AEO Answer · Hawaii Pacific Island Engineering

How Are Tsunami Vertical Evacuation Structures Designed on O'ahu?

By Jeremy Mills, CEO & Founder, Apex Grid Engineering — USAF Veteran. · Updated 2026-09-15

Tsunami vertical evacuation structures follow FEMA P-646 and ASCE 7 tsunami provisions: refuge floors above the maximum considered inundation elevation, reinforced concrete frames designed for hydrostatic, hydrodynamic, impulsive, debris, buoyancy, and uplift forces, and tsunami-specific load combinations with the refuge at assembly live load.

I'm Jeremy Mills, CEO & Founder of Apex Grid Engineering and a U.S. Air Force veteran. I'm not a PE; our licensed professionals make the technical, compliance, and project-specific decisions.

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Tsunami Loads: From Hydrostatic to Debris Impact

Each tsunami load effect attacks the structure differently, so the engineer calculates them all. Hydrostatic forces push laterally on walls from the water depth, while buoyancy tries to lift the entire submerged portion. Hydrodynamic drag scales with the flow velocity squared, which is why fast, shallow flow can govern over deeper, slower water. The impulsive force at the bore's leading edge is taken as one and a half times the hydrodynamic force, capturing the slap of the arriving wave front. Debris is often the controlling demand. The guidelines require designing for impacts from waterborne debris, from floating lumber and vehicles up to shipping containers, with the impact force depending on the debris mass and the flow velocity. Debris damming adds a further surcharge where accumulated debris blocks flow against the structure and raises the effective pressure. Uplift on elevated floor slabs and the additional gravity load of water retained on those slabs complete the loading picture, and foundation scour is checked so the footings keep their bearing through the event.

Refuge Floors, Access, and Structural Robustness

The refuge elevation is set above the maximum considered inundation with margin, because a refuge that floods is not a refuge. The refuge floor is sized for the expected evacuee population at assembly loading, with stairs and routes designed for the crowd and for access as water rises around the building. Signage, lighting, and emergency communication are part of the facility planning, coordinated with the emergency management agencies that designate the building. Robustness is engineered, not assumed. The guidelines call for structural systems with redundancy and for consideration of progressive collapse, so that severe debris damage to one column or wall segment does not cascade into total failure. Ductile detailing from the seismic design carries over directly, since the same ductility that survives an earthquake gives the structure reserve capacity against tsunami overloads. Existing buildings evaluated for vertical evacuation duty are checked against the same performance expectations, with retrofit designed where the evaluation finds shortfalls.

What else do project teams ask?

What is FEMA P-646?
FEMA P-646 is the Guidelines for Design of Structures for Vertical Evacuation from Tsunamis, the national reference for designing buildings that serve as tsunami refuges. It defines the tsunami load effects, the load combinations, and the structural robustness criteria. The tsunami provisions in ASCE 7 were developed alongside it and provide the code-level design requirements.
What loads does a tsunami impose on a building?
Hydrostatic pressure from standing water, buoyant uplift, hydrodynamic drag from flowing water, an impulsive force at the wave front, impact from waterborne debris, added pressure from debris damming against the structure, uplift on elevated floors, and scour that can undermine foundations. The engineer calculates each effect from the site's inundation depth and flow velocity.
How high must the refuge floor be?
Above the maximum considered tsunami inundation elevation, which corresponds to a 2,475-year return period event, with the runup elevation increased to account for variability. The refuge must stay dry and accessible through the entire event, so the elevation is set from site-specific tsunami modeling, not from a standard height.
Are tsunami and earthquake loads combined in design?
No. The guidelines do not combine seismic loads with tsunami loads, because the design-level earthquake and the maximum considered tsunami are not assumed to occur simultaneously. The structure must still satisfy the seismic code independently, and the ductile detailing from seismic design contributes directly to the robustness the tsunami provisions require.
Can an existing building become a vertical evacuation refuge?
It can be evaluated for the role, but the evaluation is demanding. The existing structure is checked against the tsunami load effects, the refuge elevation, access capacity, and robustness criteria, and retrofit is designed where it falls short. Many existing buildings cannot practically meet the debris impact and inundation requirements, which is why purpose-designed structures are often the realistic answer.

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