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USf/R
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90
33
8
Wha
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itie
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Cou
ntie
sSh
ould
Kno
wou
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arth
quak
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azar
dsan
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ocal
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ernm
ent
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bilit
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WIL
LLO
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AK
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ES
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AS
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NO
FB
AY
AR
EA
GO
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RN
ME
NT
S
ON3/J
13
By
Thrr
yM
arge
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Janu
ary
1979
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Will Local Government Be Liable for Earthquake Losses? WhatCities and Counties Should Know About Earthquake Hazards andLocal Government Liability
50272 ·101
REPORT DOCUMENTATION TL REPORT NO.
PAGE NSF /RA-790338.t. Title lind Sub"tle
r T3. ReclpltHlt'S Accession No
pr~r-1S7'r.,
1" RJ;~:;t;y 1979I •.
7. Autho'(sl 8 PerlOrrTllng Organization Repl No
10. Prorect/Task/Work Unit No
I. T. Margerum _ I9. Performmg OrganIzation Nalm" and Add,ess
- - I
13. Type of Report & Petlod Covered
14
<e,
1 L ConlrotctlCl or Grant(G) No
(G' AEN7707496---- -----
Association of Bay Area GovernmentsHotel ClaremontBerkeley, California 94705
12. SPOnsor ....g Organization Nam" and Address
Engineering and Applied Science (EAS)National Science Foundation1800 G Street, N.W.Washington, D.C. 20550 _
15. Supplementary Notes
-,---------------- --- - - - - - - -16. Abstrotct (limit 200 wordSI
The possible liability of a local government for injuries or losses in an earthquakecaused by or made more 1ike ly by the government's fa i 1ure to e1imi nate a known haza rdis examined. Pertinent terms are defined including liability, injury, and earthquakehozards. Seven major judicial decisions affecting California tort doctrines between1960-1977 are cited in view of the potential problem of liability for earthquake hazards. In an outline of the problems, the report includes a clarification of the extent and nature of local government's liability, advisement as to how to cope with thatliability, and recommended ways that tort law could be changed to encourage localgovernments to reduce hazards without increasing their liability. The basic structureand principle of modern tort law is reviewed. Other issues are examined such as howtort law affects local government decisions about earthquake hazards, the problem ofuncertainty, the responses to perceived liability, the problem of disincentives, andgeneral awareness of the issue. Three major reconrnendations are offered to make thelalv better.
17. Document Analysrs a Descuptors
Lega 1 1i abil ityLocal governmentHazardsEarthquakes
Torts
b. Identifiers/Open Ended Terms
Earthquake liability
c. COSATI Field/Group
18. AvailabilIty Stlltement
NTIS19. Secutlty Class (11'''5 Report 121. No of Pages
20. Security Class (This Page) 22. Price
(See ANSI-Z39.181 See Instrucflons on Revers" OPTIONAL FORM 272 (4-77)
(Formerly NTlS-351Department of Commerce
I
NOTICE
THIS DOCUMENT HAS BEEN REPRODUCED
FROM THE BEST COpy FURNISHED US BY
THE SPONSORING AGENCY. ALTHOUGH IT
IS RECOGNIZED THAT CERTAIN PORTIONS
ARE ILLEGIBLE, IT IS BEING RELEASED
IN THE INTEREST OF MAKING AVAIL.-\.BLE
AS MUCH DfFOR::VIATION AS POSSIBLE.
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he11
1.1\i
n!".
I·o
rc\i
lll1
plc
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lO
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po
ten
tia
lli
ahil
it~
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"O
IlL'
o!<.t
nu
mh
er
of
lact
o!"',
III
San
taR
lha
ano
Se
att
led
ct·i
...io
n...
ab
ou
tre
·Il
ah
ilil;
tlin
gllid
hu
ilJin
g"
111
tIlL'
dO\\
nto
\\n
;Ire,
-I"S
imila
rL·
OIK
ern
..."I
O\\
l'drc
dc\c
lop
llll'n
t01
ccrt<
.lin
area
...o
l"-\
nl'l
wra
gc
..-
\la"l
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ryc
ar"
;t1th
ough
lHl\
\th
cI.
.·i{
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"tl
lhL
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L'aU
tlllll
10Il
le\\
1111
..1.
Th
i"dl!l~rence
I'"c\plain~d
h)
tilL'
lal·t
that
the
...eearthqui.ll..~·e\pen~J1ceu
juri
"diL
'lio
ll"ar
crl
lllrL
''-1
\\a
rco
jti
lt'
ha
tard
"an
dh
a\t
'ht
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ll10
re\.!
ard
--
tllc
ma"
thc~
do
oth
er
ha
lard
....T
hi"
cOIK
lu...i
nn
i"corhi"t~nt
\\it
llth
e...u
nc)
fin
din
gth
atIO
L'~l
I;jttorne~"
1111
111..
1Ja
hlll
t:I"
am
ajo
rl"
acto
rIII
lk'c
i"in
n...
ah
llllt
Ila
/ard
...ill
gt'l
lera
l(..
I"np
l1ll.
..cd
we<
lr1IlL
jtlal
\c\
IIIp
ar
ticu
larl
.
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ikpO
!L'll
tial
Ilah
illt
~11
;\...
had
littl
ell
11P~
IL'1
011
pa
\ld
CC
I"lll
ll'"
ah
nu
tca
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'h
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cl1
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111
tilL'
lutll
l"!.:.
IOl
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'ra
lre
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Jh:
•in
crea
sed
U\\a
f{'n
r,",
so
fea
rth
qu
ake
fUlI
ard
"S
L'\C
ri.lI
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ent
"tu
die
"Il
a\c
re\e
,tkd
Illc
rea
"ln
gp
uh
llt'
and
me
dia
con
cern
ah
ou
t,:
anhq
ual..
cd
an
gcl
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alld
a,k
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thL'
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ror
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hle
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ral
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ed
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ing
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tin
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end
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cal
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ent
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agem
ent
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n"
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llgo\~rtlment,
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ed
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cit
ic...
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CO
Llllt
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arl
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l'lf-
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rin
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lin
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n
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gra
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thp
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ice
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ca"e
a\\
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lle.....
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lidbilit~
cnll
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....
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pn
tcn
lla
lltahillt~
lorearthtjLl~I~e
IU/.
lrd
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the
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hle
m"
oj
LJnL
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n~lI
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and
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e"
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he
rd
l"to
n~1
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ihlt
the
purp
o"e"
of
till'
tnn
Lm
rhl'
llL't
L'!lL
'ct
co
uld
hI.'
tha
t1.
1\\"
Je"l
gn
edIn
prn
llw
lc"akt~
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(ou
rag
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I~
lhe
f~...
tto.
.....i_f
!3..a
rtic
leon
page
15h
asb_
een
rem
oved
.
Bec
ause
ofco
py
rig
ht
restr
icti
on
s,
the
foll
ow
ing
art
icle
has
been
Or-
itll
'-!.
'01
t1az
ard
s,kl
Sks
and
Cu
lprn
s,by
Fra
nkT
rip
pett
,*
iir.
,e,
;"u
gu
't2
1,
19/c
.
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ilr.jl;~,
l.i1e
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g.,
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ter,
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n:1
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u.
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/-:;c:"J
c:
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PO
TE
NT
IAL
LIA
BIL
ITY
AG
en
era
lk
no
wle
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eIn
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u,ll
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of
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L.ll
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to!1
pnl1
l'ipk
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ahh
.:al~O\~rnl11C'nl·
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liahllit~.
Rea
son
able
nes
s..
Rca
'on
ahk
nc.
.,'··
I....
dete
rmin
edfr
ont
the
CIl
"
clllll..
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.:c.....
For
c\a
mp
le.
the
forc
...cca
bili
t)or
the
JOllI
r).
the
appa
r-e
nt
Illa
gllilllu
co
fth
eri
l....
and
lhl:
n.:
[ati
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hl'
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dh
l:llL
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fal
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act
ion
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tth
l1l
l1.:
i.lI
h11
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ract
ice
i...th
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ce
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rtto
e\a
min
ea
lte
rna
ti\e
...I1
ltl'-
lhe
ma
de
.
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...id
er
the
cao;.
;eo
fa
Inca
lg
mL
'rn
rne
nt
\\h
ich
acq
uir
e~n
{)\\
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(act
ual
Il{)
til~
e)01
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a/a
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u...
pu
hllc
hu
ildin
g.
Itca
lln:
po
nd
ina
\'ari
-C
I)o
f\\
a)\
:
mlt
lga
tcth
eh
'l/a
rd11
l1lI
1cdi
.ltc
l~.
2d
e\'e
lop
ap
lan
for
miti
g.a
tlng
thc
hi.u
ard
\\it
hin
;11\
::.I
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ni.
lhk
tim
e:
,a
len
u...e
r;.,
01tIl
l.:h
uild
lng
toth
eh
ala
rdIh
rou
gh
...orn
efo
rtn
llf
po...l
lng
(lr
Ul;"
l'](h
urc
of
the
da
ng
er:
4d
ccitl
cat
a"p
oJi
c)k\c
l'·
that
11ca
nn
ot
I1lll
lg;lt
l.:th
l.:h
a/a
rd.
<lIte
re
\plicit
l)cO
lhid
eri
ng
thL'
da
ng
er:
:'Ig
no
reth
ein
forl
ll<.lt
lllll
ilho
lltth
eJa
ng
cL6
"'upp
re'>
">th
elI
lfO
rllw
tlO
Ilah
out
Ihe
dang
er.
Sta
tutO
f}o
rm
an
da
tor)
dulie
.'"U
llue
rrre~Cl1l
lav..
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ilurc
tol·
orn
pl)
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~uclldutie~impo~cd
byS
talc
or
Fcu
era
lg
o\e
rnm
cn
tcon..,l1tutc~
:I...tr
on
ga
rgu
me
nl
for
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ility
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ith
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rdto
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l..e
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/ard
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em
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el)
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ce
\o
fIl
ah
illl)
arc
ma
nd
ate
...\\
hic
har
c...p
t'cl
ltc
(e.g
..t1
pl'O
lhtr
llcti
on
ono
r\\
lIh
ina
cert
ain
di..
.tanc
co
fan
al'l
i\e
fau
lt)
\\it
ll\\
hlc
hn
on
-co
mp
lia
ncc
cle
arl
)ca
u...c~
or
cont
rlbu
tc;.
,to
the
lI1Ju
r)o
r
IH
AN
DH
OW
TO
MIN
IMIZ
EIT
Fam
ilia
ri/c
polic~mak('r~
and
adm
ini.
.,tr
ath
eo
ffic
iah
nit
hm
ajo
rpr
im:ip
h.·..
,o
fto
rtli
abil
it).
1'111
'can
hea
cco
mp
Ji"h
cdth
rnug
h:
pcr
iod
il'...c
min
ar..,
h~
C'\
pcrh
ingU
H.'[
"Jlm
cnta
lklh
itll).
211
'guL
ufl
'\IC
'\\
anJ
t..lI..
.l'u
.....,J
oll
h!
ck
ttcd
Otl
ICI,
lI...
,lilt..!
...tal
l0
1
Ilah
llit
),u
lI...
pl'n
l!lI
lgag
alll
....tth
eJl
IrI'd
iL'ti
oll.
3p
erio
dic
dl.
..CU
......io
ll,
01illlp
OrL
.lIl
Il':
I..,
C\
\\h
leh
han
:be
end
Cl'
ltk
dh)
the
cou
rh
Re
me
mh
er
that
IIIth
eei.lnhqll.l~c
"'ltU
;!tI(
ll1,
thc
rea
...on
ah
kne
......o
f,I
loca
lg
()\c
rnlll
en
t.....
be
ha
\io
r\\
illhe
uC
lerm
ine
da
fte
rth
efa
ct.
i.e
.,a
ltcr
peop
leh
a\e
been
IllJu
red
or
1..J
1led
Inth
ec\a
lllp
ka
lle
rna
ti\c
....()
)an
d(0
)\\
ou
ldra
rel)
het.
."o
lhllk
red
rca
...on
ah
lcre
"'pon
...e~.
Alt
ern
atl
\e(I
)\\
ou
lda
l\\a
y...
here
a...o
na
hlc
,a.
..w
ou
ld(1
1.if
the
plan
\\cr
c"'p
et.."
lril'
and
imp
lem
en
ted
()\e
ra
rea"
'(1I1
ah
lt.::
pe
rio
do
fII
mc.
Alt
ern
ati
\c(.
')m
igh
tbe
reao
;.;ol
lahl
cl!
cpe
nd
illg
upon
Ihe
cin
..'ullh
lan
ce...:
(4),
\\hde
::it
i....an
cxcr
ci....c
of
<.ld
i....c
reti
on
ar)
n'.It
urc.
\\o
uld
ha\C
'10
here~hollahlc
<I'"
al't
ht-
he
ne
fil
trad
e::o
tl,an
d..t
ddltJ
nl1a
ll)lll
1ght
req
uir
eP
U..,
tll1g
of
a\\
i1rn
lllg
.0
ium
hcr
(.11
i...th
l..'he
...lC
OH
r...e
Int'n
ll()\
\if
the
IWl:.
lrdC
lllllo
tbe
mit
iga
ted
i11l
IllcJ
iaIC
I).
rhc
nced
lor
\\ar
n1J1
g...h
ou
ldhe
::l'o
n"'
lde
rcd
here
~h
wcl
l
Asc
cI1
ain
an
dfu
HiI
lst
atu
tor)
·o
rm
an
da
tor)
du
tics
imp
ow
dIJ
~
hig
he
rIc
vcls
of
go
vcrn
mcn
t.T
he
)\
at")
h)
...ta
lc.
but
ge
ne
rall)
the
Jutie~
moq
rclc
\·a
nt
tne
art
hq
ua
keh
a/a
rd'l
rela
teto
:
•h
uild
lllg
codc
;.,an
d'>
tand
ard'
>:•
1IhP
Cl't1
011.
cert
ific
atI
on
anJ
pe
rmit
rcq
uir
em
cnt'\
:•
el1\
Inll1
mcn
tal
haza
rd...
and
land
u...e:
:ordillallce~:
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