Disaster and Failure Studies 

Program Overview 

Dr. S. Shyam Sunder

Director, Engineering Laboratory

National Institute of Standards and Technology

U.S. Department of Commerce

NCST Advisory 

Committee

November 7, 2011
Gaithersburg, MD Boulder, CO

~ 2,900 NIST employees

~ 2,600 associates and facility users

~ 1,600 field staff in partner organizations

~ 400 NIST staff serving on 1,000 national 

and international standards committees

• NIST Research Laboratories

• Manufacturing Extension Partnership 

• Baldrige Performance Excellence 

Program

• Technology Innovation Program

NIST At A Glance
The NIST Laboratories

NIST’s work enables

• Advancing manufacturing 

and services

• Helping ensure fair trade

• Improving public safety and 

security

• Improving quality of life 

NIST works with

• Industry

• Academia

• Other federal agencies

• State and local government 

agencies

• Measurement laboratories

• Standards organizations

Providing measurement solutions for industry and the Nation
NIST has... ...world-class staff

Eric Cornell

2001 Nobel Prize 

in Physics

John Cahn

1998 National Medal of 

Science

Debbie Jin

2003 MacArthur 

Fellowship

Bill Phillips

1997 Nobel Prize 

in Physics

Jan Hall

2005 Nobel Prize 

in Physics

Anneke Sengers 

2003 L’Oréal-UNESCO 

Women in Science Award
Engineering Laboratory Mission

To promote U.S. innovation and industrial 

competitiveness in areas of critical national priority 

by anticipating and meeting the:

- measurement science and

- standards

needs for technology-intensive manufacturing, 

construction, and cyber-physical systems in 

ways that enhance economic prosperity and 

improve the quality of life.
EL is the primary federal laboratory serving the manufacturing and construction industries.

Engineering Laboratory Vision

To be the source for:

- creating critical solution-enabling measurement 

science, and 

- critical technical contributions underpinning 

emerging standards, codes, and regulations

that are used by the U.S. manufacturing, 

construction, and infrastructure industries 

to strengthen leadership in domestic and 

international markets.
EL Core Mission Functions1

• Fire prevention and control

• National earthquake hazards reduction

• National windstorm impact reduction

• National construction safety teams

• Building materials and structures

• Engineering and manufacturing materials, products, 

processes, equipment, technical data, and standards

• Green manufacturing and construction

• Manufacturing enterprise integration

• Collaborative manufacturing research pilot grants

• Manufacturing fellowships

1Authorized by NIST Organic Act or by other statutes
EL Goals and Programs

EL Goal/Program FY 2012 Funding*

Goal: Smart Manufacturing, Construction, and Cyber-Physical Systems

Smart Manufacturing Processes and Equipment $3.0M

Next-Generation Robotics and Automation $3.8M

Smart Manufacturing and Construction Systems $3.3M

Systems Integration for Manufacturing and Construction Applications $6.9M

Smart Grid Program $8.0M

Goal: Sustainable and Energy-Efficient Manufacturing, Materials, and Infrastructure

Sustainable Manufacturing $5.3M

Sustainable, High-Performance Infrastructure Materials $3.2M

Net-Zero Energy, High-Performance Buildings $6.4M

Embedded Intelligence in Buildings $3.2M

Goal: Disaster-Resilient Buildings, Infrastructure, and Communities

Fire Risk Reduction in Communities $4.7M

Fire Risk Reduction in Buildings $5.6M

Earthquake Risk Reduction in Buildings and Infrastructure $4.1M

Structural Performance Under Multi-Hazards $3.5M

* Pending FY 2012 Appropriations Total $ 61.0M
Goal: Disaster-Resilient Buildings, 

Infrastructure, and Communities

• Fire Risk Reduction in Communities: To develop and deploy advances 

in measurement science to improve the resilience of communities and 

structures to unwanted fires through innovative fire protection and response 

technologies and tactics

• Fire Risk Reduction in Buildings: To develop and deploy advances in 

measurement science to increase the safety of building occupants and the 

performance of structures and their contents by enabling innovative, cost-effective 

fire protection technologies 

• Earthquake Risk Reduction in Buildings and Infrastructure: To develop and 

deploy advances in measurement science to resist earthquake effects, improve 

safety, and enhance resilience of buildings, infrastructure, and communities

• Structural Performance Under Multi-Hazards: To develop and deploy advances in 

measurement science to enhance the resilience of buildings and infrastructure to 

natural and manmade hazards
NIST Disaster and Failure Studies

Earthquakes Hurricanes Construction/

Building 

Tornadoes Fires

San Fernando, CA 

(1971)

Mexico City, Mexico 

(1985)

Loma Prieta, CA 

(1989)

Northridge, CA 

(1994)

Kobe, Japan (1995)

Kocaeli, Turkey 

(1999)

Maule, Chile (2010)*

Christchurch, NZ 

(2011)*

* Ongoing

Camille, MS/LA 

(1969)

Alicia, Galveston, 

TX (1983)

Hugo, SC (1989)

Andrew, FL (1992)

Hurricanes Mitch 

and Georges, 

LAC (1998)

Hurricanes Katrina 

and Rita (2005)

Skyline Plaza 

Apartments, Bailey’s 

Crossroads, VA (1973)

Willow Island Cooling 

Tower, WV (1978)

Kansas City Hyatt 

Regency, Kansas City, 

MO (1981)

Riley Road 

Interchange, East 

Chicago, IN (1982)

Harbor Cay 

Condominium, Cocoa 

Beach, FL (1981)

L’Ambiance Plaza, 

Hartford, CT (1987)

Ashland Oil Tank 

Collapse, Floreffe, PA 

(1988)

U.S. Embassy, 

Moscow, USSR (1987)

Murrah Federal 

Building, Oklahoma 

City, OK (1995)

World Trade Center 

Disaster, New York, NY 

(2001)

Dallas Cowboys Indoor 

Practice Facility, May 

2009

Jarrell, TX (1997)

Spencer, SD (1998)

Oklahoma City, OK 

(1999)

Joplin, MO (2011)*

DuPont Plaza Hotel, San Juan, 

PR (1986)

First Interstate Bank Building, 

Los Angeles, CA (1988)

Loma Prieta Earthquake, CA (1989)

Hillhaven Nursing Home (1989)

Pulaski Building, Washington, DC (1990)

Happyland Social Club, Bronx, NY (1990)

Oakland Hills, CA (1991)

Hokkaido, Japan (1993)

Watts St, New York City (1994)

Northridge Earthquake, CA (1994)

Kobe, Japan (1995)

Vandalia St, New York City (1998)

Cherry Road, Washington, DC (1999)

Keokuk, IA (1999)

Houston, TX (2000)

Phoenix, AZ (2001)

Cook County Administration Building Fire 

(2003)

The Station Nightclub, RI (2003)

Charleston, SC, Sofa Super 

Store Fire (2007)

Witch Creek & Guejito, CA, WUI Fire 

(2007)

Amarillo, TX, WUI Fire (2011)

© 2011 iStockphoto.com/Serhiy Zavalnyuk. Used with permission © 2011. iStockphoto.com/Siarhei Kaspiarovich. Used with permission

© 2011 Shutterstock/Diagon. 

Used with permission 

© 2011 Shutterstock/Diagon. Used with permission 

© 2011 

iStockphoto.com/Ani_Ka

. Used with permission
NIST Disaster and Failure Studies

Results

• Probable 

technical cause

• Lessons learned: 

successes and failures

• Improvements to 

standards, codes, 

practices, technologies

• Future research 

priorities

NIST Authorities & Roles:

 NCST Act (2002): building failures, 

evacuation and emergency response 

procedures

 NIST Act (1950, as amended): structural 

investigations; fire-resistive building 

materials; materials, mechanisms, 

structures, components, and systems)

 Fire Prevention and Control Act (1974):

fire investigations

 NEHRP Reauthorization Act (2004):

earthquakes

 National Windstorm Impact Reduction 

Act (2004): wind, storms and floods

 National Response Framework: structural 

and fire safety; disaster operations and 

situation assessment; urban and industrial 

hazard analysis; recovery

A program focus: Develop and maintain archival disaster and failure database of hazards, performance of buildings and 

infrastructure, evacuation and emergency response, and related factors (e.g., mitigation, response)
Disaster and Failure Event Studies 

and Data Repository FY 2012 (+$1.8M)*

• NIST will develop a prototype disaster and failure database, i.e., a National Disaster and 

Failure Events Database. 

• NIST will collect and analyze data and artifacts to improve the understanding of hazards, 

the real-world performance of buildings and infrastructure during disaster and failure 

events at both the component and the system levels, associated emergency response 

and evacuation procedures, and technical, social, and economic factors that affect predisaster mitigation activities and post-disaster response efforts. 

• The results of disaster and failure studies will lead to recommendations to provide 

disaster-resilience at the structure and community levels through improvements to 

building codes, standards, and practices and identification of gaps in current knowledge 

about buildings, infrastructure, emergency response, and human behavior. 

• NIST will create and maintain the database to facilitate disaster and failure studies and 

widely disseminate the data, findings, and recommendations from these studies. 

• Other federal agencies, state and local governments, research institutions and industry 

organizations that are engaged in parallel efforts and can provide input for the database 

will be engaged in the development of the database. For example, developing the 

earthquake module of the database, NIST will engage with FEMA, NSF, and USGS. 

___________________________

*Pending FY 2012 Appropriations
Problem Statement

• Hazards are a continuing and 

significant threat to U.S. communities: 

– earthquakes

– wind-related hazards (hurricanes, 

tornadoes, windstorms) 

– fire-related hazards (community-scale 

fires in the wildland-urban interface, 

structural fires)

– water-related hazards (storm surge, 

tsunami) 

– human-made hazards (blast, impacts, 

failure during construction or in-service)
Why Conduct Post-Disaster Studies?

• Extreme events test buildings and infrastructure in ways and on a scale that 

cannot easily be replicated in a laboratory – buildings and infrastructure are 

built without being tested at full scale. The “real world” is the laboratory for 

buildings and infrastructure. 

• The study of disaster and failure events is essential to improving the 

performance of buildings and infrastructure, the safety of building occupants, 

and the associated evacuation and emergency response procedures. 

• The results of disaster and failure studies also help assess the adequacy of 

codes and standards, current practices, and the state-of-knowledge in these 

areas.

• Finally, the results of studies help minimize future risk and increase safety 

through improved codes, standards, and practices.
Typical Study Objectives

• Establishing likely technical factors responsible for damage, 

failure/successful performance of buildings/infrastructure in aftermath 

of disaster/failure event.

• Evaluating technical aspects of evacuation and emergency response 

procedures that contributed to extent of survival and injuries and 

fatalities sustained.

• Determining procedures and practices that were used in design, 

construction, operation and maintenance of buildings/infrastructure.

• Recommending, as necessary, specific improvements to standards, 

codes, and practices as well as any research and other appropriate 

actions based on study findings.

NIST promotes, enables, and tracks adoption of recommendations through improved standards, codes, and 

practices as well as any research and other appropriate actions based on study findings.
Types of NIST Disaster and Failure Studies

• Preliminary Reconnaissance: a field study at a disaster or failure site 

to gather information and to help determine if a technical investigation is 

warranted.

• Technical Investigation: a fact-finding study that will likely result in 

recommendations for improvements to standards, codes, and practices 

and/or new knowledge. Studies may range anywhere from:

– limited scope, i.e., based on data collection and interpretation, 

modest analytical efforts, and judgment of technical experts, 

to 

– extensive scope, i.e., based on in-depth technical study—including 

extensive use of data, models, analytical and computational tools, 

laboratory and/or field experiments, and/or interviews.
NIST’s Role in Disaster and 

Failure Studies 

• NIST may use any one or a combination of the study options below in 

conducting a preliminary reconnaissance or a technical investigation:

– NIST may lead post-event studies. In many cases, these types of studies may involve a 

preliminary reconnaissance followed by a technical study that may include the 

characterization of the hazard, the safety and performance of buildings and structures, and 

the associated emergency response and evacuation procedures. Private sector and 

academic experts may be involved in these studies through contracts. Other public sector 

experts may also be involved in these studies.

– NIST may coordinate or participate in post-event studies. These types of studies may 

involve significant participation and/or coordination by other federal agencies with mission 

responsibilities and expertise. 

– NIST may sponsor or participate in private sector-led post-event studies. In many 

cases, these types of studies may a involve preliminary reconnaissance followed by a 

technical study that is limited in scope. NIST participation may be limited to guidance, 

oversight, and/or serving as a technical expert. These types of studies may involve 

significant private sector leadership and participation augmented with public sector experts.

– NIST may provide technical assistance in the reconstruction process for international 

disaster and failure events at the request of U.S. agencies, industry, private organizations, 

governments of other nations, or international organizations. 
International Disaster and Failure 

Events

• NIST may conduct reconnaissance of international disaster or failure 

events when lessons can be learned for the U.S.

• NIST involvement in international disaster or failure studies 

generally are undertaken:

– in cooperation with other U.S. agencies, industry or 

private organizations, governments of other nations, or 

international organizations 

– for the purpose of establishing or improving practices, 

codes, and standards in the U.S. 

• The decision criteria and guidelines for conducting studies are not 

intended to preclude situations where NIST is requested by other 

U.S. agencies, industry, private organizations, governments of other 

nations, or international organizations to provide technical 

assistance, on a reimbursable basis, in the reconstruction process 

for international disaster and failure events.
• Establish strategic partnerships and standing agreements with 

appropriate federal agencies, state and local governments, 

academic and industry organizations to ensure effective national 

coordination in disaster and failure studies

– NIST coordinates with the National Earthquake Hazards Reduction Program 

(NEHRP) agencies on post-earthquake investigations which are led by U.S. 

Geological Survey (USGS circular 1242 (2003) which provides the Plan to 

Coordinate NEHRP Post-Earthquake Investigations). 

– An ongoing NEHRP activity funded by NIST will update the plan to coordinate 

NEHRP post-earthquake investigations. The plan will be consistent with any 

changes to statute resulting from pending reauthorization (S.646, House markup 

pending).

• Establish coordination mechanisms and protocols for 

technical activities and public communications with partnering 

program agencies

• Provide information to other agencies, stakeholders, technical 

bodies, Congress, and the public

NIST Plan for Partnering and Agreements
Working Definitions

• Building – The term “building” includes the structural 

system, the building envelope, the fire protection (active or 

passive) system, the air-handling system, the building 

control system, and other non-structural systems within a 

building.

• Infrastructure - The term “infrastructure” includes the 

physical systems and networks other than in buildings, 

e.g., in infrastructure lifelines such as transportation (e.g., 

bridges, tunnels) and utility (e.g., power, water and 

wastewater, oil and gas, communication) systems.
Definition of Failure 

• A building or structural failure is generally understood to 

involve a partial or total collapse of the building or at the 

very least a local failure involving one or more building 

components (e.g., beams, girders, floors, compartments, 

sprinklers, smoke alarms, doors).

• NIST may study the technical aspects of:

– building (or infrastructure) failure

– successful building (or infrastructure) performance

– evacuation and emergency response procedures, including 

• occupant behavior

• evacuation (egress or access) system

• emergency response system

• emergency communication system
NIST Decision Criteria and 

Guidelines

• NIST has developed Decision Criteria and Guidelines that 

provide a rational basis for evaluating the value of conducting 

a NIST study.

– NIST considers staff availability, resource availability, staff safety, 

and the quality and adequacy of information and artifacts 

available to conduct a meaningful study. 

– To the extent practicable, NIST will deploy a team in a timely 

manner after a disaster or failure event.

• If the Congress or the Administration issues a directive to 

respond to an event, NIST will seriously consider conducting 

a technical Investigation with scope that ranges anywhere 

from limited to extensive as appropriate to the event.

• The decision criteria and procedures may be refined as NIST 

gains experience with their use.
Categories of Decision Criteria

• Substantial Loss of Life or Disabling Injury

• Significant Potential for Loss of Life: Exposed Population

• Level of Hazard

• Consequences (Extent of Damage and Loss of 

Functionality)

• Need for NIST involvement

• Stakeholder Concern

• Evacuation / Emergency Response Challenges

• International Events (code enforcement; similarity of 

practices)
Preliminary Reconnaissance Criteria 

Preliminary Reconnaissance Criteria Low (1) Med (3) High (5)

1. Substantial Loss of Life or Disabling Injury

Single or adjacent structures 0 1 to 2 >2

Community (city, county, metropolitan area) 0 to 3 4 to 9 >10

Region (state to multi-state) 0 to 5 6 to 19 >20

2. Significant Potential for Loss of Life: Exposed Population

Single structure (occupancy) <100 100 to 499 ≥500

Community (city, county, metropolitan area) <1 000 1 000 to 9 999 ≥10 000

Region (state to multi-state) <100 000 100 000 to 999 999 ≥1 000 000

3. Actual Hazard

Earthquake ≤ MMI IV MMI V to VII ≥MMI VIII

Hurricane at Landfall ≤Cat 3 Cat 4 Cat 5

Tornado ≤EF3 EF4 EF5

Coastal Inundation < 3 ft 3 to 9 ft ≥ 10 ft

Fire Spread in a Structure Fire spread not beyond area of 

origin Fire spread throughout a structure Fire spread beyond structure of origin

Wildland Urban Interface (WUI) High Forest Service Fire Danger 

Rating

Very High Forest Service Fire Danger 

Rating

Extreme Forest Service Fire Danger 

Rating

Blast < 99 lbs. TNT-equivalent 100 - 999 lbs. TNT-equivalent >1000 lbs. TNT-equivalent

Impact < 1 x 106ft lb/sec 1 x 106to 1 x 107ft lb/sec > 1 x 107ft lb/sec

4. Consequences (damage and functionality)

Failure during Construction Local structural failure Partial structural collapse Total structural collapse

Engineered Building Structures Minimal nonstructural damage Significant nonstructural damage

Minimal structural damage Significant structural damage or collapse

Transportation & Utility Structures Minimal nonstructural damage Minimal structural damage

Partial loss of function

Significant structural damage or collapse

Complete loss of function

Non-Engineered Building Structures Minimal nonstructural damage Minimal structural damage Significant structural damage or collapse

5. Need for NIST Involvement

NIST Authority

Addressed by other authorities –

and their mission responsibility 

and agency expertise

Collaboration with other agencies where 

NIST provides complementary expertise

NIST has primary authority and/or 

expertise

Score Sum __ x 1 __ x 3 __ x 5
Preliminary Reconnaissance Criteria (2) 

Preliminary Reconnaissance Criteria Low (1) Med (3) High (5)

6. Stakeholder Concern

Federal disaster declaration N/A Declaration;

Minimal structural damage

Declaration;

Significant structural damage

Request by other Authorities (local, state, federal) None NIST provides complementary expertise NIST has primary expertise

Public Interest. Local news State or regional news National news

Unique event with potential broad implications for 

similar or other types of structures Minimal impact Moderate impact Significant impact

Score Sum __x 1 __ x 3 __ x 5

Total Score Total Sum __ x 1 __x 3 __x 5

7. Evacuation and Emergency Response

Evacuation Normal evacuation Moderate evacuation challenges Significant evacuation challenges

Emergency Response Normal operations Moderate operational challenges Significant operational challenges

Score Sum __ x 1 __x 3 __ x 5

8. International Events*

Codes, standards and enforcement

No building codes, standards, or 

enforcement 

Building codes and standards, but no 

enforcement

Building codes and standards, with 

enforcement

Construction practices similar to the U.S. Minimally similar Moderately similar Significantly similar

Total Score: (From 1-6) __x__ = __ Sum (0.7)n

(0.9)n(1.0)n

* n is 0,1, or 2, depending on the number of selected items under each ranking category (i.e., Low, Med, or High) for Criteria 8. The factor applied to the 

Total Score is the product of all three factors.
Examples of Decision Criteria 

Year Event

Criteria

1 to 5

Weighted Score

Total 

Weighted 

Score

Evacuation and/ or 

Emergency 

Response Score

Blasts and Impacts

1993 WTC 1 Truck Bombing 4.2 N/A N/A

2001 WTC 1 and WTC 2 Collapse 5.0 N/A 5.0

2001 WTC 7 Collapse 3.8 4.1 N/A

Fire Events

2003 Rhode Island Nightclub Fire 4.2 N/A 5.0

2007 Charleston Sofa Super Store Fire 3.8 4.25 3.0

2007 California WUI Fire 4.2 N/A 5.0

Earthquake

1994 Northridge Earthquake, Los Angeles

4.4 N/A N/A

2001 Nisqually Earthquake, Seattle 2.7 N/A N/A

Hurricane

2005 Hurricane Katrina (Sun, 28 Aug) 3.0 3.5 5.0

2005 Hurricane Katrina (Tues, 30 Aug) 4.7 N/A 5.0

Structural Failures

1981 Hyatt Regency Walkway Collapse 4.5 N/A N/A

1981 L’Ambience Plaza 3.5 4.1 N/A

1988 Ashland Tank Failure 2.5 3.6 N/A

2006 Elks Lodge Collapse, Missouri 2.6 N/A N/A

2009 Dallas Cowboys Collapse

3.5 3.6 N/A
Recent Deployments

• 2010 Maule, Chile, earthquake

• 2011 Christchurch, New Zealand, earthquake

• 2011 Amarillo, TX, wildland-urban 

interface fire

• 2011 Joplin, MO, tornado

New Zealand Earthquake

Amarillo WUI fire

© 2011 Karen Slagle, Used with permission

St. John’s Hospital

Joplin Tornado

Chile Earthquake

The Home Depot, Joplin Tornado
Amarillo Wildfire

Preliminary Reconnaissance Criteria Low (1) Med (3) High (5)

1. Substantial Loss of Life or Disabling Injury

A. Single or adjacent structures 0 1 to 2 >2

B. Community (city, county, metropolitan area) 0 to 3 4 to 9 >10

C. Region (state to multi-state) 0 to 5 6 to 19 >20

2. Significant Potential for Loss of Life: Exposed Population

A. Single structure (occupancy) <100 100 to 499 ≥500

B. Community (city, county, metropolitan area) <1 000 1 000 to 9 999 ≥10 000

C. Region (state to multi-state) <100 000 100 000 to 999 999 ≥1 000 000

3. Actual Hazard

A. Earthquake ≤ MMI IV MMI V to VII ≥MMI VIII

B. Hurricane at Landfall ≤Cat 3 Cat 4 Cat 5

C. Tornado ≤EF3 EF4 EF5

D. Coastal Inundation < 3 ft 3 to 9 ft ≥ 10 ft

E. Fire Spread in a Structure Fire spread not beyond area of 

origin

Fire spread throughout a 

structure Fire spread beyond structure of origin

F. Wildland Urban Interface (WUI) High Forest Service Fire 

Danger Rating

Very High Forest Service Fire 

Danger Rating

Extreme Forest Service Fire Danger 

Rating

G. Blast < 99 lbs. TNT-equivalent 100 - 999 lbs. TNT-equivalent > 1000 TNT-equivalent

H. Impact < 1 x 106ft lb/sec 1 x 106to 1 x 107ft lb/sec > 1 x 107ft lb/sec

4. Consequences (damage and functionality)

A. Failure during Construction Local structural failure Partial structural collapse Total structural collapse

B. Engineered Building Structures Minimal nonstructural damage

Significant nonstructural 

damage

Minimal structural damage

Significant structural damage or collapse

C. Transportation & Utility Structures Minimal nonstructural damage Minimal structural damage

Partial loss of function

Significant structural damage or collapse

Complete loss of function

D. Non-Engineered Building Structures Minimal nonstructural damage Minimal structural damage Significant structural damage or collapse

 5. Need for NIST Involvement

A. NIST Authority

Addressed by other authorities –

federal, state, local – and their 

mission responsibility and 

agency expertise

Collaboration with other 

agencies where NIST provides 

complementary expertise

NIST has primary authority and/or 

expertise

Score: 19/5= 3.8Sum 1x 1 1x 3 3x 5
Preliminary Reconnaissance Criteria Low Med High

6. Stakeholder Concern

A. Federal disaster declaration N/A Declaration;

Minimal structural damage

Declaration;

Significant structural damage

B. Request by other Authorities 

(local, state, federal) None NIST provides complementary 

expertise NIST has primary expertise

C. Public Interest. Local news State or regional news National news

D. Unique event with potential broad 

implications for similar or other types of 

structures

Minimal impact Moderate impact Significant impact

Score: _13_/_3_ = _4.3_ Sum _0_ x 1 _1_ x 3 _2_ x 5

Total Score: _32_/_8_ = _4.0 Total Sum _1_ x 1 _2_ x 3 _5_ x 5

 7. Evacuation and Emergency Response

A. Evacuation Normal evacuation Moderate evacuation challenges Significant evacuation challenges

B. Emergency Response Normal operations Moderate operational challenges Significant operational challenges

Score: __/__ = __ Sum __ x 1 __ x 3 __ x 5

 8. International Events*

A. Codes, standards and enforcement

No building codes, standards, 

or enforcement 

Building codes and standards, but 

no enforcement

Building codes and standards, with 

enforcement

B. Construction practices similar to the Minimally similar Moderately similar Significantly similar

Total Score: (From 1-6) __x__ = __ Sum (0.7)n(0.9)n(1.0)n
Minneapolis Metrodome Roof 12/12/2010

Preliminary Reconnaissance Criteria Low (1) Med (3) High (5)

1. Substantial Loss of Life or Disabling Injury

A. Single or adjacent structures 0 1 to 2 >2

B. Community (city, county, metropolitan 

area) 0 to 3 4 to 9 >10

C. Region (state to multi-state) 0 to 5 6 to 19 >20

2. Significant Potential for Loss of Life: Exposed Population

A. Single structure (occupancy) <100 100 to 499 ≥500

B. Community (city, county, metropolitan 

area) <1 000 1 000 to 9 999 ≥10 000

C. Region (state to multi-state) <100 000 100 000 to 999 999 ≥1 000 000

3. Actual Hazard

A. Earthquake ≤ MMI IV MMI V to VII ≥MMI VIII

B. Hurricane at Landfall ≤Cat 3 Cat 4 Cat 5

C. Tornado ≤EF3 EF4 EF5

D. Coastal Inundation < 3 ft 3 to 9 ft ≥ 10 ft

E. Fire Spread in a Structure Fire spread not beyond area of 

origin Fire spread throughout a structure Fire spread beyond structure of origin

F. Wildland Urban Interface (WUI) Service Fire Danger Rating Very High Service Fire Danger 

Rating Service Fire Danger Rating

G. Blast < 99 lbs. TNT-equivalent 100 - 999 lbs. TNT-equivalent > 1000 TNT-equivalent

H. Impact < 1 x 106ft lb/sec 1 x 106to 1 x 107ft lb/sec > 1 x 107ft lb/sec

4. Consequences (damage and functionality)

A. Failure during Construction Local structural failure Partial structural collapse Total structural collapse

B. Engineered Building Structures Minimal nonstructural damage Significant nonstructural damage

Minimal structural damage

Significant structural damage or 

collapse

C. Transportation & Utility Structures Minimal nonstructural damage Minimal structural damage

Partial loss of function

Significant structural damage or 

collapse

Complete loss of function

D. Non-Engineered Building Structures Minimal nonstructural damage Minimal structural damage Significant structural damage or 

collapse

 5. Need for NIST Involvement

A. NIST Authority

Addressed by other authorities 

– federal, state, local – and 

their mission responsibility and 

agency expertise

Collaboration with other agencies 

where NIST provides 

complementary expertise

NIST has primary authority and/or 

expertise

Score: _14_/_4_ = _3.5_ Sum _1_ x 1 _1_ x 3 _2_ x 5
Preliminary Reconnaissance Criteria Low Med High

6. Stakeholder Concern

A. Federal disaster declaration N/A Declaration;

Minimal structural damage

Declaration;

Significant structural damage

B. Request by other Authorities 

(local, state, federal) None NIST provides complementary 

expertise NIST has primary expertise

C. Public Interest. Local news State or regional news National news

D. Unique event with potential broad 

implications for similar or other types of 

structures

Minimal impact Moderate impact Significant impact

Score: _7_/_3_ = _2.3_ Sum _2_ x 1 _0_ x 3 _1_ x 5

Total Score: _21_/_7_ = _3.0_ Total Sum _3_ x 1 _1_ x 3 _3_ x 5

 7. Evacuation and Emergency Response

A. Evacuation Normal evacuation Moderate evacuation 

challenges

Significant evacuation 

challenges

B. Emergency Response Normal operations Moderate operational 

challenges

Significant operational 

challenges

Score: __/__ = __ Sum __ x 1 __ x 3 __ x 5

 8. International Events*

A. Codes, standards and enforcement

No building codes, 

standards, or enforcement 

Building codes and standards, 

but no enforcement

Building codes and standards, 

with enforcement

B. Construction practices similar to the Minimally similar Moderately similar Significantly similar

Total Score: (From 1-6) __x__ = __ Sum (0.7)n(0.9)n(1.0)n
* Did not deploy due to concerns with staff safety; coordination with Panel on Wind and Seismic 

Effects of The United States-Japan Cooperative Program in Natural Resources (UJNR)
Purpose and Scope of NCST 

Authorities

• The purpose of NCST studies is to improve the safety and structural 

integrity of buildings (“and infrastructure” in pending NCST Act 

reauthorization, S.646) in the United States, and the focus is on fact 

finding.

• NCST Teams are authorized to assess building performance and 

emergency response and evacuation procedures in the wake of any 

building failure that has resulted in substantial loss of life or that posed 

significant potential for substantial loss of life.

• NIST does not have the statutory authority to make findings of fault by 

individuals or organizations.

• Further, no part of any report resulting from a NIST investigation into a 

building failure or from an investigation under the National 

Construction Safety Team Act may be used in a suit or action for 

damages arising out of any matter mentioned in such report (15 U.S.C 

281a, as amended by Public Law 107-231).
National Construction Safety Team 

Act - PL 107-231

• Authorizes Director of NIST to establish and deploy Teams, to the 

maximum extent practicable, within 48 hours of an event (pending 

NCST Act reauthorization in Congress, S.646, authorizes NIST 

Director to make a decision to deploy within 72 hours of an event).

• Tailored to events involving substantial loss of life or that pose 

significant potential for substantial loss of life.

• Modeled by Congress after the National Transportation Safety 

Board (NTSB)

• NIST is the designated lead agency to assess:

 Building performance

 Emergency response

 Evacuation procedures

• Investigation priority (except for NTSB and criminal acts)

• Prohibits interference with search and rescue efforts
NCST Coordination and Priorities

• “NIST shall enter into a memorandum of understanding with each 

Federal agency that may conduct or sponsor a related investigation, 

providing for coordination of investigations”

– Criminal Acts— “If the Attorney General, in consultation with the [NIST] Director, 

determines and notifies the Director, that circumstances reasonably indicate that 

the building failure being investigated by a Team may have been caused by a 

criminal act, the team shall relinquish investigative priority to the appropriate law 

enforcement agency. The relinquishment of investigative priority by the Team 

shall not otherwise affect the authority of the Team to continue its investigation 

under this Act.” 

– NTSB —“If the NTSB is conducting an investigation related to an investigation of 

a Team, the NTSB investigation shall have priority over the Team investigation. 

Such priority shall not otherwise affect the authority of the Team to continue its 

investigation under this Act.”

• “A Team shall cooperate with State and local authorities carrying out 

any activities related to a Team’s investigation”
Post-Investigation Actions 

Required by NCST

• After the issuance of a Team report, NIST...shall, working 

with USFA and other appropriate Federal and non-Federal 

agencies and organizations to:

– Conduct, or enable or encourage the conducting of, appropriate 

research recommended by the Team

– Promote (consistent with existing procedures for the establishment 

of building standards, codes, and practices) the appropriate 

adoption by the Federal Government, and encourage the 

appropriate adoption by other agencies and organizations, of the 

recommendations of the Team with respect to

• Technical aspects of evacuation and emergency response procedures

• Specific improvements to building standards, 

codes, and practices

• Other actions needed to help prevent future building failures
NCST Advisory Committee

Objectives and Duties:

• Advise the Director of the National Institute of Standards and Technology 

on carrying out the Act by:

– Providing advice on the functions of National Construction Safety Teams, hereinafter referred to 

as Teams, as described in section 2(b)(2) of the Act

– Providing advice on the composition of Teams under section 3 of the Act

– Providing advice on the exercise of authorities enumerated in sections 4 and 5 of the Act

– Providing such other advice as necessary to enable the Director to carry out the Act

• Review and provide advice on the procedures developed under 

section 2(c)(1) of the Act

• Review and provide advice on the reports issued under section 8 of the Act

• Function solely as an advisory body, in accordance with the provisions of the Federal 

Advisory Committee Act

Annual Report:

• An evaluation of Team activities, along with recommendations to improve the operation 

and effectiveness of Teams

• An assessment of the implementation of the recommendations of Teams and 

of the advisory committee
NCST Advisory Committee

• Members are selected on the basis of established records of distinguished 

service in their professional community and their knowledge of issues 

affecting Teams.

• Members reflect the wide diversity of technical disciplines and competencies 

involved in NCST studies.

• Members are drawn from industry and other communities having an interest 

in NCST studies, such as, but not limited to, universities, state and local 

government bodies, non-profit research institutions, and other Federal 

agencies and laboratories.

• The types of disciplines include: structural engineering (buildings and 

infrastructure), fire protection, firefighting and emergency response, and 

human behavior and evacuation. Other disciplines that may be represented 

include: codes and standards (buildings, infrastructure and fire), 

architecture, insurance and risk, and materials science and engineering.
Advisory Committee Members

• Jeremy Isenberg, senior principal, Specialty Practices Group, AECOM 

(Oakland, Calif.) - Chair

• Carlos Fernandez-Pello, professor, Department of Mechanical Engineering, University of 

California Berkeley (Berkeley, Calif.)

• Susan Cutter, distinguished professor and director, Hazards and Vulnerability Research 

Institute, University of South Carolina (Columbia, S.C.)

• Jeffrey Garrett, president and CEO, CTL Group (Skokie, Ill.)

• Ron Coleman, chairman, Board of Trustees, Commission on Fire Accreditation 

International (Elk Grove, Calif.)

• Anne Kiremidijian, professor, Department of Civil and Environmental Engineering, 

Stanford University (Stanford, Calif.)

• Sarah A. Rice, project manager, Preview Group Inc. (Cincinnati, Ohio)

• Paul A Croce, retired VP and manager of research, FM Global (Middletown, R.I.)

• R. Shankar Nair, principal and senior VP, Teng & Associates Inc. (Chicago, Ill.)
Construction/Building 

Bailey’s Crossroads (1973)

Hyatt Regency (1981)

L’Ambiance Plaza (1987)

U.S. Embassy, Moscow (1987)

Murrah Fed. Building (1995)

World Trade Center (2001)

Dallas Cowboys (2009)

Fires

DuPont Plaza Hotel (1986)

1st Interstate Bank (1988)

Happyland Club (1990)

Oakland Hills (1991)

Hokkaido, Japan (1993)

Vandalia St, NYC (1998)

Cherry Road, DC (1999)

Cook County Admin.(2003)

Station Nightclub (2003)

Sofa Super Store (2007)

Amarillo WUI Fire (2011)

Examples of Past Studies

Earthquakes

San Fernando (1971)

Mexico City (1985)

Loma Prieta (1989)

Northridge (1994)

Kobe (1995)

Turkey (1999)

Chile (2010)

Christchurch (2011)

Hurricanes

Camille (1969)

Hugo (1989)

Andrew (1992)

Mitch (1998)

Katrina (2005)

Tornadoes

Jarrell, TX (1997)

Spencer, SD (1998)

Oklahoma City (1999)

Joplin, MO (2011)
Typical NIST Post-Study Actions

• Conduct, or enable or encourage the conducting of, 

appropriate research recommended by studies

• Promote (consistent with existing procedures for the 

establishment of building standards, codes, and practices) 

the appropriate adoption by the Federal Government, and 

encourage the appropriate adoption by other agencies and 

organizations, of study recommendations with respect to

– Technical aspects of evacuation and emergency response 

procedures

– Specific improvements to building standards, 

codes, and practices

– Other actions needed to help improve safety
Fire & Emergency 

Services

Academics

Industry Suppliers

Stakeholders and Contributors

NIST 

Disaster and 

Failure Studies

Construction 

Industry

Fire Protection 

Engineering

Codes and Standards 

Organizations

Structural 

Engineering

and Design

Government 

Agencies

Insurance,

Testing labs

General Public
NIST Role in Building, Infrastructure, 

and Fire Safety Regulations

• NIST is a non-regulatory agency of the U.S. 

Department of Commerce

• NIST does not set building, infrastructure, or fire 

codes and standards

• NIST provides technical support to the private sector and to other 

government agencies in the development of U.S. building, 

infrastructure, and fire practice, standards, and codes by:

– Conducting research which provides the measurement science and 

technical basis for such practice, standards, and codes

– Disseminating research results to practicing professionals

– Having staff participate on technical and standards committees

– Providing technical assistance to the building, infrastructure, and fire 

safety communities
How NIST Products and Services come to be used 

in Engineering Practices, Standards and Codes 

• NIST listens to major national bodies to identify priority issues.

• NIST organizes workshops to define problem, approach and desired products.

• NIST, working with its partners, develops technical basis for potential change to practices, 

standards, and/or codes in the form of critical solution-enabling tools through measurement 

science research and services.

• NIST generally seeks solutions that foster open systems and processes, thus facilitating 

innovation and competitiveness.

• NIST participates in international standardization activities and works closely with overseas 

counterparts to maintain awareness, promote open systems, spot barriers to trade. 

• NIST works with intended users to demonstrate value in use of emerging products, 

processes, and systems.

• NIST participates in technical standards and codes committees, makes critical technical 

contributions to development of standards, codes, and regulations, and publicly disseminates 

NIST products and services.

• National technical, professional, standards and/or code developing organizations, and 

regulatory agencies adopt changes; state and local officials develop and enforce regulations; 

and industry uses new practices, standards, and codes.

Total cycle times vary from months to decades
Sample Impacts of Disaster and 

Failure Studies

• World Trade Center (2001)

– U.S. model building code changes adopted for fireproofing strength, installation, and inspection; 

fire-resistance rating; structural integrity

– U.S. model building code changes adopted for occupant evacuation; fire service access; active 

fire protection systems; emergency responder communications

• The Station Nightclub Fire (2003)

– Sprinklers, restricted festival seating, crowd manager, and egress inspection recordkeeping 

requirements for new and existing facilities adopted in NFPA 101 (Life Safety Code)

• Jarrell, TX, Tornado (1997)

– Enhanced Fujita (EF) Tornado Intensity Scale adopted by NOAA’s National Weather Service

• Northridge Earthquake (1994)

– Design guidelines for seismic rehabilitation of existing welded steel frame buildings adopted by 

American Institute of Steel Construction

• Hurricane Andrew (1992)

– Upgraded wind load provisions adopted in HUD’s Manufactured Home Construction 

and Safety Standards

• DuPont Plaza Hotel Fire, San Juan PR (1986)

– Passage of the Hotel-Motel Sprinkler Act

• L’ Ambiance Plaza, Hartford CT (1982)

– Improvements in OSHA’s safety and inspection requirements for lift-slab construction
Shyam Sunder

Director 

 

 

301 975 5900

sunder@nist.gov

The NIST Engineering Laboratory

100 Bureau Drive Stop 8600

 Gaithersburg, MD 20899-8600

www.nist.gov/el

Contact 

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