ML20235M805

Testimony of F Beevers,Acting Chief of Police for Town of Salisbury,Ma,On Behalf of Atty General Jm Shannon Re JI-4 (Traffic Mgt).*

ML20235M805
Person / Time
Site:	Seabrook
Issue date:	02/21/1989
From:	Beevers F MASSACHUSETTS, COMMONWEALTH OF, SALISBURY, MA
To:
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UNITED STATES OF' AMERICA NUCLEAR REGULATORY COMMISSION.

ATOMIC SAFETY AND LICENSING BOARD

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- Before the Administrative Judges:

, Ivan W. Smith, Chairman Dr. Richard F.' Cole

'Kenneth A. McCollom

)

In the Matter of ) Docket Nos. 50-443-OL

) 50-444-OL PUBLIC SERVICE COMPANY ) (Off-Site EP)

OF NEW HAMPSHIRE, EI AL. )

)

(Seabrook Station, Units 1 and 2) ) February 21, 1989

)

TESTIMONY OF FRANK:BEEVERS, ACTING CHIEF OF '

POLICE FOR THE TOWN OF SALISBURY, MASSACHUSETTS,'

ON BEHALFLOF ATTORNEY GENERAL JAMES M. SHANNON, REGARDING JI-4-(TRAFFIC MANAGEMENT)

SUMMARY

OF TESTIMONY In his testimony, Frank Beevers, the Acting Chief of Police for Salisbury, describes the roads in the Salisbury beach area and discusses the traffic conditions that occur in the beach area on most weekends in the summer time. The traffic is extremely heavy and congested as it leaves the Salisbury beach area along Beach Road almost every Sunday afternoon in the summertime. Lengthy traffic back-ups on Beach Road between the center of Salisbury and the beach area are very common. This also happens on Route 286. These conditions are substantially l

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oq worse on Suhday afternoons when a rainstorm develops. -Severe.

traffic jams with certain gridlock points develop. In such j circumstances, the three Salisbury police officers on duty'are i

unable to have any practical effect in expediting the traffic flow. In the event of an emergency at'Seabrook which prompts the closing of the beaches, Chief Beevers states that the traffic conditions will be much more congested than in a sudden rain, because all of the people in the beach area, not just the day-trippers,

'will be leaving. The traffic in the beach area will be so' congested that it will be beyond the capability of his'three' patrolmen to' control, with or without ,

traffic cones to assist them. In Beevers opinion, three ORO Traffic Guides in the beach area would fare no better than his officers in attempting to facilitate traffic flow, and they could make

, conditions worse. Chief Beevers concludes that the SpMC's traffic management plan for Salisbury is wholly inadequate to the task.

TESTIMONY l

Q: Would you please state your full name and occupation?

A: My name is Frank Beevers, and I am presently the Acting Chief of police for the town of Salisbury, Massachusetts.

Q: How long have you been acting as the Chief of police for l

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,4 SalisbuTy, and wnat.did you do prior to'becoming the-Chief?

A:- I have been the acting chief since last' August, when our

. previous chief, Ed Olivera, passed away. ' Prior.to assumi'ng the position of Acting Chief of Police, I was a police

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officer in Salisbury. I have now' worked as a police officer in Salisbury for 30 years, since February 1, 1959'.

Q: Have you testified before this Board before?

A: No, but our former Chief, Ed Olivera, did testify back in January, 1988, I believe.

Q: How many police officers does Salisbury have?.'

A: We have one Acting Chief, four Sergeants, and twelve full-time patrolmen. That is a total of 17. altogether, counting myself. We have three shifts each day, and for each shift we'have a desk officer a.id three patrolmen in the street.

Q: How many police cruisers do you have?

A: Just two. So on each shift, we have.two patrolmen in one and a single patrolman in the other. They are deployed throughout the town.

Q: Chief, are the patrolmen generally in their cruisers, or are they most often out on the street directing traffic?

A: They do direct traffic occasionally, but not on a regular basis, even in the summer. We just do not have the manpower. They are in their cruisers most of the time.

Q: Chief, are you familiar with traffic patterns and conditions in the beach and resident areas of Salisbury?

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Mo i 'j I" As Oh, yer. I have-driven the roads in Sal'isbury;for over 30 1 years at all~ times of1 day and. night, in all four seasons, and under all weather conditions.- I am very familiar with

.the. traffic conditions, and patterns in all areas'of

-Salisbury.

Q: Chief, what season of.the year experiences'the heaviest I traffic in Salisbury?

A: The summer, without a doubt. During other seasons, the.

traffic in Salisbury is what I call normal. It is quite light in the beach area and experiences some heavy flow along Route 1 and Route 110 in the commuter rush hours.

Dut for about 10 weeks.or so in the summertime each year, the traffic'in the beach area is extremely heavy, especially so on Sunday afternoons. i

.Q: What do you mean by the beach area?

A: Well, there is a large tidal marsh that separates mainland j

Salisbury from the beach area. Strictly speaking, the beach area is a barrier beach island which is about 1/4 to 1/2 of a mile wide and runs north and south along the coastline, from the mouth of the Merrimac River on the I

south and on to the north across the state line through Seabrook and Hampton. The part of the island that is in Salisbury is about 3-1/2 miles long. The northern three quarters of Salisbury's beach area contains numerous dwelli'ngs, many of which are now occupied year-round. The southern quarter of the beach area is occupied entirely by

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{the Salisbury Beach-State Reservation, which has a very large parking lot ~for beach-goers.and also a. campground.

ThefReservation has probably over a half a mile of beautiful sandy. beach. But the rest of the beach. area has-beautiful sandy beach as well. That's the attraction around here in'the summer: the beaches. People come here from all.over New England in the summert'ime. Some rent cottages or stay in motels. Many just come for 'the day.

I Q: What.are the traffic conditions there in the summertime?

A: Well, of course, it varies greatly. During the week it is

' busy but not overly congested. But <ni weekends lots of vehicles. stream in. On Saturday'and Sunday mornings when, the weather is good, the traffic' coming into the area often backs-upLin'the eastbound lane on our.one road into the beach area from the town, center. It is often backed up for the full two. miles between the beach and the town center, and sometimes it is backed up.all the way back to Interstate 495, over five miles west of the beaches. The road from the' town center to the beach area, Beach Road (Rt. 1A), is a two-lane road (one lane in either direction) which crosses about a quarter mile of marsh before arriving

-in the beach area. The only other ways to drive in and out of our beach area are to use either Route 286, an east-west road that crosses the marsh about two miles further north in Seabrook, New Hampshire, just across the state line, or e _ _ - _ _ -- - - -

Q to drive down Route 1A from Hampton Beach. Lots of traffic comes into our beach area on the weekends from these routes as well, and-Route 286 backs up on busy days, too. By about one o' clock in the afternoon, this pattern of inbound traffic will slow down. By about 4 p.m., the pattern  !

reverses, and heavy traffic begins to flow out of the beach areas on Beach Road. But on most Sundays, the traffic is so heavy and congested that it backs up from the center of town all the way east to the beach area and then up the one road, Rt. lA, to the north toward Seabrook. Then it just creeps along very slowly. Traffic even backs up in congested fashion west of our town center, as the traffic, heads west on Rt. 110 toward I-95 and Rt. 495. This happens even_though lots of cars turn right (south) and left (north) onto Route 1 at the town center. From the beach areas to I-95 is about 4-1/2 to 5 miles, and it is bumper-to-bumper congested traffic, moving very slowly.

I Actually, for any given driver, what is experienced is a constant stopping, then waiting from a few moments to as long as 5 minutes, then moving forward a short-distance, then stopping again. Overall, it moves about as fast as a person can walk.

Q: Why does this stopping and starting occur?

A: partly, that is just the way that congested lines of traffic move. But what is happening is that multiple lines

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of traffic'are merging into a' single line. For-example, the road out of Salisbury's beach area,' Beach ~ Road (Rt.

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there is a bottleneck created when a heavy line of traffic comes out of the' State Reservation on State-Reservation Road and attempts-to turn left onto Beach Road, which is heavily congested already.

Q: Does7this. congestion occur.on Saturdays as well as Sundays?

A: We do seeithis kind of' congestion on some~ Saturdays too,

-but it is more common and usually worse on Sundays.  !

Q: What, if anything, is the traffic pattern up on,Rt. 286, on

'thefnortherniedge of. town, on these, busy Sunday afternoons?

A: LThe:tra'ffic' heading outbound on Rt. 286 is also; backed-up' and congested in this fashion.

Q: How long does this heavy traffic congestion last on' summer Sundays?.

'A: It cometimes lasts to 8:30 or 9:00 p.m.

Q: During these periods of congested outbound flow, is there anything.that a given vehicle can do to exit the area more quickly?

A: Yes, and we see them do it all the time. It is normal to see many vehicles driving along the right shoulder of the road. They also cross the double solid center lines and pass as many vehicles as they can before meeting an inbound vehicle. We see such occurrences exceptionally frequently.

Q: Do your officers attempt to stop such vehicles and cite them for.these violations?

A: Yes, we attempt to, but it has never been all that

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e succescTul. There are far more vehicles doing this than our patrolmen can handle.

Q: Are there any side roads that the beach vehicles can take to exit the beach area more rapidly than they would otherwise if they stayed on Beach Road or on Rt. 2867 A: No. The only roads crossing the marsh are Beach Road and Route 286. After Route 286 crosses the marsh, there is one cutotf road through the woods over to Route 1. But there are only'two roads heading west out of the entire beach area south of Hampton: Beach Road and Route 286.

Q: Are there any conditions in which the traffic in the beach areas of Salisbury get even more congested than you have just described?

A: Yes. During busy Sunday afternoons when a rain storm developes suddenly we see traffic conditions that are much worse. It becomes absolute bedlam. All the day-trippers are trying to get off the beaches at the same time, in both Hampton Beach ard Salisbury Beach. Severe congestion develops so rapidly that it reaches a point where nothing is moving. There have been several occasions like this when we couldn't get a fire truck into the beach area because of this. At a couple of points under such ,

circumstances, traffic is gridlocked. One such point is in the center of Salisbury Beach, where traffic heading south on Route 1A meets Broadway. Nothing can move in that area. It also is gridlocked just to the west where Broadway, State Reservation Road and Beach Road all meet.

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And it gets completely tied up in Salisbury Square, inLthe center of' town, where' Route 1A~ meets Route 1. Whenever-there.isLa sudden rainstorm on a' busy weekend' day, I am concerned that we may not be able to get' fire apparatus.

- into'the beach area.

-Q: How"long does this' level of intense traffic congestion, this; traffic jam, last before it turns into the.normally heavy outbound flow you would typically experience on"a summer' Sunday?

~A:' If: the j am started at 3:00 p.m. , it could be 6:30cor 7:00  ;

p.m. before,it returns to some semblance of normally heavy outbound flow. So, I'd.say.we have.3-1/2 to-4 hours of

. severe traffic jams atT these points-after a. sudden rain.-

Q: Onithese occasionsLwhen there is a rainstorm and' intense' traffic jams. result, does traffic continue to flow out of the beach areas,'or is it blocked entirely?

A: JFor vehicles behind the jam, it is a blockage that can take hours.to pass through, but once they get through ti.e jam

.onto' Beach Road the cars hardly break free. They just creep along. I.have experienced this, and it has taken~at.

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least 45 minutes just to drive the 2-mile stretch along Beach Road from where State Reservation. Road joins it to Salisbury Square. This averages less than 3 miles per

-hour. Then when you get to the Square, in Salisbury L

center, you find that traffic is backed up all the way out Ruute 110 to I-95 and 495.

Q: Can your officers do anything to assist the traffic flow under these circumstances?

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L A: If'I thoughtcthere.was some solution:for it?I would put the' i

-men outithere, but T. don't see that'it'would have any practical-effect, given the manpower I have.

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Q: How many men would it'take to facilitate.the' flow?

A: Well, on a normal busy weekend, without'a sudden rain, I could probably do it with a dozen men. On Sundays when we have rainstorms come up quickly, I would need.twice that many.- .two dozen men stationed at various' locations.

Q: If all the people in the beach areas on a busy Sunday .

afternoon were to be informed suddenly that:the beaches [

were being-closed because of'a problem at Seabrook Station  ;

and that they.should leave the beach areas immediately, do l

,you have an opinion, Chief, regarding how many men you would need to facilitate the traffic flow?

A:' Yes.' That woulo be a situation where the number of q vehicles attempting to' leave'the beach areas at once.would be considerably larger than in a sudden rain situation, because all the residents and people staying in the rental 1 units would also be trying to leave. The jam ups will be horrendous. I would need more then 50 men to' deal with ,

that traffic situation to have any significant impact on traffic flow from the beach out to the interstates and to ensure that I.could get fire ~ apparatus and emergency vehicles, if necessary, into the beach area.

Q: Chief, would you assume for a moment that this happens, that is, the public on a busy Sunday afternoon receives an announcement that due to a problem at Seabrook Station the beaches have been closed and that they are to leave the beach areas immediately, and assume that, as usual, you

only.hrye three pattrolmen on duty in two patrol cars.in the beach' areas.. Do you have an opinion.regarding how effective these three officers would be if they tried to engage in efforts (1) to direct traffic and increase the

efficiency'of the

outbound flow and (2) to ensure that-emergency vehicles could travel in to the beach area along Beach Road?

A: Yes, In my.opionion, they would have no: measurable' impact on the situation. It would be well beyond their ability to control. If they can't do these things in a sudden rain situation, they surely could not do it under conditions for which the traffic congestion would be even worse.

Q: Will the traffic be controllable at all in that situation using just three patrolmen?

A: No, it will essentially be beyond their ability to control.

Q: Would your opinion be any different if your three

.partrolmen were able to place traffic. cones at strategic locations in order to aid them in their efforts to control this traffic.

A: No, my opinion would not change. Standard traffic cones will not deter people in that situation. Even as it is now, on busy summer weekends when our patrolmen get into these traffic jams to try to do something, many drivers start arguing if an officer tells them to move their-vehicle one way and they want to go another. If many drivers aren't detered by armed, uniformed partrolmen, they won't be detered by traffic cones. They will drive right over them.

Q: Chief, Seabrook's owners have drawn up an emergency plan for evacuating Salisbury in the event of an emergency at the nuclear plant. That plan calls for only three traffic control personnel to be located in the entire Salisbury

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beach area. Two of_these three traffic guides are to be stationed along Broadway, one near the intersection with Central Avenue and one at the point where Route 1A from the north joins Broadway. The third traffic guide is located just to the west at the intersection of Beach Road and State-Reservation Road. There are no other traffic guides south of Route 286 or east of the Town Sgaure. I have

,, shown you the diagrams (attached hereto as Attachments A and B) from then plan which indicate where these three guides will stand and where they will place approximately 29 traffic cones. If these three traffic control posts are staffed by Salisbury police officers, will there be any ,

noticeable impact on the traffic flow?

A: .No, even if we had 29 traffic cones. (We could probalbly round up a half a dozen or so.) The traffic conditions, as I have explained, will simply be beyond the ability of three men to control, even with traffic cones.

Q: Chief, assume for.a moment that instead of your own patrolmen, these three positions were staffed by three '

non-uniformed volunteers recruited by Seabrook's owners to assist in evacuation of Salisbury. Assume also that the state had granted them the legal authority to direct .

traffic. Do you have an opinion regarding what impact they  !

would have on the traffic conditions? i A: Yes. In my opinion, they would not be able to facilitate the traffic flow either. If three of my experienced patrolmen will not be able to control this traffic, there is no way three non-uniformed volunteers could do so either. In fact, in my opinion, they could make matters even worse because drivers won't understand why some non-uniformed person is out there telling them what.they can and cannot do. All kinds of arguments will result, just as happens with our patrolmen in these circumstances,  ;

only it will happen much more frequently. When the l

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M , a Y d non-unkformed traffic guide motions'for vehicles to stop or  ;

i to turn, theLdrivers will do as they please. . They-simply f won't perceive these " volunteers" as-having.any authority.

1 actually have serious concerns about the volunteers' own l

. safety, just as I would for any non-uniformed person who

.might be out in the roadway in. heavy traffic. They could.

easily get hurt. Frankly, I think the whole idea of using-non-uniformed' volunteers to direct traffic in these

, circumstances is ludicrous.

+ Q: Chief, you say that you would not be able to control the traffic in the beach areas using the three men you have on; duty if there were to be an emergency at Seabrook on a summer weekend, is that correct?

i A: Yes.

l Q: Well what would your patrolmen do? j i

A: .If they were in the beach area, they would be able to do  !

very little, if anything, because they would be bound up in  !

the congestion and. unable to drive their cruisers anywhere. If they could, they would probably attend to accidents, which will' surely occur. If one of the cruisers were not in the beach area at the time, in my opinion that cruiser would not be able to drive back into the beach area to assist. It would face the same kind of problems entering the area that our fire apparatus has experienced during sudden rain storms: it would not be possible to drive eastbound on Beach Road into the beach area due to l

the traffic congestion. Both lanes of Beach Road would be l'

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filled with vehicles heading out of the beach area.

Q: What.about'using Route-286 to drive. inbound?

A: I wou_1d expect the conditions to be the same there. No vehicles would be able to drive into the beaches.

Q: Chief, assume that the three.non-uniformed volunteer traffic guides I mentioned before did not arrive in Seabrook until approximately.1-1/2 or 2 hours2.314815e-5 days <br />5.555556e-4 hours <br />3.306878e-6 weeks <br />7.61e-7 months <br /> after the announcement that the beaches had been' closed on a busy Sunday due to a problem at Seabrook. Would they be able to

-drive into the beach area to set up their traffic cones and begin directing traffic.

A: Absolutely not. If.our own fire apparatus and cruisers-would have great difficulty doing so, as is my opinion, then a regular unmarked car would have no chance at all.

Q:' Chief, if six of these volunteer traffic guides with a trunk full of traffic cones did manage to arrive in Salisbury Square about 1-1/2 to 2 hours2.314815e-5 days <br />5.555556e-4 hours <br />3.306878e-6 weeks <br />7.61e-7 months <br /> after an announcement of,a beach closing due to an emergency at Seabrook which occurred on a busy summer afternoon, would they be able to place 37 traffic cones in the roadway in the fasion shown here on this diagram (attached hereto as Attachment C)(SPMC Post No. B-SA-06)?

A: No, in my opinion they would not. The traffic in this intersection would be extremely congested, more so,than we see with sudden rain storms on Sundays in the summer.

Traffic on Beach Road coming off of the beaches will be turning south on Route 1, heading across the intersection to Route 110, and turning north on Route 1. If these non-uniformed volunteers attempt to use cones to block all turns onto Route 1, as this diagram shows, they will not be successful in my opinion. Two traffic cones placed as i

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shown here will not deter vehicles on Beach Road from turning left onto Route 1, especially since no traffic guide,is stationed right there. Tne three cones shown here won't deter vehicles coming off of Beach Road from turning right onto Route 1 north.either. There will also be cross traffic on Route 1 which will not be deterred by these non-uniformed traffic guides and their cones. But my overall opinion is that the traffic will be too congested by the time these traffic guides arrive to permit the orderly placing of traffic cones that this diagram calls for. Again, I think this whole notion of using non-uniformed volunteers to come into a traffic situation that is as congested as this will be in a Seabrook  ;

emergency is ludicrous. The evacuating drivers will give l l

them no heed. l Q: Chief, if there were an emergency at Seabrook on a busy summer weekend and you were called upon to set up traffic control throughout Salisbury in the fashien called for in the emergency plan drawn up by Seabrook's uwners, using 127 traffic cones and 19 traffic guides at 10 intersections, could you do it?

I A: No, there are only 17 people on our entire police force,.

and we would have a great deal of difficulty mobilizing them all at once. I might be able to mobilize 6 officers on any given weekend. We also have only a handful of cones. But even if we had 19 people and all the cones required to staff these Traffic Control posts, the larger problem, in my view, is that in an emergency from Seabrook, the number of guides these plans have stationed at the key intersections in the beach area and in Salisbury center is too few, and there is too much distance between them, to have any significant impact on facilitating the outbound flow of evacuating traffic. And the cones will offer i little or no assistance to the men. As I said before, I believe I would need over 50 patrolmen on a busy summer Sunday to enhance the evacuating traffic flow to any significant degree and to ensure that we could maintain two-way flow on Beach Road, Route 1A north to the state line, and Route 286.

Q: Where would these extra patrolmen be stationed? ,

A: I put about a dozen in Salisbury Square and another 10 or so in the Broadway / Route 1A/ State Reservation Road area.

Then I would station a patrolman every 100 yards or so all the way along the centerline of Beach Road all the way to Salisbury Square. I would do the same for those portions of Route 286 in Massachusetts. This level of staffing is necessary to ensure that emergency vehicles will be able to travel inbound on these roads. I would need quite a few more for the rest of town as well. But all this is quite  !

academic since I have nowhere near that kind of manpower ,

i available. I would not expect that our neighboring towns would be able to spare us any of their patrolmen in a Seabrook emergency either.

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8 Q: -WhatliF Seabrook's-owners' offered to supply-you with.127 traffic cones and 19 of=their;non-uniformed volunteers.t.o

,.. .assistJyour. effort?

JA: Inimy professional opinion,.:I':do.not think that:their non-uniformed volunteers will'be able.to have any positive

.effectLon traffic flow since the evacuating drivers' simply  ;

i will.notLrecognize them as havingfany authority.to-discourage particular traffic' movements. As I noted h<

earlier, I-am very concerned that they could cause additional problems.as arguments develop, and I am Lextremely concerned about.their own safety. I also understand'that these Traffic Guides are, for the most part,. utility company workers and not1 professional, experienced traffic handlers. In the kind of traffic circumstances that wil1~ occur if there is a Seabrook emergency on a-busy summer weekend, I would elect not'to use these volunteers to help my officers direct-traffic. I think they would just make' matters worse. As to their offer of' traffic cones, that offer too.is just not going to be helpful. As I explained earlier, in the expected circumstances the evacuating drivers will not be detered by rubber.or plastic traffic cones. Those cones will be knocked down and driven over. Any serious plan to deal with traffic in Salisbury in the event of a Seabrook emergency would figure out a way to get us-barricades in a i

hurry. This is not to say that with barricades we could do ~l I

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the job, In my opinion there is no workable traffic l I control plan that could be put in place quickly enough to j 1

permit a. controlled and efficient evacuation of the beach.

areas while maintaining two-way flow on Beach Road, Route 286, and Route 1A along the beach. My reference to barricades is merely to suggest that a traffic management plan that relies only on cones to assist the traffic control personnel is wholly inadequate.

Q. Chief, h,'re you had a chance to examine the bus routes proposed ay Seabrook's owners for use by buses which will pick up people without cars?

A. Yes, I have.

Q. Do you have an opinion whether the buses which are to travel in to the Salisbury Beach area will be able to do so, following the routes proposed?

A. No, I don't believe that the buses following Bus Routes 2 and 3 will be able to drive .into the beach area eastbound on Beach Road. The congestion will just be too heavy.

Both lanes of Beach Road will likely be clogged with outbound traffic. Even if Bus #2 got into the Broadway area, there is no assurance that it will be able to get through the jam-up there. Like-wise, even if Bus #3 were somehow able to drive inbound on Beach Road to State Reservation Road, it would not be able to travel south into the Reservation on state Reservation Road..

Q. Do you have an opinion regarding the location of the Transfer Point designated for the buses in Salisbury?

A. Yes. I see that it is located along Beach Road. In my

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opinioni that is a poor' location for a Transfer Point in.

L Salisbury because of the likelihood-that in an evacuation on. busy summer weekends Beach Road will be clogged with-westbound. traffic in-both lanes. A location along almost

""- any other streetLin Salisbury-(outside of the beach area) would bea'better choice- . A Transfer Point-along Beach Road will likely be inaccessible to the~ buses for'many i d

hours.

Q. 'Does'thi's conclude your-testimony?

A. Yes. .

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