted up into
position to form the exterior walls of the structure.
Prior to the 1976 UBC, "tilt-up" concrete wall panels were
generally installed without adequate integral wall/diaphragm
anchor systems. It has been recognlzed for some time that
this condition poses an earthquake threat to the buildings
stability.
Santa Monica does not have a significant number of tilt-up
buildings constructed under pre-1976 Building Codes. However,
some tilt-up buildings did experience damage and this type of
construction has been speciflcally identified by other
jurisdictions as a potentially hazardous building type. staff
estimates there are less than 20 of these types of buildings
in Santa Monica.
In order to address the potential threat caused by this type
of building, staff recommends adoption of similar standards
13
recently adopted by the city of Los Angeles. The recommended
standards are as follows:
o Require a structural engineering analysis within 275
days of City notificationi
o If the engineering analysis shows that structure does
not meet minlmum earthquake standards in the UBC, require
strengthening according to the timelines identified
above.
steel Framed Buildings
The Northridge earthquake caused severe damage to the
connections of some steel-frame bUlldings. The full extent of
such damage is difficult to assess due to the fact that most
such connections are covered. However, based upon isolated
analyses, the damage to steel frame buildings is worse than
anticipated.
It is estlmated that there are less than 50 other steel-frame
structures throughout the city.
To address the potential hazards ln steel frame buildings,
staff will prov1de letters to all owners of steel frame
buildings advising them of potential damage from the recent
earthquake and recommending a detalled inspection by a
structural engineer ln order to determine the safety scope and
extent of any damage. Staff will continue to monitor this
14
issue and, if necessary, will return to Council with more
specific retrofit requirements if such standards are
identified by the structural engineering profession.
Non-ductile/Reinforced Concrete Buildinqs
Several precast and reinforced concrete structures in the city
were damaged ln the earthquake, including Champagne Towers on
Ocean Avenue and virtually all the city parking structures in
the Bayside District. Reinforced non-ductile concrete
buildings over two stories and pre-cast structures over one
story may be especlally susceptible to damage from
groundshaking. This is confirmed by the extent of damage to
these types of building throughout the reglon. Buildings
located on the University of Northridge campus, Sherman Oaks
Galleria and Northridge Plaza sustained substantial damage as
a result of the Northridge Earthquake. This type of building
has the potential for slgniflcant damage and therefore should
be thoroughly evaluated for structural stability.
The Building and Safety Dlvlsion staff estimates that there
are between 50 and 100 non-ductile reinforced concrete
buildings in the city. Of these, eight are public parking
structures in the downtown commercial district.
As part of the proposed ordinance, staff lS recommendlng the
following:
15
l) Notify all property owners of these buildings that
within 275 days of notlfication by the City, a report
evaluating the building's compliance with the current
adopted Uniform Building Code seismic force levels shall
be submitted to the City.
2) If the building does not conform with the adopted
Uniform Building Code, the engineering report shall
specify how the building shall be brought lnto conformity
with the current UBC seismic force levels, and shall be
upgraded according to the timelines identified earlier in
thlS report.
Water Heaters
The breakage and collapse of water heaters can create hazards,
cause water damage, and leave many buildings without hot
water. During the recent earthquake, many water heaters
collapsed unnecessarily. The proposed ordinance requlres:
o Prior to building sale, or as part of any buildlng
permit or property inspection carried out by the
Building and Safety Division, all water heaters
shall be braced according to the standards
identified by the Building and safety Division (see
Attachment B) .
16
FUNDING OPTIONS
Various potential funding sources may be used to assist
property owners to comply with the new standards contained in
the proposed ordinance. These include the following:
o Small Business Administration (SBA): Loans of up to
$1.5 million per property may be available to private
property owners through the Small Business
Administration.
o Hazard Mitigation Grant Program: The Stafford Act
authorizes the use of a certain percentage of the federal
supplemental earthquake relief approprlations be used for
hazard mitigation, including earthquake repair and
retrofitting. It lS estimated that the state of
California will be ellgible for up to $780 million in
funds for hazard mitigation programs. criteria for
allocation and distribution of the funds are still being
developed by the state of Californla, WhlCh will
administer the program. The program pays up to 75
percent of the cost of eligible hazard mitigation
projects and requlres a match by the local jurisdiction.
At this point, it appears that schools will receive top
priority, hospitals wlll recelve second prlority, and
essentlal facilities will receive third priority. It is
not yet known how much money wlll be available to the
city of Santa Monica through this program.
17
o Earthquake Recovery Redevelopment Funds: As part of
the proposed Earthquake Recovery Redevelopment Project,
staff will be recommending that, as part of the first
five-year implementation plan, approximately $1.4 million
in tax increment funds be applied to a program to provide
loan and grant assistance to commercial and industrial
properties for repairs and rehabilitation, and another
$400,000 be applied to a program for earthquake
preparedness for commercial and industrial properties,
including retrofitting, educational materials, and
hazardous materials mitigatlon. with respect to
residential properties, staff will be recommendlng that
$1.8 mllllon be applied toward grant and loan assistance
for resldential repalr and rehabilitation, and another
$600,000 be used for financial assistance for residential
retrofitting.
ONGOING BUILDING AND SAFETY COMMISSION ISSUES
In addition to the new standards contained in the proposed
emergency ordinance, the Building and Safety Commission has
recommended the following program to address interior hazards
in a variety of land uses:
o The Cl ty should prepare pamphlets and videos on
mi tigatlng potentlal lnterlor hazards in single
family, multi-family, commercial, and lndustrial
buildings. The pamphlets shall address hazards
18
posed by suspended ceilings, light fixtures, store
racks, shelves and other interior hazards.
Moreover, staf f is working with
Commission to determine possible
issues:
the Building
action on the
and Safety
following
o Consider expanding the noticing and sign postlng
requirements currently applicable to URM's to other
potentially hazardous buildings;
o Work with major insurers on developing insurance
pricing incentives to encourage required retrofitting;
and,
o Explore the possibillty of requiring mandatory anchor-
bolting of conventlonal wood-frame structures as part of
any application for a substantlal rehabilltation.
Any recommendations made by the Building and Safety Commission
on these matters will be forwarded to the City Council for
consideration.
CEQA
The action proposed by staff is exempt from CEQA under Section
15269 of the State Resources Code in that the ordinance is an
emergency project under the CEQA disaster exemption.
19
BUDGET/FINANCIAL IMPACT
As a result of the new code standards, the approval of this
ordinance may increase costs to repair certain structures
including city-owned structures.
The City is required to
contribute two and one-half percent of the costs to repair and
retrofit damaged city structures. The spec1fic costs for the
repair are not known at this time, however, the council will
have the opportunity to review the construction costs as
repair contracts are awarded. As noted above, the staff will
be recommending that tax increment funds from the proposed
Earthquake Recovery Redevelopment Project be used to assist
with the repair and retrofit of privately-owned buildings.
RECOMMENDATION
It is recommended that the city council adopt the proposed
ordinance contained in Attachment A establishing new standards
for the repair and retrof i ttlng of potentially hazardous
structures.
Prepared by:
Suzanne Frick, LUTM Director
Tad Read, Assoclate Planner
Renee Cowhig, Building & Zoning Inspectlon
Supervisor
Bill Rome, Building Official
Attachments:
A - Emergency ordinance for the Repair and
Retrofit of Potentially Hazardous Buildings
B - Water Heater Retrofit Standards
20
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page 25
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25
CA:f:\a\m\1\mhs\urmord2
City Council Meeting 6-21-94
Santa Monica, California
ORDINANCE NUMBER 1748{CCS)
(City Council Series)
AN ORDINANCE OF THE CITY COUNCIL
OF THE CITY OF SANTA MONICA AMENDING
SECTION 9.04.140 OF THE MUNICIPAL CODE
RELATED TO SUPPLEMENTAL SEISMIC SAFETY
REHABILITATION REQUIREMENTS, ADDING SECTIONS
8.04.171 THROUGH 8.04.173 TO THE MUNICIPAL CODE
RELATED TO SUPPLEMENTAL REQUIREMENTS FOR
REPAIR, RECONSTRUCTION AND REINFORCEMENT OF
POTENTIALLY HAZARDOUS STRUCTURES,
REQUIRING BRACING OF WATER HEATERS, AND
DECLARING THE PRESENCE OF AN EMERGENCY
WHEREAS, numerous buildings and other structures in the
City of Santa Monica experienced substantial damage due to the
January 17, 1994 Northridge earthquake and its aftershocks;
and
WHEREAS, an evaluation of the damage reveals that because
of construction methods certain structures are especially
susceptible to damage in the event of major earthquakes and
pose a substantial risk to publlC health, safety, and welfare;
and
WHEREAS,
the City Council has considered evidence
presented in the staff report and public hearing concerning
local conditions; and
WHEREAS, pursuant to Health and Safety Code sections
17958.5 and 17958.7, based upon local climatic, geological,
and topographical conditions, the City Council finds it is
~
reasonably necessary to adopt supplemental requirements
related to repair, reconstruction and reinforcement of
potentially hazardous structures as identified in this
ordinance, and to require earthquake bracing of water heaters;
and
WHEREAS, for the reasons set forth above, protection of
the public health, safety and welfare requires the immediate
establishment of these supplemental requirements;
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF SANTA
MONICA DOES ORDAIN AS FOLLOWS:
SECTION 1. Findinqs. The City council finds that:
(a) The city is at risk of strong ground motion from a
number of nearby earthquake faults including the Newport-
Inglewood, Malibu Coast and Santa Monica faults. Potential
damage to new and most existing development is likely to be
slight to moderate; however, localized severe damage to
potentially hazardous structures may occur;
(b) Shallow ground water within 50 feet of the ground
surface occurs along the beach, near the industrial corridor
and Marine Park areas of the city. This ground water
condition, coupled with unconsolidated youthful sedimentary
soils, makes these areas susceptible to possible liquefaction
during strong or moderately strong earthquakes. Liquefaction
is a very destructive secondary effect of strong seismic
2
shaking where a loss of bearing strength occurs along with
ground oscillations in the supporting soils;
(c) The location of the City in proximity to the Pacific
Ocean creates an environment of high humidity and dampness
which can severely affect the conditions of structures exposed
to the elements.
(d) The structural integrity of certain types of
building structures performs poorly during the ground shaking
associated with earthquakes and is susceptible to extensive
damage and a threat to the public safety. Potentially
hazardous structures include the following building types:
unreinforced masonry structures; soft/weak story structures;
pre-1976 tilt-up concrete buildings; steel-framed buildings;
and pre-cast/reinforced poured in place concrete/non-ductile
buildings.
(e) The evidence presented in damage assessment reports
prepared by the Building and Safety Division and structural
engineering reports submitted to the City in the aftermath of
the Northridge earthquake has yielded the following results
for damaged potentially hazardous buildings:
(1) Unreinforced masonry structures experienced
numerous parapet collapses and wall failures, particularly in
the downtown and northern sections of the City. The absence
of reinforcement and the deterioration of the mortar in the
marine environment close to the ocean were contributing
factors.
3
(2) Many soft-story portions of structures,
primarily located north of Colorado Avenue, suffered severe
damage during the strong ground shaking. Limited shear wall
or lateral force resistance was a contributing factor.
(3) Tilt-up concrete buildings constructed prior to
the 1976 Uniform Building Code are vulnerable to roof collapse
during an earthquake. These structures were generally built
with inadequate integral wall/diaphragm anchor systems. No
such damage was exper ienced in Santa Monica dur ing the January
17, 1994 Northridge earthquake as no tilt-up structures are
located in the areas of the city most severely impacted by the
ground shaking; however, the performance of these buildings
has been very poor in areas outside of Santa Monica during the
Northridge earthquake and other earthquakes of similar
magnitude such as the Lama Prieta earthquake of 1989.
(4) Some pre-cast and reinforced non-ductile
concrete structures located in the downtown and beach areas of
the City suffered severe damage during the earthquake through
the cracking of rigid concrete members. Older reinforced
concrete structures lack adequate horizontal ties for vertical
steel reinforcing rods and were designed with significantly
different seismic design criteria than presently required by
the Uniform Building Code.
(f) During the Northridge earthquake numerous unsecured
water heaters throughout the city broke loose from their
fittings, some thereby rupturing gas and water lines. This
4
condition presented an immediate fire hazard at a time when
Fire Department resources were already in significant demand,
thereby creating a potential delay in responding to the
hazard.
(g) Based upon the above-described local climatic,
geological and topographical conditions, it is necessary to
adopt supplemental regulations concerning the evaluation,
repair, reconstruction and retrofitting of potentially
hazardous structures, and to require bracing of water heaters
so as to avoid or lessen the potential threat to the public
health, safety, and welfare in the event of future seismic
activity.
SECTION 2.
section 8.04.140 of the Santa Monica
Municipal Code is amended to read as follows:
8.04.140 UAC Sectlon 206(c) added- Supplemental Seismic
Safety Rehabilitation Requlrements.
section 206(c) of the Unlform Administrative Code, 1991
Edition, related to Supplemental Seismic Safety Rehabilitation
Requirements, is added to read as follows:
Division 1. 00. Scope. The provisions of this Section
shall apply to all pre-1934 unrelnforced masonry structures
which currently have or may in the future have recorded
against them on the record of t1tle in the County Recorder's
Office a city "Notice of Substandard and Potentially Hazardous
Building."
5
Division 2.00. Compliance Requirements. The owner of each
building within the scope of this section shall, within the
time limits set forth in this section, cause the building to
be structurally altered to conform to the earthquake standards
specified in the Seismic Retrofitting Code.
Division 3.00. Occupant Load and Building Type. The
occupant load of each building SUbject to the Seismic
Retrofitting Code shall be determined by the Building Official
in accordance with Section 3302 of the Uniform Building Code.
For purposes of complYlng with the time limits set forth in
Division 4.00, the rating classification ("Type") of the
building shall be defined as follows:
Rating
Classification
Building
Type
Occupant
Load
Essential
High risk
Medium risk
I
II
III-A
III-B
Any
100 or more
100 or more
More than 20,
but fewer than
100
Fewer than 20
Low risk
IV
An tlessential" building shall be any building that must
be usable in the event of an emergency, and shall include
hospitals, police and fire stations and disaster recovery
centers. A "high risk" building shall be any building with 100
or more occupants and without masonry or woodframe crosswalls
spaced less than 40 feet apart in each story. A "medium risk
subclass A" building shall be any building with 100 or more
occupants and wlth masonry or woodframe crosswalls spaced less
6
than 40 feet apart in each story. A "medium risk subclass B"
building shall be any building with more than 20 but fewer
than 100 occupants. A IIlow riskll building shall be any
building with fewer than 20 occupants.
Division 4.00. Timetable for Compliance. The time limits
set forth below shall begin to run from the date the Seismic
Retrofitting Code is adopted. The owner of any occupied or
vacant building within the scope of this section shall comply
with the requirements set forth herein and in the Seismic
Retrofitting Code by filing for a permit, submitting plans to
the Building Official, commencing construction and completing
construction within the time limits specified below:
File for Permit and Commence Complete
submit Plans to construction Construc-
Required Action Building Building Official within tion
By Owner Type Within within
A. Install Wall Type I,ll, 180 Days 270 Days 1 Year
III, IV
B. If Wall Type I 635 Days (lyr 9 mas) 2 Years 4 Years
Anchors Type II 635 Days (lyr 9mos) 2 Years 4 Years
Installed, 2825 Days (7yrs 9mos) 8 Years 10 Years
Then Make 2825 Days (7yrs 9roos) 8 Years 10 Years
structural
Alterations:
C. If Wall Type I 270 Days 1 Year 2 Years
Anchors Are Type II 270 Days 1 Year 2 Years
Not Type III 1000 Days (2yrs 9mos) 3 Years 4 years
Installed, Type IV 1365 Days (3yrs 9roos) 4 Years 5 Years
Then Make
Structural
Alterations:
7
Such plans shall be prepared by a state licensed architect or
engineer. After plans are filed and approved by the Building
Official, the owner shall obtain a Building Permit and then
commence and complete the requlred construction within the
time limits set forth above. That portion of the plan check
and building permit fees that are allocable to structural
alteration of the building that is necessary for compliance
with the Seismic Retrofitting Code shall be waived by the
Building Official.
An owner electing to lnstall wall anchors pursuant to the
Seismic Retrofitting Code lS also required to structurally
alter the building to make it fully comply with the Seismic
Retrofitting Code within the time limits set forth herein.
oi vision 5.00. Historical Buildings. Buildings designated
as historically or architecturally significant landmarks on
national, state or local historical registers shall comply
with the Seismic Retrofitting Code. At the Building Official's
discretion, modifications to the retrofitting standards set
forth in the Seismic Retrofittlng Code may be made so long as
such modifications are consistent with the provisions of the
state Historic Building Code.
Division 6.00. Demolition. An owner desiring to demolish
a building must nevertheless comply with the provisions of
this Code unless such owner receives permission to demolish
the building prior to the time limits set forth in Division
4.00 herein for the filing of a permit and the submitting of
8
plans to the Building Official. Such an owner shall submit a
Demolition Permit Application to the Building Official and
shall meet all of the requirements for demolition imposed by
this Code including but not limited to those requirements set
forth in Section 9.04.10.16.010 of this Code before such a
demolition shall be permitted. Nothing in this section or in
the Seismic Retrofitting Code shall be deemed to relieve a
building owner of meeting the requirements for demolition of
a building imposed by any other applicable law or regulation.
Division 7.00. Appeal of Initial Determination. The
owner of any building may appeal the Building Official's
initial determination that the building is within the scope of
this Code to the Building and Safety Commission as the Board
of Appeals established by section 204 of the Uniform
Administrative Code, as amended and adopted at section
8.04.020 of this Code. Such appeal shall be filed with the
Board within sixty (60) days from the date the Seismic
Retrofitting Code becomes effective. Any such appeal shall be
decided by the Board no later than ninety (90) days after
filing and the grounds thereof shall be stated clearly and
concisely. Appeals or requests for modifications from any
other determinations, orders / or actions by the Building
Official pursuant to this Section may be made in accordance
with the procedures established in sections 105 and 106 of the
Uniform Building Code and Section 204 of the Uniform
Administrative Code, as adopted by the city.
9
Division 8.00. Enforcement. If the owner in charge or
control of the subject buildlng fails to comply with this Code
within any of the time limits set forth herein, the Building
Official may order that the entire building be vacated and
that the building remain vacated until this Code has been
complied with. If compliance has not been initiated within
ninety (90) days after the date the building has been ordered
vacated or such additional time as may have been granted by
the Board of Appeals, the Building Official may (i) commence
the building's demolition in accordance with the provisions of
Section 203 of the Uniform Building Code and in accordance
with the Uniform Code for the Abatement of Dangerous
Bui ld ings , as adopted by the City i or, ( i i) undertake and
complete such structural alteration of the building as may be
necessary in the sole judgment of the Building Official to
cause the building to conform to the earthquake standards
specified in the Seismic Retrofitting Code, and to cause a
lien for the costs of such structural alteration to be placed
against the property. No demolition may occur pursuant to this
Oi vision 8.00 without compliance with all city laws and
regulations governing demolitions.
Division 9.00. Appeal Based on Severe Financial Hardship.
The owner of any building may appeal on the basis of severe
financial hardship from compliance with this Code. Such appeal
shall be filed with the City's Chief Financial Officer no
10
later than one hundred twenty (120) days after the effective
date of this Code.
Any such appeal shall be decided by the Chief Financial
Officer no later than ninety (90) days after filing and the
grounds thereof shall be stated clearly and concisely.
The burden shall be on the owner to demonstrate
conclusively that compliance with this Code shall result in
severe financial hardship. Documentary evidence shall be
submitted by the owner at the time the appeal is filed and
shall clearly demonstrate that compliance wlth thlS Code shall
resul t in severe financial hardship. such documentary evidence
may include, but shall not be limited to, the owner's tax
returns, general ledgers, rental and lease agreements,
personal and corporate income and expense records, and any
such other financial documents or information as the owner
desires to submit for consideration or as the City's Chief
Financial Officer deems necessary or desirable in evaluating
the owner's claim of hardsh1p. The failure of the owner to
provide any financial document or information requested by the
Chief Financial Officer shall result in denial of the appeal.
Any person denied an appeal by the Chief Financial
Officer may appeal the denial to a three person Financial
Hardship Appeal Board established by the City Manager. Any
such appeal shall be made in writing within ten (10) days of
the denial and shall be based on the evidence supplied to the
Chief Financial Officer. The Appeal Board may approve or deny
11
any appeal and may relieve an owner from compliance with the
requirements of Section 8.04.140, Division 4.00 (A), (B), or
(C) of this Chapter, as the Appeal Board in its sole
discretion deems financially feasible. The decision of the
Financial Hardship Appeal Board shall be final except for
judicial review and shall not be appealable to the city
Council. The Appeal Board 1S authorized to establish
procedures for the processing and consideration of appeals.
In any case where a building is exempted from compliance
with the Code on the basis of financial hardship, such
exemption shall be null and void and of no further force or
effect at the time the bU1lding is sold or experiences a major
change of occupancy as defined in the Building Code.
Division 10.00 Canopies. A pedestrian canopy conforming
to the standards developed by the Director of General Services
shall be constructed below any URM wall adjacent to any public
right of way upon commencement of construction of the
structural alterations required by this Section.
SECTION 3. Section 8.04.171 is hereby added to the Santa
Monica Municipal Code to read as follows:
8.04.171
Reconstruction,
Buildings.
UAC section
and Reinforcement
206(g) added- Repair,
of Unreinforced Masonry
12
section 206(g) of the Uniform Administrative Code, 1991
Edition, relating to Repair, Reconstruction, and Reinforcement
of Unreinforced Masonry Buildings, is added to read as
follows:
Division 1.00 Definitions. As used in this Section, the
following terms shall be defined as follows:
(a) Zone 1. (1) for one-story buildings, the area
within 9 feet of a public right-of-way; and, (2) for two- or
more story buildings, the area within 20 feet of a public
right of way.
(b) Zone 2. All areas not in Zone 1.
Division 2.00 Scope. The owner of each building within
the scope of this Section shall, within the time limits set
forth in this Section, cause the building to be altered to
conform to the earthquake standards specified in this section.
Nothing in this Section shall allow for an extension or
exemption from Section 8.04.140 of the Municipal Code.
Division 3.00 Standards for Repair, Reconstruction, and
Reinforcement of unreinforced Masonry ("URMII) Buildings.
(a) General.
(1) within 60 days of the date notice to the
property owner is provided by the City, the property owner of
any URM structure damaged by the January 17, 1994 Northridge
earthquake or its aftershocks, shall submit to the Building
and Safety Division a report prepared by a licensed engineer,
identifying the extent of damage to the structure and the
13
necessary repairs. Necessary repairs shall be made within 18
months from the date the notice is provided by the city.
(2) Except as provided in subsection (c), when any
portion of a URM building such as a parapet, wall or other
element has failed or collapsed, repairs shall be made with
wood frame or steel construction, or other material
structurally compatible w1th the unreinforced masonry.
Reinforced masonry and concrete shall not be considered
structurally compatible with the underlying unrein forced
masonry. Repairs shall be made within 18 months of the
effective date of this Ord1nance.
(b) Parapets.
(1) Parapets Damaged by the January 17, 1994
Northridge Earthquake. Any URM parapet or portion thereof
damaged by the January 17, 1994 Northridge earthquake or its
aftershocks, with 10 percent or more of damage on any side, or
where the cost of repair exceeds $50,000, shall be braced
within 18 months of the effective date of this Ordinance in
accordance with the Uniform Building Code in effect at the
time a building permit is issued.
(2) Reinforcement of Unreinforced Masonry Parapets.
Any URM parapet, or portion thereof, located within Zone 1,
shall be braced to the roof in accordance with the Uniform
Building Code in effect at the time the building permit is
issued, within 18 months of the effective date of this
Ordinance, or as part of any earthquake repair building
14
permit, whichever occurs first. For parapets located in Zone
2, all parapets shall be braced according to the timetable for
making structural alterations contained in Division 4.00 of
Section 8.04.140.
(c) Walls.
(1) Any unreinforced masonry wall damaged by the
January 17, 1994 Northridge earthquake or its aftershocks,
with less than ten percent of cracking on any elevation where
the wall remains connected to the floor and ceiling and the
wall remains in plane, may be repaired with grout or epoxy and
shall be repaired within 18 months of the effective date of
this Ordinance.
(2) If any unreinforced masonry wall damaged by the
January 17, 1994 Northr1dge earthquake or lts aftershocks has
any elevation out of plane, but by less than two percent, a
review and analysis by a licensed engineer is required to
determine the extent of damage and the necessary work to
repair the damage. Such analysis shall be submitted to the
City within six months of the effective date of this
Ordinance. Repairs shall be completed within 18 months of the
effective date of this Ordinance.
(3) If any unreinforced masonry wall damaged by the
January 17, 1994 Northridge earthquake or its aftershocks has
any elevation out of plane by more than two percent, the
entire wall shall be removed to the next available horizontal
or vertical structural boundary.
15
Cd) Vacant URM Structures located in Zone 1. Any
portion of a vacant URM structure located in Zone 1 which was
damaged by the January 17, 1994 Northridge earthquake or its
aftershocks, where the cost of repair exceeds $10,000, shall
be structurally supported within 18 months of the effective
date of this Ordinance.
Division 4.00 Historical Buildings. Buildings designated
as historically or architecturally significant landmarks on
national, state or local historical registers shall comply
with this section. At the Building Official's discretion,
modifications to the standards set forth in this Section may
be made on a case by case basis, so long as such modifications
are consistent with the provlsions of the state Historical
Building Code.
SECTION 4. Section 8.04.172 is hereby added to the Santa
Monica Municipal Code to read as follows:
8.04.172
UAC section 206(h) added- Repair,
and Reinforcement of potentially Hazardous
Reconstruction,
structures.
section 206(h) of the Uniform Administrative Code, 1991
Edition, relating to Repair, Reconstruction, and Reinforcement
of Potentially Hazardous Buildings, is added to read as
follows:
16
Division 1.00 Definitions. As used in this section, the
following terms shall be defined as follows:
(a) Non Ductile Precast Concrete Building. Any
structure designed and constructed with concrete elements that
are cast in other than their final position.
(b) Non Ductile Reinforced Concrete Building.
structure designed and constructed with poured in
reinforced concrete.
Any
place
(c) Soft story Building. Any structure or portion of a
structure classified as soft story in the Uniform Building
Code as adopted by the City of Santa Monica.
(d) Steel Frame Building. Any structure designed or
constructed with steel frame elements of load bearing and
lateral load resistance systems.
Division 2.00 Determination of Occupant Load and Buildinq
Type. For purposes of this section, the occupant load of each
structure shall be determined by the Building Official in
accordance with the Uniform Building Code as adopted by the
City of Santa Monica and shall be applicable to both vacant
and occupied structures. For purposes of this Section, the
structure type shall be as defined in the Earthquake Design
Section of the Uniform Building Code as adopted by the City of
Santa Monica.
Division 3.00 Scope. The owner of any structure
identified in this section shall, within the time limits set
forth in this Section, cause the structure to be evaluated,
17
repaired or retrofitted to conform to the criteria specified
in this Section.
Division 4.00 Soft story Construction.
(a) Within 120 days of the effective date of this
Ordinance, the owner of any soft story structure damaged by
the January 17, 1994 Earthquake or its aftershocks, where the
cost of repair is less than 50% of the replacement value of
the structure, shall submit an engineering report prepared by
a licensed engineer ("engineering report II ) to the Building and
Safety Division. The report shall be based on a non-rotational
lateral analysis and shall demonstrate whether the building
complies with the Earthquake Des1gn Standards contained in the
Uniform Building Code in effect at the time the structural
engineering report is submitted to the city. If the report
concludes the structure does not comply with the standards,
the structure shall be strengthened within the timelines of
Division 7.00 of this section and according to the following
standards:
(1) Calculated story drift shall not exceed 0.04/Rw
or 0.005 times the story height for structures having a
fundamental per iod of less than 0.7 seconds. For
structures having a fundamental period of 0.7 second or
greater, the calculated story drift shall not exceed
O.03/Rw or 0.004 times the story height.
(2) Use K=2. 1, the buckling factor for a cantilever
column, for the design of the steel columns.
18
(3) Do not allow the principle of diaphragm
rotation in wood frame buildings to dlstribute the design
lateral force(s).
(b) Within 120 days of notice to the owner by the City,
the owner of any soft story structure not damaged by the
January 17, 1994 Northridge earthquake or its aftershocks,
shall submit an engineering report to the Building and Safety
Division. The report shall be based on a non-diaphragm
rotational lateral analysis and shall demonstrate whether the
structure conforms to the Earthquake Design Standards
contained in the Uniform BU11ding Code as adopted by the City
of Santa Monica. If the report concludes the structure does
not comply with the standards, the structure shall be
strengthened within the timelines of Divis10n 7.00 of this
Section and according to the standards listed in subsection
(a) above.
Division 5.00 Tilt-up Buildings Constructed to Pre-1976
Building Code. within 275 days of the date of notice to the
owner by the city, the owner of any Tilt-Up building
constructed to pre-1976 Buildlng Code standards shall submit
an engineering report to the Building and Safety Division.
The report shall demonstrate whether the structure conforms to
the Earthquake Design standards contained in the Uniform
Building Code in effect at the time the report is submitted to
the city. If the report concludes the structure does not
comply with the standards, the structure shall be strengthened
19
to comply with the standards within the timelines of Division
7.00 of this section.
Division 6.00 Non Ductile Reinforced Concrete and Non
Ductile Pre-Cast Concrete structures. Within 275 days of the
date of notice to the owner by the city, the owner of any non
ductile reinforced concrete or non ductile pre-cast concrete
structure shall submit an engineering report to the Building
and Safety Division. For structures over three stories in
height, the report shall be based upon a dynamic lateral-force
analysis and for structures three stories or less, the report
shall be based upon a straight lateral load analysis. The
report shall demonstrate whether the structure conforms to the
Earthquake Design Standards contained in the Uniform Building
Code in effect at the time the report is submitted to the
city. If the report concludes that the structure does not
comply with the standards, the structure shall be strengthened
to comply with the standards within the timelines of Division
7.00 of this Section.
20
Division 7.00 Timetable for compliance.
Required Bldg. File for Perrnl..t Commence Complete
Act loon by Type and SubmJ.t Plans Constructl..on Construction
Owner to BUl..ld1.ng wl..th1.n w1.thin
Offl..c1.al withl..n
Make I 60 days from 150 days from 1 year from
alterat1.one date of eng. date of eng. date of eng.
to strengthen subm1ttal submittal rpt. submittal
rpt. rpt.
structure
II 180 days from 270 days from 2 years from
date of eng. date of eng. date of eng.
rpt. subm1ttal rpt. submittal rpt. submittal
III 1!s years from 1 year 8 mos. 3 years from
date of eng. from date of date of eng.
rpt. submittal eng. rpt. rpt. submittal
submittal
IV 2 years 5 mos. 2 years 8 mos. 4 years from
from date of from date of date of eng.
eng. rpt. eng. rpt. rpt. submittal
submittal submittal
Notwithstanding the above, as to any soft story structure
with occupied square footage other than parking or storage on
the first floor of the building, construction shall be
21
completed within 2 years from date of engineering report
submittal.
For purposes of this section IIdate of engineering report
submittal" shall be either that date upon which the report was
due to be submitted to the City, or the date of actual
submittal to the City, whichever is earlier.
Division 8.00 Historical Buildings. Buildings
designated as historically or architecturally significant
landmarks on national, state or local historical registers
shall comply with this Section. At the BU1lding Official's
discretion, modifications to the standards set forth in this
section may be made on a case by case basis, so long as such
modifications are conslstent with the provlsions of the State
Historical Building Code.
SECTION 5. section 8.04.173 is hereby added to the Santa
Monica Municipal Code to read as follows:
8.04.173 UAC section 206 (i) added- Bracing of Water
Heaters.
section 206(i) of the Uniform Administrative Code, 1991
Edition, relating to Bracing of Water Heaters, is added to
read as follows:
Water Heaters. Prior to any building sale after the
effective date of this Ordinance, or as part of any building
permit or inspection carried out by the Building and Safety
Division, all water heaters shall be braced in conformance
22
with the minimum standards established by the Building and
Safety Division.
SECTION 6. The City Council finds pursuant to City
Charter Section 615 that this Ordinance is necessary for
preserving the public peace, health and safety, and the
urgency for its adoption is set forth in the findings above.
SECTION 7. Any provision of the Santa Monica Municipal
Code or appendices thereto, ~nconsistent with the provisions
of this Ordinance, to the extent of such inconsistencies and
no further, are hereby repealed or modified to that extent
necessary to effect the provisions of this Ordinance. In the
event of any conflict between the provisions of this
Ordinance, and any other city adopted interim or emergency
ordinance, including the Earthquake Recovery Act, the
provisions of this ordinance shall prevail.
SECTION 8. If any section, subsection, sentence, clause,
or phrase of this Ordinance is for any reason held to be
invalid or unconstitutional by a decision of any court of any
competent jurisdiction, such dec1sion shall not affect the
validity of the remaining portions of this ordinance. The
city Council hereby declares that it would have passed this
Ordinance, and each and every section, subsection, sentence,
clause, or phrase not declared invalid or unconstitutional
23
without regard to whether any portion of the Ordinance would
be subsequently declared invalid or unconstitutional.
SECTION 9. The Mayor shall slgn and the city Clerk shall
attest to the passage of this Ordinance. The City Clerk shall
cause the same to be published once in the official newspaper
within 15 days after its adoption. This Ordinance shall be
effective upon its adoption.
APPROVED AS TO FORM:
~ A '---."
/1 I . < I J1/ _>. '
f i{.fL...&J LA- .~ / U-Ct{~
MARSHA JON~ MOUTRIE
City Attorney
24
. .
Adopted and approved this 21st day of June, 1994.
~lgf~A
I hereby certify that the foregomg Ordinance No. 1748 (CCS) was duly and regularly
adopted at a meeting of The City Council on the 21st day of June, 1994; by the following
Council vote.
Ayes:
Councilmembers:
Abdo, Genser, Greenberg, Holbrook, Olsen, Rosenstein
Noes:
Councilmembers:
None
Abstain: Councilmembers. None
Absent' Councilmembers:
Vazquez
ATTEST:
_~i;fi;~/4~
City Clerk