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Earth Movement (Landslides & Debris Flows)
Why are Landslides a Threat to City of West Covina?

Landslides are a serious geologic hazard in almost every state in America. Nationally, landslides cause 25 to 50 deaths each year. The best estimate of direct and indirect costs of landslide damage in the United States range between $1 and $2 billion annually. As a seismically active region, California has had significant number of locations impacted by landslides. Some landslides result in private property damage, other landslides impact transportation corridors, fuel and energy conduits, and communication facilities. They can also pose a serious threat to human life.

Landslides can be broken down into two categories: (1) rapidly moving (generally known as debris flows), and (2) slow moving. Rapidly moving landslides or debris flows present the greatest risk to human life, and people living in or traveling through areas prone to rapidly moving landslides are at increased risk of serious injury. Slow moving landslides can cause significant property damage, but are less likely to result in serious human injuries.

The City of West Covina has homes built on sloping terrain in the San Jose Hills. As indicated on Map # 5, this terrain may be susceptible to movement during an earthquake. Additional areas have been identified as historical slides. Improvements to the slope stability may be made by engineered structures or proper grading. A registered geologist or engineer should be consulted for specific information.

The City of West Covina does have landslide and liquefaction zones as indicated on Map # 5. Since the settlement of the city, there have not been any instances of liquefaction associated with seismic activity.

Historic Southern California Landslides

1928 St. Francis Dam failure
Los Angeles County, California. The dam gave way on March 12, and its waters swept through the Santa Clara Valley toward the Pacific Ocean, about 54 miles away. Sixty-five miles of valley was devastated, and over 500 people were killed. Damages were estimated at $672.1 million (year 2000 dollars).

1956 Portuguese Bend, California
Cost, $14.6 million (2000 dollars) California Highway 14, Palos Verdes Hills. Land use on the Palos Verdes Peninsula consists mostly of single-family homes built on large lots, many of which have panoramic ocean views. All of the houses were constructed with individual septic systems, generally consisting of septic tanks and seepage pits. Landslides have been active here for thousands of years, but recent landslide activity has been attributed in part to human activity. The Portuguese Bend landslide began its modern movement in August 1956, when displacement was noticed at its northeast margin. Movement gradually extended downslope so that the entire eastern edge of the slide mass was moving within 6 weeks. By the summer of 1957, the entire slide mass was sliding towards the sea.

1958-1971 Pacific Palisades, California
Cost, $29.1 million (2000 dollars) California Highway 1 and house damaged.

1961 Mulholland Cut, California
Cost, $41.5 million (2000 dollars) On Interstate 405, 11 miles north of Santa Monica, Los Angeles County.

1963 Baldwin Hills Dam Failure
On December 14, the 650 foot long by 155 foot high earth fill dam gave way and sent 360 million gallons of water in a fifty foot high wall cascading onto the community below, killing five persons, and damaging 50 million (1963 dollars) of dollars in property.

1969 Glendora, California
Cost, $26.9 million (2000 dollars) Los Angeles County, 175 houses damaged, mainly by debris flows.

1969 Seventh Ave., Los Angeles County, California
Cost, $14.6 million (2000 dollars) California Highway 60.

1970 Princess Park, California
Cost, $29.1 million (2000 dollars) California Highway 14, 10 miles north of Newhall, near Saugus, northern Los Angeles County.

1971 Upper and Lower Van Norman Dams, San Fernando, California
Earthquake-induced landslides Cost, $302.4 million (2000 dollars). Damage due to the February 9, 1971, magnitude 7.5 San Fernando, California, earthquake. The earthquake of February 9 severely damaged the Upper and Lower Van Norman Dams.

1971 Juvenile Hall, San Fernando, California
Landslides caused by the February 9, 1971, San Fernando, California, earthquake Cost, $266.6 million (2000 dollars). In addition to damaging the San Fernando Juvenile Hall, this 1.2 km-long slide damaged trunk lines of the Southern Pacific Railroad, San Fernando Boulevard, Interstate Highway 5, the Sylmar, California, electrical converter station, and several pipelines and canals.

1977-1980 Monterey Park, Repetto Hills, Los Angeles County, California
Cost, $14.6 million (2000 dollars) 100 houses damaged in 1980 due to debris flows.

1978 Bluebird Canyon Orange County
California October 2, cost, $52.7 million (2000 dollars) 60 houses destroyed or damaged. Unusually heavy rains in March of 1978 may have contributed to initiation of the landslide. Although the 1978 slide area was approximately 3.5 acres, it is suspected to be a portion of a larger, ancient landslide.

1979 Big Rock, California, Los Angeles County
Cost, approximately $1.08 billion (2000 dollars) California Highway 1 rockslide.

1980 Southern California slides
$1.1 billion in damage (2000 dollars) Heavy winter rainfall in 1979-90 caused damage in six Southern California counties. In 1980, the rainstorm started on February 8. A sequence of 5 days of continuous rain and 7 inches of precipitation had occurred by February 14. Slope failures were beginning to develop by February 15 and then very high-intensity rainfall occurred on February 16. As much as 8 inches of rain fell in a 6 hour period in many locations. Records and personal observations in the field on February 16 and 17 showed that the mountains and slopes literally fell apart on those 2 days.

1983 San Clemente, California, Orange County
Cost, $65 million (2000 dollars), California Highway 1. Litigation at that time involved approximately $43.7 million (2000 dollars).

1983 Big Rock Mesa, California
Cost, $706 million (2000 dollars) in legal claims condemnation of 13 houses, and 300 more threatened rockslide caused by rainfall.

1978-1979, 1980 San Diego County, California
Experienced major damage from storms in 1978, 1979, and 1979-80, as did neighboring areas of Los Angeles and Orange County, California. One hundred and twenty landslides were reported to have occurred in San Diego County during these 2 years. Rainfall for the rainy seasons of 78-79 and 79-80 was 14.82 and 15.61 inches (37.6 and 39.6 cm) respectively, compared to a 125-year average (1850-1975) of 9.71 inches (24.7 cm). Significant landslides occurred in the Friars Formation, a unit that was noted as slide-prone in the Seismic Safety Study for the City of San Diego. Of the nine landslides that caused damage in excess of $1 million, seven occurred in the Friars Formation, and two in the Santiago Formation in the northern part of San Diego County.

1994 Northridge, California earthquake landslides
As a result of the magnitude 6.7 Northridge, California, earthquake, more than 11,000 landslides occurred over an area of 10,000 km2. Most were in the Santa Susana Mountains and in mountains north of the Santa Clara River Valley. Destroyed dozens of homes, blocked roads, and damaged oil-field infrastructure. Caused deaths from Coccidioidomycosis (valley fever) the spore of which was released from the soil and blown toward the coastal populated areas. The spore was released from the soil by the landslide activity.

March 1995 Los Angeles and Ventura Counties, Southern California
Above normal rainfall triggered damaging debris flows, deep-seated landslides, and flooding. Several deep-seated landslides were triggered by the storms, the most notable was the La Conchita landslide, which in combination with a local debris flow, destroyed or badly damaged 11 to 12 homes in the small town of La Conchita, about 20 km west of Ventura. There also was widespread debris-flow and flood damage to homes, commercial buildings, and roads and highways in areas along the Malibu coast that had been devastated by wildfire 2 years before.

Landslide Characteristics

What is a landslide?
"A landslide is defined as, the movement of a mass of rock, debris, or earth down a slope. Landslides are a type of "mass wasting" which denotes any down slope movement of soil and rock under the direct influence of gravity. The term "landslide" encompasses events such as rock falls, topples, slides, spreads, and flows. Landslides can be initiated by rainfall, earthquakes, volcanic activity, changes in groundwater, disturbance and change of a slope by man-made construction activities, or any combination of these factors. Landslides can also occur underwater, causing tidal waves and damage to coastal areas. These landslides are called submarine landslides."

The size of a landslide usually depends on the geology and the initial cause of the landslide. Landslides vary greatly in their volume of rock and soil, the length, width, and depth of the area affected, frequency of occurrence, and speed of movement. Some characteristics that determine the type of landslide are slope of the hillside, moisture content, and the nature of the underlying materials. Landslides are given different names, depending on the type of failure and their composition and characteristics.

Slides move in contact with the underlying surface. These movements include rotational slides where sliding material moves along a curved surface, and translational slides where movement occurs along a flat surface. These slides are generally slow moving and can be deep. Slumps are small rotational slides that are generally shallow. Slow-moving landslides can occur on relatively gentle slopes and can cause significant property damage, but are far less likely to result in serious injuries than rapidly moving landslides.

"Failure of a slope occurs when the force that is pulling the slope downward (gravity) exceeds the strength of the earth materials that compose the slope. They can move slowly, (millimeters per year) or can move quickly and disastrously, as is the case with debris-flows. Debris-flows can travel down a hillside of speeds up to 200 miles per hour (more commonly, 30 - 50 miles per hour), depending on the slope angle, water content, and type of earth and debris in the flow.

These flows are initiated by heavy, usually sustained, periods of rainfall, but sometimes can happen as a result of short bursts of concentrated rainfall in susceptible areas. Burned areas charred by wildfires are particularly susceptible to debris flows, given certain soil characteristics and slope conditions."

What is a Debris Flow?
A debris or mud flow is a river of rock, earth and other materials, including vegetation that is saturated with water. This high percentage of water gives the debris flow a very rapid rate of movement down a slope. Debris flows often with speeds greater than 20 mile per hour, and can often move much faster. This high rate of speed makes debris flows extremely dangerous to people and property in its path.

Landslide Events and Impacts
Landslides are a common hazard in California. Weathering and the decomposition of geologic materials produces conditions conducive to landslides and human activity further exacerbates many landslide problems. Many landslides are difficult to mitigate, particularly in areas of large historic movement with weak underlying geologic materials. As communities continue to modify the terrain and influence natural processes, it is important to be aware of the physical properties of the underlying soils as they, along with climate, create landslide hazards. Even with proper planning, landslides will continue to threaten the safety of people, property, and infrastructure, but without proper planning, landslide hazards will be even more common and more destructive.

The increasing scarcity of build-able land, particularly in urban areas, increases the tendency to build on geologically marginal land. Additionally, hillside housing developments in Southern California are prized for the view lots that they provide.

Rock falls occur when blocks of material come loose on steep slopes. Weathering, erosion, or excavations, such as those along highways, can cause falls where the road has been cut through bedrock. They are fast moving with the materials free falling or bouncing down the slope. In falls, material is detached from a steep slope or cliff. The volume of material involved is generally small, but large boulders or blocks of rock can cause significant damage.

Earth flows are plastic or liquid movements in which land mass (e.g. soil and rock) breaks up and flows during movement. Earthquakes often trigger flows. Debris flows normally occur when a landslide moves downslope as a semi-fluid mass scouring, or partially scouring soils from the slope along its path. Flows are typically rapidly moving and also tend to increase in volume as they scour out the channel. Flows often occur during heavy rainfall, can occur on gentle slopes, and can move rapidly for large distances.

Landslide Conditions
Landslides are often triggered by periods of heavy rainfall. Earthquakes, subterranean water flow and excavations may also trigger landslides. Certain geologic formations are more susceptible to landslides than others. Human activities, including locating development near steep slopes, can increase susceptibility to landslide events. Landslides on steep slopes are more dangerous because movements can be rapid.

Although landslides are a natural geologic process, the incidence of landslides and their impacts on people can be exacerbated by human activities. Grading for road construction and development can increase slope steepness. Grading and construction can decrease the stability of a hill slope by adding weight to the top of the slope, removing support at the base of the slope, and increasing water content. Other human activities effecting landslides include: excavation, drainage and groundwater alterations, and changes in vegetation.

Wildland fires in hills covered with chaparral are often a precursor to debris flows in burned out canyons. The extreme heat of a wildfire can create a soil condition in which the earth becomes impervious to water by creating a waxy-like layer just below the ground surface. Since the water cannot be absorbed into the soil, it rapidly accumulates on slopes, often gathering loose particles of soil in to a sheet of mud and debris. Debris flows can often originate miles away from unsuspecting persons, and approach them at a high rate of speed with little warning.

Natural Conditions
Natural processes can cause landslides or re-activate historical landslide sites. The removal or undercutting of shoreline-supporting material along bodies of water by currents and waves produces countless small slides each year. Seismic tremors can trigger landslides on slopes historically known to have landslide movement. Earthquakes can also cause additional failure (lateral spreading) that can occur on gentle slopes above steep streams and riverbanks.

Particularly Hazardous Landslide Areas
Locations at risk from landslides or debris flows include areas with one or more of the following conditions:
  1. On or close to steep hills;
  2. Steep road-cuts or excavations;
  3. Existing landslides or places of known historic landslides (such sites often
  4. have tilted power lines, trees tilted in various directions, cracks in the ground, and irregular-surfaced ground);
  5. Steep areas where surface runoff is channeled, such as below culverts, V -shaped valleys, canyon bottoms, and steep stream channels; and
  6. Fan-shaped areas of sediment and boulder accumulation at the outlets of canyons.
  7. Canyon areas below hillside and mountains that have recently (within 1-6 years) been subjected to a wildland fire.
  8. Areas where slopes are not maintained or are altered by the property owners.

Impacts of Development
Although landslides are a natural occurrence, human impacts can substantially affect the potential for landslide failures in City of West Covina. Proper planning and geotechnical engineering can be exercised to reduce the threat of safety of people, property, and infrastructure.

Excavation and Grading
Slope excavation is common in the development of home sites or roads on sloping terrain. Grading these slopes can result in some slopes that are steeper than the pre-existing natural slopes. Since slope steepness is a major factor in landslides, these steeper slopes can be at an increased risk for landslides. The added weight of fill placed on slopes can also result in an increased landslide hazard. Small landslides can be fairly common along roads, in either the road cut or the road fill. Landslides occurring below new construction sites are indicators of the potential impacts stemming from excavation.

Drainage and Groundwater Alterations
Water flowing through or above ground is often the trigger for landslides. Any activity that increases the amount of water flowing into landslide-prone slopes can increase landslide hazards. Broken or leaking water or sewer lines can be especially problematic, as can water retention facilities that direct water onto slopes. However, even lawn irrigation in landslide prone locations can result in damaging landslides. Ineffective storm water management and excess runoff can also cause erosion and increase the risk of landslide hazards. Drainage can be affected naturally by the geology and topography of an area; Development that results in an increase in impervious surface impairs the ability of the land to absorb water and may redirect water to other areas. Channels, streams, ponding, and erosion on slopes all indicate potential slope problems.

Road and driveway drains, gutters, downspouts, and other constructed drainage facilities can concentrate and accelerate flow. Ground saturation and concentrated velocity flow are major causes of slope problems and may trigger landslides.

Changes in Vegetation
Removing vegetation from very steep slopes can increase landslide hazards. Areas that experience wildfire and land clearing for development may have long periods of increased landslide hazard. Also, certain types of ground cover have a much greater need for constant watering to remain green. Changing away from native ground cover plants may increase the risk of landslide.

Landslide Hazard Assessment

Hazard Identification
Identifying hazardous locations is an essential step towards implementing more informed mitigation activities. Areas of concern for liquefaction or earth-quake induced liquefaction are available from the Earthquake Hazard Maps for the Baldwin Park and San Dimas quadrangle. Geologic maps showing historic landslides are available for these same quadrangles. Earthquake induced liquefaction for the City of West Covina is shown on Map 5.

Vulnerability and Risk
Vulnerability assessment for landslides will assist in predicting how different types of property and population groups will be affected by a hazard. Data that includes specific landslide-prone and debris flow locations in the city can be used to assess the population and total value of property at risk from future landslide occurrences.

The City of West Covina Public Works Department uses 2:1 slope as an indicator of hill slope stability. The city uses a 20% or greater threshold to identify potentially unstable hill slopes. The average slope in the City of West Covina is 1-1/2:1- about 8% . An estimated 1200 acres in the city exceeds this 20% slope threshold, indicating that almost 11% of the land in City of West Covina has potentially unstable soil.

While a quantitative vulnerability assessment (an assessment that describes number of lives or amount of property exposed to the hazard) has not yet been conducted for City of West Covina landslide events, there are many qualitative factors that point to potential vulnerability. Landslides can impact major transportation arteries, blocking residents from essential services and businesses.

Past landslide events have caused major property damage or significantly impacted city residents, and continuing to map city landslide and debris flow areas will help in preventing future loss. Factors included in assessing landslide risk include population and property distribution in the hazard area, the frequency of landslide or debris flow occurrences, slope steepness, soil characteristics, and precipitation intensity. This type of analysis could generate estimates of the damages to the city due to a specific landslide or debris flow event. At the time of publication of this plan, data was insufficient to conduct a risk analysis and the software needed to conduct this type of analysis was not available.

Community Landslide Issues

What is Susceptible to Landslides? Landslides can affect utility services, transportation systems, and critical lifelines. Communities may suffer immediate damages and loss of service. Disruption of infrastructure, roads, and critical facilities may also have a long-term effect on the economy. Utilities, including potable water, wastewater, telecommunications, natural gas, and electric power are all essential to service community needs. Loss of electricity has the most widespread impact on other utilities and on the whole community. Natural gas pipes may also be at risk of breakage from landslide movements as small as an inch or two.

Roads and Bridges
Losses incurred from landslide hazards in the City of West Covina have been associated with roads. The City of West Covina Maintenance Division is responsible for responding to slides that inhibit the flow of traffic or are damaging a road or a bridge. The Maintenance Division does its best to communicate with residents impacted by landslides directly or through other Departments, but their primary task is to complete the road repair and provide for the safety of citizens.

In the late 1990s the West Covina Maintenance Division worked on the area of Woodgate Drive to clear the effects of a land movement. Other minor slides have occurred in the City of West Covina but are not well documented in the record.

It is not cost effective to mitigate all slides because of limited funds and the fact that some historical slides are likely to become active again even with mitigation measures. The City of West Covina Maintenance Division alleviates problem areas by grading slides, and by installing new drainage systems on the slopes to divert water from the landslides. This type of response activity is often the most cost-effective in the short-term, but is only temporary. Unfortunately, many property owners are unaware of slides and the dangers associated with them.

Lifelines and critical facilities
Lifelines and critical facilities should remain accessible, if possible, during a natural hazard event. The impact of closed transportation arteries may be increased if the closed road or bridge is critical for hospitals and other emergency facilities. Therefore, inspection and repair of critical transportation facilities and routes is essential and should receive high priority. Losses of power and phone service are also potential consequences of landslide events. Due to heavy rains, soil erosion in hillside areas can be accelerated, resulting in loss of soil support beneath high voltage transmission towers in hillsides and remote areas. Flood events can also cause landslides, which can have serious impacts on gas lines that are located in vulnerable soils.

Landslide Mitigation Activities
Landslide mitigation activities include current mitigation programs and activities that are being implemented by local or city organizations.

Landslide Building/Zoning Codes
This section outlines standards for steep slope hazard areas on slopes of 20 percent or more. Generally, the ordinance requires soils and engineering geologic studies for developments proposed on slopes of 20 percent or greater. More detailed surface and subsurface investigations shall be warranted if indicated by engineering and geologic studies to sufficiently describe existing conditions. This may include soils, vegetation, geologic formations, and drainage patterns. Site evaluations may also occur where stability might be lessened by proposed grading/filling or land clearing.

The City of West Covina has adopted requirements from the Uniform Building Code and State of California guidelines for development in the liquefaction zones.

Hazard Mapping

Community Issues Summary
The City of West Covina enforces the State of California Landslide mitigation procedures. The State Division of Mines and Geology has provided mapping for areas of potential earthquake induced landslides. Developments in these areas are required to conduct special soils and geology studies to determine if any landslide risk is present.

The ancient landslide areas can be determined from a Geologic Map for the City of West Covina. Maps like this and Map 5 showing earthquake induced landslides will indicate if the area may be susceptible to land movement. Both these maps are based on historic data and may not take into consideration the stabilization completed by recent development.

Landslide Mitigation Action Items
The landslide mitigation action items provide direction on specific activities that the city, organizations, and residents in City of West Covina can undertake to reduce risk and prevent loss from landslide events. Each action item is followed by ideas for implementation, which can be used by the steering committee and local decision makers in pursuing strategies for implementation.

Short Term Mitigation Activity for Landslide #l: Improve knowledge of landslide hazard areas and understanding of vulnerability and risk to life and property in hazard-prone areas.
Ideas for Implementation
  • Complete a earth movement hazard map for the City of West Covina,
  • Develop information sheet on expansive soils and what the homeowner or business owner can do to mitigate this problem.

Coordinating Organization: Public Works Department
Timeline: 1 year
Plan Goals Addressed: Public Awareness
Constraints: None

Long Term Mitigation Activity for Landslide #l: Review local ordinances regarding building and development in areas prone to earth movement.
Ideas for Implementation
  • Coordinate with other City Departments on the requirements to build in these areas.
  • Control new development encroaching on areas susceptible to earth movement.

Coordinating Organization: Public Works
Timeline: Ongoing
Plan Goals Addressed: Protect Life and Property
Constraints: Staff training and code review.

Landslide Resource Directory (See details in Appendix A)

COUNTY RESOURCES
  • County Department of Public Works

STATE RESOURCES
  • Department of Conservation Headquarters
  • California Geological Survey Headquarters/Office of the State Geologist
  • California Division of Forestry
  • Department of Water Resources
  • Governor's Office of Emergency Services
  • California Department of Transportation (Cal Trans)

FEDERAL RESOURCES AND PROGRAMS
  • Federal Emergency Management Agency (FEMA)
  • Natural Resource Conservation Service (NRCS)
  • US Geological Survey, National Landslide Information Center

PUBLICATIONS
Olshansky, Robert B., Planning for Hillside Development (1996) American Planning Association.
This document describes the history, purpose, and functions of hillside development and regulation and the role of planning, and provides excerpts from hillside plans, ordinances, and guidelines from communities throughout the US.

Olshansky, Robert B. & Rogers, J. David, Unstable Ground: Landslide Policy in the United States (1987) Ecology Law Quarterly.
This is about the history and policy of landslide mitigation in the US.

Public Assistance Debris Management Guide (July 2000) Federal Emergency Management Agency.
The Debris Management Guide was developed to assist local officials in planning, mobilizing, organizing, and controlling large-scale debris clearance, removal, and disposal operations. Debris management is generally associated with post-disaster recovery. While it should be compliant with local and city emergency operations plans, developing strategies to ensure strong debris management is a way to integrate debris management within mitigation activities. The Guide is available in hard copy or on the FEMA website.

USGS Landslide Program Brochure. National Landslide Information Center (NLIC), United States Geologic Survey.
The brochure provides good, general information in simple terminology on the importance of landslide studies and a list of databases, outreach, and exhibits maintained by the NLLC. The brochure also includes information on the types and causes of landslides, rock falls, and earth flows.

Section 7 - Landslide Endnotes


i. Mileti, Dennis, Disasters by Design: A Reassessment of Natural Hazards in the United States (1999) Joseph Henry Press, Washington D.C.

ii. Brabb, E.E., and B.L Harrod. (Eds) Landslides: Extent and Economic Significance. Proceedings of the 28th International Geological Congress Symposium on Landslides. (1989) Washington D.C., Rotterdam: Balkema.

iii. Highland, L.M., and Schuster, R.L., Significant Landslide Events in the United States. (No Date) USGS, Washington D.C., http://landslides.usgs.gov.html_files/pubs/report1/Landslides_pass_508.pdf

iv. Ibid.

v. Ibid.

vi. Ibid.

vii. Ibid.

viii. Ibid.

ix. Ibid.

x. Ibid.

xi. Ibid.

xii. Ibid.

xiii. Ibid.

xiv. Ibid.

xv. Ibid.

xvi. Ibid.

xvii. Ibid.

xviii. Ibid.

xix. Ibid.

xx. Ibid.

xxi. Landslide Hazards, U.S. Geological Survey Fact Sheet 0071-00, Version 1.0, U.S. Department of the Interior - U.S. Geological Survey, http://pubs.usgs.gov/fs/fs-0071-00/

xxii. Interagency Hazard Mitigation Team, State Hazard Mitigation Plan (2000) Oregon Emergency Management

xxiii. Ibid.

xxiv. Barrows, Alan and Smith, Ted, DMG Note 13, http://www.consrv.ca.gov/cgs/information/publications/cgs_notes/note_33/

xxv. Robert Olson Associates, Metro Regional Hazard Mitigation and Planning Guide (June 1999) Metro

xxvi. Ibid.

xxvii. Planning For Natural Hazards: The Oregon Technical Resource Guide, Department of Land Conservation and Development (2000), Ch 5.

xxviii. Homeowners Guide for Landslide Control, Hillside Flooding, Debris Flows, Soil Erosion, (March 1997)

xxix. Burby, R. (Ed.) Cooperating With Nature (1998) Washington, D.C.: Joseph Henry Press.