Observations, 
Recommendations, 
and Technical Guidance 
FEMA 339 / March 1999FEMA 339 / March 1999IMAGE COURTESY NASA Federal Emergency Management Agency 
Mitigation Directorate 
Washington, DC, 
Region II, New YoFederal Emergency Management Agencyrk, NYrand the Caribbean Area Office 
, 
and the CarMitigation DirectorateWashington, DCRegion II, New Yok, NYibbean Area Office 
Building Performance Assessment Report 

The Building Performance Assessment Process 

In response to hurricanes, floods, earthquakes, and other 
disasters, the Federal Emergency Management Agency (FEMA) 
often deploys Building Performance Assessment Teams (BPATs) to 
conduct field investigations at disaster sites. The members of a 
BPAT include representatives of public and private sector entities 
who are experts in specific technical fields such as structural and 
civil engineering, building design and construction, and building 
code development and enforcement. BPATs inspect disaster-
induced damages incurred by residential and commercial build­
ings and other manmade structures; evaluate local design prac­
tices, construction methods and materials, building codes, and 
building inspection and code enforcement processes; and make 
recommendations regarding design, construction, and code 
issues. With the goal of reducing the damage caused by future 
disasters, the BPAT process is an important part of FEMA.s hazard 
mitigation activities. For more information about the BPAT pro­
gram or if you are interested in becoming a member, please visit 
our website at www.fema.gov/mit/bpat. 


Throughout Puerto Rico, the BPAT visited communities


where people had lost their life.s belongings and literally did 
not have a roof over their heads. The team was struck by the 
dignity of those individuals who had suffered great losses and 
appreciated the courtesy and hospitality that was extended to 
them. The team also appreciated their patience with the BPAT.s 
questions. This report is dedicated to these individuals, their 
families, and their friends. Their remarkable spirit is summarized 
by the saying .al mal tiempo, buena cara., which translates as 
.hard times, strong faces.. 


Observations, 
Recommendations, 
and Technical Guidance 
FEMA 339 / March 1999 
In Puerto RicoHurricane Georges 
PUERTO RICO 
Building Performance Assessment Report 
Federal Emergency Management Agency 

Mitigation Directorate 
Washington, DC, 
Region II, New York, NY 
and the Caribbean Area Office 



TABLE OF CONTENTS 

Table of Contents 

List of Acronyms ...................................................................................................... ix


1 Executive Summary............................................................................................... 1-
1


2 Introduction .......................................................................................................... 2-
1


2.1 Background of Storm ............................................................................................ 2-
1


2.2 Team Composition................................................................................................. 2-
3


2.3 Methodology .......................................................................................................... 2-
4


2.4 Planning Regulations ............................................................................................. 2-
4


2.5 Floodplain Management Regulations .................................................................... 2-
7


2.6 Puerto Rico Seismicity ............................................................................................ 2-
7


3 Assessment and Characterization of Damages ..................................................... 3-
1


3.1 Wind Effects ........................................................................................................... 3-
1


3.2 Riverine and Coastal Flooding ............................................................................... 3-
2


3.3 Landslides .............................................................................................................. 3-
8


3.4 Overview of Buildings Evaluated ......................................................................... 3-10


3.4.1 
Concrete/Masonry Structures with Concrete Roof Decks ....................... 3-10


3.4.2 
Concrete/Masonry Structures with Wood-Frame Roof Structures ........... 3-12


3.4.3 
Combination Structures, Concrete/Masonry and Wood-Frame 
Structures ................................................................................................ 3-13 

3.4.4 
All Wood-Frame Structures ...................................................................... 3-15


4 Structural Performance......................................................................................... 4-
1


4.1 Reinforced Concrete .............................................................................................. 4-
4


4.1.1 
Reinforced Concrete Mid- and High-Rise Buildings .................................. 4-
4


4.1.2 
Reinforced Concrete Essential Facilities .................................................... 4-
5


4.1.3 
Concrete/Masonry Structures with Concrete Roof Decks ......................... 4-
5


4.2 Masonry .................................................................................................................. 4-
6


4.2.1 
Masonry Commercial Buildings ................................................................. 4-
6


4.2.2 
Residential Concrete/Masonry Structures with Wood-Frame 
Roof Structures .......................................................................................... 4-9 

4.3 Wood-Frame Buildings......................................................................................... 4-10


4.3.1 
Commercial Wood-Frame Buildings ........................................................ 4-10


4.3.2 
Residential Wood-Frame Buildings .......................................................... 4-10


4.3.2.1 
Residential Wood-Frame Walls ....................................................... 4-11


4.3.2.2 
Residential Wood-Frame Roof Structures ...................................... 4-13


4.3.2.3 
Residential Wood-Frame Floor Systems and 
Foundation Connections ............................................................... 4-14 

Building Performance Assessment: Hurricane Georges In Puerto Rico 


TABLE OF CONTENTS 

4.4 Hold-Down Cables ............................................................................................... 4-16


4.5 Structural Seismic Considerations ....................................................................... 4-17


5 Building Envelope Performance ............................................................................ 5-
1


5.1 Doors ..................................................................................................................... 5-
1


5.1.1 
Glass Doors ................................................................................................ 5-
1


5.1.2 
Personnel Doors ........................................................................................ 5-
3


5.1.3 
Security Grilles, Rolling (Overhead) and Garage Doors ............................ 5-
4


5.2 Non-Load Bearing Walls, Wall Coverings, and Soffits ............................................. 5-
5


5.2.1 
Non-Load Bearing Walls and Soffits ........................................................... 5-
6


5.2.2 
Wall Coverings ............................................................................................ 5-
8


5.3 Roof Coverings ..................................................................................................... 5-11


5.3.1 
Metal Panels ............................................................................................. 5-11


5.3.2 
Exposed Concrete and Liquid-Applied Membranes 
Over Concrete ......................................................................................... 5-14 

5.3.3 
Tile ........................................................................................................... 5-15


5.3.4 
Liquid-Applied Membranes Over Plywood .............................................. 5-16


5.3.5 
Built-Up Membranes ................................................................................ 5-16


5.3.6 
Sprayed Polyurethane Foam.................................................................... 5-18


5.3.7 
Other Roof Coverings .............................................................................. 5-18


5.4 Windows, Shutters, and Skylights ........................................................................ 5-18


5.4.1 
Windows .................................................................................................. 5-19


5.4.2 
Shutters .................................................................................................... 5-23


5.4.3 
Skylights ................................................................................................... 5-28


5.5 Seismic Resistance of Nonstructural Elements .................................................... 5-28


6 Exterior Mechanical and Electrical Equipment.................................................... 6-
1


7 Electrical Distribution System ............................................................................. 7-
1


8 Conclusions ........................................................................................................... 8-
1


8.1 General Conclusions .............................................................................................. 8-
1


8.1.1 
Mitigation Efforts ........................................................................................ 8-
2


8.1.2 
Wind Mitigation for Existing Buildings ...................................................... 8-
4


8.2 Planning Regulations in Puerto Rico .................................................................... 8-
4


8.2.1 
Wind Provisions of Planning Regulation 7 ................................................. 8-
5


8.2.2 
Seismic Provisions of Planning Regulation 7 .............................................. 8-
5


8.2.3 
Floodplain Management Provisions of Planning Regulation 13 ................. 8-
6


8.3 Regulatory Administration and Enforcement ........................................................ 8-
6


8.4 Training and Continuing Education ...................................................................... 8-
7


8.4.1 
Government of Puerto Rico Personnel ...................................................... 8-
7


8.4.2 
Design Professionals and Building Contractors ......................................... 8-
7


8.5 Structural ............................................................................................................... 8-
7


8.5.1 
Structural Seismic Conclusions.................................................................. 8-
8


8.6 Architectural .......................................................................................................... 8-
8


8.6.1 
Doors ......................................................................................................... 8-
9


8.6.2 
Walls ........................................................................................................... 8-
9


8.6.3 
Roof Coverings ........................................................................................... 8-
9


8.6.4 
Glazing ....................................................................................................... 8-
9


8.6.5 
Shutter Systems and Impact-Resistant Glazing ........................................ 8-10


8.6.6 
Weatherstripping ..................................................................................... 8-10


Building Performance Assessment: Hurricane Georges In Puerto Rico 


TABLE OF CONTENTS 

8.6.7 Seismic Resistance of Nonstructural Elements ........................................ 8-10


8.7 Exterior Mechanical and Electrical Equipment .................................................... 8-10


9 Recommendations ................................................................................................. 9-
1


9.1 General Recommendations ................................................................................... 9-
1


9.2 Training and Continuing Education ...................................................................... 9-
2


9.2.1 Government of Puerto Rico Personnel ...................................................... 9-
2


9.2.2 Design Professionals and Building Contractors ......................................... 9-
2


9.3 Codes and Regulations .......................................................................................... 9-
3


9.3.1 Planning Regulation 7 ................................................................................ 9-
3


9.3.2 Floodplain Management Provisions of Planning Regulation 13 ................. 9-
4


9.3.3 Evaluation, Submittals, and Product Approval ........................................... 9-
5


9.4 Essential Facilities ................................................................................................... 9-
5


9.5 Residential Buildings ............................................................................................. 9-
5


9.6 Structural and Architectural Performance ............................................................. 9-
5


9.7 Electric Power Distribution .................................................................................... 9-
6


10 References ........................................................................................................... 10-
1


Appendix A: 
Members of the Building Performance Assessment Team for 
Hurricane Georges 

Appendix B: 
Presidential Disaster Declarations In Puerto Rico 

Acknowledgments 

Building Performance Assessment: Hurricane Georges In Puerto Rico 


TABLE OF CONTENTS 

List of Figures and Tables 

Figure 2-1 History of hurricanes in Puerto Rico. ............................................................. 2-
2
Table 2-1 The Saffir-Simpson Scale ................................................................................ 2-
3
Figure 2-2 Flyover routes from October 2 and October 3. ............................................. 2-
5
Figure 2-3 Locations of ground investigation by the BPAT. ............................................. 2-
6


Figure 3-1 The abrupt change of topography in this community outside Loiza 

caused a speedup in the wind that flows over and around the 

buildings located on the hill beyond. ............................................................ 3-2 
Figure 3-2 Wind damage from Hurricane Georges to residential 

buildings in Puerto Rico. ................................................................................ 3-2 
Figure 3-3 Typical non-elevated structures in a community located 

entirely in an SFHA. ....................................................................................... 3-3 
Figure 3-4 This flood gate located in Adjuntas prevented backwater from 

flooding homes located behind it. ................................................................. 3-3 
Figure 3-5 Residential area on the opposite side of the river from the 

floodwall in Figure 3-4. .................................................................................. 3-4 
Figure 3-6 Floodwaters eroded soil and undermined the foundation 

system of this building. .................................................................................. 3-4 
Figure 3-7 Riverbank erosion resulted in the undermining of the building 

foundations of a school and house in Jayuya. ................................................ 3-5 
Figure 3-8 Typical construction adjacent to and over the river....................................... 3-5 
Figure 3-9 Structure along the coast damaged by storm surge 

and wave action. ............................................................................................ 3-6 
Figure 3-10 Proper elevation construction techniques for construction 

in A-Zones. ..................................................................................................... 3-6 
Figure 3-11 Comparison of building foundation and elevation requirements 

in V-Zones and A-Zones. ................................................................................ 3-7 
Figure 3-12 Bridge outside Adjuntas collapsed due to insufficient design to 

resist the effects of floodwaters. ..................................................................... 3-7 
Figure 3-13 Severely damaged water treatment facility located 

in the floodplain in Jayuya. ............................................................................ 3-8 
Figure 3-14 Aerial view of a now uninhabitable house caught in 

a landslide. ..................................................................................................... 3-8 
Figure 3-15 A landslide inundated this house with up to 5 feet of soil. ............................ 3-9 
Figure 3-16 Development adjacent to a representative unprotected cut; 

the potential for future landslide activity exists. ............................................ 3-9 
Figure 3-17 Commercial concrete structures with no structural damage. ..................... 3-10 
Figure 3-18 Commercial concrete structure with interior damage observed 

due to breach of building envelope. ............................................................ 3-11 
Figure 3-19 Residential concrete structure in the mountains north of Adjuntas 

with no structural damage following Hurricane Georges. .......................... 3-12 
Figure 3-20 Aerial view of a residential concrete/masonry structure 

with a wood-frame roof structure. ............................................................... 3-13 
Figure 3-21 A combination residential concrete/masonry structure with an 

elevated second-floor concrete slab and a wood-framed upper level. ........ 3-14 
Figure 3-22 A residential concrete/masonry structure under construction. ................... 3-14 
Figure 3-23 A residential wood structure located on the hilltops west of 

Ponce destroyed by wind. ............................................................................ 3-15


Building Performance Assessment: Hurricane Georges In Puerto Rico 


TABLE OF CONTENTS 

Figure 4-1 Illustration of continuous load path for a wood-frame building. ................... 4-2 
Figure 4-2 A residential community constructed of concrete and masonry 

buildings with concrete roof structures. ........................................................ 4-3 
Figure 4-3 A residential community constructed of wood-frame 

structures only. ............................................................................................... 4-3 
Figure 4-4 Concrete residential structure with foundation damage caused 

by a landslide. ................................................................................................. 4-4 
Figure 4-5 Fire station in Adjuntas. ................................................................................. 4-5 
Figure 4-6 Residential home constructed of reinforced concrete and 

masonry with a reinforced concrete roof deck in the mountains 

outside Adjuntas. ........................................................................................... 4-6 
Figure 4-7 Typical roof system failure between wooden roof system 

and concrete or masonry wall system............................................................ 4-7 
Figure 4-8 Termite-damaged wood purlin attached to metal roof panel. ....................... 4-7 
Figure 4-9 Masonry church that lost roof purlins and its corrugated 

metal roof. ...................................................................................................... 4-8 
Figure 4-10 Nailed roof structure from church in Figure 4-9............................................ 4-8 
Figure 4-11 Typical nail withdrawal failure in a wood-frame structure 

supported by a masonry wall with little uplift capacity at 

the connection. .............................................................................................. 4-9 
Figure 4-12 Hurricane clips installed in a wood-frame house on Culebra. ..................... 4-10 
Figure 4-13 Example of the failure of wood member in joist hanger 

due to use of improper nails. ....................................................................... 4-11 
Figure 4-14 Example of wood-frame wall construction that failed 

during Hurricane Georges. ......................................................................... 4-12
Figure 4-15 Wood wall column that failed at connection to sill plate. ............................ 4-12
Figure 4-16 Typical wooden roof structure with metal roof panels above...................... 4-13
Figure 4-17 Example of a self-built, wooden roof truss................................................... 4-14
Figure 4-18 Example of a non-engineered connection between the


building foundation and the floor system. ................................................... 4-14 
Figure 4-19 Example of an engineered connection between the floor beam 

and a concrete column. ............................................................................... 4-15 
Figure 4-20 Example of a successful wood connection between support 

beam and floor joists. ................................................................................... 4-15 
Figure 4-21 Wood-frame house with metal roof covering with hold-down 

cables that run parallel and perpendicular to the roof ridge line. ............... 4-16
Figure 4-22 Residential building supported atop tall, unbraced columns. ..................... 4-17
Figure 4-23 Footing for tall columns shown in Figure 4-22. ........................................... 4-18


Figure 5-1 Damaged sliding glass door and window assembly in 

a hotel room. ................................................................................................. 5-2 
Figure 5-2 Missiles broke this wood/glass door and several adjacent 

window panes. ............................................................................................... 5-2 
Figure 5-3 A missile traveling right to left struck the window louvers. ........................... 5-3 
Figure 5-4 The security grille on this fire station offers greater wind 

performance reliability than a solid door. ...................................................... 5-4 
Figure 5-5 The gypsum wallboard was blown off of this interior partition 

after the exterior non-load bearing wall was blown away. .............................. 5-5 
Figure 5-6 Rain entered this hospital on Culebra after a water tank struck the 

metal wall panels. ........................................................................................... 5-
6


Building Performance Assessment: Hurricane Georges In Puerto Rico 


TABLE OF CONTENTS 

Figure 5-7 Failure of an EIFS wall system. ....................................................................... 5-7 
Figure 5-8 Several composite panels blew off from the fascia and 

soffit of this building at the airport on Isla Grande. ....................................... 5-7 
Figure 5-9 The stucco was blown off the corner area of this wall 

where the suction pressures were high......................................................... 5-8 
Figure 5-10 House currently under construction. ............................................................ 5-9 
Figure 5-11 In this EIFS covering, the synthetic stucco appeared to be 

well-adhered to the outer EPS layer, but there was minimal 

bonding between the two EPS layers. .......................................................... 5-10 
Figure 5-12 A mortar skim coat was applied over the concrete of this 

building and the ceramic tiles were set in to the mortar. ............................ 5-10 
Figure 5-13 This house was located on a mountain top that experienced 

very high wind conditions. .......................................................................... 5-11 
Figure 5-14 The nail attaching this corrugated metal panel partially 

backed-out. .................................................................................................. 5-12 
Figure 5-15 Only a single row of fasteners were installed along the 

eave and each side of the ridge. ................................................................... 5-12 
Figure 5-16 The metal panels along this rake were insufficiently fastened. .................... 5-13 
Figure 5-17 At this house, a framing member was run up the rake, which 

allowed the metal purlins to be fastened between the nailers (purlins). .... 5-13 
Figure 5-18 Corrugated metal panel wrapped around a power pole. ............................ 5-14 
Figure 5-19 This concrete roof deck did not have a roof covering. ................................ 5-15 
Figure 5-20 These tiles were heavily damaged, although the wind speed 

at this location was not very high................................................................. 5-15 
Figure 5-21 This house had a liquid-applied membrane over plywood 

roof sheathing. ............................................................................................. 5-16 
Figure 5-22 This built-up membrane had a mineral surface cap sheet............................ 5-17 
Figure 5-23 The windows in this building were broken by aggregate from 

the built-up roof of a nearby building. ......................................................... 5-17 
Figure 5-24 When these tempered panes broke, they did not produce shards 

of glass, as did the annealed panes. ............................................................. 5-19 
Figure 5-25 Although some annealed panes broke into shards, others 

just broke at the impact point. ..................................................................... 5-19 
Figure 5-26 Half of the window frame on this building was blown out. ......................... 5-20 
Figure 5-27 One pane in the window was broken by a missile, 

perhaps from the palm in the foreground. .................................................. 5-20 
Figure 5-28 This large window was broken by a missile, most likely 

a tree limb. ................................................................................................... 5-21 
Figure 5-29 The glass and frames were blown out at the center room 

on the top floor............................................................................................ 5-21 
Figure 5-30 Several window and glass door openings broke during 

the hurricane. .............................................................................................. 5-22 
Figure 5-31 High-energy missiles from a nearby building damaged 

several railings of this building. .................................................................... 5-22 
Figure 5-32 The broken light in the center is laminated................................................. 5-23 
Figure 5-33 A combination of boards and metal panel was used to 

construct this shutter. .................................................................................. 5-24 
Figure 5-34 These windows were equipped with permanent head and 

sill shutter tracks, which were attached to the wall with 

closely-spaced fasteners. .............................................................................. 5-24


Building Performance Assessment: Hurricane Georges In Puerto Rico 


TABLE OF CONTENTS 

Figure 5-35 Close-up of Figure 5-34. ............................................................................... 5-25
Figure 5-36 Looking up at a shutter panel held in place by clips. ................................... 5-25
Figure 5-37 These windows were equipped with roll-up shutters. ................................ 5-26
Figure 5-38 This house had hinged plywood shutters. .................................................. 5-26
Figure 5-39 Steel shutters were used on this mid-rise building, which


had a narrow balcony in front of the windows. ........................................... 5-27
Figure 5-40 The window lying on the ground was protected by a shutter. .................... 5-27
Figure 5-41 Lack of seismic resistance of ceiling lights and ducts. .................................. 5-28
Figure 5-42 Inadequately reinforced CMU partition in house under construction. ....... 5-29


Figure 6-1 This exhaust fan lost its cowling..................................................................... 6-1 
Figure 6-2 Most of the solar hot water heaters on this roof 

successfully weathered Hurricane Georges. .................................................. 6-2 
Figure 6-3 Floodwater entered this generator room and reached a 

height of about 2 feet. .................................................................................... 6-
2
Figure 6-4 This service mast is mounted on a concrete pylon........................................ 6-
3


Figure 7-1 Damaged wood pole. ..................................................................................... 7-2 
Figure 7-2 Leaning wood pole due to inadequate pile embedment. ............................. 7-2 
Figure 7-3 Observed crack in concrete pole that appears to be a quality 

control problem. ............................................................................................ 7-
3
Figure 7-4 New wood pole replaced after the hurricane. ............................................... 7-
3


Figure 8-1 Comparison of undamaged concrete/masonry buildings 

with damaged wood-frame building. ............................................................. 8-
2
Figure 8-2 Wood-frame house nearly totally destroyed. ................................................. 8-
3
Figure 8-3 Example of successful mitigation of wood-frame house. ............................... 8-
3


Figure 9-1 Successes and failures in residential buildings after 

Hurricane Georges. ....................................................................................... 9-2 
Table 9-1 Probability of experiencing different events during specified 

yearly periods. ................................................................................................ 9-
6


Building Performance Assessment: Hurricane Georges In Puerto Rico 


LIST OF ACRONYMS 

List of Acronyms


A-Zone Special Flood Hazard Areas, excluding V-Zones 
ACI American Concrete Institute 
AISC American Institute of Steel Construction 
ARPE Administración de Reglamentos y Permisos (Regulations and Permits 
Administration) 
ASCE 7-95 American Society of Civil Engineers Standard 7-95 
Minimum Design Loads for Buildings and Other Structures 
ASD Allowable Stress Design 
ASOS Automatic Surface Observing System 
ASTM American Society for Testing and Materials 
BFE Base Flood Elevation 
BOCA Building Officials and Code Administrators 
BPAT Building Performance Assessment Team 
CAV Community Assessment Visit 
CIAPR Colegio de Ingenerios y Agrimensores (College of Engineers and Surveyors) 
CMU Concrete Masonry Unit 
EIFS Exterior Insulating Finishing System 
EO12699 Executive Order 12699 
EO11988 Executive Order 11988 
EPS Expanded Polystyrene System 
FEMA Federal Emergency Management Agency 
FIRM Flood Insurance Rate Map 
HVAC Heating, Ventilation, and Air Conditioning 
IBC International Building Code 
ICBO International Conference of Building Officials 
in inch 
LRFD Load and Resistance Factor Design 
mb millibars 
mph miles per hour 
NEHRP National Earthquake Hazards Reduction Program 

Building Performance Assessment: Hurricane Georges In Puerto Rico 


LIST OF ACRONYMS 

NFIP National Flood Insurance Program 
NOAA National Oceanic and Atmospheric Administration 
NWS National Weather Service 
psf pounds per square foot 
SBC Standard Building Code 
SBCCI Southern Building Code Congress International 
SFHA Special Flood Hazard Area 
UBC Uniform Building Code 
V-Zone An area of special flood hazard extending from offshore to the inland limit of 
a primary frontal dune along an open coast and any other area subject to high 
velocity wave action from storms or seismic sources 

Building Performance Assessment: Hurricane Georges In Puerto Rico