Community Storm Shelters and Safe Rooms Code Changes, New Tools for Emergency Managers, and Learning from Recent Storms

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1 Community Storm Shelters and Safe Rooms Code Changes, New Tools for Emergency Managers, and Learning from Recent Storms 2018 Tornado Summit Community Sheltering & Preparedness Jim Bell, ASSA ABLOY Marc Levitan, NIST Glenn Overcash, AECOM on behalf of FEMA

2 Community Tornado Shelters are Being Constructed! 2018 Tornado Summit Community Preparedness Session: ASSA ABLOY

3 Recent and Upcoming Shelter Code and Standard Changes 2018 Tornado Summit Community Sheltering & Preparedness Jim Bell Windstorm Coordinator ASSA ABLOY Door Security Solutions

Tornadoes in U.S. 1,294 [1,884 in 2004 most yearly] Damage (U.S.) > US$5 billion Fatalities (U.

4 2017 Tornado Season Ranking 2017 US Tornado Stats 2017 Maximum Rated Tornado: EF4 Perryville, Missouri on February 28 Eustace Canton, Texas on April 29 Tornadoes in U.S. 1,294 [1,884 in 2004 most yearly] Damage (U.S.) > US$5 billion Fatalities (U.S.) Tornado Summit Community Preparedness Session: ASSA ABLOY 4

06 billion (2017 USD) Costliest tropical cyclone season on record 2017 US Landfall Storms

5 2017 Atlantic Hurricane Season Total depressions: 18 Total storms: 17 Hurricanes: 10 Major hurricanes (Cat. 3+) 6 Total fatalities 902 total Total damage $ billion (2017 USD) Costliest tropical cyclone season on record 2017 US Landfall Storms Harvey Irma Maria (USVI and PR) Nate TS Cindy, Emily, Phillipe 2018 Tornado Summit Community Preparedness Session: ASSA ABLOY 5

Tornado Shelter Facts: Need for Community Shelters Population in 250

is very little information, the latest estimate of homes with

season many shelters were unused because owners were not home when

6 Tornado Shelter Facts: Need for Community Shelters Population in 250 mph wind zone is approximately 65,000,000 people Even though there is very little information, the latest estimate of homes with shelters in the US is 100,000 During MAT reports after 2011 tornado season many shelters were unused because owners were not home when tornados hit 2018 Tornado Summit Community Preparedness Session: ASSA ABLOY 6

State Code Status where Storm Shelters Required by 2015 IBC Section 423 State Base Code Edition Adoption Policy Implementation Status Alabama 2015 Effective Statewide: 1/1/17 Shelters required by

Kansas 2006 Statewide for local adoption Varies by Municipality Kentucky 2012 Effective Statewide Louisiana 2015 Effective Statewide: 2/1/18 Michigan 2015 Effective Statewide Mandatory shelters

7 State Code Status where Storm Shelters Required by 2015 IBC Section 423 State Base Code Edition Adoption Policy Implementation Status Alabama 2015 Effective Statewide: 1/1/17 Shelters required by State (2010) Arkansas 2012 Effective Statewide Illinois 2009 Statewide minimum for local State Board of Education: 2015 IBC Indiana 2012 Effective Statewide Iowa 2015 Statewide minimum for local Kansas 2006 Statewide for local adoption Varies by Municipality Kentucky 2012 Effective Statewide Louisiana 2015 Effective Statewide: 2/1/18 Michigan 2015 Effective Statewide Mandatory shelters modifies out Minnesota 2012 Effective Statewide Mississippi 2012 Statewide minimum for local Missouri 2012 Unincorporated Municipalities and counties adoptions Nebraska 2012 Statewide minimum for local With local modifications or adoptions Ohio 2015 Effective Statewide: 11/1/17 Adopted /1/17 Oklahoma 2015 Effective Statewide Amended Out and Tennessee 2012 Statewide minimum for local Texas 2006 Statewide minimum for local Local adoptions of un amended 2015 Wisconsin 2009 Effective Statewide Note: Following States have small areas in 250-mph tornado shelter design wind speed zone: Georgia, New York, Pennsylvania, South Dakota, West Virginia 2018 Tornado Summit Community Preparedness Session: ASSA ABLOY 7

8 State Code Status where Storm Shelters Required by 2015 IBC Section 423: Texas Building Code is adopted locally Through December 31, 2017: 55 TX municipalities have adopted 2015 IBC in 250 mph tornado shelter wind speed zone Informal survey: approximately 50+ school storm shelters installed or in design phase 2018 Tornado Summit Community Preparedness Session: ASSA ABLOY 8

9 State Code Status where Storm Shelters Required by 2015 IBC Section 423: Oklahoma Building Code is adopted statewide 2015 IBC adopted on Sept. 15, 2017 with modifications OUBCC has removed from Chapter Four of the IBC 2015 Section entitled "Critical emergency operations" Section entitled "Group E occupancies" and has relocated and renumbered those sections to the newly created Appendix N entitled "Supplemental Storm Shelter and Safe Room Requirements." to be adopted by individual municipalities 2018 Tornado Summit Community Preparedness Session: ASSA ABLOY 9

10 Communication Shelter Locations, Shelter Occupants, Open/Closed, and Other Operational Information Issues To Resolve Admittance Policy: Open to general public or specific occupants only How do public find shelters? Publications, I-Phone Apps., Signage Opening/Unlocking Shelter Time Of Need: Closed-Full or Open-still room Security Staff Training 2018 Tornado Summit Community Preparedness Session: ASSA ABLOY 10

Shelter Requirement Changes in the 2018 IBC/IEBC and New Tools for Selection of Tornado Shelters and Best available Refuge Areas 2018 Tornado Summit

11 Shelter Requirement Changes in the 2018 IBC/IEBC and New Tools for Selection of Tornado Shelters and Best available Refuge Areas 2018 Tornado Summit Community Sheltering & Preparedness Marc Levitan, PhD. Acting Director, National Windstorm Impact Reduction Program National Institute of Standards and Technology

12 2018 IBC Code Requirement for ICC 500 Storm Shelters Required Occupant Capacity Provisions 2015: Group E occupancies.. The shelter shall be capable of housing the total occupant load of the Group E occupancy. 2018: Required occupant capacity. The required occupant capacity of the storm shelter shall include all the buildings on the site, and shall be the greater of the following: 1. The total occupant load of the classrooms, vocational rooms and offices in the Group E occupancy. 2. The occupant load of any indoor assembly space that is associated with the Group E occupancy. Exceptions: 1. Where a new building is being added on an existing Group E site, and where the new building is not of sufficient size to accommodate the required occupant capacity of the storm shelter for all the buildings on the site, the storm shelter shall at a minimum accommodate the required occupant capacity for the new building. 2. Where approved by the code official, the required occupant capacity of the shelter shall be permitted to reduced by the occupant capacity of any existing storm shelters on the site 2017 Tornado Summit Community Preparedness Session: NIST 12

13 2018 IBC Code Requirement for ICC 500 Storm Shelters Required Occupant Capacity Rationale (1/2) Intention is to provide shelter space for the reasonably expected maximum number of occupants of the entire school campus at the time of the tornado Required occupant capacity. The required occupant capacity of the storm shelter shall include all the buildings on the site, and shall be the greater of the following: 1. The total occupant load of the classrooms, vocational rooms and offices in the Group E occupancy. While the worst case occupant load is used for all spaces for fire exiting, the total occupant load for the building is excessive for storm shelter design. 2. The occupant load of any indoor assembly space that is associated with the Group E occupancy. Many schools have assembly-type facilities (e.g., gymnasiums with bleachers, multipurpose rooms, theaters) that could include the public outside of normal school hours. The purpose of the storm shelter is to provide safety for the school occupants at the time of the emergency Tornado Summit Community Preparedness Session: NIST 13

14 2018 IBC Code Requirement for ICC 500 Storm Shelters Required Occupant Capacity Rationale (2/2) Exceptions: 1. Where a new building is being added on an existing Group E site, and where the new building is not of sufficient size to accommodate the required occupant capacity of the storm shelter for all the buildings on the site, the storm shelter shall at a minimum accommodate the required occupant capacity for the new building. It is not the intent of the provisions to require the new building to be made larger just to meet the shelter provisions. 2. Where approved by the code official, the required occupant capacity of the shelter shall be permitted to reduced by the occupant capacity of any existing storm shelters on the site. Due to travel distances and possible age of the existing shelter (perhaps built before ICC 500), the code official can have input into the decision Tornado Summit Community Preparedness Session: NIST 14

15 2018 IBC Code Requirement for ICC 500 Storm Shelters Location Provisions and Rationale 2015: none 2018: Location. Storm shelters shall be located within the buildings they serve or shall be located where the maximum distance of travel from not fewer than one exterior door of each building to a door of the shelter serving that building does not exceed 1000 ft. (305 m) Rationale Limit travel time to the shelter to the FEMA-recommended 5 minutes 1000 ft maximum is based on average walking speed of 3 mph for 4 minutes, plus time to exit the building being served 2017 Tornado Summit Community Preparedness Session: NIST 15

2018 International Existing Building Code (IEBC) Shelter Requirements For Group E Occupancies, added provisions to IEBC identical to 2018 IBC requirements for storm shelter construction Applicable to

16 2018 International Existing Building Code (IEBC) Shelter Requirements For Group E Occupancies, added provisions to IEBC identical to 2018 IBC requirements for storm shelter construction Applicable to additions to existing buildings instead of new buildings Requirements located in IEBC 2018 Chapter 11: Additions, Section 1106 Rationale Avoid storm shelter requirements from driving decisions about new buildings versus additions 2017 Tornado Summit Community Preparedness Session: NIST 16

New Guidance for Selection of Tornado Shelters and Best Available Refuge Areas (1/2) NFPA 1616-2017: Standard for Mass Evacuation, Sheltering, and Re-entry Programs Requirements for consideration of

17 New Guidance for Selection of Tornado Shelters and Best Available Refuge Areas (1/2) NFPA : Standard for Mass Evacuation, Sheltering, and Re-entry Programs Requirements for consideration of building safety in shelter selection criteria Requirements for sheltering facilities to be deemed appropriate for temporary occupancy of evacuees for the applicable hazards by the AHJ Annex guidance for shelter and best available refuge area selection Checklists to aid in shelter assessment process 2017 Tornado Summit Community Preparedness Session: NIST 17

New Guidance for Selection of Tornado Shelters and Best Available Refuge Areas (2/2) General Minimum Recommendations for Selection of Existing Buildings Minimum Recommendations for Construction of

18 New Guidance for Selection of Tornado Shelters and Best Available Refuge Areas (2/2) General Minimum Recommendations for Selection of Existing Buildings Minimum Recommendations for Construction of New Sheltering Facilities Considerations for Shelter Exposure to the Hazard Event Considerations for Post-event Shelters Risk and Condition Assessments Pre-event Risk Assessment supporting shelter selection During-event Risk Assessment During-event Condition Assessment Post-event Condition Assessment Explicit guidance on shelters for specific hazards Tornadoes Hurricanes Snow/Winter Storms Floods Tsunamis Earthquakes 2017 Tornado Summit Community Preparedness Session: NIST 18

Upcoming Standards and Guidance for Tornadoes ICC 500-2020 Standard for the Design and Construction of Storm Shelters ICC will begin work this spring on the next revision to the Storm Shelter

loads Planned for adoption in 2024 I-Codes ASCE/SEI/AMS Wind Speed Estimation Standard Work underway to develop a new standard for tornado wind speed estimation, including significant

19 Upcoming Standards and Guidance for Tornadoes ICC Standard for the Design and Construction of Storm Shelters ICC will begin work this spring on the next revision to the Storm Shelter standard, to be published in 2020 for reference in the 2021 IBC/IEBC ASCE 7-22 Minimum Design Loads and Associated Criteria for Buildings and Other Structures Developing a new chapter in tornado loads Planned for adoption in 2024 I-Codes ASCE/SEI/AMS Wind Speed Estimation Standard Work underway to develop a new standard for tornado wind speed estimation, including significant improvements to the EF-Scale Want more info? Plan to attend Wednesday morning Breakout Session Ahead of the Storm: The Development of New Standards 2017 Tornado Summit Community Preparedness Session: NIST 19

20 Lessons Learned from Hurricanes Harvey and Irma 2018 Tornado Summit Community Sheltering & Preparedness Glenn Overcash Civil Engineer, Building Resiliency Group AECOM on behalf of FEMA

hurricane Outreach: hazard-specific protocol Operations: opening, security, power, food &

21 Community Sheltering and Preparedness: Lessons Learned from Hurricanes Harvey and Irma Hurricane Harvey Population Protected: tornado vs. hurricane Outreach: hazard-specific protocol Operations: opening, security, power, food & water Hurricane Irma Florida s unique preparedness challenges Post Irma recommendations 2017 Tornado Summit Community Preparedness Session: FEMA 21

22 Lessons Learned Hurricane Harvey in TX Combination Safe Rooms Designed and constructed to provide life-safety protection from both hurricanes and tornadoes FEMA requires Operations and Maintenance (O&M) Plans for funded safe rooms to address both events whenever different measure apply Main O&M Plan differences between tornado and hurricane: Protected Populations ~ Warning Times Space, essential features/accessories ~ Duration of Occupation 2017 Tornado Summit Community Preparedness Session: FEMA 22

23 Lessons Learned Hurricane Harvey in TX Combination Safe Rooms: Protected Populations Hurricane-vulnerable populations include those who must remain in the area or are unable to evacuate: Emergency response personnel People with access and functional needs Those lacking transportation Those without a place to evacuate to Tornado-vulnerable populations include the whole community Short warning times typical; evacuation not possible Tornado safe room populations are limited by projected travel times that are often a function of potentially short warning times 2017 Tornado Summit Community Preparedness Session: FEMA 23

occupancy demands additional considerations, supplies, and needs 20 SF / each standing or seated occupant Higher

24 Combination Safe Rooms: Duration of Occupancy Tornadoes = 2 hours If tornado warnings overlap, then occupancy duration may exceed 2 hours 5 SF / each standing or seated occupant Hurricanes = 24 hours The longer expected occupancy demands additional considerations, supplies, and needs 20 SF / each standing or seated occupant Higher criteria for ventilation, lighting, stand-by power, sanitation, potable water 2017 Tornado Summit Community Preparedness Session: FEMA 24

25 Community Sheltering and Preparedness: Lessons Learned - Hurricane Harvey in TX Adapting to Rapidly Intensifying Threat Harvey strengthened from Tropical Storm to Cat 4 Hurricane in less than 36 hours Sheltering at home: no longer a viable option for most near landfall Shelters space limited and evacuation routes jammed 2017 Tornado Summit Community Preparedness Session: FEMA 25

Lessons Learned Hurricane Harvey in TX Safe Room: Protected Populations FEMA safe room in Woodsboro, Texas Small community: population 1512 (2010) Multi-purpose building on elementary

26 Lessons Learned Hurricane Harvey in TX Safe Room: Protected Populations FEMA safe room in Woodsboro, Texas Small community: population 1512 (2010) Multi-purpose building on elementary / high school campus Protected Population: Tornado: open to whole community Hurricane: depends on event-specific county plan 2017 Tornado Summit Community Preparedness Session: FEMA 26

Lessons Learned Hurricane Harvey in TX Safe Room: Protected Populations Sheltering Guidelines for Harvey Shelters on west side of Highway 77 to be occupied

27 Lessons Learned Hurricane Harvey in TX Safe Room: Protected Populations Sheltering Guidelines for Harvey Shelters on west side of Highway 77 to be occupied according to local officials Shelters on east side of Highway 77 are reserved for emergency personnel only 2017 Tornado Summit Community Preparedness Session: FEMA 27

Lessons Learned Hurricane Harvey in TX Safe Room: Policy Outreach Notifying community: Not open to public Limited time for community outreach Prior to storm when evacuation still feasible,

28 Lessons Learned Hurricane Harvey in TX Safe Room: Policy Outreach Notifying community: Not open to public Limited time for community outreach Prior to storm when evacuation still feasible, prospective occupants turned away Woodsboro SR Harvey Population 5 fire department, 4 EMS, chief of police, county commissioner, county judge, and custodian Plus three families that arrived during the storm 2017 Tornado Summit Community Preparedness Session: FEMA 28

Redundancy critical - especially for tornado Other options include: Remote operated

29 Lessons Learned Hurricane Harvey in TX Safe Room: Operational Concerns Opening the safe room Custodian opened safe room with keys Other safe room staff have keys as back-up Redundancy critical - especially for tornado Other options include: Remote operated locks Keys kept in onsite Knox Box 2017 Tornado Summit Community Preparedness Session: FEMA 29

Lessons Learned Hurricane Harvey in TX Combination SRs: Operational Concerns Security: enforcing admittance policy Some unwelcomed public were angry Policy excepted: emergency conditions

30 Lessons Learned Hurricane Harvey in TX Combination SRs: Operational Concerns Security: enforcing admittance policy Some unwelcomed public were angry Policy excepted: emergency conditions Occupants safety compromised Safe room door damage possible Baffled entry systems can provide options for late-arriving people 2017 Tornado Summit Community Preparedness Session: FEMA 30

water heater or to recharge cell phones, other devices Food and Water Occupants brought their own food

31 Lessons Learned Hurricane Harvey in TX Combination SRs: Operational Concerns Standby Power Only supplied power to lighting and A/C: minimum ICC 500 requirement and eligible for FEMA funding No power for hot water heater or to recharge cell phones, other devices Food and Water Occupants brought their own food (and water) Potable water available through fountains 2017 Tornado Summit Community Preparedness Session: FEMA 31

Andrew Irma s changing landfall forecast strained shelter system and evacuation efforts According to State:

32 Lessons Learned Hurricane Irma in FL Preparedness Challenges State population approximately 21M Evacuation routes limited by peninsula geography Statewide sheltering system developed and implemented post-hurricane Andrew Irma s changing landfall forecast strained shelter system and evacuation efforts According to State: 6.5 M residents evacuated prior to Irma landfall 2017 Tornado Summit Community Preparedness Session: FEMA 32

Lessons Learned Hurricane Irma in FL Post-event Shelter Findings & Recommendations FL House Committee Report: Hurricane Response and Preparedness Florida s capacity to shelter people with special

33 Lessons Learned Hurricane Irma in FL Post-event Shelter Findings & Recommendations FL House Committee Report: Hurricane Response and Preparedness Florida s capacity to shelter people with special needs was particularly challenged Recommendations address: Shelter management training at local level Statewide special needs shelter registration Staffing resource plans Fund shelter generators to accommodate special needs 2017 Tornado Summit Community Preparedness Session: FEMA 33

34 Questions?

October By Kimberly Paarlberg, RA, Senior Staff Architect and Dave Bowman, Manager of Codes, ICC

October By Kimberly Paarlberg, RA, Senior Staff Architect and Dave Bowman, Manager of Codes, ICC 45 Be Prepared to Weather the Storm New Scoping in the 2015 IBC for Storm Shelters Using the ICC 500 ICC/NSSA Standard for the Design and Construction of Storm Shelters By Kimberly Paarlberg, RA, Senior