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no liability for the use of the information contained in this document. This report does 

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this report only because they are considered essential to the objective of the document.

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Cover Image Sources: Top Left – Car in water: iStockphoto®/License agreement.

Middle Left – Merge right sign: Cambridge Systematics, Inc.

Bottom Left – Traffi c: Comstock Images/License agreement.

Bottom Right – Tow Truck: Cambridge Systematics, Inc.

Right – Monitoring Traffi c: Cambridge Systematics, Inc.
Role of Transportation Management Centers in Emergency Operations 

Technical Report Documentation Page

1. Report No.

FHWA-HOP-12-050

2. Government Accession No. 3. Recipient’s Catalog No.

4. Title and Subtitle

Role of Transportation Management Centers in Emergency Operations 

Guidebook

5. Report Date

October 2012

6. Performing Organization Code

7. Author(s)

Daniel Krechmer, Albert Samano III, Pamela Beer, Nicholas Boyd, 

Brenda Boyce

8. Performing Organization Report No.

9. Performing Organization Name And Address

Cambridge Systematics, Inc.

4800 Hampden Lane, Suite 800

Bethesda, MD 20814

Fortress, Inc.

1118 Hidden Glen Drive

Round Rock, TX 78681

Mixon-Hill

12980 Metcalf Avenue #470

Overland Park, KS 66213

10. Work Unit No. (TRAIS)

11. Contract or Grant No.

DTFH61-06-D-00004

12. Sponsoring Agency Name and Address

U.S Department of Transportation

Federal Highway Administration

Offi ce of Operations

1200 New Jersey Ave, SE

Washington, DC 20590

13. Type of Report and Period Covered

Final Report

14. Sponsoring Agency Code

HOTM, FHWA

15. Supplementary Notes

Jimmy Chu, FHWA Offi ce of Transportation Management, Government Task Manager (GTM)

16. Abstract

The purpose of this guidebook is to increase communication, collaboration, and cooperation among Transportation 

Management Centers (TMC) and emergency response agencies so they can effectively respond to a variety of 

situations ranging from a localized traffi c incident to major regional events such as hurricane evacuations. The key 

is to remove the technical and institutional barriers that prevent TMCs from fully supporting emergency operations. 

The guidebook addresses those barriers and provides noteworthy practices on how TMCs can effectively implement 

emergency operations through a mutual understanding with emergency response agencies on the responsibilities, 

resources, and operational procedures that result in a benefi cial relationship for all parties. Throughout the publication 

are photos showing actual emergency events and the role played by the TMC. The guidebook will increase a TMC’s 

understanding of emergency operations and identify specifi c activities to enhance coordination and cooperation with 

emergency response agencies. The guidebook will also allow emergency response agencies to understand the 

mission, resources, and operational procedures of TMCs. As demonstrated through the guidebook best practices, 

it is the trust and relationships built up through joint planning and training activities that result in better cooperation. 

Improved cooperation in turn leads to success in achieving the ultimate goal, which is more rapid and effective response 

in times of emergency with reduced loss of life and property.

17. Key Words

Transportation Management Centers, 

Emergency response, Incident 

management, Incident Command System

18. Distribution Statement

No restrictions.

19. Security Classif. (of this report)

Unclassifi ed

20. Security Classif. (of this page)

Unclassifi ed

21. No. of Pages



22. Price

N/A

Form DOT F 1700.7 (8-72) Reproduction of completed page authorized
Role of Transportation Management Centers in Emergency Operations 

Preface/Acknowledgments

We would like to thank Jimmy Chu, FHWA Offi ce of Transportation Management, Government 

Task Manager (GTM), for his continued support and technical guidance during this project. We 

would also like to acknowledge the contributions of the following Transportation Management 

Centers Pooled Fund Study (TMC PFS) members:

• Cathy McGhee, Virginia Department of Transportation;

• Robert Koeberlein, Idaho Department of Transportation;

• Paul Keltner, Wisconsin Department of Transportation;

• Laurel Radow, FHWA;

• Tom Martin, I-95 Corridor Coalition; and

• Ming Shiun Lee, URS Corporation.

This report is based upon work supported by the Federal Highway Administration TMC PFS 

under contract number DTFH61-06-D-00004. Any opinions, fi ndings, and conclusions or 

recommendations expressed in this publication are those of the authors and do not necessarily 

refl ect the views of the Federal Highway Administration.
Role of Transportation Management Centers in Emergency Operations i

Table of Contents

Executive Summary ............................................................................................. ES-1

1.0 Introduction and Overview .............................................................................1-1

1.1 The Role of Emergency Operations in the TMC ......................................1-1

1.2 The Role of TMCs in Emergency Operations Checklist ..........................1-3

2.0 TMC Functions and Context for Emergency Operations ...........................2-1

2.1 Relevance of TMC Functions to Emergency Operations Functions ......2-1

2.2 TMC Preparedness Activities .....................................................................2-3

2.3 TMC Preparedness Checklist .....................................................................2-6

2.4 TMC Support of the Incident Command System .....................................2-7

2.5 Support for Incident Command System Checklist ................................ 2-10

2.6 TMC Support of Emergency Operations................................................. 2-10

2.7 Support for Emergency Operations Checklist ........................................ 2-12

2.8 Colocation of TMC and EOC .................................................................... 2-12

3.0 Pre-Event Activities – Planning, Training and Exercising, and Best 

Practices ..............................................................................................................3-1

3.1 Establish an Emergency Preparedness Working Group .........................3-1

3.2 Emergency Preparedness Working Group Checklist ..............................3-2

3.3 Perform a Needs Assessment .....................................................................3-3

3.4 Needs Assessment Checklist ......................................................................3-4

3.5 Develop a TMC EOP and SOPs ..................................................................3-4

3.6 Develop an Emergency Operations Plan ..................................................3-5

3.7 Emergency Operations Plan Checklist .................................................... 3-25

3.8 Continuity of Operations Planning ......................................................... 3-26

3.9 COOP Planning Checklist ......................................................................... 3-36

4.0 Response and Recovery ...................................................................................4-1

4.1 General TMC Roles in Response and Recovery .......................................4-1

4.2 Response and Recovery Checklist .............................................................4-3

4.3 Traffi c Incidents ...........................................................................................4-3

4.4 Traffi c and Large-Scale Incidents Checklist ..............................................4-6

4.5 Large-Scale Emergencies .............................................................................4-6

4.6 Large-Scale Emergency Checklist ............................................................ 4-10

4.7 Large Planned Events and National Special Security Events ............... 4-11

4.8 Large Planned Events Checklist ............................................................... 4-15
ii Role of Transportation Management Centers in Emergency Operations

5.0 Postevent Activities ..........................................................................................5-1

5.1 Recovery Actions .........................................................................................5-1

5.2 After-Action Assessments and Improvement Plans ................................5-2

5.3 Postevent Checklist ......................................................................................5-7

5.4 Maintain TMC Emergency Operations .....................................................5-8

5.5 Maintain Emergency Operations Checklist ..............................................5-9

A. Glossary .............................................................................................................A-1
Role of Transportation Management Centers in Emergency Operations iii

List of Tables

Table 3.1 Traffi c Incident Management Stakeholders and Descriptions .........3-9

Table 4.1 Operational Responsibilities Assumed by TMCs for Traffi c 

Incidents .................................................................................................4-4
iv Role of Transportation Management Centers in Emergency Operations

List of Figures

Figure 2.1 Information Exchange between Transportation Centers 

Emergency Centers and Fusion Centers .............................................2-3

Figure 2.2 Highway Incidents Requiring Formal Use of ICS .............................2-9

Figure 2.3 Components of the NIMS Process .......................................................2-9

Figure 3.1 Concept of Operations Weather Event ...............................................3-7

Figure 3.2 DHS National Preparedness System ................................................. 3-23

Figure 3.3 Evacuation Zones Houston-Galveston Area .................................... 3-26

Figure 3.4 TMC Emergencies Most Likely to Require COOP Activation ....... 3-29

Figure 3.5 HSEEP Exercise Program Management Model ............................... 3-33

Figure 5.1 Activities in the Preparation, Response, and Recovery Phases .......5-4

Figure 5.2 Indiana DOT Freeway Service Patrol Performance Measures .........5-6
Role of Transportation Management Centers in Emergency Operations ES-1

Executive Summary

The purpose of this guidebook is to increase 

communication, collaboration, and cooperation 

among Transportation Management Centers 

(TMC) and emergency response agencies so 

they can effectively respond to a variety of 

situations ranging from a localized traffi c 

incident to major regional events such as 

hurricane evacuations. A description of TMC 

functions and resources relevant to emergency 

operations is included followed by sections 

describing the activities that take place during 

emergency operations, including pre-event, 

response and recovery, and post event.

The guidebook opens with a description of 

how TMCs currently support emergency 

response such as reporting on traffi c 

conditions, and assessing transportation 

system damage. The TMCs are well suited 

to this role because they are the “hub of the 

transportation management system.” The 

guidebook also describes the various TMC 

preparedness activities that can help when 

an emergency occurs including detection 

and verifi cation of incidents, dissemination 

of information, assistance with incident 

response, on-scene management, traffi c 

control, coordination with maintenance 

activities, mapping and GIS resources, and 

access to archived historical data.

Source: Cambridge Systematics, Inc.

Source: Digital Stock, a division of Corbis Corp.

During an emergency, it is important to 

utilize an Incident Command System (ICS), 

which is a standardized, all-hazards incident 

management approach that provides the 

integration of facilities, equipment, personnel, 

procedures, and communications that operate 

within a common organizational structure. 

The guidebook describes how TMCs can 

benefi t from learning and utilizing ICS, 

and recommends TMCs conduct strategiclevel actions on preparedness and resource 

management (planning, training, personnel, 

and equipment certifi cation) to improve 

support to emergency response agencies in a 

way that is consistent with ICS.

Even though most emergency operations 

centers (EOC) are temporary, an entity like 

a TMC that is permanently in place can 

provide support because they have access 

to established and widespread cameras, 

sensors, and communications networks. 

The guidebook describes how these and 

other functions can help during small- and 

large-scale traffi c incidents, planned events, 

and large-scale regional emergencies. For 

instance, the TMC can detect a traffi c event 

and issue appropriate notifi cations to the 
ES-2 Role of Transportation Management Centers in Emergency Operations

public. During large-scale emergencies, like a 

hurricane, the TMC can facilitate evacuations 

by suspending highway work or projects on 

evacuation routes and providing equipment 

and personnel resources to assist in the 

staffi ng and implementation of evacuation 

traffi c control points.

In some cases, a TMC and EOC co-locate which 

provides backup power, communications, 

and sheltering requirements that allow the 

TMC to continue operating during adverse 

conditions. Other EOCs are virtual, and use 

video/voice conferencing, and fi le sharing 

servers as a way to coordinate activities. Both 

approaches are described in the book.

Because emergencies usually occur with 

little or no warning, it is important for TMCs 

to prepare in advance through planning, 

training, and practice. The guidebook 

describes these “pre-event” activities 

including establishing an emergency 

preparedness working group; performing 

a needs assessment; and developing a TMC 

Emergency Operations Plan (EOP) and 

Standard Operating Procedures (SOP). 

Other activities include the development 

of a comprehensive preparedness guide 

and a Continuity of Operations Plan. The 

TMC Emergency Operations Plan can be an 

extensive document and the guidebook walks 

through each of the recommended elements 

which include the following:

• Purpose and Scope;

• Situation Overview and Planning 

Assumptions;

• Concept of Operations (ConOps);

• Organization and Assignment of 

Responsibilities;

• Direction, Control, and Coordination;

• Interagency Coordination for Planned 

Special Events;

• Information Collection and Dissemination;

• Communication;

• Administration, Finance, and Logistics;

• Plan Development and Maintenance;

• Authorities and References; and

• Additional Planning and Coordination 

Functions.

Training for TMC personnel and joint training 

with emergency responders and others are 

also helpful. The guidebook describes the 

various types of training currently available 

and recommends TMCs develop a training 

plan to ensure all relevant personnel have the 

necessary information and skills.

Once the emergency or event occurs, the TMCs 

can move into the response and recovery 

phase. The guidebook describes the various 

relationships and provides descriptions of the 

TMC role in these activities in three different 

situations, including traffi c incidents (minor 

and large-scale), large-scale emergencies, and 

planned special events.

During the response phase, TMCs can 

implement their operating procedures, which 

identify the personnel to staff an emergency, 

and notifi cation procedures. Other response 

activities in the guidebook include the use of 

the TMC camera system, and media relations. 

Because emergencies are not all the same, the 

guidebook describes the various operational 

(response and recovery) responsibilities for 

TMCs during emergency events.

The fi nal chapter of the guidebook describes 

the various post event activities including 

recovery, after-action assessments, and how 

to improve planning functions. An important 

role for TMCs is to help departments of 

transportation identify roadway restoration 

and infrastructure repair. TMCs can also 

play a critical role in after-action assessments 

that allow all participants to review what 
Role of Transportation Management Centers in Emergency Operations ES-3

happened and how operations can be 

improved in the future.

In addition to a wealth of the information, 

the guidebook includes practical checklists 

for each section that allow a TMC to 

evaluate their current support for support 

emergency operations and identify areas for 

improvement.

The checklists provided are intended for use 

by TMC personnel to self-evaluate:

• The level of cooperation they have 

achieved with emergency management 

and response personnel; and

• The level of expertise they have developed to participate in emergency response 

activities.

Checklists can be used to provide an overall 

assessment, identify areas in which TMCs 

want to improve, or identify specifi c priority 

actions. The order in which the check boxes 

are listed in this document does not imply 

any priority.
Role of Transportation Management Centers in Emergency Operations 1-1

1.0 Introduction and Overview

Transportation Management Centers (TMC) 

monitor roadway conditions, provide support 

to motorists and fi eld personnel responding 

to roadway incidents, and actively manage 

traffi c fl ow. This central role in traffi c 

operations provides an excellent opportunity 

to enhance the effectiveness of emergency 

response. New technologies and strategies 

are enabling transportation and emergency 

management agencies to work together 

so they can rapidly respond to emergency 

events, utilize limited resources in a costeffective way, and improve safety for the 

traveling public.

Source: Cambridge Systematics, Inc.

The purpose of this guidebook from the 

Federal Highway Administration (FHWA) is 

to increase communication, collaboration, and 

cooperation among these agencies so they can 

effectively respond to a variety of situations 

from a localized traffi c incident to major 

regional events such as hurricane evacuations. 

The key is to remove the technical and 

institutional barriers that prevent TMCs from 

fully supporting emergency operations.

The guidebook addresses those barriers and 

provides noteworthy practices on how TMCs 

and emergency operations can achieve a 

mutual understanding on the responsibilities, 

resources, and operational procedures that 

result in a benefi cial relationship for all 

parties. Throughout the publication are 

photos showing actual emergency events and 

the role played by the TMC.

Areas Covered 

in the Guidebook

• Phases of emergency response planning.

• Where TMCs and emergency operations personnel can work together.

• Description of the National Incident Management 

System (NIMS) and Incident Command System 

(ICS).

• Role of TMCs during and after an emergency.

• How to maintain cooperation between transportation and emergency management agencies.

• Recommendations for additional activity.

1.1 The Role of Emergency 

Operations in the TMC

TMC roles in supporting emergency 

response can include direct supervision of 

Freeway (safety) service patrols1 in local 

incidents, surveillance of traffi c, reporting 

on traffi c conditions during major incidents 

or planned special events, and deployment 

of maintenance trucks and other resources. 

Some emergency response agencies share 

space with the TMCs or have public safety 

personnel at the center. Others provide space 

when needed during emergencies.

A number of TMCs also are upgrading their 

central software systems to improve the 

automated linkages with law enforcement and 

emergency operations agencies. Others offer 

staff and information resources. The Wisconsin 
1-2 Role of Transportation Management Centers in Emergency Operations

Department of Transportation (DOT) started a 

Helper Program (WisHELP) which has at least 

one DOT employee on-call 24 hours, 7 days to 

support the emergency management agency. 

The WisHELPERS represent Statewide 

Bureaus (structures, traffi c, maintenance) that 

are headquartered near the State Emergency 

Operations Center. There is also support for 

the WisHELPERS through the emergency 

traffi c operations positions of the Statewide 

Bureau Duty Offi cer. This has led to closer 

ties between transportation and emergency 

management agencies.

1.1.1 How TMCs and Emergency 

Operations Centers Cooperate

An Emergency Operations Center (EOC) is a 

control facility where emergency operations 

are directed and coordinated. In an EOC 

the local and state staff and offi cials receive 

information relating to an incident. It also is 

where decision-makers and support agencies 

supervise the coordination of response 

activities to a large incident/emergency such as 

an evacuation. The main functions of an EOC 

include providing direction, coordination, and 

support to emergency operations; carrying out 

disaster management functions at a strategic 

level in an emergency; and ensuring the 

continuity of operation of a company, political 

subdivision, or other organization. The EOC 

also collects, gathers, and analyzes data; 

makes decisions that protect life and property; 

maintains continuity of the organization, and 

disseminates those decisions to all concerned 

agencies and individuals.

Greater emphasis on homeland security and 

budget constraints make joint use of resources 

more important and TMC resources can be 

helpful during emergencies. A number of 

events have led to greater cooperation between 

transportation and emergency operations 

personnel, including the following:

TMC Emergency 

Support Activities

• Plan for anticipated events (hurricanes, winter 

storms, etc.).

• Detect, verify, and monitor roadway conditions.

• Assess transportation system damage and 

capacity.

• Identify and manage public safety lifeline 

routes.

• Develop and implement traffi c control strategies to support emergency response and 

evacuation.

• Manage detours and evacuation routes.

• Dispatch maintenance and support vehicles.

• Coordinate with local transportation agencies.

• Develop event-specifi c operational strategies 

to address response phases.

• Provide public information/ traveler alerts.

• Stabilize traffi c demand in the affected area.

• Postevent debriefi ngs.

• The geographic expansion of the surveillance and detection components of 

Intelligent Transportation Systems (ITS) 

systems allows TMCs to cover both urban 

areas and rural “hotspots.” New data 

sources such as privately provided “probe”

data allow monitoring of speeds on evacuation and detour routes.

 New traffi c management software and 

supporting communications technologies 

allow sharing of data and video between

transportation, law enforcement, and 

emergency response agencies.

• Improvements in the coverage and quality of weather information are available 

to TMC personnel through expansion of 

the Road Weather Information Systems 

(RWIS), and a consolidation of weather 

information from the National Weather 

Service and private forecasting services 

through the Clarus initiative.
Role of Transportation Management Centers in Emergency Operations 1-3

• TMC historical archived datasets are available for use by emergency personnel in 

monitoring, planning, and implementing 

emergency routes and activities.

Photo courtesy of the FHWA Road Weather Management 

Program.

The implementation of the National Incident 

Management System (NIMS) has also resulted 

in closer relationships between TMC and 

Emergency Response personnel as evidenced 

by improvements in the following:

• An understanding of responsibilities 

through training of transportation personnel in emergency situations;

• Communications infrastructure and faster 

more extensive information sharing;

• Response times and effectiveness during 

actual events due to joint training and table 

top exercises; and

• Opportunities to review performance, 

identify gaps, and develop lessons learned.

1.2 The Role of TMCs 

in Emergency Operations 

Checklist

The TMC can use the following checklist to 

evaluate their current status in support of 

emergency operations. The TMC conducts 

the following support activities in conjunction 

with the EOC (check all that apply):

Plans for anticipated events (hurricanes, 

winter storms, etc.).

Detects, verifi es, and monitors roadway 

conditions.

Assesses transportation system damage 

and capacity.

Identifi es and manages public safety lifeline routes.

Conducts traffi c control strategies to support emergency response and evacuation.

Manages detours and evacuation routes.

Dispatches maintenance and support vehicles.

Coordinates with local transportation agencies.

Develops event-specifi c operational strategies to address response phases.

Provides warnings and public information/ traveler alert requirements.

Stabilizes traffi c demand in the affected area.

Conducts postevent debriefi ngs.

Monitors speeds on evacuation and detour 

routes.

Shares data and video with transportation, 

law enforcement, and emergency response 

agencies.

Obtains and shares weather information from the Road Weather Information 

System (RWIS) and Clarus.

Provides historical archived data to emergency personnel for monitoring, planning, 

and implementing emergency routes and 

activities.

Participates in joint training.
1-4 Role of Transportation Management Centers in Emergency Operations

1

 Freeway Service Patrols are now referred to 

as Safety Service Patrols by FHWA’s Traffi c 

Incident and Emergency Management team. 

In this document both terms are included.
Role of Transportation Management Centers in Emergency Operations 2-1

2.0 TMC Functions and Context for 

Emergency Operations

The TMC concept, initially developed for 

railroads and urban public transportation 

systems, has been in place for some time 

mainly because it allowed information on 

system operations to be in a centralized 

location; a function that evolved as technology 

for centralized monitoring and control of 

traffi c signal systems grew.

[The TMC 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 to produce 

traveler information. It is the focal point for communicating 

transportation-related information to the media and the 

motoring public, a place where agencies can coordinate their 

responses to transportation situations and conditions. The 

TMC also links various elements of Intelligent Transportation 

Systems such as variable message signs, closed circuit 

video equipment, roadside count stations, etc., enabling 

decision-makers to identify and react to an incident in a 

timely manner based on real-time data.”

Institute of Transportation Studies

University of California-Berkeley, 2005

Early TMC deployments focused on urban 

areas with existing freeway detection systems. 

The addition of cameras, electronic message 

signs, and communications networks has 

enabled TMCs to monitor and respond to 

incidents and other traffi c disruptions.

Some TMCs also manage and dispatch 

Freeway (safety) service patrols (FSP) or 

collaborate with law enforcement agencies on 

FSPs to provide faster response to incidents. 

Their capabilities range from van services 

with basic capabilities such as jump-starting 

and tire changing to full-size wreckers with 

the ability to tow large commercial vehicles.

Source: Cambridge Systematics, Inc.

One of the most important TMC functions 

is the dissemination of information through 

various channels such as the dedicated 

511-telephone service, web sites, electronic 

message signs, and direct links to media and 

outside private information services.

Over the past several years, private companies 

developed methods, mainly through feedback 

from probe vehicles, to estimate speeds 

and travel times on most of the Interstate 

system and many other major highways, 

helping TMCs with situational awareness 

and providing important information in 

emergencies.

2.1 Relevance of TMC 

Functions to Emergency 

Operations Functions

The day-to-day operations of a TMC assist 

with several of the Emergency Support 
2-2 Role of Transportation Management Centers in Emergency Operations

Emergency Support Function 

(ESF) 3 – Public Works 

and Engineering

ESF 3 assists the Department of Homeland Security 

(DHS) by participating in the following activities:

• Pre-incident and postincident assessments of 

public works and infrastructure.

• Emergency contract support for life-saving and 

life-sustaining services.

• Technical assistance to include engineering 

expertise, construction management, and contracting and real estate services.

• Emergency repair of damaged public infrastructure and critical facilities.

• Implementing and managing the DHS/Federal 

Emergency Management Agency (FEMA) Public 

Assistance Program and other recovery programs.

Emergency Support Function 

(ESF) 1 – Transportation

ESF 1 provides support to the Department of 

Homeland Security (DHS) by participating in the 

following activities:

• Monitor and report status of and damage to 

the transportation system and infrastructure 

caused by the incident.

• Identify temporary alternative transportation solutions for implementation by others 

when systems or infrastructure are damaged, 

unavailable, or overwhelmed.

• Perform activities conducted under the direct 

authority of DOT elements as these relate to 

aviation, maritime, surface, railroad, and pipeline transportation.

• Coordinate the restoration and recovery of 

transportation systems and infrastructure.

• Coordinate and support prevention, preparedness, response, recovery, and mitigation 

activities among transportation stakeholders 

within the authorities and resource limitations 

of ESF 1 agencies.

Functions (ESF), which are developed by 

the Department of Homeland Security 

and provide the structure for coordinating 

interagency support in an emergency. ESF 1: 

Transportation and ESF 3: Public Works, which 

relates to the deployment of DOT engineering 

support, reference the capabilities and functions 

of TMCs. ESF 1 and ESF 3 activate transportation 

and public works agencies, and call upon them 

to assist emergency response and recovery 

efforts coordinated by an EOC. The footnoted 

link provides access to more detail on ESFs and 

other incident management practices found in 

the FHWA document, Best Practices in Traffi c 

Incident Management.

2

Probe Vehicle Data

The following can be used to collect probe vehicle 

data:

• Cell phones.

• Electronic toll tags.

• In-vehicle navigation units.

• Automated vehicle location units.

The system tracks vehicles and calculates highway 

speeds based on their locations at specifi c times. 

Because of privacy issues, the technologies 

assign an encrypted ID to the vehicles to prevent 

identifi cation and discard data after it is used.

A pre-established framework of coordination 

and cooperation based on the ESF model 

is essential to leverage TMC capabilities. 

Figure 2.1, for instance, shows the diverse 

potential for information interchange 

between TMCs, EOCs, and other centers such 

as Fusion Centers.

Fusion Centers serve as focal points within the 

state and local environment for the receipt, 

analysis, gathering, and sharing of threatrelated information. In this role, they empower 

front-line law enforcement, public safety, fi re 

service, emergency response, public health, 

critical infrastructure protection, and privatesector security personnel to understand local 
Role of Transportation Management Centers in Emergency Operations 2-3

implications of national intelligence. They 

also provide interdisciplinary expertise and 

situational awareness to inform decisionmaking at all levels of government. They 

conduct analysis and facilitate information 

sharing while assisting law enforcement and 

homeland security partners in preventing, 

protecting against, and responding to crime 

and terrorism. By utilizing the information 

provided by Fusion Centers, local offi cials 

can better protect their communities.3

2.2 TMC Preparedness 

Activities

TMCs undertake various preparedness 

activities, including detection and verifi cation 

of incidents, dissemination of information, 

assistance with incident response, on-scene 

management and traffi c control, coordination 

with maintenance activities, mapping and 

GIS resources, and providing archived 

historical data.

Figure 2.1 Information Exchange between Transportation Centers Emergency 

Centers and Fusion Centers

Source: Federal Highway Administration, Information-Sharing Guidebook for Transportation Management Centers, Emergency 

Operations Centers and Fusion Centers, June 2010, p. 4.
2-4 Role of Transportation Management Centers in Emergency Operations

2.2.1 Detection and Verifi cation

TMCs monitor, detect, and verify incidents 

affecting transportation operations and 

safety, serve as a clearinghouse, and provide 

information to emergency agencies on the 

status of the transportation infrastructure 

(washed-out bridges or roadways, etc.). To 

obtain this information, TMCs utilize the 

following methods:

• ITS Technology – TMCs utilize ITS technologies such as closed-circuit television 

(CCTV) cameras and information from 

computer-aided dispatch (CAD) systems 

to detect the presence of incidents or emergencies on transportation facilities. The 

use of this technology confi rms the incident occurred, enhances the assessment of 

incident needs, and helps with the subsequent dispatch of appropriate personnel 

and resources.

• Data Sources – TMCs receive and exchange 

information on incidents and traffi c conditions with on-site responders, law enforcement, and emergency personnel. TMCs 

may also manage or access cell phone calls 

to local law enforcement and dispatchers, 

motorist aid call boxes, and information 

from automated collision notifi cation systems (ACNS).

Source: Cambridge Systematics, Inc.

2.2.2 Dissemination of Information

TMCs collect and disseminate traveler 

information to the public, which helps control 

and smooth traffi c operations and provides 

information to appropriate personnel for 

quick and effi cient response during incidents 

and emergencies. TMCs utilize the following 

to disseminate information:

Source: Cambridge Systematics, Inc.

ETravel Information – TMCs control 

Dynamic Message Signs (DMS) on major 

roadways, which are available for use in 

emergencies. These signs provide motorists 

with information on detour routes, shelter 

locations, and evacuation procedures. In 

non-emergencies, DMS provide information 

on construction activity, special events, minor 

delays caused by traffi c incidents, or expected 

travel times. TMCs also have small portable 

message signs, which mainly support 

construction activity, but are available during 

emergencies for information on detour routes 

or other emergency-related matters.

New technologies such as Connected 

Vehicle programs will allow TMCs to 

provide authorized information to drivers 

in their vehicles. According to the U.S. 

DOT’s Research and Innovative Technology 

Administration (RITA) the goal of the 

Connected Vehicle Research Program is to 

“to achieve a vision of a national, multimodal 

surface transportation system that features a 

connected transportation environment among 

vehicles, the infrastructure and passenger 

portable devices. This connected environment 

will leverage technology to maximize safety, 

mobility, and environmental performance.”

The footnoted link provides more detail on 

this research.4
Role of Transportation Management Centers in Emergency Operations 2-5

Pretrip Information – TMCs provide 

motorists with information prior to a trip on 

roadway conditions, infrastructure damage, 

and evacuation routes through 511 systems 

and traveler information web sites. TMCs 

also provide information through Highway 

Advisory Radio and media partnerships with 

AM/FM Radio, and televised announcements. 

Providing pretrip information can reduce 

traffi c demand at the incident scene and direct 

motorists to alternative routes, emergency 

shelters, and/or evacuation points.

2.2.3 Incident Response

TMCs use ITS technologies and communication linkages with other agencies and 

media partnerships to identify, verify, and 

track incidents and emergency events, 

which allows for information exchange and 

coordination among emergency responders, 

and law enforcement.

Coordinated Response – TMCs, once they 

detect and verify an incident, can perform 

a variety of functions during a coordinated 

response, including the following:

• Play an active role in incident clearance by 

relaying information to Freeway (Safety) 

Service patrols, police, responders, and 

tow and recovery operators.

• Improve the timeliness of response 

during nontraffi c incidents such as industrial accidents, civil disruption, and natural disasters.

• Use improved methods and technologies such as enhanced computer-aided 

dispatch (E-CAD) and dual or optimized 

dispatch procedures to direct emergency 

responders to routes with the least amount 

of traffi c or other disruptions.

• Reduce traffi c demand at the incident 

scene and clear the path for responders, 

by utilizing traveler information resources 

to alert motorists to avoid certain routes 

and/or destinations and present alternative paths or transportation modes.

Source: Cambridge Systematics, Inc.

Operational and Demand Strategies for 

Emergency Response – The TMC can also 

utilize ITS resources to expedite incident and 

emergency response through the following:

• Coordinate with local agencies or utilizing systems such as responsive signal operations and emergency vehicle 

signal preemption/ priority to optimize 

emergency responder access to and 

from the incident scene.

• Update information on message signs and 

other media (web sites, radio, TV, and 511) 

to reduce demand at incident scene, clear 

the path for responders, and divert traffi c 

to alternative routes and/ or destinations.

• Coordinate with transit agencies and/ or 

tolling authorities to inform motorists and 

the public of strategies (free transit services, 

opening tolling lanes) that divert traffi c to 

alternative routes and modes of transportation. This effort can relieve demand at the 

incident, help motorists avoid certain facilities during planned events or work zones, 

and direct travelers to evacuation routes and 

shelters.

Innovative Strategies for Improved 

Emergency Response – TMCs may also 

establish certain procedures or programs that 
2-6 Role of Transportation Management Centers in Emergency Operations

improve emergency response, including the 

following:

• Manage instant tow dispatch procedures 

and towing and recovery zone-based contracts with specifi c contractors to speed 

incident response. This expedites dispatch, optimizes response procedures, and 

reduces travel distances.

• Coordinate equipment staging areas and 

preposition equipment to enhance the 

availability of and reduce the wait time for 

specialty equipment that may be slow to 

mobilize.

• Provide resources, including trucks and 

support vehicles by coordinating with 

agency maintenance.

2.2.4 Coordination with 

Maintenance Activities

TMC maintenance crews are generally 

responsible for clearance and repair of 

transportation infrastructure, which enables 

the TMC to receive accurate information for 

better-informed decision-making. Maintenance 

activities can support coordination through 

the following:

• Maintain, monitor, and repair vital infrastructure, equipment, and other assets 

such as cameras, detectors, and message 

signs that are essential to the TMC for 

monitoring traffi c, detecting and verifying incidents, and responding to various 

emergencies.

• Aid in the detection and verifi cation of 

incidents, and response activities.

2.2.5 Mapping and GIS Resources

TMCs and other partner agencies are often 

responsible for mapping and GIS-related 

resources. Many TMCs utilize these tools 

to better manage ITS equipment and service 

vehicles, track and monitor maintenance 

work services, and disseminate important 

information on incidents, emergencies, and 

travel conditions to the public, responders, 

and law enforcement.

Source: Cambridge Systematics, Inc.

2.2.6 Archived Historical Data

Many TMCs are placing greater emphasis on 

analyzing and archiving data on volumes, 

speeds, incidents, construction activities, 

traveler information messages, weather 

conditions, or special events which can be 

used for emergency response operations. 

For instance, data can measure incident 

clearance or emergency response times or 

identify strategies or elements of an area’s 

response plans that may need adjustments 

or improvements. Additionally, archived 

historical data can be used to improve 

emergency and disaster preparedness 

activities by identifying detour routes and 

evacuation routes and strategies.

2.3 TMC Preparedness 

Checklist

The TMC can use the following checklist to 

evaluate their current status in the area of 

preparedness.

The TMC conducts the following preparedness 

activities (check all that apply):
Role of Transportation Management Centers in Emergency Operations 2-7

Incident Response

Detects and verifi es incidents.

Disseminates information through (check 

all that apply):

Dedicated 511 telephone service.

Web sites.

Electronic message signs.

Direct links to the media and outside 

private information services.

Pretrip information.

ETravel Information.

Relays information to Freeway (Safety) 

Service patrols, police, responders, and 

tow and recovery operators.

Improves the timeliness of response.

Uses improved methods and technologies 

to direct emergency responders to routes 

with the least amount of traffi c or other 

disruptions.

Reduces traffi c demand at the incident 

scene and clears the path for responders.

Coordinates with local agencies or utilizes 

equipment and devices to optimize emergency responders’ access to and from the 

incident scene.

Updates information on message signs and 

other media (web sites, radio, TV, and 511) 

to reduce demand at incident scene, clear 

the path for responders, and divert traffi c 

to alternative routes and/or destinations.

Coordinates with transit agencies and/or 

tolling authorities to inform motorists and 

the public of strategies (free transit services, opening tolling lanes) that divert 

traffi c to alternative routes and modes of 

transportation.

Manages instant tow dispatch procedures 

and towing and recovery zone-based contracts with specifi c contractors to speed 

incident response.

Coordinates equipment staging areas and 

prepositioning of equipment to enhance 

the availability of and reduce the wait time 

for specialty equipment.

Provides resources, including trucks and 

support vehicles, by coordinating with 

agency maintenance.

Other Coordination

Maintains, monitors, and repairs vital 

infrastructure, equipment, and other assets.

Aids in the detection and verifi cation of 

incidents, as well as in response activities.

Provides mapping and GIS resources.

Provides archived historical data.

2.4 TMC Support of the 

Incident Command System

The Incident Command System (ICS), which 

is part of the broader NIMS, is a standardized, 

all-hazards incident management approach 

that provides the following:

• The integration of facilities, equipment, 

personnel, procedures, and communications that operate within a common organizational structure;

• A coordinated response among various 

jurisdictions and functional agencies, both 

public and private; and

• The identifi cation of common processes for 

planning and managing resources.

ICS is a scalable and modular approach for 

use during incidents of any type, scope, 

and complexity. It allows users to adopt an 
2-8 Role of Transportation Management Centers in Emergency Operations

integrated organizational structure for incident 

management to match the complexities and 

demands of single or multiple incidents, and 

guides the process for planning, building, 

and adapting that structure. Government 

at the Federal, state, tribal, and local levels, 

nongovernmental organizations, and the 

private sector use ICS. The typical ICS structure 

facilitates activities in fi ve major functional 

areas: command, operations, planning, 

logistics, and fi nance/administration.

TMCs are an integral part of ICS because 

they monitor and control traffi c fl ow when 

a disruption in roadway system operations 

occurs. FHWA’s Simplifi ed Guide to the Incident 

Command System for Transportation Professionals

introduces the ICS concept to transportation 

offi cials whose expertise, assistance, or 

material is needed during a highway incident. 

A growing number of transportation agencies 

are adopting ICS as evidenced by a 2002 

FHWA survey that found 64 percent are using 

ICS to manage traffi c incidents.

While ICS supports incidents of all sizes, a 

formal activation is not necessary for smaller 

incidents since a single police car and tow 

truck can usually handle them. Figure 2.2 

illustrates this concept.

TMCs should undertake advance planning 

and preparation consistent with NIMS and 

ICS. By utilizing FHWA’s Simplifi ed Guide to 

the Incident Command System for Transportation 

Professionals to lay out activities (Figure 2.3), 

TMCs can put into place the strategic, 

tactical, and support levels necessary prior 

to an incident and ensure adoption and 

understanding of ICS and successful general 

TMC planning and coordination practices.

2.4.1 Conduct Strategic-Level 

Actions on Preparedness and 

Resource Management

To improve support to emergency response 

agencies in way that is consistent with 

ICS and NIMS, TMCs should conduct 

strategic-level actions on preparedness 

and resource management, and provide 

support for communications and information 

management. Following is a checklist of the 

recommended TMC strategic actions:

• Planning – Develop plans and procedures 

to support incident response activities, 

including descriptions of agency relationships, event classifi cation and/ or notifi cation practices, and position and equipment 

checklists.

• Training and Exercises – Design, develop, 

and conduct training and discussionbased exercises such as workshops, seminars, and tabletop exercises for personnel 

as appropriate to ensure familiarity and 

understanding with plans and procedures.

• Personnel and Equipment Certifi cation –

Certify the required personnel and equipment are prepared and in working order.

• Mutual-Aid Agreements – Develop 

mutual-aid agreements with appropriate agencies and jurisdictions to ensure 

resource sharing and cooperation.

• Resource Typing and Identifi cation – 

Clearly identify and type resources to 

ensure accurate TMC understanding of the 

available resources, their locations, and 

capabilities.

• Mobilization and Reimbursement – 

Develop and promulgate procedures for 

resource mobilization, demobilization, 

and reimbursement.

• Tactical-Level Actions on ICS – Develop 

documentation to support tactical-level 

actions.
Role of Transportation Management Centers in Emergency Operations 2-9

Figure 2.2 Highway Incidents Requiring Formal Use of ICS

Source: FHWA Simplifi ed Guide to the Incident Command System for Transportation Professionals.

Figure 2.3 Components of the NIMS Process

Source: FHWA Simplifi ed Guide to the Incident Command System for Transportation Professionals.

2.4.2 Support-Level Actions for 

Communications and Information 

Management

To provide support for communications and 

information management, TMCs should 

conduct the following activities:

• Information Policy – Develop a policy 

for the TMC’s handling and securing of 

information, including any interoperable 

communication among the TMC, public 

safety agencies, and any other necessary 

entities.

• Common Terminology – Develop policies 

and procedures for use of common terminology to ensure understanding between 

agencies and avoid agency-specifi c jargon 

that may impede communications.
2-10 Role of Transportation Management Centers in Emergency Operations

• Communications Systems – Develop communications systems to support the TMC’s 

mission and facilitate interoperable communication with other agencies involved 

in incident response.

Checklist of Recommended 

TMC Strategic Actions

• Planning.

• Training and Exercises.

• Personnel and Equipment Certifi cation.

• Mutual-Aid Agreements.

• Resource Typing and Identifi cation.

• Mobilization and Reimbursement.

• Tactical-Level Actions on ICS.

2.5 Support for Incident 

Command System 

Checklist

The TMC can use the following checklist to 

evaluate their current status in support in 

the incident command system by doing the 

following (check all that apply):

Preparedness and Resource Management 

Checklist

Uses the NIMS and ICS as a way to plan 

and manage incidents and emergencies.

Develops plans and procedures to support 

incident response activities.

Designs, develops, and conducts training 

and discussion-based exercises.

Certifi es that the required personnel and 

equipment are prepared and in working 

order.

Develops mutual-aid agreements with 

appropriate agencies and jurisdictions to 

ensure resource sharing and cooperation.

Identifi es and categorizes resources to 

ensure accurate TMC understanding of the 

available resources, their locations, and 

capabilities.

Develops and promulgates procedures 

for resource mobilization, demobilization, 

and reimbursement.

Develops documentation to support formal activation of ICS for incidents warranting activation and for implementation 

of the command and control functions.

Communications and Information 

Management

Develops a policy for the TMC’s handling 

and securing of information.

Develops policies and procedures for use 

of common terminology.

Develops communications systems to 

support the TMC’s mission and facilitate 

interoperable communication.

2.6 TMC Support of 

Emergency Operations

The capabilities and functions of a TMC can 

support to the needs of EOCs because they 

have access to established and widespread 

cameras, sensors, and communications 

networks. The TMC can help the EOC 

overcome some of the challenges that are 

inherent in a temporary operation.

TMCs can support small- and large-scale 

traffi c incidents, planned events, and largescale regional emergencies by developing 

emergency operations procedures that do the 

following:

• Detect events and issue notifi cations to the 

appropriate public safety entities;

• Monitor and relay TMC camera and 

sensor information (roadside weather 
Role of Transportation Management Centers in Emergency Operations 2-11

information, traffi c queues, etc.) to fi rst 

responders as requested;

• Provide communications support using 

TMC systems and capabilities as requested;

• Provide emergency response resources, 

including personnel and equipment as 

requested; and

• Assist with coordination involving specialized agencies (hazardous materials 

spill, fi re evacuations, and transportation 

closures).

The following are ways TMCs can provide 

additional support for large-scale planned 

events and large-scale emergencies (hurricanes, 

blizzards, earthquakes, terrorist attacks, and 

industrial accidents):

• Transition from providing support for a 

planned event to providing response to an 

unplanned incident occurring at the event;

• Refocus, to the extent possible, camera 

and sensor information on an event, and 

monitor and relay to fi rst responders as 

requested;

• Facilitate evacuations by suspending 

highway work or projects on evacuation 

routes and provide equipment and personnel resources to assist in the staffi ng 

and implementation of evacuation Traffi c 

Control Points; and

• Provide response resources, including personnel and equipment as requested by the 

Emergency Operations Center or the incident or the unifi ed commander in the fi eld.

Photo courtesy of Matt Stamey/The Gainesville Sun.

As visibility reaches near zero due to a massive brush fi re, a fatal multivehicle accident occurs near 

Gainesville, Florida. The Florida Highway Patrol and the Florida Department of Transportation, 

colocated in the Transportation Management Center, work together to close Interstate 75, inform 

the traveling public, and manage the incident.
2-12 Role of Transportation Management Centers in Emergency Operations

2.7 Support for Emergency 

Operations Checklist

The TMC can use the following checklist to 

evaluate their current status in support of 

small- and large-scale events and emergencies 

by doing the following (check all that apply):

Detects events and issues notifi cations to 

the appropriate public safety entities.

Monitors and relays TMC camera and 

sensor information (roadside weather 

information, traffi c queues, etc.) to fi rst 

responders as requested.

Provides communications support using 

TMC systems and capabilities as requested.

Provides emergency response resources, 

including personnel and equipment as 

requested.

Assists with coordination involving specialized agencies (hazardous materials 

spill, fi re evacuations, and transportation 

closures).

Transitions from providing support for a 

planned event to providing response to an 

unplanned incident occurring at the event.

Refocuses, to the extent possible, camera 

and sensor information on an event, and 

monitors and relays to fi rst responders as 

requested.

Facilitates evacuations by suspending 

highway work or projects on evacuation 

routes and provides equipment and personnel resources to assist in the staffi ng 

and implementation of evacuation Traffi c 

Control Points.

2.8 Colocation of TMC 

and EOC

Because an emergency incident requires 

cooperation from a variety of agencies, some 

TMCs and EOCs colocate to provide greater 

communication and coordination, and allow 

for the leveraging of resources. TMCs should 

explore the feasibility of colocating with the 

state or region EOC, which may depend on 

the laws, operational confi gurations, and 

available facilities. Some important factors to 

consider include the following:

• Colocation provides backup power, communications, and sheltering requirements 

that allow the TMC to continue operations 

in adverse conditions;

• EOCs are activated only in cases of emergency or during some special events, and 

even then staffi ng will vary dramatically 

according to the nature and severity of the 

incident;

• An EOC is typically located away from 

hazards that may impact or preclude its 

use during an emergency; and

• Existing facilities that can accommodate both 

the systems and space needs of a TMC and 

EOC are rarely available, which may require 

new construction and confi guration.

Source: Cambridge Systematics, Inc.
Role of Transportation Management Centers in Emergency Operations 2-13

2.8.1 Utilization of Virtual EOCs

Virtual EOCs, which refer to utilization 

of technologies and procedures between 

physically separated personnel operating as 

one entity, enable multiple EOCs to coordinate 

activities. TMCs should consider utilizing 

the “virtual EOC” concept to achieve closer 

integration of the TMC with the EOC. Video 

conferencing, voice conferencing, and fi le 

sharing servers are among the technologies 

that facilitate a virtual EOC concept. In 

addition, procedures and documentation 

must be developed that will support the 

activation, operation, and demobilization of a 

virtual EOC.

2

 http://ops.fhwa.dot.gov/publications/

fhwahop10050/ch1.htm.

3

 Federal Highway Administration, 

Information-Sharing Guidebook for 

Transportation Management Centers, 

Emergency Operations Centers and Fusion 

Centers, June 2010, p. 4.

4

 http://its.dot.gov/connected_vehicle/

connected_vehicle.htm.
Role of Transportation Management Centers in Emergency Operations 3-1

Incidents usually occur with little to no 

warning. That is why TMCs should prepare 

for incidents through planning, training, and 

practice prior to an incident in the “pre-event”

phase. Incident response lies at the core 

of a TMC’s mission. Rigorous, sustained, 

and coordinated pre-incident preparedness 

ensures an effi cient and effective handling 

of future incidents. The pre-event activities 

TMCs should undertake include the following:

• Establish an emergency preparedness 

working group;

• Perform a needs assessment;

• Develop a TMC Emergency Operations 

Plan (EOP) and Standard Operating 

Procedures (SOP);

• Develop a comprehensive preparedness 

guide; and

• Develop a Continuity of Operations Plan.

3.1 Establish an 

Emergency Preparedness 

Working Group

TMCs should form an Emergency 

Preparedness Working Group with agencies 

that regularly work with the TMC to discuss, 

develop, and review topics and initiatives 

related to emergency preparedness. Some of 

the possible participants include the following:

Source: Digital Stock, a division of Corbis Corp.

• Law enforcement (Federal, state, local);

• Fire departments;

• Emergency medical services;

• Emergency management agencies (Federal, 

state, local);

• Towing and recovery providers;

• Transportation agencies (Federal, state, 

local), including nonhighway agencies 

such as public transit (large metro systems 

and local bus services), rail, airport, or 

maritime;

• Private or not-for-profi t organizations 

such as the Red Cross, towing associations 

and AAA; and

• Other Federal, state, or local agencies such 

as Department of Homeland Security and 

state/ local environmental agencies.

3.0 Pre-Event Activities – Planning, 

Training and Exercising, and 

Best Practices
3-2 Role of Transportation Management Centers in Emergency Operations

The group should establish regularly 

scheduled and published meetings and 

develop the activities, including the following:

• Conduct a needs assessment and planning 

activities;

• Perform training and drill exercises;

• Introduce and evaluate new technologies 

that can benefi t both transportation and 

emergency operations which may offer 

opportunities to pool funds; tabletop exercises to build trust and good working relationships; and

• Perform formal debriefs or after-action 

meetings after critical incidents.

A series of guiding principles with regard 

to interagency cooperation are shown in the 

side box.

3.2 Emergency 

Preparedness Working 

Group Checklist

The TMC can use the following checklist to 

evaluate their current status in forming an 

Emergency Preparedness Working Group. 

The following list includes those parties that 

should be participating in the group (check all 

that apply):

Law enforcement (Federal, state, local).

Fire departments.

Emergency medical services.

Emergency management agencies (Federal, 

state, local).

Towing and recovery providers.

Transportation agencies (Federal, state, 

local), including nonhighway agencies such 

as public transit (large metro systems and 

local bus services), rail, airport, or maritime.

Private or not-for-profi t organizations.

Other Federal, state, or local agencies.

Guiding Principles to 

Interagency Cooperation in 

Emergency Planning for TMCs

• Play a support role to the State Emergency 

Management Agency (SEMA).

• Play an active role in developing and 

exercising the State EOP.

• Serve as the lead agency for ESF 1 – 

Transportation and play a signifi cant role in 

other ESFs.

• Have an agencywide emergency operations 

plan.

• Ensure plans and procedures complement the 

State’s overall emergency structure and plan(s).

• Ensure plans adhere to an all-hazards 

approach.

• Use the Comprehensive Preparedness Guide 

(CPG) 101 emergency management planning 

cycle (plan, prepare, respond, recover) and 

within that framework, prepare for specifi c 

response activities.

• Actively participate in the unifi ed command 

during incidents.

• Recognize the need for transportation 

agencies to understand the basic concept of 

the ICS, including Unifi ed Command (UC), as 

defi ned in NIMS.

Source: NCHRP Report 525, Volume 16, Guide to 

Emergency Response at State Transportation 

Agencies, p. 18.

Link to full documentation: http://onlinepubs.trb.org/

 onlinepubs/ nchrp/ nchrp_rpt_525v16.pdf.
Role of Transportation Management Centers in Emergency Operations 3-3

3.3 Perform a Needs 

Assessment

Transportation agencies conduct needs 

assessments on operations and maintenance, 

mobility, safety, or staffi ng. Needs assessments for emergency operations follow 

similar procedures and require the same basic 

elements, including the following:

Sample Emergency 

Operations Goals

• Minimize the impact of disaster on people, 

property, environment, and the economy.

• Assure mobility of the public and emergency 

response personnel.

• Assure agency continuity.

• Protect agency facilities and resources.

• Goals and objectives indicating what the 

TMC wants to accomplish in the area of 

emergency operations (see sample in the 

box above). Performance measures should 

determine whether the plan met its goals 

and objectives (see Wisconsin example).

• Measurable targets supported by available 

data that tie back to the goals and objectives, e.g., response times during events.

• Gaps and defi ciencies such as inadequate 

staffi ng or geographic coverage, training, 

lack of communications capability, or slow 

response times.

• A summary of needs for the Emergency 

Transportation Operations plan, including task-specifi c needs, which relate to the 

ability to carry out specifi c functions, and 

crosscutting needs, which include support 

functions for a variety of tasks.

A task-specifi c needs assessment might 

include the following:

• Deployment of additional detection equipment and/ or cameras to cover specifi c 

locations;

• Assignment of staff to emergency response 

planning activities;

• Development of response scenarios for 

specifi c events such as hazardous material 

spills, special events, or winter storms; and

• Evaluation and selection of detour routes.

A crosscutting needs assessment might 

include the following:

• Development of interagency training programs and exercises;

• Implementation of real-time communications/ software links between the TMC 

and EOC; and

• Joint development of detour routes for 

major emergencies and identifi cation of 

needed infrastructure.

Wisconsin DOT Emergency 

Operations Plan Areas for 

Performance Measurement

• ETO Positional Roles/Staffi ng.

• Training.

• Incident Action Plans 

(Communication/Coordination).

• Regional Incident Management Coordinator 

Response.

• WisHELP Response.

• Timely Notifi cation.

• Emergency Contact List Maintenance.

Source: Wisconsin DOT, Emergency Transportation 

Operations Program Update: Winter Weather 

Webinar, November 2010.
3-4 Role of Transportation Management Centers in Emergency Operations

3.4 Needs Assessment 

Checklist

The TMC can use the following checklist to 

evaluate their current status in support of a 

needs assessment (check all that apply):

Develops goals and objectives.

Identifi es measurable targets.

Identifi es gaps and defi ciencies.

The TMC develops an Emergency 

Transportation Operations plan that includes 

the following (check all that apply):

Deploys additional detection equipment 

and/or cameras.

Assigns staff to emergency response planning activities.

Develops response scenarios for specifi c 

events.

Evaluates and selects detour routes.

Develops interagency training programs 

and exercises.

Implements real-time communications/

software links between the TMC and EOC.

Participates in joint development of detour 

routes for major emergencies.

3.5 Develop a TMC EOP 

and SOPs

An Emergency Operations Plan (EOP) 

is a coordinating document outlining an 

organization’s concept of operations during 

an emergency. It provides information on 

potential situations and planning assumptions, 

roles and responsibilities, administration, 

and maintenance. Effectively developed, 

an EOP provides a concise overview of an 

organization’s emergency preparedness, 

response capabilities, and policies. It ties 

together threat and vulnerability assessments, 

mitigation planning, procedures, training, 

and drills and exercises in the form of a 

central high-level document that guides 

and advances the organization’s emergency 

preparedness program.

Source: Cambridge Systematics, Inc.

A TMC Emergency Preparedness Working 

Group should coordinate and drive the EOP. 

Although guidance does not currently exist 

for transportation EOPs, the Department of 

Homeland Security (DHS), and the Federal 

Emergency Management Administration 

(FEMA) Comprehensive Preparedness Guide 

(CPG) 101 is a standard guideline for a range 

of emergency operations needs. The footnoted 

link provides access to full documentation 

of CPG-101.5 It also provides a framework 

for transportation agencies identifying the 

process for monitoring and reporting the 

status of, and damage to, the transportation 

system and infrastructure resulting from an 

incident. Other items that are part of ESF 1 are 

available alternative transportation solutions, 

and methods of restoring the transportation 

systems and infrastructure. The guidebook 

also discusses the tasks that are part of ESF 3, 

Public Works.

Specifi c guidance is available in the NCHRP 

Report 525 – Volume 16 Surface Transportation 

Security – A Guide to Emergency Response 
Role of Transportation Management Centers in Emergency Operations 3-5

Planning at State Transportation Agencies,

which utilized the CPG-101 as guidance for 

transportation EOP. Whenever possible, 

the TMC should use Federal standards and 

guidelines in the planning process. NIMS 

is a comprehensive, nationwide, systematic 

approach to incident management and 

includes a set of preparedness concepts and 

principles for all hazards, as well as essential 

principles for a common operating picture 

and interoperability of communications and 

information management. NIMS consists 

of standardized resource management 

procedures that enable coordination among 

different jurisdictions or organizations. It is 

a scalable and dynamic system promoting 

ongoing management and maintenance. 

The footnoted link provides access to full 

documentation of NIMS.6

Achieving NIMS compliance requires state 

transportation agencies to become familiar 

with and understand the NIMS/ICS and 

National Response Framework (NRF) 

structure and their roles and responsibilities. 

The NIMS/ICS structure provides a 

systematic, shared tool to command, control, 

and coordinate emergency response activities 

consistently across all response agencies.

3.6 Develop an 

Emergency Operations 

Plan

Although formats vary, many state transportation agencies choose to follow the State 

EOP format for their agency plans. This 

makes the plans more consistent and, when 

put to use, makes it easier for outside parties 

to be involved. At a minimum, CPG 101 

states the EOP should include the following 

sections:

• Purpose and Scope;

• Situation Overview and Planning 

Assumptions;

• Concept of Operation (ConOps);

• Organization and Assignment of 

Responsibilities;

• Direction, Control, and Coordination;

• Interagency Coordination for Planned 

Special Events;

• Information Collection and Dissemination;

• Communication;

• Administration, Finance, and Logistics;

• Plan Development and Maintenance;

• Authorities and References; and

• Additional Planning and Coordination 

Functions.

Following is a description of each of those 

sections.

3.6.1 Purpose and Scope

The purpose section sets the tone of the 

EOP, and describes the shared commitment 

to improve responder and motorist safety 

and expedite incident clearance. The 

purpose should also refl ect the basic guiding 

principles from NIMS as well as the NCHRP 

Guide to Emergency Response at State 

Transportation Agencies. The scope identifi es 

the jurisdictional, geographic, and functional 

boundaries applicable to the EOP.

3.6.2 Situation Overview and 

Planning Assumptions

This section characterizes the planning 

environment and explains the need for the 

EOP. It should summarize the hazards faced 

by the TMC and discuss how the TMC expects 

to receive (or provide) assistance within its 

regional response structures. The situation 

section covers the following:
3-6 Role of Transportation Management Centers in Emergency Operations

• Relative probability and impact of the 

hazards;

• Geographic areas likely to be affected by 

particular hazards;

• Vulnerable critical facilities (e.g., nursing 

homes, schools, hospitals, infrastructure);

• Population distribution and locations, 

including any concentrated populations of 

individuals with disabilities, others with 

access and functional needs, or individuals 

with limited English profi ciency, as well 

as unaccompanied minors and children in 

daycare and school settings;

• Dependencies on other jurisdictions for 

critical resources;

• The process used by the TMC to determine 

its capabilities and limits to prepare for 

and respond to the defi ned hazards;

• The actions taken in advance to minimize 

an incident’s impacts, including short- and 

long-term strategies; and

• How to identify areas where plan adjustments may be needed once more information is available.

Source: Digital Stock, a division of Corbis Corp.

As scientists try to determine not if, but when a major earthquake will occur along the New Madrid 

fault line, the Missouri Department of Transportation (MoDOT) is planning for the possibility. 

MoDOT has a disaster plan and conducts earthquake emergency exercises with the State Emergency 

Management Agency and other public safety agencies. During the scenarios, the participants 

deal with fallen bridges, trapped motorists, crumbled roadways, and essential employees who were 

injured or incapacitated. Another benefi t of the exercise demonstrates how MoDOT TMCs will 

disseminate messages to the traveling public and the media.
Role of Transportation Management Centers in Emergency Operations 3-7

3.6.3 Concept of Operations

This ConOps section of the EOP explains 

TMC management’s intent on operations 

and through the documentation of specifi c 

operating concepts fosters understanding 

between transportation and emergency 

response agencies. The ConOps should 

make clear whether the TMC and EOC would 

colocate, the utilization of virtual EOCs, and 

how the TMC will leverage Traffi c Incident 

Management (TIM) practices. Concepts of 

Operations are often scenario-based such as 

the description of the weather event shown in 

Figure 3.1. Scenarios can vary from relatively 

simple high-level concepts, as shown below, 

to very detailed fl owcharts. This chart shows 

the concept for DOT monitoring of a weather 

event, and communications with the Michigan 

State Police (MSP).

Figure 3.1 Concept of Operations Weather Event

Source: Michigan Department of Transportation North Region Traffi c Management Center Concept of Operations, prepared for 

MDOT by Kimley-Horn and Associates, Inc., Cambridge Systematics, Inc., HNTB, and Richard Foltman, 2008.
3-8 Role of Transportation Management Centers in Emergency Operations

3.6.4 Organization and Assignment 

of Responsibilities

This section establishes the organization 

that will respond to emergencies, including 

the types of tasks by position and 

organization. It can build upon the existing 

TIM programs, which typically include 

coordination of incident response efforts by 

traditional responders (law enforcement, 

transportation, fi re and rescue, and EMS). 

This initial coordination forms the basis for a 

multiagency team, a cornerstone of any TIM 

program, including:

• The responsibilities for various emergency 

preparedness and response activities in the 

EOP, including internal position responsibilities, and the responsibilities of external 

agencies, such as public safety agencies; and

• A framework for developing and achieving 

multiagency coordination (detailed in NIMS 

and ICS). Table 3.1 shows a description 

of the various roles and responsibilities. 

More information on roles and responsibilities is included in the Traffi c Incident 

Management Handbook. The Handbook 

offers insights into the latest innovations 

in TIM tools and technologies and includes 

a web-based version that users can easily 

access. Some of the topics covered include 

the necessary programmatic structure and 

institutional cooperation, what constitutes 

the full range of on-scene operations, and 

the communications and technical aspects 

of a successful program. The footnoted link 

provides access to full documentation.7

3.6.5 Direction, Control, and 

Coordination

This section describes the framework for 

all direction, command and control, and 

coordination activities, and identifi es who 

has strategic, tactical (as applicable), and 

operational command and control of response 

assets and services. Strengthening interagency 

coordination during emergency planning 

activities will encourage ongoing dialogue 

among TIM responders. It will also increase 

awareness of priorities and roles, as well as 

joint agency/jurisdictional protocols. It gives 

TMCs and EMCs an opportunity to formalize 

agency relations and respective roles in 

TIM and demonstrate commitment through 

common resource/facility investments. The 

footnoted link provides access to additional 

detail on coordination strategies found in the 

FHWA Traffi c Incident Management Handbook, 

which is described earlier.8

Utilizing the Emergency Preparedness 

Working Group as a vehicle, TMCs should 

lead or participate in interagency coordination 

and communication efforts related to 

emergency preparedness. TMCs are hubs 

for information gathering and sharing as 

well as communications and notifi cations, 

and should bring these capabilities and 

functions to broader, statewide emergency 

preparedness planning efforts. Whether led 

by state DOTs, state Emergency Management 

Agencies (EMA), or DHS, incorporation of 

TMC resources and capabilities is rarely 

turned away. The discussion of direction, 

control, and coordination will have a direct 

effect on the following:
Role of Transportation Management Centers in Emergency Operations 3-9

• Identifying and encouraging participation 

by the full range of stakeholders, as shown 

in Table 3.1;

• Participation by nontraditional stakeholders such as trucking companies and 

AAA through relationships with their 

trade organizations;

• Utilization of state or regional responder 

organizations such as Sheriff’s or Fire 

Departments to reach out to representatives from smaller communities; and

• Familiarizing team members with each other’s roles and responsibilities at initial meetings and repeating as needed given the high 

turnover rates among participants.

Table 3.1 Traffi c Incident Management Stakeholders and Descriptions

Traditional Responders

Special/Extreme 

Circumstance Responders

Incident 

Information Providers

Transportation 

System Providers 

and Users

Public Safety Communications Hazardous Materials Contractors Traveler Information Services Traveling Public

Law Enforcement Coroners and Medical Examiners Traffi c Media Trucking Industry

Fire and Rescue Emergency Management Agencies Transportation Agencies Insurance Industry

Emergency Medical Services 

(EMS)

Environmental/Natural Resources 

Departments of Public Health

Public Transportation 

Providers

Towing and Recovery Motorist Organizations

Transportation Agencies

Source: 2010 Traffi c Incident Management Handbook, FHWA-HOP-10-013.

Source: iStockphoto®.

Three tractor-trailers have crashed releasing Thioglycol, a Class 6 HAZMAT material, and 

trapping one of the drivers inside the cab. While emergency responders worked to extricate the 

driver, a HAZMAT team contained the chemical. Behind the scenes, the Virginia Department of 

Transportation (VDOT) published 511 messages (voice and web site), and through its regional 

TMCs established detours, and posted information on message boards until the highway was open 

in both directions and returned to normal traffi c patterns.
3-10 Role of Transportation Management Centers in Emergency Operations

3.6.6 Interagency Coordination for 

Planned Special Events

This section describes the expertise and 

resources on traffi c fl ow that TMCs bring to an

event planning team. While planned special 

events are not the focus of this guidebook, they 

are discussed here for two important reasons:

• Planned special events provide an opportunity to test emergency response systems, 

equipment and training, including ICS, in 

a non-emergency situation. Lessons can 

be drawn which will help improve emergency response.

• Due to the large number of people concentrated in limited space, planned special 

events represent a high risk for terrorist 

acts. Unanticipated weather events, particularly thunderstorms or high winds, can 

also result in an emergency situation.

Depending on the type of event, the venue, or 

even the location, the event planning team could 

include the following:

• State and local police/ law enforcement;

• State and local traffi c management 

agencies;

• Emergency management services/ response (Fire/ EMS);

• Tow truck operators;

• Transit operators and event shuttle 

operators;

• Parking lot operators;

• Venue operators; and

• Event promoters and the media.

Photo courtesy of the North Carolina Department of Transportation.

The North Carolina Department of Transportation (NCDOT) played a primary role in 

communicating information to residents and tourists before, during, and after Hurricane Irene. 

NCDOT’s TMC provided real-time travel information on their 511 system, web site, changeable 

message signs, through Twitter, and on mobile devices. The TMC also managed traffi c and 

monitored for incidents.
Role of Transportation Management Centers in Emergency Operations 3-11

Source: Cambridge Systematics, Inc.

The FHWA Freeway Management and Operations 

Handbook, Chapter 11, provides a detailed 

summary of TMC planning and management 

roles related to special events, which will vary 

depending on event characteristics. Some 

of the topics discussed include a detailed 

description of all phases of managing travel 

from preplanning to postevent, a framework 

for stakeholder coordination, and innovative 

techniques for enhancing effi ciency. The 

footnoted link provides access to full 

documentation.9 Another valuable source of 

information is the FHWA document National 

Special Security Events: Transportation 

Planning for Planned Special Events, FHWAHOP-11-012, which provides a transportation 

guide to National Special Security Events 

(NSSEs).

Some of the planning and resources from 

the TMC, law enforcement, and emergency 

response can improve operational effi ciency 

around planned special events.

For instance, when the Dallas Cowboys 

Stadium opened in 2009, there were 200 

offi cers in the fi eld supporting traffi c and 

event management; today that number is 

closer to 90, which shows a signifi cant resource 

and cost savings as a result of technology, 

operational strategies, and coordination with 

the TMC.

3.6.7 Information Collection and 

Dissemination

This section describes the essential information 

common to all emergencies identifi ed during the 

planning process, including coordination with 

state and regional Fusion Centers.

TMC Resources and Services for 

Planned Special Events

• Monitor traffi c conditions on key roadways 

through detection and CCTV equipment.

• Share CCTV feeds with law enforcement, event 

managers, and others.

• Implement strategies to guide traffi c in and out 

of the event, including reviewing historical traffi c conditions to determine where congestion 

can be expected, using of Dynamic Message 

Signs (DMS) to provide advance notice, and 

deploy portable message signs to help guide 

event traffi c advise drivers of potential delays.

• Provide the public with advanced notice of the 

event, detours, and closed roads via web sites, 

511 phone systems, media, and private traffi c 

information services.

• Coordinate with other transportation departments to supply additional trucks or equipment 

to support a potential emergency.

• Participate in drills and exercises with emergency responders to plan for emergency 

access/egress or evacuations.

• Coordinate with local jurisdictions to modify 

signal timing on arterial roadways during preevent and postevent periods.

• Coordinate with transit operations centers, both 

public and private, to help manage bus staging 

areas and access/egress routes for transit 

vehicles.
3-12 Role of Transportation Management Centers in Emergency Operations

ITS and Traveler Information

In many regions, the DOT’s ITS is an 

important source of real-time information 

about the transportation system, which is 

often communicated by the TMC to law 

enforcement.

TMC/EOC Data Exchange

TMCs should explore avenues to enhance 

connectivity and interoperability between 

TMCs, EOCs, and Fusion Centers. The range 

of connectivity and data exchange between 

the TMC and EOC includes shared local area 

data and video networks; shared private area 

networks using Ethernet technology and 

video encoding; and commercial data access 

from publicly available providers such as the 

Internet and telephone service providers. In 

addition, the TMC should incorporate ITS 

into their emergency operations procedures 

to provide situational awareness to the EOC 

and Fusion Center including traffi c volumes 

and queuing. ITS information may also help 

inform evacuation decisions and routing.

3.6.8 Communication

This section of the EOP describes the response 

communication protocols and coordination 

procedures for use during emergencies 

and disasters. The TMCs’ 24/7 operational 

profi le and advanced incident detection and 

information gathering capabilities place them 

at the forefront of highway incident response. 

TMCs can only be effective in this role if 

there are appropriate communications and 

notifi cation policies and procedures. The box 

shows a communications policy developed 

by Florida DOT for use in hurricanes and 

other emergencies.

If a common interagency communications 

center is not available, the plan must then cover 

how to achieve interagency communications, 

including notifi cations between TMCs, 

EOCs, Fusion Centers, and emergency 

response agencies. These protocols should 

apply for regional communications plans 

and communication between the TMC and 

other transportation agencies. The Federal 

Communications Commission (FCC) ruling 

of July 2011 on Public Safety Broadband, 

discussed further in the next section, has direct 

implications for TMC/EOC cooperation.

Microwave System and 

Communications Through 

Cellular Telephones and Radios

• Communications protocols are a critical part of 

the Emergency Operations Plan, including both 

notifi cation and equipment. Clear direction 

such as that shown below in the Florida DOT 

Hurricane Action Response Plan can assure 

that DOT participants are properly equipped 

and prepared.

• Districts should continue to use and maintain FDOT-owned 47 MHz maintenance radio 

system to ensure communication during 

emergencies.

• Contractors who provide services to FDOT 

during emergencies should be included in the 

FDOT communication system.

• Districts should explore use of satellite telephones for redundancy following a hurricane 

since telephones and radios could be out of 

service after such an event.

Source: Florida DOT Hurricane Response Action 

Plan, Version 2, June 2005.

Communications Stakeholders

State DOTs, because of their interest in ITS 

technology, can work with and support 

public safety agency partners on advanced 

technology applications. The FCC’s allocation 

of frequency to public safety functions 

reinforces this cooperation. An integrated 

approach to a broader range of hazards 

requires cooperation among the emergency 

management community and public safety and 

transportation entities, more shared real-time 
Role of Transportation Management Centers in Emergency Operations 3-13

information, rapid access across public data 

sources and data types, and access to special 

expertise on an on-call basis. TMCs should 

also establish a Communications Working 

Group and include stakeholders involved 

in communications and notifi cation systems 

and procedures within and outside the TMC. 

The communications group would cooperate 

with the TMC on the development of plans 

and procedures and include individuals from 

the following:

• Internal TMC or state DOT Information 

Technology Division;

• Internal TMC or state DOT Telecommunications Division;

• External Communications Stakeholders:

— Police Telecommunications;

— State Emergency Management Telecommunications; and

— Municipal Public Safety Telecommunications.

Regular discussion and coordination 

with internal and external stakeholders 

can enhance communications and 

notifi cation and identify problem areas 

such as radio interoperability. Typical 

telecommunications resources include the 

common mutual-aid frequencies/ channels, 

alternative communications devices, 

wireless information networks, and an 

associated standardized communications 

terminology/ protocol to enhance en-route 

and on-scene communications among 

responders from different agencies. Mobile 

unifi ed communications vehicles can also 

enhance en-route/ on-scene communications 

among different responders.

TMCs should utilize the Communications 

Working Group to maximize the utility 

and interoperability of the many different 

communications services and systems that 

interface with the TMC and leverage those 

systems to expand the communications reach 

of the TMC. All of the systems can support 

emergency operations as long as there are 

plans and procedures such as standardized 

terminology and system protocols, and 

external stakeholders are able to tap into them. 

Examples of communications commonly 

used by TMCs include the following:

• Internal radio frequencies/channels;

• Mutual-aid frequencies/channels;

• Wireless information networks;

• Landline voice and data networks; and

• Cellular voice and data networks.

3.6.9 Administration, Finance, and 

Logistics

This section of the EOP addresses the general 

support requirements and the availability of 

services for all types of emergencies, including 

mutual-aid agreements; authorities for and 

policies on reassigning public employees 

and soliciting and managing volunteers; and 

general policies for maintaining fi nancial 

records, reporting and tracking resource 

needs. Of particular importance are potential 

sources of funding for the TMC’s Emergency 

Preparedness and Security Program.

Transportation Emergency 

Preparedness/ Security Funding

TMCs should utilize the Emergency 

Preparedness Working Group members 

to research and leverage transportation 

emergency preparedness and security 

funding. This funding comes from multiple 

sources, depending on the specifi cs of the 

project and the current funding environment. 

Primary sources include general state and 

Federal funds and specifi c grant funds. 

Transportation projects can sometimes take 

advantage of emergency preparedness or 

infrastructure security-oriented funding. 

The following are current grant programs to 

support emergency preparedness:
3-14 Role of Transportation Management Centers in Emergency Operations

• United States Department of Transportation/Federal Transit Administration:

— Metropolitan and Statewide Planning;

— State-of-Good-Repair Bus and Bus 

Facilities Initiative;

— Transit Asset Management (TAM) 

Pilot Program; and

— Urbanized Area Formula Program.

• Pipeline and Hazardous Material Safety 

Administration:

— Hazardous Materials Emergency 

Preparedness (HMEP) Grant Program: 

Hazardous Materials Public Sector – 

Training and Planning Grants for 

States and Territories.

• United States Department of Homeland 

Security/ Federal Emergency Management 

Agency:

— Buffer Zone Protection Program (BZPP);

— Driver’s License Security Grant 

Program (DLSGP);

— Emergency Management Performance 

Grants (EMPG);

— Homeland Security Preparedness 

Technical Assistance Program – 

National Governors Association;

— Intercity Bus Security Grant Program;

— Port Security Grant Program (PSGP);

— Regional Catastrophic Preparedness 

Grant Program (RCPGP);

— Technical Assistance Program – 

National Governors Association (NGA);

— Transit Security Grant Program 

(TSGP); and

— Urban Areas Security Initiative (UASI).

3.6.10 Plan Development and 

Maintenance

This section describes the planning process, 

participants, and how EOP revisions are 

coordinated during the preparedness phase. 

It also includes guidance on how to provide 

a regular cycle of testing, reviewing, and 

updating the EOP. Recommended processes 

for post-incident review and EOP adjustment 

are also included.

Steps in the Planning Process

This section presents a planning process 

that is fl exible and allows TMCs to adapt it 

to varying characteristics and situations. If 

time is a constraint, steps can be minimized 

or skipped in order to accelerate the process. 

Small TMCs can follow just the steps that are 

appropriate to their size, known risks, and 

available planning resources. At each step in 

the planning process, TMCs should consider 

the impact of the decisions made on training, 

exercises, equipment, and other requirements.

Step 1 – Form a Collaborative Planning 

Team

Experience and lessons learned have 

demonstrated that operational planning is 

best performed by a team. A team approach 

enables organizations to defi ne the role they 

will play during an operation. The common 

threads found in successful operations are 

that participating organizations understand 

and accept their roles and that members of 

the planning team understand and accept 

the roles of other departments and agencies. 

A key goal of any TMC planning team is to 

build and expand relationships that help 

bring creativity and innovation to emergency 

planning. A TMC benefi ts from the active 

participation of all stakeholders. Tips for 

gathering the team together are listed below:
Role of Transportation Management Centers in Emergency Operations 3-15

• Give the planning team plenty of notice about 

where and when the planning meeting will 

be held.

• Provide information about team expectations. Explain why participating on the 

planning team is important to the participants’ agencies and show the participants 

how their contributions will lead to more 

effective operations.

• Ask the senior appointed offi cial or designee to sign the meeting announcement, 

since a directive from the executive offi ce 

carries authority and sends a clear signal 

that operational planning is important to 

the community.

• Allow fl exibility in scheduling after the 

fi rst meeting as not all team members will 

need to attend all meetings. Determine 

where possible task forces or subcommittees should complete the work.

In most TMCs, the TMC manager is the 

senior offi cial’s policy advisor for response 

and mitigation strategies, as well as overall 

preparedness. TMC managers are often 

responsible for coordinating and developing 

an EOP, fi lling the role of lead planner. This 

means that the TMC manager provides 

oversight to a TMC’s planning team.

Step 2 – Understand the Situation

Effective risk management requires a consistent 

comparison of the hazards a particular TMC 

faces. TMCs should collect information about 

threats and hazards and assign values to risk 

for the purposes of determining priorities, 

developing or comparing courses of action, 

and informing decision-making. The TMC 

could conduct an in-depth process – cataloging 

everything from specifi c asset vulnerabilities 

to emergency personnel staffi ng levels. Due 

to resource limitations, however, this level of 

analysis may not be possible or practical In such 

cases, TMCs should conduct a risk assessment 

of achievable and appropriate scale and scope.

Identify Threats and Hazards. As the fi rst 

step, TMCs should gather information 

about the potential risks, resource base and 

geographic characteristics that could affect 

emergency operations. In addition, TMCs’

hazard mitigation plans are an excellent 

resource for this step, as they are required 

to identify, catalog, and analyze all natural 

hazards that have the ability to impact the 

TMC and its operations. TMCs should take 

additional steps to include human-caused 

and technological hazards. Planning teams 

should use state and local fusion centers to 

provide analytical products, such as risk 

and trend analyses, that are derived from 

the systematic collection and evaluation 

of threat information. Fusion centers also 

provide access to national-level intelligence 

and can serve as a mechanism to “deconfl ict”

information.

Assess Risk. The risk assessment is the 

basis for EOP development and helps a 

planning team decide what hazards or 

threats merit special attention, what actions 

to plan for, and what resources are likely to 

be needed. In this step, planners inventory, 

evaluate, and provide loss estimates for 

assets deemed critical during the response 

and recovery phases of an incident. Planners 

can also obtain the Hazards U.S. MultiHazard (HAZUS-MH) model from FEMA. 

HAZUS-MH is a nationally applicable and 

standardized methodology that estimates 

potential losses from earthquakes, fl oods, and 

hurricane winds.

Step 3 – Determine Goals and Objectives

Determine Operational Priorities. TMCs set 

operational priorities by using information 

from the risk profi le. The planning team 

engages the senior offi cial to establish how 

the hazard or threat would evolve survivors, 

and the community. Starting with a given 

intensity for the hazard or threat, the team 

imagines an incident’s development using 

the following sequence:
3-16 Role of Transportation Management Centers in Emergency Operations

• Prevention and protection efforts;

• Initial warning (if available);

• Impact (as identifi ed through analysis); and

• Generation of specifi c consequences 

(e.g., collapsed buildings, loss of critical 

services or infrastructure, death, injury, 

displacement).

Planners may use the incidents that have the 

greatest impact on the TMC (worst-case), those 

that are most likely to occur, or an incident 

constructed from the impacts of a variety 

of risks. During this process of building an 

incident scenario, the planning team identifi es 

the requirements that determine actions and 

resources. Planners identify requirements 

generated by the hazard or threat, the 

response, and by constraints/restraints.

Planners develop requirements based on the 

nature of the hazard or threat. Response 

requirements are developed based on actions 

taken in response to an agent-generated problem. 

These tend to be common to all operations.

A constraint is something that must be done 

(“must do”), while a restraint is something that 

prohibits action (“must not do”). These may 

be defi ned in law, regulation, or management 

directive; by physical characteristics (e.g., terrain 

and road networks that make east-west evacuations 

impossible); or by resource limitations.

Set Goals and Objectives. Planners should 

carefully craft goals and objectives to ensure 

they support the plan mission and operational 

priorities. They must also clearly indicate the 

desired result or end state. Goals and objectives 

facilitate unity of effort and consistency of 

purpose among the multiple groups and 

activities involved in plan execution.

Planners correctly identify an operational task 

when they can answer the following questions 

about it:

• What is the action?

• Who is responsible for the action?

• When should the action take place?

• How long should the action take and how much 

time is actually available?

• What has to happen before?

• What happens after?

• What resources does the person/entity need to 

perform the action?

Step 4 – Plan Development

Develop and Analyze Courses of Action. This 

step is a process of generating, comparing, 

and selecting methods of achieving the goals 

and objectives identifi ed in Step 3. When 

developing courses of action, planners depict 

how an operation unfolds by building a 

portrait of the incident’s actions, decision 

points, and participant activities. Planners 

identify tasks that occur immediately at 

incident initiation, tasks that are carried 

out through the duration of the incident, 

and tasks that affect long-term operations. 

Specifi c activities include:

• Establish the timeline. Planners should 

cover all mission areas in the timeline and 

use the speed of incident onset to establish 

the timeline. For example, a hurricane’s 

speed of onset is typically days, while a 

major HAZMAT incident’s speed of onset 

is minutes.

• Depict the scenario. Planners use the scenario information developed in Step 3, 

place the incident information on the 

timeline and identify and depict decision 

points. Decision points indicate the place 

in time, as incidents unfold, when leaders 

anticipate making decisions about a course 

of action.
Role of Transportation Management Centers in Emergency Operations 3-17

• Identify and depict operational tasks. For 

each operational task depicted, some basic 

information is needed. Developing this 

information helps planners incorporate the 

task into the plan when they are writing it.

• Select courses of action. Once the above 

analysis is complete, planners must compare the costs and benefi ts of each proposed course of action against the mission, 

goals, and objectives. Based on this comparison, planners then select the preferred 

courses of action to move forward in the 

planning process.

Identify Resources. Once courses of action 

are selected, the planning team identifi es 

resources needed to accomplish tasks without 

regard to resource availability. The object is 

to identify the resources needed to make the 

operation work. Once the planning team 

identifi es all the requirements, they begin 

matching available resources to requirements. 

The resource base should also include a list 

of facilities vital to emergency operations, 

and the list should indicate how individual 

hazards might affect the facilities. Whenever 

possible, planners should match resources 

with other geographical/regional needs so 

that multiple demands for the same or similar 

resources can be identifi ed and confl icts 

resolved. This step provides planners an 

opportunity to identify resource shortfalls 

and prepare pre-scripted resource requests, 

as appropriate. The EOP should account 

for unresolved resource shortfalls so they 

are not just “assumed away.” The capability 

estimate process, a planner’s assessment of 

a TMC’s ability to take a course of action, 

is critical to this effort. Planners should 

use capability estimates for both future and 

current operational planning.

Step 5 – Plan Preparation, Review, and 

Approval

Write the Plan. This step turns the results of 

course of action development into an EOP. 

The planning team develops a rough draft of 

the basic plan, functional annexes, hazardspecifi c annexes, or other parts of the plan as 

appropriate. The TMC and partners on the 

planning team record results from Step 4 and 

provide an outline for the rough draft. As 

the planning team works through successive 

drafts, the members add necessary tables, 

charts, and other graphics. The planning 

team prepares and circulates a fi nal draft to 

obtain the comments of organizations that 

have responsibilities for implementing the 

plan. Following these simple rules for writing 

plans and procedures will help ensure that 

readers and users understand their content:

• Keep the language simple and clear by 

writing in plain English and avoid using 

jargon and minimize the use of acronyms.

• Use short sentences and the active voice. 

Qualifi ers and vague wording only add to 

confusion.

• Provide enough detail to convey an easily 

understood plan that is actionable. The 

amount of detail a plan should provide 

depends on the target audience and the 

amount of certainty about the situation.

• Format the plan and present its contents so 

that its readers can quickly fi nd solutions 

and options. Focus on providing mission 

guidance and not on discussing policy and 

regulations.

• Ensure accessibility by developing tools 

and documents (e.g., print, electronic, 

video) so plans can be easily converted to 

alternate formats.
3-18 Role of Transportation Management Centers in Emergency Operations

Criteria for Plan Assessment

• Adequacy. Do the scope and concept of 

planned operations identify and address critical 

tasks effectively? Can the plan accomplish 

the assigned mission while complying with 

guidance? Are the plan’s assumptions are 

valid, reasonable, and comply with guidance?

• Feasibility. Can the organization accomplish 

the assigned mission and critical tasks by 

using available resources within the time 

contemplated by the plan?

• Acceptability. Does the plan meet the 

requirements driven by a threat or incident? 

Can the plan be justifi ed in terms of the cost of 

resources? Is its scale is proportional to mission 

requirements? Planners use both acceptability 

and feasibility tests to ensure that the mission 

can be accomplished with available resources, 

without incurring excessive risk regarding 

personnel, equipment, material, or time.

• Completeness. A plan is complete if it:

— Incorporates all tasks to be accomplished;

— Includes all required capabilities;

— Provides a complete picture of the 

sequence and scope of the planned 

response operation;

— Provides a timeline for implementation; and

— Identifi es success criteria and a desired 

end-state.

• Compliance. The plan should comply with 

guidance and doctrine to the maximum extent 

possible, because these provide a baseline 

that facilitates both planning and execution.

Review the Plan. Planners should check the 

written plan for its conformity to applicable 

regulatory requirements and the standards 

of Federal or state agencies, as appropriate, 

and for its usefulness in practice. Planners 

should consult the next level of government 

about its plan review cycle. Commonly used 

criteria help decision-makers determine the 

effectiveness and effi ciency of plans. These 

measures include adequacy, feasibility, 

acceptability, completeness and compliance. 

Decision-makers directly involved in planning 

can employ these criteria, along with their 

understanding of plan requirements, to 

determine a plan’s effectiveness and effi ciency 

and to assess risks and defi ne costs.

When using these fi ve criteria, planners 

should ask the following questions:

Did an action, a process, a decision, or the 

operational timing identifi ed in the plan 

make the situation worse or better?

• Were new alternate courses of action 

identifi ed?

• What aspects of the action, process, decision, or operational timing make it something to keep in the plan?

• What aspects of the action, process, decision, or operational timing make it something to avoid or remove from the plan?

• What specifi c changes to plans and procedures, personnel, organizational structures, leadership or management processes, facilities, or equipment can improve 

operational performance?

Approve and Disseminate the Plan. Once the 

plan has been validated, the planner should 

present the plan to the appropriate DOT 

offi cials and obtain offi cial promulgation of 

the plan. The promulgation process should be 

based in a specifi c statute, law, or ordinance. A 

formal promulgation documentation process 

is implemented to obtain senior offi cial’s 

approval and to gain the widest acceptance 

possible for the plan. The authority required 

for changes and modifi cations to the plan 

must be established. Once the senior offi cial 

grants approval, the plan must be distributed 

and a record of the people and organizations 

that received a copy (or copies) of the plan 

must be maintained. “Sunshine” laws may 

require that a copy of the plan be posted on 

the TMC’s web site or be placed in some other 

public accessible location.
Role of Transportation Management Centers in Emergency Operations 3-19

Step 6 – Plan Implementation and 

Maintenance

Training. After developing a plan, it must be 

disseminated and managers must train their 

personnel so they have the knowledge, skills, 

and abilities needed to perform the tasks 

identifi ed in the plan. Personnel should also be 

trained on the organization-specifi c procedures 

necessary to support those plan tasks.

Exercise the Plan. The planning team must 

conduct training events, exercises, and realworld incidents to determine whether the 

goals, objectives, decisions, actions, and 

timing outlined in the plan leads to a successful 

response. In this way, homeland security 

and other emergency preparedness exercise 

programs become an integral part of the 

planning process. Similarly, planners need to 

be aware of lessons and practices from other 

communities. A remedial action process will 

help a planning team identify, illuminate, and 

correct problems with the TMC’s EOP. This 

process captures information from exercises, 

post-disaster critiques, self-assessments, 

audits, administrative reviews, or lessonslearned processes that may indicate that 

defi ciencies exist. Members of the planning 

team should reconvene to discuss the problem 

and to consider and assign responsibility 

for generating remedies across all mission 

areas. Remedial actions may involve revising 

planning assumptions and operational 

concepts, changing organizational tasks, 

or modifying organizational implementing 

instructions (i.e., the SOPs/SOGs). Remedial 

actions may also involve providing refresher 

training for an organization’s personnel.

Review, Revise, and Maintain the Plan. This 

step closes the loop in the planning process as 

it focuses on adding the information gained 

by exercising the plan to the research collected 

in Step 2 and starting the planning cycle over 

again. Planning teams should establish a 

process for reviewing and revising the plan 

on a regular basis. Some TMCs have found it 

useful to review and revise portions of their 

EOPs every month. Many accomplish their 

reviews on an annual basis. In no case should 

any part of the plan go for more than two 

years without being reviewed and revised. 

Teams should also review and update the 

plan after the following events:

• A major incident;

• A change in operational resources (e.g., 

policy, personnel, organizational structures, management processes, facilities, 

equipment);

• A formal update of planning guidance or 

standards;

• Major exercises;

• A change in the TMC’s hazard or threat 

profi le;

• A change in the acceptability of various 

risks; and

• The enactment of new or amended laws or 

ordinances.

3.6.11 Authorities and References

This section provides the legal basis for 

emergency operations and activities. The 

authorities and references should include 

the following:

• A list of laws, statutes, ordinances, executive orders, mutual-aid, and other agreements, etc.;

• The extent and limits of the emergency 

authorities granted to the state transportation agency; and

• Emergency authorities and provisions for 

continuity of operations.

The emergency operations activities of the 

TMC generally fall within the legislative 

mandate that established the agency and 

defi ned its responsibilities. Recent legislative 
3-20 Role of Transportation Management Centers in Emergency Operations

initiatives related to emergency operations 

and roadway safety include Quick Clearance 

laws, and Move Over Slow Down laws for 

emergency vehicles. Implementation of NIMS 

has helped defi ne the roles of transportation 

and emergency response agencies during 

emergencies.

Memoranda of Understanding or Agreements 

(MOU/A) or Emergency Management 

Assistance Compacts (EMAC) are two 

methods to ensure formal procedures are 

in place for mutual assistance and support. 

These agreements form the basis of training 

and planning activities, and are generally 

most effective when covering specifi c topics. 

NIMS and the NRF provide a basis for these 

agreements, and the duties in the State EOP. 

While implementation of agreements may 

occur at a higher level in the transportation 

agency, the TMC should have a seat at the table 

in both the development and the execution 

of MOU/As and EMACs. TMC personnel 

can provide inventories of equipment, 

current operating procedures, and provide 

recommendations on items to include in the 

plan. The text box provides language for an 

agreement. Successful implementation of an 

agreement requires research upfront by all 

parties during the preparation phase and most 

importantly, efforts to build relationships 

between agency personnel.

An example of a noteworthy practice is 

the consolidation of transportation and 

emergency response functions into Houston’s 

TranStar Transportation Center through an 

interlocal agreement that focuses heavily on 

funding, project development, and operating 

responsibilities. Four entities, including the 

Texas DOT, Houston Metro (transit operator), 

Harris County, and the City of Houston 

agreed to participate in the development and 

operation of the Center. TranStar operates 

freeway and traffi c signal management and 

emergency management activities for both 

Harris County and the City of Houston. The

operating agreement of the Center determines 

the procedures affecting transportation and 

emergency response personnel. The footnoted 

link provides access to full documentation of 

the interlocal agreement.10

Agreement Language

Agreement language should include the following 

information:

• An inventory of the available assets for use 

during exercises and actual events;

• The chain of command;

• Defi nitions of key terms and participating 

agency jurisdictional boundaries;

• Procedures for requesting and providing 

assistance;

• Procedures, authorities, and rules for payment, 

reimbursement, and reallocation of cost;

• Notifi cation procedures;

• Protocols for interoperable communications;

• Relationships to other agreements between 

jurisdictions;

• Treatment of liability, immunity, and workers’

compensation;

• Recognition of qualifi cations and certifi cations;

• Future evaluation and modifi cation of 

procedures and protocols;

• Training and joint exercise responsibilities; and

• Sharing agreements.

Source: NCHRP Report 525 Volume 16, A Guide 

to Emergency Response Planning at State 

Transportation Agencies, pp. 48-49.

An example of a broader agreement is the 

Joint Operations Policy Statement between 

the Washington State DOT, State Patrol, 

and Association of Fire Chiefs for Disaster 

Response. This goes beyond an incident 

management agreement to address working 

relationships for disaster response, work 

zone safety, winter operations, smart 

highways, commercial vehicle operations, 

facilities management (rest areas), wireless
Role of Transportation Management Centers in Emergency Operations 3-21

management (rest areas), wireless 

communications, system security, and ferry 

operations. For each area, the policy statement 

includes a brief background statement, a 

simply stated objective, and policy guidance 

(which may reference other documents) 

along with roles and responsibilities, ongoing 

actions, measures of performance, and a 

timeline for implementation.

Incident Clearance Agreements

Interagency agreements for incident clearance 

may address duties and responsibilities of 

response agencies, jurisdictional authority, 

and resource sharing among agencies. MOUs 

or cooperative agreements between emergency 

operations agencies and transportation 

agencies can focus exclusively or primarily on 

the handling of incidents, which is an effective 

way to reduce tension around the tradeoffs 

Agreement

Background: The Washington State Comprehensive Emergency Management Plan (CEMP) establishes the 

policy under which all state agencies will respond to emergencies and disasters.

Objective: Improve coordination of joint Washington State Police (WSP), Washington State Department of 

Transportation (WSDOT) emergency operations.

Policy: The WSP and WSDOT agree to enhance existing procedures to provide additional protection 

measures for the traveling public and the transportation system.

Roles and Responsibilities:

WSDOT Responsibilities: Headquarters (HQ) Emergency Operations Center (EOC) will be equipped for WSP 

Data communication capabilities. WSDOT Lead: Emergency Operations and Safety Program Manager.

WSP Responsibilities: Staff the WSDOT’s HQ and Regional EOCs as appropriate during emergencies. WSP 

Lead: Incident Management Team Coordinator.

Washington Fire Chiefs (WFC): Work collaboratively with WSP and WSDOT partners to identify joint interests 

and best practices for disaster response. WFC Lead: Deputy Chief, Bellevue Fire Department.

Action: To increase effectiveness, WSDOT’s HQ EOC Team will meet at least annually to discuss 

opportunities for improvement in disaster response. The Team will also work to establish cooperative 

partnerships with other emergency response agencies. Each WSP District Commander (DC) and WSDOT 

Region Administrator (RA) will work to exchange knowledge of all applicable WSP and WSDOT disaster 

response plans. WFC will continue to promote training and coordination to support disaster response 

preparedness and response.

Measures of Performance/Reporting: Disaster response drills should be conducted on an annual basis 

and should include WSP, WSDOT, and all local stakeholders. At each annual JOPS meeting, each DC/RA 

will report on new or revised plans for their area.

Time Line: This policy will be in place when JOPS receives fi nal approval by both agencies.

Source: JOPS, A Joint Operations Policy Statement, prepared and agreed by the Washington Department of 

Transportation, the Washington State Patrol, and the Washington Fire Chiefs, 2010, p. 15.
3-22 Role of Transportation Management Centers in Emergency Operations

between public safety and mobility. Incident 

commanders at the scene have safety as a 

fi rst priority and are generally cautious in 

allowing traffi c to move through or around 

an incident. Transportation agencies meanwhile are concerned about traffi c impacts 

and both parties are concerned about the 

potential for secondary crashes when there 

are stops in the traffi c fl ow. A sample 

memorandum between the Tennessee DOT 

and the Tennessee Department of Safety 

(DOS) defi nes the responsibilities and 

policies for each agency, and those which are 

joint activities. Two of the paragraphs in the 

text box illustrate how such an agreement 

can defi ne specifi c responsibilities during 

and after an incident through ongoing 

working relationships.

Use of TMC Resources for 

Nontransportation Events

Interagency agreements can be important in 

defi ning the parameters of TMC participation 

in nontransportation events. This issue 

comes up frequently in relation to the role of 

law enforcement during homeland security 

activities. Law enforcement/security 

agencies, for example, may request CCTV 

access to track suspects. TMCs are hardpressed to turn down these requests even 

though it may contradict TMC policies or 

agreements and most TMCs do not record 

CCTV feeds except for incidents. As TMCs 

work with law enforcement on incident 

management, event management, or 

evacuations; relationships can develop along 

with guidelines for this activity. While there 

will be limitations in what law enforcement 

Tennessee Interagency Memorandum of Understanding (MOU)

TDOT, DOS, local responders, and other agencies as needed, will conduct an after-action review within 

10 working days, unless unusual circumstances require more than 10 days, following any incident that requires 

complete closure of an Interstate highway (in one or both directions of travel) for more than two hours and 

following any incident that requires closure of one or more lanes for more than fi ve hours.

The purpose of the meeting will not be to fi nd fault or to assign blame but to identify opportunities for improvements 

in agency procedures, training, or allocation of resources. The after-action review will not substitute for critical 

incident stress debriefi ngs (CISD) and will not address issues that are more appropriate for CISD.

A one-page report will be prepared jointly by the representatives of DOS and TDOT and forwarded through the 

chain-of-command to the Commissioners of DOS and TDOT within one month of the date of the incident, unless 

unusual circumstances require more than one month. Regardless of the duration, extent, or location of closure, 

either agency may request an after-action meeting following any highway incident, and that meeting will be held 

and a report prepared as described above.

DOS and TDOT will meet periodically to discuss experiences with incident management and to work toward 

improvements. In addition to the after-action reviews described above, periodic working sessions will be held 

in each of TDOT Region Offi ces with DOS, TDOT, and other state and local agencies to discuss overall incident 

management and related issues.

Source: Interagency Memorandum of Understanding between the Tennessee Offi ce of Safety and the Tennessee 

Department of Transportation Relative to Urgent Clearance of Highway 2004. 

Link to full documentation: http://tdot.state.tn.us/news/2004/pdfs/MOU%20TDOT-DOS%20October2004.pdf.
Role of Transportation Management Centers in Emergency Operations 3-23

agencies can divulge about their activities, the 

discussions should be adequate to develop 

broad guidelines and policies. To develop 

such guidelines, TMCs should implement the 

following steps:

• Meet with State Police and local law 

enforcement agencies to discuss needs on 

nontransportation use of TMC facilities;

• Explain current TMC policies toward 

recording of nontransportation events;

• Document draft set of conditions for a 

written agreement;

• Confer with U.S. DOT and state representatives to obtain guidance on Federal 

policies and Federal security offi cials to 

contact;

• Contact Federal agencies that may have an 

interest in using TMC resources, including 

the FBI and key subagencies of DHS;

• Develop draft guidelines for law enforcement use of TMC resources (primarily 

CCTV), including personnel responsibilities and documentation; and

• Submit guidelines for review by law 

enforcement agencies and incorporate into 

both TMC and joint training activities.

In preparing to develop these guidelines there 

are several key documents TMC personnel 

should review to gain a better understanding 

of security concerns that may trigger use 

of TMC resources by law enforcement or 

homeland security agencies. The footnoted 

links provide access to full documentation of 

the DHS National Infrastructure Protection Plan 

(NIPP) and the National Preparedness Guidelines 

(Figure 3.2).11 The NIPP integrates existing and 

future critical infrastructure and key resources 

(CIKR) protection efforts and strategies into a 

single national program. The NIPP framework 

provides recommendations on how to mitigate 

risk by lessening vulnerabilities, deterring 

threats, and minimizing the consequences 

of terrorist attacks and other manmade and 

natural disasters.

Participation in Cost-Recovery 

Agreements

DOTs transport equipment in emergencies, 

and support activities such as utility 

restoration, which may be reimbursable 

from emergency funding sources. MOUs 

or interagency agreements can be helpful in 

defi ning these responsibilities and in setting 

up payment systems. TMCs can also have 

an important role in documenting conditions 

that enable states to collect emergency 

repair funds after infrastructure losses. The 

footnoted link provides full documentation of 

guidelines for collecting these funds, included 

in the document Recovering from Disasters: The 

National Transportation Recovery Strategy.

12 One 

of the suggestions in the strategy, for instance, 

recommends communities bring together 

individuals responsible for overseeing the 

recovery of various infrastructure networks to 

plan for the overall process.

Figure 3.2 DHS National Preparedness System

Source: National Preparedness Guidelines, Department of 

Homeland Security, September 2007, p. 22.
3-24 Role of Transportation Management Centers in Emergency Operations

3.6.12 Additional Planning and 

Coordination Activities

This section details additional planning and 

coordination functions that may be included 

in the EOP, including the planning and 

development of preplanned detours, and 

emergency evacuation plans.

Planning and Development of Preplanned 

Detours

Some states identify preplanned detour 

routes for their entire Interstate Highway 

System, a process in which DOT staff often 

coordinates with evacuation planning. This 

makes it easier to implement the detours in 

the event of an incident or other emergency. 

Several state and local DOTs also have 

standard detour routes for use during 

construction or incident-related rerouting. 

Utilizing their familiarity with local road 

and highway evacuation/detour routes, the 

TMC should develop preplanned detours for 

the major arterials in their area so they can 

support emergency response by providing 

information on routes.

Planning and Development of Emergency 

Evacuation Plans

Regions which have developed emergency 

evacuation plans for their central business 

districts, provide information on specifi c 

roles for each agency, including which police 

or DOT unit is responsible for securing 

each highway access point. Interagency 

collaboration is important to developing the 

plans, which also include involvement from 

transit agencies and MPOs.

Utilizing their own familiarity with existing 

emergency evacuation planning, the TMC 

should develop emergency evacuation 

routes for the major arterials in their area. 

TMCs have often played a central role in 

the development of emergency evacuation 

plans and procedures for urban areas. TMCs 

should also be involved in these efforts 

since the plans often delegate responsibility 

for specifi c traffi c control points to varying 

agencies based on geographic jurisdiction 

(or other factors). TMCs can thus serve as a 

resource during implementation.

Hurricane – Carolina Coast

Source: Digital Stock, a division of Corbis Corp.

Some noteworthy developments in 

transportation planning have improved 

the link between planning and operations 

in disaster response. The increase in the 

programming and funding of ITS technologies 

with disaster response as location criteria, the 

leveraging of transit/ multimodal resources 

during a disaster, and the movement from 

“table-top” exercises to fi eld exercises have 

helped. The footnoted link provides access to 

full documentation.13

An important activity for transportation 

agencies is identifi cation of improvements to 

alleviate the impact of future disasters. Both 

New Orleans and the Houston-Galveston 

area demonstrated best practices by refi ning 

their evacuation plans and routes and 

assessing what physical and operational 

infrastructure is required to improve 

safety and mobility in future emergencies. 

Figure 3.3, which shows evacuation zones 

developed by the Houston-Galveston Area 

Council using their transportation model, 

can serve as a guide to the TMC and other 

emergency agencies in the future.
Role of Transportation Management Centers in Emergency Operations 3-25

3.7 Emergency Operations 

Plan Checklist

The TMC can use the following checklist to 

evaluate their progress and completion status 

in the development of the EOP. The TMC 

should incorporate the following elements into 

the EOP (check all that apply and are included):

Includes purpose and scope.

Includes situation overview and planning 

assumptions, i.e., geographic areas likely 

to be affected, vulnerable critical facilities, 

population distribution, and location of individuals with access functional needs, etc.

Includes a concept of operations, including 

whether the TMC and EOC will colocate or 

whether the TMC will use a virtual EOC 

concept, the organization and assignment 

of responsibilities, and the framework for 

all direction, command and control, and 

coordination activities.

Documents interagency coordination procedures among enforcement, emergency 

management agencies, transit, tow truck 

operators, and venue operators for Planned 

Special Events.

Documents information collection and dissemination procedures, including the use of 

ITS and traveler information, and exchange 

of data between the TMC and EOC.

Documents communication protocols and 

coordination procedures.

Identifi es the communications stakeholders who will be involved and the 

membership and responsibilities of 

a Communications Working Group. 

Includes information on administration, 

fi nance, and logistics, including the identifi cation of potential funding sources, 

how the plan will be developed and maintained, and the legal basis for emergency 

operations and activities.

Documents incident clearance agreements 

addressing the duties and responsibilities 

of response agencies, jurisdictional authority, and resource sharing.

Documents how the TMC will recover 

costs through participation in cost-recovery agreements.

Includes information on additional planning and coordination activities, incl uding 

the planning and development of preplanned detours, and emergency evacuation plans.

Includes a capabilities survey.

Identifi es of essential functions, including 

the following (check all that apply):

Areas of responsibility.

Organizational functions.

Criteria for selecting essential functions.

Essential functions and supporting 

processes and systems.

Key management, technical, and supporting personnel.

The development, review, and approval 

of the plan.

Documents the development of sup porting 

procedures.

Documents personnel training plan and 

the process for testing/update of the plan.

Documents the implementation of drills 

and exercises, including the description of 

the following activities (check all that apply):

Seminar.

Workshop.

Tabletop Exercise (TTX).

Games.

Operations-Based Exercises (drill, functional exercise, full-scale exercises).
3-26 Role of Transportation Management Centers in Emergency Operations

Figure 3.3 Evacuation Zones Houston-Galveston Area

Source: Hurricane Evacuation Planning Presentation, Harris County Amateur Radio Emergency Service (ARES), June 2008.

3.8 Continuity of 

Operations Planning

Continuity of Operations (COOP) planning is 

a way transportation agencies defi ne required 

activities when an emergency results in no 

access to essential operating and maintenance 

facilities, vehicle fl eets, systems, and senior 

management and technical personnel. 

Under certain disruptive conditions, the 

transportation agency cannot perform its 

normal business activities. COOP planning 

should involve all-hazards, including natural, 

human-caused, and technological incidents. 

It is a multistep process, which must be 

periodically tested and maintained.

While many TMCs have plans, policies, 

procedures, checklists, and job aids to direct 

immediate response to various emergencies, 

there is often a need for dedicated continuity 

and recovery planning. Without a management framework that clearly identifi es 

essential functions and establishes operational 

procedures to sustain them when there is 

a disruption of normal operations, TMCs 

remain vulnerable to service interruptions 

and loss of public confi dence.
Role of Transportation Management Centers in Emergency Operations 3-27

A good guide for developing COOP is the 

Transportation Research Board’s (TRB) 

TCRP86/NCHRP525 Report on Continuity 

of Operations (COOP) Planning Guidelines for 

Transportation Agencies; the footnoted link 

provides access to full documentation.14

Information in the plan includes a description 

of COOP, its purpose, and guidelines for use.

Typically, the COOP development process 

follows seven steps, including:

• Initiating the process;

• Conducting a capabilities survey;

• Identifying essential functions;

• Developing, reviewing, and approving the 

plan;

• Developing supporting procedures;

• Training personnel and test/update the 

plan; and

• Conducting drills and exercises.

3.8.1 Initiate the COOP Process

The TMC Emergency Preparedness Working 

Group should serve as the coordination and 

starting point for the COOP process because it 

will be easier to secure important buy-in and 

support from top management and ensure the 

organization is fully committed to the COOP 

process. From the Working Group, designate 

a COOP planning leader to lead the planning 

team with suffi cient personnel and resources 

to accomplish the effort. Coordination with 

external agencies, training, and exercise 

participation may also be necessary. There 

should be regular dedicated meetings to keep 

the effort on track and subcommittees for 

specifi c COOP planning areas.

Photo courtesy of Kent Barnard for the Minnesota DOT.

The Minnesota Department of Transportation (Mn/DOT) joined other state departments, volunteer 

agencies, and the Minnesota National Guard to start operation of the State Emergency Operations 

Center in St. Paul within hours of the I-35 bridge collapsing over the Mississippi River. The TMC 

disseminated messages via 511, message boards, twitter, and the web site to the traveling public. 

The TMC also coordinated with other agencies, including across state lines, to broadcast alternate 

route and incident information.
3-28 Role of Transportation Management Centers in Emergency Operations

3.8.2 Conduct a Capabilities Survey

It is important to assess and understand current 

capabilities, including current vulnerabilities 

and incident response practices. A Capabilities 

Survey may include analyzing capabilities, 

inventorying resources, examining personnel 

assignments, determining vulnerabilities, 

reviewing internal plans and policies, and 

evaluating lines of coordination.

As a fi rst step, it is essential to establish the 

existing and anticipated threats to the TMC to 

construct the foundation of the COOP Plan. 

This is possible by determining the types of 

events that are likely to require activation of a 

COOP Plan, shown in Figure 3.4.

3.8.3 Identify Essential Functions

Next, the TMC should identify and prioritize 

the essential functions to maintain during 

emergencies. A common approach uses the 

following steps:

• Identify areas of responsibility;

• Compile organizational functions;

• Determine criteria for selecting essential 

functions;

• Identify and prioritize essential functions 

and supporting processes and systems; and

• Identify key management, technical, and 

supporting personnel.

3.8.4 Develop, Review, Approve 

COOP Plan

The TMC should undertake the development, 

review, and approval of the COOP Plan 

utilizing the following process:

• Prepare the fi rst draft;

• Coordinate review of the fi rst draft by each 

organizational unit, incorporate changes, 

and develop a second draft;

• Seek external review of the second 

draft by expert(s) and partners in local/ 

 regional/ state emergency response and 

management;

• Incorporate changes and develop the fi nal 

draft;

• Present the fi nal draft to the appropriate senior leadership for approval and 

signature;

• Finalize and distribute the plan; and

• Review and update the plan annually or as 

major changes occur.

The TMC’s COOP Plan should include and 

describe the following elements:

• Leadership succession and assignment of 

authority;

• Assignment of essential functions to specifi c teams;

• Identifi cation and preparation of alternate 

facilities;

• Protection of vital records, databases, and 

communication systems;

• Maintenance of the plan through training 

and testing, followed by evaluation and 

improvement planning;

• The conditions necessitating the activation 

of the COOP plan;

• TMC hours of operation;

• Identifi cation of alternate work sites 

where COOP functions can be performed 

if the primary facilities are destroyed or 

disrupted;

• Creation of COOP teams; and

• Delegation of emergency authorities and 

orders of succession.
Role of Transportation Management Centers in Emergency Operations 3-29

Figure 3.4 TMC Emergencies Most Likely to Require COOP Activation

Source: TRB TCRP86/ NCHRP525 Report on Continuity of Operations (COOP) Planning Guidelines for Transportation Agencies.

3.8.5 Develop Supporting 

Procedures

Supporting procedures will ensure effective 

implementation of the COOP Plan. Just as 

an EOP or EMP serves as the foundation for 

emergency response procedures, the COOP 

Plan should be the foundation for continuity 

of operations and recovery procedures. 

COOP procedures should focus on the 

following areas:

• Key Position SOPs;

• COOP Activation SOPs;

• Evacuation;

• Vital Records;

• Communications;

• Notifi cation; and

• Order of Succession.

3.8.6 Train Personnel and Test/

Update the Plan

Effective implementation also depends 

on training personnel on its use, which 

requires the development of a regular and 

documented training program so new and 

existing employees receive consistent and 

recurring COOP training.

Regular testing of the COOP Plan is required 

periodically through drills and exercises that 

examine its functionality and implementation. 

COOP Plan updates, coordinated by the 

Emergency Preparedness Working Group, 

should address any defi ciencies.

Training ensures personnel are familiar 

with and understand plans, policies, and 

procedures. It allows the effective transmission 

of the elements of an emergency preparedness 

program into and throughout the TMC 
3-30 Role of Transportation Management Centers in Emergency Operations

organization. Training also ensures TMC 

personnel understand and effectively execute 

plan policies and the SOPs.

For a TMC, which utilizes complex systems 

and interacts extensively with external 

agencies, training that includes participation 

from an array of stakeholders is particularly 

important. The TMC can initiate the training 

or a partner agency can initiate it externally. 

Training in joint environments will ensure 

consistency and strengthen interagency 

relationships, both of which are crucial 

when an incident occurs and a response 

is required.

Source: Cambridge Systematics, Inc.

The TMC Emergency Preparedness Working 

Group should oversee the development of a 

training plan that addresses curriculum and 

audience to serve as a foundation for all TMC 

training activities.

The training plan should also identify specifi c 

training opportunities. The following is a 

partial list of recommended training topics. 

Individual TMCs may have particular needs 

based on their specifi c structure, assets, or 

external partners. Four categories of training 

available are described below:

• National Incident Management System 

(NIMS) and Incident Command System 

(ICS) training;

• FHWA Training Courses;

• TMC-Based Emergency Management 

Training; and

• TMC Emergency Response Standard 

Operating Procedures (SOP) Training.

National Incident Management System 

and Incident Command System Training

• ICS-100 – Introduction to ICS – This training 

program introduces the ICS and provides 

the foundation for higher-level training. It 

describes the history, features, principles, 

and organizational structure of the ICS and 

explains the relationship between ICS and 

the NIMS. The footnoted link provides 

access to full documentation.15

• ICS-200 – ICS for Single Resources and Initial 

Action Incidents – This training program 

enables personnel to operate effi ciently 

during an incident or event within the ICS, 

and provides training on and resources 

for personnel who are likely to assume a 

supervisory position. The footnoted link 

provides access to full documentation.16

• ICS-700 – NIMS, An Introduction – This program introduces and provides an overview 

of NIMS, which is the consistent nationwide template that enables all government, 

private sector, and nongovernmental organizations to work together during domestic incidents. The footnoted link provides 

access to full documentation.17

• ICS-800 – National Response Framework, An 

Introduction – This program introduces 

participants to the concepts and principles 

of the National Response Framework. 

The footnoted link provides access to full 

documentation.18

• ICS-300 – Intermediate ICS for Expanding 

Incidents for Operational First Responders – 

This training describes how the NIMS 

command and management component 

support the management of expanding incidents as prescribed by the ICS. It 
Role of Transportation Management Centers in Emergency Operations 3-31

includes a simulation and Incident Action 

Plan for the incident management process 

on a Type 3 incident. The footnoted link 

provides access to full documentation.19

• ICS-400 – Advanced ICS – This training 

focuses on how the NIMS command and 

management component supports the 

management of expanding incidents by 

describing the incident/ event management process for large-scale organization 

development; roles and relationships of 

the primary staff; the planning, operational, and logistical and fi scal considerations related to a complex incident/ event 

management. It covers the implementation of area command and the importance 

of interagency coordination. The footnoted 

link provides access to full documentation 

at the FEMA training web page.20

• ICS-402 – ICS Summary for Executives – This 

program provides a forum to discuss strategic and executive-level preparedness 

and response issues and challenges related 

to weapons of mass destruction/terrorism 

and other incidents of national signifi -

cance. It is also serves as a vehicle to share 

proven strategies and practices as well 

as enhanced teamwork and coordination 

among an agency’s senior offi cials responsible for emergency response. Conducted 

as a facilitated workshop, it integrates 

multimedia scenarios and vignettes that 

highlight the key issues. The footnoted 

link provides access to full documentation 

at the FEMA training web page.21

Federal Highway Administration Training

The National Highway Institute (NHI) offers 

training, both on-line and in classroom, that 

covers the topics below. The footnoted link 

provides access to full documentation.22

• Principles of Evacuation Planning Tutorial; 

Course Number: FHWA NHI-133107 – This 

course provides an introductory overview of evacuation planning topics and 

common considerations. It covers the roles 

and responsibilities of local, regional, and 

state agencies involved in the evacuation 

process.23

• Design and Traffi c Operations – This course 

covers topics such as highway capacity 

and quality of fl ow, traffi c signal design 

and operation, and freeway management 

and operations.

• Highway Safety – This course focuses on 

roadside safety design, construction zone 

safety inspection, road safety audits, lowcost safety improvements, and their related 

topics.

Source: Cambridge Systematics, Inc.

• Intelligent Transportation Systems (ITS) – 

This training focuses on how to improve 

highway safety with intelligent transportation systems.

• Transportation Planning – This program 

includes application of the FHWA Traffi c 

Monitoring Guide, statewide transportation planning, and traffi c monitoring and 

pavement design programs.
3-32 Role of Transportation Management Centers in Emergency Operations

TMC Emergency Management/Operations 

Plan Overview Training

TMCs should develop this training for their 

own use since it is not readily available. 

Specifi c topics covered in the program should 

include the following:

• Pre-impact preparations, including relationships between the type of emergency 

and necessary preparations, responsibilities of different agencies for preparedness, 

and location of sites of greatest risk;

• Communications and required interoperability;

• Activation and management of emergency 

operations centers (EOC), including locations, equipment, operation, staffi ng, and 

redundancy; and

• How to maintain public order during 

emergency operations.

This EOP Training can be conducted 

jointly with external responding agencies 

by utilizing the Capabilities Gap Analysis 

format, which delineates response capabilities 

and responsibilities between the TMC and 

external responding agencies. Additional 

information is available in the EOP section.

TMC Emergency Response Standard 

Operating Procedures SOP Training

TMCs should develop this type of training for 

their own use since it is not readily available. 

Specifi c topics covered in the training should 

include the following:

• The actions to support traffi c incident detection, management, response, and recovery;

• Operation of warning systems (e.g., types 

of warnings, how they will be distributed, 

obligations on receiving warnings);

• Emergency evacuation procedures, including conditions under which evacuation is 

authorized; routes to be followed and destinations; how people of age, who are ill, 

who are institutionalized, or combinations 

thereof will be accommodated; and locations and facilities for emergency shelters;

• Search and rescue (SAR) needs and 

required capabilities; and

• Public information requirements during 

emergencies.

SOP Training can also be conducted jointly 

with external responding agencies by utilizing 

the Capabilities Gap Analysis format, 

which delineates response capabilities and 

responsibilities between the TMC and external 

responding agencies. Additional information 

is available in the EOP section (3.6).

TMCs can learn from successful implementation of these training programs in 

transportation and TMC settings. While ICS100 and ICS-200 are basic, easy to complete 

on-line courses, ICS-300 and ICS-402 represent 

more investments in training. ICS-300 is a 

classroom course spanning several days, and 

the ICS-402 requires time and commitment 

from senior executives. An advanced TMC 

training program should include basic 

courses along with more advanced offerings.

TMCs should take advantage of the applicability of ICS and NIMS to virtually any fi eld, 

setting, or industry. This added benefi t allows 

organizations and personnel from different 

fi elds who adopt ICS to understand and work 

within another emergency management 

framework. Different agency personnel, both 

trained separately in ICS, will immediately 

enhance their ability to effectively interact and 

cooperate during an incident. Joint training 

attended simultaneously by both TMC and 

public safety personnel offers additional value. 

Modifi cation of these settings, scenarios, and 

examples can provide enhanced interagency 

cooperation and understanding.
Role of Transportation Management Centers in Emergency Operations 3-33

3.8.7 Conduct Drills and Exercises

A formal and well-developed drill/exercise 

program validates the concepts and policies 

embedded in the EOP and SOPs. The 

drills/exercises test the organization’s 

capability to execute their actions in an effective 

and integrated manner. A leading standard 

for exercise design, development, conduct, 

evaluation, and improvement planning 

is FEMA’s Homeland Security Exercise 

Evaluation Program (HSEEP). HSEEP is a 

capabilities and performance-based exercise 

program that provides standardized guidance 

and terminology. A key objective of HSEEP is 

to promote consistency among exercises across 

the nation to enhance national preparedness. 

A key component of HSEEP is fostering selfsustaining exercise programs by providing 

jurisdictions with consistent doctrine and 

resources for program management. A Visual 

illustration of the HSEEP process is provided 

in Figure 3.5.

Figure 3.5 HSEEP Exercise Program 

Management Model

Source: HSEEP Exercise Program Management Model, Department of Homeland Security/ Federal Emergency 

Management Agency (DHS/FEMA), February 2007.

Drills and exercises allow TMCs to evaluate 

and identify improvement for established 

policies, plans, procedures, and training. 

Exercises are a particularly valuable method 

of involving and interacting with external 

public safety and support agencies. The 

scope of a TMC’s operations can provide 

a variety of potential scenarios. Reasons to 

develop and conduct TMC-specifi c drills and 

exercises include the following:

• It results in an interagency team with a 

common understanding of the transportation-specifi c drills and exercises;

• It tests developed plans to ensure they 

effectively address the necessary topics; 

and

• It improves individual and agency 

performance.

Designate Exercise Planning Team

The TMC Emergency Preparedness Working 

Group should form an Exercise Planning 

Team that will be responsible for planning, 

designing, developing, and conducting 

multistakeholder exercises. This team 

should conduct regular planning meetings 

to ensure coordination and progress from 

external agencies, including law enforcement, 

emergency management, fi re, and EMS. 

Once formed, the Exercise Planning Team 

should develop a schedule outlining drill 

and exercise activities to conduct over a set 

timeframe, usually three to fi ve years. This 

aids coordination with outside agencies and 

reduces potential for overlap with other 

exercises or activities that may draw on the 

same personnel or resources.
3-34 Role of Transportation Management Centers in Emergency Operations

Adopt FHWA and HSEEP Exercise 

Guidelines

TMCs should adopt the FHWA and HSEEP 

guidelines for exercises, which support 

discussion and operations-based exercises of 

various types and sizes. The following types 

are predefi ned and available for consideration 

by the Exercise Planning Team:

• Discussion-Based Exercises familiarize participants with current plans, policies, agreements, and procedures, or can 

develop new plans, policies, agreements, 

and procedures. Types of discussionbased exercises include:

— Seminar – A seminar is an informal 

discussion, designed to orient 

participants to new or updated plans, 

policies, or procedures (e.g., a seminar 

to review a new Evacuation Standard 

Operating Procedure).

— Workshop – A workshop resembles a 

seminar but builds specifi c products, 

such as a draft plan or policy (e.g., a 

Training and Exercise Plan Workshop 

is used to develop a Multiyear Training 

and Exercise Plan).

— Tabletop Exercise (TTX) – A tabletop 

exercise involves key personnel 

discussing simulated scenarios in an 

informal setting. TTXs can assess 

plans, policies, and procedures.

— Games – A game simulates operations 

involving two or more teams, usually in 

a competitive environment, using rules, 

data, and procedures to depict an actual 

or assumed real-life situation.

• Operations-Based Exercises validate 

plans, policies, agreements, and procedures; clarify roles and responsibilities; 

and identify resource gaps in an operational environment. Types of operationsbased exercises include:

— Drill – A drill is a coordinated, 

supervised activity usually employed to 

test a single specifi c operation or function 

within a single entity (e.g., a fi re drill).

— Functional Exercise (FE) – A functional 

exercise examines and/ or validates 

the coordination, command, and 

control between various multiagency 

coordination centers (e.g., emergency 

operation center, joint fi eld offi ce, etc.). 

A functional exercise does not involve 

any “boots on the ground” (i.e., fi rst 

responders or emergency offi cials 

responding to an incident in real time).

— Full-Scale Exercises (FSE) – A fullscale exercise is a multiagency, 

multijurisdictional, multidiscipline 

exercise involving functional (e.g., 

joint fi eld offi ce, emergency operation 

centers, etc.) and “boots on the 

ground” response (e.g., fi refi ghters 

decontaminating mock victims).

Utilize the DHS/FEMA Homeland 

Security Exercise Evaluation Program 

Guidance

The TMC Exercise Planning Team should 

utilize the standardized approach in HSEEP 

as planning guidance for developing 

discussion and performance-based exercises. 

The following are key activities identifi ed 

within the HSEEP guidance for the design, 

development, and evaluation of exercises:

• Schedule an exercise planning conference 

such as the following:

— Concepts and Objectives Conference;

— Initial Planning Conference;

— Midterm/ Master Events Scenario List 

Planning Conference; and

— Final Planning Conference.

• Identify exercise stakeholders and 

participants;
Role of Transportation Management Centers in Emergency Operations 3-35

• Develop an exercise scenario;

• Develop exercise documentation as shown 

in the text box on the next page;

• Determine exercise venue and logistics associated with the conduct of the 

exercises;

• Identify and train exercise staff (controllers 

and evaluators);

• Develop and provide briefi ngs to exercise 

(participants and staff);

• Conduct and evaluate the exercise;

• Schedule and conduct an after-action conference to discuss and present exercise 

fi ndings; and

• Develop an After-Action Report/ 

Improvement Plan (AAR/IP).

The AAR/IP has two components: An AAR 

captures observations and recommendations 

based on the exercise objectives and an IP 

identifi es specifi c corrective actions, assigns 

them to responsible parties, and establishes 

targets for their completion. The lead 

evaluator and the exercise planning team 

draft the AAR and submit it to conference 

participants prior to an After-Action 

Conference. Conference participants receive 

the AAR for review no more than 30 days 

after the completion of the exercise.

Consider Adapting Previous Exercise 

Formats

TMCs should consider adapting previously 

utilized exercise formats and designs to their 

own needs. Exercises can be designed for 

transportation and accommodate a variety of 

participating agencies and jurisdictions. A 

selection of examples previously employed 

in transportation settings follows:

• First Responder Workshop – Operationslevel public safety agency representatives 

and TMC and transportation agency representatives jointly design and attend a 

workshop to discuss key emergency preparedness issues, such as ICS, NIMS, emergency operations centers, and training. The 

objective is to achieve a consensus among 

attendees to advance preferred solutions 

for consideration by senior personnel.

• Senior Leadership Seminar – Senior public 

safety and transportation executives jointly 

attend a seminar to learn about relevant key 

emergency preparedness issues. The objective is to obtain buy-in from senior executives on pre-identifi ed issues and solutions. 

These seminars are usually short in order 

to accommodate senior leader schedules. 

Issues must be fully developed and understood before presenting them for senior 

leader review and consideration.

• Transportation Functional Exercise – 

Representatives from public safety, TMC, 

and transportation jointly attend an exercise featuring a scenario that draws on all 

of their respective capabilities and responsibilities. There is no deployment to the 

fi eld, but there is a utilization of multiple 

discussion locations along with a realistic 

communications component to simulate 

real interaction between response partners 

and locations.

• Interoperable Communications Equipment 

Test – Communications representatives 

from public safety, TMC, and transportation agencies jointly design and attend a 

drill designed to test interoperable communications capabilities (usually radio) 

between the agencies. Such a drill is useful 

in advance of a larger exercise that may rely 

on interoperable communications.
3-36 Role of Transportation Management Centers in Emergency Operations

3.9 COOP Planning 

Checklist

The TMC can use the following checklist to 

evaluate their current status in support of 

a Continuity of Operations Plan. The TMC 

has developed a COOP Plan that includes the 

following (check all that apply):

Documents leadership succession and 

assignment of authority.

Assigns essential functions to specifi c 

teams.

Documents identifi cation and preparation 

of alternate facilities.

Documents procedures for protection of 

vital records, databases, and communication systems.

Documents procedures for maintenance of 

the plan.

Identifi es conditions necessitating the activation of the plan.

Documents TMC hours of operation.

Identifi es of alternate work sites.

Documents COOP teams.

Delegates emergency authorities and 

orders of succession.

Exercise Documentation

Exercise documentation should include the following:

• An Exercise Plan (ExPlan), typically used for operations-based exercises, provides a synopsis of the exercise and is published and distributed to players and observers prior to the start of the exercise. The ExPlan 

includes the exercise objectives and scope, safety procedures, and logistical considerations such as an exercise schedule.

• The Controller and Evaluator (C/E) Handbook supplements the ExPlan for operations-based exercises and 

contains more detailed information about the exercise scenario. It describes exercise controllers’ and evaluators’ roles and responsibilities. Because the C/E Handbook contains information on the scenario and exercise 

administration, it is distributed only to those individuals specifi cally designated as controllers or evaluators.

• The Master Scenario Events List (MSEL) is a chronological timeline of expected actions and scripted events (i.e., 

injects) to be inserted into operations-based exercise play by controllers to generate or prompt player activity.

• A Player Handout is a one to two page document usually handed out the morning of an exercise, which provides a quick reference for exercise players on safety procedures, logistical considerations, exercise schedule, and other key factors and information.

• Exercise Evaluation Guides (EEG) help evaluators collect and interpret relevant exercise observations. EEGs 

provide evaluators with information on what tasks they should expect to see accomplished during an exercise, space to record observations, and questions to address after the exercise as a fi rst step in the analysis 

process. To assist entities in exercise evaluation, there are standardized EEGs refl ecting capabilities-based 

planning tools, such as the Target Capabilities List (TCL) and the Universal Task List (UTL). The EEGs are 

not report cards. Rather, they guide an evaluator’s observations so the evaluator focuses on capabilities and 

tasks relevant to exercise objectives that support development of the After-Action Report/Improvement Plan 

(AAR/IP).
Role of Transportation Management Centers in Emergency Operations 3-37

5 http://fema.gov/ pdf/ about/ divisions/

 npd/ CPG_101_V2.pdf.

6

 http://fema.gov/pdf/emergency/nims/

NIMS_core.pdf.

7

 http://ops.fhwa.dot.gov/eto_tim_pse/

publications/timhandbook/tim_

handbook.pdf.

8

 http://ops.fhwa.dot.gov/publications/

fhwahop10050/ch1.htm.

9

 http://ops.fhwa.dot.gov/freewaymgmt/

publications/frwy_mgmt_handbook/fmoh_

complete_all.pdf.

10 http://houstontranstar.org/about_transtar/

docs/TranStar_Interlocal_Agreement.pdf.

11 http://dhs.gov/xlibrary/

assets/NIPP_Plan.pdf; http://dhs.gov/

xlibrary/assets/National_Preparedness_

Guidelines.pdf.

12 http://dot.gov/disaster_recovery/

resources/DOT_NTRS.pdf.

13 http://onlinepubs.trb.org/onlinepubs/

archive/NotesDocs/

NCHRP08-36(69)03_FR.pdf.

14 which is available on-line at 

http://bussafety.fta.dot.gov/

uploads/resource/2987_fi lename.

15 Material is available at http://training.fema.

gov/EMIWeb/IS/is100b.asp.

16 http://training.fema.gov/

EMIWeb/IS/is200b.asp.

17 http://emilms.fema.gov/

IS700aNEW/index.htm.

18 Material is available at http://training.fema.

gov/EMIWeb/IS/IS800b.asp.

19 Material is available at http://fl sart.org/

training_usda/USDA%20NIMS-NRP%

20CD%20Contents/USDA_ICS300/

index.htm.

20 http://fema.gov/ emergency/ nims/ 

NIMSTrainingCourses.shtm.

21 http://fema.gov/ emergency/ nims/

 NIMSTrainingCourses.shtm.

22 http://nhi.fhwa.dot.gov/default.aspx.

23 http://www.nhi.fhwa.dot.gov/

training/course_detail.aspx?num=

FHWA-NHI-133107&cat=&key=e

vacuation&num=&loc=&sta=%25&typ=

&ava=&str=&end=&tit=&lev=&drl=
Role of Transportation Management Centers in Emergency Operations 4-1

4.0 Response and Recovery

This section provides guidance on 

Transportation Management Centers 

(TMC) roles in the response and recovery 

phases of emergency events. The planning 

activities described in Section 3.0 determine 

the level of success achieved in response 

and recovery. TMC participation in the 

NRF and NIMS frameworks are key to 

effective working relationships during 

recovery. This section includes a summary 

of response and recovery relationships 

and then descriptions of the TMC role 

in response activities in three different 

situations, including traffic incidents (minor 

and large-scale), large-scale emergencies, 

and planned special events.

4.1 General TMC Roles in 

Response and Recovery

During an emergency or event, the TMC 

serves as a Transportation Department 

Operations Center (TOC). It can be colocated 

with a state or county EOC, which allows 

for close coordination between the DOT and 

their counterparts in emergency response. 

It also allows the quick deployment of TMC 

resources for emergency response activities. 

The quote from NCHRP Synthesis 318 shown 

below summarizes the role TMCs can play 

during the response and recovery phase of an 

emergency or event.

Section 2.0 discussed the key resources and 

services provided by TMCs in emergency 

operations. The footnoted link provides 

access to additional detail on best practices 

in using TMC resources in emergency 

response found in the FHWA document 

Best Practices in Emergency Transportation 

Operations Preparedness and Response.

24 One 

of the best practices is deployment of Mobile 

Emergency Response Operations/Command 

Centers, which can be quickly deployed

to emergency sites. These trailers support 

various radio frequencies, including those 

for state DOT, state patrol, and most local 

police and fi re departments. The report 

divides the best practices into interagency 

communication and cooperation; emergency 

operations; equipment; ITS; mutual aid; threat 

notifi cation, awareness, and information 

sharing; and policy.

“Considered a key component in facilitating effi cient 

incident detection, verifi cation, and response, the 

use of a traffi c management center (TMC) as a 

communications hub during incident removal operations 

provides numerous benefi ts. TMC personnel can assist 

in sizing up and classifying an incident, dispatch state 

DOT incident response or maintenance crews, contact 

private towing and recovery companies, relay agency 

communications across jurisdictions and disseminate 

accurate incident characteristics and predicted duration 

to travelers and the media.”

NCHRP Synthesis 318: Safe and Quick 

Clearance of Traffi c Incidents, 2003, p. 52.

Following are some of the key roles in the 

response phase.

• Implementation of Operating Procedures – 

Most TMCs maintain an operating procedures manual identifying TMC personnel 

to staff an emergency, and the key notifi cations to be made under different circumstances. These procedures often include 

fl ow charts incorporating both required 

operator actions and notifi cations. TMCs 

should review these as part of the emergency operations planning process and 

should have procedures in place to make 

sure changes in agency partner personnel 

are up-to-date.
4-2 Role of Transportation Management Centers in Emergency Operations

• Implementation of Operating Procedures – 

Most TMCs maintain an operating procedures manual identifying TMC personnel 

to staff an emergency, and the key notifi cations to be made under different circumstances. These procedures often include 

fl ow charts incorporating both required 

operator actions and notifi cations. TMCs 

should review these as part of the emergency operations planning process and 

should have procedures in place to make 

sure changes in agency partner personnel 

are up-to-date.

• Infrastructure Surveillance – Many 

regions with traffi c cameras are now using 

them for surveillance of critical infrastructure during periods of heightened alert, 

and TMCs are developing policies and 

training personnel for this purpose. When 

emergencies threaten the viability of critical infrastructure, TMCs should coordinate 

with emergency operations to focus on 

facilities under threat or those that are key 

to maintaining emergency access or evacuation routes. TMCs should also coordinate 

with their engineering and maintenance 

staffs to obtain information on infrastructure conditions. In some situations, there 

may be a need for engineers and inspectors to assess infrastructure condition. 

TMC personnel can then communicate 

these conditions to emergency operations 

personnel.

• CCTV to Support Security – TMC camera 

operators are trained to look for suspicious 

activity. In some regions, public safety 

agencies have access to traffi c cameras, 

either by their presence in TMCs or by 

external camera feeds and control mechanisms. Guidelines for use and/or control 

of CCTV by outside parties, as discussed in 

Section 3.0, should be in place to expedite 

exchange of video information.

• Media Relations – The TMC can provide a 

conduit for traffi c and transportation information to emergency public information 

personnel and/ or the media. During incidents, TMCs should be aware and adhere 

to the protocols as laid out under NIMS 

and ICS. These protocols recognize the 

role of the Public Information Offi cer (PIO) 

who is tasked with the following functions:

— Gather data and attend staff briefi ngs;

— Monitor news coverage and analyze 

public information needs;

— Handle media interviews and arrange 

for safe escort of reporters to restricted 

areas;

— Write and distribute media advisories, 

news releases and situation reports;

— Organize news conferences;

— Prepare radio actualities/ audio 

messages for telephone hotlines;

— Write information to be posted to the 

Web;

— Provide community or legislative 

outreach as assigned; and

— Prepare internal or staff information 

materials as assigned.25

In some cases, PIOs are supplied by the 

transportation agency, or transportation 

agencies may provide a deputy PIO to 

communicate information. TMCs should make 

sure staff with the right PIO skills are available 

for emergency duty. NIMS/ICS training 

and communications skills/experience are 

important for this position.
Role of Transportation Management Centers in Emergency Operations 4-3

Photo courtesy of the Washington State DOT.

The Washington State Department of Transportation’s TMC continually monitors inclement 

weather and road conditions for reporting to the traveling public. An ice storm created havoc 

on the roads with icy roads, fallen trees, and numerous vehicle incidents. The TMC kept the 

traveling public informed via 511, Twitter, web site, and message boards. They also worked with 

law enforcement to manage traffi c.

4.2 Response and 

Recovery Checklist

The TMC can use the following checklist 

to evaluate their current status related to 

participation in response and recovery 

activities (check all that apply):

The TMC maintains an Operating 

Procedures Manual which TMC personnel use to staff an emergency, and which 

includes the key notifi cations to be made 

under different circumstances.

The TMC conducts infrastructure surveillance and coordinates with emergency 

operations to focus on facilities under threat 

or those that are key to maintaining emergency access or evacuation routes, and with 

DOT engineering and maintenance staff to 

determine infrastructure conditions.

The TMC has guidelines that support the 

use of CCTV during an emergency.

The TMC coordinates with the DOT PIO 

during emergencies or large events.

4.3 Traffi c Incidents

Most TMCs currently have well-established 

procedures defi ning coordination activities 

with emergency operations during smallscale incidents. This section will identify 

methods, through best practice examples, to 

improve response through coordination. Most 

TMCs also have procedures for emergency 

operations during large-scale incidents. 

Established procedures for response to smallscale emergencies can be a building block 

to improve coordination for larger events. 

Table 4.1 summarizes response activities 

identifi ed in the TIM Resource Guide,26 and 

includes how they relate to both small-scale 

and large-scale traffi c incidents.
4-4 Role of Transportation Management Centers in Emergency Operations

Table 4.1 Operational Responsibilities Assumed by TMCs for Traffi c Incidents

Resources and Services General Practice Best PracticesAssist in incident detection and verifi cation

• Most incidents are now reported through emergency cell 

phone calls to Public Safety Answering Points (PSAP).

• In areas covered by TMC detection and surveillance, 

TMC operators may identify incidents simultaneously.

• In some cases, incident data are passed from PSAP’s 

to TMCs through an intermediate database or by phone.

• TMCs share their space with emergency operations personnel.• TMC’s have direct links to law enforcement Computer Aided Dispatch (CAD) 

systems, and are able to obtain dispatch reports in near real time.

Initiate Traffi c Management Strategies on Impacted FacilitiesEstablish and Operate Alternate Routes

• TMCs use available ITS system components such as 

message signs and traveler information to keep traffi c 

out of the impacted area (L).

• TMCs use available ITS system components such as 

message signs and traveler information services to reinforce Quick Clearance, Move Over, and/or Slow Down laws (S).

• TMCs use a variety of operational systems, including ramp meters and 

coordination with arterial signal operations personnel to implement preplanned strategies for managing traffi c in and around the incident (L).

• TMCs have access to the location of all DOT resources, including maintenance 

vehicles, and coordinate with the incident scene commander and other DOT departments to deploy these resources as needed.

• TMCs have preplanned detours routes incorporated into their freeway management 

system, which provides automated guidance on traveler information messages, signal/ramp meter timing, and preferred detour routes. Operators use this information to keep the incident scene commander informed on best option (L).

Protect the Incident Scene and Provide Traffi c ControlProvide Special Equipment Clearing for Incident ScenesDetermine Incident Clearance and Roadway Repair NeedsCoordinate Clearance and Repair ResourcesRepair Transportation Infrastructure

• TMCs help protect the incident scene by using Dynamic 

Message Signs and other traveler information services to warn motorists of the incident location.

• TMCs fi eld requests from the incident scene commander to 

coordinate with DOT maintenance departments to dispatch required traffi c control equipment to the scene (L).

• TMCs fi eld requests from the incident scene commander 

to coordinate with DOT maintenance departments and relevant environmental agencies regarding minor clean up of fuel and antifreeze spills (S).

• TMCs contact engineering personnel to assess road and 

bridge condition after major incident and help determine whether restrictions/detours need to be implemented (L).

• TMCs can provide information on the location of the incident quickly to the 

public through multiple communications channels.

• TMCs have the ability to automatically locate and dispatch support vehicles 

where needed at the request of the scene commander.

• TMCs have traffi c control plans for specifi c types of roadway segments in their 

system management software and can provide advice to the incident scene commander based on these plans (L).

• TMCs have direct link to key environmental agency personnel for use in 

providing support to incident scene commander and marshalling any DOT resources required for cleanup (L).

• TMCs have access to real-time bridge and/or pavement sensor data enabling 

them to monitor conditions if damage from incidents or natural disaster has occurred (L).
Role of Transportation Management Centers in Emergency Operations 4-5

Resources and Services General Practice Best PracticesInitiate medical assistance until help arrives

• Freeway (safety) service patrols arriving at the scene 

can report their observations on medical conditions to TMC who can pass these along to incident responders traveling to the scene.

• Patrols have personnel with EMT training who can initiate medical response 

prior to arrival of scene commander and other responders.

• Patrols have capability to transmit photos from the scene to incident response 

personnel on the way to the scene and medical facilities preparing to receive the injured (L).

Assist motorists with disabled vehicles

• Some freeway service patrols provide only basic 

services such as jump-starting and tire changing while others agencies can provide tow services directly (S).

• TMCs or law enforcement may dispatch private towing 

services to take disabled vehicles off the road.

• TMCs provide tow vehicles on call for multiple types of vehicles, including 

large trucks. The stationing of large wreckers on freeway segments with heavy commercial vehicle traffi c is a best practice conducted by the Los Angeles Metropolitan Transportation Authority’s LA SAFE program.a

Provide motorist information

• TMCs generally have multiple options for 

communicating with the public about traffi c incidents, 

including Dynamic Message Signs, Highway Advisory Radio, web sites, and 511 telephone services.

• Best practices are represented by TMCs who have multiple options for 

communicating with the public, including relationships with media and private web sites, as well developing communications through social media.

• For major incidents, TMCs can provide up-to-date real-time information on 

detours being implemented and traffi c conditions along those routes (L).

Source: Traffi c Incident Management Resource Guide, FHWA, June 2009, p. 708.Key: L = Large Incidents only; S = Small Incidents only; No Designation = covers both.

a Link to full documentation: http://lasafe.net/freeway-service-patrol/fsp-big-rig/.
4-6 Role of Transportation Management Centers in Emergency Operations

4.4 Traffi c and Large-Scale 

Incidents Checklist

The TMC can use the following checklist 

to evaluate their current status in regard 

to participation in traffi c and large-scale 

incidents (check all that apply):

Traffi c Incidents

Shares space with emergency operations 

personnel.

Maintains direct links to law enforcement 

Computer Aided Dispatch (CAD) systems, 

and obtain dispatch reports in near real 

time.

Has access to the location of all DOT 

resources, including maintenance vehicles, 

and coordinate with the incident scene 

commander and other DOT departments to 

deploy these resources as needed.

Provides information on the location of 

the incident quickly to the public through 

multiple communications channels.

Has the ability to automatically locate and 

dispatch support vehicles where needed at 

the request of the scene commander.

Has Freeway (safety) service patrols with 

EMT-trained personnel who can initiate 

medical response prior to arrival of scene 

commander and other responders.

Has multiple options for communicating 

with the public, including relationships 

with media and private web sites, as well 

as developing communications through 

social media.

Provides tow vehicles on call for multiple 

types of vehicles, including large trucks.

Large-Scale Incidents

Uses a variety of operational systems, 

including ramp meters and coordination 

with arterial signal operations personnel to 

implement preplanned strategies for managing traffi c in and around the incident.

Identifi es preplanned detours routes that 

are incorporated into the freeway management system.

Provides automated guidance on traveler 

information messages, signal/ramp meter 

timing, and preferred detour routes.

Has traffi c control plans for specifi c types 

of roadway segments in the system management software.

Maintains a direct link to key environmental agency personnel for use in providing 

support to incident scene commander and 

marshalling any DOT resources required 

for cleanup.

Has access to real-time bridge and/or 

pavement sensor data which allows for 

monitoring of damage from incidents or 

natural disasters.

Has Freeway (safety) service patrols with 

capability to transmit photos from the 

scene to incident response personnel on 

the way to the scene and medical facilities 

preparing to receive the injured.

Provides up-to-date real-time information 

on detours and traffi c conditions along 

those routes.

4.5 Large-Scale Emergencies

TMC personnel and technical resources 

(traffi c data, cameras, and road weather) can 

provide important support during large-scale 

emergencies, which likely involve disruption 

to the transportation system and the need 

for evacuation of homes and businesses. 
Role of Transportation Management Centers in Emergency Operations 4-7

Generally, small incidents occur more 

frequently with less impact, which means 

organizations are usually well equipped 

and practiced to handle these incidents, 

sometimes without external coordination or 

assistance of any kind.

TMCs often deal with the impacts of small 

incidents such as motor vehicle crashes, 

localized inclement weather, and road 

construction. As a result, TMCs are usually 

well prepared to deal with these small 

incidents internally, with minimal or only 

basic support from public safety and other 

outside agencies.

Source: Digital Stock, a division of Corbis Corp.

Large-scale incidents are by defi nition more 

complex and may require coordination and 

resource assistance from outside agencies, 

especially if the incident spans multiple 

jurisdictions or agencies. A hurricane, for 

example, would affect most agencies and 

jurisdictions located in the impact area. The 

impact and scope of large incidents requires 

special planning to ensure incidents which 

extend beyond a single agency or jurisdiction 

can be effectively managed and resolved.

A large-scale incident may require the 

TMC to play a support role for a broader 

emergency where it is only one of many 

responding agencies. TMCs are part of 

ESF 1: Transportation, which means they 

provide transportation resources and services 

in response to an emergency. TMCs may 

need to interact and coordinate extensively 

with outside agencies and jurisdictions, 

perhaps even some located out-of-state. In 

addition, the impacts of a larger incident may 

affect the communications or transportation 

infrastructure in ways that inhibit the response. 

That is why it is important for a TMC to plan for 

its role in supporting a large-scale emergency in 

the context of ESF 1.

4.5.1 Initial Recovery Phase 

Activities

Following are some examples of best practice 

emergency operations activities performed 

by the TMC during the initial and sustained 

response to a large-scale emergency:

• Mobilize TMC representative to the appropriate state or agency EOC or Unifi ed 

Command Center (UCC) as requested;

• Confi gure communications to maximize 

interoperability with other agencies;

• Focus information gathering resources 

on the incident area (cameras, traffi c 

monitorin g services, personnel on-scene) 

and relay information as needed;

• Respond in a prioritized manner in accordance with decisions made either internally or externally from the EOC or UCC;

• Fulfi ll resource requests as possible, while 

fi ltering requests to ensure the request 

is appropriate in both timing (avoiding requests for future needs) and purpose (avoiding mission/equipment mismatches); and

• Provide public information in the form 

of dynamic message signs (DMS), 511 

updates, and TMC social media.
4-8 Role of Transportation Management Centers in Emergency Operations

4.5.2 Continuing Recovery Phase 

Activities

Following are best practice emergency 

operations typically performed by the TMC 

after the event and the recovery phase has 

commenced.

• Continue focusing information gathering 

resources on the incident area (cameras, 

traffi c monitoring services, personnel onscene) and relay information as needed;

• Continue fulfi lling resource requests as 

possible, while fi ltering requests to ensure 

the request is appropriate in both timing 

(avoiding requests for future needs) and 

purpose (avoiding mission/ equipment 

mismatches);

• Provide guidance and resources to local 

communities and agencies as appropriate on recovery activities, including debris 

management; and

• Continue providing public information in 

the form of DMS and sharing of appropriate information with the media.

Photo courtesy of the Iowa DOT.

Historic fl ooding along the Missouri river’s 384.6-mile course along eastern Nebraska and parts of 

South Dakota, Iowa, and Missouri washed out hundreds of thousands of acres of farmland, swamping 

rural homes, overfl owing highways, and threatening cities, railroads, power plants, and airports. 

Since the fl ooding event did have some advance warning, the Iowa DOT began preparations long 

before the water topped the banks of the Missouri River from Sioux City south into Missouri. In 

early June, the Iowa DOT began preparing for what has become the worst Missouri River fl ooding 

in recorded history. Equipment and supplies were moved to higher ground, and the Onawa rest 

areas were closed to serve as a materials storage area for fl ood mitigation efforts along I-29 near 

Blencoe and U.S. 30 near Missouri Valley. DOT emergency managers held daily strategy sessions 

to set the course for the long fl ood event. The statewide TMC disseminated information via 511, 

web site, and message boards, and coordinated with other local and state agencies since the road was 

closed for many months.
Role of Transportation Management Centers in Emergency Operations 4-9

4.5.3 Implement Restoration Phase 

Activities

Following are best practice emergency 

operations activities typically performed 

by the TMC after the recovery phase has 

been concluded and the restoration phase is 

underway.

• Return communications to pre-event 

confi guration;

• Return information gathering resources to 

pre-event confi guration (cameras, traffi c 

monitoring services, personnel);

• Demobilize TMC liaison to external EOC 

or UCC; and

• Retain all incident documentation and 

begin After Event Action Review process.

4.5.4 Integrate with State EOC 

Capabilities

During large-scale events, the TMC should 

integrate with the State EOC, which has the 

ability to communicate directly with local 

emergency management offi ces, state police 

troops or districts, and Federal agencies. 

Some states also have regional EOCs that 

coordinate disaster/emergency response with 

multiple communities in a geographic region. 

The TMC can integrate with the State EOC by 

sending a liaison, which aids communication, 

coordination, and resource request and 

fulfi llment between the agencies. In addition, 

TMCs often have access to valuable camera 

and sensor networks that provide the State 

EOC and decision-makers with real-time 

information from the incident scene.

Photo courtesy of the Kansas DOT.

An F-5 tornado ripped through the town of Greensburg and in minutes left an unimaginable 

path of destruction. The long road to recovery started immediately and from the beginning, the 

Kansas Department of Transportation (KDOT) was there to provide a helping hand. KDOT’s 

efforts included search and rescue, debris removal and cleaning of roadways, and clearing property 

easements for restoration of utilities. KDOT deployed mobile Communications on Wheels to assist 

law enforcement and the National Guard. KDOT assisted with traffi c control through barricades 

and the TMC provided message boards operations and 511 updates.
4-10 Role of Transportation Management Centers in Emergency Operations

4.5.5 Plan for Specifi c Large-Scale 

Emergencies

Large-scale emergencies may have a long 

recovery phase which overlaps into the 

postevent phase. Activities may include 

reestablishing the TMC and supporting 

infrastructure. For large emergencies, certain 

hazards may also require specifi c additional 

considerations. These hazards include the 

following:

Terrorist Events – Public safety and 

transportation agencies recognize the importance of managing surface transportation 

during and after a terrorist incident. The 

same types of homeland defense information 

exchanged between transportation and public 

safety agencies can be applied to the less 

serious (but more common) incidents of crime 

and traffi c law enforcement. Regular use of 

information between transportation and public 

service agencies will heighten awareness of the 

information’s value and increase the skills for 

using the information. Such an improvement 

will serve the public well should another 

terrorist event occur. To prepare for a this 

type of event, TMCs should do the following:

• Anticipate the event may produce large 

volumes of self-evacuees who utilize the 

highway system. The TMC will use its 

traffi c monitoring and management capabilities as well as maintain communication and coordination with the EOC and 

public safety agencies that are responding and working in the fi eld. Monitor 

camera networks and access control systems for situation developments, and 

relay observations to EOC and/or public 

safety agencies as appropriate.

• Chemical, Biological, and Radiological 

Threats – The transportation system has 

particular vulnerabilities with respect 

to chemical, biological, and radiological threats. Regardless of the cause, the 

primary considerations for response 

management are the type and toxicity, 

quantity and persistence, exposure route, 

dispersion, and population density in 

the area at risk. During these incidents, 

TMCs should do the following:

— Maintain contacts and relationships 

with agencies equipped to handle 

specialized incidents, including 

those that are chemical, biological, 

and radiological in nature. Rapid 

assessment of impacts will aid the 

speed, effectiveness, and safety of 

the response. Relay initial scene/site 

assessment information available to 

the TMC to the EOC and responding 

public safety agencies.

— Help secure the affected area and 

activate appropriate alternate routes 

when the affected area will be 

inaccessible and unusable.

4.6 Large-Scale 

Emergency Checklist

The TMC can use the following checklist 

to evaluate their current status in regard to 

emergency operations activities typically 

performed by the TMC during the initial 

and sustained response, during and after the 

recovery phase of a large-scale emergency 

(check all that apply):

Initial Response

Mobilizes TMC representative to the 

appropriate state or agency EOC or 

Unifi ed Command Center (UCC) 

as requested.

Confi gures communications to maximize 

interoperability with other agencies.

Focuses information gathering resources 

on the incident area (cameras, traffi c 

monitoring services, personnel on-scene) 

and relays information as needed.
Role of Transportation Management Centers in Emergency Operations 4-11

Responds in a prioritized manner in accordance with decisions made internally or 

externally from the EOC or UCC.

Fulfi lls resource requests as possible, 

while fi ltering requests to ensure the 

request is appropriate in both timing 

and purpose.

Provides public information in the form 

of dynamic message signs (DMS), 511 

updates, and TMC social media.

Initial Recovery

Continues focusing information gathering 

resources on the incident area (cameras, 

traffi c monitoring services, personnel onscene) and relays information as needed.

Continues fulfi lling resource requests as 

possible, while fi ltering requests to ensure 

the request is appropriate in both timing 

(avoiding requests for future needs) and 

purpose (avoiding mission/ equipment 

mismatches).

Provides guidance and resources to local 

communities and agencies as appropriate on recovery activities, including debris 

management.

Continues providing public information in 

the form of DMS and sharing of appropriate information with the media.

After Recovery

Returns communications to pre-event 

confi guration.

Returns information gathering resources 

to pre-event confi guration (cameras, traffi c 

monitoring services, personnel).

Demobilizes TMC liaison to external EOC 

or UCC.

Retains all incident documentation and 

begins After Event Action Review process.

Integrates with the State EOC by sending 

a liaison, and provides real-time information from the incident scene.

Develops a plan for large-scale emergencies that (check all that apply):

Offers traffi c monitoring and management capabilities, and communication 

and coordination functions (camera 

networks and access control systems) 

for use in handling large volumes of 

self-evacuees.

Maintains contacts and relationships 

with agencies equipped to handle 

specialized incidents, including those 

that are chemical, biological, and 

radiological.

Helps to secure the affected area and 

activate appropriate alternate routes 

when the affected area will be inaccessible and unusable.

4.7 Large Planned Events 

and National Special 

Security Events

This section describes TMC supporting 

activities immediately prior to, during, and 

after large planned special events such as 

National Special Security Events (NSSE).

In 1998, President Clinton issued Presidential 

Decision Directive 62 (PDD-62) for the 

purpose of formalizing and delineating the 

roles and responsibilities of Federal agencies 

in the development of security plans for major 

events. This Presidential Directive focused 

on the role of each agency and eliminated 

the duplication of effort and resources. The 

Presidential Protection Act of 2000 became 

public law and included in the bill, was an 

amendment to Title 18, USC §3056, which 

codifi ed PDD-62. With the support of 

Federal law, the Secret Service is authorized 
4-12 Role of Transportation Management Centers in Emergency Operations

to participate “in the planning, coordination 

and implementation of security operations at 

special events of national signifi cance.”

The Department of Homeland Security 

is the lead agency for the design and 

implementation of an operational security 

plan when the Secretary of the agency 

designates it as a NSSE. The Secret Service 

has developed a core strategy to carry out 

its security operations, which relies heavily 

on its established partnerships with law 

enforcement and public safety offi cials at the 

local, state, and Federal levels. The goal is to 

provide a safe and secure environment for the 

individuals the Secret Service is protecting, 

other dignitaries, the event participants, and 

the public. There is a tremendous amount of 

advance planning and coordination prior to 

the event, particularly at the venue and along 

the motorcade route, in communications, 

credentialing, and training. An example of 

an NSSE was the 2008 Democratic National 

Convention in Denver, Colorado in August 

2008. The acceptance speech by nominee 

Barack Obama at INVESCO fi eld before a 

record-setting crowd of 84,000 people was 

designated an NSSE.

While these preplanned and large-scale 

special events are not emergencies, some of 

the resources and actions could apply to an 

emergency. Specifi c coordination activities 

between the TMC and emergency operations 

may include monitoring and traffi c control 

prior to the event, and monitoring of routes 

during the event in case of emergency or in 

preparation for the end of the event. TMCs 

also can provide support to management of 

exiting traffi c.

4.7.1 Pre-Event Phase

During the pre-event phase, the key 

components of a traffi c management plan 

include plans for site access and parking, 

pedestrian access, traffi c fl ow, traffi c 

control, en-route traveler information, traffi c 

surveillance, traffi c incident management, and 

safety. A planned special event increases or 

disrupts the normal fl ow of traffi c and places 

a premium on the optimal use of existing 

facilities. A traffi c incident and safety plan 

specifi es crash prevention tactics and traffi c 

incident quick clearance initiatives, some for 

enactment on the day of the event. During 

this phase, TMCs can conduct the following 

activities:

• Freeway Traffi c Control:

— Ramp closures;

— Elimination of weaving areas;

— Alternate routes; and

— Ramp metering adjustments.

• Street Traffi c Control:

— Lane Control;

— Alternative Lane Operations;

— Trailblazer signing; and

— Parking management.

• Intersection Traffi c Control:

— Access Restriction;

— Advance Signing; and

— Traffi c Signal Timing and Coordination.

• Traffi c Incident Management:

— Service Patrols;

— Tow Truck Staging;

— Quick Clearance; and

— Advance Warning Signs.
Role of Transportation Management Centers in Emergency Operations 4-13

Source: Comstock Images.

• Traffi c Surveillance:

— CCTV;

— Media Reports; and

— Temporary ITS for detection and 

surveillance.

• En-Route Traveler Information:

— Dynamic Message Signs;

— Highway Advisory Radio;

— 511 Phone Systems;

— Media; and

— Smart Phone Apps/In-vehicle devices.

• Pre-Trip Traveler Information:

— Internet;

— 511 Phone Systems;

— Pre-event public relations campaign;

— Media; and

— Roadside Traveler Information Systems.

If the planned event warrants preparation 

of a formal traffi c management plan, it 

will defi ne how the TMC conducts certain 

functions and roles. These may be primary 

roles (surveillance, detection, message sign 

operation, ramp meter control), support 

roles (public relations campaign, tow truck 

staging), or coordinating roles (signal systems 

operation, service patrols).

The TMC may also conduct crash prevention 

tactics that focus on improving driver 

awareness of surroundings and driver 

behavior during planned special events, 

including portable lighting, congestion 

warning signs, public information safety 

campaigns, and enforcement.

4.7.2 Response and Recovery Phases

On the day of the planned event, team 

organization includes agency representatives 

stationed at a central command post, at 

secondary command posts, at a permanent 

TMC, and at strategic locations in the fi eld 

for traffi c control and observation. The traffi c 

management team generally functions under 

the ICS to ensure successful deployment of 

the traffi c management plan and minimal 

impact to transportation system users. 

Unifi ed command functions coordinate 

interjurisdictional and multidisciplinary 

stakeholders among the traffi c management 

team so there is no sacrifi ce of agency 

authority, responsibility, or accountability. 

An advantage of using the ICS during a 

planned special event is that it clarifi es how 

decisions are made if the traffi c management 

plan requires adjustment.

Source: Cambridge Systematics, Inc.

A number of factors affect traffi c conditions 

either shortly before, or during the event. For 

events such as the Super Bowl and the NCAA 

Final Four, for instance, the participating 

teams are not known until shortly before the 
4-14 Role of Transportation Management Centers in Emergency Operations

event (two weeks for the Super Bowl, one for 

the Final Four). Depending on the proximity 

of the participants, the mix of people driving 

or fl ying into the host city can vary greatly, 

with signifi cant impacts on local traffi c. 

Attendance at major festivals can also vary 

and a sudden outbreak of bad weather during 

an outdoor event can change the anticipated 

timing and patterns of traffi c. As a result, 

plans need to be adjusted in the period 

immediately prior to the event or in some 

cases during the event. As an organization 

with the ability to monitor conditions over 

a wide area, the TMC may take on a greater 

role to address immediate changes. For the 

TMC, specifi c day-of-event activities involve 

the following:

• Support the implementation and operation of the traffi c management plan by 

coordinating with fi eld personnel to make 

sure temporary traffi c modifi cations are 

in place. The TMC will activate DMS 

and other traveler information services to 

remind the public of the event and inform 

them of traffi c changes.27

• Monitor a potential fl uid situation and 

provide inputs on how the plan is working 

and what adjustments may be required in 

real time.28 Traffi c monitoring represents 

an important day-of-event activity, serving to provide traffi c and incident management support in addition to performance 

evaluation data. A traffi c engineer should 

be available to the TMC to review historical data on traffi c volumes and speeds as 

well as any projections made for the event. 

If projections are not accurate, the TMC 

can coordinate changes in the original plan 

and implement those elements residing 

in the TMC. Timely deployment of such 

contingency plans developed during the 

operations planning phase can depend on 

the TMC’s accurate collection and communication of real-time traffi c data between 

traffi c management team members.

• Monitor traffi c conditions; provide traveler information services; coordinate with 

DOT maintenance and fi eld crews to provide additional resources where needed; 

coordinate with local agencies that control 

signals and local streets, ramp meter operation; and support quick clearance and 

incident management activities.

Source: Digital Stock, a division of Corbis Corp.

4.7.3 Postevent Phase

The postevent phase for preplanned and 

large-scale special events is similar to other 

major events. Key events to conduct after 

special events with TMC participation include 

the following:

• A debriefi ng with all stakeholders to 

review the original plan and compare it 

to the actual events to see what aspects of 

the plan worked and which need improvement. The TMC, which usually has 

resources to display data and graphics, 

could serve as host.

• A postevent report documenting the event 

and making recommendations for improvements in the process. The TMC should play 

a key role in the transportation section of 

the report, including documentation of traffi c volumes, speeds, and times required to 

clear parking areas and key intersections. 

Timelines and documentation on implementation of specifi c strategies (changes 

in signal timing/ operation, opening and 
Role of Transportation Management Centers in Emergency Operations 4-15

closing of ramps and streets, etc.) should 

also be included.

• Documentation of any exceptional costs 

incurred in transportation activities, which 

is helpful if there are cost-recovery agreements with venue owners, event sponsors, 

or other agencies. It can also be used for 

the planning and development of future 

agreements.

• Archiving data and event documentation 

for use in future planning efforts.

4.8 Large Planned Events 

Checklist

The TMC can use the following checklist 

to evaluate their current status in regard to 

participation in large planned events (check 

all that apply):

Pre-Event Phase

Conducts Freeway Traffi c Control through 

ramp closures, elimination of weaving 

areas, identifi cation of alternate routes, 

and ramp metering adjustments.

Maintains street traffi c control through lane 

control, alternative lane operations, trailblazer signing, and parking management.

Maintains intersection traffi c control by 

access restriction, advance signing, and 

traffi c signal timing and coordination.

Conducts traffi c incident management 

through service patrols, two truck staging, 

quick clearance, and advance warning signs.

Conducts traffi c surveillance through 

CCTV, media reports, and temporary ITS 

detection and surveillance.

Provides en-route traveler information via 

DMS, Highway Advisory Radio, 511 systems, media, and smart phone apps/ invehicle decisions.

Provides pretrip traveler information 

through the Internet, 511 systems, preevent public relations campaign, media, 

and roadside traveler information systems.

Conducts crash prevention tactics, including portable lighting, congestion warning 

signs, public information safety campaign, 

and enforcement.

Response and Recovery Phases

Coordinates with fi eld personnel to make 

sure temporary traffi c modifi cations are in 

place, i.e., DMS and other traveler information services.

Monitors traffi c conditions; provide traveler information services; coordinate with 

DOT maintenance and fi eld crews to provide additional resources where needed.

Coordinates with local agencies that control signals and local streets, ramp meter 

operation.

Supports quick clearance and incident 

management activities.

Postevent Phase

Participates in a debriefi ng with all stakeholders to review the original plan and 

compare it to the actual events to see what 

aspects of the plan worked and which need 

improvement.

Assists with the transportation section 

of a postevent report documenting the 

event and making recommendations for 

improvements in the process.

Documents any exceptional costs incurred 

in transportation activities.

Archives data and event documentation 

for use in future planning efforts.
4-16 Role of Transportation Management Centers in Emergency Operations

24 http://ops.fhwa.dot.

gov/publications/etopr/best_

practices/etopr_best_practices.pdf.

25 Wisconsin DOT Emergency Operations Plan, 

Rev. 1, June 2010, 40.

26 Traffi c Incident Management Resource Guide, 

FHWA, June 2009, 708.

27 Freeway Management and Operations 

Handbook, FHWA, 2003, Updated 2006, 

11-16.

28 Freeway Management and Operations 

Handbook, FHWA, 2003, Updated 2006, 

11-16.
Role of Transportation Management Centers in Emergency Operations 5-1

5.0 Postevent Activities

The TMC roles in emergency operations 

following emergencies and related events are 

the focus for this section. Also included are 

descriptions of postevent emergency activities, 

including recovery activities, after-action 

assessments, and improvement planning.

5.1 Recovery Actions

Large-scale events often create a need 

for immediate follow up to address any 

resulting damage and mitigate continuing 

threats to the public. Effective coordination 

and resource sharing facilitate this type 

of response. TMCs play a central role in 

coordinating traffi c recovery, but their 

capabilities may also lend themselves to 

supporting and/or coordinating a large 

nontraffi c incident recovery. To support an 

EOC, or fi rst responders, there are a number 

of planning and preparedness actions TMCs 

should undertake during the recovery phase, 

as described in the following sections:

5.1.1 Roadway Restoration

Currently DOTs often coordinate infrastructure repair independent of TMC 

support. However, TMC surveillance (video 

and traffi c detection) and public information 

(media contacts, web sites, variable message 

signs, highway advisory radio) capabilities 

lend themselves to expansion on a temporary 

and rapid basis. There are two ways TMCs 

can support roadway restoration:

• Surveillance Capabilities – TMCs 

can utilize camera networks and traffi c sensor/ detection systems to provide 

enhanced real-time, incident location-specifi c situational awareness. Temporary 

reconfi guration of these resources may 

be necessary.

• Public Information Capabilities – TMCs 

have access to media contacts, social networks, web sites, variable message signage, 

and highway advisory radio. All of these 

can be utilized to ensure public information 

efforts are supporting, rather than ignoring 

or undermining recovery activities.

Photo courtesy of the FHWA Road Weather Management 

Program.

5.1.2 Infrastructure (Power, Water, 

and Public Facilities) Restoration

TMCs can help support restoration activities 

by public works departments and utilities 

by providing information on access routes 

and detours, gathering and disseminating 

information on road conditions, and helping 

avoid disruption of the system by having 

too much work in the same area. By serving 

as a coordination point for cross-utility 

restoration, recovery efforts can be monitored 

and spread over multiple areas, reducing 

congestion, and enhancing progress.
5-2 Role of Transportation Management Centers in Emergency Operations

5.2 After-Action 

Assessments and 

Improvement Plans

After-action assessments of specifi c events 

and the development of improvement plans 

provide a good opportunity for TMCs and 

Emergency Operations agencies to build 

relationships and coordinate their activities 

outside of the pressure of the event itself. The 

process is essential because it identifi es and 

documents lessons learned and then applies 

improvements to address them, which 

benefi ts future incidents and responses. 

Following are the steps and actions involved 

in conducting an after-action assessment and 

developing an improvement plan.

5.2.1 Convene and Set Up an AfterAction Conference

Some of activities associated with an AfterAction Conference include identifying the 

appropriate participants, setting up the agenda, 

and communicating to the attendees what is 

to be expected. The conference should take 

place within a reasonable time following the 

incident to ensure memories are fresh and other 

priorities do not arise, and include individuals 

involved in the incident. Some other conference 

considerations include the following:

Photo courtesy of the Texas DOT.

When devastating wildfi res ripped through West Texas, the Texas Department of Transportation 

(TxDOT) crews helped the Texas Forest Service and area fi re departments battle the blazes that 

blackened about 120,000 acres, forced evacuations, and destroyed dozens of homes from the 

Panhandle to the southern plains. The TMC was responsible for notifying the traveling public of 

the unsafe conditions and assisting with managing traffi c.
Role of Transportation Management Centers in Emergency Operations 5-3

• Designate an experienced facilitator to lead 

the After-Action Conference and ensure 

discussions are focused and constructive.

• Develop and present a beginning-to-end 

timeline of the event and the response to 

help jog memories and provide a consistent basis for discussions.

• Allow for informal discussion and issue 

exploration so attendees feel comfortable 

and able to participate.

• Develop a feedback form and distribute to 

attendees to capture additional observations or comments not covered during the 

conference. The form should also allow 

attendees to evaluate the usefulness and 

quality of the conference.

5.2.2 Develop the After-Action 

Report and Improvement Plan

TMCs should use the DHS/FEMA Homeland 

Security Evaluation Program, which 

includes a template for after-action reports, 

and utilize a consistent approach when 

identifying issues and recommendations. A 

preferred approach, called OAR, identifi es 

the observation (what happened), provides 

an analysis of the observation (why did this 

happen), and recommends ways to address 

the observation (how to fi x what happened). 

Each observation should include a specifi c 

improvement action along with a table or 

matrix summarizing recommendations and 

assigning responsibility for implementation. 

The fi nal report should be reviewed and 

distributed to stakeholders and a process 

established to evaluate it periodically to ensure 

the implementation of recommendations. 

Following in Section 5.2.3 are the steps TMCs 

should use to develop the After-Action Report 

and Improvement Plan:

5.2.3 Determine Program Needs and 

Requirements

A discussion of the TMC role in the 

emergency or event during the postevent 

assessment may raise sensitive issues related 

to funding and jurisdictional oversight. A 

discussion of prior experiences can help build 

relationships and improve coordination for 

future events. Figure 5.1 shows a general 

picture of how after-action incidents feed 

back into the development of program needs 

and requirements.

TMCs have a role in three preparation 

activities, including the development of 

fi eld response and procedures, deployment 

of technologies, and development of 

performance measure targets and measuring 

systems. The information for the EOP should 

focus on the several basic questions to ask 

after each incident, including the following:29

• Did an action, a process, a decision, or 

the response timing identifi ed in the plan 

make the situation worse or better?

• Were new alternate courses of action 

identifi ed?

• What aspects of the action, process, decision, or response timing make it something 

to keep in the plan?

• What aspects of the action, process, decision, or response timing make it something 

to avoid?

• What should be removed from the plan?

• What specifi c changes to plans and procedures, personnel, organizational structures, leadership or management processes, facilities, or equipment can improve 

response performance?
5-4 Role of Transportation Management Centers in Emergency Operations

Figure 5.1 Activities in the Preparation, Response, and Recovery Phases

Source: NCHRP Report 525, Vol. 6, Surface Transportation Security Guide for Emergency Transportation Operations, p. 13.
Role of Transportation Management Centers in Emergency Operations 5-5

Identify Performance Measures

Performance measures are important to this 

process because what cannot be measured 

cannot be managed. FHWA and National 

Traffi c Incident Management Coalition 

(NTIMC) are collaborating on the creation of 

national metrics to help responders develop 

their own programmatic and incident 

response goals and commit to them in written 

agreements. Institutional issues revolve 

around gaining acceptance for performance 

measurement from both executive decisionmakers and other agencies involved with 

TIM responsibilities. While most TMCs and 

emergency responders are familiar with 

basic transportation-oriented performance 

measures, appropriate measures will vary 

depending on the type of event.

There are two types of performance 

measures – those that are measured directly 

and those that are modeled or calculated. 

Following are examples of direct measures.

• Number and type of incidents serviced by 

agency service patrols or privately contracted services;

• Specifi c support activities conducted;

• The time it takes to detect and verify 

incident;

• Response and clearance time for the 

incident;

• Cost of services – total and per incident 

serviced; and

• Customer satisfaction (measured by surveys or web feedback).

Most agencies keep relatively detailed 

statistics on these performance measures, 

as illustrated by the summary of Indiana’s 

Hoosier Helper Program, shown in Figure 5.2.

These measures help track cost-effectiveness, 

and compare performance with other agencies, 

different regions, or private contractors. In 

some areas, law enforcement may compile 

and manage incident management data, but 

in general, this function is within the scope 

of the TMC. These reports help allocate 

incident management resources, improve the 

effi ciency of operations, and justify capital 

and operating budgets to decision-makers 

and the public.

A second set of performance measures look 

at the system impact of incident management 

activities and include measures such as crash 

reduction, travel time saved, reduced fuel 

costs for the public and operating agencies, 

and improved air quality. There are a number 

of ways to identify these measures, including 

The Urban Mobility Report developed by 

the Texas Transportation Institute, which 

estimates the costs of these factors as they 

relate to congestion. FHWA also has fi gures 

on the cost of crashes and there are modeling 

tools such as the ITS Deployment Analysis 

System to estimate them. The footnoted link 

provides access to additional information.30 

Agency traffi c and planning personnel can 

develop these estimates and the TMC can 

contribute with data on incident management 

and traffi c speed and volume. Performance 

measurement of major incidents and disasters 

is a more diffi cult process. Since the fi rst priority 

is the safety and security of life and property, 

all transportation system performance must 

support this goal. Measures usually focus on 

the ability of emergency vehicles to access the 

scene and the effi ciency of evacuations plans 

and procedures. Another impediment in 

measuring performance is the unique nature 

of each event which makes comparisons 

diffi cult.
5-6 Role of Transportation Management Centers in Emergency Operations

Figure 5.2 Indiana DOT Freeway Service Patrol Performance Measures

Source: Indiana DOT.
Role of Transportation Management Centers in Emergency Operations 5-7

Conduct Benefi t/Cost Analysis

A postevent benefi t/cost analysis can help 

an agency determine where to invest new 

resources and provide a justifi cation for 

funding and support of those resources. 

The quantitative benefi ts include increased 

survival rate of crash victims; reduced delay; 

improved response time; improved air quality; 

reduced occurrence of secondary incidents; 

improved safety of responders, crash victims 

and other motorists; and reduced recovery 

time. Qualitative benefi ts include enhanced 

traveler information services, increased driver 

warning capabilities, improved coordination 

and cooperation of response agencies, 

improved public perception of agency 

operations, and reduced driver frustration.

Other Considerations

Budget and funding topics may be examined 

and include a review of dedicated funding, 

ongoing funding, and guidelines for 

Federal/state funding sources, metropolitan 

planning organization partnerships, and an 

associated TIM strategic plan to ensure access 

to program resources. Some items to measure 

include whether TIM resources were managed 

effectively and effi ciently; the number and 

type of executive outreach materials/events 

to ensure the effectiveness of TIM programs is 

adequately demonstrated to decision-makers; 

and whether TIM programs are considered 

during the prioritization of funding projects.

Postevent reviews and after-action meetings 

may also identify needed changes in training 

or operating procedures, existing MOUs, or 

legal agreements between agencies.

5.3 Postevent Checklist

The TMC can use the following checklist to 

evaluate their current status in regard to postevent activities (check all that apply):

The TMC convenes an after-action 

conference.

The TMC develops an after-action report 

and improvement plan that includes the 

following (check all that apply):

Determines program needs and 

requirements by asking the following 

questions (check all that apply):

Did an action, a process, a decision, or the response timing make 

the situation worse or better?

Were new alternate courses of 

action identifi ed?

What aspects of the action, process, 

decision, or response timing make 

it something to keep in the plan?

What aspects of the action, process, decision, or response timing 

make it something to avoid?

What should be removed from the 

plan?

What specifi c changes to plans 

and procedures, personnel, organizational structures, leadership, 

or management processes, facilities, or equipment can improve 

response performance?

Identifi es performance measures, 

including the following (check all 

that apply):

Number and type of incidents serviced by agency service patrols 

privately contracted services.

Specifi c support activities 

conducted.

The time it takes to detect and verify incident.
5-8 Role of Transportation Management Centers in Emergency Operations

Response and clearance time for 

the incident.

Cost of services – total and per incident serviced.

Customer satisfaction.

Crash reduction.

Travel time saved.

Reduced fuel costs for the public 

and operating agencies.

Improved air quality.

The ability of emergency vehicles 

to access the scene.

Effi ciency of evacuation plans and 

procedures.

Conducts benefi t/cost analysis on the 

following (check all that apply):

Increased survival rate of crash 

victims.

Reduced delay.

Improved response time.

Improved air quality.

Reduced occurrence of secondary 

incidents.

Improved safety of responders, 

crash victims and other motorists.

Reduced recovery time.

Enhanced traveler information 

services.

Increased driver warning capabilities.

Improved coordination and cooperation of response agencies.

Improved public perception of 

agency operations.

Reduced driver frustration.

Effi ciency of budget expenditures.

Changes in training or operating 

procedures.

Changes in MOUs or legal agreements between agencies.

5.4 Maintain TMC 

Emergency Operations

Relationships, policies, plans, and procedures 

must be maintained to ensure they remain 

relevant and effective, which is especially 

import in complex environments involving 

multiple jurisdictions and stakeholders.

For coordination elements to be up-to-date 

and aligned, TMCs must ensure a regular 

process of review and revision. During an 

emergency is a poor time to discover changed 

contact information, radio frequencies, 

organizational structures, and roles and 

responsibilities. Smooth response depends 

on pre-event knowledge, both internally 

and jointly with external response partners. 

Following are the steps to maintain TMC 

emergency operations.

5.4.1 Designate Ownership and 

Management of the Emergency 

Operations Elements

The policies, plans, and procedures developed 

by TMCs to address emergency preparedness 

and response will incorporate assumptions 

about and actions expected from external 

agencies. Where TMC efforts overlap or 

strengthen external actions, there is potential 

for utilization and ownership confl ict. TMC 

documents and planning must clearly 

delineate ownership and responsibility. 

Cooperative meetings with external agencies 

should establish confi gurations for ownership 

and management of emergency operations 

elements.

One successful model involves TMCs and 

external public safety agencies maintaining 

responsibility for developing appropriate 

emergency operations elements for their 

own internal use, while developing joint use 

elements where appropriate and productive. 

Extensive coordination takes place along with 
Role of Transportation Management Centers in Emergency Operations 5-9

channeling of funding and resources between 

the organizations to maximize mutual benefi t.

5.4.2 Update Emergency Operations 

Program Elements on a Periodic Basis

The Emergency Preparedness Working Group 

should designate and adhere to a documented 

program review and update process. The 

inclusion of external agencies will make 

sure revisions do not cause inconsistency or 

misalignment with other plans or procedures 

maintained by these partners. The Working 

Group should also designate a single, central 

point of contact for the review and revisions, 

and ensure there is a record of revisions at the 

beginning of each program document.

At minimum, review and revision should 

take place on an annual basis. However, 

in certain cases, more frequent review and 

revision may be warranted. For example, 

After-Action Reports and Improvement Plans 

that result from exercises should immediately 

inform revisions to emergency preparedness 

program elements.

TMCs should develop a work plan that 

captures all emergency preparedness 

program conduct, revision, and maintenance 

activities and include them in a schedule.

5.5 Maintain Emergency 

Operations Checklist

The TMC can use the following checklist 

to evaluate their current status in regard 

to maintenance of emergency operations 

(relationships, policies, plans, and procedures) 

(check all that apply):

Designates ownership and management of 

emergency operations elements.

Updates EOP elements on a periodic basis.

29 NCHRP Report 525, Vol. 16, Surface 

Transportation Security, A Guide to Emergency 

Response Planning at State Agencies, 104.

30 http://idas.camsys.com/.
Role of Transportation Management Centers in Emergency Operations A-1

A. Glossary

AAR/IP After Action Report/Implementation Plan – The main product of the Evaluation and 

Improvement Planning process is the AAR/IP. The AAR/IP has two components: an 

AAR, which captures observations of an exercise and makes recommendations for postexercise improvements; and an IP, which identifi es specifi c corrective actions, assigns them to 

responsible parties, and establishes targets for their completion. The lead evaluator and the 

exercise planning team draft the AAR and submit it to conference participants prior to the After 

Action Conference. The draft AAR is completed fi rst and distributed to conference participants 

for review no more than 30 days after exercise conduct. The fi nal AAR/IP is an outcome of 

the After Action Conference and should be disseminated to participants no more than 60 days 

after exercise conduct. Even though the AAR and IP are developed through different processes 

and perform distinct functions, the fi nal AAR and IP should always be printed and distributed 

jointly as a single AAR/IP following an exercise. 

Controller – In an operations-based exercise, controllers plan and manage exercise play, set 

up and operate the exercise incident site, and possibly take the roles of individuals and agencies 

not actually participating in the exercise (i.e., in the Simulation Cell [SimCell]). Controllers 

direct the pace of exercise play and routinely include members from the exercise planning 

team, provide key data to players, and may prompt or initiate certain player actions and 

injects to the players as described in the Master Scenario Event List (MSEL) to ensure exercise 

continuity. The individual controllers issue exercise materials to players as required, monitor 

the exercise timeline, and monitor the safety of all exercise participants. Controllers are the 

only participants who should provide information or direction to players. All controllers 

should be accountable to one senior controller. (Note: If conducting an exercise requires more 

controllers or evaluators than are available, a controller may serve as an evaluator; however, 

this typically is discouraged.)

Comprehensive Preparedness Guide 101 – A guide designed to assist jurisdictions with 

developing operations plans. It promotes a common understanding of the fundamentals of 

planning and decision-making to help emergency planners examine a hazard and produce 

integrated, coordinated, and synchronized plans.

Continuity of Government – A coordinated effort within the Federal Government’s executive 

branch to ensure that National Essential Functions continue to be performed during a 

catastrophic emergency (as defi ned in National Security Presidential Directive 51/Homeland 

Security Presidential Directive 20).

Continuity of Operations – An effort within individual organizations to ensure that Primary 

Mission Essential Functions continue to be performed during a wide range of emergencies.

Discussion-Based Exercises – Discussion-based exercises are normally used as a starting point 

in the building-block approach to the cycle, mix, and range of exercises. Discussion-based 

exercises include seminars, workshops, TTXs, and games. These types of exercises typically 

highlight existing plans, policies, mutual aid agreements (MAAs), and procedures, and are 

exceptional tools to familiarize agencies and personnel with current or expected jurisdictional 

capabilities. Discussion-based exercises typically focus on strategic, policy-oriented issues, 

whereas operations-based exercises tend to focus more on tactical, response-related issues. 

Facilitators and/or presenters usually lead the discussion and keep participants on track to 

meet exercise objectives.
A-2 Role of Transportation Management Centers in Emergency Operations

EEG Exercise Evaluation Guide – EEGs are HSEEP documents that support the exercise evaluation 

process by providing evaluators with consistent standards for observation, analysis, and AAR 

development. Each EEG is linked to a target capability and provides standard activities, 

performance measures, and tasks to be evaluated based on the exercise objectives. Additionally, 

an EEG contains a Capability Narrative section, in which evaluators provide a general 

chronological narrative of exercise events associated with the capability; and an Evaluator 

Observations section in which evaluators provide specifi c strengths and areas of improvement 

linked to the capability.

The consistent guidelines provided in EEGs facilitate creation of AAR/IPs resulting in an 

actionable IPs that target specifi c personnel, planning, organization, equipment, and training 

needs within capabilities.

Emergency – Any incident, whether natural or manmade, that requires responsive action to 

protect life or property. Under the Robert T. Stafford Disaster Relief and Emergency Assistance 

Act, an emergency means any occasion or instance for which, in the determination of the 

President, Federal assistance is needed to supplement state and local efforts and capabilities to 

save lives and to protect property and public health and safety, or to lessen or avert the threat 

of a catastrophe in any part of the United States.

EMAC Emergency Management Assistance Compact – A congressionally ratifi ed organization that 

provides form and structure to interstate mutual aid. Through EMAC, a disaster-affected state 

can request and receive assistance from other member states quickly and effi ciently, resolving 

two key issues up front: liability and reimbursement.

EMPG Emergency Management Performance Grants – The EMPG program provides resources to 

assist state and local governments to sustain and enhance all-hazards emergency management 

capabilities. States have the opportunity to use EMPG funds to further strengthen their ability to 

support emergency management activities while simultaneously addressing issues of national 

concern as identifi ed in the National Priorities of the National Preparedness Guidelines. EMPG 

has a 50 percent Federal and 50 percent state cost-share cash or in-kind match requirement.

EOC Emergency Operations Center – The physical location at which the coordination of information 

and resources to support incident management (on-scene operations) activities normally takes 

place. An EOC may be a temporary facility or may be located in a more central or permanently 

established facility, perhaps at a higher level of organization within a jurisdiction. EOCs may 

be organized by major functional disciplines (e.g., fi re, law enforcement, medical services), by 

jurisdiction (e.g., Federal, state, regional, tribal, city, county), or by some combination thereof.

EOP Emergency Operations Plan – An ongoing plan for responding to a wide variety of potential 

hazards.

Exercise – An exercise is an instrument to train for, assess, practice, and improve performance in 

prevention, protection, response, and recovery capabilities in a risk-free environment. Exercises 

can be used for: testing and validating policies, plans, procedures, training, equipment, and 

interagency agreements; clarifying and training personnel in roles and responsibilities; improving 

interagency coordination and communications; identifying gaps in resources; improving 

individual performance; and identifying opportunities for improvement. (Note: an exercises is 

also an excellent way to demonstrate community resolve to prepare for disastrous events).

Evaluator – Evaluators, selected from participating agencies, are chosen based on their 

expertise in the functional areas they will observe. Evaluators use EEGs to measure and assess 

performance, capture unresolved issues, and analyze exercise results. Evaluators passively 

assess and document participants’ performance against established emergency plans and 

exercise evaluation criteria, in accordance with HSEEP standards. Evaluators have a passive 

role in the exercise and only note the actions/decisions of players without interfering with 

exercise fl ow.
Role of Transportation Management Centers in Emergency Operations A-3

ExPlan Exercise Plan – ExPlans are general information documents that help operations-based exercises 

run smoothly. They are published and distributed prior to the start of exercise and provide 

a synopsis of the exercise. In addition to addressing exercise objectives and scope, ExPlans 

assign activities and responsibilities for successful exercise execution. They enable participants 

to understand their roles and responsibilities in exercise planning, execution, and evaluation. 

The ExPlan is intended for use by exercise players and observers; therefore, it does not contain 

detailed scenario information that may reduce the realism of the tasks to be performed. Players 

and observers should review all elements of the ExPlan prior to exercise participation.

FE Functional Exercise – An FE is a single or multi-agency activity designed to evaluate capabilities 

and multiple functions using a simulated response. An FE is typically used to: evaluate the 

management of Emergency Operations Centers (EOCs), command posts, and headquarters; 

and assess the adequacy of response plans and resources. Characteristics of an FE include 

simulated deployment of resources and personnel, rapid problem solving, and a highly stressful 

environment.

FSE Full-Scale Exercise – An FSE is a multi-agency, multijurisdictional activity involving actual 

deployment of resources in a coordinated response as if a real incident had occurred. An FSE 

tests many components of one or more capabilities within emergency response and recovery, 

and is typically used to assess plans and procedures under crisis conditions, and assess 

coordinated response under crisis conditions. Characteristics of a FSE include mobilized units, 

personnel, and equipment; stressful, a realistic environment, and scripted exercise scenarios.

HSEEP Homeland Security Exercise Evaluation Program – HSEEP is a capabilities- and performancebased exercise program that provides standardized policy, doctrine, and terminology for the 

design, development, conduct, and evaluation of homeland security exercises. HSEEP also 

provides tools and resources to facilitate the management of self-sustaining homeland security 

exercise programs.

ICS Incident Command System – The Incident Command System organizational element responsible 

for overall management of the incident and consisting of the Incident Commander (either single or 

unifi ed command structure) and any assigned supporting staff.

Master Scenario Event List – The MSEL is a chronological timeline of expected actions and 

scripted events to be injected into exercise play by controllers to generate or prompt player 

activity. It ensures necessary events happen so that all objectives are met. Larger, more 

complex exercises may also employ a Procedural Flow (ProFlow), which differs from the 

MSEL in that it only contains expected player actions or events. The MSEL links simulation 

to action, enhances exercise experience for players, and refl ects an incident or activity meant 

to prompt players to action. Each MSEL record contains a designated scenario time, an event 

synopsis, the name of the controller responsible for delivering the inject; and, if applicable, 

special delivery instructions, the task and objective to be demonstrated, the expected action, the 

intended player, and a note-taking section.

NIMS National Incident Management System – A set of principles that provides a systematic, 

proactive approach guiding government agencies at all levels, nongovernmental organizations, 

and the private sector to work seamlessly to prevent, protect against, respond to, recover from, 

and mitigate the effects of incidents, regardless of cause, size, location, or complexity, in order 

to reduce the loss of life or property and harm to the environment. 
A-4 Role of Transportation Management Centers in Emergency Operations

NRP National Response Plan – Establishes a comprehensive all-hazards approach to enhance the 

ability of the United States to manage domestic incidents. The plan incorporates best practices 

and procedures from incident management disciplines – homeland security, emergency 

management, law enforcement, fi refi ghting, public works, public health, responder and 

recovery worker health and safety, emergency medical services, and the private sector – and 

integrates them into a unifi ed structure. It forms the basis of how the Federal government 

coordinates with state, local, and tribal governments and the private sector during incidents.

NSSE National Special Security Events – Events of national signifi cance which by virtue of their 

political, economic, social, or religious signifi cance may be targets of terrorism or other criminal 

activity. Events include presidential inaugurations, major international summits held in the 

United States, major sporting events, and presidential nominating conventions.

Operations-Based Exercise – Operations-based exercises are a category of exercises 

characterized by actual response, mobilization of apparatus and resources, and commitment 

of personnel, usually held over an extended period of time. Operations-based exercises can 

be used to validate plans, policies, agreements, and procedures. They include drills, FEs, and 

FSEs. They can clarify roles and responsibilities, identify gaps in resources needed to implement 

plans and procedures, and improve individual and team performance. (Note: These exercises 

often follow after, and validate, the lessons learned from discussion-based exercises.)

SHSP State Homeland Security Program – SHSP supports the implementation of State Homeland 

Security Strategies to address the identifi ed planning, organization, equipment, training, 

and exercise needs to prevent, protect against, mitigate, respond to, and recover from acts of 

terrorism and other catastrophic events. SHSP also provides funding to implement initiatives 

in the State Preparedness Report.

Standard Operating Guidelines – A set of instructions having the force of a directive, covering 

those features of operations which lend themselves to a defi nite or standardized procedure 

without loss of effectiveness.

Standard Operating Procedure – A complete reference document or an operations manual that 

provides the purpose, authorities, duration, and details for the preferred method of performing 

a single function or a number of interrelated functions in a uniform manner.

TTX Tabletop Exercise – TTXs are intended to stimulate discussion of various issues regarding a 

hypothetical situation. They can be used to assess plans, policies, and procedures or to assess 

types of systems needed to guide the prevention of, response to, or recovery from a defi ned 

incident. During a TTX, senior staff, elected or appointed offi cials, or other key personnel meet 

in an informal setting to discuss simulated situations. TTXs are typically aimed at facilitating 

understanding of concepts, identifying strengths and shortfalls, and/or achieving a change in 

attitude. Participants are encouraged to discuss issues in depth and develop decisions through 

slow-paced problem-solving rather than the rapid, spontaneous decision-making that occurs 

under actual or simulated emergency conditions. TTXs can be breakout (i.e., groups split into 

functional areas) or plenary (i.e., one large group).

UC Unifi ed Command – An Incident Command System application used when more than one 

agency has incident jurisdiction or when incidents cross political jurisdictions. Agencies work 

together through the designated members of the UC, often the senior persons from agencies 

and/or disciplines participating in the UC, to establish a common set of objectives and strategies 

and a single Incident Action Plan.