All buildings can be considered to be composed of two components, namely structural and non-structural parts. The structural parts, columns and beams, support the building. The non-structural parts, e.g., enclosure walls and windows, and electrical and mechanical systems, are the focus of this Strategy. In an earthquake, if the structure survives, that is, it has not collapsed and is safe, the building may not be suitable for occupation because of a lack of enclosure, heat, cooling, electrical, or water service. Even if a building is structurally safe, it may not be usable.
Since the majority of all hospitals, schools, police and fire facilities, jails and court houses were built prior to any seismic code requirements, there is a high likelihood that the normal functions of the building would cease due to a lack of windows, heat or power should a structure withstand even moderate earthquake shaking. Those buildings, and the people who occupy them, will be in need more than ever after an earthquake. The critical services of medical, security, and fire personnel will be largely unavailable if the power, phone, gas, water, or sewer service within the structure is not working. If a wall collapses into a street, how can a fire apparatus be used on a fire caused by a severed gas line?
Mitigation of non-structural hazards in critical buildings is the first line of defense in keeping civil services available they are most needed. This can also be the most cost-effective prevention strategy. Retrofit mitigation techniques have proved their worth time after time.
Require that each facility owner submit a "Report of Vulnerability" to its governing authority. This report would identify those non-structural building components and systems that, when damaged, would render the facility unusable or unavailable for its normal functions. With this information, a prioritized plan could be developed along with a budget for execution on a set schedule. The governing authorities for these facilities could then monitor the progress of implementation and assess appropriate awards or sanctions, i.e. certification, funding, etc.