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Managing Travel for Planned Special Events: First National Conference Proceedings


OPENING SESSION — NATIONAL, STATE, AND LOCAL PERSPECTIVES

John Corbin, Wisconsin Department of Transportation, Presiding


Welcome

John Corbin
Wisconsin Department of Transportation

It is a privilege to welcome you to the 1st National Conference on Managing Traffic for Planned Special Events. On behalf of John Horsley, executive director of the American Association of State Highways and Transportation Officials (AASHTO) and the other sponsors, I would like to thank you for participating in this important conference. The other sponsors include the Federal Highway Administration (FHWA), the Transportation Research Board (TRB), the Institute of Transportation Engineers (ITE), the American Public Transportation Association (APTA), the American Public Works Association (APWA), Public Technology, Inc., the 511 Coalition, and the National Main Street Center of the National Trust for Historic Preservation.

I would also like to recognize the support of the U.S. Department of Transportation (USDOT) Intelligent Transportation Systems (ITS) Peer-to-Peer Exchange Program, which supported travel for some speakers. The corporate sponsors are also listed in the program.

There is a growing understanding of the importance of special events to local economies. Two weeks ago, I had the privilege of visiting the City of Shanghai in the People's Republic of China. Shanghai is home to some 16 million people. It is a very dense, dynamic, and active metropolitan area.

I spoke at a seminar on the World Expo, which will be held in Shanghai in 2010. Some 60 million visitors are expected to attend the World Expo over a five-month period. Daily attendance may reach 70,000 to 75,000 people or the equivalent of five months of Super Bowls.

The World Expo will be an incredible event. The theme for the Shanghai World Expo is Better Cities, Better Life. In talking with the people in Shanghai it is evident that the World Expo is more than just a global special event. It is a cornerstone for Shanghai's development strategy as a rapidly emerging world economic center.

At the other end of the spectrum are community special events. Two years ago, my family spent a relaxing weekend in Eagle River in Northern Wisconsin. The population of Eagle is probably around 2,000. In mid-October, Eagle River hosts a Cranberry Fest. The event attracts some 3,000 to 5,000 visitors over a three-day weekend. Cranberry Fest acts as a bridging event for the community between the summer vacation season and winter activities.

These two examples help illustrate that the scale of a special event is not important. What is important is the significance of a special event to a community. Cranberry Fest may be small compared to the World Expo in Shanghai, but Cranberry Fest is as significant in terms of the impact on the local economy as the World Expo.

Our challenge as a joint transportation and public safety community is to enhance the services that support special events – traffic management, traveler information, and traffic safety. We also need to recognize the relative significance of special events on a community. Special events do impact the transportation system. Special events do create expectations for visitors, residents, and businesses.

We have a significant challenge to better understand how special events impact communities, especially the transportation system and the services we can collaboratively develop and deliver to enhance the viability, the profitability, and the friendliness of special events.

This conference is intended to be a working conference. There will be presentations in both the general sessions and the concurrent breakout sessions. There will also be sessions devoted to discussing future practice needs and research issues. The breakout sessions are oriented toward eight topics. The first four topics – regional planning and coordination, event-specific operations planning, traffic management and security plans for stadiums and arenas, and ITS support and applications – will be discussed this afternoon. The other four topics – traffic management plans, transit and travel demand management (TDM), security and contingency planning, and traffic management team day-of-event activities – will be discussed tomorrow morning.

As you will note in the program, each track has four sessions – a technical exchange sessions, a panel session, a case study session, and a future practice session. The key items discussed during each of the future practice sessions will be presented at the closing session tomorrow afternoon.

Thank you again for participating in this conference. I look forward to a productive conference and sharing information and ideas with all of you.

Comments and Perspectives from the U.S. Department of Transportation

Regina McElroy
Federal Highway Administration

Good morning and welcome to the first ever conference on managing travel for planned special events. Thank you for participating in this important conference. I am delighted to be in New Orleans, which provides a great venue for this conference. I always look forward to coming here and being treated to some of the best food anywhere. I want to thank the organizing committee and our generous sponsors for helping to make this conference a major success.

FHWA shares with you the sense of importance in managing travel for planned special events, which is a largely unexplored aspect of transportation operations. We are interested and eager to hear your thoughts and ideas to help advance the state-of-the-practice and the state-of-the-art. We have much to learn from one another.

Let me start by highlighting the role of planned special events in the broader context of transportation operations at FHWA. During 2002, FHWA undertook an initiative to better understand the concerns of our customers. Three critical performance gaps were identified. These performance gaps, which are called the "Vital Few" areas, are safety, congestion mitigation, and environmental stewardship and streamlining. A plan was developed to address these issue areas. Planned special events have a substantial impact on the congestion mitigation and the safety areas.

Addressing the travel aspects of planned special events can have a significant influence on non-recurring congestion, which accounts for about 50 percent of all congestion. Planned special events also have a great impact on system reliability. While commuters, travelers, and shippers are concerned with travel time, they also want to count on how long a trip will take.

In a city like Denver, which has more than 200 local events every year, non-recurring congestion from these events can be a major problem. FHWA's first National Report on Congestion, which was published this past July, examined the non-recurring aspects of congestion. The impact of planned special events on congestion is an area that needs more discussion.

FHWA's initial effort in this program was sponsoring the development of the Managing Travel for Planned Special Events Handbook. This handbook provides an excellent resource document on planning transportation for special events. The handbook is posted on FHWA's website. It is also available on CD-ROM, which was included in your conference packet. The CD-ROM contains a set of frequently asked questions, a fact sheet, and a brochure. You will hear more about the handbook in the second session this morning.

Let me take a minute to describe how planned special events are being addressed within FHWA. Last spring, responsibility for this area was moved to the Office of Transportation Operations, which I head. The Office of Transportation Operations addresses all forms of non-recurring congestions. We have teams to address road weather management and work zone safety and mobility. We also have a team to address the broad spectrum of emergency transportation operations, including planned special events. This approach is consistent with AASHTO's perspective of planned special events as part of a continuum of activities influencing the transportation system.

At one end of the continuum are events that occur every day, such as traffic incidents. At the other end of the continuum are massive, but much less frequent events, such as hurricanes, earthquakes, and terrorist attacks. In the middle of the continuum are planned special events and other related activities.

FHWA and AASHTO have found that many of the same core principles and operating methods support managing all these types of operations. Improving the methods used to address one type of event strengthens all the others. There are significant economies of scale to be realized when these areas are viewed as an integrated program. Frankee Banerjee, the former head of the Los Angeles Department of Transportation, did a great job capturing this approach when she said, "the better prepared you are with the techniques and procedures for a planned special event means the better prepared you are for unplanned events."

In response to a suggestion from the conference planning committee, I would like to highlight FHWA's interest and involvement in planning and operating transportation for special events. Clearly, FHWA can provide national leadership in moving the program forward and in providing continuity. We can help develop and coordinate a critical mass of interest to promote research, technology transfer, and training. This coordination involves creating a forum around which the stakeholders can meet and share ideas and concerns, such as this conference and FHWA's website. Having a dedicated program and a dedicated program manager within FHWA will help carry out these actions. Laurie Radow is the FHWA program manager. Please share your ideas with Laurie about research needs and activities to help advance the state-of-the-practice.

FHWA also wants to support a robust research program related to planned special events. We need your help in better understanding the areas that need further exploration. FHWA can play a key role in facilitating the sharing of information and the exchange of ideas. The handbook, the website, and this conference, all provide excellent resources for the sharing of ideas and experiences.

There are more planned special event activities planned in the near future. The National Transportation Operations Coalition (NTOC) Talking Operation Webcast on Planned Special Events is scheduled for January 2005. As of today, some 50 people have already signed up for this event. More information on this event is available on the FHWA website.

FHWA can also play an important role in promoting regional coordination and collaboration. In planned special events, as in every other area of transportation operations, no one agency can do everything. We must work together with other agencies and modes, including the public safety community, event promoters, and many other groups. Working across jurisdictional lines is critical to the success of planned special events. FHWA has undertaken significant efforts to promote regional coordination and collaboration. Our Office of Operations has an entire team devoted to encouraging regional coordination.

Technology is another key area and provides important tools for improving the attendee's trip to and from an event, as well as minimizing the transportation impacts for non-attendees. FHWA's commitment to providing assistance and innovation with ITS and other advanced technologies dates back more than a decade. To that end, FHWA's Office of Operations has adopted the slogan "21st Century Operations Using 21st Century Technology."

Last, but not least, is security. Security issues are a major factor in how we plan and carry out planned special events, especially after the attacks of September 11. Security needs can strongly influence travel times for special events, access considerations, and other factors. FHWA is just completing a case study of the transportation elements at the Democratic National Convention in Boston this summer. The transportation strategy was developed around security needs. This event, which drew only a few thousand people, had an impact on the regional transportation system.

I am pleased to be able to share FHWA's perspective on the importance of planning and operating transportation at special events and some of the activities underway. I look forward to the discussion over the next two days and hearing your ideas for additional research needs, methods to enhance the exchange of information, and techniques for regional coordination and collaboration.

Thank you for your attention. Have a great conference.

Welcome from the Louisiana Department of Transportation and Development

Gordon Nelson
Louisiana Department of Transportation and Development

On behalf of Governor Kathleen Blanco and the Louisiana Department of Transportation and Development (DOTD) Secretary, Johnny Bradberry, it is my pleasure to welcome you to Louisiana for the 1st National Conference on Managing Travel for Planned Special Events. It is also a pleasure to welcome Regina and other FHWA staff to the conference.

Ever since the French explorer LaSalle celebrated the first Mardi Gras in Louisiana at the mouth of the Mississippi River in 1599, special events have been a big part of life in Louisiana. Today, nearly every town claims to be the world capital of something, from alligators to zydeco music, and celebrates with a fair or festival, creating challenges for transportation on any given weekend.

Sporting events are a big part of life in Louisiana too. For example, Louisiana State University's (LSU's) Tiger Stadium in Baton Rouge becomes the fifth largest city in the state on Saturday nights in the fall, and just as many people come for the tailgate parties as for the game. New Orleans' reputation as a travel destination naturally draws visitors from all over the world, and we have hosted our share of special events like the World's Fair, super bowls, final fours, golf tournaments, college bowl games, and visits from distinguished guests like Pope John Paul, II. The Vice President is visiting the city today.

The DOTD is increasingly working with city, parish, and regional officials in helping to plan and execute strategies for managing traffic and transportation at special events. We recognize the safety, economic, and public relations benefits of taking an active role in making these events a success. I would like to identify a few areas in which we are changing the way we do business, which is contributing to the success of special events in Louisiana.

I have the privilege of serving as the Assistant Secretary for the Operations Division within DOTD. This division was formed to coordinate all of the major components of DOTD's field operations under one division. Our nine district offices, state-wide traffic services, and CCCD not only perform maintenance and manage construction projects, but they serve as the liaison with local officials for special events planning and operations.

At the statewide level, our ITS unit oversees the deployment of high technology systems, which will eventually be the centerpiece of our ability to manage traffic in real-time and share information with other agencies to ensure the safe and efficient movement of traffic, whether for the everyday commute, or for special events. Our statewide traffic operations section provides support with installation and maintenance services for a variety of traffic control and ITS devices.

ITS is the key to filling the gap between increased traffic demand and our ability to add new capacity. For special events, you will usually have greater demand than capacity. ITS can help address this extra demand by providing motorist information and supporting the efforts of law enforcement and event personnel.

Louisiana has made a significant commitment by allocating $8.5 million annually to ITS and operations projects. In addition, earmarked projects from the federal ITS program have totaled over $20 million since 1998, contributing to the ongoing construction of traffic management centers (TMCs) and ITS systems in New Orleans, Baton Rouge, Lafayette, Houma, and Shreveport. Motorist assistance patrols are also operating in major metropolitan areas in the state, including two contracts worth nearly $3 million and covering 28 miles of freeway in and around New Orleans.

Managing travel includes marshalling the support of numerous agencies and organizations for effective handling of incidents and special events. Several task forces have recently been formed in the New Orleans area to deal with roadway flooding, intermodal access, homeland security for key industries, and incident management at major bottlenecks in the system. These task forces rely on cooperation among law enforcement, local and state government, emergency management, and key private industries to address traffic problems. The lessons we learn from dealing with these issues contribute to our ability to manage travel for special events as well as for day-to-day transportation challenges.

Because much of the state's population lives and works in low-lying coastal areas, the threat of hurricanes is a major concern that requires year-round planning for what I would describe as a "special event on steroids." This past September in the New Orleans area alone an estimated 600,000 people left their homes as Hurricane Ivan approached the Gulf Coast. We were ready with a contraflow plan to evacuate the New Orleans area, including portable dynamic message signs and various monitoring devices. We did not anticipate another 500,000 travelers from Mississippi, Alabama, and the Florida Panhandle, however. Over one million vehicles funneled through Baton Rouge going west to avoid the storm.

We learned from this experience that the public expects to not only to be able to get out of the way of an advancing storm, but also to have the assurance of arriving at their destinations within a reasonable period of time. The unpredictability of hurricanes makes this a tremendous challenge. We are revising our hurricane evaluation plan based on the experience this year. We will have more signs, better information on alternate routes, better coordination with state police and other agencies, and better communications among various parts of the state in the future. We continue to learn from each emergency, which is a key to serving the public.

Of course, learning is why we are here today. I hope you will take the time to learn from our experiences. At the same time, we are eager to learn from your experiences so that we can improve the quality of life for Louisiana's residents, and for the next time you visit us for a special event.

I hope you enjoy the hospitality of New Orleans and learn from the conference. Thank you.

Welcome from the City of New Orleans

Major Ray Burhart
City of New Orleans Police Department

Thank you, John. It is a pleasure to have the opportunity to participate in this opening session and to welcome you to New Orleans on behalf of the City of New Orleans and the Police Department. I have been with the force over 30 years. During this time I have seen major changes in traffic management for planned special events, including much greater emphasis in security today.

We have updated our plans for special events over the years in response to these changing conditions. For the 2001 Super Bowl, we started with the plan for the 1988 Republican National Convention, which included many security measures. We received a great deal of assistance from the Department of Homeland Security (DHS), because all major events must have a back-up plan in case there is an act of terrorism. Our department now works regularly with DHS, the Federal Bureau of Investigation (FBI), and other agencies.

The police department works closely with DOTD and other agencies on traffic management for special events. Our personnel are on the front line of implementing these plans, so it is critical that we are involved in the planning process. We assist DOTD with managing traffic, as well as dealing with security and safety elements.

We have dealt with all types of special events, including visits by the Pope in 1987 and 1988. Recently, for the UClassic, we had to block of the main streets around the stadium. This event started as a football game, but now includes a classic car show as well. In the past, we have allowed cars to park on Canal Street, but this year we had to prohibit parking due to concerns over safety and security.

Involving state and local police in planning and managing traffic for special events is critical. We continue to be more and more involved with traffic management for special events here in New Orleans. Police departments have a vital role to play in helping manage traffic.

I hope you have a successful conference and an enjoyable time here in New Orleans. Thank you.


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