Dick Jenkins – State Traffic and Safety Systems Engineer

South Carolina Department of Transportation
State Traffic and Safety Systems Engineer

1. Evacuation Plan Status: What is the status of your agency’s existing evacuation plan? For example, when was it first developed and when was it last revised? Has it ever been used in an actual emergency situation? Who has the authority to issue evacuation orders?
   
   The South Carolina Department of Transportation (SCDOT) has an Emergency Traffic Management Plan (Emergency Support Function 16), which is part of the general South Carolina Emergency Operations Plan. ESF 16 is led by the Department of Public Safety, which includes the South Carolina Highway Patrol (SCHP), in conjunction with the Department of Transportation. This plan was originally developed following Hurricane Floyd in 1999.
   
   ESF 16 includes a plan for implementing contraflow on five South Carolina highways leading away from the coast. The plan was used during the Hurricane Charley evacuation in 2004, when contraflow was implemented on US 501 out of Myrtle Beach.
   The Governor’s Office has the authority to issue mandatory/voluntary evacuation orders in coordination with, and input from, the affected counties.

2. Scope of the Plan: What is the scope of the plan with regard to geographic coverage, agency involvement, and presence of transportation elements? Are plans for evacuation transportation management separate from or a part of the general emergency plan?
   
   The plan is a statewide plan. The contraflow portion was developed with hurricane evacuations in mind, so it deals mainly with evacuating motorists away from the coast into Columbia where they can access other major freeways leading to destinations outside of South Carolina. A whole host of agencies are involved in the evacuation process including; SCDOT, DPS (highway patrol), State Law Enforcement Division, Department of Natural Resources, and the National Guard. The state utilizes a variety of ITS elements during the evacuation process including portable/variable message signs (P/VMS), highway advisory radio (HAR), CCTV cameras, motored assisted patrol, and a number of loop counter stations.
   
   The evacuation transportation management plan is part of the general emergency plan.

3. Plan Scenarios: What types of scenarios are the plans meant to address? Can they be applied to no-notice, advance-notice, and/or special event emergency evacuations? Do they have provisions for naturally occurring, accidental, and/or terrorist events?
   
   The plan divides the state’s coastal area into three distinct evacuation areas. The plan addresses the evacuation of one, two, or all three of the designated areas. The plan can be modified as necessary.

4. Capacity Needs and Availability: Have any models, computer simulations, or other calculations been performed to estimate capacity needs of the transportation system during an evacuation? How much additional capacity is expected to result from emergency measures that are to be put in place (e.g., contraflow lanes, signal pattern changes)?
   
   Yes, computer programs have been used to analyze capacity-related issues in the event of an evacuation. Most of the analysis consisted of determining the benefit of contraflow lanes and their effect on clearance times. SCDOT is in the process of upgrading key traffic signals to provide more efficient traffic signal timing and timing patterns.

5. Traffic Control Practices: What is the role of transportation agencies in traffic management and control? What traffic control practices are designated by the plan for use in an evacuation? Examples include pre-established evacuation routes, contraflow, evacuation phasing, regulation of type or number of vehicles (including transit), optimization of signal patterns and lane use, mitigation of work zone impacts, and suspension of tolls and fares.
   
   SCDOT is responsible for signage, ITS, and first-responder duties. When the decision to implement contraflow is made, SCHP is responsible for handling all the traffic control practices designated by the plan. Other traffic control practices designated by the plan for use in an evacuation include pre-established evacuation routes, contraflow, mitigation of work zone impacts, suspension of tolls and fares depending on the type of evacuation.
   
   The plan specifies the messages that are to be placed on the DMS and when to show them. It also specifies locations for PDMS.

6. Role of ITS: What intelligent transportation system (ITS) components and other related traffic management tools are used in the evacuation plan? How, when, and why are they each used as part of the evacuation plan? Do you have redundant systems? Can you operate the ITS elements from any location other than the TMC? Examples of ITS components include surveillance cameras, variable message signs (VMS), highway advisory radio (HAR), 511 or other traveler information systems (phone and/or Web), interconnected traffic signal systems, high-occupancy vehicle (HOV) lanes, ramp metering, traffic signal priority for buses, and vehicle detection systems.
   
   ITS components used in the evacuation plan include DMS, CCTV cameras, loop counter stations, HAR, and first responders. There aren’t any redundant systems, but the network of SCDOT devices is extensive enough to provide sufficient coverage in the event that a portion of the system fails.
   
   All the TMCs in South Carolina can be operated from the state traffic management center in Columbia.

7. Resources and Materials: What is the role of transportation agencies in identifying resource needs and in providing resources or materials? How do they assist in transportation service coordination?
   
   SCDOT is responsible for providing traffic control equipment such as barrels, cones, barricades, and other related equipment. Coordination of transportation services is done through the state emergency management center.

8. Evacuation Control, Coordination, and Management: Is an incident command system (ICS) used? How are transportation needs and resources, and the role of transportation agencies, integrated into the ICS? How are operations coordinated between TMCs, transit agencies, EOCs, and other agencies? Do you have plans for the re-entry of evacuees after the evacuation? How do you accommodate special needs evacuees (seniors, nursing home residents, hospital patients, inmates, people with pets, etc.)?
   
   ICS is used. Each agency is represented somewhere within the ICS. SCDOT and SCHP officials work side by side out of the TMC or EOC directing their field personnel. The SCDOT remains in direct contact with each TMC or EOC throughout the course of the evacuation.
   
   Each evacuation area has a plan for re-entry, but whether or not the plan is executed all depends on the condition of the area following the event. Re-entry is typically orchestrated by the Emergency Management Division.
   
   The accommodation of special needs evacuees is handled through an emergency support function other than ESF 16. In the case of an advance-notice evacuation, these individuals are evacuated in advance of the general population.

9. Communications Between Agencies: What are the communications protocols between agencies? Are there established procedures for disseminating information quickly and accurately to personnel?
   
   The state EMC uses the HURREVAC software to determine what information to deliver to various jurisdictions. The SCDOT and SCHP both follow an emergency operations check-off list dealing with established procedures for emergency evacuation situations.

10. Communications with Evacuees: Is the public educated in advance about the evacuation procedures? What information is provided and how is the information disseminated? Do transportation agencies have a specific role in media coordination and traveler information dissemination, either before or during an evacuation? Is information coordinated between agencies and/or centralized before being delivered to the media?  
    
    The public is educated in advance through the media, the South Carolina Web site, and some published material. Evacuation route maps and procedures are provided in newspaper inserts and on the back of state highway maps. The media is encouraged to get involved early, especially during an advance-notice evacuation. There are media personnel in the TMC during evacuations providing up-to-the-minute data regarding evacuation conditions related to weather and traffic. Any and all information is cleared through the state emergency operation center before being reported to the public.

11. Testing and Training Procedures: How often are testing/training exercises conducted? Who do these exercises involve? What drill scenarios have been used?
    
    There are approximately 20 testing/training exercises conducted each year. There is full contraflow exercise scheduled in June, which will involve a large number of agencies. The drill scenarios that have been used range from hurricane evacuations, to evacuations as a result of weapons of mass destruction.

12. Evaluation of Exercises: What aspects of the evacuation plan were implemented well in drill situations, and what aspects of the plan were found to require improvement? What elements of the plan were most useful for a successful evacuation drill? What lessons have been learned as a result of these drills?
    
    It has been identified that the state needs more routes leading away from the coast; this is a problem with an expensive solution. The public needs to recognize the fact that during evacuations, trips will more than likely take longer than they normally would. Efficient coordination between SCDOT and SCHP is particularly useful for a successful evacuation. Lessons learned include the need for clear and concise communication through the ICS and cooperation among all involved.

13. Evaluation of Evacuations: If the evacuation plan has ever been used in an actual evacuation, how successful was its implementation? To what extent was the evacuation simply monitored, rather than managed, by responding agencies? What aspects of the plan were implemented well in the actual emergency situation, and what aspects were found to require improvement? What elements of the plan were most useful for a successful evacuation?
    
    The contraflow implementation along US 501 during the Hurricane Charley evacuation worked very well with no collisions. The contraflow evacuation was conducted at night and was completed in a shorter amount of time than expected.
    
    The evacuation was both managed and monitored effectively. CCTV camera feeds and loop counter station data provided enough information for individuals in the TMC to respond in a timely manner to changes in traffic conditions.
    
    Many aspects of the plan were implemented well during the Hurricane Charley evacuation, but one thing that could have been improved (and has since been remedied) is the system for providing essentials, such as food and water, to first responders.

14. After-Action Report: What is the process for post-evacuation evaluation? Is the post-incident review a collaborative effort among all agencies that were involved?
    
    A meeting is held following an actual evacuation or evacuation drill in which all agencies involved attend.

15. Incorporation of Lessons Learned: Have the lessons learned in testing/training exercises and in real evacuations resulted in revisions to the emergency evacuation plan? Have the lessons learned resulted in changes in personnel training?
    
    Yes.
    

16. Conclusions: What specific recommendations do you have regarding management of traffic during evacuations for another agency developing or improving upon their own emergency evacuation plans?  
    
    The most important thing during the development of an emergency evacuation plan is to make sure that all agencies identified in the evacuation plan be present to provide their input. In South Carolina’s case, having the SCDOT and SCHP working essentially in tandem, from the start, has been a real benefit to the entire evacuation process along with a strong desire to get the job done without any regard to “turf.”
    
    Having the Governor’s Office at the top of the command chain and coordinating everything through the ICS has been very beneficial to South Carolina’s emergency evacuation plan.

June 26, 2006
Publication #FHWA-HOP-08-016