ML20008D491
| ML20008D491 | |
| Person / Time | |
|---|---|
| Site: | Seabrook  |
| Issue date: | 06/20/1989 |
| From: | TRANSPORTATION, DEPT. OF, FEDERAL HIGHWAY ADMINISTRAT |
| To: | |
| References | |
| OL-I-MAG-124, NUDOCS 9003050254 | |
| Download: ML20008D491 (84) | |
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==- EMERGENC hie-g :rg- HIGHWAY mgpu TRAFFIC REGULATION i
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' A Guide for Emergency Highway Traffic Regulation l
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4- l l 1 i PREFACE This publication revises and supersedes emergency planning information i previously contained in "A Guide for Highway Traffic Regulation in an Emergency" (1974). , [ t
c C8NTENTS r het Appendixes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . v List of Figures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . v Glo ssary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ......
.... vi PART I-General Background of Emergency Highway Traffic Regulation . 1-1 Chapter I-Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1-1 Chapter II-Origin and Evolution . . . . . . . . . . . . . . . . . . . . . . . . 1-4 Chapter III-Emergency Highway Traffic Regulation in the Emergency Planning Field . . . . . . . . . . . . . . . . . . 1-5 Chapter IV-Emergency Highway Traffic Regulation and Natural Disasters . . . . . . . . . . . . . . . . . . . . . . . . . I-7 Chapter V-Organizations Involved in Emergency Planning Federal Emergency Management Agency . . . . . !-8 Office of Emergency Transportation. . . . . . . . . . I-8 Federal Highway Administration . . . . . . . . . . . . I-8 International Association of Chiefs of Police . . . 1-9 American Association of State Highway and Transportation 0fficials . . . . . . . . . . . . . . . . . . I-9 Chapter VI-Organizations Involved in EHTR Operations. . . . . 1-10 State Highway Departments . . . . . . . . . . . . . . . . 1-10 Department of the Army . . . . . . . . . . . . . . . . . . . I-10 State and Local Police Organizations . . . . . . . . . 1-10 Highway User or Regulatory Commissions . . . . 1-11 PART II-Emergency Highway Traffic Regulation Operations . . . . . . . . . 11-1 Chapter I-Functions. Equipment and Personnel of -
Emergency Highway Traffic Regulation Centers and Posts . . . . . . . . . . . . . . . . . . . . . . . II-1 State Emergency Operating Center . . . . . . . 11- 1 Alternate State Emergency Operating Center . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11- 1 State EHTR Center . . . . . . . . . . . . . . . . . . . 11- 2 District EHTR Centers . . . . . . . . . . . . . . . . . 11-5 Sector EHTR Centers . . . . . . . . . . . . . . . . . . !!-6 E HTR Posts . . . . . . . . . . . . . . . . . . . . . . . . . . 11- 7 Chapter II-Regulated Routes, Road.Use Permits and E HTR Signs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-13 Class " A" Routes . . . . . . . . . . . . . . . . . . . . . . . . 11-13 Class "B" Routes . . . . . . . . . . . . . . . . . . . . . . . . 11-14 Class "C" Routes . . . . . . . . . . . . . . . . . . . . . . . . 11-15 ' Road.Use Permits . . . . . . . . . . . . . . . . . . . . . . . . . II-21 Operation of Regulated Routes . . . . . . . . . . . . . 11-27 E HTR Signs . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-28 PART III-Role of the Military . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 111-1 PART IV-Nuclear Radiation Hazards to Highway Transportation. . . . . . IV-1 PART V-Evacuation Planning for Natural Disasters. Technological Hazards and Nuclear Attack . . . . . . . . . . . . . . . . . . . . . . . . . . . V-1 Chapter I-An Overview to Evacuation . . . . . . . . . . . . . . . . . . . V-1 Chapter II-Natural Disasters, Technological Hazards and Nuclear Attack . . . . . . . . . . . . . . . . . . . . . . . . . . V-2 i 111 u.. .
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f s % '. APPENDIXE8 Pne Appendix A-Executive Order 11490, October 30, 1969 Assigning Emergency Preparedness Functions to Federal Departments and A gen cies ' . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . A-1
.- Appendix- B-Army Regulation 55 355, Paragraph 109008 Highway Traffic Regulation, October 24,1972 ...................... ...... B-1 Appendix C-Army Regulation 55-80, Section III. Chapter 4 Special ' Defense Use of Public Highways, December 15,1982. . . . . . . . . . . . . . . . C Appendix D-Selected Federal Highway Administration Emergency Standby Orders, July 11,1983................................... D-1
- 1. 4 7 21 Protection of Critical Highway Facilities Against Sabotage . . D-1 ,
- 2. 4 7 2 2 Operational Status Reporting . . . . . . . . . . . . . . . . . . . . . . . . . . . D 3. 4 7 2 3 Damage Assessment and Reporting . . . . . . . . . . . . . . . . . . . . . . D-9
- 4. 4 7 2 4 Establishment of Emergency Highway Traffic Regulacion (E HTR) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . D-21 List of Figures Page Figure 1-Map showing application of emergency _ highway traffic regulation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . - I-3 Figure 2-Police " chain of command" for emergency highway traffic regul8 tion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1-11 Figure 3-Diagrammatic representation of a typical EHTR organization and operation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 Figure 4-Roadside EHTR control post operation'on a high-volume regulated class "C" route . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-9 Figure 5-Road use permit form . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11-22 Figure 6-ENTR daily road. space allocation sheet . . . . . . . . . . . . . . . . . . . II-26 L
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e t GLOSSARY t
" Administrator" means the Federal Highway- assigned to the various Federal departments /-
Administrator. agencies and for providing natural disaster pre.
" Areas of unrestricted travel" means those areas puedness planning assistance to State and local designated as being safe for travel. Traffic regu. "*"*'"I"'
l lation (class "B" or class "C") may or may not be " Highways" means all Federal, State, city, local,
. in effect. and other highways, roads, streets, bridges, 'l Blocked routes" means highways which are im- tunnels, and appurtenant structures.
passable as a result of physical damage or a radi. " Highway Users representative" means- personnel ation level so high that the highway is not usable from trucking associations, State public utility , as a class "A" route, commissions or volunteers from any class of
" Clear routes" means highways which are available
. highway users acceptable to the State EHTR to unrestricted use.
organization. This group will augment, as nee-essary, the personnel staffing State emergency
" District emergency highway trqpe center" means highway traffic regulation centers, district the centers designated by a State as subordinate centers and sector centers, to the State EHTR center and responsible for an
" Liaison representatives" means military and appropriate part of the State supervised by the emergency services representatives at the State State EHTR center. The title of these centers traffic regulation center, and 3.t district and varies from State to State depending on the State sector centers as necessary. They will consult agency responsible for emergency highway traffic regulation. with and submit claims to the highway depart-ment, or other State agency responsible for emer.
"Emergew;y highway tra,@c regulation" means a gency highway traffic regulation, for highway -
system of traffic management and control devised space or for the temporary establishment of class to regulate the use of highways and to expedite "B" routes as required by their respective . and facilitate essential movements during a agencies. national defense emergency or natural disaster. " National defense emergency" means all adverse -
" Emergency highway teq5c regulation boundaries" situations affecting the Nations security so means the boundaries of those areas falling within recognized by the President, the Congress, or other the primary jurisdiction of the State traffic regu- competent authority, lation center, . the district traffic regulation " Natural disaster" means any act of nature which center, and the traffic regulation sector. The is or threatens to be of such severity and magni-area of the district center is explained in each tude as to cause extensive loss of life, personal (
State plan and differs from State to State. The injury and/or damage tolor loss of property, area of jurisdiction of a sector center is that poruon of an emergency highway traffic regula- "Pemetime Maar a&#Mdm" means an tion district which is assigned to the sector by accident or incident caused by the accidental the State highway department. release of radiological material from a fixed nuclear facility or as a result of a transporta.
" Emergency highway traffic regulation sector tion mishap or from a deliberate act of center" means the centers designated by the sabotage.
State as subordinate to the district EHTR center " Police" means any duly constituted peace officer and responsible for an appropnate part of the-engaged in law enforcement at the State, county, State supervised by the district EHTR centers. parish, or municipal level. h " Emergency highway traffic regulation posts" " Radiological defense" (RADEF) means the orga-means control points at each end of or along nized effort, through warning, detection, and pre-regulated routes, for the purpose of controlling ventative and remedial measures to minimize the the flow of traffic onto or on the route, checking effects of nuclear radiation on people and road.use permits, and advising occupants of resources. vehicles of any danger from radioactive fallout.
" Regulated routes" means highways which must be " Federal Emergency Management Agency" is the subjected to regulation because of hazardous Agency at the national level responsible for dis- conditions, special uses, or limited capacity in l charging the emergency preparedness functions relation to demand.
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" Regulated routes-class "A" means highways which " Road use permit " means a legal permit form issued to 1 lie within an area contaminated by radioactivity authorize speci5c travel over a designated regulated I that is hazardous to the life and health of high _ route during a specified time. (Some State plans use way users. These roads may be used with special the synonymous term " road-space permits").
guidance precautions and practices. " State emergency highway traffic regulation l center" means the center designated by a State as
,, Regulated routes-class "B" means highways which the agency responsible for overall supenision of are temporarily reserved exclusively for military or emergency highway traffic regulatior with,m the civil defense movements, State.
" Regulated routes-class "C" ..,eans highways which " State Highway Agency" means that State agency are determined to have, or which are expected to which is responsible for maintaining the various ,
develop, critical traffic capacity restrictions, and on highway systems within that State. which travel is generally limited to holders of " State police" means highway patrol, State highway
" road use permits." police, and State troopers.
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v x , Part i GENERAL BACKGROUND OF EMERGENCY HIGHWAY TRAFFIC REGULATION (EHTR) CHAPTER l-INTRODUCTION . Our nation is composed of people on wheels. For Administration) to devise a nationwide system of transportation, they are accustomed to using cars. emergency highway traffic regulation for imple-tracks, or buses anytime they choose, traveling as far mentation by eMlian authorities. Under this system as they wish by whatever route they desire. As long the Bureau furnished guidance to the States. in-achieving a readiness to perform emergency highway as drivers conform to the rules of the road no one nor-mally interferes with their movement nor challenges traffic regulation, and to coordinate this function their right to be on the highway. These travelers between the various States, including the planning . for Interstate directed movements by highway. In the . l accept certain restrictions in emergencies when it is necessary for police to block off local areas in the furtherance of this program, the Federal Highway vicinity of accidents and fires, for example. They also Administration has entered into an agreement with each of the 50 States, the District of Columbia and tacitly accept detoars established by highway authorities to guide them around road construction, Puerto Rico which, among other things, requires each washouts, and mountain slides. In brief, the highway of those governments to prepare emergency highway traveler generally.will accept control measures that traffic regulation plans and to update them when necessary. Accordingly, emergency highway traffic are plainly and understandably presented for his benefit or safety, but he has no tolerance for any regulation plans have been prepared following the artificial restrictions to his freedom to go where or procedures covered in this Guide. , when he wants. Particularly repugnant would be any Briefly, the State EHTR plans emision the system imposed upon him which would require him t allocation of road space for evacuation purposes, and obtain a permit from government authorities to make in a post attack period, a survey of the road and ' any unusual highway trip. highway network for physical damage and radiation These are the attitudes of Americans in peacetime. hazard. Barricades and warning signs would be But what about a wartime or a natural disaster situa- placed where needed on those roads. which are tion? Transportation assumes more critical propor- deemed to be hazardous. Following this, estimates tions. Inimediately the traveler thmka in tens of would be made of potential traffic demands and the carpools, and gas and tire rationing which were en- traffic-carrying capacities of facilities remaining -i dured in World War II. He reluctantly accepts the m' avalable for use. If emergency highway traffic evitability of a repetition of such control measures. regulation was deemed necessary in .the post-There are other problems, however, which Americans emergency period, road use permits would be issued did not have to face. The United States was not under for traffic movements on routes which otherwise attack and nuclear weapons and radiological hasards would be heavily congested. These activities would be were not a problem. At Dunkirk, the British faced conducted by the State EHTR organization. disaster when bordes of refugus clogged roads and Regulation of traffic on the road would be immobilized troopt Transportation of essential accomplished at strategic checkpom, t (posts) on each material and persons! needed top priority. Out of regulated route mtion. necessity a system of traffic regulations was in, ) stituted and practiced durmg World War II by the It is a basic EHTR principle to allow as much as British in North Africa and by the allies in Europe. possible unregulated traffic to use existing facilities The United States Army also, by necessity, devised a during both the pre-and post-emergency periods. similar system called by the military " highway traffic Regulation would be instituted only where, and for as regulation." long as necessary. The State organization would l Defense officials foresaw a need for highway traffic necessarily continuously adapt and modify its regulation in the United States in the event of a operations to meet the constantly changing situation. 1 national defense emergency, and requested the then For emergency situations,' plans would have to be Bureau of Public Roads (now the Federal Highway developed for an orderly movement of traffic. The I1 L _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _
_ -. . -- - = . - - - - - -- --- --
,a emergency highway traffic regulation operation must blocked or closed. Some may be wholly reserved for '
involve a close working, three party team as follows: emergency services or military operations. And on i
~ I. State Highway Agency-Assisted by local some, rationing of road space will probably be emergency service agencies or governmental required in order to give appropriate priority to o
officials, would establish and sign evacuation routes, traffic movements essential to survival of the establish and support as needed Traffic Control population and to restoration and maintenance of l Posts, off. highway holding areas for light and heavy industry and the national economy. Some indication L ; vehicles, maintain traffic counts on essential of the effects of a nuclear attack on our highway L highways, assess damage to State and local highways network, and the regulation that would be required to l - as required, estimate traffic demand and traffic- meet traffic needs, is illustrated in figure 1. carrying capacity of usable highways, develop and Even from this brief m, troductory resume it is . , q maintain a statewide RADEF system for self support evident that highway traffic regulation in a national I and develop emergency response plans to cope with defense emergency, m, these United States, may 1
. n:tural or man made disasters affecting the State mdeed be a herculean undertakmg. Under extreme -{
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- conditions brought about by a massive nuclear attack.
t II, Highway User Orgam,zations-This group could it is possible that as many as 100.000 persons might be. < L consist of personnel from the State's Public Utilities engaged, during a considerable period of time, in the Commission (Commerce Commission, Public Service struggle to keep essential highway transportation Commission, etc.) or from highway user from costly ecngestion and complete stagnation. The organizations such as the various trucking real eventuality, if it should come, may not attain the assocations, for example. For simplicity throughout maximum possible anticipated scale but prudence the remainder of this Guide, this member of the three- dictates that planning, organization, preparation, and party team will be referred to as the " highway the recruitment and training of personnel for users,, emergency highway traffic regulation must be rapidly ' ;Their primary assignment would be to make undertaken and carried forward until we have reached a full state of readmess. The only alternative is chaos. periodic estimates of potential commercial traffic movements and, under the supervision of the EHTR The nature, scope, and operation of emergency center to which assigned, assist in issuing road use highway traffic regulation is discussed at some length Permits, in this Guide. This publication has been coordinated with the Office of Emergency Transportation, the III State Police-Assisted by local police Department of the Army, the Emergency organizations as needed, the police would actually Preparedness Committee of 'the American control the regulated traffic movements that have Association of State Highway and Transportation been authorized by the State EHTR organization. Officials (AASHTO), Federal Emergency In close association with the threeparty team Management Agency (FEMA), and the International '
. would- be liaison representatives of the local Association of Chiefs of Police.
emergency services organisation and of the military The orgmal draft edition of this Guide was designed - services. The Federal Highway Administration, to help the States prepare ' plans which would work identified hereafter as FHWA, while playing an effectively, individually and collectively. The function important role in development of emergency highway of this revised Guide is twodold. First, since the traffic regulation plans and preparedness, would have Guide has been incorporated by reference in order discretionary functions in the actual operation; FHPM 44 2 4, it will serve as a tool to aid in the probably only that of coordination among the States updating of the State's plan through the publication where and when needed. The Office of Emergency Transportation is the emergency planning of changing national policies and programs. Secondly, this Guide, when used in conjunction with organisation in the Of5ce of Research and Special the State plans, will serve as a logical and effective Program - Administration that represents the Department of Transportation in this area. Its aid for local level emergency highway traffic regulation training programs. It is obvious that in functions are summarssed on page I 8. The role of the times of catastrophe, even more than in peacetime, military in EHTR is explained in Part III of this Guide. the needs of the nation and its people know no
- political boundaries or highway jurisdictions. All It is expected that for an extended period following available roads and streets must be used to best !
an enemy attack, normally available highway traffic. advantage as a continuous, coordinated transporta-carrying capacity may be greatly reduced in many tion network. If highways are the arteries of our areas. At the same time transport demand for nation in time of peace, they are more so in time of essential needs may increase. Some routes could be emergency. I2
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e i CHAPTER ll-ORIGIN AND EVOLUTION The emergency highway traffic regulation program an emergency highway traffic regulation program. In as it is now conceived and developed is not a 1962 AASHTO approved the participation of the revolutionary but rather an evolutionary program. A highway users as members of the EHTR team and in brief account of its development is presented here as 1964 the International Association of Chiefs of Police matter of interest. solicited the support and cooperation of police Since its inception, the FHWA has recognized the officers throughout the country. strategic importance of our highways in relation to The Federal Highway Administration position in the national defense and in this regard has emergency operations was formally reaffirmed in consistently worked closely with the military 1969. Executive Order 11490 (Appendix A) assigning establishment. THWA had also sought and obtained emergency preparedness functions to Federal
' the full cooperation of all the State highway departments and agencies, directed the Secretary of departments in helping to determine and meet the Transportation to * . .devdop a capability to carry highway needs of the national defense, out, the transportation operating responsibilities Consideration of highway needs of the national assigned to the Department, including but not limited defense, howevet', was limited for many years to t0* -
concern for provision of adequate routes for military Emergency resource management of all Federal, use and war production aervice. Enemy invasion was State, city, local, and other highways, roads, considered almost inconceivable: air, sea, or sabotage streets, bridges, tunnels, and appurtenant cttacks were visualized as possibly heavy but structures, including: presumably localized. The vital importance of an , organization program for highway traffic rsgulation (a) the adaptation, development, constniction, in an emergency was forcibly brought home by the reconstruction, and maintenance of the Nation s congestion on the refugee choked roads of Europe in highway and street systems to meet emergency the early part of World War II. Subsequently, requirements; and highway traffic regulation became a wartime (b) The regulation of highway traffic in an commonplace. emergency through a national program ir. After World War II, however, the subject was cooperation with all Federal, State, and loca: given low priority, even though emergency readiness governmental units concerned to assure efficient planning in the thermonuclear age was authorized by and safe utilization of available road space." the Congress in the Civil Defense Act of 1950, in The Secutary of Transportation delegated the which FHWA, by Presidential Order, was assigned above and other highway related emergency an advisory role, responsibilities to the FHWA. This Administration Interest picked up in 1967 when the American then formally stated its emergency highway traffic Association of State Highway and Transportation regulation responsibilities, with the approval of the Officials (AASHTO) promised the cooperation of the Secretary, in a brief statement which appears in State highway departments. In 1958, at the FHWA Order 4 7 2 4, Emergency Standby Order-recommendation of the Secretary of Defense, FHWA Establishment of Emergency Highway Traffic was formally assigned responsibility for developing Regulation (EHTR)(Appendix D). 1-4
3 CHAPTER lil-EMERGENCY HIGHWAY TRAFFIC REGULATION IN THE EMERGENCY PLANNING FIELD y Advanced planning, in addition to developing an tified as a resource management program in Chapter ; EHTR organization and operations plan there should 6 of the National Plan for Emergency Preparedness 1 be advanced planning of a network of controlled and is not a civil defense program. i highways. Although routes requiring EHTR cannot An understanding of the time frame relationship be determmed until an emergency occurs, use of between State government. large scale emergency routes under EHTR can be analyzed and planned in activites and EHTR will be helpful in understanding advance. Routes which have a high probability and where the latter fits in the emergency planning Seld, feasibility for EHTR use can be identined by if a nuclear attack should take place, the program considerm, g their location, survivability, esse of would not be activated until radiation levels have restoranon and functional, service and strategic decayed to the point where sheher emergence 'is characteristics. Potential bottlenecks, barriers and feas ble. As a resource-oriented program, the EHTR l other potential problems can be analyzed m advance post emergency program will commence when the I to speed restoration and EHTR. Control points can State emergency resource management plan 1 be planned, insuring sufficient staging capacity, turn- becomes operative in support of FEMA. l arounds, permit issue accommodations, etc. Re- i fueling and other necessary services can also be In view of the above information and the agreement ; planned, so that when the emergency occurs EHTR signed by the States to cooperate in emergency can be activated rapidly and with minimum effort. preparedness planning for the highway resources, , virtually every State has prepared separately bound l The broad 6 eld of civil emergency planning EHTR plans. There are, however, other reasons why includes, from the point of view of enemy attack, two it is desirable to have separate plans. Most of the-major areas: population protection and emergency reasons are related to the fact that the users of the 1 resource management. plan will not be concerned with other portions of a The Federal Emergency Management Agency larger resource management document but will have ! (FEMA) administers the United States emergency a specialized interest in the highway traffic regulation l preparedness Program. In cooperation with State and phase. Separate plans facilitate training and make for l local governments, FEMA provides planmng guidance easier emergency use at relocation sites, and Snancial assistance. In turn, State and local Also, the activau.on of a separate plan is simpler governments develop Populanon Protection Plans than the activauon of a separate part of a larger plan. utilizing the concept of Integrated Emergency Management Systems (IEMS). This approach is A uparate p!.an will facilitate the execution of FHWA designed to develop generic plans and functional Order 4 7 2 4. Emergency Standby Order, emergency capabilities for natural disasters, Establishment of Emergency Highway Traffic technological hazards and nuclear attack. The Regulation (EHTR). In addition, the existence of 1 "parate State EHTR plans will greatly assist the objectives of the program are to save lives and protect FHWA in the discharge of its responsibilities under property threatened by such disasters and haaards. This program approach stresses preparedness Section 1308 of Executive Order 11490.
. t snta common to all emergencies and recogmses A copy of each State EHTR plan must be I u.s elements unique to specific types of emergencia, maintained at the national relocation site of the i Response and recovery capabilities common to most Federal Highway Administration for use in the event emergencies are warning, command and control, of a national defense emergency. Also, the Military.
resource management, firefighting, search and rescue, Traffic Management Command, Department of the- i evacuation, protocuve sheltering, lodgmg and feedmg, Army, has directed that each Army headquarters maintenance of law and order, provision of health and commander develop a military EHTR plan and ) medical services and continuity of government. cooperate in the development of State EHTR plans. Emergency resource management is concerned It is the responsibility of the FHWA, Washington Of6ce, to furnish copies of all approved State EHTR with the management of resources including plans to each Army Headquarters Commander, l communications, construction, housmg, economic stabilisation, electric power, health, transportation It is realised that in most of the States the resource and others. State resource management plans were management functions and the population protection , prepared in accordance with guidelines issued by functions are administered by the same i FEMA, and these are separate and distinct from State office. This, of course, is the prerogative of population protection. The EHTR program is iden- the Governor and naturally no issue is taken with I5
" this arrangement. It followsi. therefore, that the, - t F however, it is essential that the EHTR plans be so Federal Highway Administrate r has no preference as m identified and bound separately for the reasons to who performs.these funedons at State level;; previously stated.
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i CHAPTER IV-EMERGENCY HIGHWAY TRAFFIC REGULATION AND NATURAL DISASTERS Emergency highway traf6c regulation could likely Repair funds to repair roads on the State- I be a necessity following a natural disaster (earthquake, administered Federal. aid system. Another $140 i hurricane, flood or volcanic eruption) or a million was obligated to repair other Federal roads. j
, technological hazard (hazardous materials During the same period, the Federal Emergency j transportation accident or nuclear power plant Management Agency provided State and local !
accident). The degree of such regulation will depend on governments with assistance to repair over $200 the magnitude and extent of the disaster. Each State million of damage on non Federal aid system roads. j plan should contain a provision for the use of EHTR These figures do not include the multi million dollars 1 during natural disasters and many do. For example, in in damages that did not qualify for Federal the Illinois EHTR plan it states that each Highway assistance. Yet all required some degree of EHTR. district has prepared a distnet "EHTR plan for a natural disaster." These detailed plans contain an As in Maryland, the degree of EHTR required alerting system for various emergencies, names and depended on the severity and extent of the disaster. addresses of key personnel for different areas of the They ranged from localized storms causing localized district, a map and a listing of storage locations with damage to cataclysmic events causing widespread material and equipment available at each, a listing of damage. Hurricane Agnes in 1972 and the Mount St. mobile radios and call numbers by area, the location of Helers eruption in 1980 are two major disasters stockpiles of signs and barricades, and a worthy of note. The Mount St. Helens eruption not < comprehensive listing of news media capable of only closed roads, bridges, and highways in the ! disseminating information to the public. These district immediate vicinity, but also closed roads and plans were made m, cooperation with the State pohce highways from Oregon and Washington to Idaho and and the heads of the leading communities in the Montana by spewing ash throughout the Northwest. district. Hurricane Agnes was more damagmg. Causing more The Louisiana EHTR plan aho contains a section on recorded damage to public and private property than . J emergency highway traffic regulation durmg natural any other storm in U.S. history, Agnes damaged and disasters. This plan refers the reader to the destroyed almost 1200 bridges in the four most-Department of Transportation and Development's affected States. In Pennsylvania alone, 718 bndges Civil Defense Plan for the detailed procedures to be were either destroyed or knocked out of service. l followed. In addition to extraordinary emergency regulations l- The Maryland Plan contains the following reference naded to control traffic on or around damaged roads 1 to natural disasters:
"Following natural disasters such as floods, and bridges, emergency regulations were also needed l for the movement of special use vehicles to Mt. St.
L hurricanes, etc., an immediate survey of the road l and street networks will be made to determme the Helens' and Agnes' disaster sites. Oversize and extent of physical . Necessary signs sad overweight dredgmg equipment had to be quickly barricade will be e to pmteet and remute moved from Florida to Washington to dredge ash-traf5c... clogged rivers that threatened to destroy major Experience to date indicatus that damage will bridges.18,500 ovetdied mobile homes had to be Pmbably be limited to an area assigned to a district o engmeer. The district engmeer has the responsibility 4 cklY i moved thrcm 37 States to those that - Hurricane Agnes a. tt homeless. Special permit I for survey of physical damage and the initiation of l repairs to place tb roads affected back into service. h*adas, relief from length, width, and weight District highway personnel and equipment are restrictions on vehicles, scheduling of allowable available for the above action. This policy will travel times, and coordination of flagmen and escort continue in the future. vehicles were required in each State. In the event that a large part of the State is stricken, the Maryland EHTR plan will be placed in Natural disaster EHTR in States as diverse as effect to the degree felt necessary. The activation of Alaska, Florida, North Dakota, and Pennsylvania will the EHTR plan could from fullimplementation vary greatly. It is not feasible, therefore, to spell out to partial (Le., sector or ) activption. The ex- detailed guidelines for this type of regulation in this tent and severity of the disaster will dictate to what publication. Because the size, topography, degree the plan is implemented. population, and highway system of each State varies Federal assistance to repair highways and roads m. so I'*"tly, this type of regulation is better left to the the 5 year period 19781982 individual State emergency traffic regulation EHTR in pw.pe. From F 78mah place to FY 82,the theneed forplannmg officials. FHWA allocated almost $660 million of Emergency I7
CH APTER V-ORBANIZATIONS INVOLVED , IN EMERGENCY PLANNING-THE FEDERAL EMERGENCY MANAGEMENT THE OFFICE OF EMERGENCY AGENCY TRANSPORTATION (CET) The Federal Emergency ' Management Agency The OET currently located in the Research and 1 (FEMA) is the focal point within the Federal Special Programs Administration of the Department Government for emergency management activities of Transportation, is solely dedicated to emergency relating to both peace and war. FEMA works closely preparedness. It is the primary staff element of DOT with those who are involved in emergency . engaged in the development, coordination, and management at all levels of government and in the review of policies, plans and programs for attaining
. private sector to increase our Nation's preparedness and maintaining a high state of emergency to respond to emergencies of all types. FEMA's preparedness. With the active participation of mission is a humanitarian one-to save lives, to appropriate Secretarial offices, operating '
reduce suffering and loss of property, and to provide administrations external agencies, and industry, the en improved basis . for recovery from natural, OET oversees the effective discharge of the technological and war related emergencies. Secretary's responsibilities in emergencies. The OET FEMA's mandate from the President and the ensures that emergency plans are develped and an Congress requires that it prepare for and respond to acceptable state of readiness is achieved in each the full range of emergencies. This includes such transportation operating and support agency. hazards as earthquakes, floods, hurricanes, tornadoes Should a nuclear attack on our nation occur, the and large scale hazardous materials incidents. It also OET as a planning agency would probably be includes conventional war and the possibility of absorbed by the Department of Transportation
. nuclear weapon threats, attacks, or accidents as they Emergency Organization which would exercise . affect the civilian sector of our society. Whatever the executive management of the emergency functions of l extent of the destruction caused by any of these the Department, under the direction of the Secretary -
, events, FEMA's mandate requires that it endeavor to of Transportation. l assure that the resources of the Nation are brought to - bear effectively to cope.with such contingencies. THE FEDERAL HIGHWAY Since many emergencies are best dealt with at the ADMINISTRATION (FHWA) State and local-level, FEMA supports community ggy efforts by providing resources and guidance, always the Office of Road Inquiry, was established in 1893. However, the national influence of it and successor v rwhelms oc ca il s. FEb's role L upon the simple wisdom that it is prudent to be agencies was not fully developed until Congress L prepared to do the best one can regardless of the passed the 1916 Federal Aid Road Act. This statute, I ' nature and severity of the emergency situation. as amended, established the present pattern of , , Federal assistance to States for highway construction , and improvement. The landmark impact of this Act FEMA's activities include: was, however, the requirement that in order for each e Coordinating civil emergency preparedness for State to receive Federal-sid funds it must have a , nuclear attack, nuclear power plant accidents, and highway department with adequate powers, suitably ' nuclear weapons accidents. equipped ~and organized to effectively carry out the duties required by this Act. This requirement e Ensuring continuity of government and coor- generated a strong engineering skill capable of dinating mobilization of resources during national responding to the steadily expanding national : security emergencies, highway program. {
- Supporting State and local governments in a wide The Federal aid program is a cooperative one. The range : of disaster planning, preparedness, States choose the systems of routes for development, mitigation, response, and recovery efforts. select and plan the individual projects to be built each j e Coordinating Federal aid for presidentially de- 7""#' ""#' "" " ""
supervise the construction contracts. The States pay l clared disasters and emergencies. for the work as it progresses and then claim I e Providing training and education to enhance the reimbursement from the Federal Government for the ! professional development of Federal, State, and Federal aid share of the cost. The function of the i local emergency managers. FHWA is to admmister this grant in aid program and l l i l I8 l J
L :. i furnish guidance, control and approval, with respect administrators throughout the world; to bring about to the Snancial obligation of the Government, in cach recruitment and training of qualified persons: and to ; succeeding step of the process. encourage adherence of a!! police officers to high professional standards of performance and conduct. The Federalaid highway program operates on a pay as you go bahis and its cost is paid by highway Traditionally in the forefront of efforts to improve i users. Most of the Federal highway activities are and professionalize police service, the IACP has financed from the Highway Trust Fund, supported provided assistan:e and advice to a large number of entirely by Federal road use taxes. The Federal tax police agencies, State criminal justice planning on motor fuel, and certain other highway related councils, congressional committees an t vnidential taxes, go into the Highway Trust Fund and provide commissions. Because of its broad reewation the money for the Federal payments to the States. (more than 14,000 members) this associatien u is the The annual amounts of Federal highway funds to be logical group to be called upon for collaboration in made available (authorized) to the States are set by developing concepts and general plans for emergency , Congress, and the funds so authorized are divided highway traffic regulation. The IACP prepared the ! (apportioned) among the States according to methods original text of the section of this Guide which is prescribed by law. concerned with the police function in emergency highway traffic regulation. The cooperative relationship between the States and the FHWA which has developed over the years is often cited as a model of Federal State cooperation. THE AMERICAN ASSOCIATION OF STATE HIGHWAY AND TRANSPORTATION OFFICIALS This relationship is a logical basis for assigning the guidance and coordination of emergency highway (AASHTO) traffic regulation to this Admmistration. In this spirit AASHTO is organized to foster the development, of cooperation, the responsibility for the direct operation and maintenance of a nationwide emergency regulation of highway traffic has been integrated system of highways, and to cooperate with ' accepted by the States and each State has prepared a other appropriate agencies in considering matters of detailed plan explaining how emergency highway mutual interest with the other modes of traffic regulation will be administered. These State transportation in serving the public need. To this end, plans have been coordinated by the FHWA in the highway offices of all the States, Puerto Rico, the accordance with national guidelines. This program is, District of Columbia, and the FHWA have pledged therefore, decentralised and in the event of an their cooperatiom to develop and improve methods of emergency the role of this Administration would administration, planning, research, design, consist of providing advice and assistance to the construction, maintenance and operation of highways States as requested and coordination between the to provide the efficient, safe and effective States as necessary, to provide for the smooth transportation of persons and goods in support of , functioning of this program. national goals and objectives; to study all problems connected with highway transport and its interaction with other modes of transportation; to counsel with THEINTERNATIONAL ASSOCIATION Congress on highway legislation; to develop OF CHIEFS OF POLICE (lACP) technical, =Iminbative and highway operational The IACP serves the law enforcement profession . standards and policies needed to carry out the and the public interest by advancing the art of police highway program. service. Its staff of police management consultants, AASHTO has a special group within the standing educators and trainere, highway safety consultants, Committee for Maintenance to deal with Emergency researchers, and systems analysts develop and Preparedness matters. It is the function of this disseminate improved d=lai*stive, Phnical, and committee to advise and assist the FHWA in the operational practices and promote their use in police development of plans, procedures and training in the work. Its aims are to foster police cooperation and the areas covered by the Emergency Standby Orders exchange of information and experience among police which appear in Appendix D. I9 L
CHAPTER Vl-ORGANIZATIONS INVOLVED
. IN EHTR OPERATIONS - '
STATE HIGHWAY DEPARTMENTS dinate military movements, arrange for the - establishment, when appropriate, of routes which will ' Every State has a transportation / highway department, although the name and nature of the be reserved for the exclusive use of the military (for Agency vary from State to State. Because of their the duration of the movement) and/or effectuate the long experience in cooperating with the Federal issuance of road.use permits for military movements. Government, their broad operations and large corps Currently being implemented in a few States is a of trained personnel, and their considerable prototype program identified as Mobilization Control managerial and techm, cal capability, the State (MOBCON) which will plan, coordinate, and resolve highway organizations generally have been assigned poss ble conflicts resulting from military moves responsibility by the Governors of their respective during mobilization periods. MOBCON provides for a States for emergency highway traffic regulauon. In Defense Movement Coordinator (DMC)in each State some cases, however, another State agency such as who will be responsible for developing a master the State police has been assigned this responsibility, movement plan for any unit moves originating in or (in this Guide, when State highway department , is traversing the State. The DMC will work closely with mentioned it is intended to refer to the State agency appropriate civil counterparts having responsibility responsible for emergency highway traffic for the operations and control of the highways. rGgulation, unless the context indicates otherwise). In MOBCON should eventually be m, tegiated into each preparing fcr and operating emergency highway State's EHTR plan. The DMC will act as the senior traffic regulation the State enlists the cooperation military representative m each of the various State and assistance of county and local rural and urban EHTR ogranizations. Implementation of the , highway departments as necessary, MOBCON program nau,onally should occur by 1989. l Until such time as MOBCON is fully operational l- With only a few exceptions, each State highway within a State, the role of the military in EHTR will L department has divided its State into working areas remain as explained in PART HI. ! for purposes of administration and operation. In most - i of the States, these areas are identified as districts or STATE AND LOCAL POLICE l divisions. (In this Guide they are called districts ORGANIZATIONS
- i. hereafter, but divisions should be understood where The restoration and regulation of traffic in an
! applicable.) emergency is the responsibility of each State. Because the Governor has the prerogative of These highway districts usually comprise several- designating the agency having the authority to direct counties and many are coextensive with county lines. emergency traffic supervision, the police Each has a distiict central office responsible for all or responsibility may vary from State to State, aad the
. many of the normal State highway operations in the Governor will normally delegate the authority for area, including road location, design, construction, statewide police emergency operations to the maintenance and repair, traffic signing and commanding officer of the State police agency. Since signalization. These districts are usually further EHTR is but one of his many duties, the State police divided into smaller administrative areas which are commander would usually designate another high.
I responsible for highway maintenance, etc. The logical rankmg State police officer to represent and direct subdivision, therefore, for EHTR operations is the police operations from the State EHTR center. State highway department district and subordinate offices. Whether police have full or only partial responsibility for enforcing emergency highway traffic regulation, the magnitude of the problems involved requires the full cooperation and DEPARTMENT OF THE ARMY coordinated efforts of many agencies and indviduals.
- The Department of the Army represents the Figure 2 illustrates the police " chain of command" military services for the Department of the Defense for purpose-of assigning responsibility, delegating in the development of the concepts and plans for authority and establishing lines of communication in emergency highway traffic regulation. The Army the EHTR organization.
' EHTR plans provide for the assignment of a team to It is important to note the implications of the chain each State E?ITR center when activated. Upon of command illustrated in Figure 2. Although it activation of these centers, these teams will coor. represents the most logical approach to performance I.10
3 of the police role, the succ:ss of the mission is solely The decentralized nsture of State police operations. dependent upon the complete devotion of all police communications capability, proximity in some cases agencies involved to a singular purpose. There must to State highway offices and garages, familiarity with be coordination and cooperation among State, county, routes throughout the State and their experience in and municipal police. Each must make his plans to handling areawide situations which frequently cross mesh with the total effort. All officers need to be well jurisdictional lines makes them the logical ' and uniformly trained in highway traffic regulation organization to assume responsibility for police-during an emergency. Police have many respon- highway traffic regulation command at the EHTR sibilities. A commanding officer must predetermine district level. Below this echelon, command what portion of his force will be assigned to emer-responsibility may be assigned to State, county, or gency highway traffic regulation duties and decide in conjunction with EHTR officials just what those municipal police depending upon the availability of duties are to be. A well coordinated organizational, police manpower and the location of the EHTR < planning, training, and operating effort may be sectors and posts. The police function at an EHTR enhanced by using already existing groups such as sector established in or near a metropolitan area State associations of chiefs of police or the enforce- would normally be delegated to a county or municipal ment committee of a State safety council, police officer. This will also be applicable to EHTR posts serving the sector area. This situation does not GOVERNOR preclude the probability that State police or officers ' of other jurisdictions would be subordinate to such a l command, STATE EMERGENCY OPERATING CENTER HIGHWAY USER OR REGULATORY COMMISSIONS ; COMMANDING OFFICER STATE POLICE Historically the States have accepted the highway user representative as the third member of the EHTR I team to work with the highway department and the Police as staff members of the EHTR organization. i EMERGENCY M st State EHTR plans contain an explanation of i HIGHWAY TRAFFIC how representatives of State highway user groups REGULATION CENTER will function as part of the EHTR orgamzation. As STATE POLICE highway users, it is expected that the trucking industry will be more than willing to become an activo I participant in the EHTR organization and participate in peacetime training exercises designed to DISTRICT EHTR familiarme trainees with EHTR operations. CENTER within each State government is an organization STATE POLICE which, among other things, regulates the intrastate trucking industry. The titles of these organnations vary from State to State among which are Public Service Commission, Department of Motor. EHTR SECTOR Transportation, Commerce Commission, and Public Utilities Commission. Some States are considering STATE, COUNTY, OR using these orgamzations to discharge the highway MUNICIPAL POLICE user function in the EHTR organization. This concept ( ) g B has the obvious merit of enhsting the support of an existing full time organization of public employees. It la important that each State EHTR plan provide EHTR POST for the highway user function and the States should assure themselves that the organisation selected can STATE, COUNTY, OR be fully depended upon to participate should the need MUNICIPAL POLICE arise to activate the EHTR organization. This implies Figure 2 " Chain of Command" for Emergency a willingness to furmah more than a token < Highway Traffic Regulation participation in peacetime training exercises. 1 11 L
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y Part ll EMERGENCY HIGHWAY TRAFFIC REGULATION OPERATIONS CHAPTER l-FUNCTIONS, EQUIPMENT AND PERSONNEL OF EMERGENCY HIGHWAY TRAFFIC REGULATION CENTERS AND POSTS In case a national emergency is declared by either the heads or toplevel representatives of the , the President or the Congress of the United States, emergency highway traffic regulation organization.- all pertinent Federal emergency plans would be Under pre arranged emergency plans and assign-implemented. Certain Federal plans require ments, the Governor probably would invite to the individual, specific Presidential orders to become State emergency operating center representatives operative; but for the purpose of this Guide it is from those Federal, civil and military agencies that > assumed that State EHTR plans will become effective have emergency responsibilities. These individuals as required in a national emergency. would serve in liaison capacities between Federal and Statu operating centers. THE STATE EMERGENCY OPERATING Equipment
. CENTER Each State has a fully equipped hardened Introduction emergency site. Many States are currently using Each State has an emergency operating center these centers full time for peacetime activities with from which a minimum staff of key State officials the knowledge that, should a national emergency would implement emergency plans and carry on occur, the peacetime functions would terminate and essential governmental functions in the event of a emergency operations commence. The emergency national emergency, operating center would be augmented as required and become the focal point for coordination of emergency Functions operations. Whether or not the site is currently in use r not, each emergency operating center has facilities As soon as a national emergency is declared, the fr full time in shelter period operations. All ,
Governor of each State presumably will order the full nec88Stry 81** ping, cooking, sanitary facilities,' office ! activation of his State emergency operating center, equipment, food supplies, medical stores, water and
- This center, planned and organized by the State civil e stockpiled and rotated at predetermmed preparedness agency, would thereafter be exactly
- what its name implies; a fallout protected center for emergency operation of the State government.
CommunicaHons q The State emergency operating center would be the focal point for receiving and disseminating all kinds Without adequate communications it is obvious that . of information; for contact with the Federal an emergency operating center would be unable to l Government; for communication with the general effectively carry out its mission. Most such State l public; and for issuance of directives relating to centers have redundant communication facilities, specific and general emergency functions and These vary, of course, from State to State. Some responsibilities assigned by established emergency centers, for example, have radio telegraph, radio , teletype, land.line teletype, voice radio, etc. In some j plans. The State operating center would determine when and which kinds of emergency procedures and cases, duplicate standby antennas are stockpiled for I activities would be undertaken; it would provide use in case a nuclear blast destroyed the existing ! information to, and direction of aid and relief for, the antenna field. Other States may have comparable but , State's surviving population. Most, if not all such less elaborate facilities. At any rate, it is abundantly l operations, including emergency highway traffic clear that each State has recognized the need for and regulation, would be carried out by previously has provided an adequate long range communication designated responsible State agencies, facility for use in both natural and nuclear disasters. Personnel THE ALTERNATE STATE EMERGENCY OPERATING CENTER The State em gency operating center would be utilized by the Governor and his advisors, the State Each State should have an established alternate civil preparedness director and his staff, and center equipped and available for use in case the representatives of the regular and emergency State primary emergency operating center and/or EHTR operating agencies. The latter logically would include Center has to be evacuated. 111 l
t THE STATE EHTM CENTER the best information possible for public consumption ' Imbn as it relates to highway traffic. It is essential that the Each State EHTR plan provMes for a State EHTR release of this information be coordinated with the center. The purpose of this center is to coordinate all State emergency operating center. The real test of a EHTR operations within the State. post emergency recovery is the effectiveness of communication with the surviving population. An J effective public information capability will insure ! Functions compliance with EHTR center policy and directives. The most important and largest EHTR office, since facilitate the safe and efficient evacuation of goods it will be the nerve center of the entire operation, is and people as well as the prompt and orderly ingress the State EHTR center. It would be the first ac- to disaster areas. It will help minimize further injury tivated after an enemy attack, or other emergency, to survivors and additional loss of life and property, and, if there is an early warning, it may be activated This important function of--public information in advance to provide for evacuation. The State capability would best be performed at the State ; EHTR center should be located as near as feasible to FHTR center which will be at the tip of a pyramid of the State emergency operating center, which will be mformation flowing to it from its subordinate centers the focal point of all State activities. The State EHTR and traffic regulation posta, j center preferably should be protected against blast The State EHTR center. upon activation would: ' and have an adequate radiological protection factor. (1) Identify and evaluate the availability and the The initial operation of the State EHTR center traffic carrying capacity of usable highways, roads would be to size up the statewide situation with and streets within the State, including all those respect to highways. Information would be available within areas of unrestricted travel and those that from the State emergency operating center after an can be opened to controlled use through con. enemy nuclear attack or other emergency as to the taminated areas, locations, intensities, and nature of the bomb strikes within the State and the surrounding region. Such m, - (2) Develop and maintain, in cooperation with the f:rmation, based on rapidly collected and perhaps State highway department, a State situation map - sketchy facts, and interpreted by means of showing damaged or destroyed. highways and . precalculated probabilities, should provide with fair highway facilities, and the radiation intensity along reliability the locations of " ground zeros,, of each highways, particularly those traversing con-blast. The probable extent of the area affected by taminated areas. This map would identify points heavy destruction and fire damage, and the area ex- showing H+1 radiation levels and/or actual posed to varying degrees of radioactive fallout and readings in accordance with Part IV of this Guide, contammation would be determined. Aerial radiological surveys may be requested through State or local emergency operating centers The State EHTR center would make final det(r. when sufficient data is not otherwise available.
- minations on all matters concerned with emergency highway traffic regulation. This center would direct (8) Make all information regardmg radiation l
l and coordinate the activities of district and sector levels avalable to the State radiological defense centers. The State EHTR center would effect all organization, and to the public. The release of this necessary coordination with adjommg States on information to the public should be coordinated matters of mutual concern, having recourse to the with the State emergency operating center. Federal Highway Administration for assistance in (4) Inform the public of highways closed by reason those instances where mutually satisfactory solutions of damage or radiation. cannot be developed. (5) Estimate traffic demand for essential Under the national emergency highway traffic movements for the entire ususbie highway net-regulation program each State has adapted the work. 3 diagr=* representation of a typical State
. EHTR organization illustrated in Figure 8. The selec. (6) Determine the percentage of highway traffic
! titn oflocations for the EHTR centers is a matter of capacity to be reserved at the State emergency great importance, for once an emergency arises those highway traffic regulation center for Interstate centers that are needed must be activated without traffic. delay and immediately put into full operation. (7) With assistance from district and sector One of the most difficult and yet most important centers, make periodic traffic counts on main functions to be performed by EHTR personnel is to routes to determine whether the traffic volume is acquire, assimilate, and appropriately disseminate approaching the capacity of the route. As the II2 l g
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GOVERNOR , I STATE ; Ep4ERGENCY ! OPERATING t CENTER I l r STATE TRANSPORTATION : ' REPRESENTATIVE I FEDERAL ! bg STATE AGENCIES j MILITARY i amm - um - am um e EHTR 0.E.T. ; sum use
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, i volume reaches the capacity of the route, take would not be needed immediately at the State EHTR i action to institute partial or complete traffic center; but all assigned and recruited staff should be l regulation of the route to ensure the movement of contacted at once. This will serve a dual purpose: it essential traffic, will put the entire staff on alert, either to come to the (8) Erect signs on routes through restricted and center or to standby; and it will establisb. at least for -1 unrestricted areas in accordance with this chapter, the moment, who is available and who is not. The j staff, especially key personnel, should be forewarned -1 (9) Prescribe maximum and minimum speeds in keeping with local conditions. Minimum speeds to contact the center on their own initiative if the'v l have not been contacted in a reasonable time.
would be prescribed for routes through radiological creas to reduce the radiation dosage to the driver The initial check and call up may show the need to and other occupants of the vehicle. It is realized summon to immediate duty some substitutes for key that the higher the speed (above 30 35 m.p.h.) the individuals who cannot be contacted. The center's lower the volume that can be handled, roster should include substitutes or alternates for this (10) Issue road use permits for the use of highway purpose, and they should be trained to assume their principals functions, space on regulated routes and' recognize permits issued in other States for single long trips involving use of highways within the State. Such travel will Personnel at the State EHTR center would be ; t responsible for the administration of emergency ; be allocated to that portion of reserved highway highway traffic regulation within the State. Each ; space as provided in paragraph (6) above. (For an State plan provides for this function and in most explanation of road.use permits see Part II, Chap, cases identifies this center as an emergency II.) operating center staffed with personnel from the (11) Assign to each regulated route, at the time it State highway department, the State police and,
, is established, an identifying number, letter, or when feasible, representatives from the highway name. The use of existing route numbers, letters, or users, names as shown on existing State highway road .
maps is strongly recommended. In urban and/or Since nly some of the personnel assigned to EHTR - metropolitan areas street names may be more activities would be in umform, suitable official appropriate than route numbers. The use of well- identification is reqmred for others. When available, known existing route numbers, letters, or street the State emergency identification card should be names, as modified by attack conditions, will lessen used. In addition, EHTR personne1 should probably
' the confusion which would arise were new numbers be provided with a quick identification device such as or other identification suddenly presented to a an armband or badge with a readily recognizable
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public suffering from the inevittble shock and symbol and/or inscription. confusion following an emergency. These route An important record to be kept by the State agency identifications would appear on all road use permits issued by State, district, and sector ENTR centero, responsible for EHTR is a full, up-to date roster by job title, rather than name, of all personnel assigned (12) Inform all district centers of the regulated to report to the center, including State highway and routes within their boundaries and the number of police officials, highway users, and military and civil road spaces allocated to such centers for issaance of defense liaison representatives. The State EHTR ' road.use permits, tenter's list should also include similar listings of the principal staff assigned to each district and sector EHTR center. Each State EHTR plan should contain Personnel these rosters. Upon activation of the State EHTR center, key An alerting system capable of summoning all or personnel should be summoned immediately, to this selected members of the EHTR staff to the center in canter, in accordance with the current State plan. rapid fashion should be developed in association with These would include the upper level administrative the personnel rosters. Arrangements maty also be officials; the technical staff-highway and traffic made for the staff to report to the EHTR center even r engineers, radiation experts, etc.-who are without notification, in a recognized emergency, or responsible for assessment and analysis of the the staff may be instructed in advance to listen to general traffic situation and necessary support radio broadcasts for general alerts or assignment l personnel. Presumably a maximum operations staff messages. II 4 s
9: Equipment Communications It'is desirable that the State EHTR center be Highly important in the State EHTR center is a full physice!)y established and equipped now. Ideally, it complement of communications equipment, linking should be fully stocked with office furniture, the State center to each district EHTR center to tne equipment, and supplies, communications equipment, State emergency operating center, to the state and living and feeding equipment and supplies-all in highway department and State police headquarters. place and ready to use. Where this optimum situation and to the State EHTR centers m adjacent States. Two way radio, teletype, and telephone is ' impossible to achieve at once, it may be communications are all desirable facilities to have, accomplished gradually. In any event, every effort should be made to approach full operational readiness and it would probably be best not to depend on any ' single system. Interlinkage with the established State as quickly as possible. For example, the State EHTR highway department and State police radio networks. center may be physically established but enly if such exist, would be extremely useful, partially equipped and stocked with the remaining Communications are so important to the EHTR needed equipment and materials stored at the State. operation that,if at all possible, these facilities should highway department headquarters or warehouse. be installed in the State EHTR center and maintcined Some of the equipment in use at the highway on a standby basis, department may be earmarked for quick transfer t the State EHTR center when needed. In this case, Each State highway department has an extensive lists of such items and their locations must be kept communication capability which enables it to current, and adequate plans arranged for their ready maintain contact with its subordinate units. If emergency communication with contiguous State identification and quick transfer-highway departments has not been coordinated, this An essential need in the EHTR center would be vital connection should be established as soon as adequate, large-scale State maps as well as maps of possible. Each State plan should contain an the State's urban areas showing all roads and streets. explanation of its communication capability including These various maps should be mounted on the wall, in its ability to contact the agency m the adjacent States which would be responsible for emergency highway a suitable location and covered with sheets of clear traffic regulation. acetate so that information may be posted, and revised as changes occur. Such maps, properly posted, would give a quick, current picture of both the Ol8TRICT EHTR CENTERS overall situation and its details. Introduction Ideally, provisions should be made for continuing 24 hour occupancy and operation of the State EHTR The State EHTR center must have ready means of center. This requires adequate though spartan accumulating information from throughout the State, facilities for living, sleeping, and eating-and, of of evaluating area and local situations, and of giving course, food preparation-sufficient for the maximum general direction to field operations. For these staff anticipated. Thus, floor space is required both purposes, each State plan provides for EHTR districts to assist in this administration. for office operations and for living quarters. The office operations would require furniture, To the extent possible, all of the preattack typewriters, and other office machines, as well as arrangements described previously in particular paper and other office supplies, printed forms, and all application to the State EHTR center should also be the varied equipment necessary for competent office made for each district EHTR center. If the State operations. Adequate toilet and washroom facilities highway department's district headquarters itself are required. For live m , accommodations, cannot be located in a properly protected site in which its own operations and those of the district EHTR dormitory type furniture and bedding are necessary, center can be situated, it would be desirable to plan, For feeding, cooking utensils, stove and refrigerator, and if possible establish in advance a safe and china and cutlery, etc., are needed. And, of course, adequate location for use in time of emergency by food itself, and above all, drinking water, are both the district highway office and the district essentials. In certain States, existing office facilities EHTR center. The emergency operations of these have been designated for use as the State EHTR centers are closely related and they will function to center. Should an emergency occur the peacetime best advantage if housed together. Specific functions would cease and emergency operations arrangements should be made by and for each distnet would begin. In other States, an appropriate area has FHTR center, adapted to its local situation and been designated for activation should the need arise, problems. II 5
f 1 l Functions 7 State EHTR center. In those cases where the The district EHTR center upon activation would: highway department district office will be the site for (1) Receive from the State EHTR center all the district EHTR center, adequate equipment should l l' necessary information and guidance for its be m place and ready for multipurpose use, operation, Communications l (2) Develop and maintain, with respect to the Each State highway department district (or J district a situation map showing damaged or division) office has as a minimum capability telephone ! destroyed highways and highway facilities in the and radio communication with its central office. Some district, available detours, and the radiation highway departments have centrex telephone i intensity on highways, systems in operation. In addition, a few such " (3) Within limits assigned by the State EHTR departments are connected by teletype systems i center, issue road use permits for trips originating which provide for simultaneous messages to all i ir, the district. district offices as well as individual communication. ! (4) Reserve a prescribed percentage of the The district office radio capability also includes highway traffic capacity of each regulated route for c mmunication with mobile highway department through traffic. units. It is expected that the district EHTR center (5) With assistance from sector centers, make will maintain c mmunication with the appropriate periodic traffic counts on main routes to determine State government emergency operatmg center. j whether the traffic volume is approaching the capacity of the route. As the volume reaches the l i capacity, institute partial or complete traffic SECTOR EHTR CENTERS 4 regulation and notify State and sector emergency introduction highway traffic regulation centers. The EHTR districts are further divided into EHTR ; (6) Establish sector centers (county, city, or sectors. In the State plans each EHTR sector covers a ) metropolitan area) as prescribed by the State county or some logical portion of a county. These 1 EHTR center, and recommend to the State EHTR sector EHTR centers are usually located in State
- center such other sectors as should be established highway department or local highway or police to facilitate the movement of essential traffic, department facilities or in some other preselected site (7) Inform sector centers of regulated routes which is available and suitable for the operation of within the sector boundaries and the amount of such a center, space available to the sector against which it may Functions issue road use permits.
(8) Coordinate operations with the appropriate The EHTR sector centers (county, municipal, or metropolitan area) upon activation would: State government area emergency operstmg . . center. (1) Maintain a s.tuation i map with respect to the . sector, showing the information prescribed to be l Personnel maintained at the district traffic regulation center Much like the main office of the State highway * ** ""** department, the district office is staffed with (2) Make periodic checks on traffic volume and administrative, fiscal, and clerical personnel, recommend to the District Center the institution of highway bridge, traffic engineers and other emergency highway traffic regulation as traffic specialists. Usually the district office also has a force volume on a highway resches its traffic carrying of equipment operators and mechanics; a fleet of capacity. , automobiles, trucks, and road maintenance and (3) Within limits assigned by the district center repair equipment; and a substantial garage and. repair
) shop. Often, the highway districts are subdivided into issue road use permits for trips originating in the sector, working areas, each with a headquarters depot or garage for maintenance staff, equipment and (4) Coordinate requests for inter sector materials stockpiling. These depots generally contain movements with the district headquarters.
a small amount of office space. Personnel Equipment Similar to the district EHTR centers but to a lesser degree, the EHTR sector centers would be staffed Each district EHTR center should have an with appropriate personnel in accordance with each tppropriate amount and similar type equipment to State's EHTR plan and/or as deemed appropriate by that conddered necessary for the operation of the the State EHTR orgamzation. II 6
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Equipment - the jurisdiction of a single EHTR district; or for the The sector centers would require all of the working area itself to be constructed as an EHTR district, and living furniture, equipment, and supplies which Closely coordinated planning and operation between are needed n'. the district center although probably in all agencies myolved are obvious necessities. Many different proportions and scale. The need for State EHTR plans reflect this planning, equipment will be tJfected by the nature of the activity which will be used for the sector center. If it EMERGENCY HIGHWAY TRAFFIC REGULATION POSTS is a highway department maintenance office one type of equipment will be on hand, if a police department DennWon facility is selected by the State for a sector center a EHTR posts are control points at each end of or different type of equipment will, of course, be along regulated routes, for the purpose of controlling available, the flow of traffic onto or on the route, checking road-u5e permits, and advising occupants of vehicles of any Communications danger from radioactive fallout or other hazard. Depending on the State plan, the sector centers may be located in highway department offices, police Introduction facilities, or some other logical location. Whatever The several levels of authority which exist above communication facilities are available must be the EHTR posts are concerned primarily with plan-supplemented, if necessary, so that a constant ning, organizing, and administering the EHTR communication may be maintained with the district operation. It is at the EHTR posts themselves where EHTR headquarters and those EHTR posts under the actual traf5c regulation will occur. The police the control of the sectors as well as the appropriate would have the responsibility for the operation and State government emergency operating center. This control of the EHTR posts and the traffic on the plan provides a flow of information up from the regulated routes. The detailed functions and sectors and posts through the districts to the State operations of the posts are quite different from those EHTR headquarters, of the EHTR headquarters, districts and sectors and r this reason are explained in considerable detail. Metropolitan Area Sectors Our metropolitan areas usually comprise a large Functions and congested central city surrounded by populous Choosing EHTR Post Locations-As soon as the suburbs and scattered suburban developments decision to institute regulation on a route section is organized into larger or smaller political units at reached, it will be necessary to choose locations for cities, villages, towns, etc. The conglomeration is roadside control posts and provide for equipping and very likely to be situated in several counties, and manning them. Making such arrangements is the often in two States. A few have further political responsibility of the EHTR organization, usually at complexities since they lie on an international the level controlling the regulation and the bulk of the boundary. In such multi. structured metropolitan permit issuance for the particular route section, areas, each political jurisdiction is apt to have its own Generally this would be the EHTR sector center; individual civil defense organization and emergency occasionally, the district. plans.- To the extent that these plans affect highway In the simplest kind of situation (regardless of transportation and regulation, there should be careful traffic volume), involving a short route section which coordination on both sides. has no intermediate inlets or crossings, or at least In a large scale nuclear attack, many of the large none of traffic consequence, a control post at each metropolitan areas may be devastated by blast and termm, us presumably will suffice for control needs. fire and heavily contaminated by radiation. In such a Longer route sections, with m, termediate access situation, the function of EHTR in relation to these points of traf5c significance, may require additional , areas, after shelter emergence, would be to arrange fontr I posts; certainly they woul;l be needed at ) mtersections along the route where any appreciable for safe and adequate bypasses. traffic may have to be fed onto and off (or carred Because of the size, both in area and population, of from) the regulated route. the metropolitan areas, and their political, economic, No arbitrary traffic volume criteria can be and traffic complexity, it would be advantageous to suggested for this consideration, since it is a relative plan for the division of each metropolitan area into matter, depending on the possible inflow volume in several workable EHTR sectors. This will be a relation to the total traffic volume anticipated on the necessity when the metropolitan area is divided be- regulated route, and to the proportion of that total tween two States. For management advantages, it which is operating with priority preference; in would be best for all sectors covering the addition, the geometrics of the route and its metropolitan area (within each State) to be under intersections may have a bearing on the matter. II 7 I
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It can be realized from the above discussion that discussed here may be of small scale or nonexistent; roads crossing or feeding into a regulated route at others they could be full blown, indeed. . section, if they carry any appreciable traffic, can create problems for the EHTR organization Essentially, the operation at the control post is to feed road use permit bearing vehicles onto the road i throughout the operation process. The crossing, entering and leaving traffic has to be taken mt (or let them continue on it) and to turn others away-account m attempting to estimate the total traffic- taking care of the latter, however, as road space carrying capacity of the regulated route. It would also h- h is 6 tb ps du a d@ mE i be a factor in total traffic demand; additionally, there area f adequate size is required at or very near the may be some cargo priority certified traffic entering e ntrol post (see Figure 4). or leaving these intermediate points, and this would If the display portion of the road use permit were t have to be reckoned with in allocating road space and fastened to the veh;cle windshield, its color and a issuing road use permits. large written in number would show at a reasonable Wherever possible, each terminus and intermediate distance the day of the week and the specific control post should be established close to a suitable regulated route section for which it was issued. Date road junction, so that traffic which must be barred and permit hour, also would appear on the permit, but from the regulated route may have an available will not be visible except in close up examination. alternate route open to them, even though it may be A complete check of the road use permit on every circuitous. vehicle would almost certainly result in a tremendous Almost inevitably, the control posts are going to traffic bottleneck For that reasen,it is proposed that create traffic bottlenecks just by their very existence, vehicles bearing road use permits apparently proper l Vehicles would have to be stopped or slowed, even if for the day and the route section will be waved on only momentarily, to check their road use permits, without stopping. It must be remembered that a Many others, arriving on the scene without road use sizable proportion of the priority traffic may be permits or even unaware of the existence of control heavily laden trucks and combinations which, once on this route or anywhere else, may have to be given slowed er stopped, take considerable time and i an individual (and hopefully brief) explanation of the distance to accelerate to road speed. This leads to the situation. Some might want to take an alternate route
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further thought that control posts should preferably 1 to their destination. Some may want to turn around be located on level ground, and certamly not where an .I and head back. Others may want to wait and take appreciable, sustained upgrade is involved. their chances of getting a permit, or being allowed to slip into the traffic stream in a slack moment. We e ad use permits wn! thus be cursoruy checked as the vehicles drive by, it would be destrable Because of these possibilities, control- posts on to pull an occasional vehicle out of the traffic stream, routes with sizable traffic streams should be located for a closer check. As with peacetime road regulation where plenty off the road parking is available as a checks, the " word" probably would get around pretty l holding area. In fact, the post can hardly operate quickly, i successfully without this. The space may only be a l pasture; or, with luck, it may be the parking lot of a Vehicles Not Dssplaying Road Use Permits-big shopping center, industrial plant, drive in theatre, Those vehicles that do not have road use permits for or athletic field. In addition to space needs, the the regulated route section would have to be pulled holding areas will require suitable entrances and out of the traffic stream into the holding area without
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exits, as will be evident a little later. hes4tation, regardless of whether they are going to stay or not. It would be impossible to' answer The shoulders along the regulated route, whether questions or give advice to drivers while they are on y paved or not, cannot be used as a holding area. Their the road and thus blocking all traffic. And they use for this purpose would seriously endanger moving cannot be permitted to stop at the entrance to the traffic; they would not have adequate capacity within holding area, either, or the same problem would a reasonable distance; and vehicles stored on them result. Hopefully, the use of advance warning and could not satisfactorily be controlled or shifted. information signs, or of advance information posts, Centrol Post Operation-The nature of operations coupled with news broadcasts or other dissemination at control posts on a regulated route section would to the general public of information about regulated depend on the volume of traffic and complexity of the route sections in the area, would keep to reasonable situation, and on the understanding and cooperation proportions the number of vehicles that have to be of the public. At many locations the problems diverted to the holding area. 1 II8
REGUIATED ROUTE CiASS C.. _ 1 1 ~ hj HOLDING AREA h ' Q[@s O s 1 1 CIEAR ROUTE (not regulated) : l 1 1 LEGEND
- 1. Information signe 3. Entrance and exit to holding area .
- 2. Control post check point; vehicles showing road-use permits are waved on; 4. Shelter for post headq ua r t e r s ,
those without permits are diverted into holding first-sid, detention, sanitarv areas or onto clear route , facilities, etc; Figure 4 m EHTR contnd post operatson en a high valuene Neguinted Class C bute.
- ___.__- . _ _ _ _ . _ - _ _ , . _ _ _ _ _ _ - _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ = _ _ _ - _ _.:___ - . _ . .. . . . . ~ _ . _ . _ _ ,
General' experience, however, indicates that area. In the first instance, and in the second if the
; regardless of such information devices, the holding - answer to both " ifs" is affirmative, the vehicle area had better be of considerable size on a main operator should be directed to a special part of the route, particularly if there are no or only limited- holding area, from which there is a suitable entrance capacity available " free" routes in the vicinity, to the regulated route, Similarly, the work force operating in the holding Three levels or classes of consideration may exist i area would have to be adequate for the task. for those vehicle operators who arrive at a control !
Several alternatives will be open to the vehicle post without a permit, and nevertheless want to
, -i operator who does not have a road use permit and contmue. )
who has been diverted to the holding area. One of Among the three levels of nonpermit bearing these is to take an alternate route to the destination; vehicle classes, the first class to be considered would s and the staff working in the holding area should be be those on an interstate trip for whom permit prepared to give useful, up to the minute detour and authority was arranged between the two State EHTR alternate route information. Coupled with this choice, centers, and who had been instructed to pick up the if taken by the vehicle operator, is the need for actual permit at the first roadside control post they suitable exits from the holding area leading to the reached in the State. In some cases the control post alternate routes without crossing or interfering with staff would already have been advised of the the main line traffic any more than necessary. Where arrangement and have a permit reserved; in others such crossings are necessary, a police officer should they may have to contact the State EHTR center to be stationed to direct traffic. verify it. The second alternative open to a vehicle operator The second class would be those operators who are who has no road use permit would be to turn back makm, g a demonstrably essential trip, but have no toward his starting point; that is, to give up the trip r ad use permit. Such m, dividuals may have been
' altogether for the time being. Again, there must be directed by telephone, by the EHTR center or one of means for him to exit from the holding area and start its eatellite stations, to go to the control post, because his return trip. This may not be a simple operation, it is much closer to the trip origin; or the mdividual because the driver would have to cross the may not even be aware of the need for a permit. The mainstream of traffic going in the direction he fontrol post staff would have to make quick decisions originally intended to follow. In addition, once he has in these cases, using their own judgment and without crossed that traffic stream, he would want to enter any specific guidelines. Those vehicles accepted as-the traffic stream going in the other direction; but being on essential trips would be fed into the traffic this would be the traffic coming from the other end of stream as soon as possible, the regulated route section and presumably already The third and lowest level or class of operators would be running at or near the capacity of the lane would be those who have neither priority nor or lanes in that direction. essentiality to justify using space on the regulated route, but still have, in their own mind, at least, a Thus, it will be seen that handling the nonpermit strong reason or desire to make the trip. These, if diverted traffic can be a very difficult task, and where there is a reasonable possibility of accommodating traffic volumes are heavy it may require a very them, may be allowed to wait in the holding area and sizable, well organized staff. Even in peacetime, and take their chances. If there is no reasonable chance of even then tf all drivers were amiable and docile, the this, however, they should be shunted out of the
- job would still be complicated; witness the traffic
, holding area, either to an alternate route or to return jams before and after big athletic or entertainment to their origin. It is expected that gasoline rationing L
events. In an emergency, and dealing with anxious or other restrictions on travel will reduce this class to and distraught drivers, it is going to be perhaps the a minimum. most taxing, both in planning and execution, of the Vehicles in all three of the classes described above, EHTR operations. In addition to managmg and directing traffic, there may occasionally be need for with those of the first and secord level getting i preference, may be lined up in the holding area close pohce action agamst recalcitrant drivers. to the entrance to the regulated route. As the control A third alternative may be open to the vehicle post staff assigned to this location sees that there is a operator who has no road use permit: the possibility reasonable gap in the traffic moving on the route, of obtaining such a permit; or the chance of being they would feed one or more vehicles from the
" metered" from the holding area into the traffic holding area into the mainstream. In this manner, it stream on the regulated route section, if the route is would be possible to take care of all of the first two being operated in such a way as to allow this; or his classes of nonpermit bearing vehicles, and a good election to take his chances and wait in the holding many of the third class over a reasonable II10
t x 1- . period of time. The odds are strong that the (8) Implement procedures for handling - mainstream traffic past the permit checkpoint would nonemergency vehicles without road use permits be irregularly spaced and rather slow moving, which are as follows: Where regulated routes are operated under (a) Send to a holding area for advice concern. , regulation only during certain hours, the nonpermit ing availability of another appropriate routec l vehicles may be kept in the holding area and released (b) As appropriate, retain in holding area with * (without permits) when the controls are dropped, the possibility of metenng such vehicles onto Latecomers: Overloading-The scheduling of road the route if light volume traffic develops. j space on regulated routes would be on an hourly (c) As necessary, detour to point of origin, j e basis, and each permit issued would indicate for what Personnel l hour it is applicable. Those who arrive early or late at the entering control post (and are detected), should be Each State plan provides that the poh.ce would have I shunted into the holding area, but metered into the the responsibility of manning the EHTR posts. route as soon as clear space is available in the traffic Naturally, manpower would present a large problem. stream. It is recogmzed the EHTR would be only one of the many post attack responsibilities which the police 7 There may be occasions when, through would receive. l inadvertence, road use permits have been issued for more road space than is actually available on a It would be impossible through current planning to . i l regulated route during a particular hour; or the route determine how many men will be necessary to serve at these posts. The number will vary with the traffic L capacity may unexpectedly and temporarily be decreased; or a sudden and urgent priority need may v lume. A low volume post would require a few men i have arisen after all the space had been allocated. In to handle the traffic, whereas a complex post with a , such cases, the control post staff will have to make high-volume traffic would require a larger staff. It is whatever adjustments they can, that seem reasonable ar.ticipated that the pohce would receive assistance t and will accomplish the purpose, Any permit bearing fr m the highway department, local e vil defense personnel, and such other logical sources as the State vehicles that have to be delayed, however, should bo may determine is appropriate,
- 1. permitted to proceed as soon as possible; if necessary, by preempting part of the next hour and delaying Equipment vehicles scheduled for it. Certain obvious supplies will be needed at EHTR -
Summary of EHTR Post Responsibilities-The P'sts. These and others, as appropriate, should be following responsibilities for EHTR posts are taken listed in each State plan. Motor vehicles would be from State plans or were developed at EHTR needed for the transport of staff, patrolling the training sessions. They should be included as regulated route section, or possible pursuit of vehicles appropriate in the State plans. not bearing road use permits which attempt to slip L through a busy post. It may be desirable, especially in (1) Restrict the use of regulated routes to those connection with control posts on heavily traveled vehides displaying road use permits. routes, to have available such equipment as tow (2) Place and maintain as necessary appropriate trucks, wreckers, or rescue vehicles and ambulances, traffic regulation signs and barricades. Additional supplies such as gasoline, first aid (3) Maintain where feasible adequate lighting and materials, fire extinguishers, drinking water, and personnel for 24-hour operation. food for post personnel should be on hand. Shelter of (4) Personnel assigned to control posts on class some sort would be needed, at least in inclement "A" routes should be sufficiently knowledgeable of weather; and sanitary facilities. A supply of road use radiation hazards to enable them to warn vehicle Permits for emergency use should also be available. operators of the dangers of travel through Radiological monitoring equipment should be contaminated areas, available and, of course, some of the post staff should have been trained m its use. (5) Maintain a commumcation capability for liaison with the EHTR headquarters responsible for Communications supervising the post. Generally, police have the best existing emergency (6) Through the exercise of sound judgment, communication system. Therefore, with some meter into the traffic stream emergency vehicles modifications the system can be coordinated with the such as ambulances, fire fighting equipment, systems discussed above and used to maximum vehicles bearing physicians, etc. advantage for EHTR operations. Plans should be (7) Maintain a suitable off.the road holding area developed which will provide emergency adaption. for vehicles which do not have road use permits. The inventory of communications equipment, per-11 11 k
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. 't.
i 6-sonnel, . and facilities, will reveal needs. Alternate.- is recommended. The great importance of emergency , communication . plans ; should be drawn where - communications demands that greater impetus be ; possible. Plansi should include emphasis on given now to increasing communications contact, s abbreviated or minimal messages and transmission particularly voice radio, between all police agencies.
' discipline. Acquisition of pack sets and walkie talkies i' -
f ) Ut i 3 II 12
,, /- k CHAPTER ll-REGULATED ROUTES, ROAD USE PERMITS AND EHTR SIGNS Introduction and Definitions Consultation with radiological experts prior to sch Following a nuclear attack or a natural disaster two decisions is of utmost importance. main types of usable highways will remain: those that In addition to the effect on human life, fallout would i are clear and open without restriction for travel and have a detrimental effect on highway transportation. l those that must be regulated in some manner, especially when one envisions that most of the 1 Regulated routes are of three types: Class "A", country would be covered with radiological fallout if class "B" and class "C". Class " A" regulated routes the attack was large and well planned. are highways which lie within an area contaminated The EHTR orgamzation should have personnel ! by radioactivity that is hazardous to the life and trained in rartiological defense so that an intelligent l health of highway users. Class "A" routes may be evaluation of radiological data can be made. In turn, L used with special guidance and precautions. Class this information - can be used to develop the 1 "B" regulated routes are highways which are operational aspects of travel through fallout areas temporarily reserved exclusively for a special which is necessary for establishing class "A" routes, purpose, such as military or civil defense and users of In this connection, it is recommended that the EHTR ' these routes will not need road.use permits. Class organization work in close coordination with the "C" regulated routes are highways which are deter. State radiologica! defense officer and obtain his mined to have or which are expected to develop assistance in this area. . critical traffic.carrymg capacity restrictions and on We must keep in mind that highway deparcment I which travel is generally limited to holders of " road- radiological monitors, even though they begin ,'- use permits." monitoring on D+1, will only have a minimum of' radiological data; that is, the begmning of the danger would CLASS "A" ROUTES zone. receiveThe State radiological radiological defense data from a variety of sofficer'ources Establishment of Clase "A" Routes including serial monitoring data. His data would be . received sooner, would be more inclusive and more The hazard of radioactivity has its effect in many areas and on many things. 'On evaluating the complete. Close coordination .between the State-radiation effects on highway personnel and highway radiological defense officer and the State EHTR- [ organization is essential. 1 operations, the Federal Emergency Management Agency (FEMA) principles and objectives are Within each area contammated by radiological ! fallout there would be an infinite range in the degree followed by the Federal Highway Administration. of danger to exposure, from a slight health hazard at - l (See Part IV.) the periphery to perhaps high risk or certain death at The FEMA says in effect--don't expose yourself to the focal center (which necessarily may not be the any radiation if you can avoid it, unless there is n geometric center of the area). The radiation experts, alternative way of accomplishing your objectives. having mapyd the current radiological situation, This Agency also established the following wartime must next assess the feasibility of road usage within the contaminated area. This assessment would i
- principles of limiting the exposure of people:
First: Protect them from radiation injury. include the potential effects on exposure, taking into Second: Protect them from radiation injury ,g,f,,*o trave posure entena and the severe enough to require medical care. The radiation m. tensity, distance of travel across Third: Minim.ize the longsange effects of the area, and anticipated sustained travel speed ' radiatm, n. would determine the radiation exposure to which The objective is to keep the exposure of the general travelers would be subjected. public to the lowest possible level. Before opening class "A" routes for travel, a In the final analysis before a command decision to number of things must be considered: jeopardize lives in any operation is made, one must (1)The use of the road (for general public or for understand the consequences of radiation exposure. special purposes). 1113
e i i j (2) The radiation intensity. Radiation contamination and huard would be in a ; (3) The distance of travel through the fallout area. e ntmuous state f change. Normal rates of decay are known, so the decline of huard can be predicted with - (4) The total radiation dose received by the some reliability. However, shifting winds. rain or travelsr. snow, and other climatic conditions can bnng about I (5) The safe speed required for traveling through gradual or even sudden changes in radiation i the area. ;ntensity, sometimes quickly reducing the c, anger m an area, and somen,mes just as quickly bnngmg (6) Allowance for breakdowns within the fallout danger to an area previously found huard free, a m a. Consequently, frequent field monitoring must be (7) Frequency of trips. maintained, together with a constant weather watch, so that changes in the radiation situation can be The control of class "A" routes through fallout anticipated or at least detected as rapidly as they areas would vary. Where the rr.diation intensity is occur. low, the posting of a sign warning of huard ahead ' would be sufficient. Where the route is long and/or Routes endangered by radiation would be regulated the radiation mtensity is high,. a barricade with by manned roadside control posta if the EHTR warning and detour signs would be posted. These organisation can muster suf2cient manpower. It routes should be completely closed. Intermediate seem.s unlikely that there would be enough personnel avr...able for this duty in all cases: their need would be routes would be opened for special purposes or for the i greater on clus "B" and "C" regulated routes - general public, but controlled by ENTR personne1; those wholly reserved 9r available only for prionty Personrel operating control posts on a class ",A, ' route should have sufficient knowledge of radiological traffic movements - and in other urgent activities.' effects to understand its dangers and provide advice in any event, as soon as the necessity of to the traveler. The basic question to be resolved for designating a route for class "A" regulation is each contaminated route section is whether it is safe determined on the basis of radiological monitoring to use at all; and if so, under what conditions. and analysis, the District or Sector EHTR center Remebring that radiation is invisible, it is highly should immediately arrange for the placement of - . important that routes which would be dangerous or barricades and/or appropriate warning and
- fatal to traverse, should be barricaded and posted as information signs by the highway or police quickly as possible. Less dangerous, but nevertheless departments.
hasardous routes would be operated under regulated conditions. The regulatory control, based on relative Manning of control posts on the roadside at the termini of class "A" regulated road sections should nsk, may vary from only a warning sign to pass through the area at a rwasonable sustained speed, W ananged if possible. If My a limitM numbe cr.n without stopping, to specification of minimum travel be mar.ned, it would be preferable to de so at speed or traverse time, trip frequency limitation, or locations where individual decia..s are required. Routes that are completely closed to all tre, vel and at even recommendation to seek medical check up or attention immediately after crossing the area. For the other extreme, routes that may be traversed with the travelers information, the distance from the only small risk, can be barricaded and signed, but not manned. Where an intermediate huard is involved, a control point to the radiation free boundary on the other side of the contammated area should be posted. manned post is desirable so that the risk circumstances of each traveler may quickly be ! Where heavy radiation uists and health hazard is =====aad. The manning of such poets presumably l extremely high, the general rule, as stated above would be by one or more pohce officers, through would be to close the route completely, Alternate arrangement by the EHTR center, Such control
" "'" should have previous instruction in routes to various destmations should be plotted and posted, if possible, and they should be of sufficient radiologs. ca l exposure problems, or at least be capacity to handle anticipated traffic. Urgent needs, equipped with suitable guide material.
l however, may force considersdon of the use of a , highly contaminated route for certain traffic movements under specified conditions; e.g., that a CLASS "S" ROUTES ! particular driver travel at a high (but safe) speed and make only one trip. (It is known that rather high EstaMehmeM M Class "S" RoWes radiation exposure can be tolerated for relatively Class "B" routes would usually be clear routes short periods without serious or permanent health which means they are exposed to little or no radio-imp:.irment.) activity. It is conceivable, however, that a class "B" II.14
= _ _ _ . _ _ . _ _ _ _ _ _ _ _ _ _ _ _ _ _ . __ __ _ _ _ _. _ ___
o ! route may have to pass through a contaminated under class "B" regulatbu. Two pouibilities are i ma. In this case, the portion which passes through likely to offer themedyn: either a reserved route l the contaminated ma will be identified as a class may be maintain d u such, but opened on an "u. J "A" route. The need for designation of class "B" available" basis durtag scheduled periods for other ! routes is apt to occur quickly after the beginning of traffic movements; or the reserved route j the emergency. Durmg a mobilization period or in the classification can be dmcontinued and convoy or other t initial post attack period, such movements are likely civil defense s t.d military traffic can be , to be at a peak in frequency and volume. Later, civ0 accommodated preferentially at all times or during defense and military traffic should stabilize and certain periods on class "C" routes. ' diminish. Since clan "B" routes are reserved It should be borne in mind that the unnecessary exclusively for the use of the military and the civil ( defense, their organizations will not need road m application of the full time reservation of a route u class "B" may well place unwarranted restrictions on permits while using these routes, other euential traffic movements. Before a route is , The movement requirements that engender class fully reserved for special use, therefore, all :
"B" route designation may be characterized by the alternatives should be considered. l' number of vehicles, their overall speed capabBity, the It is expected that civil defense and military large-critial importance of a time schedule and the scale traffic movements would geners3y be convoy materials or persons being transported, and the ned operations planned and controlled by their own for a unified or convoy type of movement. Initiation organizations. Whue they would thus manage their of a request for a reserved route, which may be a own operations, the EHTR organization would specified highway or any route between two provide approval, reserve the highway for use, and designated termini, would probably come to the provide any coordination with other agencies that EHTR center through the civil defense or military may be needed, liaison officer serving on the center staff.
The need and importance for class "B" movements, mind m the possibuity of demand for road space certified by civil defense or military authorities, time on the same route and at the same time b both a would be accepted by the EHTR organization without c vil defense agency and the military; or the traffic question. However, there may be competing priority conflict that would result if two convoys were travel demands and limited route capacities. If so, it scheduled to cross an intersection at the same Qne, would then be the responsibility of the EHTR While urgent movements of this type should not be organization to resolve the competing requirementa bogged down in procedural red tape, neither can they for road space according to their best judgment and be sanctioned without examination of the situation ingenuity, simply because the request comes from the civil The size of a single, indivisible movement needs defense or nulitary authorities, some consideration, and it would be desirable to provide some size criterion for application on "C" ROUTES reserved routes. However, much depends on the overall speed of which the convoy is capable, and on Establishment of Class "C" Routes the nature of the route itself: Obviously, a four-lane The determination of contaminated (class "A"), and freeway can handle a situation better than a two lane reserved (class " B") routes by the EHTR highway; an unobstructed, well aligned road better organisation, and activities in connection with them, than one with existing bottlenecks or attack damaged are by no means simple functions. Regulation of class pavement and bridges. Thus, it hardly seems possible "C" routes would be even more difficult and complex, to generalize with respect to the size criterion for a for it would deal with many imponderables and would resernd mute. rely much more heavily on widely scattered It seems probable that in most areas, within a short information sources and on quick, but hopefully, time after an attack, the need for reserved routes sound judgment. While highway and police personnel would have stablized or diminished. Time would be in the EHTR organisation can handle. problems of less of a factor, and the EHTR organisation, as well blocked and class "A" and "B" routes, class "C" as the civil defense and military agencies, would be mute regulation would reqmre assistance and effort able to plan at least a day or two ahead. from the highway user members of the EHTR team. In this situation it is quite probable that route The probable need for class "C" type of route sections would not have to be held wholly in reserve regulation is fairly evident: The capability of the 11 15
s highway network would be severely reduced by a Information on normal peacetime traffic demand is nuclear attack, As the nation recovers and plentiful and well known to the highway depart- [ transportation needs grow, highway capacity is ments, and thus readily avcilable to the EHTR ' unlikely to recover as fast as the demand; and in some organization. On main highways and arterial streets. locations, at least, essential demands alone may equal the seasonal weekly, and hourly trafSe volumes and or exceed the capacity of semceable highways. Simply put, there would be times and places in the fluctuations are on record. Information is also 1 avcilable in many cases of traffic composition (cars, post attack period-perhaps for an extended time-buses, trucks, and combinations), trip lengths, origins when road space must be rationed, and destinations, car occupancy, and cargo 5 Looking for the favorable side of the picture, it is characteristics. Much less is normally available for probable that highway transportation would not secondary and local roads and streets, but, for all of suffer total paralysis; except in or close to bomb these, there is an annual 1 day traffic count and strike locations, much of the route dislocation would generalized knowledge of seasonal fluctuations. i be confined to localized problems or specific bottlenocks. Radioactive contamination would decay On the basis of such peacetime information, the m time to safe levels, except m or close to the blast EHTR staff engmeers may be able to form judgments i area. Also, the need for large volumes of highway on probable traf$c demands in an emergency. Of - transport other than for urgent civil defense and course, the whole picture, and certainly the local military movements is unlikely to develop until at situation route by route, may be altered because of least some days after an attack. Therefore, there heavy losses and shortages or changed needs. System would be an interval during which the EHTR constructions may shift or concentrate demands organization could get into high gear, for class "C" elsewhere than their normal channels. Also there is route regulation. no possible means for anticipating the public's How soon the operation would need to begin, how reacti ns-and actions-in facing the crises of a extensive it would have to be, and how long it must largMcale emergmy. In addition, of course, as continue, are questions which are open to conjecture. activity above bare survival develops in the post-But the EHTR organization should maintain as a attack period, many of the conventional peacetime , basic premise that regulation ought to be restrained traffic demands would tend to reestablish themselves. in scope, extent, and duration to a necessary So, in trying to estimate the size, locations, and minimum. At the same time, the EHTR operation nature of traffic demand in the post attack penod, i must seek to foresee and forestall highway the EHTR organization's highway and police staff overloading and the delays and interruptions to members would be doing their best to apply important traf$c movements. emergency adjustments to peacetime data. They It is the responsibility of the EHTR organization to would make full use of the EHTR field forces to evaluate both the demand and the capability for constantly monitor and report on actual traffic highway transportation, and once the decision to volanies and compositions on the road. regulate has been made, it must regulate or ration It is the highway. user representative on the staff of road space, route by route and hour by hour, as necessary. Pnonties for urgent and essential the ENTR centers that would be expected to do the major job in estimating commercial traffic demand. st.ipments would be issued by other agencies as explamed below. They should collect whatever information they can on probable traffic movements from all available sources and play the principal part in forecasting route by-Determining Demand route demand. It is obvious that estimating the capacity of usable The needed traffic demand information can best be highways in a time of emergency is not the simplest of collected by the highway user members of the EHTR tasks, but it should present no great difficulty to the staff, to the extent possible, directly from all classes engineers who would be responsible for that function. of highway users and traffic generators; and it would Estimating the traffic demand-the volume of traffic be a continuing, daily operation as long as there is a movements-under emergency conditions, however, need for class "C" routes in the EHTR unit's is quite a different matter. In this task, the organized jurisdictional area. highway user representatives recruited to the EHTR Information should be sought not only from the organization could play the principal role since they vehicle operators more commonly thought of, such as can best establish and maintain close contact with the commercial tiuck and bus fleet owners, but also from highway users throughout the State and in the all active and potential traffic generators and district or sector areas that they would serve. attractors. These would include, among others.
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. manufacturing plants and other commercial While the private automobile is by far the !
enterpnnes employing or servicing large numbers of predominate vehicle on our roads and streets in : people, shopping centers, high schools and colleges, peacetime, both in numbers and total vehicle mileage, !' and any other establishments which continue or it may be much less so in time of emergency, I ruume operation in the post attack period. It would especially in relation to priority or essentiality of trip be important to know, for example, that a neds. Scarcity of gasoline and its rationing are likely , temporarily shut down plant is about to reopen and to severely curtail nonessential automohile us,e As thus generate a flow of automobiles and trucks. the national recovery prognsus, legitimate private i Collecting traffic information from vehicle car trips may increase: e.g., for carpools to work, etc. , operators and traffic generators should be developed In any event, it will clearly be beyond the capability ; as a two way pattern, with the EHTR highway user of the EHTR staff to contact all automobile owners t team members " pulling" and ,the road users about their trip intentions and needs, either early or
" pushing." The " pulling" phase simply means that late in the post attack period: and there are no .
the highway user members of the EHTR staff would organizations that can speak for them on this subject. ! telephone, all vehicle-operatirg companies and except perhaps in generalities. However, there are ! orgamzations and traffic generators they know some possibilities that may develop into practical i of-and because of their peacetime positions and operations: For example, an industry important to activities they are well acquainted with many of
, the national economy or defense mi8ht obtain -
them-and ask what prospective road trips they . priorities for its carpool traveling employees, and , expect to have: e.g., on the following day: How many vehicles and what kinds; what routes will be used; the report en bloc on their daily trips to the EHTR time of trip; and also, what official priority or C'Ut'F-practical essentiality there may be for such trips. Th, Within the total traffic demand, no matter how *
" pushing" phase would simply be an information flow estimates are compiled, consideration of essential in the opposite direction: Yehicle operators will needs would be highly important. When the total <
telephone their friends who are the nighway user demand exceeds the capacity of a route, class "C" members on the EHTR staff to inform them of regulation must be instituted; but rather than a catch-pending or anticipated trips, and ask for advice. as catch-can operation, the EHTR organization must Naturally, the more " pushing" that develops in this see to it that essential traffic movements are two way pattern, the less " pulling" that will be preferentially handled. In the emergency situation, necessary. For this reason, the peacetime education and quite probably extending long into the post- ; of vehicle operators in the purposes, and mechanics of attack and recovery periods, there would be an EHTR should prove valuable in the eventuality that it of5cial cargo and personnel priority shipment system has to be put into actual practice, for expediting essential and urgent transportation How often intercommunication between the l highway user members of the EHTR staff and the Trattle Carry 6ng Capeoity of Surviving vehicle operators and other traffic generators is Highway, needed would depend on the day to day situation with It is basic that the EHTR organiaation, as one of its respect to traffic demand versus highway traffic- first operations, must have obtained sufficient l carrymg capacity. It would be especially needed information from all available sources to permit i shortly before a route section,is e,xpoeted to reach its recording and plotting the road and street situation oPerstmg capacity and class C regulation is bemg throughout the State. The result would be a visual considered; and durmg the entire control period until it becomes evident that such control is no longer representation, on a large scale wall map of the road and street network, of those route sections that are needed. During that entire time, it is vital to collect projected trip information in as much detail, and as impassable because of physical damage or radiation, t far in advance as is possible, and those under regulstion as class "A" and class Theoretically, contact should be established and
" " kontam ed and mumd utesh N n mada and stmots pasmnaNy an au maintained between the EHTR organization and all unable; and from this base a workable transportation vehicle operators and other traffic generators. system must be patterned. The first concern would be l However, a practical aspect must be recognised: e.g.,
it is going to be much easier to contact and obtain to provide continuity in mterrupted or bottlenecked information from operators of fleets of trucks and primary sad prmespal secondary routes. This can be buses-and perhaps the larger, the easier- accomplished by arrangmg for quick repatr, bypasses, than it will be from operators of one or a few vehicles. detours, or alternate connections by way of existing i Similarly, it is going to be easier to collect adjacent roads. l information from commercial operators than from Intimate knowledge and available records of road private vehicle owners, geometries and conditions are prerequisites to this l 1117 l
i work of assessing the capacity of surviving highways, perhaps route measures can be developed from , and planning for temporary system " patchwork." It operatmns at toll bridges, drive in theatres, and paid l would do no good, for example, to map a narrow, dirt parkir4 tots at football stadiums, etc. Estimating the road as an adequate detour for a damaged section of effect on traffic capacity of the roadside control post mainline highway. Road inventory information is may amount to little more than skilled guess work. ! generally available for til State highways; and State Highway capability may be expressed as vehicular i and local highway department staffs would be fully capacity or tonnage capacity. Vehicular capacity ! acquamted with the status of all roads and streets relates to the maximum number of vehicles that can i under their jurisdictions. As a consequence, the pass a given point on the road in a specified period of ; selection of detours, bypam etc., to provide needed time under prevailing roadway and traffic conditions. i route continuity can ber *omplished as a joint. Roadway characteristics that influence the vehicular cooperative effort of the w ers at all three capacity include: Type of highway or road, number of levels, with the collaboranon cf . . tate and local lanes, grades, horizontal curvatures, roadside i highway departments. clearances, and lane widths. The percentage of each it is obvious that the relief section for a blocked type vehicle in the traffic stream and weather and route must be adequate for the job or it in turn would visibility conditions also influence the traffic carrying ; become a bottleneck. When full relief cannot be capacity. arranged, that is, if traffic capacity adequate for all While vehicular capacity is the capability analysis anticipated traffic demand is not going to be most familiar to the traffic engineer, the tonnage ! available, then class "C" route regulation, using capacity of a roadwsy must be considered. For road use permits, must be instituted. cxample, a " parkway" with a pavement structure So it is evident that in mapping routes and systems designed for passenger car use only, might be under for post attack highway transportation, in reaching consideration as a heavy truck detour road to a vital decisions on the need for EHTR control of class "C" industry. The " parkway" may be able to routes, and in operating those routes, the capacity of accommodate as much as 10,000 trucks a day if the the surviving available highway network, especially roadbed is dry or frosen, but during a wet spring v the primary and principal secondary routes, must be thaw after a few heavy truck passages, tne roadbed determined. This would be done by the traffic might become impasamble, engineers of the EHTR staff. Tonnage capacity analyses are more familiar to the Traffic carrying capacity may be estimated, route military. A ahort Section of the Department of the section by route section, depending on foreknowledge Army Field Manual 5515 titled HIGHWAY and existing conditions, The geometrics and, in fact CAPABILITY ESTIMATES, is a good reference for the calculated traffic capacities, would be known and aiding the traffic engineer in evaluating routes before t on record for most State highways and many and After the disaster, and a copy should be in each secondary roads. However, within affected areas, the EHTR center. The refmnce for making vehicular suddenly created bottlenecks and the effects of espacity analyses is the Highway Capacity Manual, necessary detours and emergency route connections SPecial Report 209 of b Transportation Research would upset the normal characteristics of traffic flow Board. A point to make hm is that there will not be and must be taken into account. There is a reasonable time to learn the details of the subject, but there background of experience in such matters from should be a traffic engmeer in each center capable of situations occasioned by construction detours and the making highway capacity analyses and that at least aftermath of natural disasters such as floods, the district and sector centers should have route logs l Possibly an even more disruptive bottleneck in and other records of the roadway pavement structure emergency route regulation may be the roadside and geome rics available for his use, control post itself. While trying to sort out permit-carrying vehicles from others, and expediting h he Deelslon to Mulate
)- former while turning back the latter, the control post The comparison of highway traffic capacity and may also create a major turbulence in the traffic flow traffic need-that is, supply versus demand-would along the regulated route. Operations planned and indicate for each route section studied whether and executed with extreme care may keep such turbu- where trouble or potential trouble, in the form of lence at a minimum, but it cannot be expected that congestion, exista or may soon develop. The EHTR traffic would run smoothly past a control post at a chief, with the advice of his staff, must then make one capacity rate indicated by geometries alone. This of three decisions: ,
situation must be reckoned with in estimating traffic- (1) That no regulation is needed, because the carrying capacity under emergency conditions. There trouble is not imminent enough or has a reasonable is little experience to use as precedent, although prospect of being alleviated within a short time. 11 18
- l I
- (2) That some regulation is required, but need be be controlled, and when; which are operating under I operated only on a partial basis as during specif ed controls, and under what conditions; and which now l hours or with the recognition that a considerable under control are going to be released. Once again, it !
amount of non priority trame can be accom- is evident that good communications are vital. modated, some of it even during the controlled When and if the decision is made that class "C" hours. regulation of a particular route is necessary, two ! (3) That full scale, full time control is required, considerations are required: One as to length of route , with accommodation limited largely to priority to be put under regulation, and the other as to timing. l trame movements, at least during some time Individual decision that class "C" regulation is i periods. required would usually be related to specific location In some cases, the decision to regulate may not or limited area, and to a particular route, since in all come until after the congestion or other route probability the need would be occasioned by a difficulty has actually materialized; but it would be bottleneck at a single spot or along a short stretch of ; highly desirable to anticipate the need for and r ad or street. Conceivably, control might be ; institute control reasonably well beforehand, so that instituted on a route extending for many miles; ! serious congestion is averted. Many decisions would perhaps across the entire State. But this seems less be difficult to make, for they will be concerned with than likely to be a common need, based either on road 1 questionable information and borderline situations. capacity or traMc demand. In addition, control of a Two opposing forces could exist in extreme cases: the long route might well be discult from an operational ; losses incurred through congestion, if regulation is standpoint, and would involve considerable begun too late; and the inconvenience and wasted manpower and paperwork, effort to shippers and the EHTR organisation alike, if As a general principle, then, regulated route control measures are put into effect much too soon or sections should be no longer than is necessary to in locations where anticipated congestion does not ensure that congestion will not develop, because of ; materialise. The EHTR chief must indeed thread a the control opstion itself, at the route section fine needle. termini, There may be situations where two route sections l in the earlier discussion for determining demand for the use of chs:"C" routes, no mention was made w mq at n am part f a untmeus of operacing el: that is, whether the decision is maj r route and are 8 ci setogetherthatcontrolasa < made by the te, district, or sector EHTR chief. An sing e un t w uld function more efficiently, Also, inflexible wrn of responsibility does not seem "" "' " "# "" " * *Y """ ' I'" E advisable. A overriding importance is an lems n ther nearby routes, particularly those , arrangenwnt to ensure that each office knows what crossing or el sely paraueling it. Thus 1n preparing to the others are going to do, and that possible conflicts make the decision to metitute class 'C,, regulation on any dual mm uction, fuD unsidation must be eliminated before they happen. As a general rule, ; , it is logical for the EHTR oMce closest to the local be given to the conuquent effects on other roads and ti n to make, or at least initiate, decisions to * ** decision to titute class "C" regulation is, of j ' course, concerned with a time period in the future. i For example, a sector chief may decide that a Regulation, whether partial or full scale, cannot ! particular route section will need class "C" effectively be applied at a moment's notice. Roadside ! regulation by the next day. If the situation is purely trame control posts must be spotted, equipped, and local, he should have authority to pmcoed with the manned. Requests for road space must be solicited arrangements, but be required to immediately inform and received, and permits issued or authorized. I his district chief, and adjacent sector chiefs, of his intent. If, however, the need for route control A logical and practical system af control operation is what might be called the"folle eday" pattern (a ; appears to span the entire sector, or extend across a plan commonly used by the midry services), in actor boundary, then presumably the district ENTR which preparations are made each day for the l chief should be responsible for the actual decision or following day's operations. In EHTR operation, I?r coordination between sectors. Similarly, a information collected by the EHTR organisation situation that extends to or beyond a district durmg the moming might indicate that traffic boundary should be the decision making or demand may soon exceed capacity on a particular coorewmg responsibility of the State EHTR chief. route section. The decision to regulate might be In every case, of course, it is imperative that each reached by noon. During the afternoon, EHTR center-State, district and sector-be arrangements would be made for establishing and . promptly informed which route sections are going to manning roadside control posts; requests for 11 19
road use permits would be solicited and processed: needs will fluctuate; physical conditions will improve and information would be disseminated to the general or worsen: radiation hazards will decay and shift: public on the situation. The actual regulation would planned road repairs will be completed or deferred. It begm on the road at a prescribed hour on the is thus evident that EHTR operations would be m following day, probably at a very early hour, almost constant state of flux. Only by having full and A further consideration in timing is the duration of current information posted on the maps at the State, regulation on a particular route section. Sufficient district, and sector EHTR centers would it be information may t>e available, or careful judgment p asible to continuously assess the situation and plan and effect changes to accommodate anticipated may indicate, that control should remain in force for several days, a week, or even a more extended period, traffic. Each regulated route, each barricade and sign This will be an initial decision, of course, subject to installation, each roadside control post, each detour, amendment as the situation develops from day to day, each blocked route, each repair or reconstruction job, The extent of control on one route may also be and every other pertinent detail that would aid m affected by the situation on other nearby regulated &#essms tne current situation, and m planning ahead routes. should be recorded in readily usable form at all the EHTR centers. As a general pnneiple, the EHTR Class "C" regulation may be needed only during operation should be as little encumbered by certain hours of the day when congestion is likely to paperwork as possible. But details of the current occur ifor example, the peak hour surges in and situation are a prime essential for without them around urban areas) or it may be required for the full confusion could be extreme and disastrous. 24 hour period. Similarly, it may be required in one or both directions. Routes which are found to be blocked by physical damage, such as destroyed pavement or demolished instituting traffic control only during the day or bridges, or which are impassable because of debris on even during just the few heavy demand hours would the roadway, would be assessed as to their greatly simplify the task, both as to manpower and repairability and restoration to full or partial service, paperwork. In add; tion, it would very well encourage Information on the priority ranking of work to be many highway users to travel in off peak, no control undertaken in debris removal, road and structure periods, thereby actually reducing the peak period repair on replacement construction of bypasses, and demand. providing adequate detours should be obtained from One other point about timing should be emphasised, the highway department. The beginning point for class "C" route regulation as Highway department decisions on a priority work a general type of EHTR operation cannot be defined. schedule should be based on the developing post-The needs for class "A" and class "B" route control attack traffic needs and general route availability; the would anse almost immediately after an enemy relative and absolute conditions at each location; the tttack; but the needs for class "C" regulation are not advantage to be gained for traffic movement; the likely to develop so quickly. Additionally, the EHTR local availability of construction equipment, organization may not be sufficiently activated and manpower, and materials; and the speed and safety staffed for managing; class "C" route regulation on (e.g., from radiation hasard)in which the work can be any extended basis until at least several days after done should be taken into account, the attack. Both the situation survey and the judgments involved in arriving at the reconstruction priority schedule should be handled as a collaborative effort of Operation of Regulated Routes the EHTR staff and the State highway department. This is important since the former would have the It must be borne in mm. d that EHTR would be far from a simple and static operation. Many of the responsibility for traf8e estimation and regulation while the latter would have responsibility for doing ) situations and operations desenbod in this Guide are the road repair work. Such collaboration can readily necessarily treated as individual subjects, but m be planned and readily effected in actual operation. practice many will be simultaneous, interacting, and sometimes m conflict with each other, This is true since State highway department personnel would be a principal part of the EHTR Routes wholly reserved for essential movements organisation, and in most States, the State highway (class "B") and those operated on a road use permit department itself has been given the primary basis (class "C"), may also be exposed to radiological respogibility for planning and organizing for hasard. Class "C" routes may be operated as such emergency highway traffic regulation-that is, only part time or they may be reserved during certam the hightvay department is the " parent" of the periods for class "B" use. Post attack traffic EHTR organisation. 1120
It should be remembered that in time of emergency when it appears that anticipated traffic wdl overload ! the State highway department should have full the route section, so that all traffic cannot be authority over all roads and streets, not jut the State accommodated-at least, at the particu!u time each t highway system alone. With this authority, it can ne vehicle operator himulf would choose, it follows. i then, that some traffic must be turned back or i its own forces to undertake needed work on local roads. It can also take over jurisdiction and use local delayed: conversely, that traf$c involving priority ! roads as detours for State routes and it can shipments mut be given preference over any other. ; requisition the help of the the local highway Then reduced to its simplest concept, road ne permit issuance may be concerned only with shippers who , d'Panments' have already received cargo priority certification : An immediate need in connection with physically from the transportation agency charged with that damaged or otherwise blocked highways would be to responsibility. (If this latter statement seems oft- ! barricade the impassable sections. Probably the repeated, it is to ensure that EHTR participants ! barricades should be placed at the nearest crossroad constantly remember their own function is to i still open to traffic; and as soon as possible accommodate official cargo and personnel priority , information signs prescribing available detours to shipments, not to authorise them. See page 1127 for ! various nearby destinations should be posted at the further information concerning cargo pnorities.) barricades. The barricades and signs would be placed ' After reducing the concept to this basic position. it by crews dispatched from the highway or police can be assumed that a large proportion of permit ! departments. As previously noted, barricades and ssuance would be accomplished by contact between - signs of a type that would be needed should be the highway users of the EHTR staff and the prepared and stockpiled in advance at convenient, commercial vehicle operators, particularly those with safe locations, fleets of more than just a few vehicles. It is such operators, in alllikelihood, who would be handling the ROAD.USE PERMITS types of highway movements that warrant cargo and ' Definition personnel priority certification: 1.e., the handling of j critically needed foodstuffs and other goods, and the , The road use permit is a legal form issued to Pwadon onus transponation. authorire specific travel over a designated route 1 during a specified time (see Figure 5). The esuntial Actual permit issuance would be far more easily elements of this permit are: date, route number, time handled if these commercial and military vehicle of entry, destination, number of vehicles, etc. operators are furnished with pads of permit forms, and instructed as to their purpose and use, as a part ; lesuance and Record Keeping of the EHTR organization's planning and t preparatory work, if this advance distribution has not i The key to successful traffic regulation on class been accomplished, then it should be done quickly )
"C" regulated routes is the planned issuance of road- after the beginning of an emergency. It is evident of use permits. A revised form of this permit is course, that handing out blank permit forms must be i reproduced in Figure 5. It is expected that State done with some discretion anc. that they should be organisations responsible for emergency highway given only to trustworthy individuals in established traffic regulation will stock a master copy of this and reliable concerns.
permit form available for quick reproduction in the Assuming that the major vehicle operators have the event the need for it arises. Each State plan should blank forms in hand, the rest of the permit issuance also contain a copy of this fonn. operation is simplicity itself insofar as they are i The display portion of the permit is intended to be concerned. As soon as an operator has a specific i l taped on the vehicle windahleid, so it may be quickly shipment planned and has received a cargo priority scanned at the roadside control posts. As illustrated certification for it, he would telephone the nearest in Figure 5 the route control number would be EHTR center to find out if a road use permit is written in the center of the permit in large lettering, needed, and to request its allocation. In all probability so it can be checked "on the fly." It is proposed also he would be talking by telephone with one of the to make the date evident at a glance, simply by using highway user members of the EHTR staff with whom he has already had contacts, since the beginning of , a different color for the permit form, for each day of the week. The per.;it should be serially numbered, the emergency, and whom, he knows through , l peacetime associations. The shipper would inform his both on the stub and the display portion; the remaining details evident in the illustration are self- EHTR contact of the trip ongm and destination, ; number, and types of vehicles, nature of shipment, ! l exp3anatory, and all the rest of the information called for on the 1 l As a premise to further discussion of permit road use permit form, including, of course, the l issuance, class "C" route regulation is instituted only desired travel route and time. i 11 21
i
- I f
No. A 0.000,001 ' Trip origin Trip destination l
! Number and type of vehicle t ,
i N Owner STUB TO BE RETAINED
,' Commodity-BY IS$UING ENTR CENTER Shipment priority Regulated route number y Authorized time of entry
;f (and/or such other items or inrorma uon t
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as may be appropriate) m: l Issuing a E ElriR Center 10 gy h .. * (Perforated line) it 12 12 1
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@16 Hignway e 34 I@ 10 Road-use j ,43 E 7 Permit for wE56 g 9w Regulated route g; number 7 < 6-7 ,
g ; 78 ' 83 m g 89 e e v 9-10 '
$ o ROAD-USE PERMIT 69 12 1 TO BE ISSUED p$(
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(( 4 7 $* 3-4 M , 4-5 E, y 1 g 5-6 3g h4(1 m 3,6-7 7-8 (i
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2 !ssuing EHTR Center H 89 [ 9-10 " g 1 sy 10-11 n: 11-12 g
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$$$%Ni#flM'IMIN$$(h8Nkd$Nbh@M r!GURE 5. STATEMENT OF PENALTY TOR MISUSE TO BE PRINTED ON BACK Or PORMI This permit le the property of the United States Government. Its counterfeiting, alteration or misuse is a violation of 18 U.S.C., Section 499 (1 MIL Violators shall be fined not more than 82,000 or imprwooed not more than five years, or both.
. I
?
I h ENTR staff man would check his map and his telephone would be required in order to communicate ! day's allocanon sheet, and if the route has only a with the nearest EHTR sector center; and a supply of locally controlled class "C" regulated section, he permit forms. One additional simple requirement is a would be able to issu road use permit authority then sianble cardboard sign that can be placed in the , and there, if an intermediate or long range trip is window or tacked to the door, to show that there is a involved, with regulated sections controlled road use permit station at the location. elsewhere, the EHTR Sector center would have to The operation of a permit issuance from such ; make arranyments through the District center and stations would not be essentially different from that ' possibly the State center. Interstate arrangements described above, except that it would be done through ' may have to be made, as described previously. In an intermediary. The individual seeking a permit, or these situations beyond local control, as soon as it is information as to whether he would need one for a i i known that road space on regulated route sections is planned trip, would present his cargo priority available for the trip, the EHTR Sector would advise certificate and/or request, in person, at the nearest the shipper accordingly, permit station he can find. If possible, the location of i For any allocations of road space within the State, these stations should be announced by radio the shipper would be told to fill in his own road use broadcast or in newspapers if they are being # permits, on the blank forms he already has at hand, published. The person manning the station would call Necessary information would be interchanged; for the EHTR sector center on the telephone and relay example, the shipper would inform the EHTR contact the request, with appropriate information. Quite ; of the serial number on the permits being used; the possibly the request can be granted at once, and the contact man would inform him of the route section station " agent" would make out the permit. If a delay control number. The EHTR man would tally the is necessary, the permit seeker can be saked to return i proper number of vehicles in the appropriate box on at a specified time to the same station to complete the his days' allocation work sheet. The shipper would trip arranyments. tape the display portions of the permits on his vehicle Under some circumstances, it would be anticipated, windshields; and they m ready to go-at the proper or found through experience after a few days' time, of course. operation, that permit issuance is required on a route It is recognised that this procedure depends on the section because total traffic that would like to use it cooperation and integrity of the shippers involved exceeds its capacity, yet the capacity is not nearly and it is possible that in isolated cases this confidence reached by the priority shipments. This situation may would be violated. But the alternative, to physically exist around the clock, or only during particular issue permits to major commercial vehicle operaton periods, only at EHTR centers or even at more numerous If the difference between cargo priority shipment other locations, would inevitably result in volume and total capacity is sissable enough and
- inconvenience and delay to those Wh the bulk of fairly steady, the EHTR organisation may issue the priority shipments and, of course, delay to the additional road use permits for what it considers i shipments themselves, essential trips which, for various reasons, have not While much of the cargo priority certified been granted an official cargo priority. Such trips shipments may be handled by the larger concerns might be of an urgent nature, that cannot wait for among the commercial vehicle operators, it would formal cargo priority action; or they,may involve also be probable that carp priorities wc,uld be issued needs or purposes that are less important than those to commercial operators who own only one or a few warranting a cargo or personnel priority but still, for l
vehicles, and to private automobile users-the economic or humane reasons, seem more essential l than run of.the mill traffic. It is probable that the r businessman, doctor, or defense worker, or the family traveling to a new job and home, great majority of such trips would be local in l ' character, and could almost wholly be processed by To take can of these, permit issuing stations can be established in fairly larp numbers, well distributed the EHTR sector center alone. [ for convenience throughout the area served. They can If permits of this category are to be issued, the daily I be located at police and fire stations, post offices road use allocation tally sheets snould be modified substations, and other government buildings, accordingly. For each regulated route section to be including libraries and schools. They might even be operated in this manner, it would be necessary to located at shopping centers, the entrances to major allocate separately for priority trips and for essential i stores and factories, etc. Each could be manned by an nonpriority trips. Actual physicalissuance of permit ; appropriately instmeted volunteer, who need not forms would be handled primarily at the stations ) have had any previous experience but who is willing described in the preceding section, and in the same l to cooperste in the simple process involved; a manner. l l 1 1128
In addition to nonpriority but essential road use permit issuance at EHTR centers and satellite center in Iowa that is closest to him-one which undoubtedly he is already in contact with about local stations, arrangements could be made for trips. From there, his request would be transmitted accommodation of such trips at a roadside control post. to the Iowa State EHTR center and thence to the Ohio State EHTR center. (In this example, the State Just how the tetal traffic-carrying capacity of the EHTR centers of the intervenmg States of Illinois route is divided for the purpose of permit issuance and Indiana may act as intermediaries, especially would depend to a considerable extent on the route since their own highways would be involved in the itself, As a generality, perhaps 10 percent is Iowa Ohio trip.) reasonable for State allocation. 20 percent for the district, and 70 percent for the sector; but the peace Information and authority for issuance of the road-time tnp length distribution of the route, and any use permit would return to the Iowa shipper via the other past or current indications, may be used as same communications channels, and the local EHTR criteria. center in Iowa would be able to give him fairly The mechanics for arranging the allocation specific instructions. One of these would be to pick up probably are best handled in a descending order of the actual permit displayed on the vehicles. EHTR level and should be :lained in each State Presumably this would be the first roadside control plan. The general routine of operation is likely to post he reaches in Ohio. All this sounds involved, but b: gin with a tentative decis. at an EHTR sector radio or phone communications should make it c:nter that a particular route section ought to be possible to accomplish the entire transaction in a few regulated; this decision would be recommended hours, upward through the EHTR organization structure. Confirmation, approval, or alteration of tentative On long range trips of the type discussed above, it decision (for mstance, the district may see the need to is probable that the vehicles involved would have to extend the controlled section mto an adjacent sector) traverse several different class "C" regulated route would be made first at the district center and then at sections within the States but each in a different the State center. In communicating the confirmed EHTR district or sector. The State EHTR center ' decision downward, the State first, and the district would be able to handle ah of the allocations and nsxt, would specify the hourly allocation of road permits for the separate route sections within a . space that each has reserved frem the total carrymg State. If the initial contact with the shipper was at the cpacity for its own anticipated needs in permit local level, the state EHTR center would instruct the issuance. EHTR sector center to issue the required permits. ' The reason for adopting the tri level split allocation Concerning EHTR districts, intermediatelength method of handling individual trip allocations and trips can be handled by the EHTR district center ir, road use permit issuance is fairly obvious. 7.ocal v hicle operators naturally would contact the local the same manner that long range trips are handled by the State center. EHTR sector center for road use permits, particularly since they have already been in At each level-State, district, and sector-the staff communication with that center, durmg the canvass members handling the allocations would know the of possible traffic demand, and would know from such number of vehicles for which they could issue road-contacts or from local news broadcasts that the use permits, for each hour of controlled operation on p:rticular route they want to use is now or shortly each regulated route section. When it appears that will be operated under regulation. the number of vehicles carrying priority certified The other extreme in the picture can best be cargoes will exceed the quota, two alternatives are described by the following example. A trucker at a open.
) distant point, say in Iowa, may have a priority.
certified cargo mvolving several vehicles which, m One of these is to attempt to " borrow" space from the course of their long trip, must cross Ohio. Of the reserved block of another EHTR level; for course, only from the Ohio EHTR orTanization can he example, the sector might query the district and learn whether any part of the proposed trip route in State centers to ascertain whether either one could Ohio is closed or under class "C" regulation. But it spare some ofits originally allocated space. The other can hardly be expected that the shipper as an alternative is to attempt to get the shippers to individual in Iowa should make direct contract with rearrange their trip time schedules: thus, a shipper the Ohio EHTR organisation, even if he knew how to could be informed that a particular time slot is rapidly do so. His logical and probable action would be to get filling up, and that some earlier or later hour is in touch with the EHTR sector (or perhaps district) available, which might serve just (or almost) as well. H44 _. -. - -.- __ - - - - - - - - . A
f i When a specific hour is already loaded by permit scale maps of the area. Here they would be available issuances, further requests for that particular time for all of the staff to see; and a number of EHTR stuf will have to be refused. In urgent cases, however, it members, engaged in contacting vehicle operators may be possible to get some shippers to relinquish and issuing permits, could check the situation and their permits in exchange for others at a different post their records without unduly interfering with hour. This sort of trip time shifting or swapping can one another. If the operation is on a small scale, and most readily be managed at the locallevel, where the one or two men can handle most of the contacts with highway users on the EHTR staff are well acqur.inted vehicle operators, the posting sheets could be kept on with many of the commercial vehicle operators, a desk table where the men are working. There is a quite different type of situation which could occur with some frequency. This situation Each sheet, for a single days' operation, would be would complicate the handling of allocations for road divided into columns and tir,es; each column space unless it is anticipated and arranged for in representing an hour of the day and each pair oflines advance. This involves the class "C" regulated route a regulated route section. Figure 6 illustrates a part section that crosses EHTR unit lines; for example, a of such a posting sheet. The day and date are route that has one terminus in one EHTR sector and prominently displayed, and the center indicated the other terminus in an adjacent EHTR sector. (whether section, district or State). For each Depending on the individual situation, each of the two regulated route section, the control number assigned sectors involved could handle the allocation of road to the route section (and there should be a space for local traffic originating in that sector; that prearranged plan for this numbering), the Interstate, is, each sector would be handling traffic in only one U.S., State, or county route number (as signed on the direction on the route. An attemate would be for tne road), and the termini should be shown. Because two-district EHTR center to handle both local and directional travel is involved, each route is given two intermediate trip allocations. lines, one for each direction. The combination of route The possibilities of situations of this type are so numbers termini, and travel direction is proposed as a manifold that it hardly seems practical to attempt to means of avoiding any misunderstanding about which conceive of and plan for all of them in detail. route section is involved, both in talking to vehicle Nevertheless, in actual operation, each time the operators and in posting permit issuances, decision to regulate a route section is about to be l made, careful (but quick) consideration must be given As shown by the enlarged inset in the illustration, to all possible unusual and complicating each block represents 1 hour of space in one travel circumstances. direction. There would initially be posted in a small It is obvious that some basic records of permit box in the upper left corner (perhaps in red pencil), issuance must be kept in each EHTR center, in the four figures representing the route section capacity, process of allocating regulated route section space, The topmost figure is the capacity portion allocated but they should be kept to a minimum. It is suggested to the State for permit issuance; the next the that these records may be crude in nature just so long capacity allocated to the district; the next, the as they are accurate. Even accuracy is relative, since capacity allocated to the sector; and, at the bottom, over issuance of trip permits by 10 or 12 on a road the total. To avoid any confusion, the figure i section with an hourly capacity of 800 vehicles is not applicable to the allocating office should be circled. As going to create any great amount of congestion, if illustrated in Figure 6, the posting sheet is that of an any. EHTR sector center, and the circled figure 280 , indicates the number of vehicles for which the sector l in its barest essence, the road space allocation and road use permit issuance operation in any one EHTR can issue pennits in the 121 a.m. period for ! center (especially at the local level) can largely be eastbound trips on controlled section No.1, on managed by a man with a telephone and a tally sheet. Thursday, December 6. In more specific terms, a sensible method of The tally of permits issued or authorized is kept in l allocation control would be to post each day's permit the simple, old fashioned pencil stroke system, with issuance on a single, large sheet of paper. At any every fifth count recorded as a cross stroke. Since one time, of course, it would probably be necessary to large numbers of tallies are likely to be recorded, it is have available and work on separate sheets for the recommended that a cumulative total of the tally in I current day and three or four days ahead. each box be noted on the right, as each line is These work sheets might be mounted on a wall completed. This technique is illustrated in the panel in the EHTR center, adjacent to the large- example. II25 u
.y
' Sects of ENTR DAILY DOAD-SPACE CL1DCATIOct SIEET District: Sector: Dey: h $M N (If this is district or State center sheet, so indicate) "
Control US or
. . . . . - . . . . . ........ ., . . . . J Directio, 12-1 1-2 2-3 3-4 4-5 5-6 No. State Free To of AM AM AM AM AM AM-I !
Route No. Travel k N 1 ar.s A%M" cat W N ' l MMS Mr S V ~ ' l n 2 SA31 m "RM ' 40 ggy, n i kil N * ==" 31
@ ani av n aev 3 y i
M42 .ht(Lt42A ET 3 I 3 A.of sa23 m m.3 .worme NW t ; S.R.2 SE. 4 s.a.-s , dr.2 h . 7
- r
. /
FIGURE 4. ENTH danly read aw aHocation sheet, for posteng, reed ,,e permits issued or author red 4 m...- -- . . . -.- , , , , - , e n+ . ,,eg. , , ., ,, . . . . . , - , . , , _ - , - . . - . ,,n.....,_-.,-.-,,e,
. l It hardly seems necessary to keep any record of vulnerability, maintenance, restoration and <
pennit issuance other than that described hm; even utilisation of the capacity of domestic surface . trying to make carbon copies of the daily sheets would transportation in an emergency. < be difficult because of their size and constant In rder to better explain the procedures for motor handling. At the end of each day the day's sheet can be fUed away, or for that matter simply discarded. freight shipment during a national defense J The records are worth saving only for possible emergency the steps required for a delivery after , controls have ben established are listed below. i analysis of successes and failures of the operation, at some future time. Durmg the operation there would (1) A shipper requests a priority for a load of
- be no time for much analysis; and the day's work, critical material from the above referenced insofar as it helped or hindered essential traffic Federal State Emergency Motor Transport Board.
movement, cannot be undone- (2) N shipper either uses his usual carrier or l It is important that each State consider the requests from the Federal State Emergency Motor foregoing ideas for record keeping and incorporate in Transport Board a carrier assignment; in which t the State EHTR plan these or similar ideas whichever case a trucker having the required equipment would are best suited to the individual State. be assigned to make the delivery. ! (3)If the State EHTR organization has concluded i that highway regulation is unnecessary on the route l OPERATION OF REGULATED ROUTES which the trucker wishes to use, the trucker would l Cargo Priorttles deliver his load in a normal manner. j Each State EHTR plan should contain specific (4) If, however, the EHTR organization has l details as to how cargo and personnel priorities would instituted traffic regulation then the trucker must l be obtained by shippers subsequent to a nuclear obtain a road use permit from the nearest EHTR l attack. Clearly (see FHWA Order 4 7 2 4)it is not the center which would be evidence that he has been function of the EHTR organisation to issue these cleared to use a particular regulated route, l priorities. It is the function of this orgamsation to Admittedly, during periods of class "C" route ration road space as necessary by the issuance of , road use pennita so that available traffic carrying regulation, there will be representations of ) capacity may be efficiently utilized. The EHTR staff essentiality or urgency of trips by those who cannot l will make decisions of precedence of movement only obtain or do not have sufficient time to seek a formal l when the number of equal priority vehicles seeking cargo or personnel priority certification. N EHTR road space at the same time exceeds the particular organization, whenever possible, should give route capacity. Most State emergency management preferential consideration to bonafide casas of this plans contain a pmvision for the post attack creation type. They can best be taken care of at road use of Federal State Emergency Motor Transport permit issuance " stations" or at roadside control Boards. In most cases, each board is composed of a posts, as will be discussed later, representative of the State regulatory agency, and the motor transport industry. N State repro- The following information from Paragraph VIII,(c) sentative is responsible for State policia and (1) of b Louisiana EHTR Plan (April 29, 1983) procedures, and the State motor carrier manaeintion exemplifies how a Stata plan should identify the manager or someone designated by him acts as the organisation which issues numerical priorities industry consultant or advisor to the board on motor covermg cargoes and personnel: transportation. In order to assure coordination, each "(c) Priorities and allocation of road use permits board has a chairman. N chairman's function is one (1) Federal and State transportation agencies of coordination and central guidance to the board in of a j int Federal State Motor Transport Board will onier to assure unified actions. In an emergency the board would be activated and operste from the establish numeri::al priorities covering persons and emergency headquarters as established by the State, goods to be transported and services to be Among the several responsibilities of these joint rendered, thus determining which should be given Federal State boards would be the issuance of the preference in road space. Recognition of such permits authorising the shipment of resource priority by regulation centers in the issuance of J' oommodities. The ICC will have no control over and road use permits will be based solely upon the would not participate as a member of the EHTR priority Hannincation assigned to the persons or organisation when the ENTR organisation is goods for which road use permita are requested. ectivated. This includes industry operational The type of vehicle or the owne ship thereof shall l guidance, standby programs for reduction of not be considered, nor does tbv possession of a II 27
)
)
State or Interstate Commerce Commission ' permit' It is expected signs will be initially purchased under to operate on all or certain routes during normal one Federal. aid project and adequately warehoused ! conditions, establish any form of priority or so as to prevent undue deterioration, preference." Therefore, at the State's election, the project may be financed with either Federal aid primary, secondary, or urban funds at the prevailing matching EMERGENCY HIGHWAY TRAFFIC ratio. Interstate or special Federal aid funds may not REGULATION SIGNS be used. The Federal Highway Administration should I Under Section 102 of Executive Order 11490, in be contacted for specific instructions concerning the ! addition to preparing plans for a national emergency, appropriate project and agreement number. It is ! as assigned to each department, the heads of expected that adoption of this simplified procedure departments and agencies shall "(c). . .(3) be will reduce administrative costs of these projects, prepared to implement,in the event of an emergency, The following signs are identified below as having all appropriate plans developed under this order." particular application to the emergency highway With respect to the responsibilities assigned to the trame regulation program. ) Department of Transportation Section 1303 of the 1 Executive Order directs the Secretary of Trans. Evacuation Route Marker (CD-1) portation to " prepare emergency operational plans The Evacuation Route Marker shall be circular, 1 and programs for, and develop a capability to carry having a minimum outside diameter of 18 inches, out, the transportstion operating responsibilities carrying a directional arrow and the legend ! assigned to the Department, including but not limited ' to: EVACUATION ROUTE. N standard Civil Defense Symbol, CD inscribed in a triangle within a ring, shall (3) Emergency resource managemer.t of all appear near the bottom of the sign, with a diameter of Federal, State, city, local, and other highways, 3% inches. The legend, arrow, symbol, and border roads, streets, bridges, tunnels and appurtenant shall be in white on a blue background. At least the t structures, and publicly. owned highway arrow and border shall be reflectorized. The arrow , maintenance equipment, including: designs shall include a straight vertical arrow _ (b) The regulation of highway trame in an Pointing upward, a straight horizontal arrow pointing ; emergency through a national program in to left or right, and a bent arrow pointing left or right cooperation with all Federal, State, and local for advance warning of a turn. The arrow may be a governmental units concerned to assure efficient separate unit attached to the face of the sign. The and safe utilization of available road space." marker format may also be used on a It appears from the foregoing requirements of the nonreflectorized, white, square plate. Execucive Order that, in order to " develop a h Evacuation Reute Marker, with the appropriate espability to carry out" the obligations of the arrow, shall be erected 150 to 300 feet in advance of, Department of Transportation with respect to and at, any turn in an approved evacuation route, and emergency signs, it is necessary to prepare the signa elsewhere for straight ahead confirmation where now for immediate installation when an emergency is needed. In urban areas it shall be mounted at the right declared and to stockpile the same for such use. of the roadway, not less thar. 7 feet above the top of Under certain conditions, Federal. aid funds may be the curb, and at least i foot back from the face of the ' used to participate in the cost of purchasing and curb. In rural areas it shall be not less than 5 feet above stockpiling emergency highway traffic regulation the crown of the roadway and 6 to 10 feet to the right signing. It has been determined that no legal of the roadway edge. objection exists to the funding of such signs from Evacuation Route Markers shall not be placed funds otherwise available under 23, USC,109(d), where they will conflict with normal signs. Where inasmuch as such signs, during a national emergency, conflict in placement would occur between the "Will promote the safe and emeient utilisation of the Evacuation Route Marker and a standard regulatory h highways." However, since the funding of emergency sign, the latter shall take precedence. In case of signs appears to be also an obligation of the Federal conflict with a standard informational sign the civil Emergency Management Agency, in each instance in defense sign may take precedence. which Federal. aid funds are used, a State should first Placement of Evacuation Route Markers should be request assistance in the purchase of such signs from made under the supervision of the officials having its State emergency services director. A denial of jurisdiction over the placement of normal traffic such funds by that office can be used as the basis for signs, but coordination with Civil Defense authorities the determination of the eligibility for Federalaid and agreement between contiguous political entities participation, will be necessary to assure continuity of routes. II.28
l
- TRAffl0 Background blue REGULATION 9_.. Border white (reft.) Background white (refl.) ,
Letters white Border black POST l Letters black m *
- m. w.
.. .e.c.o. r Area Closed Sign (CD 2)
The AREA CLOSED tign shall be used to close a Emergency Speed Sign (CD-4) roadway entenng an area from which all trame is The MAINTAIN TOP SAFE SPEED sign may be excluded because of dangerous radiological or used on highways where radiological contamination is biological contamination. It shall be erected on the such as to limit the permissible exposure time for shoulder as near as practicable to the right hand edge occupants of vehicles passing through the area. Since of the roadway, or preferably on a portable mounting any speed toning would be impractical under such or barricade partly or wholly on the roadway. For emergency conditions, no minimum speed limit can best visibility, particularly at night, its height should be prescribed by the sign in numerical terms. Where i not normally exceed 4 feet from the pavement to the trame is supervised by a traffic regulation post, l bottom of the sign. Unless adequate advance warning oscial instructions will usually be given verbally, and i signs are used, it sheuld not be so placed as to create a the sign will serve as an occasional reminder of the complete and unavoidable blockade. Where feasible, urTent nood for a reasonable speed. I the sign should be located at an intersection that ' provides a detour route. N @ huld be erected at random intervals as needed, in the same manner as other standard speed sigr.s. In rural areas, it shall be mounted on the right-hand side of the road with its lower edge not less than Mh 5 feet above the crown of the roadway,6 to 10 feet from the roadway edge, in urban areas, the height i shall be not less than 7 feet, and the nearest edge of ; CLOSE'D L Background white (refl.) the sign shall be not less than 1 foot back from the Border black face of the curb. Where an existing Speed Limit sign co.: Letten wh is in a su table location, the Top Safe Speed sign may conveniently be mounted directly over the face of the . older sign, wMch h supeMes. Trattic Reguletion Post Sign (CD-3) , The STOP TRAFFIC REGULATION POST sign shall be used to designate a point where an oscial MAINTAIN , post has been set up to impose such controls as are ., a necessary to limit congestion, expedite emergency l %# trame, exclude unauthonsed vehicles, or protect the public. It shall be erected in the same manner at the Background white (refl.) SME Area Closed sign at the point where traffic must stop Border black $p((Q to be checked. Letters black The standard R.1 SMP sign shall be used for this co.4 mandatory stop restriction. W supplement panel 84 * * "* TRAFFIC REGULATION POST should be mounted drectly below the SMP sign and shall consist of a Road.Use Permit Sign (CD-5) black legend on a reflectorised white background. W ROAD USE PERMIT REQUIRED FOR THRU TRAFFIC sign is to be used at an intersection, at the entrance to a route on which a traffic regulation poet is located. Its intent is to notify l Background Red (reft.) drivers of the presence of the poet so that those who O Letterswhite(ref
, Border white (reft.) do not have road-use permits issued by designated l '. authorities can detour on another route, or turn back, l without making a needless trip and without adding to 1129
o i the screening load at the post. Local traffic, without i permita, may proceed as far as the regulation post. ; The sign shall be erected in a manner similar to that l of the emergency speed sign. j ROAD USE i PERMIT i Background white (reft.) Dr$1l inkw i Border black HbwWlDrh I I Letters black FOR THRU TRAFFIC CD6 24' s 30' l I I P f I I II80 i
i i Part til ROLE OF THE MILITARY I Beginning in the early days of the Federal aid course, be divided into distinct categor:es: military ! Highway Program, and continuing through the years, actions in any theatre of operations emnronment and there has been a close link between American muitary support of civil defense-both of which will highways and national defense which has been of depend heavily upon the most efficient highway > inestimable importance in strengthening the movement facDitlar and traffic flow patterns country's security, avaBable at the time of any disaster. The latter As far back as 1922, the then Bureau of Public especially requires effective emergency highway , Roads, now the Federal Highway Administration, trame regulation planning by civil authorities and sought the advice of the Wat Department as to which military oscials, roads should be considered of strategic importance in N Department of Defense (D0D) has designned the event of war. As a resWt of this contact, the War the Department of the Army as the single manager of Department supplied a map of the United States on planning and operation of the military aspects of which were marked highways of strategic value. This emergency highway traffic regulation. (At the map signed by General John J. Pershing, became national level, this program is administered by the known as b Pershing Map. The indicated roads have Headquarters, Military Traffic Management since been substantially improved as part of the Command (MTMC).) N Department of the Army Federal aid System. has,in turn passed this responsibility through Forces Subsequently, Congress by the Federal. Aid Command (FORSCOM) to the Army area Highway Act of 1944, created the National System of commanders listed in thin part. Each Army area Interstate and Defense Highways, which' initially commander has coordinated with the Navy and Air authorised the designation of a network of 40,000 Force commanders in his area. It is expected that for mues of limited access highways (subsequently raised , some time in the post attack period the muitary will . to 42,500). This Act provided for a system "so located be the largest single highway user. as to connect by routes as direct as practicable the N Army concept of operation is to send a team to principal metropolitan areas, cities, and industrial each State emergency highway traffic regulation . centers, to serve the national defense, and to connect center when activated. Tbsse teams will, in most at suitable border points with roates of continental cases be jointly manned by all services, with the importance in the Dominion of Canada and the senior officer provided by the service with the highest Republic of Mexico." density in b area. As an example,-in Connecticut, h degree to which the national security is with its many naval installations, the Navy should dependent on highway transportation cannot be probably provide the chief of the team at the overstated. Industrial planta pscing military and Connecticut State Highway Trame Regulation defense supplies as well as the military installations Center, but each of the other services may also themselves, would be crippled without adequate provide personnel, the number dependent on highway faculties. In effect, highways have become an adjunct of industry's production line, taking a vital availabui'I and the workload
- part in the conversion of raw materials to finished Fouowing initial notification, the officer in charge products. It is estimated that almost 4,000,000 wSI proceed to the trame regulation centers to which persons are employed in defense oriented industries, he has been assigned and determine the military l with most of them relying on motor vehicles to get to Personnel and logistical support requirements. He and from their jobs. The Department of Defense will then notify the military installation commanders operates a substantial number of vehicles which of these requirements. It is to be expected that the require adequate highway capacity, number of military personnel at any traffic regulation With this explanation,let us consider the role of the center will vary from time to time as conditions military in the field of emergency preparedness as change. All services will be instructed by the background for emergency highway traffic regulation MTMC-for those instances in which such procedures l
must be implemented-to curtail or eliminate, as (EHTR) phaalar. The role of the military can, of IH.1 i
much as possible, shipments into, out of, or through Military Service regulation, the Secretary of the : J.. any affected areas. Army, through the Commander, MTMC, is the ' There are several functional areas in which the official!y designated reprnentative of D0D in all military regulation teams will perform. The principal P9blic highway matters, and acts to assure that function, of course, will be to receive requests from mditary plans for emergency highway traffic military users and obtain the necessary clearances in regulation are compatible with civil EHTR plans. I coordination with the other users staffing the These military plans recognize that each State is emergency highway traffic regulation centers, responsible for emergency highway traffic regulation Another principal function of the teams will be to in accordance with guidelines issued by the Feoeral ! request designation of class B routes whenever it is Highway Administration. Accordingly, each State , felt these routes will be reqmrod. It is the intent of the should coordinate and distribute its EHTR plan, and i military to attempt to keep convoys to a minimum, changes thereto, to the Army area commander within f although it is expected, particularly during the early whose command the State lies. (Military addresses phane of the operation, there will be a number of for distribution of EHTR plans are listed later in this ! smergency moves. Whenever possible, convoys wal part.) be consolidated and class B routes used to expedite No discussion of the military role in emergency moves through areas controlled by emergency highway traffic regulation would be complete without , highway traffic regulation. reference to the military role in support of the Another function of the military teams will be to National Civil Defense Program, which follows. . obtain information on road status and disseminate The Department of Defense, in recognition of the > this to all military installations and activities. essential interdependence of the civil and military Conversely, teams will obtain projections from defense efforts of our Nation in achieving the total , military users and keep State traffic centers advised posture of national security, has directed (DOD of projected moves. Military teams will assist civilian Directive 3025.10) that military support to civil agencies in nondefense emergency highway traffic authorities in civil defense operations is an , regulation movements, if required in accordance with emergency task within the mission of all Federal ' public law and if the military has the capabuity to active duty and Reserve units of the military senices provide this assistance, and Defense agencies. Their mission is to b2 prepared . It should be noted that these teams will not be to employ available ruources which are not engaged
- granting clearances to the military. The military in essential combat, combat support or self survival liaison officers will arrange for their vehicles to use operations to assist civil authorities to restore order road use permits just as will any user. A distinctive and civil control, return essential facilities to difference of course will be the designation of class B Operation, prevent unneccessary loss of life, alleviate routes for the use of the military. It is DOD policy to suffering and take other actions as directed to ensure use commercial transportation whenever possible. In national survival and a capability on the part of the this case the industry would obtain their own permits Nation to continue the conflict. In such employment, with assistance from the military liaison of5cers if established muitary organizational channels and necessary. It should be stressed that the issuance of prearranged plans will be followed when possible.
permits by the EHTR centers, referred to above for In the discharge of the mission action will be taken road space allocation is a separate and distinct to: (1) provide for coordination and control-both function from designating priorities of cargo proattack and post attack-of avadable military movements. As stated in Part II the EHTR (active and reserve) capabilities and available organisation is not responsible for the provision or resources; (2) establishment under CDR FORSCOM u allocation of motor vehicles to shippers nor for and the CONUS Army commanders of State military designating priorities of cargo movements. These are headquarters to plan for and conduct operations in the assigned functions of other emergency - support of civil defense utdismg the State adjutants transportation agencies. The EHTR organization will general and the State headquarters and headquarters accept the priority certificates of such agencies detachments; and (3) establishment of a State level ! without question and will have the responsibility in system wherein the State a4utant general will be
- issuing road.use permits to accommodate all priority responsible for the preattack planning and l shipments. emergency operations for such forces of all senices Each Army area command has prepared a military as may be available within the State for civil defense EHTR plan which recognises that the Federal support purposes.
Highway Administration has national responsibility The channel of command for all military support of f;r highway traffic regulation during national civil defense plannmg and operations is from defense emergencies. By DOD directives and Joint Headquarters Department of the Army, through ! III.2 l- --. .. . .. .
CDR FORSCOM to the CONUS Army Commanders. it be possible. Following a nuclear attack the Armed This includes all preattack civil defense planning, the Forces simply would not have the manpower , assignment of missions, and post. attack civil defense necessary to perform these civil functions even if it L operations, it also applies to class !! installation were not needed for military operations. The military commanders and the avausble resources of the wui expect the civilian EHTR program to control and defense agencies placed under the planning and regulate the usable highway road net. The military, operational command of CONUS Army commands however, will provide staffing at certain and, l for national defense emergencies. possibly, all of the EHTR centers just as other users When authorized by the President, under an will provide staffing to ensure that appropnate road l appropriate Executive order to be issued during a space allocations and assignrnents are made for those national defense emergency, or during the prelude *o high prionty muitary and other essential movements. I such a situation, the State headquarters and The only occasion for the military to assume full headquarters detachments of the National Guard in contra O highway traffic regulation would be in a each of the States,less elements required for conduct theatM < perations, of selective service and State defense activities, wBl The following policy statement is the current be ordered to active duty. These detachments wdl guidance for emergency planning purposes: execute the CONUS Army commander's plan for " Nationwide martial law is not an acceptable control of military support within each respective plar,, ting assumption; martial law as a local measure State, is to ho avoided wherever possible." Consequently, all Upon order to active duty, the State level civil emergency planning is based on the premise that headquarters will continue close liaison with the State the mBitary services would assist but not replace civ0 governors, the State civil defense director and other government in carrying out its es ential functions. l appropriate state and local authorities. The State Additionalinformation concerning the role of the
- level commanders wn! assume command of such units military in emergency highway traffic regulation may l and resources for military assistance to civil be found in the following publications, copies of which authorities as may be designated by CONUS Army may be obtained through the nearest military commanders. Installation to the requester.
Requests for military support normally will be a. DOD Direct ve Number 3025.10, " Military accepted no lower than the State civ0 defense Support of Civil Defense." mrector
- b. DOD Directive Number 5160.60 " Highways for Plans will be developed and maintained as National Defense."
necessary to assist civil authorities in times of
- c. Army Regulation 55-80. " Highways for National emergency in restonng Federal, State and local em, l Deh""'"
operations. Such interim emergency assistance will be in coordination with and supplementary to, the d. Army Regulation 55162. " Permits for Oversize, capabilities of State and local governments and other Overweight or Other Special Military Movements on nonmuitary organizations and will be concerned with Public Highways. ." the specific categories of assistance as explainedlater o. Army Regulation 55 855, " Military Traffic in this part. Management Regulation." In planning for emergency operations the comment f. Army Regulation 500 70, " Emergency is often heard that planning by civilian authorities is a Employment of Army Resources." useless exercise because, in a serious emergency Copies of these publications will be of interest to martial law would be declared and the military anyone concerned with emergency hig'away traffic authotities would assume the functions of civil regulation training and they wCl be useful tools for government. This of course is not planned nor would State EHTR centers. III8
t MILITARY ADDRESSSS FCR DISTRIBUTi^N OF ENTR PLANS Agmy Area . Reg 6es ! Conunaneng General Con..ecoeut New Hampsh.re
' Flrgt Unites States Army Mame New York Atta: AFKA-LG Mannschusetts Rhode Island i Fort George G. Meade. Maryland 20766 New Jersey Vermont i Pueno Rico ahound send a copy of its plan to:
Commanoer U.S. Army Gamson ' Attn: AFZL-Di Fort Buchanan. Pueno Rico 00934 Regma 3 Commanding General Deltware Pennsylvana Firet Uruted States Army Datnet of Columbia Virgma Atta: AFKA-LG Maryland West Virgma Fort George G. Meade. Maryland 20765 Maryland Virgem and the Detnet of Columba should also trananut a copy to: 5 Commandmg Gene d
- Milnary DLtnet of Washington Fort Lube J. McNair Wmahmgton D.C. 20316 Regan 4 Commanding General Alabama '
Missamppi Second Urusad States Army Flonda North Carchna Attn: ATKD-LG Georga South Carohna Fort Gillem. Georgia 30060 Kentucky Ter.nessee Region 5 [ Commanding General Riinos Fourth United States Army Minnuota Indana Waconam ' Attn: AFKE-LG Michigan 1 Fort Shendan. Illinolo 60087 1 Ohio should send a oppy of its plan to: 1 Commandma General 1 Firet Uruted States Army Attn: AFKA LG . - l Fort George G. Meade. Maryland 20756 Region 8 Commandmg General Arkansas Ok'ahoma i rifth Uruted States Army Lousana Tetas Attn: AFKB-LG New Menaco i Fort Sam Houston. Texas 78234 j Reg 6on 7 Commanding General Kansas Missoun Fifth United States Anny Nebraska Attn: AFKB-LG Fort Sam Houaton Tenna 78234 lows should send a copy of its plan to: Commanding General Fourth United States Army I Atta: AFKE-LG ' Fort Shenden. Dlinois 60087 Reg 6en a Commandmr General Colorado South Dakota Sixth United States Army Montana Utah Attn: AFKC-LG North Dakota Wyoming Presubo of San Franemoo. Califorma 94129 Reg 6es 9 and Region 10 ; C General Armona Nevada l Sixth Uni States Army Cahforma Oregon
~ Atta: AFKC-LG !
Idaho Weahington j Proeuho of San Francueo California 94129 H: wail should send a copy of its plan to: Commander U.S. Army Western Command Attn: AFZB-DI Fort Shafter. Hawaii 96868
' Almaka abould send a copy of its plan to:
Commander 172nd Infantry Bnsade (Alaska) Attn: AFZT-DI Fort Rwhardson Alaska 99606 III4
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r e Part IV NUCLEAR RADIATION HAZARDS TO HIGHWAY TRANSPORTATION Guidance from FEMA on the hazards of operating these organizations and often play major roles in in a radiological environment subsequent to an attack their statewide radiological monitoring systems. on this Nation should be closely heeded. This The EHTR organization should maintain constant guidance has been disseminated to the various State communications with elements of this system in the establishment of class "A routes as well as aner-emergency services organizations throughout the taining the possible radiological impact on personnel country. State highway agencies work closely with operating on all classes of regulated routes. IV 1
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Part V EVACUATION PLANNING FOR ! NATURAL DISASTERS, ) TECHNOLOGICAL HAZARDS l AND NUCLEAR ATTACK l l CHAPTER l-AN OVERVIEW TO EVACUATION Many threats may require evacuating people from there will be many millions of survivors should the ! areas consided to be dangerous-if the threat crisis escalate to a large.seale nuclear exchange. i developed into an actuality. Many other kinds of peacetime threats may also ) An example is a severe international crisis require evacuation. Natural disasters such as i which-if negotiations to settle the crisis were not ht;rricanes, floods, earthquakes and volcanoes are successful-could escalate to a nuclear attack on the examples of such disasters. Additionally, accidents , United States. Nuclear attack evacuation planning invohing release of hasardous materials are possible, was started in each of the States between 1977 and which may necessitate movement of persons away , 1979. The plans will provide an option to protect the from the accident. ' 145 million people living in potential nuclear attack In case of a developing threat by one of these, it
" risk areas." This option is to give the United States i could be necessary to rapidly develop plans for the a capability to evacuate people from risk areas over a possibility of evacuation if relocation plans have not period of several days, during a severe crisis, to already been prepared. For example, it is possible surrounding lower risk " host" areas.
that a sevm international crisis could arise before Population Protection plans are being developed as detailed evacuation plans have been developed for all one aspect of implementing civil defense policies United Stater high risk areas, and it is conceivable l l specified in Presidential National Security Decision that evacuation could be directed even though plans I Directive of March 1982. This directive provides that were not available for some areas. j
". . .the United States civil defense program should Peacetime experience shows that evacuation.from i enhance deterrence nd stability. . .and also reduce smaller. scale threats, with relatively smaller numbers the possibility that the Soviets could coerce the {
of people involved can be and often is handled on an United States in times of increased tension." The improvised basis, without plans developed in advance. directive also specifies that the program include But experience also shows that planning is essential planning for population evacuation during times of where acores or hundreds of thousands (or millions) of international crimes u well as natural disasters, people need to be evacuated. l technological hasards and other peacetime The basic akaaing approach for evacuation is the I emergencies, ' same regardless of the type of threat. One of the main Population Protection plans involve maving risk considerations is transportation and movement area populations, providing food, temporary lodging, planning. State highway organizations should and other support, and developmg fallout protection establish and maintain a close liaison with the State l for the evacuees in the host arena. If time and Emergency Services / Civil Defense Agency in order circumstances during a crisis permit evacuating most .to insure that State EHTR Plans are compatible with of the population, and . developing protection, other State emergency planning efforts. l l 1 i l l l l l l l V1
I l Chapter II NATURAL DISASTERS l TECHNOLOGICAL HAZARDS AND NUCLEAR ATTACK l A number of natural disasters can be categorized as and Federal agencies. This is required d the l having sumcient warning associated with them that responsible authonties are to be able to assess the evacuation is often an appropriate emergency action. severity of an emergency and, if necessary, execute i Although this action will not save property, it will emergency protective actions such as evacuating save a life. populations near nuclear facilities or sheltenng them : When determined to be the appropriate action due inplace. to an impending hurricane, flood or volcano eruption, It is not possible to predict with precision the key State omeials, should be prepared to implement amount of warning time that would be available in a State Emergency Highway Traffic Regulation Plans. given community or the intensity or duration of the To date, approximately 37 percent of the hazard before the onset of a radiological accident. jurisdictions in the United States requiring nuclear This would depend upon the type and severity of the attack evacuation plans have developed them. These accident, weather condicons, in particular the winds plans include annexes covermg communications, prevatling at the time, and other factors, warning, command and control, movement, lodging For many years, EHTR guidance has concerned and feeding, shelter, law enforcement, firefighting, Itulf with post attack emergency management of the search and rescue, etc. With the development of the Nation's highway system, traffic control, signing and Integerated Emergency Management System road une permits. As these actions are provided for in (IEMS), generic emergency planning will integrate State EHTR Plans, it is essentist that current State the full spectrum of hazards and thresta of dinaster EHTR Plans be revised to include the pre attack into a single emergency plan (i.e., Population consideration of military mobilization and population Protection Plan) for the jurisdiction. evacuation from areas surrounding military likewise, several technological hasards can occur installations and large population centers. or threaten in which local emergency service officials Military mobilisation, once ordered by the will deem it necessary to initiate evacuation of a President, will require trame control in the vicinity of community, county or several counties in a State, military bases, ports of embarkation and at industrial Examples of this are transportation accidents centers which supply military equipment. It can be involving hasardous materials, i.e., toxic chemicals anticipated that the military will periodically require and radioactive materials and the accidental release the un of highways for convoy purposes but not on a of radioactive materials from a fixed nuclear facility. continuous basis. l There are approximately 170 commercial nuclear EHTR State planners should exercise close power reactors licensed to operate, under coordination with designated military transportation l construction, or planned throughout the United officials in order to provide for military mobilization i States. Accidental release of radioactive material to requtrements which could involve utilization of the environment is possible. Should this occur, the highway road space durmg emergency conditions, l operator of the nuclear facility would promptly Included in the Population Protection Plan is the determine the magnitude of the accident, and notify nuclear attack hazard which involves the evacuation emergency officials of nearby jurisdictions and the of the American population in risk areas surrounding ( State. If significant off. site contamination is military installations and large population centers ) anticipated, the facility operator will recommend to State and local government officials appropriate following a Presidential declaration of a National Defense Emergency and by direction of a State protective actions for the public. As in the case of Governor, preparedness for nuclear attack, time, distance and State population protection measures will be shielding are important factors in avoiding implemented by the Governor of each State at the radiological exposure from the consequences of a request of the President. This evacuation could nuclear facility accident, involve as many as 145 million people from Plannmg for effective community response to approximately 400 risk areas. Approximately 10 20 nuclear power reactor emergencies is a joint effort by percent of these people can be expected to leave in nuclear facility management, and local, State, advance of a nationally directed evacuation. Once an V2
4 evacuation has been directed, movement should be transportation highway of3cials in order to achieve . complete from most risk areas within 72 hours. effective transportation planmng. This planning will ! Larger urbanised areas will require longer time include analysis of movement routes, public periods. In these larger urbanised areas the minimum transportation, sources of automobiles, trucks and ; duration of the evacuation period is expected to be buses, designating rest and stagmg areas, movement r seven days and the maximum several weeks or more, contr 1, breakdowns, parking, fuel and variety of other considerations. The primary transportation resource for such State highway emergency planners are encouraged ! evacuation will be the automobile. Population to establish a working liaison with State Emergency i Protection Planning by State Planners will require Services /CMI Defense Agency Population Protection extensive coordination and cooperation with State Planners. i v e a l V3
I I I APPENDIX A EXECUTIVE ORDER 11490 ASSIGNING EMERGENCY PREPAREDNESS FUNCTIONS TO FEDERAL DEPARTMENTS AND AGENCIES WHE RE AS our national security is dependent upon undertaken by the departments and agencies pursuant our ability to assure continuity of govemment, at to this Order, except as provided in Section 3003, shall . every level, in any national emergency type situation be in accordance with guidance provided by, and that might conceivably confront the nation; and subject to, evaluation by the Director of the Federal WHEREAS effective national preparedness Emergency Management Agency, planning to meet such an e.mergency, including a (b) The depanments and agencies of the Federal masshe nuclear attack, is essential to our national Government are hereby severally charged with the survival; and duty of assurmg the continuity of the Federal WHEREAS effective national preparedness Government in any national ernergency type situation planning requires the identification of functions that that might confront the nation. To this end, each would have to be performed during such an department and agency with essential functions, emergency, the assignment of responsibility for whether expressly identified in this order or not, shall developing plans for performing these functions, and develop such plans and take such actions, including but the assignment of responsibility for developing the capability to implement those plans; and not limited to those spectfied in this order, as may be n== mary to assure that it will be able to perform its WHEREAS the Congress has directed the essential functions, and continue as a viable part of the t development of such national emergency preparedness Federal Govemment, during any emergency that l plaris and has provided funds for the accomplishment thereot; and might conceivably occur. These include plans for main- 1 taining the continuity of essential functions of the ! WHEREAS this national emergency preparedness department or agency at the seat of govemment and ' planning activity has been an established program of elsewhere, through programs concemed with: (1) I the United States Government for more than 20 years: ' Succession of ofSce; (2) predelegation of emergency Now, therefore, by virtue of the authority vested in authority; (3) safekeeping of essential records; (4) me as President of the United States, and pursuant to Reorganization Plan No.1 of 1968 (72 Stat.1799), the emergency relocation sites supported by communications and required services; (5) emergency National Security Act of 1947, as amended, the action steps; (6) alternate headquarters or command Defense Production Act of 1960, as amended, and the facilities; and (7) protection of Government resources, Federal Civil Defense Act, as amended, it is herebY ordered as follows: facilities, and personnel. The continuity of Govern-ment activities undertaken by the departments and PART 1-PURPOSE AND SCOPE agencies shall be in accordance with guidance provided SECTION 101. PURPOSE. 'this ottier consolidates by, and subject to evaluation, by the Director of the the assignment of emergency preparedness functions Federal Emergency Management Agency. to various departments and agencies heretofore (c) In addition to the activities indicated above, the i ! contained in the 21 Executive orders and 2 Defense heads of departments and agencies described in Parts l l Mobilization orders listed in Section 3015 of this order. 2 through 29 of this order shall: (1) prepare national i Assignments have been adjusted to conform to emergency plans, develop preparedness programs, I changes in organisation which have occurred and attain an appropriate state of readiness with subsequent to the issuance of those Executive orders respect to the functions assigned to them in this order and Defense Mobihsation orders. for all conditions of national emergency; (2) give SECTION 102. SCOPE. (a) This order is concerned appropriate considation to argency preparedness , with the emergency national planning and factors in the conduct of thmgular functions of theu-preparedness functions of the several departments and agencies, particularly those functions considered agencies of the Federal Government which essential in time of emergency, and (8) be prepared to complement the military readiness planning implement, m the event of an emergency, all i responsibilities of the Department of Defense; appropriate plans developed under this order.
)
together, these measures provide the basic foundation SECTION 108. GENERAL COORDINATION. The for our overall national preparedness posture, and are Director of the Federal Emergency Management fundamental to our ability to suMee. The activities Agency (FEMA) shall determine national l A1 l 1
preparedness goals and policies for the performance (6) Rehabilitation and recovery of the Nation's of functions under this Order and coordinate the transtmrtation systems; and performance of such functions with the total national (7) p.ovisions for port secunty and safety, for aids preparedness programs. to mantime navigation, and for search and rescue SECTION 104. GENERAL AND SPECIFIC and law enforcement over, upon, and under the FUNCTIONS. The functions assigned by Part 30, navigable waters of the United States and the high General Provisions, apply to all departments and seas. agencies having emergency prepardness responsibilities. Specific functions are aasigned to SECTION 1302. TRANSPORTATION PLANN. departments 2nd agencies covered in Parts 2 through ING AND COORDINATION FUNCTIONS. In carry.
- 29. ing out the provisions of Section 1301, the Secretary '
SECTION 105. CONSTRUCTION. The purpose of Transport 'on, with assistance and support of and legal effect of the assignments contained in this other Federal, State and local governmental order do not constitute authority to implement the agencies, and the transport industries, as emergency plans prepared pursuant to this order. appropriate, shall: Plans so developed may be effectuated only in the (1) Obtain, assemble, analyze, and evaluate data on event that authority for such effectuation is provided current and projected emergency requiremer,ts of all by a law enacted by the Congress or by an order or claimants for all forms of civil transportation to meet directive issued by the President pursuant to statutes the needs of the military and of the civil economy, and of the Constitution of the United States, on current t.nd projected civil tranportation resources-of all forms-available to the United PART 13-DEPARTMENT OF TRANSPORTATION States to move passengers or materials in an SECTION 1301. RESUME OF RESPONSIBIL. emergency. I'llES. The Secretary of Transportion, in carrying (2) Develop plans and procedures to provide-under out his responsibilities to exercise leadership in emergency conditions-for the collection and analysis transportation matters affecting the national defense of passenger and cargo movement demands as they and those involving national or regional trans* relate to the capabilities of the various forms of portation emergencies, shall prepare emergency transport, including the periodic assessment of over-plans and develop preparedness programs covenng: all transport resources available to meet emergency (1) Preparation and promulgation of over.all requirements, national policies, plans, and procedures related to (3) Conduct a continuing analysis of transportation providing civil transportation of all forms-air, requirements and capabilities in relation to economic ground, water, and pipelines, including public storage projections for the purpose of initiating actions and warehousing (except storage of petroleum and and/or recommending incentive and/or regulatory gas and agricultural food resources including cold programs designed to stimulate government and storage): Prwided that plans for the movement of industry improvement of the structure of the petroleum and natural gas through pipelines shall be transportation system for use in an emergency, the responsibility of the Secretary of the Interior except to the extent that such plans are a part of ( p ,ys g g g 9g g functions vested in the Secretary of Transportation movement of passengers and cargo by all forms of by law. ' transportation, except for those resources owned by, (2) Movement of paasengers and materials of all controlled by, or under the jurisdiction of the types by all forms of civil transportation; Department of Defense, including allocation of resources and assignment of priorities, and develop (3) Determination of the proper apportionment and policies, standards, and procedures for emergency allocation for control of the total civil transportation enforcement of these controls. j capacity, or any portion thereof, to meet overall essential civil and military needs; SECTION 1308. DEPARTMENTAL EMER-(4) Determination and identification of the GENCY TRANSPORTATION PREPAREDNESS. transportion resources available and required to meet Except for those resources mmed by, controlled by, all degrees of national emergencies and regional or under the jurisdiction of the Department of transportation emergencies: Defense, the Secretary of Transportation shall (5) Assistance to the various States, the local prepare emergency operational plans and programs political subdivisions thereof, and non governmental for, and develop a capability to carry out, the organizations and systems engaged in transportation transporta* ion operating responsibilities assigned to activities in the preparation of emergency plans; the Department, including but not limited to: A.2 3
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* (1) Allocating specifically designated civil air (4) Emergency plans for urban mass carrier type aircraft to the Civil Reserve Air Fleet transportation, including:
f ' (CRAF) and to the War Air Service Program. (WASP). (a) Providing guidance to urban communities in i l their emergency mass transportation planning - j (2) Emergency resource management of the efforts, either directly or through State, regional, or l Nstional Aviation System, which is the physical metropolitan agencies; j con.olex of civil airmen, aircraft (including air carrier (b) Coordinating all such emergency planning ! and ceneral aviation aircraft), airports, airspace and with the Department of Housing and Urban - l facilit es and services, regulations, p!ans, standards, Development to assure compatibility with emergency ' procederes and practices associated with the plans for all other aspects of urban development: complex, for i nergency management of the National (c) Maintaining an inventory of urban -mass Airspace System, and for control of civil and military transportation systems, air traffic, except as provided in Part 15 herein. In (5) Maritime safety and law enforcement over, the performance of these responsibilities: upon, and under the high seas and waters, subject to 1 (a) The Secretary of Transportation, assisted by the jurisdiction of the United States, in the following specific programs: l the Civil Aeronautics Board as appropriate, shall, '! with respect to WASP and CRAF aircraft, be (a) Safeguarding vessels, harbors, ports, and - responsible for the functions enumerated in Sections waterfront facilities from destruction, loss or injury, l 3001 (excluding evaluation), 3002, 3003 and 3005. accidents, or other causes of a similar nature. l When CRAF is activated by the Secretary of (b) Safe passage over, upon, and under the high I Defense, the Secretary of Transportation retains the seas and United States waters through effective and responsibility for the claimancy function for CRAF reliable systems of aids to navigation and ocean aircraft, stations. ' (b) The Secretary of Transportation, assisted by (c) Watabag access to ice bound locations in the Secretary of Defente, shall, with respect to the furtherance of national economic, scientific, defense, . _ and comne neds, CRAF program, specifically when civil air carrier i aircraft allocated thereto are withdrawn for use in (d) Protection of lives, property, . natural J the program, retain responsibility for clainuncy as res urces, and national interests through ! provided in Section 3001, enf reement of Federallaw and timely assistance.
-l (e) Safety of life and property through regulation ;
(3) Emergency resource manage - if all of commerical vessels, their officers and crew, and Federal, State, city, local, and other high roads, administration of maritime safety law, streets, bridges, tunnels, and appurtep , etums, 1 (f) Knowledge of the sea, its boundaries, and its ! and publicly owned highway maintens ' .ipment, including: resources through collection and analysis of data in I support of the nationalinterest. (a) The adaptation, developme>... .onstruction, (g) Operational readiness for essential wartime reconstruction, and maintenance of the nation's functions. I highway and street systems to mut emergency (6) Planning for the emergency management and requirements; and ! operations of the Alaska Railroad, and for' the ! (b) The regulation of highway traffic in an continuity of railroad and petroleum pipeline safety i emergency through a national program in programs. ! cooperation with all Federal, State, and local (7) Planning for the emergency operation and , governmental units concerned to assure efficient and maintenance of the United States controlled sections safe utilization of available road space. l of the Saint Lawrence Seaway, < h i A8 s
31 APPENDlX B ARMY REGULATION 65 355 PARAGRAPH 100008 HIGHWAY TRAFFIC REGULATION Highway Traffic Regulation. Federal Highway various highways. All highway traffic regulation Administration (FHWA), under the Secretary of operations will be decentralized to the maximum Transportation, is responsible for planning a highway extent possible consistent with the attainment of the trame regulation system to facilitate the orderly flow overall objectives. Implementation and direction of of trame under a national emergency situation. This highway traffic regulation will be exercised on routes j l planning function includes, but is not limited to, only where and so long as traffic demand exceeds i evacuation, regulation of movement through traffic capacity and, in restricted areas, on routes dangerous areas, and clearance of priority traffic where and so long as highway users must be over routes of limited capacity. Highway traffic protected from exposure to radiological or other hazards. Priority permits wil be required for a vehicle regulation demands the participation and teamwork t traverse a regulated highway route. The carrier (or . of highway and police officials working in close driver of the vehicle) will secure the necessary association with emergency transportation Permit (s) by presenting the Government bill oflading, o organizations and organized highway users. In an , transportatim mquat, or other trans-l' emergency, highway traffic regulation centers way@ porta ten document to the appropriate con established at State and district levels and highway sector, or post. Normally, permit requests for traffic sectors established at county, city, or interstate, intrastate, or local' movements will be j metropolitan area levels, will determine how the handled by control center, sector, or post personnel, . I highway network is to be operated, and will allocate respectively. When carriers are unable to secure road space, as necessary, to meet movement permits for the movement of DOD personnel and priorities and precedence established . by other freight, transportation officers, when requested by emergency transportation organizations. The carriers, will assist to the extent possible in obtaining - 1
. emergency highway traffic regulation orgamzstion is the necessary permits. ' When such assistance is ;
not responsible for the provision.or allocation of unsuccessful, transportation officers may contact j motor vehicles to shippers nor for designating their MTMC r.rea commander for further support in i priorities of movements. The control centers and accordance with the provisions of paragraph 104002, sectors will operate highway traffic regulation posts. The necessity for any such movement must be clearly ; as necessary, to control access to and movements on indicated. B1
. .-~ -. . . - - - -.. - - -
A APPENDIX C 15 December 1982 AR 66 80/OPN AVINST 11210.181 AFR 76 88/MCO 11210.2CIDLAR 4500.19 CHAPTER 4 ' SPECIAL DEFENSE USE OF PUBLIC HIGHWAYS 4-1. General. Special Defense use of public d. In developing vehicles, materiel, or components highways is subject to the laws and regulations of the of materiel, the agency will keep the contractor States and political subdivisions. This does not apply informed of sizes and weights that are not to be for overriding and urgent military necessity, exceeded. 4-2. Military vehicle-highway relationshipe. 4-3. Special military movements,
- s. Highways today are designed to serve the a. Military movements over public highways that national defense for many years. However, their exceed legal size or weight, or any other special functional (geometric) clearance and other physical military movement, will comply with paragraph 16.
makeup still may have limitations. Legal limits can be
- 6. To request permits for oversize, overweight, or exceeded by a reasonable amount when there ,s i good other special military movements on public highways, reason; however, when scientifically established and report on movements that cannot be made, see physical limitations are exceeded, it reduces the AR 55162/0PNAVINST 4600.11D/AFR 75-24/MCO.
effectiveness of a highway. It may also increase 4648.5C/DLAR 4540.8. That regulation cites a maintenance for its contm, ual use and cause directory of individuals in each State and DOD who permanent damage. This will require the highway to will be contacted for permits.. The Commander, be reconstructed. Highways and bridges are not MTMC c~ repares and publishes the directory, expendable and, if seriously damaged or destroyed, o The policy of the American Association of rate they_ cannot be repaired or replaced during a major emergency, except for isolated cases, Highway and Transportation Officials, during peacetime, designates D0D to be the sole certifying
- 6. A few special purpose and tactical military agency for all movements declared essential to the vehicles must be developed that are larger or weigh national defense. During a national emergency,
~
more than legally permitted on public highways. movements would be far greater in scope. Therefore Accordmgly, during the development of land vehicles those not under direct control of the military which exceed the criteria in AR 7044/OPNAVINST departments or Defense agen&s would be certified 4600.22B/AFR 8018/MC04610.14 C/DLAR 4500.25, - by the proper emergency transportation authority. the. transportability agencies will inform the d. The Commander, 'MTMC, will develop and Commander, MTMC, of the proposed vehicles. The coordinate policy and related procedures for special length, width, height, axle spacmg and load, gross military movement on public highways. This will be weight, type, sino and pressure of tires, and turning done in cooperation with the American Association of radius will be included. The Commander, MTMC, will State Highway and Transportation Officials and the furnish comments - and recommendations to the FHWA* transportabuity agency. Established joint policies and official working relationships with States will be a hn the type or frequency of md. tary movements are expected to damage public highways, )- explained in the comments. follow procedures in chapter 3.
- c. The transportability agency will inform Commander, MTMC, when standardisation is started 4-4. Emergency highway traffic regulation. i on vehicles that, when transp Gug a load for which a. Durmg a national emergency, civil authorities i designed, exceed the aforementioned limitations and may have to regulate traffic on public highways for criteria. This applies to all items transported on safe and quick movements of priority personnel and highway vehicles. The nature of the vehicles or items materiel (Executive Order 11490). This may require ,
and the numbers that may be procured will be given. regulating movements through dangerous areas or ! This will insure that proper action is taken on the clearmg priority traffic over routes of limited design and the use of public highways. capacity. Regulating'the traf3c insures the highest C1 i 1
)
AR 4540CPNAVINST 11210.15 15 December 1942 AFR 7548/MCO 11210.2CIDLAR 4800.19 degree of highway use under adverse conditions. This (a) Estimate highway capacities, ! will be done on routes only where and when traf$c .4) Provide information on the location and demand exceeds traffic capacity. This will also be intensity of hazards, l done in restricted areas where and when highway (c) Determine available routes in their highway users must be protected from exposure to radiological network, and or other hazards. The main function of highway (d) Provide for police enforcement.
- traffic regulation is to allocate available road space to (4) Local plans implement and supplement the j meet movement pnonties. State's organization and plan. l
- b. Emergency highway traf6c regulation requires (5) At State and local levels, the highway user I close cooperation of the Federal Government, the groups will be permitted under established national State highway departments, State and local police, priority guidelines, to operate , over regulated i and highway users, including the military- highways.
(1) The FHWA will develop a national program (6) As directed by CG, FORSCOM, each CONUS to effectively regulate emergency highway traffic. Army commander and senior Army commanders for (2) The Commander, MTMC, will insure that Alaska and Puerto Rico will prepare plans for their l FHWA integrates the operational requirements of installations and activities to take part. The plans will i the military departments into this national program. contain responsibilities and guidance for the 1 MTMC will inform DCSOPS, DA promptly of any installation on taking part in emergency highway actual or foreseen interference with military operations. CG, Western Command, will prepare i cperational requirements. plans for installations and activities in Hawaii. (3) State authorities will develop plans to (7) Upon request from the CONUS Army, regulate emergency highway traffic in their area. commanders of DOD installations will provide These plans must be within the general guidelines of responsible and knowledgeable people to represent the national program. State authorities will: the military at State and local levels. k C-2
o,- APPENDlX D U. S. DEPARTMENT OF TRANSPORTATION FEDERAL HIGHWAY ADMINISTRATION FEDERAL-AID HIGHWAY PROGRAM MANUAL VOLUME 4 PLANNING AND POLICY DEVELOPMENT CHAPTER 7 EMERGENCY PREPAREDNESS SECTION 2 EMERGENCY STANDBY ORDERS SUBSECTION 1 PROTECTION OF CRITICAL HIGHWAY FACILITIES AGAINST SABOTAGE Transmittal 357 July 11, 1983 HHP-10 Par. 1. Purpose
- 2. Implementation
- 3. Policy
- 4. Critical Facility Determination
- 5. Security Measures for Highway Facilities
- 6. Summary
]
- 1. PURPOSE. To outline the need for, and to set forth recommended actions-concerning the protection of critical highway facilities against sabotage.
- 2. IMPLEMENTATION a.
Highway facilities that are critical and vulnerable should be identified and arrangements'should be made : for their protection, before the emergency. ' L b. The security aspects of this directive should be , effective when: (1) there is a threat of a covert attack (e.g. during I a period of international tension) or (2) there is a possibility of acts of sabotage being perpetrated by a dissident group or groups. D1
J ; Federal-Aid Highway Program Manual Vol. 4, Ch. 7 l
. Transmittal 357, July 11, 1983 Sec. 2, Subsec. 1 l
- 3. POLICY a .- Effective planning and l- highway agencies (SHAs)can policy formulation minimize by the State the adverse effects of sabotage. It is the responsibility of the Federal Highway Administration (FHWA) to encourage the SHAs to develop plans for the protection of critical highway facilities and resources. The FHWA will also make every possible effort to provide the States with i intelligence concerning possible covert action.
- b. In addition, the FHWA will advise the SHAs on procedures for selection of facilities to be protected and techniques to be used in protecting these facilities.
- 4. CRITICAL FACILITY DETERMINATION
- a. Selected management representatives of the SHAs should evaluate existing highway facilities within the State and identify those that are critical and/or vulnerable. .
A facility is considered critical if its loss would J seriously impair transportation in an important corridor. A facility is considered vulnerable if it is -- particularly susceptlble to damage by a potential saboteur. Facilities that are both critlcal and vulnerable should be given priority in any protection program,
- b. Im ortant factors for determining the criticality of a hi hway facility are:
(1) the average daily traffic count,
'(2) the replacement factor, i.e., that period of time necessary to restore the facility if it were-damaged or destroyed, (3) the availability of alternate routes, (4) the importance of the facility to defense, production and/or military operations, and \
(5) functional classification,
- c. Im?ortant factors for determining the vulnerability of a '11ghway facility are:
D2
rt . A Federal Aid Highway Program Manual Vol. 4, Ch. 7 Transmittal .357, July 11, 1983 Sec. 2, Subsec. 1 (1) the susceptibility of the facility involved to-damage by an explosive charge, (2) the susceptibility of the facility involved to a planned traffic incident, (3) the ease of access to the facility by outsiders, and (4) the flammable nature of certain materials that are normally stored in areas such as equipment. yards near the facility.
- 5. SECURITY MEASURES FOR HIGHWAY FACILITIES
- a. The most critical and vulnerable highway facilities are bridges and tunnels. During a period of international tension and crisis including war or as a result of threatened dissident action, it may become necessary to-implement all available security measures in order to protect certain bridges and/or tunnels. Normally, the SHAs cannot be expected to provide'the personnel for around-the-clock guard forces. Therefore, it is recommended that the SHAs make arrangements to obtain assistance from State or local law enforcement i agencies, National Guard units, State militia units, or j other military. forces situated in the immediate vicinity of the bridge and/or tunnel. Guidelines for
-providing protective measures for bridges and/or tunnels are listed below:
(1) Guard forces can be ambulatory and/or in a motor patrol. (2) Guards should be placed at each end of the bridge / tunnel and possibly at. intervals along the ' span or inside the tunnel. Traffic should not be-stopped unless a search of every vehicle traversing the route is necessary. (3) Security forces should be armed. The controlling authority (ies) of these forces should provide a thorough indoctrination in use of weapons. (4) Flood lighting may be necessary to light tunnel entrances, abutments, and piers. Eh8
n 4 v i ( Federal-Aid Highway Program Manual Vol. 4, Ch. 7 Transmittal 357, July 11, 1983 Sec. 2, Subsec. 1 (5) Patrol boats may be required to provide added surveillance for the substructure of certain bridges. (6) Surveillance of the draw mechanism of drawbridges should be provided. (7) The feasibility of closed-circuit-TV systems should be explored.
- b. Appropriate measures should be taken to protect other critical highway facilities when there is a threat of an attack or a distinct possibility of dissident action. Listed below is a summary of the more common measures employed for the protection of operating facilities, equipment yards, etc.:
(1) Obtain the assistance of law enforcement agencies, National Guard, State militia, etc. j (2) Establish a security organization. (3) Erect perimeter fencing to deter potential , , intruders. > (4)- Provide additional lighting for areas that are -i vulnerable to intrusion. (5) Establish a system of identification and control of access to and egress from sensitive areas. (6)- Develop a fire prevention program in coordination with local fire officials and encourage the active participation of all employees. 4 (7) Develop a plan-for alcrting key officials and test the plan frequently. (8) Develop an evacuation plan for operating i facilities and test the plan frequently. (9) Determine if there is a need to install an intrusion detection system (s) in specified areas of operating facilities. { . D-4
x.
'1 1
Federal-Aid Highway Program Manual Vol. 4, Ch. 7 Transmittal 357, July 11,1983 Sec. 2, Subsec. 1 (10) Develop an intelligence reporting system in1the ') community which would include provisions for the reporting of any suspicious activities around critical highway installations by local citi: ens.
- 6.
SUMMARY
. There is no uniform concept of operations to ., prevent sabotage incidents which can be applied in all , cases. The protective measures described ~in this. directive 4 have proven valuable.to-all types of organizations. .It is , recommended that they be seriously considered.for implementation where appropriate by State highway = officials , when an attack on .the United States is imminent or when J there'is a possibility of covert destructive actions by a dissident group or groups. Many of these security measures ' require an appreciable expenditure of staff and equipment. " Management must weigh the use of these resources against an improved security posture. i
'i 1
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( 'T i
..i U. S. DEPARTMENT OF TRANSPORTATION 3 FEDERAL HIGHWAY ADMINISTRATION FEDERAL-AID HIGHWAY PROGRAM MANUAL -
VOLUME 4 PLANNING AND POLICY DEVELOPMENT CHAPTER 7 EMERGENCY PREPAREDNESS SECTION 2 EMERGENCY STANDBY ORDERS i: SUBSECTION'2 OPERATIONAL STATUS REPORTING Transmittal 357 'I July 11, 1983 , HHP-10 ! Par. 1 Purpose t
- 2. Policy
- 3. Report Contents
- 4. Reporting Schedule .
- 1. PURPOSE. To establish uniform procedures for reporting the operating capability of the Federal Highway Administration (FHWA), the State highway agencies (SHAs) and the highway .
system commencing during periods of increased international- l tension and terminating in the early postattack-time period. l l
- 2. POLICY. It is the policy of the FHWA to have its regional offices report (by any means possible) at appropriate intervals during periods of increased international tension and during the initial phase of a oi national emergency the then current status of the FHWA's division and regional offices, the SHAs and the highway _
system. Division offices should report to their regional- H
- offices. Regional offices should furward a consolidated j report to the FHWA Washington Headquarters.
- 3. REPORT CONTENTS. Reports should include the following l information keyed to the same alphabetical designations:
( a. Drief outline of major highway transportation problems in each State, /
- b. Location at which the regional office is coerating with l specifics concerning various means of conmunication, c.g. , telephone numbers , radio frequencies , etc.
I 1 D7 j l
, l Federal Aid Highway Program Manual- Vol. 4, Ch. 7 !
Transmittal 357, July 11, 1983' Sec. 2, Subsec. 2 - l 1
- c. ELocation at which each division office is operating with specifics concerning various means of communication, e.g. , telephone numbers, radio frequencies, etc.
- d. Location at which each SHA is operating with specifies !
concerning various means of communication, e.g., telephone numbers, radio frequencies, etc. '
- e. Operational capability of the FHWA regional and division offices including an estimate of the number of personnel available for duty,
- f. Operational capability of the SHAs including an estimate of the number of personnel available for duty,
- g. Other pertinent information.
- 4. REPORTING SCHEDULE
- a. A report should be submitted upon direction after the
~
declaration of INITIAL ALERT or ADVANCED ALERT or .
-before an event having a significant effect on highway- -
transportation.
- b. ' Changes in the initial report should be submitted only when changes occur. -
I Ek8
,Y,. l U. S. DEPARTMENT OF TR ANSPORTATION g FEDERAL HIGHWAY ADMINISTMATION FEDERAL-AID HIGHWAY PROGRAM MANUAL , VOLUME 4 PLANNING AND POLICY DEVELOPMENT CH APTER . 7 EMERGENCY PREPAREDNESS SECTION 2' EMERGENCY STANDBY ORDERS + SUBSECTION 3 DAMAGE ASSESSMENT AND REPORTING Transmittal 357 July 11, 1983 HHP-10
-Par. 1. Purpose
- 2. Responsibilities
- 3. Background
- 4. -Procedures.
- 1. PURPOSE. To provide for.the determination and reporting, with the assistance of state highway agencies (SHAs), of the extent of damage from an attack to a selected system of the Nation's highways, roads, streets, bridges, and tunnels.
Reporting procedures include provisions for reporting the amount of debris and radiation levels on this selected system of highways.
- 2. . RESPONSIBILITIES. In the event of a national emergency as a result of an enemy attack, the Federal Highway Administration (FHWA) has the following responsibilities:
- a. Collection and evaluation of' reports of the extent of damage to selected portions of the Nation's highways, roads, streets. bridges and tunnels, including reports of partial or total interdiction of these facilities.
l
- b. Maintenance of the FHWA official map showing damage and other restrictions to the use of highways as reported.
- c. Provision of advice and guidance on long-distance routing of important highway movements.
- 3. BACKGROUND 1
- a. A computer damage assessment analysis will be made by the Federal Emergency Management Agency during the transattack and early postattack periods. This D9
..I 4
Federal-Aid Highway Program Manual Vol. 4, Ch. 7 Transmittal 357, July 11, 1983 Sec. 2, Subsec. 3 analysis will be based on data previously furnished in accordance with FHPM 6-10-2, Defense Bridges and Critica1' Highways Facilities Reports, and strike 1 information-provided by-the Department of Defense and other sources. i'
- b. A damage assessment will be performed by the SHAs in !
cooperation with the FHWA as early as conditions permit after attack. It is this assessment upon which this i directive is focused.
- 4. PROCEDURES. The postattack field assessment of damage to and/or denial of highways and highway facilities will be made primarily by the SHAs with FHWA assistance where I required. The following instructions are. based on the availability of any suitable communications media although the report format is primarily designed for teletype or facsimile transmission. These instructions are intended specifically for use in a national emergency resulting from an attack or in the event of an act of sabotage.
I
- a. The highway network on which damage is to be reported ;
consists of those highways selected by the SHAs in - accordance wth provisions of FHPM 6-10-2. L Identification of road sections and structures on this l selected system is also based upon FHPM 6-10-2. Copies y i.
-of this document shall be maintained at all relocation sites.
L b. Normally the reports will be prepared-by each division office in cooperation with the SHA as soon as any
- L definite information on highway damage or restrictions l -on the use of highways due to radiation is available.
The report should be forwarded to the regional office l >which will in turn forward it to the FHWA Washington l Headquarters. If a division office cannot communicate with its regional headquarters, the. division office should, if possible, submit the report-directly to the FHWA Washington Headquarters. Each report should be numbered in. sequence. The regional office should number its-damage reports serially and should indicate in the heading the source (s) of the report, e.g.,
- l. . Pennsylvania Division reports 1 and 2. Regional
\ reports may include reports from more than one /_ division. l 2 l D 10 1 . . .
g _ , 3 t- , 1 c _ ,o. . Federal-Aid Highway Program Manual Vol. 4, Ch. 7 Transmittal 35 7, July 11, 1983 Sec. 2, Subsec. 3 l
'1 l l
- c. Reports should be submitted on those road sections damaged to the extent that the capacity.is restricted and/or those that would be hazardous for essential traffic under controlled conditions from a radiological.
standpoint. The extent of structural damage, replacement or repair time, operational status, and the effects of radiation on a particular section should be reported in accordance with the instructions contained in Attachment 1.
- d. The description of damage report headings and codes is shown in Attachment 1. In those instances where the situation cannot be adequately covered by the codes furnished, brief narrative statements.should be-included. Attachment 2 illustrates a sample report.
t b I
-)
5 L D 11
j Federal-Aid Highway Program Manual Vol. 4, Ch. 7, Sec. 2 Transmittal 35 7, July 11, 1983 Subsec. 3 Attach. 1 ; DESCRIPTION OF' DAMAGE REPORT HEADINGS AND CODES Note: A summary line should'be' included at the beginning of each section containing one or more damaged i structures. The line should show the section ! number, route-number, section-length, maximum structural damage occurring in the section, maximum. repair time for the most extensive damage in the - section,-the coerational status reflecting the most~ extensive-damage in the section and the maximum radiation existing in the section. Column ! - Road section number - This is the number shown on-
.the' State bridge index map.
Column II Location of bridge damage, highway damage or highest radiation measurement in miles from the. beginning of section (hundredths). For bridges the mileage is given to the. nearest hundredth of a mile and increases in the direc-tion of increasing section numbers. This mileage: ' value, in conjunction with the Road Section Number and Bridge Description, provides a unique identification for each bridge in the report.
' Highway damage and radiation points would have to-be recorded on.a mileage indicator.
Note: When reporting a section summary,show SS in Column II. Column III Bridge Description - L Note: Show in Column III the appropriate code for one of the three situations below-if reporting one of those situations. (1) section summary SS . L (2) only highway damage D (3) radiation restrictions R , Otherwise, the following bridge description should be , coded in Column III. L i l l r: [ l D 18
r , t Federal-Aid Highway Program Manual Vol. 4, Ch. 7, Sec. 2 Transmittal 357, July 11, 1983 Subsec. 3. Attach. 1 Bridge description: (This is an alphanumeric code that helps identify'the bridge.) P For situations where separate structures carry two roadways in two directions of travel. The structure carrying the roadway in the direction of survey will show nothing (leave blank) in this a i column. The parallel structure carrying the-1 roadway in the opposite direction-will show the ' same mileage in Column II and in this column will i show a "P." ' T For temporary structures erected for the purpose I of carrying traffic during the repair or replace-ment of an old structure. U For underpass. This will be used only when a structure goes over a-defense highway section. UA For underpasses where the structure is reported on a defense highway section that is carried by the -) structure. 1 For a structure on the second level at an - interchange whether or not there are more than two i l e vel s '. The first-level is the lowest: roadway. 2 A structure on the third level of a multiple level interchange, j l' 3 For a structure on the fourth level of a multiple level interchange. Column IV -i The number of the route and its system type j should be printed in the following examples: ' l (1) I XX for Interstate routes. i ! (2) US XX for U.S. numbered routes. (3) S XXX for State routes. l (4) XXXXX for county, or other lower system p routes, if numbered or lettered. l Column V Length of Section - The length of the section i identified in Column I should be shown to the " l l nearest tenth of a mile. I l l D 14
II n C. Federal-Aid Highway Program Manual Vol. 4, Ch. 7, Sec. 2 Transmittal 357, July 11, 1983 Subsec. 3, Attsch. 1 Column VI Length of Structure - The total' length of the ! structure to the nearest foot is to-be shown. Note: Column VI should show the appropriate code for one of the three situations below if reporting one of thoce , situations. _l: (1) section summary SS (2) only highway damage D (3) radiation restrictions R i Column VII. Damage ' Note: If reporting only radiation restrictions, show R in this column.- Position 1 (X _ _) Extent of Structural Damage H= Highway damage--report H when there is damage to the highway surface or when there is sufficient debris to cause a road closure. L= Light--the resultant structural damage does v not prevent the immediate use of the facility-(possibly with restrictions). M= Moderate--is defined as structural damage that does not extend beyond the point where repair is more costly than replacement. S= Severe--damage to a facility is so great that it would be more economical to build anew than to-repair the damage. Postion 2 (_ X _) Cause of Damage Based on the best available information: A = Nuclear weapon ! S = Sabotage-U = IInknown Position 3 (_ _ X) Reliability of Report X= High--visual inspection by an engineer (s). D15 a______________-
e g t i
' Federal-Aid Highway Program Manual Vol. 4, Ch. 7, Sec. 2 ~
Transmittal 357, July 11, 1983 Subsec. 3, Attach, 1 Y= Reasonable--visual inspection by a competent ' source other than an engineer (s). I= Questionable--other than "X" or "Y" above. Column VIII Time required to make repair Note: If reporting only radiation restrictions, show R in this column.
'i Postion 1 (X _ _) Permanent Repairs 1 = one week or less 2 = one week to:one month 3 = one to three months 4 = three to six months 5 = six to twelve months 6 = over one year -
Position 2 (_ X _) Temporary Repairs l 1 = one week or less - 2 = one week to one month 3 = one.to three months 4 = three to six months _5 = six to twelve months 6 = over one year 1 Position 3 (_ _ X) Reliability of Estimate X= High (see Column VII, position 3) Y= Reliable (see Column VII, position 3) 4 Z =- Questionable (see Column VII, position 3) Column IX Operational Status Position 1 (X _ _) Physical Restrictions ' 1 = Open - no physical-restrictions 2 = Open - weight restrictions 3 = Open - speed restrictions 4 = Open - weight and speed restrictions 5 = Closed - bypass available 6 - Closed - no bypass available ; Position 2 (_ X _) Radiation restrictions 1 = No radiation hazard 2 = Open to controlled traffic 3 = Closed D 16 . i
r ,
'9*
1 j 9E I Federal-Aid Highway Program Manual .Vol.:4, Ch. 7, Sec. 2 Transmittal 357, July 11, 1983 .Subsec. 3,-Attach.'1 1 Position 3 (_ _ X) Reliability. l X = High (see Column VII, position 3) l Y = Reliable (see Column VII, position-3) l Z = Questionable (see Column VII, position 3) Column X Radiation Intensity (allow 5 positions)
]
Roentgens per. hour at either the location of a .l damaged bridge structure or highway damage. If I neither of the two aforementioned situations I exists, the reading indicated describes the highest. radiation on that section. (This rule applies also to a section summary.) Column XI Date of Inspection (allow 5 positions) Report the month and day (MM-DD) on which the inspection was made. Based-on the preceding instructions,~five examples of the five' most. common types of entries required to complete the damage report are shown below:
=
(1) 'Section summary I 1 I - II III IV- V VI- VII' VIII IX X XI 235 SS SS S32 25.6 SS SAY- 63Z .63Z 21.0 10-24 l L (2) A damaged structure q 150 6.78 Pl. S1 27.3 34 SAY 53Y 63Z 23.5 10-23 l L~ (3) A section with highway damage and radiation y restrictions but no bridge damage:.
- 1. 55' 8.35 DR US2 17.2 DR RAX 22Y 63Z 24.5 10-23 H
(4) A section with highway damage only: l l l 305 8.70 D S69 18.2 D HUY 21Y 51Y 0.0 10-24 l' l L D 17
p- _ .q c. e i... ,h;..
,r.
- )1 l Federal-Aid Highway Program Manual Vol. 4, Ch.-7, Sec.:2 Transmittal 35 7, July 11, 1983 Subsec. 3, Attach. 1
-(5): A'section with radiation restrictions only:
-'50 1.30 R - US2 5.5 R R 13Z 21.0 R 24' I.
l 4 _ . ,l
,4.,.
i D 18
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,w U, S. DEPARTMENT OF TR ANSPORTATION FEDERAL HIGHWAY ADMINISTRATION -
FEDERAL-AID HIGHWAY PROGRAM MANUAL vowME 4 PLANNING AND POLICY DEVELOPMENT - CHAPTER 7 EMERGENCY PREPAREDNESS SECTION 2 ' EMERGENCY STANDBY ORDERS 1 SUBSECTION 4 ESTABLISHMENT OF EMERGENCY HIGHWAY TRAFFIC ^ L REGULATION (EHTR) l Transmittal.357) l July 11, 1983 l HHP 10 o Par. 1. Purpose ) ! 2.- EHTR Program . 1
- 3. Implementation !
L
- 4. Responsibilities
-l
- 1. PURPOSE. To outline policies, responsibilities and !
procedures relating to Emergency Highway Traffic Regulation ! .(EHTR) activities and provide for the implementation of such activities before and after an attack on the United States i
-or during a major peacetime disaster.
- 2. EHTR PROGRAM
- a. Operational readiness requires the establishment of an ENTR organization prior to the need to conduct EHTR
. operations following a natural disaster, technological .
disaster, or an attack on the United States. This l L organization shall be adequate to operate a system of ! l- traffic management and control designed to regulate the
-use of highways-and facilitate urgent highway movements '
during emergency conditions. Each State EHTR organ;,tation will be staffed by representatives of the U State: highway agency, State traffic law enforcement [ agency, and-highway user organizations. Liaison with , the. United States Military and State emergency l services / civil defense agency should be established in order to facilitate State emergency plans. The l function of the EHTR organization is to manage the utilization of the highway system during time of emergency to include protection of the highway user and t the rationing of road space. The establishment of l D 21
m q c-
. Federal Aid Highway Program Manual Vol. 4, Ch. 7 Transmittal 357, July 11', 1983 Sec. 2, Subsec. 4 i
transportation priorities for cargo and personnel j movements is a function of the Federal .and State
, transportation organizations and not the EHTR l organization, o, Guidelines concerning the detailed operation of the EHTR program are contained in a A Guide for Emergency ,
Highway Traffic Regulation, published by the Federal Highway Administration (FNWA).
- c. The EHTR program is decentralized throughout the country. It becomes operational at the direction of Federal-transportation officials or State emergency ,
management authorities. Each State shall have an EHTR plan which contains procedures for the implementation and conduct of statewide EHTR operations. The EHTR will be activated under the following conditions: (1) When highway users must be protected from fallout ' resulting from a nuclear attack. (2) When traffic demand exceeds highway capacity. (3) When unauthorized traffic should be excluded from a' specific area. 3., IMPLEMENTATION. The implementation of EHTR will be made effective upon direction of the Federal Highway Administrator following an attack upon the United States or by the State emergency management. authorities following a-natural or technological disaster. The following. situations could arise:
- a. The Federal Highway Administrator may make the order effective upon a specified date and delegate final decisionmaking authority to:the Regional Federal
, Highway Administrator (s) with authority to redelegate L (see Attachment 1).
- b. In a defense emergency situation, when communications are disrupted within the FHWA, this order is effective and all the authorities therein are available to the Regional Federal Highway Administrators as soon as there is reason to believe that the President has issued pertinent instructions.
l l hN L
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[: : Federal-Aid Highway Program Manual Vol. 4, Ch. 7 Transmittal 357, July 11, 1983 Sec 2, Subsec.'4 ?
- c. If a natural disaster such as a hurricane, flood, earthquake, or volcano eruption should occur or a technological disaster (such as an energency evacuation of the area surrounding a nuclear power plant or hazardous materials transportaticn incident)', EHTR can :l be implemented by State energency management officials' ,
under the State statutory authority.
?
- 4. RESPONSIBILITIES-a.- Each State-is responsible for the annual review of its- ,
EHTR plan.- Upon recommendation of the FHWA Regional Administrator, the FHWA Washington Office of Traffic ' Operations may determine that an annual update is not necessary. These revisions will result from changing national policies,. State laws and experience resulting from the use of State plans as EHTR training tools. State plans and changes in these plans should be ; submitted prior to publication through channels to the 1 FHWA Washington Headquarters for approval,
- b. The FHWA has the responsibility for coordinating the .
development of comprehensive State plans for the ! regulation of traffic in-an energency. .The regional-and division offices of FHWA will work with the appropriate State agencies in implementing their programs, including the development of' appropriate records, displays, etc., on which can be recorded the-routes that are impassable due to'the existing - emergency. These offices will also be prepared to resolve problems of a multistate nature if State R efforts to effect a workable solution fail. I I l l l l u
-1 i
D 28 _ ~ .
m \qh eo Federal-Aid Highway Program Manual Vol . 4, Ch. 7, Sec. 2 Transmittal 35 7, July 11, 1983- Subsec. 4, Attach. 1 TELETYPE ETO : - Administrators, FHWA Region (s) ' Volume 4, Chapter 7, Section 2, Subsection 4 of the Federal-Aid Highway Program Manual entitled " Establishment of Emergency
, Highway Traffic Regulation (EHTR)" is effective
. l Date j
~
l You are delegated the authority, with authority to redelegate,. for the takir.g of all necessary actions required by this order. l
.1 1
Federal Highway Administrator Date l EL25 l l L .)}}