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Remo al o he coa ing laye o he eba o pe o m he Eco measu emen , modi ica ion: cu and sa u a ion
Oli a iew om San a Anna hill by V. Ba e es (2016), modi ica ion: cu
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ABSTRACT
1Oli a Ci y Council, Oli a
2Uni e si a Poli ècnica de València, Resea ch Ins i u e o Wa e and En i onmen al Enginee ing
(IIAMA-UPV)
3 iP esas Risk Analysis (Spin-o Uni e si a Poli ècnica de València)
4 G een Blue Managemen , Valencia
Socie y demands highe sa e y le els, including hose ac ions ela ed o u ban planning and p o ec ion agains
na u al haza ds and manmade h ea s. The e o e, au ho i ies espond o hese demands h ough new egula o y
and ope a ional amewo ks o cope wi h exis ing and u u e isks. The Spanish egula o y amewo k ega ding
lood isk managemen , based on he Eu opean con ex , de ines he equi ed p ocedu es o eme gency
managemen , in ol ing all au ho i ies esponsible o ci il p o ec ion and u ban planning. This amewo k
equi es all municipali ies a medium o high lood isk o de elop and implemen local ac ion plans agains
lood isk (PAMRI, by i s ac onym in Spanish), which mus include a isk es ima ion, analysis and e alua ion, along
wi h he desc ip ion o ac ions o a isk-in o med u ban planning and eme gency managemen . The Ci y Council
o Oli a de eloped he co esponding plan, app o ed by he egional go e nmen in June 2016, including new
aspec s such as he igu e o he Technical Di ec o , and a comp ehensi e and quan i a i e lood isk analysis o
suppo decisionmaking on eme gency managemen and planning.
KEYWORDS
lood isk, eme gency ac ion planning, ci il p o ec ion
The need o municipal ac ion planning agains lood isk:
he isk-in o med jou ney o he municipali y o Oli a (Spain)
Juan R. Po a-Sancho1, Jesica T. Cas illo-Rod íguez2,3, Ignacio Escude -Bueno2,3 Sa a Pe ales-Mompa le 4
h p://dx.doi.o g/10.4995/ i u io-ija s.2016.6849
68
1. OBJECTIVES
This pape desc ibes he s a e-o - he-p ac ice on local
lood isk managemen in Oli a (Valencia, Spain) o
show he need o lood isk educ ion ac ions a local
scale, in line wi h u ban planning and ci il p o ec ion,
in deed, he need o conside ing u ban planning and
lood eme gency managemen om a comp ehensi e
and isk-in o med pe spec i e, o es ablish app opia e
ac ions be o e, du ing and a e a lood e en .
The e ec i e managemen o lood eme gency
e en s (including all s ages om p e en ion, ac ion
o back o no mal si ua ion) equi es a se o di e en
bu complemen a y ools ha aim a minimizing he
impac o loods o he popula ion, he economy and
he en i onmen .
I is hen jus i ied he need o imp o ing exposu e
and ulne abili y educing lood haza ds. Flood isk
analyses p o ide in o ma ion on he haza d, bu in
gene al do no include quan i a i e es ima ions o
po en ial consequences o he popula ion and he
p ope y.
This pape is ocused on wo a eas o compe ence a
local scale: u ban planning and ci il p o ec ion. These
wo a eas con e ge since u ban planning should ake
in o accoun lood exposu e and ulne abili y and
es ablish he equi ed co ec i e measu es o educe
isk.
Based on a ailable s udies ca ied ou by o o he
Ci y Council o Oli a, ela ed o lood isk p e en ion
and planning a local scale, his pape p o ides a
sho discussion on hei ou comes and conclusions
o lood isk managemen .
2.
INTRODUCTION TO THE CASUISTRY
AND CONTEXT OF THE MUNICIPALITY
OF OLIVA
I is widely known ha lood e en s in he Valencian
egion may cause signi ican economic and socie al
impac s. Some examples a e he lood e en s ocu ed
in Oli a in 2007 (Figu e 2) and 2002 (Figu e 3).
In his sec ion, a summa y o ac o s and condi ions
ela ed o he municipali y o Oli a a e p o ided.
The municipali y o Oli a, in La Sa o dis ic , is loca ed
a he sou he n pa o he Valencia p o ince (Spain).
Clima e in his a ea is ypically Medi e anean, wi h
high o mode a e in ensi y ain all e en s, wi h an
a e age annual ain all o 850 mm, ha ing eco ded
a maximum a e o 817 mm in 24 hou s (3 No embe
1987), he highes eco d in Spain up o da e.
The municipali y ex ends o e an a ea o app oxima ely
60 squa e kilome e s. I has a coas line o 8.5 km and a
coas al allu ial plain ollowed by moun ain alleys up
o 464 me e s abo e sea le el.
I is ema kable he complex hyd ological sys em
o med by he i e cou ses Rambla Galline a, Al adalí,
Fon -Vall de les Fon s, he Pego-Oli a ma sh na u al
ese e loca ed a he sou h o he municipali y, and
he dunes along he coas .
The censed popula ion o Oli a is o 26,190 inhabi an s.
The main own is si ua ed a he in e sec ion o he
moun ainous a ea wi h he plain. The e a e o he
u ban dis ic s des ina ed mainly o second esidence
and loca ed mainly on he coas . O he mino
esiden ial a eas a e loca ed along he inne pa o
Figu e 1.
Connec ions among science,
policy and socie y in e ms o
lood isk managemen .
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Figu e 3.
Flooding a local oad in
Oli a, Rambla Galline a
cou se, 2002.
he municipali y.
Ag icul u e plays a signi ican ole in he economic
sec o o Oli a, which is ocused exclusi ely on o ange
p oduc ion, bu he mos impo an con ibu ion o job
c ea ion elies on he ou ism, ollowed by indus y.
Human ac i i y has modi ied he e i o y h oughou
his o y. The i s in e e ence we e he se lemen s in
he highlands, close o he plain, o de ensi e easons
and o a oid he e ec s o hea y ain all e en s. The
a ea was subsequen ly modi ied o adequa e he land
o popula ion g ow h and he demand o new c ops.
A complex wa e d ainage ne wo k o in e connec ed
b ooks and i iga ion di ches is he esul o such land
ans o ma ion.
The popula ion se lemen in he plain a ea esul ed in
he de elopmen o se e al s uc u al measu es aiming
a p o ec ing people agains looding. Howe e , he
d ainage ne wo k is cu en ly insu icien due o i s
pa ial modi ica ion by he u ban de elopmen and
c op subs i u ion by i egula housing cons uc ion,
inc easing lood ulne abili y in a eas along he
coas line.
Figu e 2.
Local oad nea Jo ades
indus ial a ea, 2007
3.
BACKGROUND RELATED TO URBAN
FLOOD RISK MANAGEMENT IN OLIVA
In he las 40 yea s, mainly due o he inc ease o human
ac i i y on he e i o y, he occu ence o episodes
o in ense ains and he ans e o adminis a i e
compe ences o egional and local le els, ha e
inc eased lood isk awa eness o in ol ed ac o s.
3.1
FLOOD RISK MANAGEMENT: THE NEED FOR
ACTION AT LOCAL SCALE
The Ci y Council o Oli a aims a managing lood isk
om a comp ehensi e and in eg a i e pe spec i e.
Wi hin he local lood isk managemen amewo k,
lood isk analysis should include a de ailed
iden i ica ion s age conce ning lood haza d and
ulne abili y, o suppo isk mi iga ion and eme gency
p e en ion planning.
In 1994, a e de eloping he Te i o ial Eme gency
Ac ion Plan in Oli a, and la e in 2000 a e app o al
o he Special Plan agains Flood Risk o he Valencian
egion, he need o local ac ion planning agains
lood isk, s uc u ed in h ee axes:
70
sȩ To comply wi h he egula o y amewo k.
sȩ To p o ide echnical, accesible and easy- o-
use ools ha allow da a ga he ing, in o ma ion
analysis and he use o geog aphic in o ma ion
sys ems (GIS).
sȩ To coo dina e all ac o s in ol ed on lood isk
managemen o ensu e ha obje i es o he isk
managemen s a egy a e e icien ly and co ec ly
achie ed.
In his sec ion, a desc ip ion o he egula o y
con ex in luencing lood isk managemen in Oli a
is p o ided. P ojec s and s udies ha di e en
adminis a ions ha e unde aken a e also included,
ema king he le el o demand o equi ed lood isk
ac ion plans.
3.2
LOCAL FLOOD RISK MANAGEMENT: THE
REGULATORY CONTEXT
The main egula o y ins umen s ha in eg a e he
cu en egula o y amewo k o ci il p o ec ion,
lood isk planning and managemen a e lis ed in
his se ion, along wi h hei impac on local lood
isk managemen in Oli a. In gene al, based on
hei le el o implemen a ion, ou ca ego ies can
be dis inghished: Eu opean, na ional, egional and
local egula o y ins umen s. Howe e , in his sec ion,
ins umen s a e p esen ed in ch onological o de :
sȩ The Spanish Cons i u ion (1978), which equi es
au ho i ies o gua an ee he igh o li e and
in eg i y o all ci izens.
sȩ The Local Go e nmen Regula o y Law 7/1985,
which es ablished local compe encies in e ms o
ci il p o ec ion.
sȩ Law 17/2015, which amends Law 2/1985,
es ablishing Ci il P o ec ion as a public se ice
o ien ed o he s udy and p e en ion o collec i e
high isk, ex ao dina y disas e and public
calami y si ua ions ha could endange massi ely
li e and physical in eg i y o people, ensu ing an
adequa e esponse in case o eme gency, h ough
he Na ional Ci il P o ec ion Sys em, which will
de elop planning ac ions h ough Te i o ial
Plans (gene al scale o any si ua ion o isk) and
Special Plans ( o deal wi h a speci ic isk in a gi en
e i o y). Consequen ly, Oli a Ci y Council, in
1992, p epa ed and app o ed i s Local Basic Plan
agains looding. This Plan included a p elimina y
analysis o his o ical lood e en s.
sȩ Law 2/2013 and Royal Dec ee 876/2014, which
e e o coas al p o ec ion and looding.
sȩ Royal Dec ee 407/1992, which s a es ha lood
eme gencies should be conside ed as pa o
Special Plans, de ining hei basic con en .
sȩ The Te i o ial Eme gency Plan o he Valencian
Communi y (1993), which highlig hs he impac
o lood isk a egional scale and he need o
de eloping a Special Plan.
sȩ The Te i o ial Municipal Eme gency and Plan o
Oli a (1994), which ecommends o de elop a
local ac ion plan agains looding.
sȩ Basic Guideline o Ci il P o ec ion Planning
agains Flooding Risk (1995), which es ablished
he con en o Special Plans o ensu e
s anda diza ion a na ional scale and o gua an ee
coo dina ion among eme gency se ices.
Howe e , his Guideline did no include he
con en o equi ed lood haza d s udies nei he
he echnical aspec s o be conside ed.
sȩ The Di ec o Plan o lood p o ec ion in La
Table 1.
Classi ica ion o lood haza d
le els (PATRICOVA, 2015).
Flood
haza d
le el
High
equency
(T=25
yea s)
Medium
equency
(T=100
yea s)
Low
equency
(T=500
yea s)
Flood
dep h
(>0.8m)
125
Flood
dep h
(<0.8m)
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Sa o (1995), including coo dina ing ac ions and
ac o s in ol ed on lood isk managemen o all
municipali ies wi hin La Sa o dis ic .
sȩ Dec ee 81/2010, which app o ed he Special Plan
agains Flood Risk o he Valencian Communi y,
which includes he main unc ions and con en
o Local Ac ion Plans o be de eloped by
municipali ies classi ied a medium o high
isk. Howe e , his plan did no desc ibe how
o de elop such plans a local scale. Oli a was
classi ied a medium isk le el.
sȩ Law 10/2001, which app o ed he equi ed
budge o unde aking “Flood ou ing ci il
wo ks in Rambla Galline a i e cou se in Oli a
(Valencia)”.
sȩ Law 13/2010, which egula es ci il p o ec ion
ac ions and eme gency managemen a egional
scale, de ining ci il p o ec ion plans as esponse
ools agains isks, equi ing he de elopmen o
Te i o ial Eme gency Plans.
sȩ Te i o ial Ac ion Plan o Flood Risk P e en ion
in he Valencian Communi y (PATRICOVA),
published in 2003 and e iewed by Dec ee
201/2015, ep esen s he planning, coo dina ion
and p o ec ion ool a egional scale o educe
lood isk wi h ocus on dec easing he po en ial
economic impac in lood p one a eas.
PATRICOVA ep esen ed a key elemen wi hin he
egula o y amewo k, based on a isk classi ica ion
esul ing om combining wo concep s: haza d and
ulne abili y, de ined as ollows:
sȩ Flood haza d in e ms o p obabili y o ocu ence
o he lood e en in a gi en a ea.
sȩ Flood ulne abili y in e ms o po en ial damages.
PATRICOVA de ines six haza d le els based on lood
equency and lood dep h, as shown in Table 1,
whe e T deno es he e u n pe iod o he lood e en .
PATRICOVA also includes wha measu es can be
applied o educe lood haza d (s uc u al measu es),
and o dec ease lood ulne abili y (e.g. u ban
planning, eme gency managemen , public educa ion
and isk awa eness campaigns). Howe e , maps o
u ban planning and egula o y chap e s a e he only
binding con en o his egional plan.
Beyond app o al o PATRICOVA in 2003, he
ollowing ins umen s a e he e wo h men ioning:
sȩ Law 4/2004, which equi ed o econside u ban
planning and o a oid u ban de elopmen in
lood isk a eas.
sȩ Law 10/2004, which equi ed planning ac o s
o classi y land based on isk classi ica ion, no
allowing u ban de elopmen s in lood p one
a eas.
sȩ Law 16/2005, which equi ed he de elopmen
o en i onmen al s udies on he impac o new
u ban de elopmen s on isks due o na u al
haza ds.
sȩ Dec ee 67/2006, which equi ed ha u ban
planning ac ions we e in line wi h he guidelines
and egula ions included in PATRICOVA, and o
es ablish p ocedu es o collabo a ing wi h Ci il
P o ec ion agencies on eme gency managemen .
sȩ EU Floods Di ec i e 2007/60/CE, which equi ed
all Membe S a es o conside he impac o
u ban planning on lood isk, along wi h he
de elopmen o lood isk maps and managemen
plans a i e basin dis ic le el.
sȩ Royal Dec ee 903/2010, which inco po a es he
equi emen s o he EU Floods Di ec i e in o
he na ional egula o y amewo k, aiming a
e alua ing lood isks and imp o e coo dina ion
among public adminis a ions and he socie y o
educe po en ial lood consequences.
Mo e ecen ly, Royal Dec ee 1/2011 se he ollowing
p inciples:
sȩ To educe isks om na u al haza ds.
sȩ To in eg a e g een in as uc u es in lood isk
a eas.
sȩ To in eg a e policies ela ed o lood isk
managemen in u ban planning, based on he
guidelines o PATRICOVA.
sȩ To analyze isk o u ban planning as desc ibed
in PATRICOVA.
72
All desc ibed ins umen s ep esen a complex bu
in e connec ed egula o y con ex ha in luences
local lood isk and ci il p o ec ion managemen ,
de ining he objec i es o any lood isk managemen
s a egy and aiming a ensu ing he app op ia e
p ocedu es o u ban planning om a isk-in o med
poin o iew.
Based on he desc ibed amewo k, i should be
dis inguished he need o analyzing lood isk
in Oli a. A s udy including a de ailed lood isk
analysis was equi ed o suppo he Ci y Council
on he app op ia e decisions o lood isk and ci il
p o ec ion planning and managemen .
3.3
LOCAL FLOOD RISK MANAGEMENT IN
OLIVA: OBJECTIVES
The ci cums ances which con ibu ed o de elop he
s udies desc ibed la e in sec ion 3.4, included:
sȩ Disposi ion o local au ho i ies o cope wi h
lood isk h ough e iewing he Gene al U ban
Planning Plan and he de elopmen o he Local
Ac ion Plan agains lood isk (PAMRI).
sȩ Regula o y equi emen a egional scale a e
app o al o he Special Plan agains Flood Risk in
2000.
sȩ Need o a mo e de ailed ca og aphy han he
in o ma ion used a egional le el o lood isk
cha ac e iza ion in PATRICOVA.
sȩ Pa icipa ion o he Ci y Council in he amewo k
o Eu opean P ojec s: QUATER and DAMAGE.
sȩ Cons uc ion o lood ou ing ci il wo ks in Rambla
Galline a i e cou se.
sȩ Implemen a ion and use o Geog aphic
In o ma ion Sys ems (GIS) as a managemen ool
a local scale.
All p e ious ac o s suppo ed he need o ca y ou a
lood haza d analysis wi h he ollowing cha ac e is ics:
sȩ To conside a speci ic a ea (3500 Ha), limi ed by
he AP-7 highway and he sea.
sȩ To de elop a spa io- empo al analysis o
o e lows, including all i e cou ses and b ooks.
sȩ To use a digi al ele a ion model (DEM) o de elop
he equi ed 2D hyd aulic model and o analyze
sys em esponse, low di ec ions and looded
a eas, including hyd aulic cha ac e is ics o he
lood e en : lood dep hs, eloci ies, and low
a es.
sȩ To be app o ed by egional go e nmen , in line
wi h he exis ing egula o y amewo k.
sȩ To comply wi h ou comes o he DAMAGE p ojec .
Based on he a o emen ioned ci cums ances and
ou comes om he lood haza d analysis, he ollowing
objec i es we e es ablished o de elop a local ac ion
plan o Oli a:
sȩ To analyze exis ing lood haza d le els and isk o
be compa ed wi h esul s om PATRICOVA.
sȩ To p io i ize s uc u al and non-s uc u al ac ions
o lood isk managemen .
sȩ To p o ide a documen o suppo he new Gene al
Plan o U ban Planning, and he equi ed ac ions
o ci il p o ec ion and eme gency planning.
sȩ To p o ide a isk model o suppo ing
decisionmaking on eme gency managemen .
sȩ To suppo da a ga he ing and managemen o
epo ed ain all and lood e en s.
sȩ To es ablish p ocedu es o echnical and
ope a ional suppo o local ac o s on lood isk
managemen .
sȩ To use up- o-da e GIS in o ma ion o es ima e
lood isk.
3.4
PREVIOUS STUDIES THAT INFLUENCED
LOCAL FLOOD RISK ACTION PLANNING IN OLIVA
The mos ele an s udies ela ed o lood isk analysis
a local scale in Oli a included:
sȩ Flood haza d s udy (ca ied ou by
INTERCONTROL in 2005).
sȩ Flood ou ing ci il wo ks and imp o emen o he
d ainage sys em o Rambla Galline a and Se pis
i e basin (ca ied ou by Acuamed in 2006).
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beyond he minimum con en p oposed by he
egional go e nmen , a e b ie ly desc ibed:
sȩ De eloping a quan i a i e lood isk analysis,
iden i ying no only po en ial consequences
o he cu en si ua ion bu also enabling he
compa ison o di e en scena ios and e alua e
he impac on isk o u u e ac ions, including
bo h s uc u al and non-s uc u al measu es
(eme gency ac ion plans, public communica ion
campaigns, wa ning sys ems, e c.). Fo ha
pu pose, he da abase EIEL (Regional su ey
on In aes uc u es and Equipmen ) has been
used o ob ain de ailed in o ma ion on u ban
and u al land uses in Oli a o cha ac e ize lood
ulne abili y.
sȩ Inco po a ing he ole and unc ions o he
Technical Di ec o o he Plan, esponsible o he
echnical pe o mance and implemen a ion. This
ole a ises om he need o a mo e in eg a i e
pe spec i e ega ding ci il p o ec ion and lood
isk go e nance, me ging all di e en phases o
eme gency managemen (p e en ion, ac ion and
back o no mal si ua ion).
4.1
FLOOD RISK ANALYSIS
A quali a i e and quan i a i e isk assessmen was
ca ied ou o suppo ing he de elopmen o he
Plan.
Quali a i e isk analysis was based on he c i e ia
de ined in PATRICOVA, o es ablish an upda ed
classi ica ion o lood haza d le els based on lood
equency and dep h.
Quan i a i e isk analysis was based on he
me hodology de eloped wi hin he amewo k o he
SUFRI p ojec , Sus ainable S a egies o U ban Flood
Risk Managemen wi h non-s uc u al measu es o
cope wi h he esidual isk (Escude -Bueno e al., 2012),
unded by he o me Spanish Minis y o Science and
Inno a ion. A isk model is pe o med o calcula e
socie al and economic isk due o looding (Cas illo-
Rod íguez e al., 2014), and allows i s ep esen a ion
h ough FN and FD cu es (whe e F deno es he
sȩ Hyd aulic modelling o lood plain a eas in i e
cou ses: Se pis, Rambla Galline a, Bullen and
Molinell (de eloped by TYPSA in 2010).
These s udies ep esen ed he benchma k wo ks
o he lood haza d s udy, in oduced in Sec ion
3.3, and de eloped in 2012 by TYPSA (enginee ing
consul ancy), as equi ed by PATRICOVA. This s udy
was app o ed on Ma ch 7, 2014, including he use o
high-de ail ca og aphy in o ma ion.
A e app o al o his s udy by he egional
go e nmen , he Ci y Council eques ed in 2014 he
decla a ion o Oli a as high lood isk municipali y,
gi en ha he majo pa o he municipal and sup a-
municipal in as uc u es and all coas al u ban cen e s
a e a isk o looding. Howe e , his applica ion has
no been esol ed ye . Based on ou comes o he
lood haza d s udy, he Ci y Council was disposed
o pe o m he Local Ac ion Plan agains lood isk
(PAMRI). Thus, he Plan was de eloped om 2014 o
2016 and inally app o ed by he egional go e men
in June 2016.
So a , only 20 o he 136 equi ed local ac ion plans o
be de eloped by municipali ies wi hin he Valencian
Communi y ha e al eady been inished and app o ed.
4.
LOCAL ACTION PLAN AGAINST
FLOOD RISK FOR THE MUNICIPALITY OF
OLIVA
To comply wi h egula o y equi emen s in e ms
o bo h Ci il P o ec ion and U ban Planning, he
Ci y Council o Oli a p oceeded in 2014 o ake he
necessa y ac ions o elabo a e a quan i a i e lood
isk analysis ha would complemen and be he basis
o de eloping he Local Ac ion Plan agains lood isk
(PAMRI).
Based on he Eme gency Municipal Te i o ial Plan
(1994) and he guidelines p o ided by he Regional
Go e nmen o de eloping hese plans, he PAMRI
con ains equi ed documen s and annexes o s a he
p ocess o imp o ed local lood isk managemen .
In his sec ion, con ibu ions p o ided o his Plan,
74
annual cumula i e exceedance p obabili y o he le el
o po en ial consequences in e ms o li e-loss, N, o
economic damages, D). Inpu da a o he isk model
was ob ained based on lood haza d analysis, sys em
esponse agains such lood e en s and es ima ion o
po en ial consequences o he popula ion a ec ed
by looding and o he p ope y.
The de ailed desc ip ion o he me hodology o
quan i a i e isk es ima ion and analysis can be ound
in (Cas illo-Rod íguez e al., 2016).
The lood haza d s udy conduc ed in 2012 was used
Ÿ Figu e 4.
In luence diag am
ep esen ing he isk model
(nodes include in o ma ion
on loads, sys em esponse
and consequences).
źFigu e 5.
Cumula i e annual exceedance
p obabili y (F) o he le el
o economic po en ial
consequences in million Eu os:
Base case (BC) and scena io
a e implemen ing he Plan
(BC+PAMRI).
Ÿ Figu e 6.
Theo e ical impac o isk
educ ion s uc u al and non-
s uc u al measu es.
as a basis o analyzing po en ial lood e en s and
sys em esponse o all i e cou ses ha in eg a e he
sys em in Oli a. This s udy was comple ed by an ad
hoc analysis o po en ial lood consequences.
The p ocess o lood isk analysis was di ided in o
h ee s ages:
sȩ Flood cha ac e iza ion: Es ima ion o he
p obabili y o occu ence and analysis o ain all
e en s ha esul in looding.
sȩ Sys em esponse cha ac e iza ion: Flood dep hs
and eloci ies as a esul o ain all e en s wi hin
he i e ca chmen a ea.
sȩ Cha ac e iza ion o po en ial consequences:
Es ima ion o consequences in e ms o po en ial
a ec ed popula ion, inju ies, li e-loss, and
economic cos s.
The e exis di e en me hodologies in he li e a u e