6 PLANNING FOR A NO-NOTICE EVACUATION
OVERVIEW
Evacuations are incredibly resource-intensive events that require significant personnel, facilities, and equipment to implement. The nature and size of an incident that precipitates an evacuation will largely determine the response needed, including which stakeholders will be involved, their respective roles, and the resources required to successfully complete the evacuation. The details of the response will vary from one situation to the next, requiring agencies to be ready to undertake different types of responses for each evacuation.
The purpose of this section is to help transportation agencies and other stakeholders prepare themselves for meaningful participation in an evacuation effort by gaining a better understanding of the challenges they should be prepared to address. It presents a series of lists detailing issues that will arise during an evacuation. The list items are intended to help planners identify the types of information and decisions required during the planning process in order to develop an actionable evacuation plan. It should be noted that, while the lists provided will guide planners to much of the information that should be included in an evacuation plan and should be used to stimulate discussion during the planning process, they are not intended to constitute a comprehensive planning process.
The first Primer in this series, Using Highways During Evacuation Operations for Events with Advance Notice, identified the following six phases of evacuation operations:
- Planning and Preparedness
- Readiness
- Activation
- Tier 1 Operations
- Tier 2 Operations
- Return to Readiness
To promote consistency among the primers, the same phase structure is used in this Primer as well. The lists in this section are grouped by operational phase, identifying the issues relevant to each set of activities. To provide a clearer approach for planners, the lists are further divided by functional type of activity (e.g., command and control, communications, etc.) for each phase; this will assist readers with correlating the specific questions posed here with the issues presented in earlier sections of this Primer.
Please note that, as the purpose of this Primer is to address the issues specific to no-notice scenarios, the final two phases – Tier 2 Operations and Return to Readiness – are not covered here because their activities would be handled identically for both advance-notice and no-notice evacuations. For information about these phases, please refer to the "Components of an Effective Evacuation Plan" chapter in the Advance Notice Primer.
An additional distinction between the planning approaches presented here and in the first Primer is that this approach puts a stronger emphasis on the Planning and Preparedness Phase. Unlike an advance-notice evacuation, in which much of the necessary information becomes available to decision makers during the Readiness Phase, a no-notice evacuation will have either a very minimal or a non-existent Readiness Phase. It is essential, therefore, that preparedness is one of the main focuses of an evacuation plan capable of dealing with a no-notice scenario, and that planning activities take place well before the evacuation plan needs to be used. Identifying what can be done ahead of time to prepare for a no-notice evacuation will mitigate the effects of the lack of a Readiness Phase or of an extremely limited Readiness Phase.
PLANNING AND PREPAREDNESS PHASE
This phase encompasses the general planning activities that take place as part of everyday preparations for the possibility of an evacuation. Although particular scenarios may be considered during the planning process (in relation to identified likely causes for an evacuation), this phase differs from the other phases in that it is not conducted in response to a specific situation or occurrence. Planning and preparedness work is of particular importance for no-notice scenarios because it enables transportation agencies and other stakeholders to respond quickly and effectively when an evacuation does occur, without the need for significant additional planning work immediately preceding the evacuation.
| 1.0 | Planning and Preparedness | Notes |
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| 1.1 | COMMAND AND CONTROL For information on command and control issues for no-notice evacuations, refer to the following sections of this Primer:
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| 1.1 | Which agencies will have responsibilities during an evacuation, especially those with a transportation role? How have all of these agencies been involved in the evacuation plan's development? | |
| 1.1 | Which agencies and lead staff are involved in declaring an evacuation, executing and supporting the evacuation, and organizing sheltering efforts? How have all of these agencies been identified in the evacuation plan? | |
| 1.1 | What specific roles and responsibilities do agencies and lead staff have with regard to declaring and supporting evacuation and sheltering efforts? How have these roles been clearly defined and delineated in the evacuation plan for each position and agency? | |
| 1.1 | How can transportation agencies best contribute to an evacuation effort, based on their skills, resources, and expertise? How has this information been incorporated into the planning process with regard to these agencies' placement in the overall command structure? | |
| 1.1 | How have stakeholders, particularly transportation officials, been made familiar with the National Incident Management System (NIMS)? | |
| 1.1 | How have stakeholders, particularly transportation officials, been trained in Incident Command System (ICS) protocols? | |
| 1.1 | What protocols or procedures will be used to establish an emergency response command structure in a timely fashion? How are these protocols stated clearly in the evacuation plan? | |
| 1.1 | How does the plan document mutual aid agreements with neighboring jurisdictions and outside agencies? | |
| 1.1 | How does the plan document mutual aid agreements with the private sector, including those for the use of public transit vehicles, school buses, paratransit vehicles, and non-government agency vehicles such as church buses and volunteer group vehicles? What issues with regard to these other entities need to be addressed to bring them into the command structure? | |
| 1.1 | How does the plan address the inclusion of neighboring jurisdictions into the command structure, with regard to these jurisdictions providing sheltering and support services? | |
| 1.1 | What provisions in neighboring jurisdictions' plans enable effective coordination under the command structure with regard to sheltering and support activities? | |
| 1.2 | RESOURCE MANAGEMENT For information on resource management issues for no-notice evacuations, refer to the following sections of this Primer:
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| 1.2 | How does the evacuation plan identify organizations and individuals (by position) responsible for directing the staff and resources needed to execute an evacuation order? | |
| 1.2 | What resources will be needed by each agency with a role in a no-notice evacuation to support their response during an evacuation? How has each agency determined its needs and identified the corresponding resources? | |
| 1.2 | How has each agency determined the resources it has available in-house in relation to its identified needs? What are the gaps between need and availability within each agency? | |
| 1.2 | How have agencies worked to address their resource gaps? Have mutual aid agreements been established with neighboring jurisdictions, outside agencies, and the private sector for extra resources an agency requires in order to respond to a no-notice evacuation? | |
| 1.3 | PLANNING For information on planning issues for no-notice evacuations, refer to the following sections of this Primer:
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| 1.3 | What geographic and demographic data are needed to identify the following: potential number of evacuees; the location/distribution of evacuees; the modes of transportation available to evacuees; the likely direction of travel of evacuees; and the number of evacuees that will require transportation assistance? Does the planning process include provisions for obtaining this information? How is this information incorporated into the evacuation plan? | |
| 1.3 | What demographic data are available to identify the location of special needs populations, including those in hospitals; those in nursing homes; those in assisted care facilities; hearing-, language- or vision-impaired individuals; incarcerated residents; transient populations; and people in school and daycare. | |
| 1.3 | What demographic data are available to identify the numbers and locations of animals requiring evacuation (e.g., animals in farms, kennels, veterinary hospitals, zoos, theme parks, pet stores, and university laboratories)? | |
| 1.3 | How does the plan identify or address the specific catastrophic hazards that could cause a large-scale evacuation in your jurisdiction or region? Are scenario- specific plans appropriate for particular hazards? | |
| 1.3 | Based on the catastrophic hazards, what are the appropriate decision points/ triggers for deciding to declare an evacuation? | |
| 1.3 | Based on the identified catastrophic hazards, does the plan identify and prioritize the communities that should be evacuated by virtue of their locations in relation to hazard sources? | |
| 1.3 | Based on the identified catastrophic hazards, does the plan identify the number of people and vehicles to be evacuated? | |
| 1.3 | What are the best methods for notifying citizens who live/work in likely evacuation zones of the evacuation routes they should use and the locations of nearby shelters when an evacuation occurs? | |
| 1.3 | Based on the identified catastrophic hazards, what are the distances evacuees must travel from the hazard source to ensure their safety? | |
| 1.3 | Based on the projected evacuation characteristics for identified hazards, what is the estimated time needed to complete the evacuation? Is this factored into the plans of highway, law enforcement, and transit agencies? | |
| 1.3 | Based on the identified catastrophic hazards, what is the estimated amount of time that publicly sheltered evacuees will need support? | |
| 1.3 | What potential variations in direction and control for different types of catastrophic events that require evacuation should be identified in the evacuation plan? | |
| 1.3 | How should the evacuation plan address provisions for transporting evacuees to pick-up/assembly points? | |
| 1.3 | What provisions should the evacuation plan include for evacuating special needs populations, including coordination with the most appropriate community outreach agencies, to transport these populations? | |
| 1.3 | What provisions should the evacuation plan include for movement of required assist devices such as wheelchairs, life support systems, service animals, and communication equipment? What policies are needed with respect to bringing these items on board transit vehicles, planes, helicopters, etc.? | |
| 1.3 | How does the plan identify accommodations for the transport of luggage, etc.? What size or quantity limitations are established, and how are evacuees informed of these restrictions? | |
| 1.3 | What provisions does the evacuation plan make for training personnel in evacuation procedures and for exercising the plan? | |
| 1.4 | TRANSPORTATION For information on transportation issues for no-notice evacuations, refer to the following sections of this Primer:
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| 1.4 | How does the plan contain provisions for determining evacuation routes? What criteria will be used to select the routes and how will they be incorporated into the evacuation plan? | |
| 1.4 | What safety considerations are relevant to the evacuation routes (e.g., roads, bridges, railways, waterways, and airstrips)? What potential vulnerabilities and choke points on the routes should be considered? | |
| 1.4 | How will evacuation routes be designated, marked, and communicated to the public? | |
| 1.5 | COMMUNICATIONS For information on communication issues for no-notice evacuations, refer to the following sections of this Primer:
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| 1.5 | How does the plan document the communication methods used by each agency? How have the methods been evaluated to ensure compatibility among multiple agencies? What gaps or conflicts need to be addressed? | |
| 1.5 | How will a public education campaign be structured to inform citizens of the steps they should take in advance of a no-notice incident, to better prepare themselves in case of an evacuation? | |
| 1.5 | Which agency will establish a designated Public Information Officer to provide information to the media and public on all aspects of the evacuation? | |
| 1.5 | What information does this person/agency need to ensure that they can provide information about the evacuation order, size of the evacuation, anticipated evacuation population, additional sources of information, destination of assembly points, alternate routes/transportation modes, and available services along evacuation routes/shelters? | |
| 1.5 | What contingency plans will be used if normal means of public communications are unavailable? How will all the relevant agencies be informed of these measures? | |
| 1.5 | Does the plan identify sample/pre-scripted messages for use when communicating to the public via automated systems such as dynamic message signs and Reverse 911? | |
| 1.5 | What provisions are included in the evacuation plan for communicating with the special needs populations? What will be the most effective methods for each population group? What specialized agencies and organizations can assist in this process? | |
| 1.6 | SHELTERING/DESTINATION For information on sheltering/destination issues for no-notice evacuations, refer to the following sections of this Primer:
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| 1.6 | What are the potential shelter locations that can be used? Where are these located in relation to possible evacuation routes? How are these mapped in the evacuation plan? | |
| 1.6 | How much time will each shelter require before activation to prepare for receiving evacuees? Is this time accounted for in the plan? | |
| 1.6 | Does the plan identify shelters with the capabilities to house special needs populations? What facilities do they provide? What are the total capacities of these shelters in comparison to the anticipated population sizes? | |
| 1.6 | Have agreements been established with private facilities (hotels, universities, convention centers, etc.) to provide sufficient space to house the worst-case estimate for the number of evacuees needing shelter? What facilities should be included in this process? | |
| 1.6 | Does the plan identify which shelters will accept service animals and pets? What are the total capacities of these shelters in comparison to the anticipated animal population? | |
| 1.6 | Does the plan address shelter-in-place provisions if a full evacuation is not feasible? What provisions are identified and how will this information be shared with the public? |
READINES PHASE
This phase of operations normally occurs when information is received about the likelihood of a specific incident that will lead to an evacuation. These activities are intended to occur after an evacuation becomes imminent but before the evacuation actually begins. In the case of a no-notice or minimal-notice incident and evacuation, the readiness phase will be extremely short or functionally non-existent.
| 2.0 | Readiness (If, due to the nature of the no-notice incident, a Readiness Phase is not feasible, then the following steps will take place, if necessary, during the Activation Phase.) |
Notes |
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| 2.1 | SITUATIONAL AWARENESS For information on sheltering/destination issues for no-notice evacuations, refer to the following sections of this Primer:
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| 2.1 | How will key officials be alerted of the possible need to evacuate? What information will be provided to them, and by which agencies and staff positions? | |
| 2.1 | How will decision makers determine the size of the area to be evacuated and how many people are affected? What information sources are likely to make this possible in a rapid timeframe? | |
| 2.1 | Does the plan document the decision criteria to be monitored and evaluated before determining whether to issue an evacuation order or to request that citizens shelter in place? How will these criteria vary for different scenarios? |
ACTIVATION PHASE
This operational phase involves activating all of the agencies and staff who will execute the evacuation plan and perform essential coordination with responders and impacted jurisdictions. In a no-notice scenario, these activities may be concurrent with the initial movement of evacuees.
| 3.0 | Activation | Notes |
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| 3.1 | COMMAND AND CONTROL For information on command and control issues for no-notice evacuations, refer to the following sections of this Primer:
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| 3.1 | Who has the legal authority within the jurisdiction to declare an evacuation? Does the authority exist to mandate that residents evacuate? | |
| 3.1 | Does the plan contain pre-approved drafts of executive orders for evacuations? What language and/or provisions should these contain? | |
| 3.1 | How can evacuation orders be amended or revised as the situation develops? Who will have the authority to make amendments or revisions? | |
| 3.1 | What agencies will report to the Emergency Operations Center (EOC) in the event of an evacuation? How will they be notified to report? Has the necessary contact information been collected and is it updated on a regular basis? | |
| 3.1 | Will the Transportation Management Center (TMC) be activated in the event of an evacuation, if it is not already operational? Who will be expected to report to the TMC, and how will staff be notified? | |
| 3.1 | What protocols are needed for notifying and coordinating with neighboring jurisdictions about what evacuation routes should be used and when? | |
| 3.2 | SITUATIONAL AWARENESS For information on sheltering/destination issues for no-notice evacuations, refer to the following sections of this Primer:
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| 3.2 | Does the plan describe time phasing of evacuation execution (i.e., sequential and concurrent activities) for different levels of evacuation response? Which activities are most important and should receive priority in the event of limited staff or resources? | |
| 3.2 | How long will it take to mobilize field personnel and equipment in support of the evacuation? What level of response can realistically be expected, and will this vary depending on time of day (during normal operations hours vs. nights or weekends)? | |
| 3.3 | COMMUNICATIONS For information on communication issues for no-notice evacuations, refer to the following sections of this Primer:
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| 3.3 | Does the plan include provisions for notification of evacuation personnel? How will this occur and what are secondary notification methods that can be used if needed? | |
| 3.3 | Will contact lists for evacuation personnel be maintained and updated on a regular basis? Who has responsibility for doing this and how will updated information be distributed to all relevant agencies? | |
| 3.3 | Does the plan assign a priority level to all evacuation agencies and personnel? In what order will personnel be contacted after a no-notice incident? What are the factors that will determine the hierarchy? | |
| 3.3 | What provisions are needed to close schools and businesses in the at-risk area? How will these decisions be announced? | |
| 3.4 | SHELTERING/DESTINATION For information on sheltering/destination issues for no-notice evacuations, refer to the following sections of this Primer:
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| 3.4 | How will the agencies coordinating the evacuation notify and coordinate with host jurisdictions, non-governmental organizations, and other at risk jurisdictions to address shelter activation and operations? |
TIER 1 OPERATIONS PHASE
This phase encompasses all of the activity that supports the movement of the public from at-risk areas to locations of safety, as well as the support and sheltering of those people immediately following the evacuation. This phase typically occurs within the first six to 72 hours after an evacuation begins, although the timeframe will vary significantly depending on the circumstances of the evacuation. This phase is distinct from Tier 2 Operations, which involves the return of evacuees to their points of origin once it is safe to do so.
| 4.0 | Tier 1 Operations: Evacuating People from Harm's Way | Notes |
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| 4.1 | COMMAND AND CONTROL For information on command and control issues for no-notice evacuations, refer to the following sections of this Primer:
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| 4.1 | Who will manage the evacuation's overall operations? How will this vary depending on the location or scope of the evacuation? | |
| 4.1 | Who has the legal authority to authorize measures that will facilitate traffic movement (e.g., the suspension of toll collections, locking down drawbridges, etc.)? How will these people be notified and notify their field staffs? | |
| 4.1 | How will critical operational changes be communicated to the Emergency Operations Center (EOC) and other components of the command structure? | |
| 4.2 | RESOURCE MANAGEMENT For information on resource management issues for no-notice evacuations, refer to the following sections of this Primer:
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| 4.2 | What resources are needed to support evacuation routes? How will these be listed in the evacuation plan, and what associated information (controlling agency, geographic location, etc) will be included? | |
| 4.2 | How are transportation resources obtained, managed, and coordinated? Which agencies are best positioned to accomplish this? | |
| 4.2 | Do standby contracts exist with motor coach companies, paratransit providers, ambulance companies, railroads, air carriers, etc., to obtain operators and equipment to fill identified transportation shortfalls? | |
| 4.2 | How will resource needs be communicated to higher levels of government (local- to-State and State-to-Federal) to ensure that unmet transportation resource needs are identified and requested to support evacuations? | |
| 4.3 | SITUATIONAL AWARENESS For information on sheltering/destination issues for no-notice evacuations, refer to the following sections of this Primer:
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| 4.3 | What technology systems and protocols are available to monitor traffic conditions on the selected evacuation routes? How can transportation agencies share this information with other agencies? | |
| 4.3 | If transportation is being provided to the public, how can transportation agencies determine the numbers and locations of available vehicles? How is this information factored into deployment decisions for those vehicles? | |
| 4.3 | How will the availability of food, water, restrooms, fueling stations, and rest stations for evacuees along the evacuation routes, including those for special needs populations, be monitored over the course of the evacuation? | |
| 4.3 | How will the availability of trained personnel to support the evacuation route (food, first aid, information, etc.) be determined at the time of evacuation declaration and on a periodic basis afterward? | |
| 4.4 | TRANSPORTATION For information on transportation issues for no-notice evacuations, refer to the following sections of this Primer:
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| 4.4 | How will operational adjustments be used to maximize throughput on the evacuation routes? | |
| 4.4 | What strategies and responsibilities should be identified for maintaining evacuation route capacity, especially with regard to work zones, toll collection, vehicle incidents, etc.? | |
| 4.4 | Does the plan identify provisions to control access to evacuation routes and manage traffic flow? Which traffic management tactics are appropriate for each evacuation route? | |
| 4.4 | Does the plan identify support services that are available for those with special needs? What will these services be, how will they be made available, and what are the most appropriate locations for their deployment? | |
| 4.4 | Has contra flow been considered as a tactic? Is it a viable option for one or more routes, given the configuration and resource requirements? If contra flow is to be used, has it been tested and practiced by all agencies involved in its implementation | |
| 4.4 | How will the public be informed about contra flow plans and the start and end times for contra flow operations? | |
| 4.4 | Does the plan identify a system for communicating and coordinating contr flow operations with neighboring jurisdictions? | |
| 4.4 | How will evacuation operations of motorized transport, rail, air, water, and other modes of transportation be monitored to determine the adequacy of available resources? | |
| 4.4 | What contingency plans have been prepared to address significant changes in conditions during the course of an evacuation? Are there particular issues that are likely to arise? If so, what are they, and what responses are appropriate? | |
| 4.4 | What strategies are needed to ensure that emergency responders, transit vehicles, and other essential resources can move inbound against the predominant outbound flow? | |
| 4.4 | How will agencies restrict access (and, ideally, provide some level of security patrol) to areas that have been evacuated? Will transportation agencies contribute to this effort in any manner? | |
| 4.4 | What coordination is needed among agencies and jurisdictions to prevent over-tasking of transportation resources where neighboring jurisdictions also require support from the same resource provider? | |
| 4.5 | COMMUNICATIONS For information on communication issues for no-notice evacuations, refer to the following sections of this Primer:
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| 4.5 | What information will be provided to the public to promote general evacuation preparedness as part of a public education effort (e.g., strategies for personal preparation, recommended supplies, sources of additional information, etc.)? | |
| 4.5 | What information will be communicated to the public when the evacuation begins (e.g., affected areas, available transportation modes, destinations, etc.)? | |
| 4.5 | What information will be communicated to the public on an ongoing basis over the course of the evacuation (e.g., evacuation route status, projected travel times, shelter status, changing traffic management tactics, etc.)? | |
| 4.5 | What methods will be used to inform evacuees during each of the three activities listed above? What potential obstacles need to be considered when developing communications plans (e.g., power outages, lack of access to certain media, non-English speakers, etc.)? | |
| 4.5 | How does the plan address informing evacuees about when transportation assistance will begin and end and the frequency of departure at designated pick-up locations? | |
| 4.5 | How does the plan address informing evacuees of their destination before they board public transport? | |
| 4.5 | How does the plan address communicating security measures to the public so that they are not concerned about possessions left behind? | |
| 4.5 | How does the plan identify established Web sites, hotlines, etc., where citizens can get answers to their questions/concerns? | |
| 4.5 | How does the plan address providing the public with information about available services along evacuation routes and at shelters? | |
| 4.5 | How does the plan address contingency plans in place if normal means of communication are unavailable? | |
| 4.5 | What methods of communication will likely be most effective within the existing constraints of the no-notice incident? | |
| 4.5 | How does the plan establish times for public officials to provide updates, and does the plan address informing the public on when to expect such updates? | |
| 4.6 | SHELTERING/DESTINATION For information on sheltering/destination issues for no-notice evacuations, refer to the following sections of this Primer:
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| 4.6 | Will travel routes to the shelters, and the shelters themselves, be marked (e.g., with signs or other means) to make them easily identifiable to the public? | |
| 4.6 | Have provisions been establish for keeping shelter operators informed of the locations and capabilities of alternate shelters? | |
| 4.6 | Who needs to be notified to begin the shelter activation process? | |
| 4.6 | What system will be used to maintain current information on a shelter's status and availability? | |
| 4.6 | How will information be communicated to evacuees regarding the availability of public shelters, as well as non-public shelters such as hotels? |
