4.0 Major Findings and Conclusions

Based on research results from the 2002 ITS Deployment Tracking Survey and the Rapid Response Information Request, Exhibit 20 has been prepared to provide an inventory of current TMC capabilities to perform critical activities required for Emergency Transportation Operations (and discussed in the previous chapters). This Exhibit organizes specific TMC capabilities into seven categories:

• Threat and Warning – Security
• Threat and Warning – Weather
• Notification of Major Incidents and Emergencies
• Coordinating Field Response
• Coordinating with Emergency Operations Centers
• Coordinating with Other Transportation Agencies
• Use of Modeling and Simulation to Support Planning

For each category, Exhibit 20 identifies specific activities performed by TMCs, illustrating how prevalent these capabilities are in the TMC universe. Rankings of prevalence are based upon a system developed by the TMC Pooled Fund Study to assess the implementation of specific TMC management functions. These ranking include the following:

• Universal: Almost all TMCs have this capability (90 to 99% of TMCs)
• Prevalent: A majority of TMCs have this capability (75 to 90% of TMCs)
• Common: A significant number of TMCs have this capability (50 to 75% of TMCs)
• Sporadic: A relatively small number of TMCs have this capability. (50% or less of TMCs)

Assessments regarding the location of specific TMC capabilities in one ranking category rather than another were based upon the research team's analysis, which relies on the results of the 2002 ITS Deployment Tracking Survey and the Rapid Response Information Request.

4.1 Increasing Coordination and Automation of Incident Management Functions

Exhibit 20 indicates that TMCs nationwide have made great strides in coordinating and automating transportation-specific systems which support improved incident management. Many TMCs have established partnerships with state and local law enforcement, fire and rescue agencies, and emergency medical services sufficient to support effective day-to-day relationships regarding enhanced response to vehicle accidents and other events which disrupt traffic. Because most of these incidents are relatively small in nature, these relationships rely largely upon person-to-person communication at the scene and the implementation of set procedures and protocols. Multi-agency, regional Incident Management Task Forces support this process by reviewing incident management responses and revising agreements and procedures as necessary.

In supporting incident management, many TMCs dispatch service patrols and/or incident response teams to provide an "operations" presence directly on-scene and to ensure focus on those activities central to motorist and responder safety, as well as additional resources for clearing and recovering the incident scene as quickly as possible.

Exhibit 20: Inventory of Emergency Transportation Operations Capabilities

ETO Activity	Universal: Almost all TMCs have this capability. (90 to 99% of TMCs)	Prevalent: A majority of TMCs have this capability. (75 to 90% of TMCs)	Common: A significant number of TMCs have this capability. (50 to 75% of TMCs)	Sporadic: A relatively small number of TMCs have this capability. (50% or less of TMCs)
Threats and Warning – Security	Access to Local TV/CNN Field reports from transportation personnel and state police	Access to Internet to track unfolding events Access to local media/traveler information center resources	Advisories and recommendations from local and state law enforcement	Email/phone/fax/pager distribution lists with law enforcement/emergency management agencies Email/phone/fax/pager distribution lists with state agencies In-person notification from law enforcement and emergency management personnel co-located with TMC personnel Alerts from US DOT modal administrations Access to "Be On The Lookout" (BOLO)/Wanted Persons reports; National Crime Information Center (NCIC) reports; Tactics, Techniques and Procedures (TTPs) briefings; and warnings or analysis from research centers
Threat and Warning – Weather	Access to Local TV/CNN/Weather Channel Field reports from transportation personnel and state police	National Weather Service reports Access to local media/traveler information center resources Access to regional/state-wide traffic reporting system	Road Weather Information Systems (RWIS) Subscription services to weather information providers	Automated/integrated computerized systems to support prediction and incident response regarding changing weather conditions
Notification of Major Incidents and Emergencies	Access to Local TV/CNN Telephone notification from state/local law enforcement within 15 minutes of incident occurrence CCTV camera feeds (limited coverage) Calls from motorists, highway crews, and others who may have observed incident	Telephone notification from state/local law enforcement within 5 minutes of incident occurrence Radio calls from service patrols and transportation supervisors Beeper/pager notification from state agencies CCTV camera feeds (partial coverage of major interchanges)	Formal protocols with public safety agencies regarding TMC event notification – method and information to be included with notification Email notification from state/local law enforcement Local media outlet partnership for traffic information CCTV camera feeds (full coverage of major interchanges and transportation sections)	Automated notification via connection to E-911, local EOC, or state or local law enforcement dispatch CCTV camera feeds (full coverage of major interchanges and transportation sections; limited coverage of other sections of the transportation system)
Coordinating Field Response	Telephone, radio, cell phone, beeper, pager reports from transportation personnel and law enforcement on scene Information dissemination through changeable message signs, Highway Advisory Radio, the Internet, and commercial media Ability to use telecommunications and CCTV infrastructure to assist in incident monitoring; to identify potential impacts on the transportation system Ability to alert/slow approaching traffic using overhead electronic message boards, lane control signals and/or ramp meters Ability to provide traveler information to the public and media, through radio broadcast and/or Internet	Dispatch capabilities and/or coordination for transportation resources (maintenance, engineers, field technicians) Telephone/cell phone/"digital walkie-talkie," and/or radio communication with transportation personnel on-scene Ability to coordinate with maintenance personnel to: provide emergency and short term traffic control setups; contain minor vehicle spills; coordinate the establishment of alternate routes and assist in their operation; determine incident clearance/debris removal needs; coordinate use of state and local DOT resources for recovery of incident; assess infrastructure damage, make necessary arrangements for repairs; and track resources Ability to coordinate with state and local hazardous materials responders (transportation, environmental and public safety)	Dispatch of operations personnel to the scene (Service Patrols/Incident Response Teams) to: secure the incident scene; provide emergency medical aid; support fire, rescue and emergency medical services in their operations; relocate or remove vehicles and debris from the roadway; assist stranded motorists and others on the roadway; provide for emergency traffic control; and initiate longer-term traffic control for approaching traffic and affected area Ability to coordinate operation of the transportation system to address incident impacts. This could include lowering of freeway speed limits through use of dynamic message signs or variable speed limit signs, modification of ramp metering rates or signal timing to slow the flow of traffic, and use of flashing beacons and Highway Advisory Radio to issue public warnings and advisories. Ability to support the implementation evaluation and/or alternate routes through the readying of transportation facilities and equipment and public information	Ability to coordinate with on-scene ICS to participate in the development of the Incident Action Plan and operational strategies for managing the transportation elements of the emergency event Ability to coordinate, authorize and/or implement specific operational strategies, which may include: Clearing specific facilities (road, bridge, and ramp closures) Implementation of pre-designated plans for closures and supporting traveler information requirements Implementing tire controls; lane use controls; and vehicle type restrictions on affected facilities Implementing pre-planned responses for detours and alternate routes Implementing "demand management" through public advisories, road closures, transportation mode shifts (i.e., use of public transit); and restrictions implemented on single-occupancy vehicles Implementing speed reductions and variable speed limits Supporting and coordinating debris removal, infrastructure damage assessment; and emergency repairs Coordination with media outlets or state law enforcement to obtain aerial surveillance of incident scene (helicopter)
Coordinating with Emergency Operations Centers	Designated contact/call-out list to reach EOC personnel by phone, fax, pager or beeper Ability to coordinate communications between EOC and other transportation operations	Transportation representative at the local (city or county) EOC or state EOC to coordinate strategic activities and response planning for transportation Ability to identify work zones/ construction activity that may affect the performance of roadways/freeways within their jurisdiction under emergency conditions	Access to a list of pre-designated detours and diversion routes for potentially affected areas of the transportation system Access to identified evacuation routes for their jurisdictions	Ability to access Roadway Characteristics Inventory to support information sharing with local responders and the development of detour/diversion strategies for the transportation system in real-time Ability to identify existing facilities and road-side locations along major segments of the transportation system that could provide parking and/or staging sites for local responders Ability to identify a listing of temporary shelter sites and reception centers for emergency evacuations Access to pre-designated lifeline routes to ensure emergency responder access to major locations
Coordinating with Other Transportation Agencies	Designated contact/call-out list to reach other regional and state transportation personnel by phone, fax, pager or beeper	Region-wide incident monitoring system	State-wide/multi-state incident monitoring system with direct updates to traveler information Internet sites	Coordination plans with public transportation to support "no notice" evacuation of downtown areas, as well as the management of those citizens who may require special transportation assistance during longer-term evacuations
Use of Modeling and Simulation to Support Planning	Ability to provide archived traffic network data to support modeling	Access to hard-copy alternate and evacuation routes for major segments of the transportation systems	Participation in local/regional/state-led evacuation and alternate route modeling projects and programs	Modeling program with resources available to support identification and evaluation of alternate and evacuation routes

Gains in coordination for incident management have been supported by increasing automation, including greater TMC dispatch capabilities to coordinate transportation maintenance activities at incident scenes; work zone/construction monitoring and control systems; roadway characteristics inventories; and greater integration into the processes used by local and state DOTs to develop, implement and monitor detours and alternate routes. Many TMCs are also now connected to regional, state and even multi-state systems which identify incidents, delays, road closures, emerging conditions, and accidents. Many of these systems have been configured to support the dissemination of traveler information as well, providing motorists with increasingly accurate information for trip planning purposes.

In addition, many TMCs dispatch personnel trained in ICS principle and concepts, who coordinate closely with law enforcement and fire and rescue personnel at the scene. Enhanced understanding of ICS principles is critical for effective response to a large-scale event which may bring dozens of responding agencies to the scene.

4.2 Agency-to-Agency Communication and Coordination

Less coordination is evident for major events which require agency-to-agency communication and coordination. During these events, TMCs must work not only with a variety of state and local DOT and DPW districts, divisions and offices, but also with local, regional, and state EOCs, as well as a number of public safety agencies on-scene. A small percentage of TMCs has invested in connectivity to local E-911 dispatch centers, local and state law enforcement CAD systems, and local and regional EOC incident management and tracking systems. At the current time, most TMCs have no capability to directly and automatically share data or video with any of these agencies.

However, most TMCs – through their larger transportation organizations (state and local DOTs) – place a representative on-site at the local, regional or state EOC. Likewise, most EOCs have contact information for TMC personnel. For a few regions in the country, connections are being enhanced between EOCs and TMC or state DOT Traveler Information Systems, to support both the sharing of real-time traffic information and ability to communicate quickly and effectively with travelers and citizens regarding emergency events. In addition, a growing percentage of TMCs are enhancing electronic connectivity to state and local law enforcement, and facilitating enhanced integration through the co-location of facilities.

While improvements have been made, perhaps the most significant finding from this research is that public safety and emergency management agencies may not understand how to assess an emergency situation in terms of its likely impacts on the transportation system. This information, which is critical for the TMC and its partner transportation agencies, is currently culled by TMC and transportation field personnel from incident notification and status reports which are uneven and often fail to provide key indicators of event duration and incident action planning (such as anticipated time of lane closures; or specific responder needs for access to a specific area over what period of time). As indicated by traffic operations respondents to the Rapid Response Information Request, key information required during both notification and on-going status monitoring includes the following:

• concise and consistent categorization regarding incident type, severity, location, estimated impacts on the transportation system, and needed transportation resources
• a list of responding agencies
• estimated time of arrival for responding agencies
• staging areas and on-scene parking configurations
• geographical boundaries of incident
• surface street conditions at and near the incident
• reports of other highway incidents occurring that may related to the major incident (secondary accidents and bottlenecks)
• projected time of incident clearance/closure
• traffic control methods in place and who is directing the scene

4.2.1 Incident Classification Systems

Many areas struggle in maintaining up-to-date information regarding the decisions and actions of emergency responders, and their likely impacts on the transportation system. In addressing this challenge, some regions have identified classification systems, such as the one presented in Exhibit 21, which support a reporting and incident tracking scheme that is understood by both transportation personnel and emergency responders. Implementation of such a classification system requires regional stakeholders to recognize that major incidents and special events usually require assistance from, and coordination among, many transportation and public safety agencies across jurisdictional boundaries, and that this coordination cannot be managed solely on an ad hoc, agency-by-agency basis. These organizations must agree that there is need to establish region-wide guidelines to provide uniform interagency coordination procedures at the field-operation level.

Incident classification systems are typically supported by an assessment of the Incident Command System structure that is necessary to manage the event. As indicated in Exhibit 21, for Level I incidents, the ICS structure may only include a field command post and all the needed resources may be readily available at the scene. For Level II incidents, the ICS structure is expanded and may require support for a partially activated EOC. At Level III, effective management of incident response activities may require a full activation of the local EOC and the full expansion of the ICS structure with all four supporting sections (i.e., Planning, Operations, Logistics, and Administration/Finance). At Level IV, the ICS structure is expanded into various functions or geographical sectors depending on the scope of the incident. State and Federal resources may be required to stabilize the event.

One of the challenges facing incident commanders is the ability to predict the escalation of an incident from a low level to a high level, and the point at which various types of regional coordination would be required. In general, regional transportation coordination may occur at a low level of incidents, but this may not be true for all types of response activities. For examples, as depicted in Exhibit 21, regional coordination may be necessary to manage a Level I incident. The simplest form of coordination may be the notification of incident occurrences so as to raise the regional traffic situational awareness and control capabilities. As the response level of an incident increases, more transportation and/or traffic operations agencies are involved, requiring agency-to-agency communication in addition to person-to-person communication. Interagency communication is important in regional traffic management and essential in evacuation operations.

Exhibit 21: Incident Classification System and Transportation Impacts [2]

Incident Classification	Examples	Road Closures	Direction & Control	Traffic Management Response
Level I: Minor Incidents	Minor traffic incident Traffic crash Minor load spill Vehicle fire Minor train or bus accident Accident with injuries	0–2 hours	On-scene resources are typically sufficient to manage incident; using the Incident Command System (ICS) and person-to-person communication	TMC support Multi-agency Standard operating Procedures (SOPs) Person-to-person notification and communications Dispatcher notification to TMC Traffic advisory dissemination
Level II: Serious, Involved or Extended Incidents	Train derailment Major bus/rail transit accident Major truck accident Multi-vehicle crash HazMat spills Accidents with fatalities and injuries	2–4 hours	On-scene resources, which may be supplemented by additional resources, through ICS, are used to resolve the incident – mainly through person-to-person communication but agency-to-agency communication may be necessary	TMC/transit operations center support Multi-agency SOPs Agency-to-agency notification and communications Person-to-person notification and communication Regional "bridge call" Coordination of traffic management for public advisories, assists in traffic detours, and coordinated signal operations
Level III: Major Incidents	Train crash Airplane crash HazMat incident Multi-vehicle accident Tunnel fire Accidents with multiple fatalities/injuries Port/airport incidents Industrial incident Major tunnel/bridge closure	4–8 hours	These incidents require full activation of all ICS sections in the field and activation of a local Emergency Operations Center (EOC) to provide command and communication support. The liaison function may be moved to the EOC and agency-to-agency communication may be required	TMC/transit operations center support Agency-to-agency notification and communications Person-to-person notification and communication Regional "bridge call" Coordination of traffic management for public advisories, assists in traffic detours, coordinated signal operations TMC coordination of freight traffic Regional transportation organizations notified
Level IV: Disasters	Terrorist attack/WMD Flood, blizzards, tornados Infrastructure collapse Extended power/water outage Civil unrest Accident with mass casualties	8 hours to days	In addition to full field activation of ICS sections, and the activation of the local EOC, these event may also trigger state and Federal EOCs and support, and require agency-to-agency communication	TMC/transit operations center support Agency-to-agency notification and communications Person-to-person notification and communication Regional "bridge call" Coordination of traffic management for public advisories, assists in traffic detours, coordinated signal operations TMC and state EMA EOC coordinate traffic and evacuation management Regional transportation organizations notified Possible Federal involvement

4.2.2 Limited Availability of Transportation Analysis Tools

At the current time, incident information is generally not processed by transportation analysis tools, which inventory the information and make recommendations for specific actions that can be taken by the transportation system to better manage the event in real-time. Examples of this would include automated systems that recommend routes for emergency responders and then implement signal prioritization for response vehicles from a centralized location. Other examples include automatically generated traffic diversion and re-routing strategies, implemented through centrally controlled systems which manage signal coordination along the route(s), coordinated with ramp meter control and expressway interchange control, supported by up-to-date traveler information systems, DMS, and HAR. This automated activity would accurately take into account work zone lane closures and other restrictions on the transportation system, as well as resources available to support field components of these activities. This system would also update and re-configure strategies, based on traffic demand and emerging conditions.

4.3 Other Findings

Other findings summarized in Exhibit 20 include the following:

• TMCs have not yet established threat and warning systems for security which extend throughout the entire TMC universe. While some TMCs have very sophisticated connections to local and state law enforcement, which provide immediate advisories in response to a range of security issues (not just threats, but also Amber Alerts, and searches for wanted persons), other TMCs rely on the local media and CNN for their threat and warning information.
• CCTV and RWIS are increasing in both their level of deployment and functionality. Results from these technologies are becoming increasingly attractive to local emergency responders and EOCs, who contact TMC personnel requesting "video reads" from CCTV monitors or road conditions for specific segments of the transportation system.
• TMCs have a variety of redundant technologies to support event notification and status monitoring. While primary event notification and on-going status reports are still delivered primarily from state and local law enforcement through telephone, TMCs and transportation operations personnel also have cell phones and "digital walkie-talkies" which can provide a level of interoperability with local responders on scene. Blast email notifications, request forms, and status forms are becoming increasingly more common, as are the use of beepers, alpha-numeric pagers and personal data assistants to receive and communicate information. TMC operators can communicate with transportation field personnel via radio, cell phones, "digital walkie-talkies," and in some jurisdictions, through the use of mobile data terminals in vehicles.
• There is no consistent guideline for incident notification, and local responders do not always consider the TMC as a primary agency to be notified. While the creation of formal agreements and Incident Management Task Forces has greatly improved the situation, many TMCs still struggle with getting and sustaining an information flow from on-scene public safety responders that is useful and effectively support transportation operations.
• TMCs (and their transportation partners in state and local DOTs and DPWs) have much to offer during on-scene field response to a major emergency – not just equipment and telecommunications capabilities, but the ability to communicate with the media and public (through traveler information systems), skilled employees in a variety of functions, personnel trained in basic medical care; and access to a variety of engineers, computer programmers, and field technicians who can support damage assessment and emergency repairs (with appropriate authorizations). While their capabilities are increasingly appreciated by local responders, their position in the emergency management community would benefit from further integration into the on-scene ICS process and incident action planning. Law enforcement may not always be in the best position to identify and implement alternate routes, detours and diversions, and to identify emergency responder access routes and site staging and traffic plans.
• The communications backbone and other resources required to operate EOCs are very similar to those required to operate TMCs. For many communities, it is intuitive to take planning to the next level and formulate how these two critical operations and management centers could gain efficiency by, at a minimum, sharing video and other data through virtual connections. Further refinement of this idea could include consolidating the operations of the two centers to achieve additional efficiencies and synergies through sharing capital, operations and maintenance costs, as well as space and other resources. Many of the advantages to partnership between EOCs and TMCs revolve around closer coordination and daily interaction between the staff involved. As noted earlier, during a large-scale evacuation, EOCs assume the role of "communications hub" to the region, continually providing emergency responders and decision makers alike with up-to-the-minute reports from the field to ensure the "event" is managed effectively. TMCs have been somewhat excluded from this information, a situation which could be improved through more direct and automated access to local, regional and state EOCs.
• TMCs need greater integration into community emergency planning – both in the creation and maintenance of the traffic networks which sustain transportation modeling (when it is used) and in the development of alternate and evacuation routes, lifeline routes for emergency responder access, and the identification potential staging areas, temporary shelters, and other resources available in the community to support emergency response.