Routes to Effective Evacuation Planning Primer Series 

Using HigHways dUring 

EvacUation opErations for 

EvEnts witH advancE noticE 

HURRICANE

EVACUATION

ROUTE

produced in collaboration with intelligent 

Transportation Systems Joint Program Office (ITS JPO) 

Table of ConTenTs 

forEward..............................................................................................................................................................................................................................................................................5

introdUction..................................................................................................................................................................................................................................................................9

purpose............................................................................................................................................................................................................................................................................10

scope.................................................................................................................................................................................................................................................................................11

Evacuation stakeholders’ roles and responsibilities..............................................................................................................................................................................11

on-scene operational and tactical response resources ................................................................................................................................................................14

private sector and non-governmental organization support......................................................................................................................................................15

state and regional coordination resources..............................................................................................................................................................................................16

federal support capabilities and technical assistance.........................................................................................................................................................................18

EvacUation planning and prEparEdnEss procEss from tHEtransportation pErspEctivE ................................................21

Using an Evacuation Concept of Operations (CONOPS) as a Foundation ...........................................................................................................................23

Establishing agreements for supplemental support..............................................................................................................................................................................27

operations: readiness phase...............................................................................................................................................................................................................................31

operations: activation phase...............................................................................................................................................................................................................................35

operations: operations phase ...........................................................................................................................................................................................................................40

tier i operations: Evacuating people from Harm’s way .....................................................................................................................................................................40

tier ii operations: Evacuee re-entry .............................................................................................................................................................................................................54

operations: return-to-readiness phase .......................................................................................................................................................................................................57

componEnts of an EffEctivE EvacUation plan....................................................................................................................................................................61

tools for Effective Highway Evacuation operations..............................................................................................................................................................................68

communication tools ..............................................................................................................................................................................................................................................68

Traffic Control Tools .................................................................................................................................................................................................................................................71

Evacuation,weather, and assessment monitoring and prediction tools....................................................................................................................................73

future directions........................................................................................................................................................................................................................................................76

other information resources.............................................................................................................................................................................................................................77

glossary of tErms....................................................................................................................................................................................................................................................81

lisT of figures 

figure 1. request for federal assistance.................................................................................................................................................................................................................19

figure 2.areas affected by Evacuation plans .......................................................................................................................................................................................................22

figure 3. phases of Evacuation operations............................................................................................................................................................................................................29

figure 4. Evacuation communications and coordination.............................................................................................................................................................................36


UsingHigHwaysdUringEvacUationopErationsforEvEntswitHadvancEnoticE

noticE 

this document is disseminated under the sponsorship 

of the department of transportation in the interest 

of information exchange.the United states government 

assumes no liability for its contents or use thereof. 

This report does not constitute a standard, specification, 

or regulation. the United states 

government does not endorse 

products or manufacturers.trade and manufacturers’ 

names appear in this report only because they are 

considered essential to the object of the document. 
TiTle ConTenT 

overview: routes to Effective 

Evacuation planning 

This is an executive-level summary that covers the five 

evacuation primers.the summary focuses on the need 

to include transportation professionals in planning for 

evacuations; the importance of regional and corridor 

planning; the integration of transportation in mass 

care; health and medical, security, and other emergency 

support function coordination. it also highlights best 

practices that have emerged from actual evacuations and 

tools available to local and state authorities in planning 

for and executing evacuations. HURRICANE

EVACUATION

ROUTE

forEward 

Evacuations may involve hundreds or hundreds of thousands of people. regardless 

of the numbers, in every instance, the transportation network plays a key role in 

evacuating people out of harm’s way. over the past two decades, the transportation 

community’s ability to manage and operate the transportation network has improved 

considerably. recognizing the unique challenges posed by the disaster environ

ment on mobility and the safe and secure movement of people and goods, the U.s. 

Department of Transportation’s Federal Highway Administration (FHWA) seeks to 

improve evacuation planning and implementation by bringing new ways of better 

utilizing the transportation network, before and during evacuations, to the emergency 

management community,. 

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This document constitutes the first of a primer series titled “Routes to Effective 

Evacuation planning” and covers the use of the highway system during evacuation 

operations when advance planning is possible.the primer series, as a whole, captures 

and catalogues transportation management and operations advancements that can 

improve evacuation planning and operations. as experience in conducting evacuations 

increases and the concept of disaster support evolves, these primers may undergo 

adjustment based on new information, findings, lessons learned, best practices, and 

tools that local jurisdictions and states use and share. 

Evacuation operations are conducted under the authority of, and based on deci

sions by, local and state authorities. this primer is intended as a tool to aid local 

and state planners in maximizing the use of the highway network in the develop

ment and execution of evacuation plans for their communities, states, or regions.we 

encourage readers to contact FHWA’s Office of Operations to comment on this 

document, to share experiences, and to offer suggestions to improve this primer and 

its companions. 

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the Routes to Effective Evacuation Planning Primer Series will include: 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE  
this primer summarizes information in the other 

primers that touches on moving populations with special 

needs. It provides findings, lessons learned, and best 

practices that aid in developing evacuation plans for 

people with special movement requirements, including 

the elderly, those with medical conditions, and transitdependent populations. 

TiTle ConTenT 

Using Highways during 

Evacuation operations for 

Events with advance notice 

this is a basic-level guide on conducting planning 

activities for evacuations that are primarily road-based, 

when advanced notice of the need to evacuate is 

available.the guide is more detailed than the overview 

and includes transportation elements that should be 

considered by local, state, and regional planning groups. 

integrating multiple modes 

into Evacuation transportation 

planning for Events with 

advanced notice 

this guide introduces effective ways to integrate rail, air, 

and waterway transport into evacuation planning.the 

guide assumes that the populations are evacuating in 

advance of a known event. 

Using Highways during 

Evacuation operations for 

Events with no notice 

this guide covers spontaneous or no notice evacuations 

that are primarily road-based. it considers the security 

environment that comes into play during a biological, 

chemical, terrorist, or malevolent event, as well as no 

notice natural events such as earthquakes or tornadoes. 

this guide also addresses evacuation considerations 

versus shelter-in-place orders. 

integrating multiple modes 

into Evacuation transportation 

planning for Events with no 

notice 

Evacuating populations with 

special mobility requirements 

this guide introduces effective ways to integrate rail, air, 

and waterway transport into evacuation planning when 

there is no notice of the event. 

inquiries, information, suggested improvements, and requests for additional copies 

are encouraged and should be directed in writing to the U.s. department of 

Transportation, Federal Highway Administration, Office of Operations, Emergency 

transportation operations team, 400 7th street, sw,washington, dc 20590, or via 


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
level 1 overview and 

Primers 

a brief concept summary of a function, 

team, or capability. 

email to Eto@dot.gov for an electronic version of this document or other evacu

ation planning tools, please visit the Evacuation planning Knowledge management 

center at the Emergency transportation operations website: www.ops.fhwa.dot. 

gov/opssecurity and the DHS Lessons Learned Information System Content Specific 

page on mass Evacuations at www.llis.gov. 

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J. richard capka 

administrator, federal Highway administration 

december 2006 

The U.S. Department of Transportation, Federal Highway Administration 

(FHWA) has four levels of operational guidance for use by local, State, and 

Federal planners to develop evacuation plans for personnel involved in 

conducting or supporting disaster operations.This document corresponds 

to Level 1. 

level 2 standard 

operating 

Procedure (SOP) 

or operations 

manual 

a complete reference document, detailing the 

procedures for performing a single function (SOP), or 

a number of interdependent functions (Operations 

Manual). 

level 3 field operations 

Guide (FOG) or 

Handbook 

a durable pocket or desk guide, containing essential 

nuts-and-bolts information needed to perform 

specific assignments or functions. 

level 4 Job aid a checklist or other aid for job performance or job 

training. 

this document is consistent with and supports the Emergency support function 

#1/transportation doctrine developed to support the national response plan for 

implementation of the robert t. stafford disaster relief and Emergency assistance act, 

42 U.s.c. § 5121, et seq., as well as Homeland security presidential directive 8, domestic 

incident management. 

the most current copy of this document, including any change pages, is available through the 

fHwa Emergency transportation operations Evacuation planning Knowledge management 

center webpage at www.ops.fhwa.dot.gov/opssecurity. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 



UsingHigHwaysdUringEvacUationopErationsforEvEntswitHadvancEnoticE
Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 


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introdUction 

Disasters can come in infinite varieties and can happen anywhere at any time, often 

without warning. regardless of where in the spectrum the disaster falls, transportation 

is critical to evacuation operations, bringing responders to the scene, and transporting 

the ill and injured to medical facilities.To achieve an efficient emergency management 

response, transportation assets must be effectively utilized. 

A 2003 report issued by the U.S. Nuclear Regulatory Commission (NRC) provided 

selected case studies on evacuations that occurred across the country from January 

1, 1990, through June 30, 2003.the nrc observed that a large-scale evacuation 

involving 1,000 or more people occurs approximately every three weeks.the leading 

cause of evacuations was natural disasters (58 percent), with wildfires accounting for 

23 percent of these evacuations.technological disasters accounted for 36 percent of 

evacuations.these causes included hazardous material releases, train derailments, and 

traffic incidents. Malevolent acts, including terrorist attacks, accounted for six percent 

of evacuations. due to the frequency of events leading to localized evacuations, local 

and state agencies, particularly in larger metropolitan areas, have become familiar with 

evacuation planning and its related issues and areas of concern such as transporta

tion-disadvantaged and vulnerable populations, identification of decision makers, and 

the effects of an evacuation order. 

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Local and State agencies routinely handle evacuations from wildfires, floods, torna

does, hazardous material accidents, or significant transportation crashes.The 2003 

nrc study found that only 17 of the 230 evacuations over the past 121⁄2 years 

involved 100,000 people or more. fifteen of these evacuations were from hurricanes 

and two were from the 1993 and 2001 attacks on the world trade center in new 

york city.the successes of routine evacuations are often forgotten, while the images 

of suffering from these large-scale events endure for lifetimes. 

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The Federal Highway Administration (FHWA) studied several emergencies, including 

the 9/11 terrorist attacks and natural disasters such as Hurricane floyd.the following 

common themes emerged. 

■ all types of security incidents have a transportation impact. 

■ Traffic impacts occur outside of the incident scene and can become a separate 

"incident". 

■ state, local, and regional emergency management plans do not fully integrate 

transportation agencies in their emergency planning. 

■ Traffic impacts during recovery may be more significant than during response. 

PoTenTial 

evaCuaTion 

Triggers: noTiCe 

and no noTiCe 

evenTs 

Earthquake 

flood 

Hazardous material 

release 

Hurricane 

technological event 

terrorist event 

tornado 

train derailment 

tsunami 

Wildfire 
this primer provides ideas and considerations for transportation officials and 

emergency managers that are applicable across the scale of evacuation events.the 

contents are based on the findings from numerous studies following major or cata

strophic events where evacuations were ordered.The primer identifies best practices 

and lessons learned from these studies and captures proven formulas for successful 

use of the transportation network during emergency operations. It also identifies 

transportation technologies and tools available to aid evacuation planners and opera

tions staff in their attempts to make maximum use of the transportation network 

during emergencies. in addition, the primer demonstrates ways to develop better 

evacuation plans through integration of transportation professionals in the process. 

Concepts identified in the primer series are applicable when dealing with small and 

large evacuation events.The primer should be one of many aids that officials use to 

build the best evacuation strategy possible for their community. 

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10 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

PurPose 

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it is important to understand that developing a plan is only one step in an exten

sive process that leads to a successful outcome. gathering together partners and 

stakeholders is a critical part of developing the plan and is essential to considering all 

factors specific to an individual community.This planning process should aid communi

ties in bringing the right partners—including the right members of the transportation 

community—to the table.this primer emphasizes the follow-through process that 

is necessary to ensure that the plan is well coordinated and updated on a regular 

basis—recognizing that to be effective, the contents of the plan must be internal

ized and understood by the responders when an event happens. in turn, the plan 

developed for the community should serve as a foundation for training and exercising 

those who manage an evacuation and for evaluating the plan following an evacuation 

operation. only after development of an evacuation plan and through these follow up 

activities can authorities trust that when evacuation orders need to be issued, all of 

the pieces will fall into place. 

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■ transportation responders are often not: 

• linked fully with emergency managers 

• trained to work with other responders under the incident command 

System (ICS) 

• prepared with equipment and knowledge to deal with terrorist threats. 

all TyPes of seCuriTy 

inCidenTs have a 

TransPorTaTion 

imPaCT. 

the 9/11 attacks affected public transit, 

commuter rail, commercial vehicles, and 

ferries and resulted in significant road 

repairs. 

suspicious incidents near transportation 

facilities can result in closures or 

restrictions. 

Efforts to catch the "d.c. sniper" 

resulted in massive queues on 

maryland,washington, d.c., and virginia 

interstates. 

sTaTe, loCal, 

and regional 

emergenCy 

managemenT 

Plans do noT 

fully inTegraTe 

TransPorTaTion 

agenCies in 

Their emergenCy 

Planning. 

fewer than 50 percent 

include details on 

media coordination, 

traveler information, 

and asset protection. 

only 10 percent 

address transportation 

coordination with the 

Eoc. 

fewer than 50 percent 

specify evacuation 

routes. 

only 2/3 of the 

state and 1/3 of 

the municipal plans 

include transportation 

contacts. 

intelligent 

transportation 

Systems (ITS) 

applications are 

generally not discussed 

in emergency 

management plans. 
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sCoPe 

Highways and secondary roads are the most frequently used means to evacuate 

populations.as such, this guide focuses on planning and coordination associated with 

evacuating populations using highways and roads when there is advance notice of an 

event.The third and fifth primers in the series offer considerations on how to use 

other modes—air, railways, and waterways—to complement road-based evacuations 

during notice and no notice evacuations. 

evaCuaTion sTakeholders’ roles and 


resPonsibiliTies


Evacuations occur to safeguard lives and property and reduce personal suffering.a 

successful evacuation relies on human, material, financial, technological, and equipment 

resources being available at the right time, at the right place, and in the right quantity. 

success also depends upon information, communication, coordination, and knowledge 

to make the process work.the personnel involved must know what to do and when 

to do it, and must have the information, materials, and equipment available to execute 

their responsibilities.these resources may vary depending upon the role that the 

individuals play in the evacuation response. 

Effective evacuation planning requires a partnership among all stakeholders. Evacuees 

are the most important stakeholders in any evacuation operation. in addition, many 

government and non-government personnel may be involved in the planning process 

and eventual execution of an evacuation operation. Evacuation planning at the local, 

regional, and state levels should involve representatives of all departments and organi

zations that have a role in an evacuation.This includes the potential evacuees (people 

from high-risk areas) as well as non-traditional partners, such as transportation and 

transit organizations, public schools, city planners, the chamber of commerce, and 

adjacent communities who may be impacted by an evacuation. 

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the state or local emergency management agency usually leads the evacuation 

planning process. Emergency managers must include transportation agencies—particularly the right mix of subject matter experts and those with 

appropriate authorities—in the evacuation planning process as key stakeholders since most people use the highways to evacuate whether they are traveling 

in their own vehicle, or on a bus, or using the roadway to access a train or plane. 

transportation professionals can provide a wealth of information to support evacu

ation planning such as traffic counts, roadway capacity, planned highway construction, 

maps, and other such data necessary to develop a good plan and can access a wide 

variety of tools to facilitate the evacuations along roadways.Transportation officials 

should work with traditional disaster planners or operations staff, including those that: 

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Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

TraffiC imPaCTs 

during reCovery 

may be more 

signifiCanT Than 

during resPonse. 

in new york CiTy 

following /11: 

it took 3.5 hours to 

travel a common 

22-mile commuter 

route in the first week 

following 9/11. 

on september 26, 

there was a four -

mile queue to enter 

manhattan. 

there were 40 

subway service 

changes in three days. 

ferry ridership 

increased by 91 

percent. 

TraffiC imPaCTs 

oCCur ouTside 

of The inCidenT 

sCene and Can 

beCome a seParaTe 

“inCidenT.” 

these take additional 

scarce resources to 

manage. 

they can have a 

major effect in the 

region and can create 

additional hazards. 

11 
gather key players. collect and 

analyze information. recommend 

actions. order and provide 

resources for emergency operations. 

CaTegory desCriPTion 

loCaTion of 

oPeraTion 

role during evaCuaTion 

oPeraTions 

on-scene operational and Tactical response resources 

Emergency 

managers & 

Esf lead and 

supports, 

including 

transportation 

(ESF # 1) 

local and state 

professional staff 

Emergency 

operations 

centers 

(EOCs) 

transportation

Officials 

local 

departments of 

transportation 

(DOTs) 

DOT offices; 

Traffic 

management 

Center/Traffic 

operations 

Center (TMCs/ 

TOCs); Local 

Eoc 

Collect analyze and report traffic 

information. provide evacuation 

route plans. Conduct traffic incident 

management with first responders 

and local law enforcement. order 

and provide traffic operations 

resources to support evacuation 

and other movement coordination 

operations. provide information to 

the Public Information Officer (PIO) 

at the Eoc or Joint information 

Center (JIC). 

decision 

makers 

mayors, county 

commissioners 

etc. and their 

staffs; governors 

for state 

assistance 

city Hall; 

county; 

commission 

chambers; 

Eoc 

collect information and expert 

recommendations about whether 

to order an evacuation, what type, 

when to do it, and how large the 

area is to be evacuated. order 

evacuations. request assistance from 

neighbors, and state and federal 

governments through mutual-aid 

agreements or other prescribed 

methods. 

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TransPorTaTion 

organizaTions 

ThaT may be 

needed To suPPorT 

evaCuaTions 

departments of 

transportation 

transit agencies 

Traffic Engineers 

Highway incident 

response teams 

public works 

Public School Officials 

(for providing buses 

for moving evacuees, 

mass care and feeding) 

Highway contractors 

metropolitan planning 

organizations 

towing industry 

trucking industry 

make decisions 

generate, collect, and/or analyze information 

design strategic, operational, and contingency plans 

manage operations and resources for the response 

Execute emergency (including evacuation) orders and response operations. 

table 1 summarizes some of the key stakeholders in evacuation operations and their 

potential roles in evacuation planning. 

Table 1. Key stakeholders in evacuation operations 

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12 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 13 

first 

responders 

police, fire, 

rescue, 

Emergency 

medical, 

Evacuation 

operations 

Team (EOT) 

incident 

command post; 

on-scene 

first line of response. may 

coordinate volunteers. provide 

knowledge of local area. provide 

on-ground damage information & 

identification of needed resources. 

provide security for homes/ 

businesses once evacuees leave. 

volunteer 

organizations 

(including 

federal 

capabilities that 

serve as local 

assets during 

disasters [*]) 

american 

red cross, 

salvation army, 

local charities, 

americorps,* 

citizens corps* 

shelters; 

comfort 

stations; mobile 

feeding units; 

on-scene 

provide relief services. provide 

support services to those evacuating 

along highways, including comfort 

stations. open and staff shelters. 

private sector 

partners 

Highway 

contractors, 

trucking 

industry, towing 

industry, gasoline

suppliers, traffic 

engineers, 

medical facilities, 

Hotel/motel 

associations 

various 

locations 

including Eocs 

and business 

locations; 

on-scene 

provide personnel, technical 

assistance, equipment and supplies. 

provide information on available 

transportation units, gas, food, or 

other commodities they can provide. 

provide private health and medical 

care facilities. can assess and detail 

facility capabilities and whether 

they need additional assistance in 

evacuating patients. 

state operational and support response resources 

transportation 

Officials 

state dots state Eoc; 

state dot 

offices; 

tmcs/tocs 

Collect analyze and report traffic 

information. provide evacuation 

route plans. Conduct traffic incident 

management with first responders 

and local law enforcement. order 

and provide traffic operations 

resources to support evacuation 

and other movement coordination 

operations. provide information 

to the Public Information Officer 

(PIO) at the EOC or JIC. Provide 

information to fHwa and other 

impacted state dots as necessary. 

first 

responder 

support 

national guard on-scene Supplements first responders. 

supply transportation services, 

people, food, temporary sheltering, 

communications, medical services, 

clerical services, security, etc. 

volunteer 

organizations 

animal shelters 

Humane society 

shelters; 

on-scene 

coordinate the transportation and 

sheltering of animals 

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evaCuaTion Planning 

ParTners 

Emergency management agency 

law Enforcement 

Emergency medical services 

fire department 

transportation 

public works 

Traffic Engineering 

transit agency 

Health department 

Human service agencies 

agriculture department 

Environmental department 

national guard 

department of defense 

evaCuaTion 

Planning ParTners 

(ConT’d) 

public school districts 

city planning 

authorities 

people from vulnerable 

areas 

red cross 

salvation army 

citizen corps 

power companies 

Humane society/ 

american society to 

prevent cruelty to 

animals 

chamber of 

commerce 

Hotel/motel 

association 
1
 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

federal support response resources 

volunteer 

support 

national 

voluntary 

organizations 

active in 

disasters 

(NVOAD) 

National office 

in washington, 

dc 

provide referral services to 

volunteer organizations around 

the country and can provide 

support. a consortium of volunteer 

organizations that can support relief 

efforts depending on the type of 

disaster. 

national first 

response 

teams 

Urban search 

and rescue 

teams; dmats; 

debris removal 

on-scene 

in affected 

jurisdiction 

provides support to local 

organizations 

national 

support 

capabilities 

Evacuation 

liaison team 

at fEma 

Atlanta office 

provides technical advice on 

organizing, conducting, and managing

evacuations 

on-sCene oPeraTional and TaCTiCal resPonse 

resourCes 

when an evacuation order is issued, the hub of information gathering and decision 

making related to an evacuation occurs at an Emergency Operations Center (EOC). 

The Department of Transportation (DOT)—at the local, State, or National levels— 

should send a representative to the appropriate Eoc. for transportation agencies 

with Intelligent Transportation Systems (ITS), their Traffic Management Center (TMC) 

or Traffic Operations Center (TOC) may serve as a transportation-specific operations 

center and provide valuable services in aiding evacuation operations. in some cases, 

the tmc and the Eoc are co-located; while, in most others, they are separate. linking 

them electronically enables the Eoc staff to view the same information as the tmc 

staff. 

Benefits of Including Transportation Professionals as Support to the Operations and 

Tactical Responders 

in addition to participating at the Eoc, the transportation disciplines should have 

representation on the Evacuation Operations Team (EOT).The EOT comprises 

personnel from a variety of disciplines, including (but not limited to) Traffic Incident 

Management (TIM) teams, public safety officers (police, fire, rescue, and emergency 

medical services), road maintenance workers, debris clearance personnel, utility repre

sentatives, and mass care specialists. 

to support emergency operations activities, transportation organizations can supply 

information, personnel, equipment, and supplies on the scene to aid in an evacuation. 
the transportation personnel should work with the incident commander and the 

Eot to provide the necessary resources to support the evacuation.transportation 

agencies have their own radio communications systems that can be used to request 

additional resources and coordinate among the various teams they may have onscene.They can provide critical data for the evacuation including traffic counts, and 

information on congestion status, incidents requiring emergency response, contraflow 

operations, the availability of transportation human resources, its equipment, the 

status of work zones on the roadway, and transit resources for evacuees including 

those with special needs. 

Transportation agencies can provide experts in planning, transit, traffic engineering, 

highway construction, and maintenance. for example, maintenance personnel or 

contractors can provide supplies for rest areas or assist with debris removal, and 

construction staff or contractors can assist with securing work zones or repairing 

roadway damage.Traffic engineering staff can assist with ITS resources, timing traffic 

signals, and providing traffic control devices such as cones, barriers, and signs, to assist 

in directing traffic during the evacuation. 

PrivaTe seCTor and non-governmenTal 


organizaTion suPPorT


private sector groups also have a stake in evacuation plans, decisions, or operations, 

including transportation, food, health and medical (e.g., nursing homes, children’s 

hospitals, and institutions), private schools, and other organizations. Moreover, the 

local government may support its evacuation operations with assistance from locally 

based private sector resources and private-volunteer agencies. 

Benefits of Including Transportation-Related Private Sector and Private Volunteer 


Organizations 


private sector transportation resources may supply vehicles, transportation main

tenance crews, and assets to aid motorists during an evacuation. often, the private 

sector wants to be involved, and locally based companies often have out-of-area 

reach-back to their parent companies for additional support. one example is how 

the utility industry often deploys utility crews from around the country to disasterstricken areas to restore power lines. similarly, state and local dots and public 

works departments generally have access to a number of private sector compa

nies that can provide evacuation support services through existing or emergency 

contracts including: 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 1

1
 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

good PraCTiCe 

Know/use regional 

and Metropolitan 

Planning 

organizations 

(MPos) and 

Mutual-aid 

an example of a regional 

planning agency is 

Houston transtar which 

is a partnership between 

texas dot, metropolitan 

transit authority of 

Harris county, the city 

of Houston, and Harris 

county that coordinates 

regional transportation 

and emergency 

management in the 

Houston metropolitan 

area.transtar also works 

cooperatively with its 

local mpo and other 

local organizations. 

similar organizations 

operate in other regions 

of the country and they 

can play a major role in 

evacuation planning and 

execution. 

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Highway contractors – can secure roadway work zones to maximize safety and 

roadway capacity for evacuees; and provide personnel, heavy equipment, and 

materials through contracts to support an evacuation. 

Bus companies – can provide over-the-road coaches and drivers to evacuate 

people including those with special needs or to transport responders 

Traffic control contractors – Can provide personnel and traffic control devices 

such as portable Variable Message Signs (VMS), arrow boards, traffic signs, traffic 

signals, and light towers to support an evacuation 

Towing industry – can provide personnel and tow trucks to remove disabled 

vehicles from an evacuation route 

Trucking industry – can provide trucks and drivers to deliver supplies and 

equipment to support an evacuation 

Service patrols – can provide motorist assistance including vehicle repairs in the 

field, fuel, and traffic control. 

sTaTe and regional CoordinaTion resourCes 

local jurisdictions often establish mutual-aid agreements with surrounding jurisdictions 

or may participate in regional planning organizations as a means to tackle disaster 

planning and operations.These should be the first source of aid and coordination for 

any evacuation operation that exhausts local resources.when these resources are not 

enough, the local jurisdiction may reach out to its state for personnel, materiel, assets, 

technical assistance, and funding. requests should be channeled from the local Eoc 

to the state Eoc,1

 consistent with state protocols, usually following the national 

Response Plan (NRP) guidelines or the National Incident Management System 

(NIMS).This aid may also take the form of direct State support of the evacuation 

operation when an event overwhelms or exhausts local resources.the state may be 

able to coordinate evacuation plans, information, and needs with potentially impacted 

areas or shelters established outside of a jurisdictional boundary, as well as, coordinate 

with surrounding states that may be impacted by the evacuation.the state may be 

able to supplement personnel for the Eot.as part of evacuation plan development, 

local jurisdictions should identify any existing regional working groups, organizations, 

 states maintain an Eoc at some level of alert 24 hours a day, 365 days a year. state Eocs 

serve as the State Warning Point as part of the National Warning System (NAWAS).The NAWAS is a 

national, interconnected telephone system that can be used to warn areas of impending emergencies, 

which is one of many means by which local jurisdictions may learn of events with notice that may require 

execution of evacuation plans. 
•

•

•

•

•

•

•

•

•

•

•

or geographic designations in which their jurisdiction is a part. one resource that 

may be available to State officials is the Emergency Management Assistance Compact 

(EMAC) managed by the National Emergency Management Association (NEMA). 

Through EMAC, State officials may request specific additional assistance for personnel 

and equipment, including assistance from state dots and all 50 participating states. 

these requests are made at the state level to ensure that priorities are set to address 

the overall situation in the state, without localities competing with each other for 

resources. local planners should work with their counterparts at the state level to 

understand the process for making requests to Emac and others for assistance. in 

2006, nEma published the EMAC 2005 Hurricane Season Response After-Action Report 

which contains a wealth of information about Emac, how it works, and recommen

dations for improving it.A link to that report is included in the “Other Information 

resources” section of this primer. 

Benefits of Including Transportation-Related State and Regional Coordinating Entities 

as noted above, local jurisdictions may be able to call upon state and regional trans

portation organizations to assist in evacuation planning and execution. one potential 

source of assistance is the area’s Metropolitan Planning Organization (MPO), which 

provides comprehensive transportation planning for the region. federal regulations 

require each urbanized area with a population over 50,000 to establish an mpo. in 

cooperation with the state and other transportation providers, the mpo is respon

sible for carrying out the metropolitan transportation planning requirements.the 

mpos have a wealth of information that is useful for evacuation planning including 

demographic data, roadway capacity data, planned roadway improvements, traffic 

count data, and transportation modeling capabilities to predict traffic congestion. 

some mpos may also have responsibility to support the dot, local government, and/ 

or emergency management agency in evacuation modeling. in addition, some mpos 

are also operational organizations and may oversee or operate the area’s tmc, coor

dinate transit services, and have other resources to assist in evacuations. 

many areas also have regional planning councils, councils of government, local 

Emergency planning committees, and other such organizations.these organizations 

can generally provide transportation and other demographic data on a regional basis 

that may be useful to local emergency planners. in the mid atlantic region, a multistate volunteer organization has formed to focus on emergency readiness, response, 

and recovery.the group, the mid atlantic all Hazards forum, includes a variety of 

public and private organizations that must work together in an emergency. 

One of the benefits of EMAC is that it provides assistance between member States 

and requests for assistance can be made in advance of an event such as a hurri

cane.the agreement allows for the sharing of personnel, resources, and equipment, 

including transportation resources, across state lines in times of disaster. the deployUsing HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

emaC 

TransPorTaTion 

resourCes used 

for hurriCanes 

kaTrina and riTa 

portable vms 

Traffic signal heads 

cones 

Barricades 

tire changing 

equipment 

Traffic control devices 

Helicopters 

Buses 

Bridge recovery team 

construction 

equipment 

Highway/ 

transportation 

personnel (121 

people) 

1

ment of resources through Emac is done in coordination with nrp resources.when 

a governor declares a state of emergency, that state contacts the Emac national 

coordinating group.they have a team that works with the state to determine its 

needs and the cost and availability of those resources.the state then completes 

requisitions for assistance and negotiates the cost, and the resources are sent to the 

state.the state later reimburses the cost to the responding states. Emac can provide 

a variety of support including to Eocs. for transportation-related resources, Emac 

can provide personnel, equipment and materials to perform damage assessments, 

debris removal, roadway repair, hazard mitigation, aviation support, communications, 

construction, and even mobile kitchens that can be used to support field personnel. 

federal suPPorT CaPabiliTies and TeChniCal 

assisTanCe 

a fundamental premise of the nrp is that most incidents are handled at the lowest 

jurisdictional level. local authorities must assess the situation and request assistance 

as required at the state level. after the situation is assessed, the governor may 

declare a state of Emergency and request assistance from the federal government, 

through the U.S. Department of Homeland Security (DHS).A joint assessment is 

made to determine whether sufficient damage has occurred to justify a request for a 

presidential declaration of a major disaster. However, higher risk areas should coordi

nate their projected need for federal resources in advance through state authorities. 

One comprehensive source for information on Federal assistance noted in the “Other 

information resources” section of this primer is www.disasterhelp.gov. 

Evacuation operations often occur prior to an event, which would require special 

arrangements to obtain federal resources in advance of a presidential declaration. 

there are ways for the federal government to establish stand-by contracts based 

on jurisdiction-projected need or to declare an emergency prior to an event, which 

would open avenues for potential reimbursement and the immediate pre-event 

staging and delivery of resources. for example, as a part of preparations prior to the 

start of the 2006 hurricane season, the U.s. dot worked with the state of louisiana, 

the city of new orleans, and the dHs to establish stand-by contracts for buses to aid 

in evacuating new orleans, if needed.the local jurisdiction should work to identify 

potential needs for evacuation support as a part of the planning process to ensure 

rapid support from both state and federal sources of aid.2 Figure 1 illustrates the flow 

of requests for assistance. 

2 appendix 5 of the national response plan provides an overview of initial federal involve

ment under the stafford act.the process to request federal assistance is laid out in the robert t. stafford 

Disaster Relief and Emergency Assistance Act (Stafford Act). 

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1
 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

FEDERAL RESOURCES FLOW TO 

STATE AND LOCAL REQUESTORS 

STATE/FEDERAL PRELIMINARY 

DAMAGE ASSESSMENT 

GOVERNOR OF STATE MAKES 

REQUEST TO DHS/FEMA EMERGENCY 

PREPAREDNESS AND RESPONSE 

(FEMA EPR) OFFICE (REQUEST MAY 

BE IN ADVANCE OF EVENT) 

LOCAL AGENCY REQUESTS 

ASSISTANCE FROM STATE 

figure 1. request for federal assistance 

Benefits of Including Transportation-Related Federal Support Efforts 

the federal government has access to many transportation resources through either 

standing or emergency contracts. for Hurricane Katrina, the federal government was 

able to contract for buses, airplanes, amtraK passenger service, and boats, all of 

which were valuable transportation assets. in addition, the government can arrange 

for the use of trucks to deliver needed supplies. 

The U.S. DOT agencies have significant expertise in all modes of transportation and 

can be an important technical resource to local and state agencies.they can assist 

prior to an evacuation as well as with recovering vital transportation services after an 

incident. 

The National-level Evacuation Liaison Team (ELT) is another transportation Federal 

support capability designed specifically to aid State and local authorities in managing 

evacuation operations.the fHwa participates as a member of the Elt which also 

includes members from the Federal Emergency Management Agency (FEMA), and 

the U.s. army corps of Engineers.the Elt serves as the focal point for coordination 

and communication among states during an evacuation.the federal government will 

automatically activate the Elt for category 3 or higher hurricanes that may neces

sitate multi-state evacuations.when activated, Elt activities are coordinated from the 

fEma regional operations center in atlanta.this organization is a tool for obtaining 

information and advice on the severity and direction of a storm and actions taken by 

neighboring jurisdictions. 

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1

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0

UsingHigHwaysdUringEvacUationopErationsforEvEntswitHadvancEnoticE
EvacUation planning and 

prEparEdnEss procEss from tHE 

transportation pErspEctivE 

preparedness for evacuations occurs continuously and involves many partner depart

ments and agencies at the local, regional, and state levels.the demographics of an 

area may change over time so it is important to review and adjust evacuation plans 

and support tools (such as call-down lists) at least annually. It is also important to 

review and adjust plans based on training and exercises as well as actual evacuations. 

since each evacuation or training event may have unique circumstances, capturing 

lessons learned and best practices and applying them to improve evacuation plans is 

critical. 

Evacuation preparedness involves a range of deliberate, critical tasks and activities 

necessary to build, sustain, and improve the operational capability to execute and 

support evacuation operations. it involves efforts at all levels of government, as well 

as between government and private sector and nongovernmental organizations, to 

identify threats, determine vulnerabilities, and identify required resources.3 Essential 

resources should be identified during the planning phase. Projected needs should 

be coordinated in advance, including the necessary process to acquire these assets 

when needed.activities during this phase include inventorying both private and public 

sector resources that may aid the evacuation process.training and exercise activi

ties are essential during this phase to ensure that Eot and Eoc staff know their 

roles and responsibilities by rote when activated.The “Components of an Effective 

Evacuation plan” section of this primer provides a list of questions that should be 

considered when developing an evacuation plan. 

Developing the Evacuation Plan 

the most important activity to ensure successful evacuations is development of an 

evacuation plan that complements a jurisdiction’s emergency response plans.while 

the end product might be a document that publishes the jurisdiction’s intended plan 

of action, the process and the maintenance of the plan are just as important. Key plan 

preparation activities include: 

■

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■

■

■

 Adapted from the National Response Plan definition. P. 71. 

convening the appropriate stakeholders to develop a plan 

identifying tools that may need to be acquired or developed to execute the plan 

Building capacity and training/exercising the Eot 

acquiring or pre-identifying key equipment and supplies 

Establishing agreements for supplemental support (e.g., mutual-aid agreements) 

coordinating plans with regional, corridor, and state stakeholders 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 21 

good PraCTiCe 

establish a multidisciplinary 

evacuation 

operations Team 

(eoT) to be called up 

to organize and execute 

tactical evacuation 

operations.this team 

will include police, 

fire and emergency 

medical personnel, 

highway workers, public 

information specialists, 

emergency managers, 

mass care specialists, 

political decision 

makers, and others as 

appropriate.the Eot 

will collect and maintain 

24/7-contact information, 

and periodically train 

and exercise the team. 

team members may be 

from public, private, or 

volunteer sectors. 
STATE

REGIONAL

LOCAL

NATIONAL

■ Establishing a process to continually review and update plan contents and 

changes with stakeholders, and adjust preparedness activities as appropriate 

■ developing the evacuation plan. 

Each evacuation plan should be locally relevant meeting the specific needs of a 

community.Yet it should be flexible enough to fit within the network of plans of 

neighboring jurisdictions, and states, and at the national level.this may include coor

dinating highway corridor-specific plans that transcend political jurisdictions and come 

under a multi-organizational group. such groups include the i-95 corridor coalition 

along the east coast and the metropolitan council of governments in the national 

capital region, both of which played a vital role in the evacuations on september 11, 

2001. 

the use of the highway system should be one of the constant factors in any evacu

ation plan and may be key to any successful evacuation operation. most evacuations 

occur within a jurisdiction and do not require external support. However, as illus

trated in figure 2, while the decision to evacuate usually originates at the local level, it 

often has a ripple effect that extends many miles beyond a town’s borders. a decision 

to evacuate one jurisdiction will place additional burdens on the resources of adjacent 

jurisdictions. Emergency preparedness planning in these areas must be as robust and 

synchronized as those in the area evacuated. By its very nature, the highway system is 

a shared resource of multiple cities, states, and regions of the country. 

figure 2.areas affected by Evacuation plans 

22 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 23 

using an evaCuaTion ConCePT of oPeraTions 

(ConoPs) as a foundaTion 

In planning for evacuation operations, emergency managers, transportation officials, 

and other stakeholders should use a common conops as an organizational frame

work that clarifies stakeholder roles, coordination processes, and common actions 

or considerations in various operational phases.the evacuation conops should 

complement the one used by the emergency management community to plan for 

multi-functional responses to disasters and emergencies.the use of the conops 

aids evacuation planners in developing plans and coordinating all evacuation plan

ning and operations with multiple stakeholders at various levels, including emergency 

management, public safety, and other readiness and response operations personnel. 

In its simplest form, a CONOPS is a “who, what, where, when, how, and why” 

document. 

■

■

■

■

■

■

who will perform the task? 

what task will be performed? 

where will the task be performed? 

when will the task be performed? 

How will the task be performed? 

why does the task need to be performed? 

many different players from diverse organizations—depending upon authorities, 

assets, and knowledge—will represent the transportation function in designing the 

conops. in short, the conops should lay the foundation for any complex plan

ning process, including the development of the response and evacuation plans. 

to develop a conops for evacuation planning, the highest political authority over 

a local government, region, or state should designate an agency to lead the plan

ning effort and convene a panel of the heads of other local or statewide agencies 

including transportation to develop a strategic plan. participants should identify all 

activities that must occur and the resources needed by each agency to accomplish 

their assigned tasks.a clear statement of the responsibilities and authority of the roles 

of each primary and supporting agency should be identified.Throughout this process, 

information collection, analysis, coordination, and dissemination are vital as strategic 

and contingency evacuation planning occurs. 

it is impossible to prescribe a standard process to develop an evacuation conops 

since no two jurisdictions have the same political structure. for instance, in one state 

(e.g., in Maryland), the DOT may have licensing agencies and transit authorities within 
2
 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

Evacuation route planning 

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•

•

•

•

good PraCTiCe 

roadway and cross

over condition 

-

perform an annual 

joint field review 

(transportation and law 

enforcement personnel) 

of all evacuation routes 

to check: 

condition of 

pavement markings 

Evacuation route and 

shelter signs posted 

Condition of flip-down 

signs 

condition of ramp 

gates 

condition of drainage 

facilities 

status of roadway 

construction 

Condition of traffic 

signals 

condition of its 

including vms and 

Har 

condition of rest 

areas 

its organization. in another state these agencies may be housed outside of the dot 

(e.g., in Florida). A State DOT may have access to its own debris removal equip

ment, but more importantly, may have contractual agreements with private entities to 

perform such work.the statewide dot will likely have vms under its control, but also 

may have contractual agreements with private companies that can supply additional 

VMS for rural routes.The identification and availability of buses for mass transit and 

the identification of transportation-dependent individuals all may lie within multiple 

agencies. individual agency operations and how they should accomplish assigned 

tasks, the day-to-day specificity natural to any discipline, will often be contained within 

annexes to the conops. 

The Importance of Continuity of Operations (COOP) and Continuity of Government (COG) 

Planning to Evacuations 

in addition to the conops, each state should maintain and update its contingency 

plans, particularly its coop and cog, to ensure that essential services continue to 

be provided following an event.a catastrophic event may cause considerable damage 

to a government’s infrastructure and disrupt operations, including transportation 

services. redundant systems must exist to allow any operation to continue should 

the designated Eoc or tmc be uninhabitable.the transfer of authority, leadership, 

resources, and information should be seamless and planned for well in advance of 

a major event. a jurisdiction’s and agency’s laws and regulations should include an 

order of succession. By making all stakeholders aware of these orders of succession, 

leadership can continue unimpeded during the event. it is critical that the transporta

tion community be involved in coop and cog planning, since a failure to plan for 

continuing transportation and traffic management services following a catastrophic 

event would impact a jurisdiction’s ability to perform evacuation operations. 

Although specific evacuation routes cannot be finalized until the geographic scope of 

a natural or man-made disaster is determined, the use of evacuation routes can be 

planned in advance and analyzed for continued viability during the operation. planners 

should identify routes that have a high probability and feasibility of use considering 

their survivability, ease of restoration, functional service, and strategic location. 

planners should also analyze potential bottlenecks, barriers, scheduled work zones, 

and other potential problems in advance to determine an evacuation route. control 

points can be planned, ensuring sufficient staging capacity for emergency services, 

crossovers and turnarounds for contraflow, and ingress to affected areas. Planners 

must determine highway capacity—or the number of vehicles that can pass a certain 

point on the highway in a specified period of time under prevailing road and traffic 

conditions. planners must also consider transit vehicles evacuating those with special 
Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 2


needs. planners must use accurate census data combined with vehicle ownership 

data to provide an approximation of the number of road users during the evacua

tion. However, planners cannot simply determine the number of people and vehicles 

to be moved, divide by the highway capacity, and determine the amount of time 

needed to evacuate an area. planners must produce spatial and temporal distribution 

models, plan for traffic incidents, and take into account human nature. For example, 

many people may be away from their homes and need to commute against traffic to 

reach home and gather their families and belongings before they begin to evacuate. 

conversely, ”shadow evacuations” occur when people decide to evacuate prior to 

notification or choose to evacuate even when they are not in harm’s way. Rather 

than providing a benefit to planners by significantly reducing the number of people 

that need to be moved at the time of notification, this group may reduce the antici

pated carrying capacity of the highway system in advance of the notification. 

Disaster preparedness is an exercise in behavior modification, for the public as well 

as governmental agencies. people evacuating tend to use the routes most familiar 

to them, and have a preconceived notion of how long it takes to negotiate the 

route. many transportation agencies have conducted travel-time reliability studies 

for existing infrastructure. In other words, people know,“on average,” how long it 

should take to drive a given route at a given time. planners should take into account 

human nature when dispelling these preconceived notions during a time of crisis and 

communicating changes frequently and by a variety of means available to the trav

eler in all stages of their movements. alternate routing and associated travel times 

must be well communicated continually during preparedness exercises. Early road 

planners built systems to provide easy access to a centralized hub. many provided 

a beltway around the city as a bypass route and connector to other major arterials. 

the purpose of an evacuation is to move people away from the incident or potential 

“danger” zone. However, planners may find that an initial movement towards the 

incident will serve as a means to access major arterials, and may be the most effective 

way to move large volumes of traffic. Modifying behavior may be the most difficult 

task facing emergency managers. 

in July 2006, the Harvard school of public Health conducted a High-risk area 

Hurricane survey of 2,029 adults in alabama, florida, georgia, louisiana, mississippi, 

north carolina, south carolina, and texas.the transportation-related questions and 

results are shown in the text box. 

there were a number of reasons cited in the Harvard study of why people would 

not evacuate, and some were transportation related including people who do not 

have a car or know anyone who could give them a ride (12 percent), evacuating 

could be dangerous (36 percent), and roads too crowded to leave (54 percent). 

high-risk area 

hurriCane survey 

resulTs 

if you had to 

evacuate because of 

a hurricane: 

to where would you 

evacuate? 

• friends/family – 56% 

• Hotel/motel – 18% 

• shelter – 12% 

• sleep in car/outdoors 

– 1% 

• don’t know – 11% 

How far would you go? 

• > 10 miles – 6% 

• 10-40 miles – 11% 

• 50-100 miles – 15% 

• 100-200 miles – 21% 

• 200+ miles – 36% 

• don’t know – 11% 

How would you get 

where you were going? 

• your car – 91% 

• friend’s car – 3% 

• public transit – 4% 

• walk,bike – 1% 

• don’t know – 2% 
coordinating plans and needs with regional, corridor, and state partners 

•

•

•

•

•

samPle Planning 

aCTiviTies 

developing and 

maintaining evacuation 

plans 

identifying those 

who will be involved 

in the evacuation 

and developing 24-7 

contact lists and 

protocols 

coordinating in 

advance, acquiring 

tools to make rapid 

and appropriate 

evacuation decisions 

Equipping, training, 

and preparing those 

who will execute 

evacuations 

developing prescripted public service 

announcements and 

informing the media 

on how to use them 

2
 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

ITS, described in detail in the “ITS Equipment to Aid Evacuation” section of this primer, 

should be used during planning efforts to identify vulnerabilities in the transportation 

system in order to adopt strategies as countermeasures to these vulnerabilities. its 

includes the set of technologies that are used on a day-to-day basis to collect and 

disseminate transportation-related information between vehicles, the roadway, the 

environment, transportation system managers, and system users. during the course 

of the event, its can be used to monitor the progress of the evacuation and as a tool 

to direct resources to problem areas.To achieve the maximum benefit from ITS tools, 

its must be extended throughout the evacuation route to the point of sheltering. 

the use of modeling and analysis tools can provide planners with a means to apply 

different disaster-related scenarios to an event, thereby providing the opportunity to 

develop alternative means to evacuate. although there are a number of modeling 

and analysis tools available, none are robust enough at this time to provide real time 

information during an event. Modeling tools are discussed in the “Evacuation,Weather, 

and assessment monitoring and prediction tools” section of this primer. 

once the evacuation plan is developed, it must be communicated to the public so 

that they know what to do when an evacuation order is given.they must know what 

to take with them when they evacuate, what highway routes to use for evacuation, 

the locations of nearby shelters, and alternate means of evacuating if they have no 

vehicle or have special transportation needs. it is not enough to just distribute the 

information; agencies need to ensure the information is well understood by the public. 

the city of new york published a new coastal storm plan for hurricanes in august 

of 2006.The plan and a Geographic Information System (GIS) evacuation zone map 

were distributed to all residents in the designated hurricane evacuation zones, which 

are based on the likelihood of storm surge impact.The brochure “Ready New York: 

Hurricanes and new york city” explains the plan and is posted in 11 languages on the 

New York City Office of Emergency Management website and is also available in an 

audio format. However, despite the city’s widespread outreach, many residents were 

unable to identify the evacuation zone they lived in or how to get to the evacuation 

center closest to their home according to a survey of 178 residents, both English 

and spanish speakers, in the evacuation zones, conducted by the mount sinai school 

of medicine. many of the individuals surveyed have limited education and this must 

be taken into account when preparing and distributing information for the public on 

evacuations. 

local evacuation plans must be coordinated with neighboring jurisdictions since they 

may be impacted by any decision to evacuate an area. Jurisdictions need to mutually 

understand each other’s plans and role and resource expectations to work together 

smoothly.their assistance may be needed to execute the evacuation. local plans also 
Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 2


should be shared with the state, as local government may need to request state 

resources to assist with an evacuation. similarly, state plans should be coordinated 

with neighboring states, as evacuees may travel to another state to seek shelter or 

mutual-aid may be requested from another state. 

in addition to the planning conducted by existing organizations and networks, some 

jurisdictions may consider establishing and activating Eots to organize and execute 

tactical evacuation operations.whether a stand-alone organization, or a subset of 

personnel from an existing working group, an Eot should work with transportation 

officials and emergency managers throughout the planning process on activities such 

as: 

■

■

■

■

■

Developing Standard Operating Procedures (SOPs) for communication among 

Eot members and the Eoc during an evacuation event.this may include how 

the tmc should work with the Eoc if located separately. 

working with government and private sector representatives to pre-identify 

staging areas, points of departure for mass transit, evacuation routes, and 

reception areas. 

reviewing existing evacuation and emergency management plans across agencies 

to identify gaps and opportunities for the Eot to assist. 

participating in regular evacuation-related training and exercise activities. 

Adapting ITS and other transportation tools to handle specific evacuation 

operational functions. 

■ identifying additional assets and partners to provide support during evacuations, 

and establishing mutual-aid agreements as needed. 

esTablishing agreemenTs for suPPlemenTal 


suPPorT


supplemental support can take many forms, but the most well-known, local-to-local 

agreement is the mutual-aid agreement. Every jurisdiction should engage in a mutualaid agreement with each jurisdiction from which they expect to receive or provide 

support during an incident. Jurisdictions might sign mutual-aid agreements with 

surrounding jurisdictions, as well as relevant private sector and non-governmental 

organizations. additionally, states should look into creating interstate compacts that 

encompass all local jurisdictions.4 

 nims. march 1, 2004. pages 39-40. 
•

•

•

•

•

•

2 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

iCs resourCes: 

“ICS 100 Training,” 

“ICS 200 Training,” 

“Introduction 

to nims,” and 

“Introduction to the 

nrp” are available at: 

http://training.fema. 

gov/Emiweb 

“Simplified Guide 

to the incident 

command system 

for transportation 

Professionals” (FHWA/ 

DOT) is available at: 

www.ops.fhwa.dot. 

gov/opssecurity/index. 

htm 

mutual-aid agreements should contain the following provisions: 

Definition of key terms used in the agreement 

roles and responsibilities of individuals and contact information 

procedures for requesting and providing assistance 

procedures, authorities, and rules for payment, reimbursement, and allocation of 

costs 

Notification procedures 

protocols for interoperable communications 

relationships with other agreements among jurisdictions 

workers’ compensation 

treatment of liability and immunity 

Recognition of qualifications and certifications 

sharing agreements, as required. 

although traditional mutual-aid agreements have not covered transportation support, 

jurisdictions can look to their neighbors to provide facilities such as alternate tmcs, 

its equipment, highway technical assistance, support for motorist assistance or tim 

programs, and transit vehicles including those for people with special needs. 

the state may supplement intra-state mutual-aid from a nationwide system whereby 

states are provided needed support on a state-to-state basis through Emac. all 

states participate in this compact, which evolved from the southern governor’s 

compact established as a corrective action following the Hurricane andrew response 

operations in 1992. advance coordination of potential evacuation support needs may 

be accomplished through Emac via the state Emergency management organization. 

training and Exercising 

Effective response teams, particularly those that include members that do not 

work together on a day-to-day basis, must build an effective training and exercise 

program. most individuals on an Eot should be familiar with the ics, including its 

use as an organizational tool and its standardized terminology. However, others on 

the Eot—including transportation professionals, volunteer organizations, and private 

sector team members—may not be accustomed to the ics tool. since many on the 

Eot come from a variety of different organizations, they need a common framework 

and opportunities to train and/or exercise together. as a part of the orientation of all 

■

■

■

■

■

■

■

■

■

■

■

training: a process to learn a new skill 

or job.training can be accomplished 

through classroom instruction, 

coursework, independent study, on-thejob training, and exercises. 

Exercise: practice situations to improve

skills and procedures. 

tabletop Exercise: an exercise 

conducted in a seminar format 

that allows senior leaders and staff 

to examine and discuss issues in a 

controlled environment. 

full-scale Exercise: an exercise that fully 

implements a plan or process. 

Training definiTionS
Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 29

Eot members, a lesson on ics should be given as part of the preparedness phase, 

and should be integrated into evacuation planning. there are a variety of resources 

that Eot members may access to develop this knowledge as noted in the text box. 

Evacuation planners that conduct training and exercises as an established and regular 

part of the process, find that these events enable members of the EOT to learn to 

work together in a non-emergency environment, developing the knowledge and trust 

they need in one another to effectively operate as a team during an emergency. 

Evacuation Operations from the Transportation Perspective 

This primer presents actions to take and transportation-specific considerations 

related to Evacuation planning and preparedness as well as each Evacuation 

operational phase. due to the many activities occurring and the number of players 

involved in a well-orchestrated response, the activities associated with some phases 

may overlap depending on the situation of a particular evacuation. 

Evacuation Operations Phases, shown in Figure 3, may be defined as follows:

Readiness: this phase of the evacuation operation occurs when information 

becomes available that an event may occur where evacuation—and the scope of 

the evacuation—must be considered. this could come days or hours before an 

event. initial information alerts may include the issuance of a Hurricane watch by 

the National Hurricane Center, or information about a wildfire that starts or moves 

closer to a population center.

OPERATIONS

CYCLE

OPERATIONS

ACTIVATION

READINESS

RETURN-TO-READINESS

Sample OperatiOnS 

activitieS

• communicate 

evacuation order 

• communicate 

decision with 

regional and State 

stakeholders 

including sheltering 

organizations

• implement the 

evacuation plan 

• provide 

transportation for 

those with special 

needs

• coordinate efforts 

among multidisciplinary staff

• monitor real time 

traffic information 

and adjust evacuation 

operations as the 

environment changes

• Deactivate personnel 

at the conclusion of 

tier i Operation, 

reactivate as needed 

for tier ii Operations

• Computer-Assisted Exercise: Exercises 

designed to incorporate simulations and 

to train leaders without the manpower 

requirements of a full-scale exercise. 

• Hot Wash: A facilitated discussion 

immediately after a training event or 

exercise in which training audience 

members discuss issues and lessons 

learned and begin the process of 

incorporating change. 

T
•

•

•

•

•

•

30 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

Activation: this phase of the evacuation operation involves activating those who 

should execute the plan and perform essential coordination with responders and 

impacted jurisdictions. Officials should declare a voluntary, recommended, or mandatory evacuation and specify the geographic areas to be evacuated. Officials should 

also determine whether the evacuation will be performed in phases. at this point, the 

public should receive initial information that an evacuation may be ordered. 

Operations:this phase of the evacuation operation consists of the implementation 

of all actions required to safely remove individuals from harm’s way, provide shelter 

and comfort, and return these same people to their point of origin. during this phase, 

government officials should issue evacuation orders and direct the EOT to execute 

the evacuation plan and provide support to those being evacuated. generally, this 

phase encompasses two distinct types of operations with different objectives and at 

different times: 

tier i Evacuation operation - to safely evacuate people from a potentially unsafe 

environment.The first tier involves ensuring the orderly movement of evacuees 

to designated reception sites beyond harm’s way, and usually occurs within 6 to 

72 hours. 

tier ii Evacuation operation - to support the return of evacuees to their point 

of origination once it is determined to be safe to re-enter the community.the 

second tier operations may be conducted over days or even months in the case 

of a mass evacuation for a catastrophic event. Public officials—including utilities, 

health and medical, and public safety officials—should analyze information and 

determine when communities may be permitted to return to their points of 

origin. 

all stakeholders follow the evacuation plan at this point. Evacuation personnel 

work together on the ground with public safety, emergency management, and other 

responders, and coordinate with their liaison at the local Eoc for information, 

support in handling unanticipated problems, and contingency plan implementation. 

Return-to-Readiness: at the conclusion of the operation, evacuation personnel 

undertake actions to return personnel and systems that executed the evacuation to 

a point of readiness to conduct future evacuations. one key activity involves gathering 

planning partners and stakeholders to prepare an After-Action Report (AAR) to 

identify problems and successes that occurred during evacuation operations. planners 

incorporate these lessons learned and best practices into the evacuation plan and 

share them with colleagues. plans, agreements, and training are adjusted as appropriate based on these reviews. 

■

■

sTakeholders 

as informaTion 

Providers 

weather services and organizations 

monitoring threats (e.g., NOAA/NWS 

and local weather sources; Usgs 

planners with demographic and gis 

data (e.g., U.S. Bureau of Census; 

convention/visitors Bureaus; flood 

Zone Maps) 

Risk analysts (e.g., flood insurers, those 

with plume model capabilities [local 

fire department or Environmental 

department], schools, colleges, and 

universities) 

local health departments 

Human service agencies 

transit agencies 
•

•

•

•

•

•

•

•

•

•

•

•

•

DOT (U.S., State, local) 

Traffic incident management entities 

forest/park services for wildlife/urban 

interface issues and visitor data 

Hazardous materials responders 

public school system 

Hotel/motel association 

the following information discusses the general actions at each operational phase, as 

well as transportation-specific activities, considerations, and capabilities that may be 

used to contribute to successful evacuation operations. 

oPeraTions: readiness Phase 

during the readiness phase, information becomes available that an incident has 

occurred or is anticipated that may require an evacuation.that information must 

be relayed as quickly as possible to the decision makers so that they can determine 

whether an evacuation should be ordered.

stakeholders critically involved in the readiness phase may be viewed as: 

■

■

■

Decision Makers - Usually only one political authority with the power to make 

the ultimate decision to evacuate one or more areas

Decision influencers - factions with a political, social, or economic stake in 

decisions to evacuate

information Providers -those that have information that may ultimately be 

used to make a decision whether to evacuate.

It is important that these partners are identified and know their roles—and limitations—in the evacuation decision-making process.

As the event moves from theoretical planning and preparedness to this first opera

tional phase, authorities rely on information—fast, reliable, and in usable form—for 

making decisions and designing operational and tactical response plans specific 

to the event. information plays an especially critical role in evacuation readiness 

efforts.Transportation officials act as information providers to the decision makers.

Information should be collected from official sources to ensure reliability. It should 

be readily available, interpreted, and continually collected during all phases of the 

evacuation operation.All event-specific plans should be updated as new information 

becomes available.the agencies listed in the box may be tapped for demographic 

data; meteorological data; geographic data; and transportation, transit, and traffic data, 

all of which can support the development of a good evacuation plan and evacuation 

decision-making. modeling tools – including decision support tools – may be used 

to obtain information that can assist planners in providing the impact areas of some 

events such as hurricanes or airborne hazardous materials releases. some of these 

tools are described in the “Evacuation,Weather, and Assessment Monitoring and 

prediction tools” section of this primer. 

samPle readiness 

aCTiviTies 

alert key personnel, 

resources, and 

reception sites by Eoc 

or other watch staff 

monitoring the event 

review plan and 

checklists 

Begin pre -staging or 

deploying evacuation 

operations personnel 

and assets (e.g., fueling 

vehicles including buses 

or preparingvms signs 

and 511 messages) 

collect and analyze 

real time information 

including traffic data 

confer with 

stakeholders 

provide initial 

information to the 

public 

Put pre -identified, multi -

disciplinary Eot on call 

reliable baseline data should have been collected and continually updated as a part 

of a jurisdiction’s preparedness efforts.at this point in the operation, baseline data is 

essential to a good evacuation strategy. for example, decision makers and evacuation 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 31 

sTakeholders 

as informaTion 

Providers (CONT.)
operations personnel need to know how many people must be evacuated from a 

specific geographic area and the highway routes available for their evacuation in order 

to calculate the time needed to execute an evacuation. planners should consider that 

some people will decide to evacuate their families using multiple vehicles to prevent 

damage to vehicles if left at home.this behavior was observed during the evacuation 

for Hurricane rita in 2005, and the additional vehicles contributed to the roadway 

congestion.therefore, planners should consider not only the number of people to be 

evacuated, but also the number of vehicles. 

since many disaster-vulnerable areas are also tourist locations, elements of non-resi

dent populations need to be factored into evacuation plans during the readiness 

phase. public school management should also be involved so that if a disaster strikes 

when schools are open, the plan includes ensuring the safety of students as well as the 

school’s role as local shelter, feeding site, and supplier of school buses for evacuation. 

as emergency managers monitor emerging situations, certain points may be reached 

that should trigger the movement of decision makers and emergency team members 

to the Eoc to facilitate coordination, information management, and decision making. 

at this juncture, the decision makers should receive information, options, and recom

mendations based on the best-available information, and emergency managers should 

develop an evacuation tactical plan. in developing this evacuation strategy, organiza

tions may use a step process and a “countdown” timeline to decide if and when they 

will evacuate an area based on collected information and what steps should be taken 

at critical times.this process also may be used for the recovery period after an event 

has occurred. at each key timeline point, the evacuation plan should address steps to 

take and agency assignments by task. 

many factors affect a decision to evacuate an area. foremost is the potential danger 

to lives and property. Officials need to know about the severity of the potential 

danger so they can make informed decisions about whether or not to evacuate an 

area. Of course, the officials must have the legal authority to order and enforce an 

evacuation.While, ultimately, a single official is responsible for and has the authority 

to order an evacuation, that person seeks information and recommendations from 

many sources depending on the nature of the event causing the potential evacu

ation. Emergency planners, first responders, transportation technical professionals, 

and others contribute information and recommendations about their readiness to 

support an evacuation.among the recommendations provided to decision makers 

should be the type of evacuation the situations warrants. Evacuations are classified as 

one of three types: ■ Voluntary -targeted toward people most vulnerable to the threat including 

offshore workers, persons on coastal or barrier islands and other flood-prone 

areas, and other special populations having particularly long lead-time evacuation 

32 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
✔

evaCuaTion deCision 

ConsideraTions 

informaTion sourCe 

Probability of impact (depending on 

nature of event) 

National Weather Service (NWS), DHS, 

local fire officials, etc. depending on 

nature of event 

Estimated effects – geographic area to be 

evacuated 

impact models 

timing of event Eoc 

lead time for an evacuation Evacuation models and dots 

Timing of notifications/orders Eoc 

weather conditions nws 

Economic impacts to government and 

private sector 

impact models and chamber of 

commerce 

condition and availability of evacuation 

routes 

dots 

requirements.this also includes people in harm’s way from other events. no 

special traffic control or transportation measures are usually taken during 

voluntary evacuations, and people may remain if they so choose. 

■

■

recommended evacuations - issued when an event has a high probability of 

causing a threat to people located in at-risk areas. again, decisions of whether or 

not to leave are left to individuals, and some special transportation arrangements 

are made. 

Mandatory evacuations – issued when authorities put maximum emphasis 

on encouraging evacuation and limiting ingress to potentially impacted areas.this 

type also occurs when evacuation transportation plans go into effect. mandatory 

evacuations are difficult to enforce as many people resist being ordered by 

government officials to leave their homes and property. 

ordering an evacuation is one of the hardest decisions that anyone can make.the 

decision could put people in harm’s way from other events, cause emotional and 

physical distress to those at risk, cost the community considerable money, and open 

the evacuees to looters and other security issues.as a result, decision makers, deci

sion influencers, and information providers collectively must deem the decision to 

evacuate outweighs other risks.to weigh this balance, the decision process should 

address the following items, at a minimum, to determine whether to evacuate, what 

areas to evacuate, when to evacuate, conditions of evacuation, resources needed to 

evacuate people, and how to evacuate. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 33 
✔

evaCuaTion deCision 

ConsideraTions 

informaTion sourCe 

Evacuation decision by neighboring 

jurisdiction 

Eoc 

number of tourists to evacuate convention/visitors Bureau 

number of transit dependent to 

evacuate 

transit agency and Human service 

agencies 

number and type of people with special 

needs to evacuate 

transit agency and Human service 

agencies 

populations potentially impacted impact models 

availability and safety of personnel to 

support an evacuation 

Human resource departments 

vulnerable transportation infrastructure 

or potential transportation targets 

identified 

dots 

selection of staging areas that may 

include transportation facilities 

dots 

ability to stage transportation assets 

for movement of those who cannot 

self-evacuate 

dots,transit agencies and Human 

service agencies 

Ability to coordinate traffic control 

devices 

dots 

plan for shut down of highway work 

zones, non-essential commercial vehicle 

traffic including oversize loads, hazardous 

materials, etc. 

dots 

process to suspend toll collections on 

public and private toll roads 

dots and toll road operators 

ability of tmcs/tocs to move into 

evacuation readiness status 

dots 

Ability to implement contraflow if 

required 

dots and Highway patrol 

How to evacuate while enabling incoming 

response personnel, equipment, and 

supplies 

dots and Highway patrol 

transportation resources available to 

conduct evacuation and move evacuees, 

including availability of assets through 

State (e.g., National Guard), mutual-aid, or 

regional agreements 

dots, Highway patrol, and Eoc 

3
 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
✔

evaCuaTion deCision 

ConsideraTions 

informaTion sourCe 

Number of first responders in impact 

zone and whether they can move their 

families out of affected areas before 

reporting for duty 

Human resource departments 

location of shelters/reception sites Eoc 

ability of planned shelters/reception sites 

to receive evacuees

Eoc

potential for reimbursement of 

evacuation costs 

state Ema and fEma 

•

•

•

•

•

•

•

•

oPeraTions:aCTivaTion Phase 

in the activation phase, decisions should translate into action. personnel should 

be mobilized and the field infrastructure should be established, with evacuation 

personnel making contact with and linking into the incident command infrastructure. 

assets, including human resources, should report to staging areas to await the order 

to begin the evacuation operation. Equipment should be taken to pre-determined 

locations, including vms, food and water for the evacuees, gasoline tankers, mechanic 

crews, and others that may be staged along the pre-designated evacuation route. 

operations centers should become fully functional.all of this should be accomplished 

to prepare for the imminent evacuation operation. 

once the decision to evacuate has been made, emphasis should switch to activities 

conducted and monitored at incident command posts.this stage involves: 

■

■

■

■

■

activating Eots and support organizations 

Establishing field capabilities (including establishing a unified command structure 

at the incident command post or TMC, pre-staging equipment and personnel) 

coordinating plans and needs with regional, corridor, and state partners 

activating reception plans, sites, and support capabilities with volunteer or public 

organizations 

activating evacuee return resources if the duration of the evacuation is expected 

to be short. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

samPle aCTivaTion 

aCTiviTies 

activating Eot 

Identifying specifics 

of evacuation plans, 

including: 

what areas will be 

activated? 

what type of order 

will be issued? 

will evacuation be 

phased? 

when public will be 

notified? 

what its resources 

can be used? 

communicating 

decision with public 

safety officials, EOT, 

and sheltering 

organizations 

3

EOT PUBLIC 

SAFETY 

PERSONNEL 

EVACUATE PEOPLE 

AWAY FROM 

AFFECTED AREA 

EOT LIAISON AT THE 

MASS CARE 

FACILITIES 

EOT ALONG 

HIGHWAYS TO HELP 

EVACUATION 

OPERATIONS 

EOT LIAISON AT THE 

EMERGENCY 

OPERATIONS CENTER 

UNIFIED 

COMMAND 

TMC EOT BUS STAGING 

AREA 

•

•

•

•

•

•

•

•

•

•

•

•

•

•

•

•

•

3 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

figure 4 depicts the complexity of the communications necessary during an evacua

tion.the incident commander retains the overall responsibility for the evacuation, but 

other EOT personnel in the EOC and in the field need to coordinate and communi

cate to ensure the safety and efficiency of the evacuation process. 

-

-

figure 4. Evacuation communications and coordination 

activating EvacUation pErsonnEl 

as a part of the planning process, jurisdictions should establish an activation team that 

can coordinate evacuation orders and operations. local emergency managers should 

develop and maintain a 24-hour contact list for these personnel at the Eocs. as local 

emergency managers monitor an impending situation and provide information to the 

decision makers, they also must keep the evacuation team informed of the status of 

the impending event and decisions being made related to potential evacuation orders 

– before they are communicated with the public.when a decision is made to activate 

personnel in advance of an event, the necessary transportation personnel must be 

alerted and given time to communicate whether they can assume their station (e.g., 

if their family is in the path of the storm or will be among the evacuees).When evacu

ation team members, and their families, are the subjects of an evacuation order, it may 

be necessary to rely upon mutual-aid agreements to provide additional team support 

from unaffected areas. 

-

technical specialist may come from the 

following fields of expertise: 

meteorology 

Environmental impact 

resource cost 

flood control 

water use 

Explosives 

structural engineering 

Firefighting 

Health care 

pharmaceutical 

noTe: remember The 

TeChniCal sPeCialisTs! 

meThods of 

alerTing and 

aCTivaTing 

evaCuaTion 

Personnel 

telephone tree or 

call down list to notify 

all agency personnel 

(contains phone 

numbers for office, 

home, pagers, cell, 

and fax, and e-mail 

address) 

rEvErsE 911® call 

system to notify police, 

firefighters, etc. 

Blackberry, two-way 

nextel phones and 

mobile text messages 

E-mail alerts 

Notifications through 

parent organizations’ 

call centers 

agency radio systems 

to reach those who 

may be in the field 

media announcements 

to report to Eoc or 

other assigned work 

location 

redundancy gets 

results! 
Establishing field capabilities 

•

•

•

•

•

•

•

•

•

•

•

veterinarian Biological, chemical, or radiological 

decontamination agriculture 

toxic substances law enforcement 

radiation legal 

intelligence industrial hygiene 

infectious disease transportation 

there are a variety of ways to notify evacuation personnel, from the basic phone 

trees to more technology-based methods.the key is to build redundancy into the 

system so that multiple communications methods are used to ensure rapid results. 

activated personnel need information to respond appropriately.an agency’s sops 

should provide basic information. However, depending on the nature of the inci

dent, personnel may need more detailed, specific information (e.g., to report to an 

alternate work location, to bring clothing if they are to be away from home for an 

extended period of time, and the supplies and equipment they need to bring, as well 

as other information to ensure they are properly prepared). 

some scenarios require deployment of technical specialists, personnel with special

ized skills or specific certifications or degrees who are called upon in situations where 

required capabilities are beyond those of standard evacuation personnel. specialists 

may serve anywhere within the ics—the board rooms of the political executives; the 

local, state or regional Eoc; the incident command post; the tmcs—and typically 

perform tasks similar to those of their daily jobs. 

after activation, the experts should report to various locations.those who collect 

and analyze information or develop contingency, strategic, or operational plans should 

report to the local Eoc.those who develop incident action plans or execute the 

evacuation should report to a variety of field sites.While EOT members usually are 

not responsible for establishing the field operations infrastructure, they should be 

aware of what it is, who sets it up and manages it, and the role it plays in a consoli

dated response operation. 

first responders use the ics as a standardized, on-scene, emergency management 

tool.the system provides an organizational structure that integrates many different 

disciplines and activities (including the evacuation operation) depending upon the 

complexity and demands of single or multiple incidents, without being hindered 

by jurisdictional boundaries. ics involves the combination of facilities, equipment, 

personnel, procedures, and communications that should be applied to an incident. 

within the ics structure, local incident commanders may fold state and federal 

resources into the response.transportation personnel should operate within the ics 

structure during an evacuation. 

Some incidents, particularly those with very complex operations, call for a Unified 

command, which is established in response to a multi-jurisdictional incident – when 

more than one agency has incident jurisdiction or when an incident crosses multiple 

jurisdictions. Unified Command (UC) “allows agencies with different legal, geographic, 

and functional authorities and responsibilities to work together effectively without 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 3 

noTe: remember The 

TeChniCal sPeCialisTs! 

(CONT.)
•

•

•

•

•

•

•

•

•

•

•

3 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

Ensuring information reaches the target group 

Enforcing the evacuation 

identifying evacuation route plans, including the routes that should be designated 

for ingress traffic 

pre-staging equipment and personnel along the evacuation routes 

identifying the location of shelters including shelters for those with special needs, 

pets, etc 

designating pick-up locations for the transportation-dependent 

coordinating procedures with surrounding jurisdictions. 

-

teams to notify residents and ensure their evacuation 

contracting teams to secure conveyances for transit-dependent or special needs 

populations; animal handling teams 

road crews with vms and maintenance equipment 

vehicle maintenance teams with gasoline tankers and vehicle maintenance tools 

and parts staged along the major egress route 

Emergency medical staff and first aid, Basic Life Support and Advanced Life 

support equipment staged along the evacuation routes or attached to those 

working with special needs populations 

debris removal crews to rapidly clear blocked highways 

5 nims. march 1, 2004. page 12. 

emergenCy managers 

suPPorT The 

evaCuaTion by: 

collecting, analyzing, and disseminating 

information on the evacuation 

operations 

coordinating Eot incident action plans 

and needs with other stakeholders, 

including neighboring jurisdictions, the 

state, other transportation planners, 

and mass care providers 

integrating Eot plans into other 

response plans and activities 

communicating the evacuation order to 

the public 

supporting the evacuation process 

affecting individual agency authority, responsibility or accountability.”5 Evacuation team 

members will likely encounter a Unified Command structure when response opera

tions and the evacuation cross jurisdictional lines and are executed in anticipation 

of or response to a major or catastrophic event that impacts thousands. A Unified 

command structure for an Eot may include a leader from the law enforcement, 

transportation, mass care, fire and rescue, and emergency medical services areas. 

-

Once the field organization is established (either at an incident command post or at 

a local EOC), the EOT Leader should review tactical plans with the assembled team 

including: 

after development of the tactical plan, the Eot should make resource allocation deci

sions.these may include: 

■

■

■

■

■

■

■

■

■

■

■

■

■

good PraCTiCe 

advantages of Using 

Unified Command 

develops a single set 

of objectives for the 

entire incident 

Uses a collective 

approach to develop 

strategies to achieve 

incident objectives 

improves inter -

jurisdictional and inter -

agency information 

flow and coordination 

Ensures that all 

responsible agencies 

understand joint 

priorities and 

restrictions 

won’t compromise or 

neglect any agency’s 

legal authority 

optimizes combined 

agency efforts under a 

single incident action 

plan 
Developing and Coordinating Evacuation and Other Incident Action Plans (IAPs) 

■

■

Sanitation crews with mobile comfort stations (e.g., portable toilets, wash area) 

volunteer agency personnel with food, water, other life support items, and 

information on shelter availability to aid evacuees as well as those supporting the 

evacuation 

personnel deployed to various staging areas receive information on the date, time, 

and place of departure; mode of transportation to the incident; estimated date 

and time of arrival; reporting location; anticipated assignment; anticipated duration 

of deployment; resource order number; incident number; and applicable cost and 

funding codes. once at the incident, personnel must check in, starting the on-scene 

in-processing. Notification that the resource has arrived is looped back through the 

system. 

Developing Event-Specific Evacuation Incident Action Plans and Coordinating Plans and 

Needs with Partners 

it is critical to coordinate local evacuation iaps with the designated incident 

commander in the field and the EOC.They, in turn should coordinate the evacuation 

iaps with neighboring jurisdictions and the state since they may be impacted by any 

decision to evacuate an area.the state should share consolidated evacuation plans 

with neighboring states as evacuees may travel to other states to seek shelter, or 

mutual-aid may be requested from another state. the neighboring jurisdictions need 

to understand local plans and their expected role and resources in supporting them. 

their assistance may also be necessary to execute the evacuation. 

the evacuation iap should factor in information on evacuee reception plans, shel

ters, and the location of other support capabilities, such as motorist assistance teams 

and comfort stations.these should be shared with the incident commander, the 

Eoc and volunteer or other organizations supporting the evacuees.the Eot is not 

responsible for establishing and operating shelters, but must know where they are 

located and where evacuees are being accepted.the Eot should obtain updated 

information frequently and communicate this information to the evacuees throughout 

the evacuation process. 

Evacuees must be able to access shelter locations that serve basic human needs such 

as food, water, sanitation, and lodging.the Eot should obtain information on those 

shelters established to address those with medical needs and/or pets as well as those 

with limited English proficiency. Most EOC operations have a person responsible for 

shelter data.the Eot can access shelter information through that source or a masscare liaison at the incident command post. field personnel conducting the evacuation 

must have up-to-date shelter information to direct evacuees to the correct locations. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 3

•

•

•

•

•

•

•

•

•

samPle oPeraTions 

aCTiviTies 

activation of required 

personnel 

activation of Eoc and 

tmc 

Notification of 

evacuation to regional 

and state stakeholders 

including sheltering 

organizations 

deployment of 

personnel, equipment, 

and supplies to 

designated locations to 

support evacuation 

communication of 

evacuation order to 

the public and the 

media and posting on 

agency websites 

acquisition and 

deployment of transit 

resources to aid in 

evacuation 

acquisition and 

deployment of other 

transport modes if 

needed 

accommodation of 

special needs evacuees 

accommodation of 

pets on transport 

vehicles and in shelters 

0


organizations establishing shelters often establish a disaster welfare inquiry system. 

many locations use a 211 or 311 telephone number for such shelter information to 

prevent overburdening the 911 system and ensure its availablity for true emergencies. 

oPeraTions: oPeraTions Phase 

once a decision to execute an evacuation has been made and the Eot has been 

given orders to proceed, public officials must turn to the emergency management 

infrastructure to provide support to the Eot. decision makers should continue to 

monitor the environment and the evacuation operations throughout and adjust 

orders based on up-to-date information. 

The Operations phase involves two separate components.The first is aiding evacuees 

in their exodus of an area.the second is helping to facilitate their re-entry, allowing 

them to return to their homes and work as quickly as possible.the elapsed time 

between when the evacuation is ordered and when re-entry is authorized may be 

hours, days, weeks or even months depending upon the damage caused by the event 

and the degree of impacts. 

Tier i oPeraTions: evaCuaTing PeoPle from harm’s 

way 

this phase involves a concentrated effort in a very short timeframe and may require 

a coordinated team effort with many human and material resources applied to the 

operation.The EOT should engage public safety officials in going door-to-door to 

ensure residents know of an evacuation order and are complying, serving in a tim 

capacity and aiding along highways, providing information to residents under the 

evacuation order, coordinating with stakeholders, and relieving congestion. 

once an evacuation order is issued, it must be communicated to those who need 

to evacuate. in addition, if the evacuation may impact neighboring jurisdictions, Eoc 

personnel must maintain close coordination with a variety of groups that may be 

impacted by the flow of people from an area. Finally, the personnel, equipment, and 

supplies to execute the evacuation must be in place. 

accurate information pertaining to evacuation orders should be disseminated in 

a clear fashion and timely manner to avoid “shadow” or unnecessary evacuations. 

shadow evacuations occur when people near threatened areas evacuate their homes 

and businesses even though they are not necessarily in danger. people who hear 

mandatory evacuation orders are the most likely to evacuate while recommended 

evacuation orders are met with less urgency. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
communicating with the public: communication to the public about the evacuation 

must be planned to ensure provision of complete and accurate information. most 

government agencies have a Public Information Officer (PIO) to assist with such 

planning and communications.the public needs information such as the reason for 

the evacuation, the time the evacuation should begin, the type of evacuation (e.g., 

voluntary, recommended, or mandatory), the expected duration of the evacuation, 

the highway evacuation routes to be used, how to receive assistance with transpor

tation if they cannot self-evacuate, and the location of shelter.the information must 

be communicated through as many methods as are available and repeated often. 

•

•

•

•

•

•

•

•

Using the highway system as a primary means of evacuation requires the condi

tion of the roadways be known before, during, and after the evacuation. Evacuation 

routes should be given priority over other road repair projects. if an evacuation will 

be ordered, transportation agencies should take steps to maximize the roadway 

system’s capacity before the evacuation begins such as suspending toll collection, 

suspending highway construction and opening as many lanes under construction 

that can be done safely, securing roadway construction sites, clearing roadways of 

debris, ensuring drainage systems are open and flowing freely, ensuring rest areas are 

operating and are fully stocked, and other such pre-evacuation activities. many state 

dots use private contractors for highway maintenance and construction activi

ties.those contracts should contain requirements for the contractor to respond to 

dot requests to assist with pre-evacuation activities.these activities may be eligible 

for fHwa or fEma reimbursement, so adequate contract provisions and accurate 

recordkeeping is critical. during the evacuation, it is important to monitor the condi

tions of the roadway (e.g., for debris or flooding) so that evacuees can be prepared 

and re-routed if necessary. in addition, incidents such as vehicle crashes may occur and 

will need to be responded to and cleared quickly to avoid hindering the evacuation. 

coordinating information 

in this phase, information collection, analysis, coordination, and dissemination is critical. 

real time data is a must. information should be shared with a variety of target audiences, including: 

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the public 

the media, national and state congressional representatives, local political 

authorities, and other groups

local jurisdictions 

Reception sites and other field locations 

stakeholders, including transportation entities. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 1


samPle oPeraTions 

aCTiviTies (ConT’d) 

activation of its 

resources to provide 

real time traffic 

information and 

monitoring 

implementation of 

contraflow if required 

Staffing of information 

hotlines 

placement of en 

route services along 

evacuation routes 

opening of evacuation 

routes to maximize 

throughput (toll 

suspension, work 

zone closure, debris 

removed, etc.) 

Reporting of traffic 

count data to tmc, 

Eoc, and other 

jurisdictions 

activation of mutualaid agreements as 

required 

deactivation of 

personnel at end of 

tier i operations, 

reactivation as needed 

for tier ii operations 
coordinating information with the media, national and state representatives, local 

political authorities, and other groups: Regular media briefings must be held to 

inform the media about evacuation routes, traffic and road conditions, shelter loca

tions, and other pertinent information to communicate to the public in a timely 

manner. additionally, national, state, and local authorities as well as agency personnel 

(such as transit and health agencies) should be briefed at regular intervals to ensure 

that all parties with management or oversight responsibilities are provided with accu

rate, timely, and comprehensive information to enable informed decisions to be made. 

A jurisdiction may establish Joint Information Centers (JICs) to ensure that everyone 

receives the same true and accurate information.the ability to quickly dispel rumors 

and correct inaccurate information is paramount during an evacuation. it should be 

regularly reinforced, both internally and externally, that persons involved in any way 

with the evacuation must direct all but the most basic inquiries to the Jic. 

coordinating with local Jurisdictions: local jurisdictions that may be impacted by 

evacuees transiting through or sheltering in the area must be kept informed of 

decisions, changes in operations, and ambient changes.they may be invited to send 

a representative to the local Eoc for coordination purposes or may be included 

on dissemination lists for situation reports and updates. any decision that impacts 

the jurisdiction—such as the need to adjust traffic signal timing on an evacuation 

route—must be communicated and coordinated by an official at an appropriate level 

immediately. 

coordinating among the Emergency response team: personnel working on the 

evacuation must maintain effective communications at all times to coordinate move

ments, share real time information, and track deployments.the Eot should include 

staff both at the EOC and in the field, who must communicate to keep key players 

informed and up-to-date on the status of the evacuation, to ensure quick resolution 

of issues that arise. field personnel will likely be located at an incident command post 

that has a mobile communications vehicle or may simply have radios in their vehicles 

or hand-held radios. it is critical to have redundant communications because the event 

may damage normal communications equipment options. frequent communication is 

necessary to maintain the command and control structure to ensure the evacuation is 

managed effectively. 

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2 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

preparation and delivery of the message must be followed through to ensure the 

public receives and understands the intended message.this is especially important 

when informing people with limited English proficiency. Grass roots organizations 

can help reach vast audiences. coordination with smaller media outlets and amateur 

radios networks must also be considered. Examples of information tools are discussed 

in the “Tools for Effective Highway Evacuation Operations” section of this primer. 

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seleCT meThods of 

CommuniCaTing 

evaCuaTion and reenTry orders To The 

PubliC 

Door-to-door notification 

radio and television announcements 

press releases to print media 

permanent and portable vms 

public service announcements 

Emergency alert system 

webpage bulletins 

Hotline number 

Intelligent Transportation Systems (ITS) 

Highway Advisory Radio (HAR) 

511 

rEvErsE 911® 

CommuniCaTion 

sTraTegies for 

reaChing evaCuees 

and reTurnees 

media outreach plan 

designated 

spokespersons 

regular public and 

media briefings 

schedule for media 

interviews 

timely, accurate, and 

consistent message 
communicating with reception sites, shelters and other field locations:a sheltering 

plan is an important part of the evacuation plan.the transportation staff supporting 

the evacuation must work through the Eoc to obtain up-to-date information on 

shelter locations, remaining capacity, etc. to ensure proper direction of evacuees to 

those locations. 

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In-vehicle navigation systems (GPS) rest area bulletin boards and handouts 

Radio traffic reporting companies Ham radios 

government and non-government 

agency websites 

american automobile association, 

american trucking association 

Evacuee shelters cB wizard alert system 

welcome centers, weigh stations, and 

transportation emergency personnel must be prepared to manage incomplete 

staffing situations. Operations leaders must have built-in redundancies to ensure that 

key personnel positions are filled with capable staff at all times. Operations leaders 

must also anticipate that during an emergency situation, personnel (including transit 

operators) will need to take breaks, sleep, and eat to ensure that they are functioning 

at full capacity—so built-in rotation schedules are needed. systems must also be in 

place to ensure that personnel rotating in and out during an incident are briefed and 

debriefed so all personnel are operating and responding as a cohesive group. 

in some communities, an intermediate reception site for evacuees is established. 

these sites may be used as a central location to gather large numbers of evacuees 

prior to evacuation to specific shelters.The sites may also be used as gathering 

locations to transfer evacuees from local transit and school buses to over-the-road 

coaches for long-distance transport to their final shelter location. 

according to the High-risk area Hurricane survey conducted by Harvard in July 

2006, 35% of respondents said they were very worried about the conditions and 

their safety in an evacuation shelter—so monitoring security and communicating 

security information to evacuees is important. 

Emergency managers must also stay in contact with shelter providers to ensure 

awareness of the shelters’ capacity, and needs for security, supplies, staffing, etc.The 

Eoc must know the status of the shelters to relay that information to the public 

and decide whether to open additional shelters if the shelter is near full capacity. if 

additional shelters are opened or some have reached capacity, the transportation staff 

supporting the evacuation may need to update VMS, 511 messages, and field staff 

who are providing information to evacuees. 

once an evacuation is underway, there is a constant need for monitoring and infor

mation sharing to adjust the evacuation to meet changing conditions. for example, 

the decision to evacuate may be driven by weather conditions, so monitoring 

updates from noaa, the national Hurricane center, and other agencies is neces

sary. likewise, deteriorating weather conditions during an evacuation may impact the 

speed of the evacuation and potentially endanger evacuees and agency staff who are 

conducting the evacuation. Personnel in the field can provide valuable information 

about the conditions during the evacuation including weather and congestion. some 

tmcs have also integrated weather information monitoring into their tmc operaUsing HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 3 

seleCT meThods of 

CommuniCaTing 

evaCuaTion and reenTry orders To The 

PubliC (CONT.)
Coordinating with Transportation Officials from Other Transportation Modes: many 

people cannot self-evacuate for various reasons. friends, family, or volunteers may 

evacuate some of these people, but most need help.when a large number of such 

evacuees must be evacuated in a very compressed timeframe, personal vehicles will 

be insufficient. In those cases, government agencies must organize and execute an 

evacuation using other modes with the highway system serving as the backbone for 

the evacuation. 

tions such as in salt lake city, Ut. where they have a partnership with a weather 

service provider or in Houston,TX., where the TranStar system is tied into a flood 

gauge map and alarm system. more information on integrating weather into tmcs 

may be found in the fHwa report Integration of Emergency and Weather Elements 

into Transportation Management Centers.A link to the report is included in the “Other 

information resources” section of this primer. 

the most common mode is large-capacity conveyances, such as school buses, transit 

buses, and paratransit vehicles for special needs evacuees.while these vehicles 

are sufficient for a short-distance evacuation, they may be insufficient to transport 

evacuees for longer distances—so over-the-road coaches, commuter trains, or other 

passenger trains such as amtraK may be required. if the time to evacuate is short 

and the number of special needs evacuees is large, evacuation by air may be required. 

this may be a combination of commercial, military, and private aircraft, as well as 

an orchestrated effort using buses and motor coaches to transport evacuees from 

designated points to and from the airfield. In addition, medical patients sometimes 

must be moved by helicopter due to the nature of their medical needs. many public 

and private organizations are capable of providing helicopter services. depending on 

location, evacuation by water may be an option such as the ferry services and tour 

boats that were used to evacuate lower manhattan on september 11, 2001. Evacuees 

who are to be moved by bus, train, air, or waterway will likely have to be transported 

to and from those modes over the highway network. 

Such a large-scale, multimodal evacuation may require significant coordination among 

the many agencies that are supplying personnel and equipment to support it. it is 

unlikely that a local government has such vast resources at its disposal.thus, the local 

government may require the use of a mutual-aid agreement with other agencies and 

even the assistance of the federal government.there should be pre-designated loca

tions for staging the equipment and the operators and for gathering and transporting 

the evacuees. it is also important to track the destination of these evacuees to notify 

friends and family of their location and to develop a plan to return the evacuees to 

their original locations once the area has been deemed safe for re-entry.the state of 

texas developed a plan to give a tracking bracelet to every person who used state 


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
identifying and coping with communications interoperability issues: during an evacu

ation, those operating in the field may find that their communications equipment 

cannot communicate with the EOC, first responders, or other important personnel, 

including transportation, involved during the evacuation.when developing evacuation 

plans, communications equipment and support systems for all agencies involved in the 

evacuation should be thoroughly developed and tested to identify and address these 

issues before an evacuation. 

protecting Human and physical resources: protection of Eot members and evacuees 

is critical to the success of any operation.to protect responders and evacuees, 

jurisdictions must have sufficient resources available to support the evacuation. It is 

important to know when to end the evacuation so that the field personnel can move 

themselves and their equipment to a safe location. If field personnel are not able to 

reach their primary destination, they need to know where the closest shelter location 

is to move out of harm’s way. It is important to know where the field personnel are 

located at all times, those who have returned to their operations base and those 

still out on the roadways. should normal voice communications be affected, many 

portable radios, cell phones, and vehicles are equipped with gps or avl. 

provided transportation for evacuation. local, state, and federal dots should be 

able to aid in coordinating multi-modal movements and in acquiring transportation 

assets to support an evacuation operation. it is important to monitor the number 

of evacuees moved by means other than personal vehicles to ensure that additional 

equipment and operators (such as buses and drivers or helicopters and pilots) are 

requested and supplied quickly if needed.this information should also aid in devel

oping the re-entry plan, as the same transportation resources will likely be required 

for that operation. 

during the evacuation, it will be important to know where transportation assets are 

located. Many transit agencies have installed Global Positioning Systems (GPS) to 

automatically locate their transit vehicles including buses and trains.as an example, 

corpus christi,tX. and surrounding nueces county have teamed together, along 

with several privately operated refinery fire brigades, to equip the majority of their 

vehicles with GPS systems for Automatic Vehicle Location (AVL). In this application, all 

police, fire, emergency medical, sheriff, local fixed-route transit, and paratransit vehi

cles (Corpus Christi Regional Transportation Authority) are equipped. Map displays in 

the Eoc allow command and control of all avl-equipped vehicles.the san antonio 

bus fleet (VIA), located about 140 miles away, is also similarly equipped, and with 

radio reprogramming is capable of augmenting the evacuation fleet of vehicles already 

in operation in the corpus christi area.

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

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samPle TraffiC 

ConTrol 

resPonsibiliTies 

Traffic signal timing 

adjustments 

ramp metering 

adjustments 

ramp openings and 

closures 

timing of draw bridge 

openings and lock 

downs 

programming vms 

(permanent and 

portable) 

programming Highway 

Advisory Radio (HAR) 

programming 511 

systems 

signage adjustments 

(flipping down signs, 

etc.) 

Setting up contraflow 

operations 

Monitoring traffic 

counters 

Monitoring traffic 

cameras 

Relaying traffic 

conditions information 

to Eoc 

Posting traffic 

information on agency 

web site 


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

Traffic Control and Traffic incident Management 

Controlling the traffic and responding to traffic incidents should be a joint effort 

among transportation, law enforcement, and emergency medical personnel. additional 

support may be needed from highway service patrols and the towing industry to 

respond to and clear highway incidents as quickly and safely as possible. Highway 

contractors should secure highway construction work zones, and toll agencies may 

need to suspend toll collection operations. 

the evacuation may occur on a variety of roadways from neighborhood streets to 

collector streets to major arterials and interstates.these roadways are under the 

control of various jurisdictions, so coordination is a must. Each jurisdiction must know 

the evacuation plan, their roles and responsibilities in conducting the evacuation, and 

the personnel and equipment resources necessary to support the evacuation.there 

are many traffic control-related activities that must occur before, during, and after an 

evacuation.A description of traffic control tools is included in the “Tools for Effective 

Highway Evacuation operations” section of this primer. 

FHWA has several tools and programs that are used to manage day-to-day traffic 

operations but can also be used in evacuation planning and execution. one of these 

programs is the Arterial Management Program, which covers three major focus 

areas: arterial management, traffic signal timing, and access management.The Arterial 

Management Program promotes the efficient and effective movement of people 

and goods and improves the safety of the traveling public and the environment. the 

proper application of arterial management tools can assist a jurisdiction in evacua

tion planning and execution. during an evacuation event, the major highways may be 

operating at or over design capacity.therefore, it is important to make use of major 

arterials to assist in the flow of traffic. 

Traffic signal Timing: it is estimated that over 75 percent of the country’s 330,000 

traffic control signals could be improved by updating the equipment or by simply 

adjusting the timing.Traffic signal improvements include updating equipment, updating 

timing plans, and interconnecting signals. Poorly timed signals account for five percent 

of the total congestion on U.S. roads. Advanced traffic signal control involves coordi

nating groups of signals, operating signal control systems that respond and adapt to 

traffic needs, or installing a priority control system.A major arterial that connects to 

a major interstate evacuation route could be equipped with advanced traffic signal 

control, could be operated from a central location, and could provide a constant 

movement of vehicles onto the major roadway.Traffic monitoring on arterials can 

include incident detection with appropriate follow-up action to remove incidents, 

intersection surveillance and monitoring using loop detectors and video, and areawide traffic surveillance. In an evacuation, pre-set traffic signal timing patterns can 

be implemented to assist in moving the highway traffic more effectively.To provide 
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information on traffic signal timing for evacuations for State and local agencies, FHWA 

published Traffic Signal Timing for Urban Evacuation which will be available online in late 

2006. 

Access Management: access management is a set of techniques that state and 

local governments can use to control access to highways, major arterials, and other 

roadways.The benefits of access management include improved movement of traffic, 

reduced crashes, and fewer vehicle conflicts. Access spacing increases the distance 

between traffic signals, thereby improving the flow of traffic on major arterials and 

reducing congestion. dedicated left- and right-turn lanes, indirect left-turns and Uturns, and roundabouts keep through-traffic flowing. Roundabouts represent a poten

tial solution for intersections with many conflict points. Two-way, left-turn lanes and 

non-traversable, raised medians are examples of some of the most effective means 

to regulate access and reduce accidents.these practices can increase the roadways’ 

capacity, which is important in an evacuation. 

When congested traffic conditions occur on one roadway, travelers typically respond 

by shifting to another route, selecting a different type of roadway (freeway versus 

arterial), delaying their time of departure, or remaining on their current route thereby 

encountering significant delays. FHWA has developed Corridor Management 

Programs that encourage neighboring jurisdictions to work collaboratively to alle

viate congestion issues. Examples of near-term opportunities agencies may pursue 

include: 

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Establishing formal agreements and documenting operational policies 

developing protocols, procedures, operational strategies, and control plans 

Deploying traffic control systems, establishing and maintaining interfaces 

between systems, and implementing ITS technologies to control traffic and share 

information 

Coordinating traffic control at all traffic signals and between freeway 

interchanges with urban corridors 

Deploying traffic management centers 

Using managed-lane operational and access control strategies within corridors. 

These basic concepts for everyday traffic congestion mitigation also prove invaluable during a disaster that affects adjoining jurisdictions, especially one requiring an 

evacuation. 

the Freeway Management Program includes initiatives that increase agencies’ 

awareness of benefits, encourage regional collaboration and sharing of resources, 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

samPle TraffiC 

ConTrol 

resPonsibiliTies 

(ConT’d) 

coordinating with 

emergency responder 

dispatch for incidents 

Use of law 

enforcement for traffic 

control and direction 

assembling, 

transporting and 

installing cones, 

barricades, arrow 

boards, etc. 



Contraflow or Lane Reversal as an Evacuation Operations Tool:when moving a 

large number of residents from an area becomes a necessity, public officials consider 

whether to execute contraflow, or lane reversal, plans. Contraflow operations usually 

occur during mass evacuation scenarios and on major, controlled-access highways to 

reduce the duration of the evacuation by opening up all lanes in one direction. several 

States have used this practice with much success.These contraflow operations proved 

to significantly reduce evacuation times of the general population. However, if an evac

uation can be safely accomplished without implementing contraflow, that choice may 

be preferable to reduce the costs and personnel and equipment resources needed to 

support the evacuation. Successful contraflow operations require: 

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Planning 

ConsideraTions 

for The 

ConTraflow 

oPeraTion: 

median openings on 

highways 

work zones 

Exit/entrance ramp 

openings and closures 

Night contraflow 

operations 

sign placements 

personnel availability 

routes for emergency 

vehicles, including 

entry for incoming 

response resources 

(for pre-staging) 

Use of aerial assets for 

assessments (e.g., law 

enforcement or traffic 

helicopters) 

condition of lanes 

designated for 

outbound vehicles 

Impact of contraflow 

on other roadways, 

including parallel 

routes 


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

develop capabilities, utilize operational strategies, and deploy tmcs and its to 

continuously improve the efficiency and effectiveness of how agencies proactively 

manage and control freeway facilities. Freeway operations and traffic management, 

and managed-lanes initiatives coordinated through interconnected tmcs, can provide 

the regional cooperative approach needed to manage far-reaching disasters including 

evacuations. 

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Planning that includes notification protocols and the inclusion of all surrounding 

jurisdictions that may be affected by the operation 

Basic human needs for both evacuees and responders, including availability of fuel, 

food, water, changes of clothing, and lavatory facilities, depending on the length of 

time for the contraflow operation 

Advance information, including when the contraflow operations should start and 

end, by time and location.vms and other equipment must clearly direct drivers 

to the correct lanes during contraflow, especially when crossing over the median. 

■ information regarding restrictions on the types of vehicles that will and will 

not be allowed in the contraflow lanes, whether or not toll collection will be 

suspended, if applicable, etc. for example, wide-load vehicles should not be 

allowed on a highway during a contraflow operation, as they may slow down the 

operation. 

During contraflow operations, it is important to monitor the operations to ensure 

that traffic is flowing as safely and efficiently as possible. Some States use law enforce

ment helicopters to monitor the contraflow operations to quickly identify any 

incidents that need response.they are supported by law enforcement vehicles on 

the routes to respond to any incidents that occur such as traffic accidents, medical 

emergencies, and stalled vehicles. many states operate incident response teams with 

roving trucks that carry fuel and can provide minor vehicle repairs such as changing 

flat tires. Such services can help contraflow operations run more smoothly. States 
its Equipment to aid Evacuation

and local agencies often monitor their permanent traffic counter locations from their 

TMCs to determine the speed at which the contraflow traffic is moving, and can use 

that information to determine how long they need to continue to operate in contraflow and to share that information with other communities that may be receiving the 

contraflow traffic. 

Ideally, if contraflow is incorporated as a component of an evacuation plan, it should 

be tested and exercised, including full set up and break down of equipment and 

materials.This helps officials get baseline data on how long it may take to establish 

contraflow during a real time event. Some locations need two hours to set up, while 

others need six hours.time variations may be based upon already pre-positioned 

barricades and equipment along contraflow routes or on how easy it is to gather the 

necessary personnel and equipment to support the operation. 

Sample time-consuming tasks include ensuring that flip down signage is properly 

flipped down, reflective buttons are removed or placed depending on purpose, cones 

are placed across median crossover lanes, and gates are placed at closed ramps.all of 

these details must be planned ahead of time, and also exercised to ensure that those 

responsible during contraflow know their roles and responsibilities, ensuring a smooth 

operation. One example of defining responsibilities is an agreement between the 

States of Mississippi and Louisiana that addresses two specific evacuation routes that 

may be put into contraflow operations from Louisiana into Mississippi, as happened 

during Hurricane Katrina in 2005.the agreements provide details on which agencies 

are responsible for what actions and on what timeline. 

During an incident of significance where evacuation is likely, emergency vehicles may 

transport people to and from locations during all phases of an event. law enforce

ment and other public safety personnel and their vehicles must be able to move 

around the community to attend to the situation and ensure that those under evacu

ation orders take immediate action. inbound vehicles may also transport supplies 

and equipment to reduce the response time after the event.all of these access 

issues must be incorporated into any evacuation plan including considerations to use 

contraflow as an evacuation tool. 

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in february 2006, the florida dot along with the U.s. dot, the american 

Association of State Highway and Transportation Officials, and the I-95 Corridor 

Coalition sponsored a multi-state contraflow workshop to share experiences and 

best practices.The “Other Information Resources” section of this primer provides a 

link to the materials from that workshop.

its may be used during an evacuation to collect data and as a tool to communicate 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

good PraCTiCe 

use of High 

occupancy Vehicle 

(HoV) lanes and 

frontage roads 

some states have 

Hov lanes and 

frontage roads. during 

times of contraflow, 

the Hov lanes are 

often designated for 

emergency vehicles only. 

in other instances, the 

shoulders can be used 

to move emergency 

vehicles against traffic 

if necessary.the 

movement of emergency 

vehicles and inbound 

supplies and equipment 

must be addressed in 

any contraflow plan. 



VMs – These signs are also referred to as Changeable Message Signs (CMS) or 

Dynamic Message Signs (DMS).The signs can be pre-programmed or programmed in 

real time to provide information to highway travelers.the signs can be permanently 

mounted along major roadways as in many urban areas or on trailers so they can be 

moved to any location as necessary.The signs provide great flexibility in the informa

tion they can provide such as travel times, locations of traffic incidents, or the location 

of shelters for evacuees. 

Traveler information-Dial 511 – many states have robust 511 or other tele

phone traveler information systems.as of late 2006, these systems reach about 35 

percent of the U.s. population.a number of other states are deploying 511 and these 

systems should bring the coverage up to about 54 percent of the U.s. population in 

the next few years.these systems may be used to aid those evacuating who have 

access to landline or cellular telephones prior to or during their evacuation. most of 

the 511 systems provide route-specific traffic conditions and weather information, 

in addition to area-wide alert information.also, most of them have the capability to 

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TyPes of 

equiPmenT 

and faCiliTies 

used during 

ConTraflow 

oPeraTions 

Barriers 

drums 

cones 

gates 

vms 

arrow Boards 

fuel 

trailers 

fold-down signage 

Reflective Buttons 

Traffic Counters 

light towers 

tmc 

0
 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

and coordinate with evacuees, evacuation operations personnel, partners, and other 

stakeholders. its encompasses a broad range of wireless and wire-line communications-based information and electronics technologies.these systems are generally 

managed through a tmc that may be separate from or part of an Eoc. if separate, 

there are often communications between the tmc and the Eoc that allow those in 

the Eoc to see the same camera video feed as seen in the tmc such as in Houston 

and austin,tX., as well as the atlanta and Baltimore Eocs and tmcs. its is made up 

of both intelligent infrastructure systems and intelligent vehicle systems. one lesson 

learned from previous disasters is that a redundant power source is needed for many 

its systems so they can still function if the primary power source is impacted by the 

disaster. 

fHwa is developing a real time system management information program to 

monitor, in real time, the traffic and travel conditions on the major highways in the 

U.s. as states and local governments develop or update their its, they will explicitly 

address real time highway and transit information needs and the systems to meet 

those needs. 

during an evacuation, emergency personnel must be able to coordinate and commu

nicate with evacuees, whether in transit or upon arrival at reception sites and shelters. 

while many people may have received their information to evacuate by television or 

a rEvErsE 911® system, those options are no longer available once the evacuees 

are in their personal vehicles. so, it is important to use radio, Har,vms, 511, and 

other such communications devices to reach evacuees while en route. 

the following examples of its resources may have application for evacuations. 

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advanced Traveler information systems (aTis) – atis are designed to 

enhance personal mobility, safety, and productivity of transportation through a system 

that monitors traffic and road conditions and transfers the information to a TMC and 

back out to users.ATIS can play a role in reducing traffic congestion during evacu

ations by providing en route traveler information about traffic conditions, route 

guidance, and other pertinent information. fHwa has recently published the report 

Communicating with the Public Using ATIS During Disasters – Concept of Operations 

which may be useful to both transportation and emergency planners.a link to this 

report is included in the “Other Information Resources” section of this primer. 

in-Vehicle systems – there are a number of in-vehicle information systems that 

can be purchased as part of a new vehicle or added as an after-market device.these 

systems can provide a wide array of information to a motorist via a video display 

inside the vehicle. subscribers to these services can receive routine traveler informa

tion as well as emergency information; some services are even linked to the national 

Oceanic and Atmospheric Administration (NOAA) All-Hazards Radio System. In 

general, these systems provide information they receive from official government 

channels in emergency situations. Emergency managers and transportation officials 

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provide an alert message (sometimes referred to as a “floodgate” message since it is 

“flooded” out to all callers at the beginning of the call) that all callers must listen to 

and could contain evacuation information. southeast florida, central florida, and the 

tampa, florida regions under the florida dot have implemented robust 511 systems 

where motorists can obtain information about congestion, travel times, and road 

closures.a separate hotline provides information on hurricane shelters.these systems 

experienced no failures or down time during the four hurricanes that impacted 

florida in 2004. 

Highway advisory radio (Har) – Har can be used to broadcast information 

to motorists in a localized area and provide more information than can often be 

communicated with a vms. its broadcast range usually falls within one to six miles of 

the radio transmitter, and nearly all Har systems use the am radio band. signs are 

generally posted in the broadcast area to inform motorists of which radio station to 

tune into to receive information.transportation and emergency managers should 

keep a map of the location of signs and broadcast towers so that they can target 

messages during an evacuation, and be able to quickly assess any damage to these 

assets after the event. following the 2005 hurricane season, the florida dot identified 13 new critical locations in the State at which to install HAR to assist with evacuations.additional mobile Hars will be deployed in florida as needed to get the best 

signal coverage. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

good PraCTiCe: 

use The Tools 

transportation 

technology can be used 

to your advantage. 

Examples of “Intelligent 

transportation 

systems”—or its—that 

have helped others 

during evacuations 

include: 

variable message signs 

511 

advanced traveler 

information systems 

(ATIS) 

Highway information 

radio 

in-vehicle systems 

cctv 

1

Cameras – cameras are another type of traffic surveillance system capable of moni

toring speed and flows that can be used for evacuation management. One commonly 

used system is closed circuit television (CCTV). CCTV cameras have an advantage 

over loop detection in that they can provide direct visual confirmation of traffic and 

weather conditions at remote locations.they can also be used for detecting incidents 

and verifying their removal. another application is to use cctv as a secure means of 

linking the centers in operation during an evacuation, including Eocs,tmcs, public 

safety, fire, and shelters. 

may also consider partnering with satellite radio providers to broadcast information 

to truckers carrying essential recovery materials regarding any temporary changes to 

commercial vehicle restrictions. one example includes a new service being commer

cially provided by NAVTEQTM, that uses the Radio Data System (RDS) protocol 

designed into all car radios installed since 1995, which provides traffic alert systems 

to subscribers in multiple metropolitan areas around the U.s. navtEQTM maintains 

a control center staffed 24/7 to provide the alert notifications, and currently uses 

commercial as well as government its system data that is publicly available. it may be 

possible to augment their system for evacuation text and audio messaging, or mirror 

this system with a publicly sponsored system. 

one of the limitations of cctv is that it typically requires direct power and commu

nication connections.This is often difficult in remote locations along evacuation routes. 

newer cctv and its applications such as the des moines, iowa, its system covering 

i-80, i-35, and i-235 in the metropolitan area include sensors with solar power and 

battery backup and wireless communications between the sensors and the tmc using 

wifi and wimax technologies. 

providing medical services during the Evacuation 

when managing an evacuation the care and treatment of people injured during the 

event must be considered.additional medical and support staff from adjoining areas 

must be properly licensed to permit their usage, if required, in the affected area. 

transport vehicles and emergency supplies must be acquired.administrative support 

must also be provided to account for and track the injured. 

the highway system will likely be the primary means of transporting those with 

medical needs.the evacuation plan must consider accommodation of the emergency 

vehicles for ingress and egress, especially if contraflow operations are in progress. 

managing EvacUation of spEcial nEEds popUlations 

Hospitals, nursing homes, prisons, and other institutions generally are responsible for 

developing their own evacuation plans and deciding when to evacuate their residents. 

2
 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
•

•

•

•

•

they face unique issues such as whether the risks of not evacuating outweigh the 

risks of moving seriously ill individuals. Comparable facilities must be identified in 

advance of the evacuation to ensure these evacuees receive necessary services. it is 

important to ensure that responsible individuals have access to the latest information 

about an incident and that institutions’ evacuation plans work in the event of a mass 

evacuation of the entire population of an area. 

Evacuating those with special needs who are not in institutions also presents prob

lems such as locating where these individuals live, despite attempts by local agencies 

to maintain lists of persons with various special needs. some cities, like new orleans, 

are establishing a 311 information hotline to register residents with special needs 

for evacuations. other areas have similar registration programs, but those programs 

depend upon the willingness of persons to register. privacy interests and some indi

viduals’ reluctance to identify themselves as having special needs are considerations 

that must be addressed in establishing a comprehensive registry. 

persons who use wheelchairs, those who rely on special medical equipment, those 

with hearing or visual impairments, the elderly, limited English proficiency, and other 

groups have unique communication, transportation, and sheltering needs that must 

be planned for in advance.this includes ensuring that all forms of temporary housing 

(e.g., shelters, trailers) meet Americans with Disabilities Act (ADA) guidelines. 

providing these specialized services in the course of a mass evacuation may present 

particular challenges. 

another group that may have special needs is children.they can become separated 

from family or caregivers which may cause stress for the children. children should 

be included in the emergency plans that families prepare so they know what to do 

if they become separated from their family during an evacuation. children may also 

have special shelter needs as their family may have difficulty coping with the demands 

of the emergency situation. so child care may be necessary to allow the family to deal 

with the emergency situation itself as well as to provide stability and comfort to the 

children. 

Emergency responders must consider the unique requirements of managing special 

needs populations while conducting an evacuation.thus it is important to consider 

the following: 

■ multiple methods of communication: Emergency response personnel should be 

equipped to communicate evacuation messages to special needs populations in 

as many formats and languages as the situation warrants (e.g., having non-English 

language materials available, brochures printed in Braille, or text messages sent to 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

good PraCTiCe 

Build plans that address 

support for those that 

need transportation 

assistance, including 

those who: 

do not own a 

personal vehicle or 

have one vehicle that 

may be at work 

are transit-dependent 

do not have 

economic means 

are not physically 

able to transport 

themselves 

are a tourist without 

a vehicle 

3


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

those with hearing impairments). 

■ special needs transportation Equipment: Emergency coordinators should 

consider the transportation needs of those with special needs, such as wheelchair 

accessible vehicles to evacuate those with physical disabilities and equipment such 

as oxygen tanks and insulin for those who have other medical needs. still other 

special needs evacuees may need assistance from a service animal or a caregiver, 

and space must be made available to accommodate these companion travelers. 

These evacuees may also have specific needs for water, food, medical services, 

etc. while being transported, and those must be planned for in advance. 

■ special needs shelter considerations: as noted above, those with special needs 

may require specialized transportation equipment and also may need specialized 

shelters. all shelters must comply with ada for accessibility and may need 

specialized bedding as the standard shelter cots may not be feasible for use. 

There may be a need for medical care beyond the normal first aid that would 

be supplied.the ability to communicate with those in shelters in more than one 

language, including sign language, may be necessary as well. 

the national consortium on the coordination of Human service transportation 

published a transportation and Emergency preparedness checklist to be used in the 

planning phase as a guide to those who must transport persons requiring mobility 

assistance in an emergency. information on how to access this checklist is contained 

in the “Other Information Resources” section of this primer. 

Tier ii oPeraTions: evaCuee re-enTry 

local jurisdictions must support the re-entry of evacuees. many of the same agencies may be involved in the tier ii operation, retaining many of the same roles and 

responsibilities as they had for the evacuation. in addition, personnel, supplies, and 

equipment similar to that used for the evacuation may be needed for the re-entry. 

during this phase, the environment is much less certain, safe, or secure. decisions 

on when to permit re-entry may affect the health and welfare of the returnees, may 

be critically watched by the media, may require the same type of personal support 

(transportation, food, shelter) as the evacuees found at or en route to the shelters, 

and may have great political and economic ramifications if not done properly. Reentry may take a matter of hours for events that occurred and did not cause major 

damage to physical property and the infrastructure. However, return operations 

following a catastrophic incident may take days, weeks, and even months. 

the transportation sector plays a role in supporting the return of evacuees. it can 

contribute to making the roadways safe for return travel by aiding in damage assess-
ments of the roads, clearing debris, and reestablishing services. it is useful to maintain 

a database of critical transportation assets to aid in damage assessments and recovery. 

due to the importance of restoring the highway system immediately following an 

event, emergency managers should place a priority on activities and securing critical 

assets to conduct damage assessment, debris removal, hazardous materials disposal, 

repair of the roads, and restoration of transportation facilities to enable them to 

receive evacuees when it is safe to do so. planners should use performance metrics 

for these activities to ensure the highway reopens quickly. for example, one such 

metric could be that all roads, except those with severe damage, reopen within 24 

hours of the event.transportation personnel at public works agencies can also assist 

with debris removal.to quickly reopen roads, transportation agencies should consider 

“cut and toss” contracts. Such a contract allows trees and other debris to be cut and 

pushed off the roadway to quickly and safely reopen the road, with the complete 

removal of the debris occurring later when time is less critical. 

in the best-case scenario, the projected event will not have caused major damage to 

the local community, so after a damage assessment has been made and the all-clear 

has been given by public safety officials, a message may be sent via the media that it is 

safe to return.those who self-evacuated using their personal vehicles should be able 

to return on their own. if the jurisdiction organized movement for transit-dependent 

or special needs populations, the jurisdiction may have to organize a return trip for 

those evacuees. 

transportation agencies that provide data to support the operations and information 

to the public from local tmcs, also may be providing personnel and equipment such 

as barricades and signs, and may provide the use of their motorist assistance teams to 

support the re-entry. close coordination between transportation and law enforce

ment is a must for a successful re-entry. 

dEtErmining wHEn to pErmit rE-Entry 

the decision to re-enter an area that has been evacuated is based on public safety 

factors. decision makers must be assured that the impacted area is safe for the return 

of residents and business owners.that requires government agencies to inspect 

the area and aid any victims who did not evacuate, perform an initial assessment of 

damage to homes and businesses, move debris to open roadways, handle downed 

power lines, and other such actions to ensure public safety. 

some of these factors are particularly critical for special needs evacuees who may 

need power to run medical equipment or the elderly who need air conditioning to 

avoid heat-related medical problems.there may be other health concerns, particularly if the evacuation was due to a hazardous materials release or if there is standing 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

communicating re-entry to Evacuees: Before implementing the re-entry plan, govern

ment agencies must know how they can communicate with evacuees, who may be 

scattered among shelters, families’ homes, and other areas outside of the immediate 

jurisdiction.the communication with evacuees should describe how the re-entry 

should work.the adjacent text box describes some of the types of information to 

communicate to the pubic to support re-entry. 

Executing re-Entry transportation of Evacuees to origination points 

•

•

•

•

•

•

•

•

•

•

informaTion To 

be CommuniCaTed 

To reTurning 

evaCuees 

re-entry plan 

start time/end time 

Day (s) of week 

geographic area 

covered 

id required to 

re-enter 

security checkpoints 

in place 

available routes 

maps 

vehicle restrictions 

(e.g., no oversize 

trucks) 

Available services (e.g., 

grocery, bank, medical, 

fuel) 


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

water that may breed insects that could pose a threat. 

it is likely that the level of damage will vary within the affected area.that means the 

re-entry process may happen in phases, as each geographic area is deemed safe for 

evacuees’ return. for example, after Hurricane rita in 2005,texas implemented a 

phased re-entry plan.they determined which geographic areas were safe for return 

and set a timetable during which each area could be re-entered.the re-entry phases 

were well reported by the media.this phased approach worked well in avoiding the 

major traffic jams that occurred during the evacuation for the same hurricane. 

part of any re-entry plan must address those people who were unable to evacuate 

themselves.there must be a clear strategy on how, when, and to where these 

evacuees should be transported and how they may reach their final destination. Such 

a plan may need to include notice to family members or other caregivers to ensure 

that evacuees are cared for upon their return.transporting the evacuees back to their 

original locations may require buses and other motor vehicles, and some may require 

air travel due to medical needs. 

once developed, the plan must be communicated to evacuees. methods and tools 

to communicate with evacuees are discussed in the ”tools for Effective Highway 

Evacuation operations” section of this primer. 

those evacuees who are returning must know what to expect upon their return. 

information must include the routes to use, the utilities expected to be functional, 

and the services likely to be available.this is especially important for the special needs 

population who may require additional basic services prior to re-entry to the affected 

area. Because many evacuees may be located well outside the immediate impacted 

area, an extensive public and media outreach campaign should be in place well in 

advance of the start of re-entry to allow evacuees to plan ahead for their return. 

the considerations used in the evacuation are applicable in the re-entry phase. once 

a decision is made on when and how to execute re-entry of evacuees, there must 

be a plan to return evacuees who did not self-evacuate to their origination points. in 

some cases, medical patients were evacuated by ambulance or air depending on their 

condition.those patients will likely require the same means of transport to return 
to the medical facility from which they were evacuated. likewise, people who were 

evacuated by bus or train will have to be returned to their origination point. However, 

if the rail lines are damaged or the transit system is not operating, other transporta

tion resources may be needed to support their re-entry. in some cases, staging areas 

again may be used as an interim stop before transporting individuals back to their 

primary destination. Executing this plan may require both equipment and personnel 

for the transportation, staging of vehicles and evacuees, boarding of vehicles, provision 

of water, etc.the re-entry plan must be coordinated with transportation and public 

safety officials to ensure that they adequately staff highway routes. Likewise, traveler 

services, such as fuel, food, water and medical care, should be available along the 

highway routes as they were during the evacuation. Officials may use ITS equipment 

to support re-entry operations.vms, Har, and 511 systems can all provide valu

able information to evacuees during re-entry.tmcs can help monitor the re-entry 

through cameras and traffic counters, identify areas where incident response may be 

required, and provide overall information about travel times for re-entry.agencies 

may have pre-scripted messages that can easily be placed on vms, both permanent 

and portable, as well as pre-scripted messages for the 511 system. such pre-scripted 

messages save time and ensure consistent information is provided across geographic 

boundaries as evacuees travel back from far away locations. also, some vehicle manu

facturers provide on-board vehicle information systems so that information can be 

transmitted directly to an in-vehicle information screen. some agencies may choose 

to explore a partnership with such companies to provide information directly to 

returning evacuees. 

communication among and between jurisdictions may also be needed. state dots, 

for example, can share information on traffic conditions and also post messages on 

its systems well beyond the re-entry area to assist evacuees.as noted previously, 

government agencies must have a solid communication plan to prepare and execute 

re-entry. 

oPeraTions: reTurn-To-readiness Phase 

once the evacuation re-entry is completed, government agencies must prepare for 

the next event that may require evacuation operations. actions taken in this phase 

should transition the system from an operations cycle back to a state of planning and 

preparedness. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

funding the Evacuation 

the collection of costs and reimbursement of expenditures constitutes one of the 

activities in the return-to-readiness phase of an evacuation. services may include 

rehabilitation of equipment, restocking of expendable supplies, and transportation to 

original storage or usage locations. in many cases, the costs may be reimbursed by 

the state. in cases where the event resulted in a presidential declaration of disaster, 

a state will consolidate local and state expenditures associated with the disaster and 

seek reimbursement from the federal government. 

Usually, actions taken to safeguard the public and protect property, including evacua

tion efforts, will be fully covered by the federal government. governmental agencies 

may request and be reimbursed for many of the costs associated with an evacuation. 

reimbursement may come from their insurance companies, state and federal agen

cies such as FEMA and the FHWA Emergency Relief (ER) and Emergency Relief for 

federally owned lands programs.to be reimbursed for these costs, agencies must 

complete a variety of reports and forms to document the expenses incurred.all 

agencies must have a system in place to record personnel, supplies, and equipment 

costs to meet the requirements of the reimbursing agencies. 

-

-

Officials should check with FEMA and FHWA to determine whether various costs 

associated with evacuating the public would be covered, preferably as a planning and 

preparedness activity. Examples of reimbursable expenses may include overtime costs 

for public safety and transportation officials, materials used in support of the evacu

ation, rehabilitation or replacement of equipment used during the evacuation, and 

contract labor and equipment (through existing contracts or emergency contracts). 

as a planning activity, jurisdictions should inventory the contract labor and equipment 

they may need and which companies can provide those resources, and should put 

emergency contracts or contracting procedures in place to quickly acquire the neces

sary resources. 

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In some situations, there may be a need to back fill for personnel who are involved 

in the immediate evacuation response. Some of the back-fill labor may come from 

agency personnel in other departments not involved in the immediate evacuation, 

from agency personnel in another location outside of the impacted area, or through 

inter-local or mutual-aid agreements with other jurisdictions who have available 

personnel resources to meet the need. 

another potential cost is from the provision of support for volunteers or agency 

personnel from out of the area who need food, water, shelter, restrooms, and shower 

facilities to rest and prepare for their next work shift. 

during the return-to-readiness phase, the jurisdiction will collect documentation of 

expenses, complete appropriate forms requesting reimbursement, and submit the 


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
information through the state to the appropriate organization. agencies should work 

with fEma and fHwa to ensure they provide the proper documentation before 

submitting their reimbursement requests.the florida dot has contracted with a 

company to prepare all of their public assistance grant program project worksheets 

for fEma reimbursement.this contract allows their transportation staff to more 

quickly return to their normal duties after an event.a link to the fHwa Emergency 

relief and Emergency relief for federally owned lands programs, is included in the 

“Other Information Resources” section of this primer. 

aars and Best practices and lessons learned reports 

an important step is for agencies to conduct an honest review of how the evacu

ation was executed and determine how they can better prepare for and execute 

the next evacuation. Each agency should review its actions.when multiple agencies 

are involved in an evacuation, it is useful to conduct a joint after-action review to 

address how well agencies worked together and what improvements can be made in 

future joint operations. Each review should include an aar that can be shared with 

decision makers and agency personnel.the aar should include recommendations 

for improvements, and it is important for decision makers and agency personnel to 

consider and implement those recommendations quickly. one means to develop 

the report and to finalize the operations is the “Hot Wash”, a formal meeting where 

groups participating in the operation will meet to assess actions, determine follow-up 

items, and develop recommendations for improving future operations.the results of 

the Hot wash and individually submitted aars should be combined for a jurisdic

tion’s or agency’s final report. 

-

-

as a transitional activity from the operations cycle back to day-to-day planning and 

preparedness activities, agency personnel should review the AAR, evaluate findings 

(including lessons learned and best practices) and recommendations for improve

ment, and determine whether changes need to be made to their emergency plans 

and procedures. such changes may require revision to agency plans, changes in 

processes, redefinition of roles and responsibilities, updating checklists and contact 

lists, and other such actions to improve agency performance. 

-

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 



0

UsingHigHwaysdUringEvacUationopErationsforEvEntswitHadvancEnoticE
✔ Planning and PreParedness 

Have all agencies with evacuation responsibility been involved in the evacuation plan’s 

development? 

Has the ultimate decision maker been identified?

Has the one key individual, the Incident Commander, been identified?

Have those with authority and responsibility for evacuation been identified, and have 

their tasks been pre-defined?

what additional training and resources does the community need to support an 

evacuation? 

Does the plan include provisions for notification of evacuation personnel? 

does the plan require the routine updating of contact lists for evacuation personnel? 

How does the evacuation plan fit into the larger emergency management plan? 

does the plan address coop and cog?

does the plan address shelter-in-place provisions if full evacuation is not feasible?

How is the community informed of what steps they should take to be prepared for an 

evacuation, whether a person is located in an evacuation zone, what evacuation routes 

they should use, and the locations of nearby shelters? 

Have plans been coordinated with potentially impacted neighboring communities or 

receiving organizations, including associations, volunteers, and the private sector?

Have all available, or readily available, local resources been identified? 

How does the plan address training personnel?

Has the plan been exercised and revised as needed?

componEnts of an EffEctivE 

EvacUation plan 

creating the perfect plan for the community is a very complex endeavor.throughout 

this primer, there are several themes including: 

■

■

■

include transportation planners in the plan development and decision-making 

process, and on the Eot 

Ensure that the evacuation plans include the resources necessary to evacuate 

those with special needs 

Use the various transportation tools to collect planning factors (such as work 

zones); to collect real time information (TMCs and CCTVs) for dissemination 

to the public and along routes for evacuees (VMS, 511 system); to contract for 

labor and materials; to coordinate with other jurisdictions, government officials, 

and the media; and to ensure the effective and safe movement of evacuees. 

a good plan should answer the following questions, for each phase of the evacuation. 

the answers to these questions should help in developing a robust plan to support 

very limited evacuations as well those evacuations in advance of a catastrophic event: 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 1

✔ Planning and PreParedness 

Does the plan identify organizations and individuals (by position) responsible for 

directing resources to execute evacuation orders? 

does the plan identify roles and responsibilities of different levels of government, and 

how these government agencies coordinate their efforts with each other?

does the plan document mutual-aid agreements?

Does the plan identify specific roles of the State and local transportation and law 

enforcement agencies in evacuation operations? 

Does the plan identify variation(s) in direction and control for different types of 

catastrophic events that require evacuation?

does the plan include demographic data to identify the location of senior citizen, lowincome, transit-dependent, and other populations that may need transport?

does the plan contain provisions to identify the number of evacuees that will require 

transportation assistance?

does the plan contain a strategy for special needs populations?

does the plan address the catastrophic hazards that would cause a large-scale 

evacuation?

Based on the catastrophic hazards, does the plan identify and prioritize the 

communities that should be evacuated?

Based on the catastrophic hazards, does the plan identify the number of people and 

vehicles to be evacuated?

Based on the catastrophic hazards, does the plan identify decision points/triggers for 

implementation of evacuation?

Based on the catastrophic hazards, does the plan identify the estimated time needed 

to complete the evacuation, and is this coordinated with highway, law enforcement, and 

transit agencies?

Based on the catastrophic hazards, does the plan identify the distance evacuees must 

travel to ensure their safety?

Based on the catastrophic hazards, does the plan identify the estimated time public 

sheltered evacuees will need support?

does the plan require tasked organizations to identify, obtain, and maintain resources 

and equipment required to support all aspects of the evacuation (e.g., evacuating 

people that do not have their own means of transport, evacuating special needs 

populations, communicating information to the public, and managing traffic flow)? 

does the plan include evacuee host communities in disaster declarations?

does the plan require organizations to prepare sops that contain the detailed 

instructions that responsible individuals must follow to accomplish assigned tasks?

does the plan contain provisions for determining evacuation routes?

does the plan contain provisions to manage timely communication of evacuation 

instructions to prepare people in advance of the order to evacuate?

2
 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
✔ Planning and PreParedness 

does the plan identify contingency plans for use if normal means of public 

communications are unavailable? 

does the plan provide for communicating with people that have limited English 

proficiency?

Does the plan include provisions for communicating with special needs evacuees (e.g.,

people with hearing, vision, and physical impairments) and the means to communicate?

is there a designated spokesperson to provide information to the media and the 

public?

does the plan provide for keeping the public informed of the estimated travel times to 

safe haven under current conditions?

does the plan address the communication of alternative routes and/or transportation 

modes?

does the plan contain sample/pre-scripted messages for use?

does the plan include provisions for movement of required assist devices such as 

wheelchairs, life support systems, service animals, and communication equipment?

does the plan identify special needs populations in the community by geographic 

location (e.g., hospitals, nursing homes, and assisted care facilities)? 

does the plan contain provisions for coordination with the most appropriate 

community outreach agencies to transport special needs populations? 

does the plan contain a policy with respect to bringing service animals and pets to 

shelters or on board transit vehicles, planes, helicopters, etc.?

does the plan include provision for sheltering those evacuees with pets?

does the plan make provisions for evacuating schools and day care centers?

does the plan make provisions for evacuating mobile home parks and campgrounds?

Does the plan make provisions for evacuating incarcerated residents (e.g., those in 

prisons, jails, juvenile facilities, and drug treatment centers)?

Does the plan make provisions for evacuating transient populations (e.g., tourists,

seasonal workers, and homeless)? 

does the plan include the use of public transit vehicles, school buses, and paratransit 

vehicles? 

Does the plan include the use of non-government agency vehicles (e.g., church buses 

and volunteer group vehicles) as a contingency? 

does the plan identify accommodations for the transport of luggage, etc., and how 

evacuees are informed about any restrictions or limitations?

does the plan address provisions made to transport evacuees to pick-up points/

staging areas?

does the plan require evacuation routes to be designated, marked, and communicated 

to the public?

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 3

✔ Planning and PreParedness 

Does the plan address the safety of routes to be used for evacuation (e.g., roads, 

bridges, railways, waterways, and airstrips)? 

Does the plan indicate whether the agreements provide for sufficient space to house 

the worst-case estimate for the number of evacuees needing shelter? 

Does the plan address provisions for identifying and evacuating animals (e.g., animals 

in farms, kennels, veterinary hospitals, zoos, theme parks, pet stores, and university 

laboratories)? 

✔ readiness 

what may cause an evacuation within the jurisdiction? 

How are key officials alerted of the possible need to evacuate? 

does the plan document the decision criteria to be monitored and evaluated before 

issuing an evacuation order? 

How large is the area to be evacuated and how many people are affected? 

Does the plan identify organizations and individuals (by position) responsible for 

providing data to support the evacuation decision? 

does the plan identify when evacuation personnel are to be advised of a possible 

evacuation prior to its execution? 

does the plan identify checklists of actions for evacuation personnel prior to issuance 

of an evacuation order? 

✔ aCTivaTion 

who issues an evacuation order? 

How and when is an evacuation order communicated to the public? 

Does the plan identify what agencies report to the EOC and how they are notified to 

report? 

does the plan address activation of the tmc if it is not already operational? 

How long does it take to have field personnel and equipment in place to support the 

evacuation? 

Does the plan define specific criteria for issuing voluntary, recommended, or 

mandatory evacuation orders? 

does the plan contain pre-approved drafts of executive orders for evacuations? 

does the plan address amending or revising the evacuation orders? 

Does the plan describe time phasing of evacuation execution (i.e., sequential and 

concurrent activities) for different levels of evacuation response? 

does the plan contain provisions to announce closings of schools and businesses in the 

risk area? 


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
✔ aCTivaTion 

does the plan identify a system for notifying and coordinating with neighboring 

jurisdictions about what evacuation routes should be used and when? 

Does the plan include provisions for notification and coordination with host 

communities, non-governmental organizations, and other risk communities to address 

shelter activation and operations?

✔ general for boTh Tiers 

does the plan include monitoring evacuation/re-entry operations of motorized 

transport, rail, air, water, and other modes of transportation to determine the adequacy 

of available resources? 

Does the plan identify the provisions made to monitor traffic conditions on the 

evacuation/re-entry routes and make operational adjustments as appropriate to 

maximize throughput? 

✔ Tier 1 oPeraTions: evaCuaTing PeoPle from harm ’s way 

who manages an evacuation’s operations?

what highway evacuation routes should be used?

What tools should be used (e.g., communication tools and traffic control devices 

including ITS)? 

what methods of communication will likely be most effective within the existing 

constraints?

what barriers to effective communication are likely to be encountered?

does transport need to be provided and if so, for how many people?

How are transport resources obtained, managed, and coordinated?

How is special needs transport provided?

what information is available on potential users of special needs transport?

Who needs to be informed to open a shelter(s)? 

How is the event that triggered the evacuation progressing, and is there any change to 

earlier predictions of effects? 

Does the plan identify specific contingency plans that can be used if conditions change 

during the course of an evacuation?

does the plan contain a strategy for securing and restricting access to evacuated areas?

does the plan address informing evacuees of available transportation modes, how to 

access them, and any restrictions on what evacuees may carry with them?

does the plan address informing evacuees about when transportation assistance should 

begin and end and the frequency of departure at designated pick-up locations?

these questions are divided among general,tier 1, and tier 2 phases of the 

evacuation.

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

✔ Tier 1 oPeraTions: evaCuaTing PeoPle from harm ’s way 

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? 

does the plan address informing evacuees of their destination before boarding public 

transport?

does the plan address informing the public and/or family members of evacuee 

destination?

does the plan address providing the public with information about available services 

along evacuation routes and at shelters?

does the plan identify established web sites, hotlines, etc. where people can get answers 

to their questions/concerns?

does the plan address communicating security measures to the public so they are not 

concerned about possessions left behind?

does the plan identify support services that are available for those with special needs?

does the plan indicate that highway conditions are reported on emergency radio 

announcements for travelers en route?

does the plan address contingency plans in place if normal means of communication 

are unavailable?

does the plan address contingency plans for obtaining additional evacuee transport 

vehicles, if needed?

does the plan provide coordination to prevent over-tasking of transportation resources 

where neighboring jurisdictions also require support from the same resource provider?

Does the plan address coordination with the next higher level of government (local 

to State, and State to Federal) to ensure unmet transportation resource needs are 

identified and requested to support evacuations? 

does the plan address the use of standby contracts with motor coach companies, 

paratransit providers, ambulance companies, railroads, air carriers, etc., to obtain 

operators and equipment to fill identified transportation shortfalls? 

does the plan require critical operational changes to be communicated to the Eoc 

and the public? 

does the plan identify provisions to control access to evacuation routes and manage 

traffic flow? 

does the plan address strategies and responsibilities for maintaining evacuation route 

capacity, especially with regard to work zones, toll collection, vehicle incidents, etc.? 

does the plan address strategies and responsibilities for providing food, water, 

restrooms, fueling stations, and rest stations for evacuees along the evacuation routes, 

including those for special needs populations? 

Does the plan include resource lists to support evacuation routes (including all resource 

needs identified above)? 

Does the plan contain specific contraflow plans that have been developed, tested, and 

coordinated with all affected parties? 


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
✔ Tier 1 oPeraTions: evaCuaTing PeoPle from harm ’s way 

does the plan address strategies for emergency responders, transit vehicles, and other 

essential equipment to move inbound against the predominant outbound flow? 

Does the plan address communicating information with the public on the contraflow 

plans and the beginning and ending times for contraflow operations? 

Does the plan identify a system for communicating and coordinating contraflow 

operations with neighboring jurisdictions?

does the plan contain a system for keeping shelter information current during the 

evacuation?

does the plan contain a system for acquiring and communicating information to 

evacuees on the availability of non-public shelters such as hotels?

does the plan include provisions for keeping shelter operators informed on the location 

and status of alternate shelters?

does the plan require travel routes to the shelters and the shelters to be marked?

Does the plan provide for trained personnel to support the evacuation route (food, 

first aid, information, etc.)? 

✔ Tier 2 oPeraTions: evaCuee re -enTry 

who should make the decision to return? 

What factors should influence a re-entry decision? 

what is the damage to the areas where evacuees will return?

are businesses operating; can basic goods and food be obtained?

is there an outbreak of disease or any other health or medical issue that should be 

addressed prior to issuing an “all-clear?” 

Have any hazardous material spills been cleaned up? 

Are utilities functioning (e.g., water running to the homes/businesses, available 

electricity)? 

are evacuation routes clear of debris and safe to travel upon?

are public transit systems operational?

are there any populations that should not be allowed to return due to health and 

medical or public safety concerns?

Have injured or deceased persons and animals been attended to and recovered from 

the area?

How should re-entry be communicated to the public?

should mutual-aid re-entry be done in phases?

does the plan include provisions for transporting evacuees who did not self-evacuate 

back to their place of residence?

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

✔ Tier 2 oPeraTions: evaCuee re -enTry 

does the plan identify personnel resources and equipment required to support 

re-entry? 

does the plan include provisions for assisting evacuees who did not self-evacuate in 

reuniting with family members? 

✔ reTurn To readiness 

How should mutual-aid partners be reimbursed for their costs expended for the 

evacuation? 

does the plan explain how expenditures are to be documented for reimbursement? 

what is the policy of the evacuation team members’ home organization regarding 

recovery time and time to participate in aar and other return-to-readiness activities? 

who is responsible for conducting an aar and ensuring necessary changes are made 

to plans and sops and communicated to staff? 

what equipment and supplies need to be restocked? 

what new information needs to be communicated to the public to maintain their 

awareness to be prepared? 

Does the plan indicate that the contraflow plans have been tested in an exercise or 

drill, or in a real evacuation? 

does the plan require periodic reviews and updates of the plan, exercises, and aars as 

part of the planning process? 

does the plan provide for updating mutual-aid agreements? 

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good PraCTiCe: 

use The Tools 

traveler 

information—511 

loudspeakers 

Handouts 

rEvErsE 911® 

roadside information 

vms 

media 

pa and E-mail systems 

telephone 

call centers 

Traffic control tools 

tim capabilities and 

assets 

Traffic counting 

devices 

Traffic signals and 

signal timing and preemption plans 

ramp meters and 

gates 

Traffic signs 

pavement markers 

Hov and reversible 

lanes 

tmcs 

Evacuation models, 

including orEms, 

massEvac, 

HUrrEvac, 

Evacuation travel 

demand forecasting 

system 

plume modeling 

clarus 


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

Tools for effeCTive highway evaCuaTion 

oPeraTions 

there are many tools available to support highway evacuations, and they fall into 

three broad categories: communications; traffic control; and evacuation, weather, and 

assessment monitoring and prediction as described in the following sections. 

CommuniCaTion Tools 

with technology changing rapidly, there are many more tools available to successfully 

execute an evacuation. But it is also important to use some “tried and true” methods 

that may not be considered “high tech” but that serve a useful purpose depending 

on the circumstances of the evacuation. for example, if there are widespread power 

outages some tools may not be available for communications with the public and 

among the emergency response teams. perhaps the most important message is that 

governments need a variety of tools at their disposal and the ability to choose which 

to use in an evacuation. 
Traveler information-Dial 511 – as previously noted, many states have robust 

511 or other telephone traveler information systems.these systems may be used to 

aid evacuees who have access to landline or cellular telephones prior to or during the 

evacuation. 

loud speakers – many communities have loud speakers mounted on posts in the 

community that can be used to broadcast information. likewise, many public service 

vehicles, like police cars, can broadcast information over a loud speaker as they move 

through an area. Both can be valuable tools depending on whether providing informa

tion in a specific geographic area (post-mounted speakers) or in a larger area where 

information needs to be provided quickly (a roving vehicle with a speaker). 

siren systems – some communities, particularly those areas that are prone to 

tornados or tsunamis, have siren systems, which can be used to alert people to take 

immediate action to ensure their safety. 

Handouts – Handouts take many forms such as flyers distributed at a highway rest 

area or on a transit vehicle, information posted on bulletin boards, or informational 

pamphlets with preparedness tips such as those often provided by public agencies 

at the start of hurricane season.the goal is to provide the public with the informa

tion that governments want to share, whether it is in preparation for a hurricane, or 

as part of an evacuation to provide information about alternate highway routes or 

where to find food and shelter. Handouts should be provided in a variety of languages 

in accordance with the demographics of the area. 

reVerse 911 – this system allows government agencies with this technology 

to place thousands of telephone calls simultaneously to residents with local phone 

service.these calls can be used as a public warning system to alert residents of the 

need to act in an emergency.these systems are designed to send thousands of calls 

within 30 minutes. Depending on system capabilities, officials can target messages to 

residents in specific geographic areas affected by varying levels of evacuation.When 

using these systems, special arrangements need to be made for the hearing impaired 

(Telephone Device for the Deaf is an optional feature), those unable to understand 

the contents of messages, and those properties without telephones. 

the following provides a list of potential communication tools available for this 

purpose:

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roadside information locations – there are many locations where motorists 

may receive information during an evacuation, including rest stops, welcome centers, 

turnpike service plazas, toll facilities, visitor information centers, hotels, restaurants, 

and gas stations. information can also be provided to truckers at weigh stations, truck 

stops, and agricultural inspection stations as well as through trucking associations. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

Media – the media can play a critical role in an evacuation due to their ability to 

reach large numbers of people simultaneously.the media may be television, radio, 

and newspaper including the Emergency Alert System (EAS) as well as media outlet’s 

websites. it is important for the government to provide timely and accurate informa

tion to the media so that they can share it as soon as possible with their audience. 

it is also important for the media to know when regular updates of information 

should occur to ensure they are prepared to share it when available.a cross-section 

of media is also important. for example, some radio stations cater to different age 

groups or people who speak other languages, so a wider selection of media, increases 

the opportunity to reach a wider audience. it is also important on the television 

broadcast media to provide the information through a person who provides sign 

language interpretation as well as closed captioned information for the hearing 

impaired. 

Cell Phones – today’s cell phone technology allows information to be broadcast 

directly to many cell phone users based upon their subscription to a specific service, 

or allows the users to provide information both verbally and through photos to 

emergency responders, as happened with the london subway bombing in 2005. 

Examples range from some transit systems sending information on when the next bus 

should be arriving at a given location to several companies providing real time traffic 

VMs – these include those already on the highway and portable signs that can be 

pre-staged and moved to routes along the highway.vms can broadcast evacuation 

route and shelter information. 

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eas – the Eas enables the president with the capability to provide immediate 

communications and information to the general public at the national, state, and 

local levels the Eas may be used to provide heads of state and local governments or 

their designated representatives with a means of emergency communication with the 

public in their state or local area.the Eas overseen by the federal communications 

Commission (FCC), includes certain AM, FM, Low-power FM and TV broadcast 

stations; class a television stations; low-power tv stations; cable systems; wireless 

cable systems; and other entities as agreed to by the fcc. 

Public access Cable Television – many local governments operate cable channels 

and can use such channels to broadcast information to the public. 

Television Text services and the internet – this tool is not for emergency 

alerts, but is useful for posting detailed information that would be communicable by 

emergency calls or broadcasts. 

organizational Public address and e-mail systems - messages can reach a 

large number of staff quickly. 

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 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
TiM assets – many states and localities have tim programs.tim allows for collabo

ration across government and the private sector, including between transportation 

and public safety, to ensure that response to incidents is quick to minimize disruptions 

to the flow of traffic. Good TIM during an evacuation is especially important as even 

a minor accident could delay the clearance of an area by several hours. personnel 

and assets assigned to tim programs such as motorist assistance teams may form the 

base of an Eot or provide operational support to an Eot during an evacuation.tim 

personnel are usually trained in ics. 

Traffic Counting Devices – most state and local transportation agencies have a 

routine traffic counting program that enables them to record the number of vehicles, 

types of vehicles, travel direction of vehicles, and the time of day of vehicle travel. 

Personnel in the field may do these counts manually, by portable counting tubes 

placed across the roadway, or by permanent sensors placed in the roadway pavement. 

information to their subscribers.this real time information could be very useful during 

an evacuation. in addition, some companies are exploring the use of gps to pinpoint 

drivers and provide specific information, such as an evacuation route, directly to their 

cell phone in an emergency situation. cell phone alerts, voice and text, can also be 

used to notify government emergency management staff and elected officials of the 

need to respond to an impending emergency situation. 

Call Centers – many agencies provide a toll-free hotline for people to call during 

an emergency to receive information.the hotline may be used to provide evacuation route information, shelter locations, or other information important to evacuees. 

often these numbers are the same as the agency’s general information number, but 

the agency increases the number of staff available to respond to inquiries during times 

of emergency.the call centers should also be equipped to respond to the needs 

of the hearing impaired with the appropriate devices such as telecommunications 

Device for the Deaf (TDD). 

TraffiC ConTrol Tools 

Traffic control tools range from the traditional tools such as signs and traffic signals 

to ITS tools as discussed earlier in this primer.Where available, both types of traffic 

control tools should be used. since its has already been discussed, this section 

focuses on the more traditional means of controlling traffic and how they might 

be used in an evacuation.A complete listing of traffic control devices applicable 

to incident and emergency management may be found in the manual on Uniform 

Traffic Control Devices (MUTCD).A link to the MUTCD is included in the “Other 

information resources” section of this primer. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 1

Traffic signals -Traffic signals at intersections may be stand-alone devices or inter

connected through a computerized signal system.when computerized, the timing of 

the traffic signal cycles can be easily modified for an evacuation, changing the signal 

timing to give longer “green time” in the direction of the evacuation and on evacua

tion routes assisting in moving more vehicles in a shorter amount of time.the signal 

timing must take into account other travel needs such as the ingress of emergency 

vehicles and equipment. Some traffic signals may be placed in “flash mode” to allow 

more through travel or may be operated manually by a law enforcement officer at an 

intersection.Traffic signal timing adjustments may also be needed to support re-entry 

operations. Some communities have installed an uninterruptible power supply (UPS) 

on their traffic signal system or have equipped key intersections with generators to 

ensure the traffic signals continue to operate if power is lost in the area. 

Traffic signal Timing Plans – Many locations plan in advance for the modification 

of their traffic signal timing for an evacuation.This allows signal timing to be changed 

quickly and law enforcement to know what to expect in terms of changing traffic 

patterns. signal timings are often developed in advance for detour routes that may 

also be needed in the event of an emergency.this information should be incorpo

rated into evacuation plans and sops. 

Traffic signal Pre-emption – some locations have installed pre-emption devices 

on some traffic signals.These pre-emption devices allow an approaching emergency 

vehicle to change the traffic signal timing pattern to allow them to proceed unim

peded through the intersection. 

ramp Meters – Some locations have ramp meters, which are traffic signals on 

freeway entrance ramps that stop traffic at certain intervals to allow for the timed 

entry of vehicles on the ramp into the main flow of traffic. 

ramp gates – a few locations have installed gates at freeway entrance and exit 

ramps that can be used to prevent traffic from entering and exiting the freeway at 

certain locations.These may be especially useful if contraflow is being used for an 

evacuation. 

Traffic signs – All highways have some form of traffic control signs to control speed 

and provide other regulatory information. signs are also used to provide information 

to motorists. in an evacuation, these signs may be used to designate an evacuation 

route or show the location of shelters, or perhaps contraflow traffic patterns. In some 

locations, flip down signs have been installed that can be flipped down to provide 

the value of this data in an evacuation is providing information about the progress of 

the evacuation, the number of vehicles evacuating and their destination, so that those 

executing the evacuation and those receiving the evacuees can be better prepared. 

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 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
Pavement Markings – all highways have some type of pavement markings to 

designate travel lanes, emergency lanes, High occupancy vehicle (HOV) lanes, 

merge locations, etc. some locations use pavement markings to show that the road is 

an evacuation route or that emergency lanes can be used as travel lanes in an evacua

tion, or have mileage markers or exit numbers allowing those doing aerial monitoring 

of an evacuation to pinpoint specific locations. 

HoV lanes – some cities have designated Hov lanes that are usually used to 

speed rush-hour traffic for those willing to share the ride. In emergencies, some 

locations use the Hov lanes as an extra lane for evacuation or as an ingress lane for 

emergency vehicles and supplies. 

frontage roads – some cities have frontage roads along limited or controlled 

access roadways.these frontage roads can provide a means to circulate emergency 

vehicles during an evacuation. 

reversible lanes – in some locations, highways and bridges have been built with 

reversible lanes both on freeways and arterials.These lanes can be modified to 

switch the direction of travel during peak hours to accommodate rush-hour traffic. 

reversible lanes could also be employed in an evacuation as necessary. 

TMCs – the mission of tmcs is to facilitate the safe movement of people and goods, 

with minimal delay, throughout the roadway system.TMCs achieve their mission by: (a) 

maximizing the available capacity of the area-wide roadway system; (b) minimizing the 

impact of roadway incidents (accidents, stalled vehicles, and debris); (c) contributing to 

the regulation of demand; (d) assisting in the provision of emergency services; and (e) 

creating and maintaining public confidence in the TMC. 

Clarus -this is a system that helps predict weather conditions. for those evacuating 

in advance of a severe storm, weather information plays a key role in their safety. 

tropical storms and hurricanes may spawn tornados well in advance of the front 

and may inundate an area very rapidly. many victims of storms actually perish due to 

resultant flooding or secondary tornados.Travelers must be aware of the weather and 

their environment at all times when evacuating an area. clarus and other modeling 

tools that are available through the national weather center are vital to assessing 

emergency information and flipped up when an evacuation is not underway. Some 

locations have installed signs on the back of other traffic signs that can only be seen 

during contraflow operations. 

evaCuaTion,weaTher,and assessmenT moniToring 

and PrediCTion Tools 

the following are transportation, weather, and assessment monitoring and prediction 

tools that can support an evacuation. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 3

Dynamic network assignment-simulation Model for advanced road 

Telematics (Planning version) – DYnasMarT-P – fHwa supported the 

development of this model by the University of maryland to support network plan

ning and traffic operations decisions through the use of simulation-based dynamic 

traffic assignment. FHWA is examining the application of this model for emergency 

transportation management analysis. 

evacuation Traffic information system (eTis) - fHwa currently supports 

the Etis, which is a web-based program that facilitates the sharing of evacuation and 

traffic information among coastal states in the Gulf Coast and southeast from Texas to 

Virginia.The ETIS supports decisions such as evacuation type (e.g., voluntary, manda

tory, staged) and implementation of contraflow or lane-reversal operations.The ETIS 

was originally developed under U.s.army corps of Engineers auspices, but is now 

under fHwa sponsorship, and operated by its private developers. 

evacuation Travel Demand forecasting system – this is a macro-level evacu

ation modeling and analysis system that was developed in the aftermath of Hurricane 

Floyd to address the need to forecast and anticipate large, cross-state traffic volumes. 

This is a web-based travel demand forecast system that anticipates evacuation traffic 

congestion and cross-state travel flows for North Carolina, South Carolina, Georgia, 

and florida.the Evacuation travel demand forecasting system model was designed 

so emergency management officials can access the model on-line and input hurricane 

category, expected evacuation participation rate, tourist occupancy, and destination 

percentages for impacted counties.the output of the model includes the expected 

level of congestion on major highways and tables of vehicle volumes expected to 

cross state lines by direction. 

dangers to evacuees while traveling along the evacuation route. 

Consequence assessment Tool set/Joint assessment of Catastrophic 

events (CaTs/JaCe)- this model was developed under the guidance of fEma 

and the defense threat reduction agency.the cats/JacE software provides disaster 

analysis in real time with an array of information integrated from a variety of sources. 

the software is deployable for actual emergencies with capabilities including contingency and logistical planning as well as consequence management.the cats program 

integrates hazard prediction, consequence assessment, and emergency management 

tools with critical population and infrastructure data. it uses tools and data that 

predict the hazard areas caused by manmade events and natural disasters including 

earthquakes and hurricanes. cats assists with estimating collateral damage to facilities, resources, and infrastructure, and creates mitigation strategies for responders. 

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Hazard u.s. – Multihazard (HaZus-MH Mr2) - developed by fEma, this 


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
Hurricane and evacuation (HurreVaC) -this is a program that uses gis 

data to correlate demographic data with shelter locations and their proximity to 

evacuation routes to estimate the effect of strategic-level evacuation decisions. 

oak ridge evacuation Modeling system (oreMs) – this is an evacuation 

analysis tool designed to simulate traffic flow during various defense-oriented emer

gency evacuations.the model can be used to estimate clearance times and identify 

operational traffic characteristics and other information such as evacuation routes and 

times necessary to develop evacuation plans. it also allows users to experiment with 

alternate routes, destinations, traffic control and management strategies, and evacuees’ 

response rates. 

Plume Modeling Tools - these are models used to predict where a plume may 

travel from its release location.the plume may be created by a radiological release, 

chemical release, smoke from fires, or some other situation that causes airborne 

contaminants to travel across an area.there are many plume models in use and most 

are specific to the type of event and can be modified to accept site specific data such 

as wind speed, direction, and others factors affecting the spread of the plume. such 

models are important in determining where a plume may spread and how fast it 

may travel, and in defining a geographic area that should be evacuated or an area for 

occupants to shelter-in-place.

sea, lake, and overland surges from Hurricanes (slosH) -the 

most widely applied flooding model for evacuation analysis is the SLOSH model. 

developed by the nws to predict hurricane storm surge for a given set of condimodel is a loss estimation and risk assessment program covering earthquakes, hurri

canes, and flooding. By modeling the physical world of buildings and structures and 

then subjecting it to the complex consequences of a hazard event, users can imple

ment this tool to prepare for a natural disaster, respond to the threat, and analyze the 

potential loss of life, injuries, and property damage. 

Mass eVaCuation (MassVaC) – this is a macro-level model originally developed for the purpose of modeling nuclear power plant evacuations. more recently, it 

was applied to test operational strategies for hurricane evacuations in virginia. 

network emergency evacuation (neTVaC) - nEtvac was developed as 

part of the reaction to the three-mile island nuclear reactor incident in 1979.while 

strong in terms of a response to a point-a-to-point-B situation, it is limited in application to hurricane evacuation, which often includes multiple points a and B. However, 

transportation and emergency managers may seek to use this model to analyze route 

selection, intersection controls, and lane management. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

Traffic estimation and Prediction system (TrePs) - FHWA has been 

working on Dynamic Traffic Assignment research projects.The main objective of the 

research projects is to develop a deployable real time Traffic Estimation and Prediction 

System (TrEPS). 

tions (e.g., hurricane strength, wind speed, direction of movement, and geography), it 

is also used to help plan evacuation routes and locate emergency shelters based on 

estimates of which geographic areas could be flooded under certain storm scenarios. 

the nHc, in coordination with federal, state, and local organizations, has developed 

SLOSH models for over 38 water basins along the Atlantic and Pacific Ocean coastal 

areas with 14 “SLOSH Basins” covering the State of Florida 

fuTure direCTions 

fHwa is working with transportation agencies and their partners to improve planning and the use of technology in emergency transportation operations.these areas 

cover: 

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Better regional and transportation operations planning with training and 

exercises 

transportation agencies’ effective working relationships with other responders, 

including police, fire, emergency medical, public health, military, and intelligence 

agencies 

Use of smarter and more powerful tools to support updated evacuation models 

and prepare traffic response scenarios 

transportation agencies’ understanding and readiness to work with other 

responders at the incident scene through the use of the ics 

Extension of tim programs to evacuation procedures 

Agencies’ identification of critical information technology resources, assessment of 

the risks, and identification and implementation of counter measures 

How to protect communications networks and tmcs 

agencies’ prioritization and implementation of intelligent infrastructure along 

critical evacuation routes 

Understanding and implementation of agency communications systems that are 

compatible with other modes and other responders. 


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
oTher informaTion resourCes 

fHwa and other parts of the U.s. dot stand ready to support local, regional, state, 

and federal organizations as they engage in critical evacuation planning efforts. in this 

vein, we will continue to provide resource materials and information on best prac

tices, lessons learned, and resources to help develop a better evacuation plan.to get 

started, the following is a preliminary list of resources on this topic. please refer to 

www.ops.fhwa.dot.gov/opssecurity for new studies, resources, and materials that may 

aid in efforts to “build a better plan.”

For more information on a specific topic, please visit the following online resources:

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Contraflow Evacuation Workshop materials available at http://www.teachamerica. 

com/contraflow/Index.html 

Emergency Alert System (EAS) available at http://www.fcc.gov/eb/eas 

Emergency Information Infrastructure Project (for professional development of 

emergency responders) available at http://emforum.org 

Emergency Management Assistance Compact (EMAC) available at www. 

emacweb.org 

Evacuation Liaison Team (ELT) available at http://ops.fhwa.dot. 

gov/weather/mitigating-impacts/programs-external 

federal assistance information available at https://www.disasterhelp.gov/portal/ 

jhtml/index.jhtml 

Florida Contraflow information available at www.onewayflorida.com 

fHwa Emergency relief information and manual available at http>//www.fhwa. 

dot.gov/programadmin/erelief.html and 

http.//www.fhwa.dot.gov/reports/eem/index.htm 

fHwa Emergency relief for federally owned lands information available at 

http://www.fhwa.dot.gov/flh/erfo.htm 

Hazardous Materials Response CD-ROM (CHRIS+) available at no cost from the 

U.s. coast guard at 202-372-1421 or alan.i.schneider@uscg.mil 

Highway capacity manual available at http://trb.org 

Houston transtar available at http://www.houstontranstar.org 

intelligent transportation systems available at http://www.its.dot.gov/index.htm 

lessons learned information sharing available at www.llis.gov 

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mid atlantic all Hazards forum available at www.allhazardsforum.com 

National Voluntary Organizations Active in Disasters (NVOAD) available at 

htto://www.nvoad.org 

real time system management information program available at www.fhwa.dot. 

gov/safetealu/factsheets/realtimesmi.htm and http://ops.fhwa.dot.gov/travelinfo 

response & recovery library available at http://www.fema.gov/library/ 

respandrecov.shtm 

children in Emergencies available at http://www.savethechildren.org/emergencies/ 

usa/gulf_coast_hurricane_shriver.asp 

Urban search & rescue available at 

http://www.fema.gov/emergency/usr/index.shtm 

national weather service storm ready available at 

http://www.nws.noaa.govhttp://www.nws.noaa.gov 

road weather management available at 

http://ops.fhwa.dot.gov/weather/index.asp 

the following documents have been referenced in this guide and contain further 

information on general principles of emergency planning. 

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citizen corps support for Hurricane Katrina response and recovery Efforts. 

citizen corps.available at 

http://www.citizencorps.gov/doc/cc_support_Katrina_1005.doc 

communicating with the public Using atis during disasters concept of 

operations. available at 

http://www.itsdocs.fhwa.dot.gov//Jpodocs/rEpts_tE//14262.htm 

development of Evacuation time Estimate studies for nuclear power plants 

(NUREG/CR-6863). Available at 

http://www.nrc.gov/reading-rm/doc collections/nuregs/contract/cr6863/index.html 

Effective Risk Communication (NUREG/BR-0318).Available at http://www.nrc. 

gov/reading-rm/doc-collections/nuregs/brochures/br0308/index.html 

Emac 2005 Hurricane season after-action report.available at 

http://www.emacweb.org/?1455 

guide for all-Hazard Emergency operations planning. federal Emergency 

management agency, september 1996.available at 

http://www.eh.doe.gov/feosh/slg101.pdf 


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High-risk area Hurricane survey by the Harvard school of public Health, July 

2006.available at http://www.hsph.harvard.edu/hurricane/topline.doc 

Identification and Analysis of Factors Affecting Emergency Evacuations - Main 

Report (NUREG/CR-6864,Vol. 1).Available at 

http://www.nrc.gov/reading-rm/doc-collections/nuregs/contract/cr6864/v1/ 

Identification and Analysis of Factors Affecting Emergency Evacuations - 

Appendices (NUREG/CR-6864,Vol. 2) Available at 

http://www.nrc.gov/reading-rm/doc-collections/nuregs/contract/cr6864/v2/ 

integration of Emergency and weather Elements into transportation management 

centers, february 2006.available at 

http://www.itsdocs.fhwa.dot.gov//Jpodocs/rEpts-tE//14247.htm 

Manual on Uniform Traffic Control Devices (MUTCD).Available at 

https://mutcd.fhwa.gov 

National Incident Management System (NIMS). Department of Homeland Security. 

march 2004.available at 

http://www.fema.gov/pdf/emergency/nims/nims_doc_full.pdf

national response plan, department of Homeland security, december 2004. 

available at http://www.dhs.gov/interweb/assetlibrary/nrpbaseplan.pdf 

recommended Emergency preparedness for Urban, rural and specialized transit 

systems, U.s. department of transportation, research and special programs 

administration report. John a.volpe national transportation systems center. 

January 1991.available at transit-safety.volpe.dot.gov/publications 

report to congress on catastrophic Hurricane Evacuation plan Evaluation.

available at http://www.fhwa.dot.gov/reports/hurricaneevacuation/index.htm

Simplified Guide to the Incident Command System for Transportation 

Professionals. US Department of Transportation. FHWA Office of Operations. 

February 2006 (FHWA-HOP-06-0004) Available at 

www.ops.fhwa.dot.gov/publications/ics_guide 

the federal response to Hurricane Katrina: lessons learned, february 2006. 

available at http://www.whitehouse.gov/reports/katrina-lessons-learned.pdf 

Traffic Signal Timing for Urban Evacuation,August 2005.To be posted by FHWA in 

late 2006 

transportation and Emergency preparedness checklist.available at 

http://www.dotcr.ost.dot.gov/asp/emergencyprep.asp

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 

0 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
glossary of tErms 

activated – direction is provided to personnel to report to their assigned location 

to support an evacuation. 

advanced Traveler information systems (aTis) – ATIS provide traffic 

information and travel recommendations and guidance to drivers to help them make 

better travel decisions. 

after-action report (aar) - a report consisting of a summary of lessons 

learned from an incident.the aar should include recommendations for improve

ments, and it is important for decision makers and agency personnel to consider and 

implement those recommendations quickly. 

agency representative - an individual designated by an assisting agency for the 

purpose of making authoritative decisions on matters affecting the agency’s participa

tion at the incident. 

alerted – notice is provided to personnel of their need to report to their assigned 

location to support an evacuation. 

Contraflow – Contraflow or lane reversal is utilized during mass evacuations on 

major limited or controlled access highways to reduce the duration of an evacuation 

by opening up all lanes in one direction. 

emergency event – an incident or occurrence that requires an immediate 

response to bring the situation under control and restore normality, and which 

can threaten the health or safety of those involved, responders, and people in the 

surrounding area. 

emergency operations Center (eoC) – the Eoc is an established location/ 

facility in which local and State staff and officials can receive information pertaining 

to an incident and from which they can provide direction, coordination, and support 

to emergency operations.this is where the decision makers and support agencies 

should report to manage an evacuation. 

emergency support function (esf) annexes – found in the nrp, the Esfs 

detail the missions, policies, structures, and responsibilities of federal agencies for 

coordinating resource and programmatic support to states, tribes, and other federal 

agencies or other jurisdictions and entities during Incidents of National Significance. 

the introduction to the Esf annexes summarizes the functions of Esf coordinators 

and primary and support agencies. 

evacuation -the process by which people are moved away from a place where 

there is immediate or anticipated danger to a place of safety, offered appropriate 

temporary welfare facilities, and enabled to return to their normal accommodation 

and activities when the threat to safety has passed, or to make suitable alternative 

arrangements. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 1

evacuation liaison Team (elT) - the Elt is comprised of members from the 

fHwa, fEma, and the U.s.army corps of Engineers.the Elt serves as the focal 

point for coordination and communication among states during an evacuation.the 

Elt is activated for category 3 or higher hurricanes that may necessitate multi-state 

evacuations.when activated, Elt activities are coordinated from the fEma regional 

operations center in atlanta, ga. 

evacuation operations Team (eoT) -the Eot comprises personnel from 

a variety of disciplines including but not limited to TIM teams, public safety officers 

(police, fire, rescue, emergency medical services), road maintenance workers, debris 

clearance personnel, utility representatives, and transportation and transit planners to 

plan and manage the evacuation. 

first responder – this is the first responding unit to arrive at an incident scene. 

this term has traditionally been used to describe public safety emergency responders 

who have duties related to preservation of life and property.as transportation agen

cies become more actively involved in traffic incident response and take active roles in 

Incident Command (as partners in Unified Command), they are becoming accepted 

as first responders for traffic incidents. For example, motorist assistance teams may 

be first on the scene of an incident and many are trained to provide traffic control 

to stabilize the scene and provide emergency first aid. Some service patrols are also 

permitted limited use of emergency lights and sirens to get to an incident. 

geographic information system (gis) – gis is a system for creating, storing, 

analyzing, and managing spatial data and associated attributes. it is a computer system 

capable of integrating, storing, editing, analyzing, sharing, and displaying geographically 

referenced information. 

Highway advisory radio (Har) – Har is used to broadcast information 

to motorists in a localized area and provide more information than can often be 

communicated with a vms. 

incident Command system (iCs) – this is a systematic tool used for the 

command, control, and coordination of emergency response. ics allows agencies 

to work together using common terminology and operating procedures to control 

personnel, facilities, equipment, and communications at a single incident scene. it facilitates a consistent response to any incident by employing a common organizational 

structure that can be expanded and contracted in a logical manner based on the level 

of required response. 

intelligent Transportation systems (iTs) – its encompass a broad range of 

wireless and wire-line communications-based information and electronics technolo

gies. One of the ways that transportation officials are responding to the need for 

information is through the application of its technologies. 

2
 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
in-Vehicle systems – these systems can provide a wide array of information to 

a motorist via a video display inside the vehicle. subscribers to these services can 

receive routine traveler information as well as emergency information. 

liaison officer – this is a command staff position consisting of a single person who 

acts as the on-scene contact point for representatives of assisting agencies assigned 

to the incident. A liaison officer may designate one or more assistants from either the 

same or another assisting agency or jurisdiction. 

Mandatory evacuation – this is a situation where authorities put maximum 

emphasis on encouraging evacuation and limiting ingress to potentially impacted areas. 

these events also occur when evacuation transportation plans go into effect. 

Mutual-aid agreement – this is a written agreement between agencies and/or 

jurisdictions to assist one another on request by furnishing personnel, equipment, 

and/or expertise in a specified manner. 

national incident Management system (niMs) – this is a system mandated 

by Homeland security presidential directive 5 that provides a consistent nationwide 

approach for governments, the private sector, and non-governmental organizations, to 

work effectively and efficiently together to prepare for, respond to, and recover from 

domestic incidents, regardless of cause, size, or complexity. 

national response Plan (nrP) – this is an all-discipline, all-hazards plan for 

the management of domestic incidents. Using the template established by the 

nims, the nrp provides the structure and mechanisms to coordinate and integrate 

incident management activities and emergency support functions across federal, 

state, local, and tribal government entities; the private sector; and non-governmental 

organizations. 

national Warning system (naWas) -the nawas is a national, intercon

nected telephone system that can be used to warn areas of impending emergencies. 

Preparedness – this is the range of deliberate, critical tasks and activities necessary 

to build, sustain, and improve the operational capability to prevent, protect against, 

respond to, and recover from domestic incidents. 

recommended evacuation – this is an evacuation issued when an event has 

a high probability of causing a threat to people living in at-risk areas. decisions of 

whether or not to leave are left to individuals and some special transportation 

arrangements are made. 

resource – resources include personnel or equipment assigned to perform a 

specific tactical operation at an incident. Resources can be organized into task forces 

or strike teams. 

Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 3

shadow evacuation – these evacuations involve people who are not in the danger 

area but choose to evacuate, thereby increasing the time needed to evacuate an area. 

shelter – this is a location where people evacuated from a disaster area can go to 

receive appropriate care until they can return to the evacuated area or be otherwise 

accommodated. 

staging area – this is a location established to enable positioning of and accounting 

for resources not immediately assigned.a staging area may include temporary feeding, 

fueling, and sanitation services as necessary. 

standard operating Procedure (soP) – this is a complete reference document detailing the procedures for performing a single function. 

Traffic Data recording system -this system is widely used by state dots for 

planning purposes to monitor and assess statewide traffic volume and speed char

acteristics.while the design of individual systems vary, they typically use a remote 

sensing system (i.e., pavement loops) and a basic traffic data recorder. 

Traffic Management Center (TMC) or Traffic operations Center (ToC) 

-the tmc or toc is the hub of a transportation management system, where 

information about the transportation network is collected and combined with other 

operational and control data to manage the transportation network and produce 

traveler information. it is the focal point for communicating transportation-related 

information to the media and the motoring public, and a place where agencies can 

coordinate their responses to transportation situations and conditions.the tmc links 

various elements of its such as vms, closed circuit video equipment, and roadside 

count stations enabling decision makers to identify and react to an incident in a timely 

manner based on real time data. 

Traffic Management Plan – this is a plan established to clearly direct and control 

the flow of traffic that has been interrupted with minimal disturbance to normal flow. 

the plan determines the placement of barricades, warning lights, or signs for the dura

tion of the highway incident impeding normal traffic flow. 

unified Command (uC) – this is one of two methods of performing the 

command function that employs multiple ranking personnel. Uc is used when an inci

dent affects multiple political or legal jurisdictions and/or involves several responding 

agencies with contrasting functional responsibilities and missions. 

Voluntary evacuation – this type of evacuation is targeted toward people most 

vulnerable to the threat, including offshore workers, persons on coastal islands and 

other flood prone areas, and other special populations having particularly long leadtime evacuation requirements.this also includes people in harm’s way from other 

events. No special traffic control or transportation measures are usually taken during 

voluntary evacuations, and people may remain if they so choose. 


 Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE 
Using HigHways dUring EvacUation opErations for EvEnts witH advancE noticE  

Technical report Documentation Page 

1. report no. 

fHwa-Hop-06-109 

2. government accession no. 3. recipient’s catalog no. 

4.title and subtitle 

routes to Effective Evacuation planning primer series: Using Highways during 

notice Evacuations operations 

5. report date 

december 2006 

6. performing organization code 

7. Author(s) 

nancy Houston 

8. performing organization report no. 

9. performing organization name and address 

Booz allen Hamilton 

8283 greensboro drive 

mclean,virginia 22102 

10.Work Unit No. (TRAIS) 

11. contract or grant no. 

12. sponsoring agency name and address 

federal Highway administration, Hoto-1 

U. s. department of transportation 

400 seventh street, s.w. 

washington, d. c. 20590 

13.type of report and period covered 

final report 

14. sponsoring agency code 

Hoto, fHwa 

15. supplementary notes 

Kimberly Vásconez, FHWA Office of Operations, Office of Transportation Operations, Contracting Officer’s Technical Representative 

(COTR). Primer was performed under contract to Booz Allen Hamilton. 

16. abstract

 Evacuations may involve hundreds or hundreds of thousands of people. regardless of the numbers, in each and every instance, the 

transportation network plays a key role in evacuating people out of harm’s way. recognizing the unique challenges posed by the 

disaster environment on mobility and the safe and secure movement of people and goods, the U. s. department of transportation’s 

(DOT’s) Federal Highway Administration (FHWA) seeks to improve evacuation planning and implementation by bringing to the emergency management community new ways of better using the transportation network before and during evacuations. 

This document constitutes the first of a primer series entitled “Routes to Effective Evacuations.” This primer is intended as a tool to aid 

local and state planners to maximize the use of the highway network in the development and execution of evacuation plans for their 

communities, states or regions. 

17. Key words 

Evacuations; notice Evacuations; Highways, disasters, Hurricanes; 

Emergency management planners 

18. distribution statement 

no restrictions. 

19. Security Classif. (of this report) 

Unclassified. 

20. Security Classif. (of this page) 

Unclassified. 

21. no. of pages 

85 

22. price 

Form DOT F 1700.7 (8-72) Reproduction of completed page authorized
Pub# fHWa-HoP-06-109 

produced in collaboration with intelligent 

Transportation Systems Joint Program Office (ITS JPO)