Vancouver was built quickly, but its ancient towers are now at risk from earthquakes

In 1957, Vancouver took a critical turn in its urban development when City Council raised the eight-storey height limit in the West End neighborhood on the downtown peninsula, opening the door to high-rise living along English Bay. Over the next two decades, more than 300 mid- to high-rise concrete residential buildings were constructed, some exceeding 30 stories.

Today, these towers form the backbone of the West End, and an important share of downtown Vancouver’s residential supply, including much that is still relatively affordable.

But there is a catch. These buildings may be seriously vulnerable to damage from earthquakes. When many of these buildings were designed, the earthquake resistance requirements in the Canadian National Building Code were rudimentary.

Since then, earthquake science and engineering have evolved dramatically, and building codes have changed with them. Through today’s lens, many of Vancouver’s high-rise apartment buildings of the 1960s and 1970s, although up to code at the time of construction, are now considered earthquake-prone.

Our recent study of older typical high-rise concrete buildings in the West End estimated that there is a significantly high risk of major damage if a strong earthquake strikes the area.

Our findings confirm what many local engineers have long understood. The City of Vancouver and Natural Resources Canada have previously highlighted that a small number of older mid- and high-rise concrete buildings generate a significant share of seismic risk, clustered downtown and in West End neighbourhoods.

Older concrete more vulnerable Non-ductile reinforced concrete residential buildings in Vancouver’s west end in January 2023. These buildings may have a limited ability to withstand the seismic demands imposed by large earthquakes. The Canadian Press/Daryl Dick

Most of the buildings at risk in the West End were built using non-ductile reinforced concrete, a common form of construction before modern seismic detailing requirements. As a result, these buildings can be subject to sudden and fragile collapse under strong tremors.

Modern engineering practices explicitly design concrete to be more ductile, with knowledge developed over decades, to better withstand earthquakes. But ancient buildings predate such practices. This makes them particularly vulnerable to earthquake damage.

After the 2023 earthquake in Türkiye, where similar types of construction sustained significant damage, local experts in Vancouver urged mandatory seismic assessments for these ancient buildings.

Since then, there has been no citywide program, but a few voluntary retrofits, mostly in commercial buildings where individual owners have chosen to act. However, the city has been actively exploring policy options to address the complex problem of reducing the seismic risk posed by these privately owned buildings.

The vulnerabilities extend beyond the buildings themselves. Most people who live in the West End are renters, many of whom are low-income and elderly. The people most dependent on these buildings often face the greatest barriers to preparing for, responding to, and recovering from disasters.

These are the real-life challenges faced by older buildings and the communities that call them home. But there are ways governments can plan for a resilient future.

Lessons from elsewhere

Vancouver is not alone in facing this challenge. In Los Angeles, Seattle and across the Pacific in New Zealand, other cities are grappling with the dangers posed by inflexible concrete buildings. Los Angeles has approximately 1,500 non-ductile concrete buildings. In 2015, the city adopted a mandatory program requiring owners of pre-1977 concrete buildings to evaluate, design and complete retrofits over a 25-year period.

Instead of grants or broad tax breaks, Los Angeles tied the mandate to a limited option to recover costs for rent-stabilized buildings. Landlords can pass up to 50 percent of verified costs to tenants, up to a maximum rent increase of $38 per month for 10 years.

Despite this program, maintaining an accurate inventory and tracking compliance has proven difficult, with outdated city records for non-retractable buildings. While the framework is clear, implementation remains a work in progress.

Financial support for retrofits A 1965 view of the West End and Cole Harbor neighborhoods in downtown Vancouver from English Bay. (J.S. Matthews)

Rehabilitating old buildings makes sense but is a difficult sell to owners because there are no immediate benefits. It’s expensive, annoying, and tangled in divided responsibilities and incentives. Often owners do not occupy their properties, nor do they feel the urgency to act.

From the owner’s perspective, a mandatory upgrade that costs millions may seem unfair. The building met the code of its day, so why should they have to incur significant costs to meet mobile goal posts while updating the building code? Although tenants benefit from retrofits, there is no reasonable justification for them to bear the enormous cost of upgrading someone else’s property.

As building codes evolve to reflect new science, governments also have a role to play. Effective policies must be guided by the needs and interests of all stakeholders, with financing and implementation tools that enable risk reduction.

A 2023 report from the US National Institute of Building Sciences recommended investments to reduce risks, financed through incentives shared by all beneficiaries, including the government, insurance companies, the real estate industry, financial institutions, tenants and future owners.

The goal, ultimately, is public safety and resilient communities. Getting there means all stakeholders are pulling in the same direction. Retrofits are a critical tool, but they are not the only one. Clearly communicating risks to the people who bear them can unleash momentum, aligning market forces with the transparent systems, technical support and financing that make the work possible.

Seismic retrofitting can and should accompany climate adaptation and energy retrofitting. The same dollars could reduce earthquake risks, enhance energy efficiency, and make them more habitable in a changing climate. Honest engagement on shared responsibility for risks in older buildings, supported by sustainable, practical funding, must be at the heart of the agenda.

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