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Carsten Kaefert: The Earthquake in Bam – Combating Disaster with Sanitation→ Page 2/14
Abstract
In the early morning hours of December 26th 2003 an earthquake with a magnitude of 6.6
on the Richter scale shook the city of Bam in southeastern Iran. The incident killed more than
26.000 people and destroyed or damaged around 85 per cent of the buildings in Bam and the
surrounding villages, rendering a further 125.000 homeless. This article will show how an
impressive lineup of different factors for vulnerability turned a comparatively minor earthquake
into a major disaster. These factors range from high seismic activity in Iran to construction
improper for an area with such stresses and how the earthquake hit in the worst possible moment.
It will further analyze the relief efforts of the British NGO Oxfam, which focused on restoring
sanitation services in villages surrounding Bam. Their action is remarkable for its reliance on
Vulnerabilities
Vulnerability to earthquakes is determined by a number of different factors. Considering
the comparatively low magnitude of the earthquake in Bam and the scale of the disaster it
triggered, it becomes obvious how central analysis of these vulnerabilities is to the understanding
1. Location
“The location of the earthquake […] is of prime importance.”1 This is rather obvious. The
location is of central importance on different scales: On a macro scale to assess the degree of
exposure for a country or region, on a meso scale to assess exposure within one country or region
1 Ben Wisner et al., At Risk: Natural Hazards, people's vulnerability and disasters (London, New York: Routledge,
2004), 277.
Carsten Kaefert: The Earthquake in Bam – Combating Disaster with Sanitation→Vulnerabilities Page 3/14
on the level of towns and villages and on a micro scale, dealing with risks on the level of single
buildings.2
All of these levels are relevant to the analysis of the case at hand. This is most obvious
when analyzing the macro scale: Iran is the seismically most active country in the world.
occurrences3 as well as to a criterion ICV integrating the country rankings in energy strike,
disaster occurences, fatalities, fatality burden (fatalities per capita) and fatality-energy index
(measuring the energy strike necessary to cause a fatality).4 Keeping in mind that the worst case
gets the lowest ICV, the margin by which Iran is more susceptible to earthquakes than the rest of
the world becomes strikingly clear seeing that its ICV of 8.6 is just little more than half that of
On the meso scale, the specific vulnerabilities of the local economy come into play. Bam,
basically an ancient oasis, had two main sources of income, both of which were disrupted by the
earthquake: Agriculture and tourism. Dates and oranges were the main produce, irrigated by a
historic system of channels called ganats. This system was ruptured, additionally the natural
springs were devastated, effectively drying out the plants.6 But not only the next harvest was lost,
the last one also suffered, putting further strains on local livelihoods: “Electricity lines were also
brought down, causing a year's stockpile of succulent Bam dates, housed in refrigerators, to spoil
2 Cf. ibid.
3 Cf. M.R. Asef, “Modelling the elements of country vulnerability to earthquake disasters,” Disasters 32(3)
(2008): 488.
4 Cf. ibid. 489-491.
5 Cf. ibid. 491.
6 Cf. Integrated Regional Information Networks (IRIN), “IRAN-IRAN: Special on Bam Three Months on,” UN
Office for the Coordination of Humanitarian Affairs, http://www.irinnews.org/Report.aspx?ReportId=23658
(accessed 2008-11-09)
Carsten Kaefert: The Earthquake in Bam – Combating Disaster with Sanitation→Vulnerabilities Page 4/14
- the farmers had not yet been paid for their supplies.”7 Tourists were drawn to Bam because of
its more than 2000 years old citadel of Arg-e-Bam, which was the oldest clay-brick building in
Illustration 1: Estimated population directly affected by the Bam earthquake. Map: USAID
(http://www.reliefweb.int/rw/rwb.nsf/db900SID/SKAR-
64GE3G?OpenDocument&rc=3&emid=EQ-2003-0630-IRN)
7 Ibid.
8 Cf. Jean-François Pinera, Robert A. Reed and Cyrus Njiru, “Restoring sanitation services after an earthquake:
field experience in Bam, Iran,” Disasters 29(3) (2005): 223.
Carsten Kaefert: The Earthquake in Bam – Combating Disaster with Sanitation→Vulnerabilities Page 5/14
Two other interweaved factors differentiate the affected area on the meso scale: The close
proximity of the earthquake's epicenter to the city of Bam (compare illustration 1) and the fact
whether a person lives in the city itself or in one of the surrounding villages. Due to architectural
differences, both the city and the countryside had vastly different needs in respect to sanitation,
Vulnerability to earthquakes also varies on a micro scale. This became apparent in Bam,
where buildings can be sorted into six categories with vast implications for their performance
during the earthquake.10 Analysis of the micro scale determinants thus is closely tied to the
2. Time
season or occasion of the earthquake and the time of day at which it hits.13 For Bam, all of the
dials were set for disaster: The city had not experienced any major quakes in modern times
(proven by the remarkably good state of the citadel before the earthquake), 14 the earthquake hit in
the height of winter with temperatures well below zero degrees Celsius and stockpiles full of
dates15 and, perhaps most treacherous, struck at 05:28AM local time, when most of the people
were sleeping.16
9 Cf. Ibid. 226.
10 Cf. Farrokh Nadim et al., “The Bam Earthquake of 26 December 2003,” Bulletin of Earthquake Engineering 2
(2004): 131.
11 Cf. Wisner et al. At risk... 277.
12 Ibid.
13 Cf. Ibid.
14 Cf. Pinera, Restoring... 223.
15 Cf. IRIN, IRAN-IRAN: Special...
16 Cf. BBC, “Iran earthquake kills thousands,” BBC, http://news.bbc.co.uk/2/hi/middle_east/3348613.stm
Carsten Kaefert: The Earthquake in Bam – Combating Disaster with Sanitation→Vulnerabilities Page 6/14
3. Construction and 4. Building Codes
vulnerability to earthquake hazard.”17 Nadim et al. identify six different categories of buildings
can within Bam and the surrounding areas, each with specific characteristics in regard to
earthquake vulnerability:
(accessed 2008-11-09)
17 Wisner et al. At risk... 277.
Carsten Kaefert: The Earthquake in Bam – Combating Disaster with Sanitation→Vulnerabilities Page 7/14
Most of the buildings seen in Bam were of the above types or a variation of them. Note
that most of the building types described above, except for Type 6 construction, have
thick heavy roofs.[...]18
It does not take much imagination or engineer's skills to figure out that top-heavy buildings
from weak materials perform suboptimally in case of an earthquake. Nadim et al. back up this
assumption with empiric data taken at several spots around town, including the following:
One might assume that this is first and foremost a problem of old, traditional non-
The large scale collapse of new housing leads to the question how this was possible.
Carsten Kaefert: The Earthquake in Bam – Combating Disaster with Sanitation→Vulnerabilities Page 8/14
“Protective measures include […] policies that officials have taken […] to reduce seismic
risks.”21 Such policies include, for example, aseismic building codes, which have proven highly
successful in the past. The Loma Prieta earthquake, for example, struck the densely populated
San Francisco Bay region with a magnitude of 7.1 on the Richter scale in 1989, but came at a
cost of human life several orders of magnitude lower – only 57 casualties could be directly
linked to the earthquake.22 Although protection is obviously possible, in 2003 Iran had neither
strict enough regulations in place nor were the existing regulations enforced.
designed and constructed structure based on the code requirements would most likely have
Carsten Kaefert: The Earthquake in Bam – Combating Disaster with Sanitation→Vulnerabilities Page 9/14
Multi-Level Vulnerabilities Adding up
Having shown that Bam was exceptionally vulnerable to earthquakes on virtually all levels,
that all of the determinants there pointed towards disaster, it becomes less surprising that an
earthquake of such modest magnitude caused such complete devastation. This was one disaster
waiting to happen.
Relief
The widespread destruction of the better part of buildings left the population of Bam and
the surrounding villages virtually helpless. As the Iranian government struggled with the task of
providing support to its affected citizens,international aid became more and more important
(welcome, as it had to overcome quite some reservations).24 One of the first organizations on the
Although it was winter when the earthquake hit, the temperatures were expected to rise
significantly just shortly after, thus creating a higher need for sanitation such as showers.26
Oxfam took this task in the area of eleven villages in the outskirts of the city, as this was the
This differentiated the practices of Oxfam very much from those of the organizations
24 Cf. Erich Wiedemann, “Großer Satan im Reich des Bösen,” Der Spiegel 2 (2004): 98.
25 Cf. Pinera, Restoring... 224.
26 Cf. Ibid. 227.
27 Cf. Ibid. 223.
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–The magnitude of destruction was lower. Although still between twenty and fifty per cent
of the buildings were destroyed, in some parts of the city destruction was total.28
–Due to a higher prevalence of outdoor toilets, more of those made it through the
–The different social fabric lead to another prevalence of sanitary installations before the
hazard with way fewer people having showers of their own. However, people were used to clean
themselves in their closed-up yards, which now did not offer the needed privacy anymore.30
–Building material and supplies were easier available than within the city.31
These differences led to a quite unique approach to the task of restoring sufficient
sanitation capacities. Most obvious is the decision to rely on locally available materials and
workforce by choosing a construction that could by completed by local masons with readily
available material: The toilets and showers were slated to be made with relatively thin walls from
clay bricks (which is the common building material in the area) with lightweight roof
constructions.32 Due to mostly inside toilets and a higher prevalence of showers, agencies within
the city relied more upon ready-made cubicles, as these helped to satisfy the bigger demand
faster.33
The measures taken by Oxfam can be assessed on a variety of levels. These are:
Carsten Kaefert: The Earthquake in Bam – Combating Disaster with Sanitation→Relief Page 11/14
–“Cost and work management:”34 Oxfam just provided all the necessary materials (except
clay) and wages for skilled workers. The sites for communal bathrooms were chosen by the local
communities, as well as the beneficiaries were responsible for the upkeeping of the facilities and
provided unskilled work to their erection.35 Thus local ownership was guaranteed.
–“Efficiency:”36 Although at first supplies were feared to be a problem, they were much
less so than labor. Recruiting a sufficient number of masons in the villages proved to be a
challenge threatening the efficiency of the operation. Similarly determining the efficiency was
the cooperation (or lack thereof) with local authorities. Although around one third of all the units
were under construction by the end of February, none were completed before April.37 So
efficiency lacked in terms of being able to provide hygienic sanitary conditions before the start of
–Fulfillment of the SPHERE charter.39 The SPHERE charter justifies the construction of
showers by two statements: It says that sanitation programs should aim “to establish 'conditions
that allow people to live in good health, dignity, comfort and security'”40 as well as it specifies
Lessons Learnt
This disaster and the response to it teach us lessons on two levels: ex ante and ex post. For
prevention, mainly a stricter and better enforced building code come to mind. Nadim et al.
34 Ibid. 231.
35 Cf. Ibid.
36 Ibid. 231.
37 Cf. Ibid. 233.
38 Cf. Ibid. 227.
39 Cf. Ibid. 233.
40 Ibid. 233.
41 Cf. Ibid.
Carsten Kaefert: The Earthquake in Bam – Combating Disaster with Sanitation→Lessons Learnt Page 12/14
present a whole list of possible structural and architectural improvements based upon the patterns
But also in respect to recovery after disaster valuable lessons have been learned. The
concept of building upon local supplies and craftsmanship proved right, as it was both
reasonably effective and included the local populus. Another lesson that can be taken is that
Carsten Kaefert: The Earthquake in Bam – Combating Disaster with Sanitation→Lessons Learnt Page 13/14
Bibliography
–Eberhart-Phillips, Jason E. et al., “Profile of Mortality from the 1989 Lorna Prieta
Earthquake using Coroner and Medical Examiner Reports,” Disasters 18(2) (1994).
–Pinera, Jean-François, Reed, Robert A. and Njiru, Cyrus, “Restoring sanitation services
–Wisner, Ben et al., At Risk: Natural Hazards, people's vulnerability and disasters.
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