BILL ANALYSIS �
SB 135
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Date of Hearing: August 7, 2013
ASSEMBLY COMMITTEE ON GOVERNMENTAL ORGANIZATION
Isadore Hall, Chair
SB 135 (Padilla) - As Amended: May 24, 2013
SENATE VOTE : 39-0
SUBJECT : Earthquake early warning system.
SUMMARY : Requires the Office of Emergency Services (OES), in
collaboration with various entities, to develop a comprehensive
statewide earthquake early warning system in California.
Specifically, this bill :
1)Requires OES, in collaboration with the California Institute
of Technology (Caltech), the California Geological Survey, the
University of California, the United States Geological Survey,
and others, to develop a comprehensive statewide earthquake
early warning system in California, which shall include:
a) Installation of field sensors.
b) Improvement of field telemetry.
c) Construction and testing of central processing and
notification centers.
d) Establishment of warning notification distribution paths
to the public.
e) Integration of earthquake early warning education with
general earthquake preparedness efforts.
2)Requires OES to identify funding for the system through single
or multiple sources of revenue, including, but not limited to,
federal funds, funds from revenue bonds, local funds, and
private grants.
3)Specifies that the earthquake early warning system shall not
become operative until OES identifies funding for the system.
4)Specifies that if funding is not identified by January 1,
2016, the provisions of this bill shall be repealed.
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5)Requires OES to file with the Secretary of State its
determination that funding was not identified by January 1,
2016.
EXISTING LAW
1)Provides for the California Emergency Services Act which
requires the Director of the OES to coordinate the emergency
activities of all state agencies during an emergency.
2)Provides for the establishment of a Standardized Emergency
Management System for use by all emergency response agencies.
3)Requires OES to coordinate the activities of all state
agencies relating to preparation and implementation of the
State Emergency Plan, which is the response efforts of state
and local agencies and the integration of federal resources
into state and local response and recovery operations.
4)Establishes the California Geological Survey which provides
scientific products and services about the state's geology,
seismology and mineral resources including their related
hazards, which affect the health, safety, and business
interests of the people of California. The Geological Survey
creates and maintains the California Integrated Seismic
Network (CISN) "ShakeMaps."
FISCAL EFFECT : Unknown
COMMENTS :
Purpose of the bill : According to the author, while earthquakes
cannot be predicted or prevented, using advanced science and
technology we can detect seismic activity to provide an advanced
warning, save lives and help mitigate damage.
The author further states, that the objective of earthquake
early warning is to rapidly detect the initiation of an
earthquake, estimate the level of ground shaking to be expected,
and issue a warning before significant ground shaking begins.
The warnings allow people to take cover, assist loved ones, pull
to the side of the road or exit a building. Earthquake early
warning systems not only alert the public, they also speed the
response of police, fire and other safety personnel by quickly
identifying areas hardest hit by the quake.
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Early warning systems are in place, or in the works in a number
of earthquake prone nations including Japan, Taiwan, Mexico,
Turkey, Italy, China and Romania. Japan's earthquake early
warning system provided the public with critical advanced
warning of the 9.0 magnitude earthquake in March 2011.
Earthquake warnings were automatically broadcast on television
and radio, and 52 million people received the warning on their
smartphones. Millions more downloaded the early warning app
after the quake to receive warnings in advance of large
aftershocks.
Background : As previously documented, California is a hotbed
for earthquake activity. Ninety percent of the world's
earthquakes and over eighty percent of the world's largest
earthquakes occur along the Circum-Pacific Belt, also known as
the Pacific Ring of Fire for its ever present earthquake
activity. The Pacific Rim of fire includes the very active San
Andreas fault zone in California.
Predictions from the Uniform California Earthquake Rupture
Forecast released in 2008 found that there is a 99.7% likelihood
of a magnitude 6.7 earthquake and a 94% chance of a 7.0
magnitude earthquake in California within the next 30 years.
In January 2013, the California Institute of Technology and the
Japan Agency for Marine Earth Science and Technology published a
study concluding for the first time that a statewide California
earthquake involving both the Los Angeles and San Francisco
metropolitan areas may be possible.
While earthquakes cannot be predicted or prevented, using
advanced science and technology has in the past detected seismic
activity and provided advanced warning. The objective of
earthquake early warning is to rapidly detect the initiation of
an earthquake, estimate the level of ground shaking to be
expected, issue a warning before significant ground shaking
begins, and estimate the location and the magnitude of the
earthquake. This is then used to estimate the anticipated
ground shaking across the region to be effected.
California currently has the California Integrated Seismic
Network, which is a demonstration earthquake early warning
system. The author contends that a fully developed system would
process data from an array of sensors throughout the state. The
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system would effectively detect the strength and progression of
earthquakes, alert the public within seconds and provide up to
60 seconds advanced warning.
Earthquake Early Warning Systems : When an earthquake occurs
seismic waves radiate from the epicenter like waves on a pond -
it is these waves we feel as earthquake shaking which causes
damage to structures. The technology exists to detect moderate
to large earthquakes so quickly that a warning can be sent to
locations outside the area where the earthquake begins before
these destructive waves arrive. The amount of warning time at a
particular location depends on the distance from the earthquake
epicenter. Locations very close to the earthquake epicenter
will receive relatively little or no warning whereas locations
far removed from the earthquake epicenter would receive more
warning time but may not experience damaging shaking. For those
locations in between, the warning time could range from seconds
to minutes.
Currently, there are two approaches to earthquake early warning
- the "single station" (or on-site) approach and the "network"
approach. In the single-station approach, a single sensor
detects the arrival of the faster but weaker seismic wave
(P-wave) and warns before the arrival of the slower, more
destructive seismic wave (S-wave). This approach is relatively
simple, but some would argue it is less accurate and more prone
to false alerts compared to the network approach.
The network approach utilizes many seismic sensors that are
distributed across a wide area where earthquakes are likely to
occur. This network of sensors sends data to a central site
where ground motion signals are analyzed, earthquakes are
detected and warnings are issued. The network approach is
considered to be slower, but more reliable than the on-site
approach. This is because it uses information from many
stations to confirm that the ground motion detected is actually
from an earthquake and not from some other source of vibration.
Arguments in support : The California Institute of Technology
argues that although we cannot prevent an earthquake, we can
better prepare ourselves and save lives by using our advanced
science and technology to detect seismic activity to provide an
advanced warning. The southern section of the existing
California Integrated Seismic Network is located here at
Caltech, which has been a global leader in seismic studies for
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nearly a century. Seismologists envision a warning system that
would process data from an array of sensor throughout the state.
The system would effectively detect the strength and the
progression of earthquakes, alert the public within seconds and
provide up to 60 seconds advanced warning before potentially
damaging ground shaking is felt.
The City of West Hollywood further contends that a statewide
earthquake early warning system is of vital importance for
California, a state that is especially susceptible to
earthquakes. A system that would detect seismic activity,
determine that progression, and alert people in advance of an
approaching earthquake, as envisioned in SB 135, would save
lives. All California cities must better prepare for future
earthquakes and an earthquake early warning system would advance
the preparedness work of cities by disseminating earthquake
information that will support public safety and emergency
response, and help to mitigate structural and financial loss.
The 1994 Northridge earthquake was a sobering reminder for those
of us living in Los Angeles County of our region's particular
vulnerability to earthquakes and the importance of earthquake
preparedness. SB 135 will save lives, property, and money.
Suggested Amendments : The California Legislature established the
Alfred E. Alquist California Seismic Safety Commission in 1975
with the passage of the Seismic Safety Act. Among its many
duties, the Commission is charged with reducing earthquake risk
to California residents, reviewing seismic activities funded by
the State, proposing and reviewing earthquake-related
legislation, and recommending earthquake safety programs to
governmental agencies and the private sector. With such specific
knowledge into earthquake events in the State of California the
committee might find it prudent to include the Commission in the
development of a comprehensive statewide earthquake early
warning system.
Therefore, the committee might wish to include the following
amendment on page 3, line 17:
Delete "and others" and insert "Alfred E. Alquist California
Seismic Safety Commission."
Previous Legislation : AB 928 (Blakeslee) 2009-2010 Legislation
Session. The bill would have required the High-Speed Rail
Authority to develop an earthquake early warning system and
coordinate development of that system with the Cal-EMA, the
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Department of Education, and the Public Utilities Commission.
The bill would have required the earthquake early warning system
to be designed to protect the lives of high-speed train
passengers and schoolchildren, and critical infrastructure by
providing advanced earthquake warning and by enabling preventive
measures seconds before an earthquake. (Held in Assembly
Governmental Organization Committee)
SB 1278 (Alquist), Chapter 532, Statutes of 2006. The bill,
among other things, renamed the Seismic Safety Commission the
Alfred E. Alquist Seismic Safety Commission, placed the
commission within the State and Consumer Services Agency, as an
independent unit, and increased the membership of the commission
from 17 members to 20 members.
REGISTERED SUPPORT / OPPOSITION :
Support
AFSCME, AFL-CIO
Berkeley Seismological Laboratory
California Institute of Technology
City of Baldwin Park
City of Bell Gardens
City of Beverly Hills
City of Chula Vista
City of Coalinga
City of Culver City
City of Encinitas
City of Grover Beach
City of Irvine
City of Los Angeles
City of Martinez
City of Pasadena
City of San Luis Obispo
City of Rancho Cordova
City of Walnut Creek
City of Watsonville
City of West Hollywood
City of Winters
Metropolitan Water District
San Luis Obispo Board of Supervisors
University of California
Opposition
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None on file
Analysis Prepared by : Felipe Lopez / G. O. / (916) 319-2531