Managing Travel for Planned Special Events

MANAGING TRAVEL FOR PLANNED SPECIAL EVENTS

FINAL REPORT

SEPTEMBER 2003

NOTICE

This document is disseminated under the sponsorship of the Department of Transportation in the interest of information exchange. The United States Government assumes no liability for its contents or use thereof. This report does not constitute a standard, specification, or regulation.

The United States Government does not endorse products or manufacturers. Trade and manufacturers’ names appear in this report only because they are considered essential to the object of the document.

i Technical Report Documentation Page 1. Report No. 2. Government Accession No. 3. Recipient’s Catalog No. FHWA-OP-04-010 4. Title and Subtitle 5. Report Date September 2003 Managing Travel for Planned Special Events 6. Performing Organization Code

7. Author(s) 8. Performing Organization Report No. Steven P. Latoski, Walter M. Dunn, Jr., Bernie Wagenblast, Jeffrey Randall, Matthew D. Walker 9. Performing Organization Name and Address 10. Work Unit No. (TRAIS) Dunn Engineering Associates, P.C. 66 Main Street 11. Contract or Grant No. Westhampton Beach, NY 11978 DTFH61-01-C-00180 12. Sponsoring Agency Name and Address 13. Type of Report and Period Covered Office of Transportation Management Final Report Federal Highway Administration April 2002 – September 2003 400 Seventh Street, S.W. 14. Sponsoring Agency Code Washington, D.C. 20590 HOTM 15. Supplementary Notes

Jon Obenberger, FHWA Operations Office of Transportation Management, Contracting Officer’s Technical Representative (COTR). Technical report was performed under contract to Science Applications International Corporation. 16. Abstract

This handbook presents and recommends policies, regulations, planning and operations processes, impact mitigation strategies, equipment and personnel resources, and technology applications used in the advance planning, management, and monitoring of travel for planned special events.

This handbook was written to assist responsible agencies in managing the ever-increasing number of planned special events impacting transportation system operations in rural, urban, and metropolitan areas. It communicates to a wide audience, assisting readers that possess the following backgrounds: (1) novice planned special event practitioner, (2) experienced planned special event practitioner, (3) local, single-jurisdiction event planning and management, (4) regional, multi-jurisdiction event planning and management. 17. Key Words 18. Distribution Statement Planned Special Events, Regional This document may be distributed without Coordination, Permit, Feasibility Study, restriction. Traffic Management, Parking Management, Pedestrian Control, Traveler Information, Travel Demand Management, Transit Service, Implementation, Traffic Management Team, Evaluation 19. Security Classif. (of this report) 20. Security Classif. (of this page) 21. No. of Pages 22. Price Unclassified Unclassified 427 Form DOT F 1700.7 (8-72) Reproduction of completed page authorized

i ii ACKNOWLEDGEMENTS

This study represents a Federal Highway Administration (FHWA) TMC Pooled-Fund Study (TMC PFS) project. Jon Obenberger, FHWA Operations Office of Transportation Management, served as the Contracting Officer’s Technical Representative. Dottie Shoup, Nebraska Department of Roads, was the project champion. URS Corporation, particularly Jeffrey Benson, Jim Huffstetler, and Ming-Shiun Li, assisted the project team by providing technical guidance, project support, and review of project deliverables. The assistance of these individuals is both recognized and appreciated.

In addition, the authors would like to express appreciation to the very many transportation professionals who contributed to the project by responding to requests for information. Special recognition is given to Mark Newland and Jay Wasson of the Indiana Department of Transportation for hosting a visit by the writing team during the 2002 Brickyard 400. The following agencies and universities contributed valuable information and data in support of this project:

• Caltrans • City of Anaheim (CA) Traffic and Transportation • City and County of Denver (CO) Traffic Engineering Services • City of Daytona Beach (FL) Traffic Engineering • City of Toronto (Canada) Transportation Services • City of Wichita (KS) Engineering • Florida Department of Transportation • Indiana Department of Transportation • Kansas Department of Transportation • Montana State University • New Jersey Department of Transportation • New South Wales (Australia) Roads and Traffic Authority • New York State Department of Transportation • New York State Police • Road Commission for Oakland County (MI) • TRIMARC • University of South Florida • Utah Department of Transportation • West Virginia University • Wisconsin Department of Transportation

iii TABLE OF CONTENTS

INTRODUCTION...... i-1 Planned Special Events ...... i-1 Background ...... i-2 Purpose...... i-4 References...... i-5

CHAPTER ONE – BACKGROUND ...... 1-1 Definition ...... 1-1 Statement of the Problem ...... 1-1 Sources of Congestion...... 1-1 Impact of Planned Special Events ...... 1-3 Goals of Managing Travel for Planned Special Events ...... 1-4 Benefits of Successful Planned Special Events ...... 1-5 Literature Review ...... 1-7 NCHRP Synthesis 309...... 1-7 FHWA Metropolitan ITS Infrastructure Deployment Tracking ...... 1-7 Handbook Overview...... 1-8 Approach...... 1-8 Intended Audience ...... 1-9 Organization...... 1-11 References...... 1-13

CHAPTER TWO – CHARACTERISTICS AND CATEGORIES OF PLANNED SPECIAL EVENTS ...... 2-1 Purpose...... 2-1 Planned Special Event Classification...... 2-1 Characteristics ...... 2-1 Categories...... 2-4 Impact Level...... 2-7 Stakeholder Groups ...... 2-13 References...... 2-17

CHAPTER THREE – OVERVIEW ...... 3-1 Purpose...... 3-1 Introduction ...... 3-1 Background ...... 3-2 What is Managing Travel for Planned Special Events?...... 3-2 Stakeholder Roles and Coordination ...... 3-4 Phases of Managing Travel for Planned Special Events...... 3-8 Planned Special Event Categories ...... 3-9 Discrete/Recurring Event at a Permanent Venue...... 3-9 Continuous Event...... 3-10 Street Use Event...... 3-10 Regional/Multi-Venue Event ...... 3-11 Rural Event ...... 3-11 Program Planning ...... 3-11 Regional Level ...... 3-12 Local Level ...... 3-13 Event Operations Planning ...... 3-16 Initial Planning Activities ...... 3-18 Feasibility Study...... 3-22 Traffic Management Plan...... 3-27 Travel Demand Management and Traveler Information...... 3-44

iv Implementation Activities ...... 3-47 Implementation Plan ...... 3-47 Review and Testing...... 3-47 Personnel ...... 3-50 Day-of-Event Activities...... 3-51 Traffic Management Team...... 3-52 Communication ...... 3-53 Traffic Monitoring ...... 3-55 Post-Event Activities ...... 3-55 Evaluation Framework ...... 3-56 Participant Evaluation ...... 3-57 Post-Event Debriefing ...... 3-58 Post-Event Report...... 3-58

CHAPTER FOUR – REGIONAL AND LOCAL COORDINATION...... 4-1 Purpose...... 4-1 Introduction ...... 4-2 Regional Level ...... 4-2 Institutional Framework...... 4-2 Policy Support...... 4-5 Regional Planned Special Events Program...... 4-6 Relationship to FHWA Traffic Incident Management Self-Assessment Guide ...... 4-10 Local Level ...... 4-10 Overview of Planned Special Event Permitting ...... 4-10 Permit Process...... 4-12 Application Components ...... 4-19 Permitting Requirements ...... 4-21 Infrastructure Support ...... 4-24 Technology Applications ...... 4-24 Funding Sources...... 4-33 References...... 4-34

CHAPTER FIVE – EVENT OPERATIONS PLANNING...... 5-1 Purpose...... 5-1 Introduction ...... 5-2 Initial Planning Activities...... 5-2 Overview ...... 5-2 Stakeholder Roles and Coordination ...... 5-3 Risk Assessment...... 5-5 Performance Goals and Objectives ...... 5-7 Planning Schedule and Deliverables ...... 5-8 Public Outreach...... 5-10 Stakeholder Review of Planning Products...... 5-13 Policies and Agreements ...... 5-14 Feasibility Study ...... 5-16 Overview ...... 5-16 Data Requirements ...... 5-18 Travel Forecast ...... 5-18 Market Area Analysis ...... 5-25 Parking Demand Analysis...... 5-27 Traffic Demand Analysis ...... 5-29 Roadway Capacity Analysis...... 5-30 Mitigation of Impacts ...... 5-31 External Factors Affecting Scope of Event Impact ...... 5-33 Overview ...... 5-33

v Available Resources ...... 5-33 Weather...... 5-34 Concurrent Road Construction and Planned Special Events ...... 5-34 External Factor Monitoring and Assessment ...... 5-36 References...... 5-36

CHAPTER SIX – TRAFFIC MANAGEMENT PLAN ...... 6-1 Purpose...... 6-1 Introduction ...... 6-2 Plan Components...... 6-2 Overview ...... 6-2 Development Process and Integration...... 6-5 Special Considerations ...... 6-7 Contingency Planning ...... 6-8 Analysis and Modeling ...... 6-9 Overview ...... 6-9 Analysis Techniques ...... 6-10 Site Access and Parking Plan...... 6-12 Overview ...... 6-12 Parking Policies and Tactics ...... 6-12 Vehicle Access and Circulation...... 6-16 Parking Area Design and Operation ...... 6-20 Parking Occupancy Monitoring ...... 6-23 Parking Regulations...... 6-24 Plan Specifications...... 6-25 Pedestrian Access Plan ...... 6-25 Overview ...... 6-25 Pedestrian Control ...... 6-28 Disabled Accessibility ...... 6-32 Shuttle Bus Service...... 6-32 Plan Specifications...... 6-36 Traffic Flow Plan ...... 6-36 Overview ...... 6-36 Strategic Route Planning ...... 6-38 Alternate Routes ...... 6-40 Emergency Access Routes...... 6-41 Background Traffic Accommodation...... 6-43 Transit Accommodation ...... 6-45 Plan Specifications...... 6-47 Traffic Control Plan ...... 6-47 Overview ...... 6-47 Freeway Traffic Control...... 6-49 Street Traffic Control...... 6-51 Intersection Traffic Control...... 6-57 Plan Specifications...... 6-59 En-Route Traveler Information Plan ...... 6-61 Overview ...... 6-61 Information Needs...... 6-62 Static Signing ...... 6-62 Changeable Message Signs ...... 6-63 Highway Advisory Radio ...... 6-64 Media ...... 6-66 Other Technology Applications ...... 6-66 Plan Specifications...... 6-69 Traffic Surveillance Plan ...... 6-70 Closed-Circuit Television Systems ...... 6-70

vi Field Observation...... 6-71 Aerial Observation...... 6-71 Media Reports...... 6-72 Traffic Incident Management and Safety Plan...... 6-72 Overview ...... 6-72 Crash Prevention Tactics...... 6-72 Service Patrols ...... 6-73 Traffic Incident Quick Clearance Initiatives...... 6-75 References...... 6-76

CHAPTER SEVEN – TRAVEL DEMAND MANAGEMENT AND TRAVELER INFORMATION ...... 7-1 Purpose...... 7-1 Introduction ...... 7-1 Travel Demand Management ...... 7-2 Overview ...... 7-2 Demand Management Strategies ...... 7-3 High Occupancy Vehicle Incentives...... 7-3 Event Patron Incentives ...... 7-6 Bicyclist Accommodation ...... 7-7 Local Travel Demand Management...... 7-8 Transit Service ...... 7-9 Overview ...... 7-9 Public Transit Service Expansion ...... 7-9 Express Bus Service...... 7-11 Charter Service ...... 7-12 Transit Service Marketing ...... 7-13 Pre-Trip Traveler Information...... 7-14 Information Needs...... 7-14 Internet ...... 7-16 Telephone Information Systems ...... 7-17 Public Information Campaign...... 7-19 Event and Venue Transportation Guide ...... 7-20 Other Technology Applications ...... 7-21 References...... 7-22

CHAPTER EIGHT – IMPLEMENTATION ACTIVITIES ...... 8-1 Purpose...... 8-1 Introduction ...... 8-1 Implementation Plan ...... 8-2 Overview ...... 8-2 Plan Specifications...... 8-3 Review and Testing...... 8-5 Purpose...... 8-5 Stakeholder Simulation Exercises ...... 8-6 Equipment Testing ...... 8-8 Personnel ...... 8-9 Overview ...... 8-9 Volunteer Recruitment ...... 8-11 Training Activities...... 8-11 References...... 8-12

CHAPTER NINE – DAY-OF-EVENT ACTIVITIES ...... 9-1 Purpose...... 9-1 Introduction ...... 9-1 Traffic Management Team...... 9-2

vii Stakeholder Roles and Coordination ...... 9-2 Team Management...... 9-4 Command Post ...... 9-4 Resource Planning...... 9-5 Managing Traffic ...... 9-5 Evaluation Activities ...... 9-6 Communication ...... 9-8 Structure and Protocol ...... 9-8 Interagency Communication ...... 9-8 Equipment ...... 9-9 Interacting with the Media ...... 9-10 Traveler Information Dissemination ...... 9-11 Traffic Monitoring ...... 9-12 Purpose...... 9-12 Traffic Management Support ...... 9-13 Performance Evaluation Data ...... 9-14

CHAPTER TEN – POST-EVENT ACTIVITIES...... 10-1 Purpose...... 10-1 Introduction ...... 10-1 Evaluation Framework ...... 10-2 Overview ...... 10-2 Measures of Effectiveness...... 10-3 Integration with Program Planning Process...... 10-4 Application to Future Events ...... 10-4 Participant Evaluation ...... 10-5 Stakeholder Debriefing ...... 10-5 Patron Survey ...... 10-6 Public Survey ...... 10-7 Post-Event Debriefing ...... 10-7 Meeting Organization...... 10-8 Meeting Agenda...... 10-8 Identification of Key Successes and Lessons Learned ...... 10-9 Post-Event Report...... 10-10 Report Organization...... 10-10 Operational Cost Analysis...... 10-11 Qualitative Evaluation ...... 10-11 Quantitative Evaluation ...... 10-12 References...... 10-12

CHAPTER ELEVEN – DISCRETE/RECURRING EVENT AT A PERMANENT VENUE ... 11-1 Purpose...... 11-1 Introduction ...... 11-2 Special Considerations ...... 11-2 Event Operations Planning ...... 11-3 Implementation and Day-of-Event Activities ...... 11-7 Post-Event Activities ...... 11-9 Program Planning ...... 11-10

CHAPTER TWELVE – CONTINUOUS EVENT ...... 12-1 Purpose...... 12-1 Introduction ...... 12-1 Special Considerations ...... 12-2 Event Operations Planning ...... 12-3 Implementation and Day-of-Event Activities ...... 12-6 Post-Event Activities ...... 12-8

viii Program Planning ...... 12-9

CHAPTER THIRTEEN – STREET USE EVENT...... 13-1 Purpose...... 13-1 Introduction ...... 13-1 Special Considerations ...... 13-2 Event Operations Planning ...... 13-3 Implementation and Day-of-Event Activities ...... 13-6 Post-Event Activities ...... 13-8 Program Planning ...... 13-9

CHAPTER FOURTEEN – REGIONAL/MULTI-VENUE EVENT...... 14-1 Purpose...... 14-1 Introduction ...... 14-1 Special Considerations ...... 14-2 Event Operations Planning ...... 14-2 Implementation and Day-of-Event Activities ...... 14-6 Post-Event Activities ...... 14-8 Program Planning ...... 14-9

CHAPTER FIFTEEN – RURAL EVENT ...... 15-1 Purpose...... 15-1 Introduction ...... 15-1 Special Considerations ...... 15-2 Event Operations Planning ...... 15-2 Implementation and Day-of-Event Activities ...... 15-6 Post-Event Activities ...... 15-8 Program Planning ...... 15-9

APPENDIX A – SAMPLE SPECIAL EVENT PERMIT REGULATIONS, APPLICATIONS, AND AGREEMENTS...... A-1

APPENDIX B – EVENT-ORIENTED RISK SCENARIO CONTINGENCY PLANS ...... B-1

APPENDIX C – INTERAGENCY AGREEMENTS FOR SPECIAL EVENT PLANNING ..... C-1

APPENDIX D – 2003 FAIR SAINT LOUIS EVENT PATRON SURVEY...... D-1

APPENDIX E – REGIONAL DIRECTIONAL DISTRIBUTION FOR 2001 NASCAR KANSAS 400 ...... E-1

APPENDIX F – PARKING AND PEDESTRIAN ACCOMMODATION PLANS – LAMBEAU FIELD RECONSTRUCTION...... F-1

APPENDIX G – WISCONSIN DOT ORGANIZATION AND DISSEMINATION OF INTER-JURISDICTIONAL ROAD CONSTRUCTION AND PLANNED SPECIAL EVENT INFORMATION...... G-1

APPENDIX H – EXAMPLE SITE AND PARKING MAPS...... H-1

APPENDIX I – EXAMPLE TRAFFIC FLOW MAPS ...... I-1

APPENDIX J – EXAMPLE PROTOCOL FOR PLANNED SPECIAL EVENT TRAFFIC SIGNAL SYSTEM OPERATIONS...... J-1

APPENDIX K – EXAMPLE TRAFFIC CONTROL PLANS ...... K-1

APPENDIX L – PUBLIC AGENCY AND EVENT-SPECIFIC WEBSITES...... L-1

APPENDIX M – VENUE TRANSPORTATION GUIDES ...... M-1

APPENDIX N – SAMPLE IMPLEMENTATION PLANS ...... N-1

x LIST OF TABLES

Table i-1 Practice of Managing Travel for Planned Special Events...... i-2 Table i-2 Keys to Successful Management of Planned Special Events ...... i-4

Table 1-1 Congestion Impacts of Planned and Unplanned Events ...... 1-2 Table 1-2 Impacts on Transportation System Users...... 1-3 Table 1-3 Planned Special Event Travel Management Goals ...... 1-4 Table 1-4 Technical Reference Objectives ...... 1-5 Table 1-5 Overall Benefits...... 1-6 Table 1-6 Benefits to Transportation Stakeholders and System Operations...... 1-6 Table 1-7 Community Benefits...... 1-6 Table 1-8 Planned Special Event Management Phases and Key Tasks...... 1-10 Table 1-9 Event Operations Stakeholders ...... 1-11 Table 1-10 Handbook Organization ...... 1-12 Table 1-11 Technical Reference User Groups...... 1-13

Table 2-1 Categories of Planned Special Events...... 2-4 Table 2-2 Characteristics of Different Planned Special Event Categories...... 2-5

Table 3-1 Responsibilities of Stakeholder Groups...... 3-4 Table 3-2 Event Operation Characteristics ...... 3-10 Table 3-3 Categories of Planned Special Events...... 3-10 Table 3-4 Distinguishing Operating Characteristics of a Discrete/Recurring Event at a Permanent Venue ...... 3-10 Table 3-5 Distinguishing Operating Characteristics of a Continuous Event ...... 3-10 Table 3-6 Distinguishing Operating Characteristics of a Street Use Event ...... 3-10 Table 3-7 Distinguishing Operating Characteristics of a Regional/Multi-Venue Event ...... 3-11 Table 3-8 Distinguishing Operating Characteristics of a Rural Event...... 3-11 Table 3-9 Regional Program Stakeholder Organizations ...... 3-13 Table 3-10 Municipal Code Provisions on Planned Special Events ...... 3-16 Table 3-11 Summary of Event-Oriented Risk Scenarios ...... 3-19 Table 3-12 Transportation System Operations Performance Objectives for Planned Special Events ...... 3-19 Table 3-13 Measures of Effectiveness for Assessing Performance Objectives ...... 3-20 Table 3-14 Summary of Policies and Agreements Applicable to Managing Planned Special Events ...... 3-22 Table 3-15 Feasibility Study Analysis Summary...... 3-23 Table 3-16 Traffic Generation Forecast Process ...... 3-24 Table 3-17 Market Area Analysis Methods ...... 3-25 Table 3-18 Tools for Mitigating Planned Special Event Impacts on Transportation System Operations...... 3-28 Table 3-19 Groups Attending a Planned Special Event...... 3-29 Table 3-20 Contingency Plan Checklist ...... 3-29 Table 3-21 Site Access and Circulation Considerations ...... 3-30 Table 3-22 Site and Parking Plan Checklist...... 3-32 Table 3-23 Pedestrian Crossing Tactics ...... 3-33 Table 3-24 Pedestrian Access Plan Checklist ...... 3-34 Table 3-25 Tactics for Accommodating Background Traffic during Planned Special Events ...... 3-36 Table 3-26 Bus Accommodation Tactics...... 3-36 Table 3-27 Traffic Flow Plan Checklist...... 3-37 Table 3-28 Interchange Operations Tactics for Planned Special Events ...... 3-39 Table 3-29 Traffic Control Plan Checklist...... 3-41

xi Table 3-30 Crash Prevention Tactics...... 3-43 Table 3-31 Travel Demand Management Strategies ...... 3-45 Table 3-32 Transit Service Strategies...... 3-46 Table 3-33 Pre-Trip Traveler Information Dissemination Techniques ...... 3-47 Table 3-34 Implementation Plan Checklist...... 3-48 Table 3-35 Elements of a Stakeholder Simulation Exercise...... 3-50 Table 3-36 General Volunteer Training Activities...... 3-51 Table 3-37 Traffic Management Team Stakeholders...... 3-52 Table 3-38 Traffic Management Plan Evaluation Activities...... 3-53 Table 3-39 Communications Structure Primary Considerations ...... 3-54 Table 3-40 Internal Measures of Effectiveness...... 3-56 Table 3-41 External Measures of Effectiveness...... 3-56 Table 3-42 Elements of a Stakeholder Debriefing ...... 3-57 Table 3-43 Post-Event Debriefing Meeting Agenda Topics ...... 3-58 Table 3-44 Outline of Post-Event Report ...... 3-58

Table 4-1 Regional Program Stakeholder Organizations ...... 4-8 Table 4-2 Traffic Incident Management Program Assessment Questions Relative to Managing Planned Special Events ...... 4-11 Table 4-3 Stakeholders Governing Permit Applications ...... 4-13 Table 4-4 Planned Special Event Permit Application Submission Deadline...... 4-15 Table 4-5 Planned Special Event Permit Restrictions ...... 4-16 Table 4-6 Planned Special Event Permit Application Decision Criteria ...... 4-17 Table 4-7 Event Organizer Special Requirements...... 4-18 Table 4-8 Planned Special Event Permit Application Components ...... 4-19 Table 4-9 Planned Special Event Permit Application Supplemental Requirements... 4-22 Table 4-10 Guidelines for Compliance with the Americans with Disabilities Act ...... 4-23 Table 4-11 Municipal Code Provisions on Planned Special Events ...... 4-23 Table 4-12 Planned Special Event Permit Application Fees...... 4-25 Table 4-13 Planned Special Event Funding Mechanisms ...... 4-25 Table 4-14 Louisville, KY Criteria for Providing Free Services for a Special Event...... 4-26 Table 4-15 Planned Special Event Technology Applications...... 4-27

Table 5-1 Event Planning Team Responsibilities During the Event Operations Planning Phase...... 5-3 Table 5-2 Stakeholder Participation in Event Operations Planning ...... 5-4 Table 5-3 Summary of Event-Oriented Risk Scenarios ...... 5-6 Table 5-4 Transportation System Operations Performance Objectives for Planned Special Events ...... 5-8 Table 5-5 Measures of Effectiveness for Assessing Performance Objectives ...... 5-8 Table 5-6 Seahawk Football Transportation Management Program Goals and Objectives ...... 5-11 Table 5-7 Measures Considered in Developing a Neighborhood Parking Management Plan for Seattle’s Safeco Field...... 5-12 Table 5-8 Summary of Policies and Agreements Applicable to Managing Planned Special Events ...... 5-15 Table 5-9 Components of Interagency Agreements ...... 5-16 Table 5-10 Feasibility Study Analysis Summary...... 5-17 Table 5-11 Feasibility Study Data Requirements...... 5-19 Table 5-12 Example Modal Split for Discrete/Recurring Events at a Permanent Venue...... 5-21 Table 5-13 Traffic Generation Forecast Process ...... 5-22 Table 5-14 Example Planned Special Event Vehicle Occupancy Factors...... 5-23 Table 5-15 Example Planned Special Event Traffic Arrival Rate Characteristics...... 5-24 Table 5-16 Market Area Analysis Methods ...... 5-26 Table 5-17 Example Event Parking Occupancy Summary ...... 5-29

xii Table 5-18 Tools for Mitigating Planned Special Event Impacts on Transportation System Operations...... 5-32 Table 5-19 External Factors Considered in the Wisconsin TIME Program Special Event Planning Tool...... 5-37

Table 6-1 Traffic Management Plan Objectives...... 6-3 Table 6-2 Traffic Management Plan Components ...... 6-4 Table 6-3 Groups Attending a Planned Special Event...... 6-7 Table 6-4 Contingency Plan Checklist ...... 6-9 Table 6-5 General Parking Management Considerations...... 6-12 Table 6-6 Factors Influencing Lot Assignment...... 6-13 Table 6-7 Key Findings from Saint Paul Advanced Parking Information System Operational Test...... 6-17 Table 6-8 Site Access and Circulation Considerations ...... 6-17 Table 6-9 Guidelines for Designating Pick-up and Drop-off Areas ...... 6-18 Table 6-10 Vehicle Processing Tactics at Parking Area ...... 6-22 Table 6-11 2002 Winter Olympics Parking Occupancy Monitoring Plan ...... 6-24 Table 6-12 Off-street Parking Regulation Considerations ...... 6-24 Table 6-13 Site and Parking Plan Checklist...... 6-26 Table 6-14 Considerations for Posting Plans on an Internet Website ...... 6-27 Table 6-15 Pedestrian Crossing Tactics ...... 6-30 Table 6-16 Pedestrian Facilities Covered in the Highway Capacity Manual ...... 6-32 Table 6-17 Considerations in Shuttle Bus Operations ...... 6-33 Table 6-18 Shuttle Bus Service User Needs...... 6-33 Table 6-19 Considerations in Shuttle Bus Station Design ...... 6-35 Table 6-20 Pedestrian Access Plan Checklist ...... 6-36 Table 6-21 Traffic Flow Plan Information Sources...... 6-37 Table 6-22 Road Closure Impact Checklist...... 6-38 Table 6-23 Traffic Flow Route Development Considerations ...... 6-39 Table 6-24 Alternate Route Plan Development Process ...... 6-41 Table 6-25 Alternate Route Plan Development Considerations ...... 6-42 Table 6-26 Tactics for Accommodating Background Traffic during Planned Special Events ...... 6-44 Table 6-27 Pre-Trip Traveler Information for Street Use Events ...... 6-45 Table 6-28 Bus Accommodation Tactics...... 6-45 Table 6-29 Exclusive Bus Lane Limitations ...... 6-46 Table 6-30 Traffic Flow Plan Checklist...... 6-48 Table 6-31 Highway Advisory Radio Pre-Event Message Considerations ...... 6-50 Table 6-32 Highway Advisory Radio Day-of-Event Message Considerations ...... 6-50 Table 6-33 Changeable Message Sign Message Template ...... 6-50 Table 6-34 Interchange Operations Tactics for Planned Special Events ...... 6-52 Table 6-35 Disadvantages of Divided Highway Alternative Lane Operations ...... 6-35 Table 6-36 Portable Traffic Management System Components ...... 6-57 Table 6-37 Traffic Control Plan Checklist...... 6-60 Table 6-38 Crash Prevention Tactics...... 6-72 Table 6-39 Service Patrol Operations Considerations...... 6-74 Table 6-40 Traffic Incident Quick Clearance for the 2002 Winter Olympics ...... 6-75

Table 7-1 Travel Demand Management Goals...... 7-2 Table 7-2 Travel Demand Management Strategies ...... 7-4 Table 7-3 Transit Service Strategies...... 7-10 Table 7-4 Pre-Trip Traveler Information Dissemination Techniques ...... 7-14

Table 8-1 General Field-Level Operations Guidelines...... 8-2 Table 8-2 Implementation Plan Checklist...... 8-4 Table 8-3 Elements of a Stakeholder Simulation Exercise...... 8-6

xiii Table 8-4 Day-of-Event Personnel Resource Requirements...... 8-10 Table 8-5 Example Rewards for Volunteer Service ...... 8-11 Table 8-6 General Volunteer Training Activities...... 8-12

Table 9-1 Day-of-Event Activities...... 9-2 Table 9-2 Traffic Management Team Stakeholders...... 9-2 Table 9-3 Traffic Management Plan Evaluation Activities...... 9-7 Table 9-4 Communications Structure Primary Considerations ...... 9-8 Table 9-5 Advantages of Operating on a Common Frequency ...... 9-8 Table 9-6 Levels of Communication...... 9-9 Table 9-7 Use of Media...... 9-10 Table 9-8 Traveler Information Dissemination Methods ...... 9-11 Table 9-9 Use of Surveillance Information ...... 9-13 Table 9-10 Data Collection Methods...... 9-13 Table 9-11 Benefits of Detection and Surveillance ...... 9-14 Table 9-12 Traffic Monitoring Information Uses...... 9-14 Table 9-13 Performance Evaluation Measures...... 9-15 Table 9-14 Reasons for Traffic Monitoring and Evaluation...... 9-15

Table 10-1 Key Post-Event Activities ...... 10-3 Table 10-2 Internal Measures of Effectiveness...... 10-3 Table 10-3 External Measures of Effectiveness...... 10-3 Table 10-4 Elements of a Stakeholder Debriefing ...... 10-5 Table 10-5 Types of Event Patron Surveys ...... 10-7 Table 10-6 Post-Event Debriefing Meeting Agenda Topics ...... 10-9 Table 10-7 Outline of Post-Event Report ...... 10-10 Table 10-8 Elements of a Post-Event Report...... 10-11 Table 10-9 Key Topics of a Qualitative Evaluation ...... 10-12

Table 11-1 Types of Discrete/Recurring Events at a Permanent Venue ...... 11-2 Table 11-2 Distinguishing Operating Characteristics of a Discrete/Recurring Event at a Permanent Venue ...... 11-2 Table 11-3 Event Operations Planning Steps - Discrete/Recurring Event at a Permanent Venue ...... 11-5 Table 11-4 Checklist of Implementation and Day-of-Event Activities for Discrete/Recurring Events at a Permanent Venue...... 11-8 Table 11-5 Checklist of Post-Event Activities for Discrete/Recurring Events at a Permanent Venue ...... 11-9 Table 11-6 Program Planning Activities for Discrete/Recurring Events at a Permanent Venue ...... 11-11

Table 12-1 Types of Continuous Events ...... 12-1 Table 12-2 Distinguishing Operating Characteristics of a Continuous Event ...... 12-2 Table 12-3 Event Operations Planning Steps - Continuous Event ...... 12-5 Table 12-4 Checklist of Implementation and Day-of-Event Activities for Continuous Events ...... 12-7 Table 12-5 Checklist of Post-Event Activities for Continuous Events...... 12-8 Table 12-6 Program Planning Activities for Continuous Events ...... 12-10

Table 13-1 Types of Street Use Events ...... 13-2 Table 13-2 Distinguishing Operating Characteristics of a Street Use Event ...... 13-2 Table 13-3 Event Operations Planning Steps - Street Use Event ...... 13-5 Table 13-4 Checklist of Implementation and Day-of-Event Activities for Street Use Events ...... 13-7 Table 13-5 Checklist of Post-Event Activities for Street Use Events ...... 13-9 Table 13-6 Program Planning Activities for Street Use Events...... 13-10

xiv

Table 14-1 Types of Regional/Multi-Venue Events...... 14-2 Table 14-2 Distinguishing Operating Characteristics of a Regional/Multi-Venue Event ...... 14-2 Table 14-3 Event Operations Planning Steps - Regional/Multi-Venue Event...... 14-5 Table 14-4 Checklist of Implementation and Day-of-Event Activities for Regional/Multi-Venue Events...... 14-7 Table 14-5 Checklist of Post-Event Activities for Regional/Multi-Venue Events...... 14-8 Table 14-6 Program Planning Activities for Regional/Multi-Venue Events ...... 14-10

Table 15-1 Types of Rural Events...... 15-2 Table 15-2 Distinguishing Operating Characteristics of a Rural Event...... 15-2 Table 15-3 Event Operations Planning Steps - Rural Event...... 15-5 Table 15-4 Checklist of Implementation and Day-of-Event Activities for Rural Events 15-7 Table 15-5 Checklist of Post-Event Activities for Rural Events...... 15-8 Table 15-6 Program Planning Activities for Rural Events ...... 15-10

xv LIST OF FIGURES

Figure i-1 Planned Special Event...... i-1

Figure 1-1 Planned Special Event Patron Arrival...... 1-1 Figure 1-2 Community Promotion of Planned Special Events ...... 1-5 Figure 1-3 Media Promotion of Stakeholder Efforts ...... 1-7

Figure 2-1 Event Traffic Management...... 2-1 Figure 2-2 Event Operation Characteristics ...... 2-2 Figure 2-3 Examples of Planned Special Events ...... 2-6 Figure 2-4 Example Regional/Multi-Venue Event ...... 2-8 Figure 2-5 Planned Special Event Impact Factors...... 2-10 Figure 2-6 Wisconsin TIME program Special Event Traffic Management Planning Tool ...... 2-14 Figure 2-7 Planned Special Event Stakeholder Groups...... 2-16

Figure 3-1 Event Pedestrian Management...... 3-1 Figure 3-2 Transportation Management Plan Components and Event Planning Team Involvement...... 3-3 Figure 3-3 Planned Special Event Stakeholders...... 3-5 Figure 3-4 Planned Special Event Management Phases and Associated Products.... 3-9 Figure 3-5 Planned Special Event Permit Process ...... 3-15 Figure 3-6 Event Operations Planning Process Flowchart ...... 3-17 Figure 3-7 Event Operations Planning Schedule ...... 3-21 Figure 3-8 Feasibility Study Analysis Steps ...... 3-23 Figure 3-9 Parking Demand Analysis Process...... 3-26 Figure 3-10 Traffic Flow Route Assessment Process ...... 3-35

Figure 4-1 Closed-Circuit Television Camera on a Stadium Access Road...... 4-1 Figure 4-2 Major Elements of a Framework for Regional Collaboration and Coordination...... 4-3 Figure 4-3 Planned Special Event Permit Process ...... 4-14

Figure 5-1 Event Planning Team Meeting...... 5-1 Figure 5-2 Nevada State Route 168 Closure During Motorcycle Rally...... 5-7 Figure 5-3 Event Operations Planning Schedule ...... 5-9 Figure 5-4 Chicago Resident Permit Parking Program Enforcement...... 5-13 Figure 5-5 Feasibility Study Analysis Steps ...... 5-17 Figure 5-6 Commuter Rail Modal Split ...... 5-20 Figure 5-7 Event Patron Departure from a Discrete/Recurring Event at a Permanent Venue...... 5-23 Figure 5-8 Pre-Event Activity...... 5-25 Figure 5-9 Example Travel Time Analysis...... 5-26 Figure 5-10 Parking Demand Analysis Process...... 5-28 Figure 5-11 Designated Event Off-Site Parking Area ...... 5-29 Figure 5-12 Local Area Planned Special Event Parking Restriction ...... 5-30 Figure 5-13 Example Preliminary Road Segment Capacity Analysis ...... 5-30 Figure 5-14 CORSIM Simulation Animation...... 5-31 Figure 5-15 Stadium Reconstruction...... 5-34 Figure 5-16 Site and Pedestrian Accommodation Plan for Stadium Reconstruction..... 5-35 Figure 5-17 Contingency Parking Plan for Weather...... 5-35 Figure 5-18 Internet Summary of Road Construction and Planned Special Events ...... 5-36

Figure 6-1 Temporary Reversible Lane Operation...... 6-1

xvi Figure 6-2 Traffic Management Team Command Centers on the Day-of-Event ...... 6-5 Figure 6-3 Fundamental Relationships in Transportation System Operations ...... 6-6 Figure 6-4 Planned Special Event Activity Networks ...... 6-7 Figure 6-5 Street Vendor Activity ...... 6-8 Figure 6-6 Freeway CMS Displaying Parking Information ...... 6-14 Figure 6-7 Guide Sign for Reserved Parking Areas...... 6-14 Figure 6-8 Temporary Parking Area Identification Landmark ...... 6-15 Figure 6-9 Shoulder Utilization ...... 6-18 Figure 6-10 Lane Channelization ...... 6-18 Figure 6-11 Access Road Traffic Pattern During Event Egress ...... 6-20 Figure 6-12 Queuing System Schematic...... 6-21 Figure 6-13 Permanent Venue Gate and Queue Storage Lanes...... 6-21 Figure 6-14 Minimizing Pedestrian/Vehicular Conflicts in Parking Areas ...... 6-23 Figure 6-15 Parking Restriction Signs...... 6-24 Figure 6-16 Annotated Aerial Map of Venue Site...... 6-27 Figure 6-17 Downtown Area Venue Parking Map...... 6-27 Figure 6-18 Mode Transfer Point...... 6-27 Figure 6-19 At-Grade Pedestrian Crossings Adjacent to a Venue Gate...... 6-28 Figure 6-20 Pedestrian Crossing Barrier...... 6-29 Figure 6-21 Pedestrian Traffic Monitoring Via CCTV...... 6-29 Figure 6-22 Pedestrian Access Route and Emergency Access Route...... 6-30 Figure 6-23 Temporary Pedestrian Bridge ...... 6-31 Figure 6-24 Road Closure Adjacent to Event Venue ...... 6-31 Figure 6-25 Staffed Mid-block Crossing ...... 6-31 Figure 6-26 Special Event Disabled Parking Area Access Point ...... 6-32 Figure 6-27 Shuttle Bus Service Promotion ...... 6-33 Figure 6-28 On-Site Shuttle Bus Station ...... 6-35 Figure 6-29 Parade Staging Area...... 6-38 Figure 6-30 Corridor Target Points...... 6-39 Figure 6-31 Multiple Local Traffic Flow Routes...... 6-39 Figure 6-32 Traffic Flow Route Assessment Process ...... 6-40 Figure 6-33 Background Traffic Diversion...... 6-43 Figure 6-34 Dynamic Route Guidance Sign...... 6-43 Figure 6-35 Accommodation of Traffic Destined to Major Generators...... 6-44 Figure 6-36 Exclusive Bus Route ...... 6-46 Figure 6-37 Bus Priority Lane...... 6-46 Figure 6-38 Portable Changeable Message Sign ...... 6-50 Figure 6-39 Temporary Elimination of Freeway Weaving Area ...... 6-53 Figure 6-40 Prohibition of Late Freeway Diverge...... 6-53 Figure 6-41 Remote Traffic Surveillance and Management...... 6-53 Figure 6-42 Daily Reversible Lane Operation ...... 6-53 Figure 6-43 Daily Contraflow Operation ...... 6-54 Figure 6-44 Contraflow Operation during Event Traffic Egress ...... 6-54 Figure 6-45 Temporary Reversible Lane Operation with Lane Control Signals...... 6-55 Figure 6-46 Route Marker Sign ...... 6-55 Figure 6-47 Introduction of Route Marker Sign Symbols ...... 6-56 Figure 6-48 Daytona Beach (FL) Transportation Management Center...... 6-56 Figure 6-49 Portable Traffic Management System...... 6-56 Figure 6-50 Elimination of Competing Intersection Traffic Flow...... 6-57 Figure 6-51 Turning Movement Lane Balance...... 6-57 Figure 6-52 Road Block of Ingress Route to Facilitate Egress ...... 6-58 Figure 6-53 Intersection Advance Signing ...... 6-58 Figure 6-54 Positive Traffic Control...... 6-58 Figure 6-55 Portable CCTV Camera Mounted on Traffic Signal Pole...... 6-59 Figure 6-56 Permanent CMS Over Stadium Access Road ...... 6-64 Figure 6-57 Portable CCTV Camera for Freeway Surveillance ...... 6-71

xvii Figure 6-58 Portable Lighting ...... 6-73 Figure 6-59 Congestion Warning Sign ...... 6-73 Figure 6-60 Service Patrol Vehicle...... 6-74 Figure 6-61 Highway Advisory Radio Traveler Safety Message...... 6-74

Figure 7-1 Planned Special Event Express Bus Service from Park and Ride Lot ...... 7-1 Figure 7-2 High Occupancy Vehicle Incentive ...... 7-5 Figure 7-3 High Occupancy Vehicle Parking Incentive ...... 7-5 Figure 7-4 Venue Website Survey on Event Patron Incentives ...... 7-7 Figure 7-5 Event Patron Incentive...... 7-7 Figure 7-6 Bicycle Parking Area...... 7-8 Figure 7-7 Traffic Information Dissemination Via a Public Agency Website ...... 7-16 Figure 7-8 Telephone Information System Menu Structure ...... 7-18 Figure 7-9 Promotion of 511 Service on Event Website ...... 7-19 Figure 7-10 Public Information Campaign Promotion ...... 7-19 Figure 7-11 Public Information Campaign Brochure ...... 7-20 Figure 7-12 Television Travel Report ...... 7-22

Figure 8-1 Personnel Monitoring of Arterial Ramp Closure ...... 8-1 Figure 8-2 Planned Special Event Implementation Plans ...... 8-3

Figure 9-1 Traffic Management Team Day-of-Event Interaction...... 9-1 Figure 9-2 Unified Command Organization for Planned Special Events ...... 9-3 Figure 9-3 Planned Special Event Command Post...... 9-4 Figure 9-4 Internet Traveler Information...... 9-11

Figure 10-1 Field Observation of Traffic Management Plan Implementation...... 10-1 Figure 10-2 Electronic Vehicle Counter Installation ...... 10-2 Figure 10-3 Maintenance of Freeway Service Patrol Assist Log ...... 10-2 Figure 10-4 Indiana State Police Debriefing Protocol for Brickyard 400...... 10-6 Figure 10-5 TMC Meeting Room...... 10-8

Figure 11-1 Discrete/Recurring Event at a Permanent Venue: Qualcomm Stadium in San Diego, CA ...... 11-1 Figure 11-2 Event Operations Planning Process Flowchart ...... 11-4

Figure 12-1 Continuous Event: Summerfest Music Festival in Milwaukee, WI...... 12-1 Figure 12-2 Event Operations Planning Process Flowchart ...... 12-4

Figure 13-1 Street Use Event: New York City Cycling Championship...... 13-1 Figure 13-2 Event Operations Planning Process Flowchart ...... 13-4

Figure 14-1 Regional/Multi-Venue Event: Bradley Center, U.S. Cellular Arena, and Midwest Airlines Center (convention center) Adjacent to 4th Street in Milwaukee, WI...... 14-1 Figure 14-2 Event Operations Planning Process Flowchart ...... 14-4

Figure 15-1 Rural Event: U.S. Open Championship in Southampton, NY...... 15-1 Figure 15-2 Event Operations Planning Process Flowchart ...... 15-4

xviii INTRODUCTION

Figure i-1 Planned Special Event

PLANNED SPECIAL event or other major catastrophe, represent special events that can induce extreme traf- EVENTS fic demand under an evacuation condition. However, these events occur at random and Planned special events include sporting with little or no advance warning, thus con- events, concerts, festivals, and conventions trasting characteristics of planned special occurring at permanent multi-use venues events. (e.g., arenas, stadiums, racetracks, fairgrounds, amphitheaters, convention centers, A planned special event creates an increase etc.). They also include less frequent public in travel demand and may require road clo- events such as parades, fireworks displays, sures to stage the event. Planned special bicycle races, sporting games, motorcycle events generate trips, thus impacting overall rallies, seasonal festivals, and milestone transportation system operations. This in- celebrations at temporary venues. cludes freeway operations, arterial and other street operations, transit operations, and pe- The term planned special event is used to destrian flow. Unlike roadway construction describe these activities because of their activities or traffic incidents that constrain known locations, scheduled times of occur- travel within a single corridor, planned spe- rence, and associated operating characteris- cial events affect travel in all corridors serv- tics. Emergencies, such as a severe weather ing the event venue.

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BACKGROUND Managing travel for planned special events encompasses both a local and regional level.

The local level involves managing travel for Planned special events pose a unique and one planned special event. The regional diverse set of challenges to stakeholders perspective concerns proactively improving charged with maintaining transportation sys- travel management for all planned special tem safety, mobility, and reliability. These events occurring in a region where, in most challenges include: major U.S. metropolitan areas, hundreds of

planned special events occur annually. Managing intense travel demand • • Mitigating potential capacity constraints Table i-1 compares current state-of-the- • Influencing the utility associated with practice activities to state-of-the-art activi- various travel choices ties in managing travel for planned special • Accommodating heavy pedestrian flow events.

Table i-1 Practice of Managing Travel for Planned Special Events STATE-OF-THE-PRACTICE STATE-OF-THE-ART Institutional • Manage traffic and parking for • Manage travel for planned special events by adopting an inter- planned special events. modal approach and utilizing travel demand management strategies. • Focus on traffic management team • Form multidisciplinary stakeholder groups and solicit public input. needs. • Secure verbal coordination be- • Develop a joint operations policy or mutual-aid agreement between stakeholders. tween stakeholders. • Focus on single planned special • Create a committee on planned special events to monitor and plan events. travel management activities for all special events that occur within a region. Organizational • Conduct periodic ad-hoc event • Follow an established event operations planning process. planning. • Develop standard street use event routes and traffic flow routes. • Focus on event-specific planning • Integrate event evaluation results into future planning activities to and operations only. facilitate continuous improvement of transportation system performance. • Obtain periodic participation and • Establish stakeholder groups specific to advance planning and contribution from community in- day-of-event activities to strengthen stakeholder coordination and terest and event support stake- commitment. holders. Technical • Utilize fixed freeway and arterial • Utilize mobile devices:(1) management infrastructure to o Portable traffic management systems (closed-circuit televi- monitor and manage traffic during sion, detectors, changeable message signs) a planned special event.(1) o Portable traffic signals o Portable traffic management centers • Conduct point traffic and parking • Deploy automated systems: management using field personnel o Parking management systems o Dynamic trailblazer signs o Lane control signs o Blank-out signs

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The state-of-the-practice involves an opera- operations to improve safety and reduce tions-based approach that incorporates ex- delay in addition to reducing field per- isting policies, procedures, and infrastruc- sonnel requirements. ture applied under daily traffic management, • Service strategies include policies and incident management, and multi-modal initiatives aimed at communicating advi- management activities. In this approach, sory information and travel options to stakeholder planning activities parallel those event patrons and non-attendee road us- for unplanned events, such as traffic inci- ers to reduce peak traffic demand levels dents and emergencies, where various what- on corridors serving an event venue, thus if scenarios shape response and management improving system travel mobility and re- strategies. Stakeholders characteristically liability. diverge from an interagency concept of operations and, instead, focus on the rapid mo- Collectively, these strategies meet the chal- bilization and execution of planned agency- lenge of managing travel for planned special specific tasks. events on a local level or for a single planned special event. Stakeholders must However, incident management or emer- predict travel demand and efficiently utilize gency response experiences provide the op- the excess capacity of the roadway system, portunity to build on existing stakeholder parking facilities, and transit. They must relationships, although it must be recognized also reach out to all road users, communi- that stakeholder roles and priorities change cate travel information, and offer attractive considerably under planned special events. incentives to influence traveler behavior and This technical reference will facilitate build- decision-making. ing a successful special event transportation management plan starting from a corner- Integration of phases, from post-event stone of daily traffic, incident, and multi- evaluation to advance planning for future modal management activities. planned special events, creates a seamless process allowing for continuous improve- The state-of-the-art in managing travel for ment of transportation system performance planned special events emphasizes a pro- from one planned special event to the next. gram approach specific to planned special This iterative process, where stakeholders events. This approach revolves around dis- apply successes and lessons learned from a tinct, chronological phases relative to ad- particular special event to future events, vance planning, management, and evalua- meets the challenge of managing travel for tion activities. Individual phases include planned special events on a regional level or interconnected strategies to assist stake- for all planned special events in a region. holders in identifying needs and resulting operations and service strategies tailored to The advance planning and management of the characteristics of a specific planned spe- travel for planned special events requires the cial event: consistent involvement and coordination of stakeholders within and across every event • Operations strategies include proactive management phase. Stakeholders may have control and management tactics, coupled the opportunity to partner with new stake- with innovative technology applications, holders across travel modes, disciplines, and that effect changes in traffic and transit jurisdictions. As a result, the state-of-the-art

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includes forming multidisciplinary stake- requirements and stakeholder performance holder groups assigned to carryout the ob- requirements driving planned special event jectives of a particular phase of managing travel management. It profiles numerous travel for planned special events. This successful practices, highlighting proven framework facilitates easy buy-in by agen- policies, regulations, strategies, and re- cies not involved in day-to-day transporta- sources used in the advance planning, man- tion system operations and achieves better agement, and monitoring of travel for stakeholder consensus on group objectives. planned special events.

PURPOSE This handbook was written to assist responsible agencies in managing the ever-

increasing number of planned special events Given the dynamic characteristics of impacting transportation system operations planned special events, the Federal Highway in rural, urban, and metropolitan areas. It Administration (FHWA) Transportation communicates to a wide audience, assisting Management Center Pooled-Fund Study readers that possess the following back- (TMC PFS) recognized the need to identify grounds: (1) novice planned special event operations planning and program issues, de- practitioner, (2) experienced planned special rive operational strategies and plans, and event practitioner, (3) local, single- examine successful interagency cooperation jurisdiction event planning and manage- and communication techniques specific to ment, (4) regional, multi-jurisdiction event planned special events. In turn, the TMC planning and management. This technical PFS commissioned development of a tech- reference facilitates easy extraction of nical reference document that provides di- guidelines, processes, operations strategies, rection, guidance, and recommended prac- service strategies, and associated tactics to tices related to the proactive management of meet the needs of transportation system op- planned special events. It builds on the erators. In turn, operators will gain an un- state-of-the-practice in managing travel for derstanding of the keys to successful planned special events and strives to com- planned special event transportation man- plement and advance the present capabilities agement, as summarized in Table i-2. of TMCs in addition to that of traffic management programs in metropolitan, urban, and rural areas. Table i-2

Keys to Successful Management This technical reference bridges the gap be- of Planned Special Events tween the state-of-the-practice and state-of- KEY EFFORTS the-art in managing travel for planned spe- • Achieve early, constant input and participation cial events by providing both: (1) a frame- of involved agencies. work for establishing a stakeholder coordi- • Predict event-generated travel impacts on both nated and integrated planned special event a local and regional level. management practice and (2) innovative • Develop an integrated transportation man- techniques for enhancing the efficiency and agement plan that can accommodate a range of traffic demands and other contingencies. applicability of current agency event- • Ensure successful traffic management plan specific plans. This handbook presents and implementation. recommends various processes, operations • Deploy a well-organized traffic management strategies, service strategies, and technology team equipped with the ability to communi- applications that satisfy the special customer cate seamlessly between agencies.

i-4 Table i-2 (cont’d.) Keys to Successful Management of Planned Special Events KEY EFFORTS • Conduct continuous traffic monitoring on the day-of-event and maintain protocol for modifying the traffic management plan to accommodate real-time traffic conditions. • Transfer event management successes into daily applications, and translate lessons learned into future event planning and operations needs.

REFERENCES

1. Jacobson, L., Highway Traffic Op- erations and Freeway Management State-of-the-Practice White Paper, Report No. FHWA-OP-03-076, Fed- eral Highway Administration, Wash- ington, D.C., March 2003, 43 pp.

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CHAPTER ONE BACKGROUND 1 OVERVIEW ADVANCE PLANNING

Figure 1-1 Planned Special Event Patron Arrival

DEFINITION gestion as their top community transporta- DAY-OF-EVENT ACTIVITIES tion concern in a recent National survey.(1)

Congestion equates to decreased perform- A planned special event is a public activity, ance and, in turn, economic loss for busi- with a scheduled time and location, that im- nesses and trucking companies. Congestion pacts normal transportation system opera- either causes late deliveries or forces truck- tions as a result of increased travel demand ers to build additional travel time into their and/or reduced capacity attributed to event itineraries, particularly when making just-in-

staging. POST-EVENT ACTIVITIES time deliveries.

STATEMENT OF THE Congestion simply refers to a condition PROBLEM where traffic demand exceeds roadway capacity. Capacity measures potential or the

maximum, sustainable rate of traffic volume Sources of Congestion that can traverse a road segment. Conges- tion results from sudden, significant changes EVENT PROFILE The public has become increasingly sensi- in (1) traffic demand or (2) available road- tive to the impact congestion has on quality way capacity, both of which cause demand of life, citing delays caused by traffic con- to exceed capacity. When this occurs, the

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congestion is considered either recurring time of an event, may be known in ad- or non-recurring based on its causal fac- vance, or the event may happen at ran- tors: dom with very little or no warning. These events are commonly termed • Recurring congestion is usually charac- planned and unplanned events, respec- terized by an increase in traffic demand. tively. Congestion causing events, Commuter traffic induces congestion at whether planned or unplanned, result in the same time and location weekday af- either a reduction in roadway capacity, ter weekday; hence traffic managers can an increase in traffic demand, or both. essentially predict when recurring con- Table 1-1 summarizes how these events gestion will happen. Recurring conges- impact roadway system operations. tion reflects the daily, systematic relationship between peak traffic demand A planned special event represents the only rates, inadequate road capacity, and sub- type of event that can generate an increase in optimal operation of traffic control de- traffic demand and cause a temporary reduc- vices. The latter represents one of the tion in roadway capacity because of event few causes of recurring congestion that staging. For example, a parade or bicycle affects capacity rather than demand. race may require street closures extending over a significant distance, and other events • Non-recurring congestion happens as a may warrant isolated road closures to ac- result of an event. The spatial and tem- commodate pedestrian flow. poral characteristics, or location and

Table 1-1 Congestion Impacts of Planned and Unplanned Events EVENT-GENERATED IMPACT EVENT CATEGORY TRAFFIC DEMAND ROAD CAPACITY Major roadway construction • Increases background traffic • Closes travel lane(s) or road and maintenance demand on parallel freeways segments. and arterials.

Planned special event • Generates new trips and in- • Closes travel lane(s) or road creases traffic demand on all segments to stage event (typi-

Planned Event Event Planned corridors serving the event. cally street use events).

Traffic incident • Causes background traffic di- • Blocks travel lane(s) or road (e.g., crash, disablement, version to parallel freeways and segments. spilled load, debris) streets. Emergency road work • Causes background traffic di- • Blocks travel lane(s) or road version to parallel freeways and segments. streets. Adverse weather • Decreases traffic demand (po- • Reduces vehicle operating (e.g., snow, ice, fog, heavy tentially). speeds and increases head-

Unplanned Event Event Unplanned rain, sun glare) ways, thus reducing capacity. Emergency • Causes evacuations that gener- • Renders road segments im- (e.g., severe weather, natural ate extreme traffic demand. passable (potentially). disaster, terrorism)

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Impact of Planned Special Events of delay as part of the overall experience of attending an event, but place a high priority Planned special events can significantly im- on getting to their destination prior to the 1 pact travel safety, mobility, and travel time event start. reliability. Mobility and reliability refer to the ease and consistency of travel, respec- Because planned special events are sched- tively. The scope of these impacts represent uled, transportation and other agencies at- a function of several event operation charac- tempt to influence the schedule to avoid teristics, including attendance, rate of event conflict with recurring congestion. Some OVERVIEW patron arrival and departure, venue location, municipal codes prohibit special events re- and adjacent roadway capacity. The effect quiring road closures at certain times of the and perceived magnitude of mobility and day or week: travel time reliability impacts vary by class of transportation system user. Table 1-2 • For example, Section 447.50 of the Min- lists the classes of transportation system us- neapolis Municipal Code states: Down- ers whose needs must be accommodated town area restrictions. (a) No permit during a planned special event. shall be granted for a parade/race to be conducted within the downtown area be- Transportation stakeholders place a priority tween the hours of 7:00 a.m. and 9:00 ADVANCE PLANNING on minimizing impacts to event patron and a.m. or 4:00 p.m. and 6:00 p.m. on any non-attendee road users and to transit users day which is not Saturday, Sunday, or a as well. Event patrons accept a certain level legal holiday.

Table 1-2 Impacts on Transportation System Users USER USER TYPE IMPACT ON USERS USER RESPONSE CLASS DAY-OF-EVENT ACTIVITIES Event • Local resident • Event patron demand may • Event patrons may use another patron or • Visitor cause roadway system conges- mode of travel. participant tion.

Non- • Local resident • Commuters and truckers may • Non-attendee road users may attendee • Local business encounter reduced travel time delay planned trips or divert road user • Commuter reliability in corridors serving around a corridor impacted by a • Trucker an event venue. planned special event. • Emergency • Special event traffic control • Emergency service providers services strategies may impact local mandate the provision of POST-EVENT ACTIVITIES residents and businesses not unimpeded emergency access involved with the event. routes to and from the event • Emergency service providers venue and its surrounding area. may experience increased response times during an event. Transit user • Bus • Transit users may realize • Preferred parking areas may be • Commuter rail service impacts on the day-of- set aside for commuters during

event, including reduced the days of the event. EVENT PROFILE availability of parking at transit stations and system capacity conditions.

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GOALS OF MANAGING efforts, practitioners can achieve efficient transportation system operations even with TRAVEL FOR PLANNED the additional traffic generated at and adja- SPECIAL EVENTS cent to the event venue.

In meeting these goals, the mission of this Table 1-3 presents the goals of managing technical reference involves disseminating a travel for planned special events. suite of travel management solutions, appli-

cable on both a local and regional level, en- The potential impact a planned special event compassing the following three broad has on transportation system operations is strategies: often difficult to predict and measure. Peri- odic planned special events at stadiums and Process strategies include frameworks arenas, or similar venues having good access • for facilitating stakeholder coordination, to adjacent high-capacity roadways, may steps for predicting event-generated generate highly predictable travel patterns travel demand and impacts, procedures known even by local commuters. But, in for developing traffic management ini- many other cases, the characteristics of a tiatives, methods for assessing event im- planned special event that define the level of pact mitigation proposals, guidelines on event-generated trips, coupled with the event implementation activities, protocol for venue location and scope of available trans- communication, and frameworks for portation system capacity, collectively may evaluation. yield unpredictable impacts on travel without proper planning and analysis. • Operations strategies include a range of regulations, traffic and pedestrian Operations, with safety an overarching crite- control strategies, and transit coordina- ria, during the event can improve transportation strategies for operating the transpor- tion system efficiency of operation. With tation system in a manner that fulfills the the foreknowledge of a planned special customer service requirements of event event and the early initiation of planning patrons and other road users during a planned special event.

Table 1-3 Planned Special Event Travel Management Goals GOAL TECHNIQUE Achieving • Perform a multi-modal travel forecast. Predictability • Define the area and transportation system components impacted. • Conduct analyses of parking demand and traffic demand. • Identify and correct roadway capacity deficiencies. Ensuring Safety • Accommodate pedestrians accessing an event via a network of safe walking routes. • Minimize pedestrian/vehicular conflicts. • Provide unimpeded access routes for emergency services. • Prevent congestion-induced secondary incidents. Maximizing Efficiency • Use all available resources and excess transportation system capacity, including road and transit capacity. • Enhance transportation system operations. • Deploy incident management strategies to respond and clear traffic incidents.

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• Service strategies include travel de- BENEFITS OF mand management policies and other initiatives that strive to improve the util- SUCCESSFUL PLANNED 1 ity associated with available travel SPECIAL EVENTS choices (e.g., mode, vehicle occupancy,

and parking destination). As shown in Figure 1-2, communities and

regions have promoted and supported This technical reference emphasizes the planned special events to boost tourism and

need to apply and integrate all possible solu- OVERVIEW fuel local and state economies. Examples tions that benefit the safe and efficient man- include: agement of travel for a single planned special event or a series of events occurring in a • The filming of “The Fast and the Furious region. On a regional level, a committee on 2,” requiring extensive use of freeways planned special events may adopt process and streets in Miami-Dade, Broward, and operations strategies disseminating and Palm Beach counties, brought an es- standard operating procedures. Certain timated $14 million to southeast Florida strategies, such as an express/charter bus during the four-month filming.(2) service, may achieve greater public aware- • The following economic benefits of ness and success if configured for a series of ADVANCE PLANNING planned special events were realized by planned special events. Table 1-4 presents the State of Wisconsin:(3) the objectives of this technical reference. $11 billion annual industry state- o wide. Table 1-4 $2.5 billion annual industry in met- Technical Reference Objectives o OBJECTIVE ropolitan Milwaukee. • Describe innovative stakeholder partnerships o Over $1 billion generated in state tax that facilitate continuous coordination, coop- revenues. eration, and integration of personnel and o Over $70 million generated in Fed- equipment resources. eral and state transportation reve- DAY-OF-EVENT ACTIVITIES • Describe processes that stakeholders may nues. adopt to improve current advance planning and day-of-event operations. • Provide methods to raise awareness of potential travel impacts to non-attendee road users and the community at-large. • Detail new technology applications and successful operations strategies to minimize field personnel requirements, improve travel condi- POST-EVENT ACTIVITIES tions monitoring, and reduce congestion levels. • Identify the advantages of transit use, travel demand management, and accurate, up-to-date traveler information dissemination during the occurrence of a planned special event. • Demonstrate the importance of sound traffic management team organization and communication during the day-of-event. Figure 1-2 EVENT PROFILE • Communicate the advantages of integrating Community Promotion of Planned Special post-event evaluation activities into program planning for future planned special events. Events

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Public agencies can enhance the image of Table 1-6 their area by adopting a planned, coordi- Benefits to Transportation Stakeholders and nated, and integrated approach toward man- System Operations aging travel for planned special events that BENEFIT minimizes traffic congestion, maintains • Deployment of new technologies for traffic transportation system reliability, and ex- control and monitoring. • Incorporation of new procedures and tactics ceeds the customer service expectations of into everyday traffic/incident management all road users. These users include event tasks. patrons, commuters, truckers, and emer- • Upgrade of transportation system infrastruc- gency service providers. ture. • Improvement in stakeholder productivity. Table 1-5 presents the overall benefits that • Promotion of interagency sharing of person- can be realized through managing travel for nel and equipment resources. • Leverage of public support for newly de- planned special events. ployed traffic management and transit initiatives. • Attraction of new regular transit users and Table 1-5 carpoolers. Overall Benefits(4) • Development of new interagency relationships crossing jurisdictional boundaries. BENEFIT • Improvement in communication and trust • Reduced delay for motorists attending the between stakeholders. planned special event through more active in- Coordination of and participation in regional formation dissemination, traffic management, • organizations to influence policy and im- and alternate mode use. prove activities for all planned special • Reduced delay for motorists not attending the events. special event through active promotion of alternate routes or modes. • Dissemination of lessons learned and solutions to technical problems that other juris- • Reduced overall traffic demand at or near the dictions may encounter in the future. special event site through active promotion of Promotion of stakeholder efforts in the me- alternate routes or modes or dissemination of • dia, as illustrated in Figure 1-3. information, resulting in the cancellation or delay of unnecessary trips. • Improved safety through more active traffic management and reduced motorist frustration.

Table 1-7 The proactive and coordinated management Community Benefits of travel for planned special events also BENEFIT yields numerous benefits to transportation • Better community recognition. stakeholders and transportation system op- • Increased pride and community spirit. erations, as indicated in Table 1-6. • Increased awareness of the community as a travel destination.

• Increased knowledge of potential for invest- A successful planned special event also sat- ment and commercial activity in the commu- isfies community residents and businesses nity. possessing no direct interest in the event. • Increased potential to attract other special Table 1-7 specifies community benefits. events.

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operations guides, qualitative and quantitative assessment efforts, and funding sources. 1 FHWA Metropolitan ITS Infrastructure Deployment Tracking

The FHWA maintains an Intelligent Trans-

portation Systems (ITS) deployment track- OVERVIEW ing database based on surveys of agencies in the 78 largest U.S. metropolitan areas and encompassing six ITS infrastructure component areas.(5) A survey on freeway management includes a select number of questions on special event management, including: (1) regional coordination for planned special events, (2) dissemination of information to the public via techniques such as the Internet, television, kiosks, and telephone ADVANCE PLANNING information systems, and (3) transportation Figure 1-3 management center (TMC) operations. Be- Media Promotion of Stakeholder Efforts low, survey responses for the Year 2002 are (Graphic courtesy of the Wisconsin DOT.) presented, summarizing the scope of regional special event planning and application of certain ITS system characteristics to special event traffic management.

LITERATURE REVIEW Regional Coordination for Planned Special DAY-OF-EVENT ACTIVITIES Events NCHRP Synthesis 309 • 68 percent of surveyed agencies (119 A National Cooperative Highway Research total) participate in a formal multi- Program (NCHRP) synthesis, Transporta- agency initiative to proactively plan for tion Planning and Management for Special and coordinate activities regionally re- Events, reports on the state-of-the-practice lated to special events. Of the agencies

of transportation-related activities associated that participate in a formal multi-agency POST-EVENT ACTIVITIES with the planning and management of spe- initiative: (4) cial events. It identifies how agencies are o 59 percent of surveyed agencies plan planning, coordinating services, and manag- to document and coordinate activi- ing transportation systems for planned spe- ties, resources, and policies for all cial events. Based on a survey of stake- special events. holder practices related to special event o 36 percent of surveyed agencies have planning and management, the synthesis re- entered into an interagency agree- EVENT PROFILE port addresses special event types, involved ment. stakeholders, tools and techniques for man- o 64 percent of surveyed agencies par- aging travel demand and controlling traffic, ticipate in a multi-agency team.

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• 73 percent of surveyed metropolitan ar- HANDBOOK OVERVIEW eas (77 total) have agencies that partici-

pate in a formal multi-agency initiative to proactively plan for and coordinate Approach activities regionally related to special events. Of the areas with agencies that This technical reference covers five phases participate in a formal multi-agency ini- of managing travel for planned special tiative: events. These phases, comprising the core chapters, include: o 63 percent of surveyed metropolitan areas have agencies that plan to document and coordinate activities, • Program planning encompasses ad- resources, and policies for all special vance planning activities completed events. months prior to a single, target event or o 43 percent of surveyed metropolitan activities related to a series of future areas have interagency agreements. planned special events. This level of ad- o 68 percent of surveyed metropolitan vance planning involves the participation areas have multi-agency teams. and coordination of stakeholders serving an oversight role in addition to agencies Dissemination of Information to the Public directly responsible for event planning and day-of-event traffic management. • 43 percent of surveyed agencies distrib- • Event operations planning involves ute information on special events to the advance planning and resource coordina- public. tion activities conducted for a specific • 49 percent of surveyed metropolitan ar- planned special event. This phase in- eas have agencies that distribute infor- volves stakeholders organized under the mation on special events to the public. event planning team. • Implementation activities represent a Transportation Management Center transition phase between event opera- Operations tions planning and day-of-event activities. The event planning team and traffic • 73 percent of surveyed agencies operate management team work to strategize a TMC. traffic management plan deployment in addition to conducting necessary equip- o Of the agencies that operate a TMC, 84 percent indicate that special event ment testing and personnel training ac- traffic management represents a tivities. functional capability of their TMC. • Day-of-event activities refer to the daily implementation of the traffic manage- • 78 percent of surveyed metropolitan ar- ment plan in addition to traffic monitor- eas have a TMC. ing. Rapid deployment of traffic management plan strategies and tactics, in- o Of the metropolitan areas that have a TMC, 82 percent indicate that spe- cluding contingency plans, requires a cial event traffic management repre- well-organized traffic management team sents a functional capability of the and communications infrastructure. TMC. • Post-event activities cover the evaluation of local and regional transportation operations based on stakeholder debrief-

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ings and an analysis of traffic data col- stakeholders, (2) community interest stake- lected during the day-of-event. Evalua- holders, and (3) event support stakeholders: tion involves both the traffic manage- 1 ment team and event planning team • Event operations stakeholders repre- working together to identify successes sent the target audience of this technical and lessons learned, and the stakeholder reference. These stakeholders collec- groups may transfer their determinations tively work toward predicting, mitigat- to the oversight team for consideration ing, and measuring the safety, mobility, and action under the program planning and reliability impacts of a planned spe- OVERVIEW phase. cial event on transportation operations through comprehensive advance plan- Table 1-8 describes common stakeholder- ning, day-of-event traffic management, generated products under each phase of and evaluation and monitoring activities. managing travel for planned special events. A traffic operations agency, law en- The table highlights corresponding major forcement agency, and event organizer topics that the technical reference covers. represent core stakeholders because of Each of the handbook chapters describing a the responsibility they bear in develop- particular step in the sequential process of ing and implementing a transportation

planning and managing a planned special management plan. As with a traffic op- ADVANCE PLANNING event represents a stand-alone chapter. Yet, erations agency, law enforcement con- the technical reference provides a smooth tributes to all phases of managing travel transition from chapter to chapter and inte- for planned special events and involves grates the chapters through numerous refer- associated personnel at the administra- ences. tive, management, and field operations level. Intended Audience Other key stakeholders include transit agencies and public safety agencies (e.g.,

The successful implementation of a trans- DAY-OF-EVENT ACTIVITIES portation management plan for planned spe- fire and emergency medical service). cial events results in lessened traffic conges- Table 1-9 lists general responsibilities of tion and improved safety for event patrons event operations stakeholders. In many and other transportation system users. Suc- cases, an event predicted to generate cessful transportation management also significant travel demand across a region maintains satisfactory mobility levels for will necessitate the cooperation of multi- residents and businesses in the vicinity of ple inter-jurisdictional stakeholders in the affected region.

the event venue and preserves the overall POST-EVENT ACTIVITIES reliability of the local and regional transportation system. Achieving this success re- • Community interest stakeholders en- quires the involvement of both transporta- sure and review advance planning and tion system operators and other stake- operations activities to manage event- holders, representing various interests and generated travel for the purpose of disciplines, to meet the needs of the com- minimizing impacts on community qual- munity and region. Three categories of ity of life and maximizing potential so- EVENT PROFILE stakeholders that may participate in the co- cial and economic benefits. Non- ordinated management of travel for planned transportation agencies and elected offi- special events include: (1) event operations cials play an important role in

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Table 1-8 Planned Special Event Management Phases and Key Tasks

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Table 1-9 Event Operations Stakeholders STAKEHOLDER RESPONSIBILITY 1 Traffic operations agency • Operates and maintains the transportation system. Transit agency • Develops specialized transit plans, complementing an event traffic management plan, that detail schedules and necessary equipment and personnel resources. Law enforcement • Facilitates the safe and efficient flow of traffic through traffic control and enforcement. Event organizer • Plans the event operations logistics.

• Funds the deployment of equipment and personnel resources, including reim- OVERVIEW bursement of public agency resource costs, required on the day-of-event. • Hires a private traffic engineering consultant to perform an event feasibility study and prepare a traffic management plan. Public safety (e.g., fire • Ensures adequate provision of emergency access routes to and from the event and emergency medical venue. service)

establishing policies, regulations, and trast advance planning and travel manage- initiatives for future planned special ment activities for each of the five defined

events. In fact, these agencies and offi- categories of planned special events dis- ADVANCE PLANNING cials may possess the authority to ap- cussed in Chapter 2. prove or disapprove a special event permit for an event organizer. Table 1-10 lists the technical reference chapters and indicates what chapters cover each • Event support stakeholders support, distinct phase of special event management. execute, or adhere to the transportation The table shows Chapters 4 through 10, management plan and initiatives pro- which represent the core chapters of the posed by event operations and commu- handbook, encompass all five phases of

nity interest stakeholders. These stake- managing travel for planned special events. DAY-OF-EVENT ACTIVITIES holders include private traffic control vendors, private towing companies, the To assist the reader in quickly navigating the general public, and automobile and handbook, each page displays a vertical trucking associations. Event support toolbar that indicates the current chapter and stakeholders and emergency service section of the technical reference. As noted stakeholders may gain valuable insight in Table 1-10, the sections include: (1) over- on the development of event traffic man- view, (2) advance planning, (3) day-of-event

agement plan components, including activities, (4) post-event activities, and (5) POST-EVENT ACTIVITIES contingency plans, in addition to strate- event profile. Chapters designated under gies for reducing event-generated travel “event profile” discuss specific categories of demand. special events, detail and contrast advance planning and travel management activities, Organization and communicate recommended policies, guidelines, procedures, and resource appli-

Overview of Chapters and Major Topics cations in a user-friendly format tailored to a EVENT PROFILE specific category of planned special event. This technical reference consists of 15 chap- In turn, readers can easily extract informa- ters, the final five of which detail and con- tion and reference sample applications.

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Table 1-10 Handbook Organization SPECIAL EVENT HANDBOOK MANAGEMENT HANDBOOK CHAPTER SECTION PHASE Introduction Chapter 1 Background Chapter 2 Overview Characteristics and Categories of Planned Special Events Chapter 3 Overview Chapter 4 Program Planning Regional and Local Coordination Chapter 5 Event Operations Planning Event Operations Chapter 6 Advance Planning Planning Traffic Management Plan Chapter 7 Travel Demand Management and Traveler Information Implementation Chapter 8 Activities Implementation Activities Day-of-Event Chapter 9 Day-of-Event Activities Activities Day-of-Event Activities Chapter 10 Post-Event Activities Post-Event Activities Post-Event Activities Chapter 11 Discrete/Recurring Event at a Permanent Venue Chapter 12 Continuous Event Chapter 13 Event Profile Street Use Event Chapter 14 Regional/Multi-Venue Event Chapter 15 Rural Event

User Application ognizes three user groups, each of whom has an identifiable icon featured in the hand- By covering all phases of advance planning book. If a major chapter section contains and management of travel for planned spe- topics suited to a particular user group, then cial events, this technical reference satisfies the icon representing that group will appear the information requirements of a wide on the same line as the section heading. range of stakeholders. Certain stakeholders may find the majority of handbook chapters Three typical user groups, or event opera- pertain to their duties and responsibilities tions stakeholders, charged with managing when handling a planned special event. travel for planned special events in jurisdic- Other stakeholders may only have interest in tions across the country include: (1) trans- information disseminated via a few hand- portation engineers, (2) law enforcement book sections. This technical reference rec- officers, and (3) event organizers. Table 1-

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11 displays icons corresponding to each user group. • Law enforcement officers may take responsibility for developing and execut- 1 Table 1-11 ing a street traffic management plan. Technical Reference User Groups Other potential duties of law enforce- ICON USER GROUP ment include traffic control and security on the day-of-event, enforcing traffic and parking restrictions, escorting dignitaries to/from the event venue, and en- Transportation engineer OVERVIEW forcing the requirements of a traffic operations agency.

• Event organizers initiate the event operations planning phase by notifying Law enforcement officer stakeholders, through a written request to public agencies or the submission of an event permit application, and assembling an event planning team. The event

organizer governs the logistics of the ADVANCE PLANNING planned special event. The event organ- Event organizer izer continually works to maintain interagency coordination in order to meet milestones in the advance planning process and ultimately gain stakeholder approval of the proposed transportation The three user groups include: management plan.

• Transportation engineers include traf- REFERENCES DAY-OF-EVENT ACTIVITIES fic engineers, transit officials, and transportation planners. Traffic engineers 1. Managing Our Congested Streets may lead event operations planning and and Highways, Report No. FHWA- day-of-event traffic management activi- OP-01-018, Federal Highway Ad- ties. Event operations planning activities ministration, Washington, D.C., may include developing and reviewing 2001, 18 pp. traffic management plans and formulat- ing traffic signal system timing plans to 2. Kelleher, B., “Action on the High- POST-EVENT ACTIVITIES accommodate anticipated fluctuations in ways,” Transportation News, Florida traffic demand. Traffic engineers have a Department of Transportation, Vol. day-of-event responsibility of monitor- 36, No. 1, January 2003, p. 7. ing and maintaining traffic flow traversing their jurisdiction. Transit officials 3. Corbin, J., “Strategies to Improve examine potential public transit incen- Management of Travel for All

tives in addition to event express bus Planned Special Events in a Region,” EVENT PROFILE service. Transportation planners may Presented at the 82nd Annual Meet- administer a permit application for a lo- ing of the Transportation Research cal planned special event.

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Board, Washington, D.C., January 12—16, 2003.

4. Carson, J.L. and R.G. Bylsma, Transportation Planning and Man- agement for Special Events, NCHRP Synthesis 309, Transportation Re- search Board, National Research Council, Washington D.C., 2003, 71 pp.

5. “ITS Deployment Tracking”, U.S. Department of Transportation, Washington, D.C., 2003 [Online]. Available: http://itsdeployment2.ed.ornl.gov/its 2002/default.asp. [2003, September 10].

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CHAPTER TWO CHARACTERISTICS AND CATEGORIES 2 OF PLANNED SPECIAL EVENTS OVERVIEW ADVANCE PLANNING

Figure 2-1 Event Traffic Management (Photo courtesy of the Wisconsin DOT.) DAY-OF-EVENT ACTIVITIES

PURPOSE PLANNED SPECIAL EVENT This chapter presents planned special event operations characteristics and associated fac- CLASSIFICATION tors defining the scope of event impact on

transportation system operations. It de- Characteristics POST-EVENT ACTIVITIES scribes planned special event classification in terms of event categories and event im- A planned special event impacts the trans- pact level. This chapter also introduces the portation system by generating an increase stakeholder groups organized under the in travel demand in addition to possibly various phases of managing travel for causing a reduction in roadway capacity be- planned special events. cause of event staging. The first step toward

achieving an accurate prediction of event- EVENT PROFILE generated travel demand and potential transportation system capacity constraints involves gaining an understanding of the event

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characteristics and how these characteristics tion and its potential impact on the transpor- affect transportation operations. In turn, tation system. These variables include: practitioners can classify the planned special event in order to draw comparisons between • Event time of occurrence defines the the subject event and similar historical time of day(s) the event is open for busi- events to shape travel forecasts and gauge ness, a key variable when comparing transportation impacts. event-generated traffic to background traffic. Figure 2-2 shows typical operational charac- o For example, weekday events may teristics of a planned special event. Each face constraints on roadway, transit, characteristic represents a variable that and parking capacity because of greatly influences the scope of event opera- commuter travel.

• Specific start time •Urban • Predictable ending time •Metro • Single venue • Continuous operation •Rural • Multiple start times • Multiple venues • Fixed venue • Temporary venue •Park Event Time Area Event • Streets and Duration Type Location

• Night/day • Weekdays/weekend • Single day Event • Multiple days Expected Operation Event Time • Multiple weeks Attendance Characteristics of Occurrence • Tourist season

• Sports/concert • Fair/festival • Parade/race • Convention Audience Event Event Accommodation Market Area Type

•Free/cost •Local • Ticket/ticketless •Regional • General admission • Statewide • Reserved seating • National

Figure 2-2 Event Operation Characteristics

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• Event time and duration defines eas of Wisconsin, and 22 percent of (1) whether the event features a specific patrons lived outside Wisconsin. 2 main event start time, likely to condense The event clearly had a re- event patron arrival, or operates continu- gional/statewide market area. ously throughout the day where patrons o Political conventions or major indus- may freely come and go. try exhibitions feature a national scope where the majority of attendees do not reside in the host city.

• Event location defines the characteris- OVERVIEW tics of the venue(s) location and connection to the existing transportation infra- • Expected attendance defines the maxi- structure. mum, estimated number of event pa- o Typically, fixed venues, such as sta- trons. diums or arenas, feature high- o Attendance estimates may include capacity parking areas adjacent to the anticipated number of VIPs, ad- the venue and good access to/from vance ticket holders, patrons with an adjacent freeways and principal arte- assigned parking pass, and patrons rial streets. requiring special assistance.

o Temporary venues may lack these o With regard to sporting events, key ADVANCE PLANNING features, thus requiring the develop- components in estimating attendance ment of a detailed site access and involve home team performance and parking plan. visiting team attraction. o Games involving high-profile visit- • Area type defines the scope of available ing teams or performers may sell-out transportation services, the characteris- far in advance of the event, allowing tics of background traffic traversing the stakeholders sufficient notice to take area, and the various stakeholders that appropriate measures. o Attendance impacts traffic opera- may become involved in event planning DAY-OF-EVENT ACTIVITIES and management. These characteristics tions in the immediate vicinity of the influence the event operations planning event venue depending on the access process and day-of-event travel man- and parking capacity furnished at the agement, yet significantly vary across venue. rural, urban, and metropolitan areas. • Audience accommodation defines the • Event market area defines the area potential to predict the number and ori-

from where event patrons originate and gins of event-generated trips in addition POST-EVENT ACTIVITIES the scope of event exposure. to the type of trip patrons may make to o For example, the Summerfest music the venue. festival in downtown Milwaukee o Attendance at free events is hard to drew over one million in attendance predict and may vary considerably over eleven days in 2002. Demo- based on weather conditions and graphic surveys indicated 56 percent other factors on the day-of-event. Events featuring advance ticket sales

of Summerfest patrons lived in the o EVENT PROFILE four counties comprising the greater and reserved seating may decrease metropolitan Milwaukee area, 22 the number of event patrons making percent of patrons lived in other ar-

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a spur-of-the-moment decision to at- across the country have developed distinct tend an event. planning processes, policies, and regulations specific to particular event categories. The • Event type defines the type of event that balance of this section describes each of the may be subject to special regulations and five defined event categories. permit requirements. The event type includes many of the previously defined Discrete/Recurring Event at a Permanent characteristics of planned special events Venue that influence event-generated travel demand and level of impact on the A discrete/recurring event at a permanent transportation system. Event planners venue occurs on a regular basis, and it has a may refer to event type when research- specific starting time and predictable ending ing impacts on travel caused by similar time. Events classified under this category events. have predictable peak arrival and departure rates relative to other categories of planned Categories special events. These events generate high peak travel demand rates because of patron The event operation characteristics de- urgency to arrive at the venue by a specific scribed in the previous section create five event start time. Moreover, these events end categories of planned special events, listed abruptly upon game time expiration or the in Table 2-1. conclusion of a final song, which creates high peak departure rates. Table 2-1 Categories of Planned Special Events Stadiums and arenas occasionally host SPECIAL EVENT CATEGORY weeknight events that may conflict with • Discrete/recurring event at a permanent venue commuter traffic, especially if media broad- • Continuous event casting the event mandates a specific start • Street use event time. For instance, a Monday Night Foot- • Regional/multi-venue event ball game held in San Diego, San Francisco, • Rural event Oakland, or Seattle usually begins at 6:00 p.m. Pacific time to satisfy television broad- Table 2-2 contrasts some general character- cast requirements. istics specific to each defined event category. Figure 2-3 illustrates events represent- Continuous Event ing four event categories. The fifth category, regional/multi-venue event, includes A continuous event occurs over a single or any combination of the first three event multiple days. Unlike a discrete/recurring categories listed in Table 2-1. event at a permanent venue, continuous events do not exhibit sharp peak arrival and This technical reference makes exclusive peak departure rates. Event patrons typi- reference to the defined categories of cally arrive and depart throughout the event planned special events when referencing or day. profiling particular event types. In recognizing the unique characteristics of each cate- Aside from conventions and state/county gory of planned special event regarding trip fairs, many continuous events take place at a generation and event impact on transporta- temporary venue, a park, or other large open tion system operations, many jurisdictions

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Table 2-2 Characteristics of Different Planned Special Event Categories CHARACTERISTIC PLANNED SPECIAL EVENT CATEGORY 2 Discrete/Recurring Event at a Permanent Venue Event Location • Fixed venue Event Time of Occurrence • Single day; Night/day; Weekday/weekend Event Time and Duration • Specific start time; Predictable ending time Area Type • Metro; Urban Event Market Area • Local; Regional; Statewide; National

Expected Audience • Known venue capacity OVERVIEW Audience Accommodation • Cost; Ticket; Reserved seating; General admission Event Type • Sporting and concert events at stadiums, arenas, and amphitheaters. Continuous Event Event Location • Temporary venue; Park; Fixed venue Event Time of Occurrence • Single/multiple days; Weekends; Multiple weeks Event Time and Duration • Continuous operation Area Type • Metro; Urban Event Market Area • Local; Regional Expected Audience • Capacity of venue not always known Audience Accommodation • Free/cost; Ticket/ticketless; General admission

Event Type • Fairs; Festivals; Conventions/expos; Air/automobile shows ADVANCE PLANNING Street Use Event Event Location • Streets Event Time of Occurrence • Single day; Weekends Event Time and Duration • Specific start time; Predicable ending time Area Type • Metro; Urban; Rural Event Market Area • Local; Regional Expected Audience • Capacity generally not known Audience Accommodation • Free; Ticketless • Parades; Marathons; Bicycle races; Motorcycle rallies; Grand Prix auto races; Event Type Dignitary motorcade DAY-OF-EVENT ACTIVITIES Regional/Multi-Venue Event Event Location • (Multiple) Fixed venue; Temporary venue; Streets Event Time of Occurrence • Single/multiple days; Weekends Event Time and Duration • Specific start time; Predictable ending time; Continuous operation Area Type • Metro (typically); Urban; Rural Event Market Area • Local; Regional; Statewide; National • Overall capacity generally not known if continuous events or street use events Expected Audience involved Audience Accommodation • Free/cost; Ticket/ticketless POST-EVENT ACTIVITIES • Sporting games; Fireworks displays; Multiple planned special events within a Event Type region that occur at or near the same time Rural Event Event Location • Fixed venue; Temporary venue; Park Event Time of Occurrence • Single/multiple days; Weekends; Tourist season Event Time and Duration • Specific start time; Predictable ending time; Continuous operation Area Type • Rural Event Market Area • Local; Regional EVENT PROFILE Expected Audience • Capacity of venue not always known Audience Accommodation • Free/cost; Ticket/ticketless Event Type • Discrete/recurring event; Continuous event

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Discrete/Recurring Event at a Permanent Venue Continuous Event

Street Use Event Rural Event

Figure 2-3 Examples of Planned Special Events

space. As a result, roadway and parking ca- arterial streets or limited-access highways. pacity issues may arise in the immediate area surrounding a temporary venue. Tem- A street use event significantly impacts porary venues may not have a defined spec- businesses and neighborhoods adjacent to tator capacity, thus creating uncertainties in the event site from the perspective of park- forecasting event-generated trips since a ing and access. A street use event closes a “sell-out” cap does not exist. segment(s) of the roadway network and causes background and event traffic to divert onto alternate routes, thus increasing traffic Street Use Event demand on other streets in the roadway network. A street use event occurs on a street requiring temporary closure. These events gener- Filming activities may require the closure of ally occur in a city or town central business major roadways for an extended duration, district; however, race events or motorcycle but stakeholders can work with production rallies may necessitate temporary closure of companies on day-of-the-week scheduling.

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Regional/Multi-Venue Event occurrence due to the baseball playoff system. Broadcast media likely required A regional/multi-venue event refers to mul- the game start time of 1:05 p.m. As a re- 2 tiple planned special events that occur sult, high departure rates from Edison within a region at or near the same time. Field and high arrival rates to Arrow- The collection of events may have different head Pond occurred at approximately the starting times and differ in classification same time. category. For instance: • Although special circumstances sur- rounded the above example event, stake- OVERVIEW • On August 31, 2002, downtown Denver holders managing all planned special hosted the Grand Prix of Denver (atten- events within a region emphasize coor- dance 20,000), the Taste of Colorado dination of event times to reduce peak festival (attendance 150,000), and a col- parking demand and impact on transpor- lege football game (attendance tation system operations. 76,000).(2) Grand Prix races and the Taste of Colorado also occurred simul- Rural Event taneously on two other days of Labor Day weekend 2002. Rural events encompass any dis-

• Major fireworks displays warrant con- crete/recurring event or continuous event ADVANCE PLANNING sideration under this event category occurring in a rural area. Planned special since large crowds may spread out over events occurring in rural areas deserve a a large area depending on the number of stand-alone classification category for sev- good vantage points available. eral reasons: • The lack of overflow parking and roadway congestion represents some of the • Need for stakeholders to assume new key concerns when planning for multiple and/or expanded roles. events occurring within a small area. • Existence of limited road capacity to access the event venue and potentially lim-

DAY-OF-EVENT ACTIVITIES A number of major metropolitan areas have ited parking capacity at the venue. two or more adjacent fixed venues or venues • Existence of fewer alternate routes to utilizing the same freeway corridor. Multi- accommodate event and background ple venues may occasionally host events on traffic. the same day. • Lack of regular transit service and hotels near the venue. • Figure 2-4 illustrates an example of a • Existence of limited or no permanent infrastructure for monitoring and manag- regional/multi-venue event that occurred POST-EVENT ACTIVITIES in Anaheim, CA. The Anaheim Angels ing traffic. baseball team hosted a playoff game at Edison Field, and the Mighty Ducks of Impact Level Anaheim hockey team played against a high-attendance drawing team from De- Stakeholders responsible for planning and troit at the Arrowhead Pond, located on managing travel for planned special events

the opposite side of State Route 57 and must gauge the potential severity of a EVENT PROFILE Katella Avenue from Edison Field. Both planned special event. Agencies must de- events sold-out, but the baseball game termine with certainty if a planned special had been scheduled only days before its event will affect or impede the normal flow

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Arrowhead Pond Red Wings vs. Mighty Ducks Start time = 6:00 PM Attendance = 17,174

State College Blvd. Katella Ave.

S.R. 57

Edison Field Twins vs. Angels Start time = 1:05 PM End time = 4:35 PM Attendance = 44,835

October 13, 2002 • Anaheim Angels win American League pennant. • Mighty Ducks of Anaheim regular season home opener. Figure 2-4 Example Regional/Multi-Venue Event

of traffic and if yes, how much impact will Example Incident Management Protocol the event have. Answers to these questions determine the scope of the transportation The stakeholders and resources involved in management plan required to mitigate event- traffic incident management and managing generated impacts on travel in addition to travel for planned special events overlap. the number of stakeholders that become in- The following examples of classifying a volved in advance planning and day-of- planned special event under a traffic incident event travel management activities. severity level illustrate how traffic incident

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responders determine the resources and level of several dynamic factors. Collectively, of effort required to manage traffic during a planned special event impact factors differ planned special event: from those considered in determining the 2 severity of other types of planned and un- • A new chapter included in the proposed planned events. amendments to the 2000 Manual on Uni- form Traffic Control Devices As illustrated in Figure 2-5, the three core (MUTCD), entitled “Control of Traffic factors include travel demand, road/site ca- Through Traffic Incident Management pacity, and event operation. Available re- OVERVIEW Areas,” defines an incident as follows:(3) sources and external factors represent secondary aspects that also affect the impact a A traffic incident is an emergency road planned special event has on transportation user occurrence, a natural disaster, or a system operations. Key considerations in- special event that affects or impedes the clude: normal flow of traffic. • Travel demand refers to the expected The proposed MUTCD amendment clas- number of event patrons and their arrival sifies traffic incident severity by dura- and departure rates. Modal split has a

tion of incident. Incident classification significant influence on the level of ADVANCE PLANNING levels include: event impact, particularly on traffic operations. Event patrons may travel to the o Major – expected duration of more event via personal vehicle, transit, walk- than 2 hours; ing, or a combination of modes. A o Intermediate – expected duration of planned special event travel forecast in- 30 minutes to 2 hours; and volves estimating travel demand magni- o Minor – expected duration under 30 tude, travel demand rate, and modal minutes. split.

DAY-OF-EVENT ACTIVITIES Planned special events having a duration • Road/site capacity concerns the avail- of two hours fall within the classification able venue access and parking back- of “major incident.” ground capacity in addition to the capacity of roadways and transit serving the • The Colorado Department of Transporta- event venue. Capacity must take into tion (DOT) – Region 6 maintains the fol- account: (1) background parking occu- lowing criteria for classifying a planned pancy in parking areas serving the event

special event as a Level III Modified In- venue and (2) volume of background POST-EVENT ACTIVITIES cident, the highest Region 6 traffic inci- traffic that normally traverses the road dent severity level: special or planned system serving the event venue. Capac- events that have major impacts.(4) ity influences travel demand to a limited extent, as “seasoned” event patrons in Planned Special Event Severity some locales may choose to use transit to access an event venue, because of se- It is important to recognize that the impact vere traffic congestion experienced in EVENT PROFILE of a planned special event on traffic and the past, although they may not represent transit operations depends on a combination regular transit users.

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TRAVEL ROAD/SITE DEMAND CAPACITY

AVAILABLE EXTERNAL RESOURCES EVENT FACTORS OPERATION

Figure 2-5 Planned Special Event Impact Factors

• Event operation essentially defines the available on-site parking from scope of travel demand, including mar- 19,600 spaces to 3,400 spaces.(5) ket area, and may reduce available background capacity because of event staging • Available resources refer to the quan- requirements. Event operations impact tity of personnel and equipment avail- the effect a planned special event has on able to plan for and conduct day-of- travel. For instance: event travel management operations. o A venue may open earlier to better The occurrence of regional/multi-venue spread the rate of arrivals for a con- events or other unplanned events may cert or sporting game. strain available stakeholder resources o Event patrons may be given special needed to manage a particular planned advance instruction on specific park- special event. ing options. o An event organizer may relocate an • External factors include concurrent event to a different venue when roadway construction activities on road- roadway capacity deficiencies can way corridors serving a venue and pre- not be adequately mitigated. vailing weather conditions on the day- o On the other extreme, corporate hos- of-event. Weather conditions have a pitality tents at the 2003 Super Bowl significant impact on attendance (e.g., in San Diego reduced the amount of

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travel demand) or the rate of arrivals and oped criteria to categorize various sizes of departures at some events. For example: planned special events. As a result, one o Event patrons will attend an open-air proposed special event may have to meet 2 sporting event in extremely hot more stringent permitting requirements than weather, but patrons may bypass ar- other events based on its severity classifica- riving at the venue early to tailgate, tion. Decision criteria include expected thus concentrating patron arrivals. attendance and scope of street closure. o Rain events may flood unpaved parking lots and venue access roads, The following examples summarize the OVERVIEW rendering them impassable and re- permit classification standards of several ducing available road/site capacity. jurisdictions, and the collective category Rain events may also cause sharp ar- thresholds specific to each jurisdiction vary rival and departure rates in addition by jurisdiction population: to safety problems. • Alpine County, CA (pop. 1,208) speci- When determining the level of impact each fies three planned special event category of the five stated planned special event fac- sizes: tors has on travel, consider each of the fol- o Minor event – 75-100 people. lowing components: o Mid-size event – 101-500 people. ADVANCE PLANNING o Major Event – 501+ people: requires • Duration – temporal impact. public hearing with the Alpine • Extent – spatial impact or scope of area County Planning Commission. affected. • Intensity – volume of impact. • West Sacramento, CA (pop. 31,615) maintains three planned special event Planned Special Event Impact Classification category sizes: o Category 1 event – 50 to 499 people. Category 2 event – 500 to 2,999 peo- Jurisdictions have established defined o DAY-OF-EVENT ACTIVITIES planned special event impact classification ple. levels for the purpose of determining: (1) o Category 3 event – 3,000 or more event permit requirements, (2) transportation people: requires major police support management plan deployment, and (3) scope and traffic control. of potential impact on the transportation system. • Louisville, KY (pop. 256,231) specifies three planned special event category

The balance of this section summarizes sizes: POST-EVENT ACTIVITIES various frameworks, based on a range of o Small Event – maximum peak atten- event impact factors and thresholds, applied dance of 500 people or less. to estimate the severity level of a particular o Special Event – maximum peak at- planned special event for advance planning tendance of more than 500 and less purposes. than 5,000 people. o Major Event – maximum peak atten- Event Permit Requirements dance of 5,000 or more people. EVENT PROFILE

A number of communities with planned spe- • Clarksville, TN (pop. 103,455) states a cial event permit guidelines have also devel- “minor event” must meet the following

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transportation impact criteria: (1) event cial events. These program planning activi- must last no longer than one day and (2) ties do not focus on a single, known planned street closures will be less than four special event. Therefore, stakeholders must hours and limited in scope. establish transportation management plan deployment thresholds to ensure availability • Palo Alto, CA (pop. 58,598) developed and placement of adequate resources to three street use event impact classifica- maintain satisfactory site and transportation tions based on the spatial characteristics operations during any future planned special of proposed street closures. The street event occurring at the venue. use event categories are: o Class A – A celebration, parade, lo- • The parking and transportation manage- cal special event, festival, meeting, ment plan for Investco Field in Denver procession, concert, rally, march, or contains separate traffic management any similar occurrence which ex- and operations plans, categorized under ceeds one city block in length or ob- four attendance scenarios, for future structs more than one intersection, planned special events occurring at the whether or not such occurrence is venue:(6) moving. o Sold-out Denver Broncos (football) o Class B – A Class A closure or a games. block party of any similar occurrence o Other large events with an atten- not exceeding one city block or one dance of more than 60,000. intersection on other than arterial or o Medium events with an attendance collector streets, and along which at between 40,000 and 59,000. least two-thirds of the area is in a o Small events with an attendance be- residential zone. tween 20,000 and 39,000. o Class C – A local special event or similar occurrence involving the dis- The traffic management and operations play, exhibition, advertisement, or plans for each scenario vary based on: sale of merchandise, etc., upon a por- (1) event patron modal split prediction, tion of the public sidewalk. Cannot (2) site parking lot usage, (3) Investco exceed 50% of width of sidewalk. Field transit service, and (4) level of personnel and equipment resources for traf- Venue Transportation Management Plan fic control in the vicinity of Investco Deployment Field.

Stakeholders often develop transportation Regional Traffic Operations Impact Level management plans specific to a permanent venue, such as a stadium, arena, or amphi- The State of Wisconsin and the City of Los theater. Development of site access and Angeles assign event impact levels for a parking plans usually occur during venue proposed planned special event: construction. Transportation agencies and law enforcement may develop traffic control • The organization of the Traffic Incident plans, based on a generic or recurring event, Management Enhancement (TIME) pro- for managing transportation operations on gram in southeastern Wisconsin includes streets adjacent to the venue and/or corridors a 40-plus agency Freeway Incident serving the venue during future planned spe- Management Team responsible for pro-

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viding technical guidance toward TIME special events scheduled to occur within implementation. This group maintains a the agencies’ jurisdiction. The LADOT subcommittee on special events. The and LAPD assign an event impact level 2 special events subcommittee proposed a to each event to describe the general concept of creating a special event traffic scope of each agency’s involvement in management planning tool applicable to advance planning and day-of-event traf- any planned special event proposed in fic management. The event impact lev- the greater Milwaukee metropolitan els include: area. The tool proves particularly useful o Level 1: Install and enforce tempo- OVERVIEW for assessing the required multi-agency rary parking restrictions. response to a planned special event pro- o Level 2: Level 1 and deployment of posed with relatively brief advance no- traffic officers (LAPD). tice. Based on the input of information o Level 3: Level 2 and engineer- related to the previously described five ing/ATSAC support (LADOT). event impact factors, the tool assigns one o Level 4: Coordinated major event re- of five event impact levels to a proposed sponse effort. event. The following numerical thresholds define the five event impact levels: ATSAC refers to LADOT’s Automated

o Traffic Condition Level 1 = 15 Traffic Surveillance and Control System. ADVANCE PLANNING o Traffic Condition Level 2 = 25 Initially deployed for the 1984 Summer o Traffic Condition Level 3 = 35 Olympic Games, ATSAC is a computer o Traffic Condition Level 4 = 45 traffic signal system that monitors traffic o Traffic Condition Level 5 = 65 conditions and system performance, se- lects appropriate traffic signal timing Figure 2-6 shows a draft version of the strategies, and performs equipment di- planning tool, including the numerical agnostics and alert functions. Operators values assigned to each event impact at the ATSAC Operations Center receive factor answer. TIME stakeholders plan real-time information from signalized to develop an action plan corresponding intersection detectors and signal control- DAY-OF-EVENT ACTIVITIES to each identified planned special event lers, and operators have access to closed- level. The action plan will list recom- circuit television images at critical loca- mended practices for stakeholders that tions throughout the City.(8) regularly manage traffic during the occurrence of a planned special event, in- STAKEHOLDER cluding the Wisconsin DOT – District 2, county highway departments, law en- GROUPS POST-EVENT ACTIVITIES forcement, and event venue personnel. These recommended practices would de- Transportation system performance during a tail required staffing levels, on-call planned special event affects numerous equipment, alternate route usage, traffic stakeholders. Achieving seamless and effi- signal system modifications, available cient transportation operations between transit options, and other information.(7) freeways, streets, parking facilities, and transit serving a special event venue requires EVENT PROFILE • The City of Los Angeles DOT (LADOT) a sound multidisciplinary, inter- and Los Angeles Police Department jurisdictional, and inter-modal approach. (LAPD) maintain a database of planned The organization and coordination of

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Figure 2-6 Wisconsin TIME program Special Event Traffic Management Planning Tool (Graphic courtesy of the Wisconsin DOT.)

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planned special event stakeholders is para- Figure 2-7 shows that advance planning and mount to meeting the goals of planned spe- day-of-event management of travel for 2 cial event management: achieving predict- planned special events involves stakeholders ability, ensuring safety, and maximizing ef- comprising the following three distinct ficiency. Steps toward meeting this objec- groups: tive begin in the advance planning of traffic management plans and other initiatives and • The oversight team involves stake- continues through implementation and day- holders participating in program plan- OVERVIEW of-event travel management. ning activities to improve the management of travel during future planned Planned special events can involve a wide special events. These stakeholders in- range of stakeholders with diverse goals and clude mid-to-upper level representatives incentives. One of the biggest challenges to of transportation agencies and law en- consistently achieving effective planned spe- forcement. Additional stakeholders in- cial event management is coordinating and clude elected officials, regional organi- integrating the responses of all involved zations, and other government agencies. stakeholders, each with responsibility to Members of an oversight team work to

serve the public, but with sometimes diver- establish policies, regulations, proce- ADVANCE PLANNING gent priorities and performance objectives. dures, and task forces for future applica- Each stakeholder has its own norms, guide- tion to a specific planned special event. lines, sense of authority, and internal cul- Team members may interact with an ture. The involvement of multiple stake- event planning team, consulting on fea- holders can threaten the sense of security sibility study results and evaluating con- and authority of each, causing such groups ceptual transportation management plan to unconsciously de-emphasize the public components. Stakeholders may also good each has set out to serve.(9) As a result, work independent of the team to evalu- the objectives of the collective stakeholder ate potential new technology applica- DAY-OF-EVENT ACTIVITIES group are left unfulfilled. tions that may improve their performance and capabilities while meeting team Several stakeholders active in the advance objectives. planning and management of planned special events also team to mitigate the occur- • The event planning team involves rence of unplanned events, such as traffic stakeholders participating in event- incidents and other emergencies, through specific operations planning and traffic proactive planning and response. These

management plan implementation tasks. POST-EVENT ACTIVITIES stakeholders include transportation agencies, Stakeholders comprising the oversight law enforcement, and emergency service team typically have mid-level represen- agencies. It should be recognized that the tatives serving on the event planning roles and responsibilities of stakeholders team. Other stakeholders include the involved in managing unplanned events event organizer, media, emergency ser- change under planned special events. How- vice agencies, private industry, and the ever, the important partnerships and level of public. Due to the wide range of ad- EVENT PROFILE trust established between stakeholders carry vance planning tasks and potential event over to groups formed to plan and manage management initiatives, an event plan- planned special events. ning team may create a number of

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A N D O I Oversight A T P Team T RA A B G E IL Event Planning Team IT INT Y

Traffic Management Team

TRANSFERABILITY

Figure 2-7 Planned Special Event Stakeholder Groups

satellite task forces. Example task Major annual event or venue task forces ex- forces include a communications sub- ist in some jurisdictions that serve the role of committee or task force on evaluating both an oversight team and event planning potential travel demand management team. The task force may meet year-round strategies. to mitigate lessons learned from past events, then expand to include additional event op- • The traffic management team involves erations stakeholders as the next event nears. stakeholders responsible for managing travel on the day-of-event. These stake- The success of each identified stakeholder holders include operations managers and group in meeting the goals of managing field personnel representing transporta- travel for planned special events depends on tion agencies, law enforcement, the three criteria: integration, adaptability, and event organizer, media, and private in- transferability: dustry. An event traffic management team typically interacts with the event • Integration refers to achieving stake- planning team during implementation holder cooperation and coordination activities. The traffic management team across disciplines and jurisdictional may also debrief the oversight team and boundaries. Interagency resource shar- event planning team during post-event ing represents a product of such stake- evaluation activities. holder coordination. • Adaptability concerns the ability of stakeholders to adapt to new roles and

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responsibilities unique to managing travel for planned special events. These 5. Smith, M.C., “King of Super Bowl new roles may involve changes in stake- Roads,” Orange County Register, 2 holder authority compared to roles under January 25, 2003. other types of planned and unplanned events. 6. Parking and Traffic Management • Transferability refers to maintaining Plans for Investco Field at Mile continuous interagency communication, High, Prepared for the City and sharing of expertise to effect interagency County of Denver by Turner/HNTB, OVERVIEW training, and exchanging observations June 2002. and lessons learned relative to stakeholder experiences. 7. Silverson, S., Wisconsin Department of Transportation – District 2, Per- The discussed criteria facilitates good man- sonal Communication, February 18, agement that, in turn, helps meet the needs 2003. of all road users and achieve satisfactory outcomes for each involved stakeholder. 8. “Los Angeles City TrafficInfo,” City of Los Angeles Department of

Transportation, Los Angeles, Cali- ADVANCE PLANNING REFERENCES fornia, 2003 [Online]. Available:

http://trafficinfo.lacity.org. [2003, 1. “FIMT 2002 Event Season Wrap Up May 14]. – Summerfest Round Table,” Mil-

waukee World Festival, Inc., Mil- 9. Strategic Highway Research: Saving waukee, Wisconsin, 2002. Lives, Reducing Congestion, Improv-

ing Quality of Life, Special Report 2. Shell Grand Prix of Denver – Park- 260, Transportation Research Board, ing and Traffic Management Plan, Washington, D.C., 2001, 220 pp. Prepared for the Grand Prix of Den- DAY-OF-EVENT ACTIVITIES

ver by URS Corporation, August

2002, 33 pp.

3. “MUTCD Millennium Edition, Pro-

posed Revision No. 2, 5/21/2002,”

Federal Highway Administration,

Washington, D.C., 2002 [Online].

Available: POST-EVENT ACTIVITIES

http://mutcd.fhwa.dot.gov/kno- millennium_npa.htm. [2003, March

11].

4. “Protocols for Incidents in Region

6,” Colorado Department of Trans-

portation – Region 6, Denver, Colo- EVENT PROFILE rado, March 1999.

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CHAPTER THREE OVERVIEW 3 OVERVIEW ADVANCE PLANNING

Figure 3-1 Event Pedestrian Management

DAY-OF-EVENT ACTIVITIES tate each step are indicated and organized PURPOSE through the following five phases: program planning, event operations planning, imple- This chapter presents a high-level summary mentation activities, day-of-event activities, of managing travel for planned special and post-event activities. events for all users of this technical reference. It aims to identify the key aspects of each step necessary to manage travel for a INTRODUCTION specific planned special event and all special POST-EVENT ACTIVITIES events in a region. This chapter provides all users with a working knowledge of the techniques and strate- This chapter provides a background on the gies that practitioners may use to success- purpose of managing travel for planned spe- fully: (1) plan for and operate a particular cial events. It highlights all of the steps nec- planned special event or (2) manage all essary to manage travel for a particular planned special events in a region. In turn, planned special event and all planned special individual stakeholders gain an understand- EVENT PROFILE events in a region. Recommended policies, ing of the collective tasks facing multidisci- guidelines, procedures, strategies, and re- plinary and inter-jurisdictional planned spe- source applications that support and facili- cial event stakeholder groups charged with

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developing and implementing solutions to phases of managing travel for planned spe- acute and system-wide impacts on travel cial events. These sections collectively pre- during a special event. sent all the steps necessary to manage travel for a particular planned special event in ad- Subsequent chapters of this handbook pro- dition to future events in a region. vide expanded and in-depth coverage of all potential tasks and stakeholder activities conducted within individual planned special BACKGROUND event management phases. Chapters 4 through 10, which represent the core chap- In the past, the media has reported horren- ters of this handbook, contain detailed in- dous traffic congestion that has occurred at formation on advance planning, day-of- several major planned special events. In one event operation, and post-event evaluation instance, golfers participating in a major activities that stakeholders perform and/or professional golf tournament were caught in consider in mitigating special event impacts major traffic jams along with event patrons on transportation system operations. Chap- and other motorists. Facing a 2-stroke pen- ters 11 through 15 describe an advance alty or disqualification if they arrived at the planning and travel management process first tee past their assigned tee time, several and considerations specific to a particular players pulled their cars to the side of the category of planned special event. road, carried their golf bags, and walked to the course. These situations emphasize the A background section describes how trans- need for this handbook, which presents poli- portation operations vary during a planned cies, guidelines, procedures, strategies, and special event and identifies advance plan- resource applications that assure the suc- ning activities employed to successfully cessful management of travel for planned manage travel for a special event. This sec- special events. tion identifies specific stakeholders, coupled with their typical duties and responsibilities, What is Managing Travel for that may actively participate under different Planned Special Events? phases of special event management. It also includes a discussion on the distinct, chrono- A planned special event creates an increase logical phases of managing travel for in travel demand and may require road clo- planned special events, including the com- sures to stage the event. Planned special mon products generated in each phase and events generate trips, thus impacting overall associated benefits of carrying out each transportation system operations. This in- phase. cludes freeway operations, arterial and other street operations, transit operations, and pe- A section on categories of planned special destrian flow. Unlike roadway construction events identifies special characteristics spe- activities or traffic incidents that constrain cific to each event category that impacts travel within a single corridor, planned spe- transportation system operations. cial events affect travel in all corridors serving the event venue. This chapter concludes by summarizing planning approaches, operational strategies, Managing travel for planned special events and technology applications for managing involves developing a transportation man- transportation system operations during agement plan that contains operations and

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service strategies specific to managing traf- pacted, the event planning team should be fic, transit, and travel demand. As shown in comprised of a wide range of stakeholders: Figure 3-2, a transportation management 3 plan consists of three components: • Event operations stakeholders focus on mitigating the safety, mobility, and reli- • Traffic management plan ability impacts on transportation opera- • Transit plan tions. • Travel demand management initiatives • Community interest stakeholders seek to

minimize impacts on community quality OVERVIEW Traffic operations agencies, transit agencies, of life and maximize potential social and law enforcement agencies, and event organ- economic benefits. izers represent key stakeholders in the trans- • Event support stakeholders serve to sup- portation management plan development port and execute the transportation man- process because of the responsibility they agement plan by following proposed ini- bear in developing, approving, and imple- tiatives or providing necessary resources menting the plan. To ensure that the plan for plan deployment. addresses the requirements of all those im-

ADVANCE PLANNING

Transit Agency

Traffic Operations Agency / Travel Demand Transit Plan Law Enforcement Management DAY-OF-EVENT ACTIVITIES

• High Occupancy Vehicle Incentives • Public Transit Service Community Event Event • Event Patron Incentives Expansion Interest Operations Support • Bicyclist Accommodation •Express Bus Service • Local Travel Demand Management •Charter Service Stakeholders Stakeholders Stakeholders

Traffic POST-EVENT ACTIVITIES Event Organizer Management Plan

• Site Access and Parking Implementation • Pedestrian Access Plan • Traffic Flow • Traffic Control • En-Route Traveler Information • Traffic Surveillance EVENT PROFILE • Traffic Incident Management and Safety Figure 3-2 Transportation Management Plan Components and Event Planning Team Involvement

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Stakeholder Roles and representing transportation agencies, law Coordination enforcement, the event organizer, media, and private industry. The advance planning and management of travel for planned special events requires the Major annual event or venue task forces ex- consistent involvement and coordination of ist in some jurisdictions that serve the role of stakeholders throughout all phases of the both an oversight team and event planning event. Table 3-1 indicates the responsibili- team. The task force may meet year-round ties of the three stakeholder groups. to mitigate lessons learned from past events, then expand to include additional event op- • An oversight team involves mid-to- erations stakeholders as the next event nears. upper level representatives of transportation agencies and law enforcement. Ad- Figure 3-3 presents common stakeholders, ditional stakeholders include elected of- representing various disciplines and jurisdic- ficials, regional organizations, and other tions, that play an active role in managing government agencies. travel for planned special events on a local and/or regional level. • The event planning team consists of

mid-level representatives of transporta- The following subsections describe the po- tion agencies and law enforcement as tential roles and responsibilities of each well as the event organizer, media, pub- identified stakeholder in addition to his or lic safety agencies, private industry, and her coordination with other planned special the public. events stakeholders. • A traffic management team includes operations managers and field personnel

Table 3-1 Responsibilities of Stakeholder Groups STAKEHOLDER FUNCTION GROUP Oversight • Manage all planned special events in a region. Team • Establish policies, regulations, procedures, and task forces for future application to a specific planned special event. • Identify infrastructure improvements and evaluate potential new technology applications. • Interact with an event planning team, consulting on feasibility study results and evaluating conceptual transportation management plan components.

Event Planning • Conduct event operations planning activities for a specific planned special event. Team • Perform traffic management plan implementation tasks.

Traffic • Manage travel on the day-of-event. Management • Interact with the event planning team during implementation activities. Team • Debrief the oversight team and event planning team during post-event evaluation activities.

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Law Enforcement Media Transportation Agencies State Police Television/Radio/Newspaper State DOT 3 County Police/Sheriff Traffic Advisory Service County/Local DPW Local Police Planning Department Transit Agencies

Event Organizer Public Safety Fire Department Emergency Medical Service Special Event OVERVIEW Stakeholders Public Elected Officials Residents Businesses Community Groups

Private Industry Government Agencies Transportation Consultants Regional Organizations Office on Special Events Traffic Control Contractors Metropolitan Planning Organizations Emergency Management Agency

ITS Vendors Regional Operating Organizations ADVANCE PLANNING

Figure 3-3 Planned Special Event Stakeholders

DAY-OF-EVENT ACTIVITIES Transportation Agencies

Transportation agencies own and operate the operations planning or mid-level, and (3) transportation system serving a planned spe- improvement of communications and coor- cial event. These agencies staff all three of dination at the field level. the above mentioned stakeholder groups, although actual personnel may vary from A state department of transportation (DOT)

group to group. Because of their involve- typically leads advance planning and day-of- POST-EVENT ACTIVITIES ment in every phase of managing travel for event traffic management for freeway and/or planned special events, transportation agen- arterial corridors serving an event venue. cies have the unique opportunity to form This includes operating a traffic manage- partnerships with other stakeholders at dif- ment system to monitor, advise, and control ferent working levels. Such partnerships traffic flow on these high-capacity routes. A may lead to: (1) creation of interagency state DOT may also facilitate the acquisition agreements at the program planning or over- and deployment of portable, advanced tech- EVENT PROFILE sight level, (2) agreement to share closed- nology equipment providing increased traf- circuit television (CCTV) video at the event fic management and monitoring capabilities.

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A local or county department of public special event through traffic control and en- works (DPW) may include traffic engineers forcement. Agencies contribute to all phases participating in program planning, event op- of planned special events, particularly event- erations planning, and day-of-event traffic specific advance planning and traffic man- management. At the program planning agement. Local and county law enforce- level, the agency may initiate infrastructure ment having a traffic operations bureau may improvement projects or establish traffic take responsibility for developing and exe- control guidelines for event permits. Event cuting a local street traffic management operations planning activities may include plan. Other potential duties of law enforce- developing or reviewing proposed traffic ment include approving local street closures, management plans and developing traffic approving an event traffic flow plan, ap- signal system timing plans to accommodate proving temporary traffic control deploy- anticipated fluctuations in traffic demand. ment, escorting dignitaries to/from the event The agency has authority to enact temporary venue, and enforcing the requirements of a traffic and parking restrictions on streets traffic operations agency. adjacent to an event venue. Traffic engineers often serve a supervisory role on a Event Organizers traffic management team. In general, agency officials must monitor and maintain Event organizers initiate the event opera- traffic flow traversing their jurisdiction. A tions planning phase by notifying stake- local/county DPW assumes an expanded holders, either through a written request to role in traffic operations planning and man- public agencies or the submission of an agement for local level planned special event permit application, and assembling an events. The agency may also utilize event planning team. The event organizer roadway maintenance personnel to deploy continually works to maintain interagency required temporary traffic control devices, coordination in order to meet milestones in repair potholes along a parade route, and the advance planning process and ultimately perform post-event street sweeping. gain stakeholder approval of the proposed transportation management plan. The event A planning department may administer a organizer may hire a private traffic engineer- permit program for special events while a ing consultant to perform an event feasibility local jurisdiction planning commission may study and prepare a traffic management rule on the transportation component of an plan. The event organizer may also fund the event permit application. deployment of equipment and personnel resources, including reimbursement of public The previous section described the role of agency personnel costs, required to mitigate transit agencies in managing travel for traffic safety, mobility, and reliability im- planned special events, which may include pacts during the day-of-event. An event service expansions and achieving coopera- venue operator essentially represents an tive agreements with private bus companies event organizer. These venue operators may to obtain additional equipment and drivers. work together with transportation agencies, law enforcement, and elected officials dur- Law Enforcement ing the program planning phase to develop strategies, including permanent installation Law enforcement agencies facilitate the safe of equipment for improved traffic monitor- and efficient flow of traffic during a planned

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ing and control, to better accommodate traf- ally works independently of the traffic man- fic and transit access to the venue. agement team on the day-of-event. 3 Elected Officials Private Industry

Elected officials serve the overall commu- Private industry satisfies a wide range of nity interest and often play a significant role public agency needs from the event opera- on an oversight team. Local politicians can tions planning phase through the day-of- establish laws and regulations toward effect- event activities phase. Traffic engineering OVERVIEW ing improvements in planning and managing consultants may assume the role of a public future planned special events. They may agency traffic engineer and, in turn, develop create a special task force to assist event or- a transportation management plan and man- ganizers and local agencies to coordinate age either an event planning team, traffic event planning activities. Local district poli- management team, or both. Private traffic ticians may advise an event planning team control contractors, such as barricade com- on alternatives to minimize quality of life panies, fulfill the duties of a transportation impacts on represented residents and busi- agency maintenance department. Intelligent nesses. Transportation Systems equipment vendors

contract with transportation agencies to: ADVANCE PLANNING Public Safety • Supply and install on streets serving a Public safety agencies, including a fire de- fixed event venue, permanent equipment partment and emergency medical service, such as CCTV cameras, lane control represent event operations stakeholders that signals, dynamic trailblazers, and park- advise the event planning team on the provi- ing management systems sion of emergency access routes to and from • Deploy portable traffic management sys- the event venue. Public safety agencies, in tems, including portable CCTV, portable addition to law enforcement and an emer- changeable message signs (CMSs), port- DAY-OF-EVENT ACTIVITIES gency management agency, also work as able highway advisory radio (HAR), part of the event planning team to ensure portable vehicle detectors, and portable adequate pedestrian access routes and traffic signals. evacuation destination areas exist to meet emergency management plan requirements. In some instances, transportation agencies may arrange for an equipment demonstra- Media tion, at no cost to the agency, to evaluate the

performance of a particular technology ap- POST-EVENT ACTIVITIES The media functions to disseminate event plication during a planned special event. pre-trip travel information, in addition to real-time traffic and transit information dur- Regional Organizations ing the day-of-event. A media representative may participate in a meeting of the Regional organizations interact with both event planning team to obtain advance in- the oversight team and an event planning formation on proposed temporary traffic team regarding major planned special events EVENT PROFILE control, transit, and travel demand manage- affecting a regional area. A Metropolitan ment initiatives. However, the media gener- Planning Organization (MPO) oversees the planning and programming of transportation

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management strategies. For example, the Public agency may communicate and seek feedback on temporary travel demand manage- The public represents individual residents, ment strategies with commuter groups and businesses, and associated community trucking companies. A MPO may loan staff groups. Residents and businesses poten- to other public agencies in need of personnel tially impacted by intense traffic and parking to conduct planning and operations activi- demand generated by a planned special ties. The agency may also establish and/or event may interact with event planning team coordinate temporary task forces charged stakeholders during a public meeting. This with a particular function, such as event permits concerned citizens the opportunity communications. A Regional Operating Or- to review and comment on proposed traffic ganization (ROO) consists of traffic opera- and parking restrictions needed to accom- tions agencies, transit agencies, law en- modate event traffic. forcement, elected officials, and other operations agencies focused on the operation and Phases of Managing Travel for performance of a regional transportation Planned Special Events system. A ROO works to ensure interagency coordination of resources and infor- The practice of managing travel for planned mation across jurisdictional boundaries. It special events incorporates advance plan- builds partnerships and trust among agencies ning, management, and evaluation activities to improve their productivity and perform- encompassing five distinct, chronological ance, thus creating a more responsive ap- phases. Figure 3-4 summarizes the five proach to mitigating temporary capacity de- phases and common products generated by ficiencies. ROO member agencies may, for coordinated stakeholder groups under each example, share traffic signal timing plans, phase. Collectively, these phases facilitate coordinate planned strategies and resources the successful management of transportation for managing travel, conduct public out- system operations during a planned special reach, and participate in interagency train- event. ing. Integration of the identified phases, from the Government Agencies post-event activities phase to the program planning phase, creates a seamless process Government agencies, such as a government allowing for continuous improvement of office on special events or emergency man- transportation system performance from one agement agencies, are non-transportation event to the next, especially in regard to re- agencies that generally serve in an oversight curring events or events occurring at perma- capacity. A government office on special nent venues. This iterative process, where events may work in tandem with the event stakeholders apply successes and lessons organizer to initiate the event operations learned from a particular special event to planning phase and coordinate event plan- future events, supports activities pertaining ning team stakeholders. Other emergency to managing travel for all planned special management and security agencies may events in a region. Recognition and integra- meet with the event planning team to obtain tion of special event management phases an advance debrief on transportation man- achieves coordination across stakeholder agement plan specifics. groups, namely the oversight team, event

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PRODUCTS

Program Institutional Policies and Infrastructure Planning Frameworks Regulations Deployment 3

Traffic Event Operations Feasibility Travel Demand Management Planning Study Management Plan

OVERVIEW

Implementation Implementation Review and Personnel Activities Plan Testing Training

Day-of-Event Traffic Traffic Activities Management Monitoring

ADVANCE PLANNING

Post-Event Participant Post-Event Post-Event Activities Evaluation Debriefing Report

Figure 3-4 Planned Special Event Management Phases and Associated Products

planning team, and traffic management Table 3-2 lists typical operational character- DAY-OF-EVENT ACTIVITIES team. istics of a planned special event. Each characteristic represents a variable that greatly PLANNED SPECIAL influences the scope of event operation and its potential impact on the transportation EVENT CATEGORIES system.

These event operation characteristics create POST-EVENT ACTIVITIES The first step toward achieving an accurate five categories of planned special events, prediction of event-generated travel demand indicated in Table 3-3. and potential transportation system capacity constraints involves gaining an understanding of the event characteristics and how Discrete/Recurring Event at a these characteristics affect transportation Permanent Venue operations. In turn, practitioners can classify the planned special event in order to A discrete/recurring event at a permanent EVENT PROFILE draw comparisons between the subject event venue occurs on a regular basis at a site and similar historical events to shape travel zoned and designed specifically to accom- forecasts and gauge transportation impacts.

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modate planned special events. This cate- mitting typically governs whether a tempo- gory includes sporting and concert events at rary venue can adequately handle the trans- stadiums, arenas, and amphitheaters in urban portation impact of a particular continuous and metropolitan areas. Table 3-4 lists key event. Table 3-5 lists key characteristics of characteristics of a discrete/recurring event a continuous event. at a permanent venue. Table 3-5 Table 3-2 Distinguishing Operating Characteristics Event Operation Characteristics of a Continuous Event CHARACTERISTIC CHARACTERISTIC • Event time of occurrence • Occurrence often over multiple days • Event time and duration • Arrival and departure of event patrons • Event location throughout the event day • Area type • Typically little or no advance ticket sales • Event market area • Capacity of venue not always known • Expected attendance • Occurrence sometimes at temporary venues • Audience accommodation • Event type Street Use Event

Table 3-3 A street use event occurs on a street requir- Categories of Planned Special Events ing temporary closure. Events classified SPECIAL EVENT CATEGORIES under this category include parades, street • Discrete/recurring event at a permanent venue races, and motorcycle rallies occurring in • Continuous event • Street use event rural, urban, and metropolitan areas. These • Regional/multi-venue event events generally occur in a city or down- • Rural event town central business district; however, race events or motorcycle rallies may necessitate Table 3-4 temporary closure of arterial streets or lim- Distinguishing Operating Characteristics of ited-access highways. Planned special event a Discrete/Recurring Event at permitting guidelines and restrictions typi- a Permanent Venue cally (1) influence event operations charac- CHARACTERISTIC teristics (e.g., location, street use event • Specific starting and predictable ending times route, time of occurrence, etc.) and (2) gov- • Known venue capacity ern whether a traffic management plan can • Advance ticket sales mitigate the transportation impact of a par- • Weekday event occurrences ticular street use event. Table 3-6 lists key characteristics of a street use event. Continuous Event Table 3-6 A continuous event includes fairs, festivals, Distinguishing Operating Characteristics conventions, and air/automobile shows in of a Street Use Event urban and metropolitan areas. Aside from CHARACTERISTIC conventions and state/county fairs, many • Occurrence on a roadway requiring temporary continuous events take place at a temporary closure venue, a park, or other large open space. • Specific starting and predictable ending times These venues host planned special events on • Capacity of spectator viewing area not known a less frequent basis than permanent multi- • Spectators not charged or ticketed • Dedicated parking facilities not available use venues, and planned special event per-

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Regional/Multi-Venue Event that occurs in a rural area. Events classified under this category include fairs, festivals, A regional/multi-venue event refers to mul- and events at rural amphitheater and race- 3 tiple planned special events that occur track venues. These events indicate that ru- within a region at or near the same time. ral events collectively have the event opera- Individual events may differ by classification characteristics of discrete/recurring tion category. Example regional/multi- events at a permanent venue and continuous venue events include: (1) occurrence of a events with one notable exception; rural events take place in rural areas. Table 3-8 single-theme event requiring multiple ven- OVERVIEW ues to stage the event, (2) occurrence of a lists key characteristics of a rural event. downtown parade or festival in the vicinity of a downtown fixed venue also hosting a special event, or (3) occurrence of special Table 3-8 events at two fixed venues in a region at or Distinguishing Operating Characteristics near the same time. Concurrent planned of a Rural Event special events require consideration as a re- CHARACTERISTIC gional/multi-venue event if traffic generated • Rural or rural/tourist area • High attendance events attracting event pa- by different, competing special events use trons from a regional area the same traffic flow routes (e.g., free- • Limited roadway capacity serving an event ADVANCE PLANNING way/arterial corridors, local streets) or park- venue ing areas over the same time frame. As a • Area lacking regular transit service. result, stakeholders involved in planning and • Events having either a time specific duration managing individual special events must, as or continuous duration a group, forecast and mitigate the global impact of concurrent special events on transportation system operations. Table 3-7 lists PROGRAM PLANNING key characteristics of a regional/multi-venue

event. DAY-OF-EVENT ACTIVITIES Program planning for planned special events Table 3-7 involves activities unrelated to a specific Distinguishing Operating Characteristics event. This level of advance planning in- of a Regional/Multi-Venue Event volves the participation and coordination of CHARACTERISTIC stakeholders having an oversight role in ad- • Occurrence of events at multiple venues and dition to agencies directly responsible for at or near the same time event operations planning. Products of pro- • Events having a time specific duration, a gram planning include establishing new in- continuous duration, or both stitutional frameworks, policies, and legisla- POST-EVENT ACTIVITIES • Overall capacity generally not known if continuous events or street use events are in- tion to monitor, regulate, and evaluate future volved planned special events. Stakeholders utilize program planning initiatives to more effi- Rural Event ciently and effectively complete event operations planning, implementation activities, day-of-event activities, and post-event ac-

A rural event encompasses any dis- EVENT PROFILE crete/recurring event or continuous event tivities for individual, future planned special

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events. In turn, post-event activities (e.g., gional coordination when a planned special participant evaluation, stakeholder debrief- event occurs: ing meeting, evaluation report) performed for specific special events provide valuable • Step One: Identify the Stakeholders. input for on-going program planning activi- • Step Two: Identify a Lead Agency. ties in a region or jurisdiction. • Step Three: Maintain Communication. • Step Four: Form Subcommittees. Regional Level • Step Five: Continue Communication.

Program planning for planned special events While planned special events may be tempo- on a regional level concerns proactively im- rary, and the planning for those events may proving travel management for all planned bring together a group of stakeholders only special events in a region. Program plan- for that event, ongoing programs and initia- ning requires an institutional framework for tives can be used to address general special generating and managing successful pro- event needs on a continual basis. An institu- grams and initiatives. Some key considera- tional framework can be created either be- tions include: fore an event takes place or based on the planning for a specific special event. This • Role of oversight stakeholders framework can be used on a continuing ba- • Policy support sis to allow easier coordination among agen- • Regional planned special events program cies for future events and eliminates the need to re-establish working relationships, Stakeholder Roles and Coordination which have already been created.

Program planning for regional planned spe- Policy Support cial events necessitates the involvement and coordination of stakeholders representing In most instances, transportation and law multiple jurisdictions. At the program plan- enforcement agencies have no prohibitions ning level, the stakeholders include: from coordinating efforts with other agencies, especially for events expected to have • Those agencies directly involved in an impact on that agency. However, there planning and day-of-event travel man- are instances where interagency agreements agement for special events. These in- are helpful, or even necessary, for multi- clude law enforcement agencies, trans- agency cooperation. portation departments, transit providers, and regional organizations. While interagency agreements will vary • Others who typically are not involved in based on state law and the culture of the transportation management, such as the agencies, there are some common issues event organizers and elected officials they can address: (1) areas of responsibility serving an oversight role. and (2) funding issues. • Typically, mid-to-upper level agency administrators that collectively form the Legislation provides the legal authority for a planned special events oversight team. government agency to take certain actions. In many instances, activities involved in The following five-step process represents a special events planning have already been way of doing business that facilitates re- addressed by legislation.

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Regional Planned Special Events Program for event organizers and participating review agencies to follow. It represents an agree- A regional planned special events program ment between participating public agencies 3 is an ongoing process designed to address a (e.g., transportation, law enforcement, pub- region’s needs for managing special events. lic safety, etc.) to ensure, through planning It is not a program put in place to address a activities or review, that all planned special specific special event, although a specific events meet a set of mutually agreed upon event may trigger the formation of such a requirements for day-of-event travel man- program. The scope of such a program agement. A municipal permit represents OVERVIEW should focus on planned special events of approval, or agreement between a jurisdic- regional significance. If an event can be tion and event organizer, to operate a wholly managed within and by a single planned special event, and it includes provi- agency or jurisdiction (e.g., through a sions outside of travel management. planned special event permit program), then there is no need for the regional plan to Table 3-9 come into effect. Regional Program Stakeholder Organizations The program will put in place the frame- STAKEHOLDER ORGANIZATIONS • State Department of Transportation work for handling regional planned special ADVANCE PLANNING events. This would include the template for • Metropolitan Planning Organization groups created to deal with specific special • State police/patrol • Toll agencies events, identification of funding to support • Mass transit agencies such planning, and the identification of in- • Municipal governments and police depart- frastructure improvement needs in the re- ments gion to better manage special events. • County governments and police departments • Owners of large venues (e.g., arenas, stadi- The stakeholders in a regional program such ums, universities) as this will vary from region to region. Ta- ble 3-9 lists organizations that should be Some important considerations and applica- DAY-OF-EVENT ACTIVITIES considered part of the program. Leadership tions of planned special event permitting of the program will vary by region, but the include: agencies most likely to take the lead include state DOTs, state law enforcement agencies, • Permitting proves particularly effective and MPOs. for less frequent continuous events, street use events, and rural events occurring at a temporary venue not having a

Local Level POST-EVENT ACTIVITIES known spectator capacity. These events The development of a formal planned spe- place an emphasis on advance planning cial event permit program marks a key pro- and public outreach to mitigate traffic gram planning initiative to facilitate stake- operations deficiencies and community holder coordination, compliance with com- impacts. munity needs and requirements, and effi- • Jurisdictions may not require a permit cient event operations planning. Backed by for special events held at permanent EVENT PROFILE guidelines and regulations specified in mu- venues, such as stadiums, arenas, and nicipal ordinances, the program outlines a amphitheaters. defined planning framework and schedule • Permitting allows jurisdictions the opportunity to engage the event organizer

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at the beginning of the event operations planning deliverables (e.g., traffic manage- planning phase. ment plan, etc.), reviewing mitigation strate- • Public stakeholders can size-up the event gies, and mobilizing personnel and equip- operations characteristics of a proposed ment resources required to stage a particular event in order to schedule adequate per- planned special event. Practitioners may sonnel and equipment resources to ac- expand and contract the process in order to commodate the event. Resources may best fit: (1) the area type and involved include traffic control, security, and stakeholders, (2) the special guidelines and maintenance. regulations unique to a particular jurisdic- • From the event organizer’s perspective, tion, (3) the operations characteristics of a a special event permit application and particular event, and (4) the purpose of a associated regulations outlines a general particular event, such as community events approach toward successfully managing versus commercial, for-profit events involv- travel for the event, facilitates coordina- ing event organizers from the private sector. tion with appropriate stakeholders, and gauges resource requirements on the Application Components day-of-event. The special event permit application serves Permit Process to communicate event operations characteristics to a jurisdiction, thus permitting it to Initiation of the permit process for a specific impose appropriate impact mitigation re- planned special event begins with the sub- quirements and/or advise the event organizer mission of a completed special event permit to change event operation parameters. Key application by the event organizer. The items include the event purpose that may permit application represents a formal pro- signal the need to develop contingency plans posal by the organizer to stage a planned in response to possible security threats or special event. In some cases, particularly demonstrations. Information regarding those where the event organizer requests as- event history and expected attendance assistance from the jurisdiction in locating a sists in achieving a more predictable event suitable venue location or street use event travel forecast. The application should route, the event organizer and pertinent pub- prompt the event organizer to indicate travel lic stakeholders may interact prior to appli- demand management initiatives, including cation submission to review the proposed use of carpools and other modes of travel. event and permit process. Supplemental requirements to a special Figure 3-5 presents a flowchart summarizing event permit application, required of the key event organizer and public agency ac- event organizer either at the time of initial tions throughout the special event permit application submission or after jurisdiction process, from submitting a permit applica- review of the application questionnaire, in- tion to conducting the proposed event. clude:

The special event permit process serves to • Event site plan scope, schedule, and direct event operations • Traffic flow plan planning activities for proposed events. • Traffic control plan This reduces unnecessary delay in facilitat- • Parking plan ing stakeholder coordination, developing • Emergency evacuation plan

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Revise Submit Permit Application

3 Review Event Date and Time

Approved

Street Review Yes Use Event Route Event? Approved Gain Inter-jurisdictional Notify Bus No Approval OVERVIEW Transit Service Distribute Application to Necessary Agencies

Conduct Meeting Review of Application Involved Agencies Material

Conduct Meeting with Event Organizer

ADVANCE PLANNING

Additional Yes Revise Requirements? Application

No Deliver Public Comments Presentation

Appeal Denied Issue Permit Decision

DAY-OF-EVENT ACTIVITIES

Determine Staffing Confirm Personnel Secure and Equipment Resources Parking Areas

Notify KEY: Emergency Services Event Organizer Action Inform Affected Property Owners Public Agency

Action POST-EVENT ACTIVITIES Disseminate Public Advertisement

Conduct Pre-Event Prepare Prepare Walk-Through Implementation Plan Operations Detail

Conduct Event EVENT PROFILE Figure 3-5 Planned Special Event Permit Process

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• Notice of event for affected property special event. The two main steps of the owners and residents operations planning process involves: (1) • Event advertising brochure completing a feasibility study to forecast • Hold harmless agreement event-generated traffic and parking demand • Certificate of insurance and to determine the associated impact on transportation operations during the event Permitting Requirements and (2) developing a traffic management plan to service event-generated automobile, Jurisdictions maintain the following general transit, and pedestrian traffic and to mitigate requirements for planned special events: (1) predicted impacts to the transportation sys- event restrictions, (2) impact mitigation and tem serving the event venue and surrounding traffic control, (3) legal, and (4) funding. As area. Travel demand management repre- indicated in Table 3-10, the municipal codes sents a key component of the overall ad- of jurisdictions across the Nation specify a vance planning process when forecasted wide range of requirements for managing traffic demand levels approach or exceed travel for planned special events, all of available roadway capacity. which become incorporated in the special event permit process. Figure 3-6 presents 31 steps in the event operations planning process for all planned Table 3-10 special events. The flowchart covers devel- Municipal Code Provisions on Planned opment and integration of the phase’s three Special Events primary products: feasibility study, traffic PROVISION management plan, and travel demand man- • Special event definition agement initiatives. It represents a sug- • Conditions for permit requirement gested order of event operations planning • Permit restrictions activities. However, as noted below, the • Content of permit application event planning team can modify activities to • Permit application submission and review create a dynamic and more effective plan- deadline • Notification of city/town officials ning process tailored to the scope of a spe- • Notification of abutting property owners and cific planned special event: residents • Permit approval criteria • Based on lessons learned from past spe- • Event organizer duties cial events at a particular permanent • City/town authority to restrict parking and venue, stakeholders may program new close local roads • Hold harmless clause infrastructure or adopt new policies (e.g., • Insurance requirements parking restrictions) early in the event • Recovery of expenses operations planning process. • Procedure for appealing a denied permit • A jurisdiction planned special event permit process and requirements will EVENT OPERATIONS scope, schedule, and direct event operations planning activities for continuous PLANNING events and street use events. • The event planning team should repeat Event operations planning concerns the ad- process steps for individual venue events vance planning and stakeholder coordination comprising a regional/multi-venue event. activities conducted for a specific planned

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Initiate Feasibility Study

26 1 2 TDM and Modal Transit Service 3 Transit Service Split

3 Event Traffic Generation

27 4 Event Patron Traffic Arrival and Incentives Departure Rate OVERVIEW 5 Market Area Analysis

6 9 Parking Demand Shuttle Bus Analysis Service

7 10 Traffic Demand Lot Analysis Assignment

8 20 Roadway Capacity Vehicle Access 13 Analysis and Circulation

Alternate ADVANCE PLANNING Routes 11 14 12 21 Corridor Traffic Emergency Local Traffic Parking Area Design Flow Routes Access Routes Flow Routes and Operation 15 Background Traffic Accommodation 16 22 Transit Parking Occupancy Accommodation Monitoring

17 18 19 23 24 Freeway Street Intersection Pedestrian Disabled Traffic Control Traffic Control Traffic Control Control Accessibility DAY-OF-EVENT ACTIVITIES

25 Analysis and Modeling

28 Traffic Incident Management

KEY: 29 Traffic Planning En-Route Traveler Information POST-EVENT ACTIVITIES Parking Planning 30 Traffic Transit Planning Surveillance

31 Pre-Trip Traveler Information

Advance to Implementation Activities EVENT PROFILE

Figure 3-6 Event Operations Planning Process Flowchart

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• Links between process steps are two- ordination among a traffic operations way as stakeholders evaluate alternative agency, law enforcement, and event organ- strategies and/or integrate traffic man- izer that represent the core event planning agement plan components. team stakeholders or (2) designation by a • The event planning team can develop committee on special events within a re- different traffic management plan com- gional transportation management organiza- ponents concurrently. tion, such as a traffic incident management program. Initial Planning Activities • The former typically describes event This section examines key planning initia- planning teams formed in response to lo- tives and special considerations in order to cal planned special events affecting few help guide the user through the first steps of jurisdictions, such as events occurring in the event operations planning phase. The rural or urban areas. event operations planning phase begins with • The latter may occur in metropolitan ar- stakeholders establishing a planning frame- eas where planned special events happen work and schedule. The framework infrequently, thus warranting an on-call cludes forming an event planning team, cre- event planning team. ating agreements, identifying performance goals and objectives, and deciding on miti- A regional transportation committee on gation assessment and approval protocol. special events features stakeholders that have achieved interagency coordination Special considerations evolve from review- through past, cooperative travel manage- ing the event operations characteristics of a ment efforts. particular special event (e.g., risk assessment) in addition to past successes and les- • Stakeholder representatives have first- sons learned. These considerations weigh hand knowledge of the roles, resources, heavy on traffic management plan require- and capabilities of each committee par- ments, and stakeholders must address issues ticipant. affecting community residents and busi- • Stakeholders commonly include traffic nesses through public outreach efforts early operations agencies, law enforcement, in the planning phase in order to ensure transit agencies, event organizers or proper mitigation and non-conflict with traf- venue operators, and the media. fic management plan specifications. • Committees in metropolitan areas may create task forces for specific planned Stakeholder Roles and Coordination special event venues or recurring planned special events (e.g., annual fairs, The event planning team handles tasks asso- fireworks displays, parades, etc.). The ciated with event-specific operations plan- committee or task force generally meets ning and traffic management plan imple- and performs event operations planning mentation. The event planning team con- tasks on an as-needed basis. The group sists of a diverse group of stakeholders with may also convene regularly (e.g., either event operations or community inter- weekly, monthly, or quarterly) to review est as their primary concern. An event plan- program planning efforts for future ning team forms as a result of either: (1) co- planned special events.

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Risk Assessment risk scenarios associated with some planned special events. Based on the type and purpose of a planned 3 special event, there exists potential scenarios Performance Goals and Objectives where event patron or non-attendee behavior may cause overcrowded conditions in the The goals of managing travel for planned vicinity of an event venue and/or create un- special events include achieving predictabil- planned road closures. The event planning ity, ensuring safety, and maximizing effi- team must assess the nature of a proposed ciency. Table 3-12 states performance ob- OVERVIEW event and determine the need to incorporate jectives, for specific classes of transportation special contingency plans in response to po- system users, applicable to satisfying the tentially dangerous situations that will inter- overall goal of operations efficiency and fere with the planned travel management on safety. In meeting these performance objec- the day-of-event. tives, the event planning team must target the goal of achieving predictability during Table 3-11 lists four notable event-oriented

ADVANCE PLANNING Table 3-11 Summary of Event-Oriented Risk Scenarios EVENT-ORIENTED RISK EXAMPLE SCENARIO Demonstration or protest • Any event that is political in nature or invokes social concern. • Political conventions and parades Ticketless event patrons • Sold-out sports championship games causing overcrowding • Sold-out concerts involving select performers Fan celebration • Response to city or school sports team winning a championship. Event patron violence • Motorcycle rally violence between patrons and/or participants.

DAY-OF-EVENT ACTIVITIES

Table 3-12 Transportation System Operations Performance Objectives for Planned Special Events USER CLASS PERFORMANCE OBJECTIVE Event patron • Minimize travel delay to/from the event. • Minimize conflicts between pedestrians and vehicles. • Minimize travel safety hazards. • Minimize impact of traffic incidents. • Disseminate accurate, timely, and consistent traveler information. POST-EVENT ACTIVITIES • Increase automation of traffic control. • Maximize site access service flow rates. Non-attendee road • Minimize travel delay on major thoroughfares, freeways and major arterials. user • Minimize impact on commuter and trucker travel time reliability. • Maintain required parking and access for local residents and businesses. • Maintain unimpeded access for emergency vehicles. Transit user • Maintain scheduled travel times. • Minimize transit bus dwell times. EVENT PROFILE • Maintain required transit station parking for non-attendee transit users.

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the event operations planning phase. Table velopment of a specialized transit plan to 3-13 presents common, easy-to-measure reduce event traffic demand. measures of effectiveness (MOEs) for assessing the performance objectives that de- The planning schedule provides a generic scribe traffic operations. The identified timeline, recognizing that actual event op- MOEs represent day-of-event performance erations planning schedules vary considera- evaluation data, useful for: (1) making real- bly. For instance, some major, roving time adjustments to the traffic management planned special events, such as the U.S. Golf plan on the day-of-event, (2) conducting a Open, require an event operations planning post-event evaluation of transportation sys- phase spanning more than one year. tem performance, and (3) referencing during advance planning for future event occur- Public Outreach rences. Planned special events that may impact ad- Table 3-13 jacent neighborhoods and businesses usually Measures of Effectiveness for Assessing require public involvement to address re- Performance Objectives lated concerns. The public represents indi- MEASURE OF LOCATION vidual residents, businesses, and associated EFFECTIVENESS community groups. Public outreach activi- Venue • Occupancy and turnover rate ties initiated early in the event operations parking areas • Arrival and departure service rate planning phase can reveal important issues • Time to clear parking lots that local residents and businesses may Intersections • Vehicle delay have. Specific neighborhood impact issues • Queue length include heavy traffic demand on local streets Freeways • Travel time and delay and event patron use of available local on- and • Traffic volume to capacity street parking. Soliciting these concerns streets ratio through public involvement, and addressing • Traffic speed the issues in the planning process, can im- • Number and location of crashes and other incidents prove relations and day-of-event operations. • Traffic incident clearance time The event planning team and public stakeholders should identify potential problems prior to the development of the traffic man- Planning Schedule and Deliverables agement plan. These problems can be identified by first understanding the event scope Figure 3-7 illustrates a high-level event op- with consideration given to current erations planning schedule for an event neighborhood traffic and parking restric- planning stakeholder group. The figure lists tions, traffic management plans deployed advance planning activities and potential during past planned special events, and iden- stakeholder meetings and public hearings in tified problems experienced during past a timeline relative to the planning deliver- events. With this information, the public ables. The schedule indicates other stake- stakeholders can make informed decisions holder planning initiatives, such as the de- and provide valuable input to the event planning team.

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Perform Situation Analysis and Risk Assessment

Develop Transit Plan 3 Conduct Public Outreach

Submit Permit Develop Travel Demand Management Initiatives Issue Permit Application Approval Approve Establish Policies and Agreements Mitigation

Develop Perform Advance to Propose Traffic Feasibility Implementation OVERVIEW Event Management Study Activities Plan

EVENT OPERATIONS PLANNING TIMELINE

Meeting on Meeting on Meeting on Event Concept Traffic Management Traffic Management and Review Past Plan Requirements Plan Review Lessons Learned

Hearing with Public to Assess Needs 60 Days 30 Days 14 Days ADVANCE PLANNING MONTHS WEEKS DAYS Event N.T.S. Figure 3-7 Event Operations Planning Schedule

Stakeholder Review of Planning Products The establishment of special policies and agreements to support planning and day-of- The event operations planning phase in- event management of planned special events cludes intermediate and final review periods facilitates efficient stakeholder collaboration DAY-OF-EVENT ACTIVITIES for the event feasibility study and traffic and defines important event support stake- management plan. Stakeholder review con- holder services that may be incorporated centrates on the identification and proposed into a traffic management plan for a particu- mitigation of event travel impacts. Effective lar planned special event. These initiatives and rapid stakeholder review of event opera- improve interagency relationships, clarify tions planning products requires: (1) an an- decision-making responsibilities and expec- notated planning timeline, (2) a review tations, and secure on-call services and process, and (3) performance standards. An agency actions. Stakeholders may develop POST-EVENT ACTIVITIES annotated planning timeline proves effective policies and agreements specific to a par- for monitoring team progress. Adopting a ticular planned special event or for all formal review process reduces unnecessary planned special events in a region. Because delay in producing event operations plan- of the potential significant time to develop ning deliverables required to stage a planned and approve a particular policy or agree- special event. ment, stakeholders should establish these

initiatives early in the event operations plan- EVENT PROFILE Policies and Agreements ning phase or during the program planning phase.

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Table 3-14 summarizes four types of poli- ducted without roadway capacity improve- cies and agreements involving stakeholders ments or initiatives to reduce travel demand. responsible for event operations planning Once the feasibility study identifies event and/or day-of-event operations. travel problems, practitioners can take steps to mitigate transportation system deficien- Feasibility Study cies. These results define the scope of the traffic management plan required to success- The structure and approach of a planned fully manage travel for a planned special special event feasibility study resembles a event. Traffic Impact Study required for planned developments, as illustrated in Figure 3-8. Travel Forecast The figure shows the sequential steps in preparing a feasibility study for a planned Travel forecast analysis involves estimating: special event. (1) modal split, (2) event traffic generation, and (3) traffic arrival rate. Event planning Table 3-15 provides an overview of the first team stakeholders that typically collaborate five feasibility study components. The ac- on this analysis include a traffic operations curacy of one analysis influences that of an- agency, traffic engineering consultant, tran- other. Achieving predictability, a goal of sit agency, and event organizer. managing travel for planned special events, represents the focus of a feasibility study Under the scope of a feasibility study, modal effort. split concerns identifying the existing modes of travel event patrons will use to access the The feasibility study gauges the impact a event venue site. Common travel modes proposed event has on traffic and parking include personal automobile, public transit, operations in the vicinity of the venue. It and walking. Public transit refers to sched- determines if a particular planned special uled bus transit or commuter rail. Transit event will cause travel problems, where and agencies may assist in determining a base when the problems will occur, and the mag- transit split, without service incentives or nitude of each identified problem using promotion, for patrons traveling to/from the various MOEs. Initially, the study is con- event.

Table 3-14 Summary of Policies and Agreements Applicable to Managing Planned Special Events ITEM EXAMPLE APPLICATION Interagency agreement • Joint operations policy between stakeholders that establishes a shared role regarding event operations planning and day-of-event travel management. • Memorandum of understanding defining stakeholder roles and responsibilities. • Mutual-aid agreement facilitating resource sharing and/or reimbursement for services. Standard street use event routes • Routes established under the program planning phase for recurring street use events such as parades and races. Toll facility congestion policy • Suspension of tolls during periods of heavy congestion. Public-private towing agreement • On-call towing and recovery services during a special event.

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STEP SIX Traffic management plan 3 MITIGATION OF IMPACTS

STEP FIVE Impact assessment ROADWAY CAPACITY ANALYSIS

STEP FOUR Trip assignment TRAFFIC DEMAND ANALYSIS OVERVIEW

STEP THREE Directional distribution (destination) PARKING DEMAND ANALYSIS

STEP TWO Directional distribution (origin) MARKET AREA ANALYSIS

STEP ONE Trip generation TRAVEL FORECAST

Figure 3-8 ADVANCE PLANNING Feasibility Study Analysis Steps

Table 3-15 Feasibility Study Analysis Summary COMPONENT ANALYSIS RESULT APPLICATION Travel forecast • Modal split • Number of trips by mode of • Input into parking de- travel mand analysis. • Event traffic genera- • Number of vehicle trips by • Input into traffic demand

tion personal automobile analysis. DAY-OF-EVENT ACTIVITIES • Traffic arrival rate • Number of trips per unit of time Market area • Event trip origin • Geographic location of event • Input into traffic demand analysis trip origins and percent split analysis. Parking demand • Background parking • Number of non-attendee ve- • Input into event parking analysis occupancy hicles per parking area and occupancy. unit of time • Event parking demand • Number of event-generated • Input into traffic demand

vehicles per parking area and analysis. POST-EVENT ACTIVITIES unit of time Traffic demand • Background traffic • Background traffic demand • Input into roadway ca- analysis flow rate, adjusted for event- pacity analysis. required road closures • Event traffic assign- • Event traffic demand rate per ment assigned route Roadway • Section and point ca- • Identification of capacity • Input into traffic man- capacity pacity constraints and level of ser- agement plan. EVENT PROFILE analysis vice • Input into travel demand • Network operations • Identification of bottleneck management assessment. locations and saturation flow rates

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Unlike other traffic generators such as • Event type – e.g., sports/concert, commercial developments, planned special fair/festival, parade/race. event practitioners typically have advance knowledge of event attendance and, in turn, Market Area Analysis can develop traffic generation estimates via vehicle occupancy factors. Table 3-16 out- A market area analysis identifies the origin lines a two-step process for forecasting and destination of trips to and from a event traffic generation. Input data includes planned special event. The analysis focuses a modal split estimate since the traffic gen- on developing a regional directional distri- eration forecast aims to estimate the number bution of event patron trips to/from an event of event-generated trips by personal auto- site via personal automobile. The site refers mobile. Vehicle occupancy factors can to the collective parking areas serving the serve as the basis for estimating event- venue. A regional directional distribution generated traffic. specifies: (1) the freeway and arterial corridors serving the venue site and (2) the per- In order to estimate peak traffic volumes cent split and volume of event-generated generated by an event, practitioners must automobile trips traversing each corridor. estimate the time and scope of peak traffic flow during event ingress and egress. Traf- Table 3-17 summarizes three analysis meth- fic arrival and departure rate indicates the ods used to define a planned special event peak period (e.g., hour or 15 minute) of market area. event-generated traffic. The rate is used to determine the following key parameters for Parking Demand Analysis input into the traffic demand analysis: (1) peak period time and (2) percent of total A parking demand analysis functions to de- event-generated traffic within the peak pe- termine the amount of required parking for riod. Event operation characteristics that event patrons in the vicinity of the event influence traffic arrival and departure rates venue. A parking occupancy study drives include: the overall analysis and determination of event parking areas. This study indicates the • Event time and duration – e.g., specific level of parking spaces occupied, relative to start time, abrupt end time, continuous lot capacity, at intermittent time intervals. It operation. also specifies an estimate of peak parking • Event time of occurrence – e.g., demand, a figure particularly useful for day/night, weekday/weekend. managing continuous events where parking • Audience accommodation – e.g., re- space turnover occurs throughout the event served seating, general admission. day.

Table 3-16 Traffic Generation Forecast Process COMPONENT DETAIL Input data • Daily attendance • Percent automobile trips • Vehicle occupancy factor Step 1. (Daily Attendance) x (Percent Automobile Trips) = Person Trips Via Automobile Method Step 2. (Person Trips) / (Vehicle Occupancy Factor) = Vehicle Trips Result • Number of vehicle trips by personal automobile both to and from the event

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Table 3-17 Market Area Analysis Methods METHOD DESCRIPTION 3 Travel time analysis • Determine population distribution within travel time threshold of event venue. Distance analysis • Determine population distribution within distance radius of event venue. Origin location • Determine weighted distribution of known origins by place or zip code. analysis

Figure 3-9 presents a parking demand analy- facilities serving the event venue. Compos- OVERVIEW sis process used to determine the adequacy ite traffic volumes expressed as an hourly of event venue (on-site) parking and the (or sub-hourly) rate meet roadway capacity identification of appropriate off-site parking analysis input requirements. These rates areas. The flowchart denotes an analysis identify the peak hour capacity analysis pe- conducted for a one-time interval. Practitio- riods during event patron arrival and/or de- ners should perform an iterative parking parture. Practitioners must adjust back- demand analysis, over hourly time periods ground traffic volumes to account for dis- as necessary, if considering parking areas placed and diverted traffic due to road clo- characterized by high background parking sures required to stage the planned special turnover. event. ADVANCE PLANNING

Traffic Demand Analysis As a preliminary step to assess the need to perform a detailed roadway capacity analy- A traffic demand analysis determines: (1) a sis, draw a circular screen line (e.g., 0.5 to 1 local area directional distribution and (2) the mile radius) around the event venue site. overall assignment of event-generated traf- Note each roadway segment intercepted by fic. This analysis references results obtained the screen line, and estimate the segment’s through the travel forecast, market area capacity in each direction of travel. Create a

analysis, and parking demand analysis. chart of hourly composite traffic volumes DAY-OF-EVENT ACTIVITIES for each identified segment, and assess ca- The local area directional distribution indi- pacity deficiencies in both directions of cates freeway ramps and intersections, in- travel. cluding turning movements, traversed by event-generated traffic arriving to or depart- Roadway Capacity Analysis ing from a planned special event. The regional directional distribution, as determined A roadway capacity analysis uses traffic in the market area analysis, quantifies the demand analysis results to measure the im- POST-EVENT ACTIVITIES percentage of event patron trips (e.g., ori- pact of a proposed planned special event on gins) by regional freeway and arterial corri- roadway system operations. At the feasibil- dor, and the planned special event parking ity study level, a roadway capacity analysis areas, as determined in the parking demand references existing roadway facility opera- analysis, represent sink nodes or location of tions and capacity (e.g., no reverse flow op- trip destination. eration or other capacity enhancements).

The analysis assumes pedestrian access EVENT PROFILE Traffic demand analysis includes developing management strategies will minimize pedes- composite background and event-generated trian/vehicular conflicts, and parking area traffic projections for all roadway system

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Identify On-Site Parking Area(s)

Parking No Use 150 cars/acre to Area Estimate Number Striped? of Spaces

Yes Inventory Gross Number of On-Site Spaces Estimate Event-Generated Vehicle Trips

Estimate Number of On-Site Parking Yes Spaces Needed to DONE Supply > Demand? Stage Event

Measure On-Site Parking Area No Background Occupancy Identify Off-Site Parking Area No

Walking No Shuttle Service Distance to Venue Available for Acceptable? Event?

Yes Yes

Use 150 cars/acre to Parking No Estimate Number Striped? of Spaces

Yes Inventory Gross Number of Off-Site Spaces

Compute Net Remaining Event Parking Demand Off-Site Parking Yes Supply > Remaining DONE Demand? Measure Off-Site Parking Area Background Occupancy No

Figure 3-9 Parking Demand Analysis Process

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access points provide sufficient service flow Traffic Management Plan rates through proper design. Regardless of capacity analysis outcome, pedestrian ac- A traffic management plan indicates how 3 commodation and parking management rep- traffic, parking, and pedestrian operations resent key considerations in a planned spe- will be managed on the day-of-event. The cial event traffic management plan. plan contains strategies and tactics for mitigating travel impacts identified in a planned Roadway capacity analysis involves freeway special event feasibility study analysis. It

segments, freeway junctions such as ramps also accommodates planned travel demand OVERVIEW and weaving areas, street segments, signal- management initiatives aimed at improving ized intersections, and unsignalized intersec- transportation system operations on the day- tions. To evaluate these facilities, practitio- of-event. ners can employ one of two approaches: (1) analyze section and point capacity using The scope of a traffic management plan var- Highway Capacity Manual recommended ies for each planned special event, even for methodologies or (2) analyze network events happening in the same jurisdiction or operations using a computer traffic region. Different strategies and tactics are simulation model. successful in handling different categories of

planned special events occurring in metro- ADVANCE PLANNING politan, urban, and rural areas. A successful Mitigation of Impacts traffic management plan satisfies both the: (1) customer requirements of all transporta- Mitigating anticipated planned special event tion system users and (2) allotted budget for impacts on travel represents the ultimate personnel and equipment resources assigned goal of conducting a feasibility study. The to the day-of-event operation. mitigation of congestion and potential safety impacts identified through a feasibility study The key components of a traffic manage- requires development of a traffic management plan for planned special events in- DAY-OF-EVENT ACTIVITIES ment plan and complementing travel de- clude: mand management strategies. In turn, practitioners can utilize the tools and techniques • Site access and parking plan used to determine feasibility study results in • Pedestrian access plan order to evaluate various mitigation strate- • Traffic flow plan gies and determine if the selected strategies • Traffic control plan adequately mitigate identified transportation • En-route traveler information plan system deficiencies. • Traffic surveillance plan POST-EVENT ACTIVITIES

Table 3-18 lists numerous tools for mitigat- • Traffic incident management and safety ing planned special event impacts on local plan roadway and regional transportation system operations. In meeting the overall travel Special Considerations management goal of achieving efficiency, these tools target utilizing the excess capac- The event planning team must create a EVENT PROFILE ity of the roadway system, parking facilities, flexible traffic management plan that ac- and transit. commodates modifications on the day-of- the-event as well as special considerations

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Table 3-18 Tools for Mitigating Planned Special Event Impacts on Transportation System Operations CATEGORY EXAMPLE TOOLS Traffic Control and Capacity Improvements Freeway traffic control • Ramp closures or additional capacity • Alternate routes • Ramp metering Street traffic control • Lane control • Alternative lane operations • Road closures • On-street parking restrictions • Trailblazer signing • Parking management systems Intersection traffic control • Access and turn restrictions • Advance signing to improve traffic circulation • Traffic signal timing and coordination Traffic incident management • Service patrols • Tow truck staging • Advance congestion warning signs • Portable lighting Traffic Management Traffic surveillance • Closed circuit television systems • Field observation • Aerial observation • Media reports • Portable traffic management systems En-route traveler information • Changeable message signs • Highway advisory radio • Media • Static signing • Destination signing Travel Demand Management Transit incentives • Public transit service expansion • Express bus service from park and ride lots • Charter bus service High occupancy vehicle incentives • Preferred parking • Reduced parking cost Event patron incentives • Pre-event and post-event activities Bicyclist accommodation • Bicycle routes and available parking/lock-up Local travel demand management • Background traffic diversion • Truck diversion Pre-trip traveler information • Internet • Telephone information systems • Public information campaign • Event and venue transportation guide • Media

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that surface prior to the planned special Table 3-20 event. Contingency Plan Checklist CONTINGENCY 3 Table 3-19 lists the various groups that ei- • Weather ther attend or have a direct interest in a o Severe weather outbreak o Flooding on event site access routes planned special event. Throughout the traf- o Flooding in event parking areas fic management plan development process, o Parking during wet weather the event planning team must regularly • Security threat monitor and communicate any special con- • Major traffic incident OVERVIEW siderations that arise in conjunction with the • Delayed event needs of the groups attending the event. • Event cancellation • Absence of trained personnel and volunteers on the day-of-event • Equipment breakdown Table 3-19 • Demonstration or protest Groups Attending a Planned Special Event • Unruly spectator behavior GROUP • Overcrowding • Participants • Event patron violence • Spectators • Event sponsor Site Access and Parking Plan ADVANCE PLANNING • Dignitaries • Media A site access and parking plan contains op- • Non-ticketed visitors • Street vendors erations strategies for managing automobile, bus, taxi, and limousine traffic destined to and from the following areas in the vicinity Contingency Planning of a planned special event venue: (1) public parking area, (2) reserved (permit) parking Contingency planning represents event in- area, (3) overflow parking area, and (4) pick-up/drop-off area. The event planning

surance. While stakeholders may consume DAY-OF-EVENT ACTIVITIES additional time and resources during ad- team must create a flexible plan that con- vance planning for a planned special event, tains proactive strategies for responding to the availability of contingency plans helps real-time event patron travel patterns driven mitigate a potential systemic breakdown of by their choice of public parking areas, es- the transportation system during an unex- pecially if parking fees vary from lot to lot. pected event occurring at or near the same Traffic destined to the three other site areas time as the planned special event. Key steps has a fixed ingress and egress pattern as specified in the plan through lot assignments

in contingency planning include: POST-EVENT ACTIVITIES and permitted movements. • Develop a traffic management plan that is scenario-based. Site access and parking plan development • Consider and plan for a range of possible involves a three-step process: (1) access, (2) unplanned scenarios. Table 3-20 pro- process, and (3) park: vides a contingency plan checklist for • Access refers to getting event traffic

planned special events. EVENT PROFILE • Determine changes in operation due to from the adjacent street system to their unplanned scenarios. destination, such as a parking area or

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pick-up/drop-off area, during ingress and The objective of designing and operating vice versa during egress. The traffic parking areas involves providing an access management team manages the access point capacity in excess of the peak rate of operations component. traffic flow that traverses the driveway. Any • Process involves activities necessary to planned special event parking area that re- “approve” vehicles for entry into a park- quires a fee or permit for access has a ser- ing area. A fee transaction between a vice facility in-place to process vehicles en- parking area operator and motorist tering the lot. Therefore, a first-in-first-out represents a common process activity. queuing system exists. • Park involves handling vehicles from a process point to a parking space. A Queuing happens when the arrival rate ex- parking team and associated volunteers ceeds the service rate. The arrival rate de- operate the process and park compo- notes the number of vehicles traversing a nents. A breakdown in any one of the single parking area access point over some three components can result in conges- period of time. The service rate is the num- tion extending to the adjacent street sys- ber of vehicles the service facility can proc- tem and possibly to freeway and arterial ess over some period of time. The magni- corridors serving the planned special tude of this rate depends on the number of event. servers (e.g., staff or automated gates) that comprise the service facility and server effi- In order to facilitate safe and quick spectator ciency. A parking area queuing system op- and participant travel to/from the event site, erates stochastically. Traffic arrival rates the site access and parking plan should spec- will vary, and individual transaction times ify tactics that prevent potential congestion that collectively determine the service rate on parking area access roads and allow for will also vary. In designing a service facil- good circulation on roadways surrounding ity for a planned special event parking area, the event site. Table 3-21 indicates site ac- select a conservative server service time cess and circulation considerations applica- (e.g., the time to serve one vehicle) and de- ble to the development of a site access and termine the required number of servers that parking plan. can process the maximum anticipated arrival rate with one server on break.

Table 3-21 Site Access and Circulation Considerations CONSIDERATION TACTIC Parking area ingress • Right turn circulation pattern • Contraflow operation • Shoulder utilization • Lane channelization • Parking area overflow access points Pick-ups and drop-offs • Use of off-street areas • Designation of pick-up/drop-off areas to avoid conflict with primary traffic ingress/egress routes • Storage area Parking area egress • Right turn circulation pattern • Preservation of adjacent street flow • Provision of rapid parking area unloading

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Parking operators and volunteers must meet routes. It also includes time-sensitive the following two requirements for parking strategies to minimize overcrowding condi- vehicles: tions at venue gates and mode transfer 3 points. The plan also considers a continuous • Park vehicles at the same rate as those shuttle bus service operations detail to han- being processed. dle event patrons destined to/from satellite • Minimize pedestrian/vehicular conflicts parking areas and transit stations not easily inside parking areas. accessible by foot.

OVERVIEW The event planning team should design a Pedestrian access routes are comprised of site and parking plan to service both the traf- two components: fic management team and event patrons. Pre-trip traveler information dissemination • A routing component, consisting of (via media, websites, mailings, brochures) sidewalks or paths between street inter- should include elements of the site and park- sections. ing plan. Table 3-22 contains a site and • A crossing component, consisting of in- parking plan development checklist. frastructure or other vehicle control measure that allows pedestrians to cross

Pedestrian Access Plan a street safely. ADVANCE PLANNING

A pedestrian access plan provides for the Planned special event pedestrian manage- safe and efficient movement of pedestrians ment involves the implementation of inte- within the immediate area of the venue. grated control tactics to facilitate pedestrian This includes accommodating pedestrian routing and crossing between a mode trans- trips to/from several mode transfer points in fer point and the event venue. a planned special event activity network. These points include site parking areas, tran- Two strategies for managing pedestrian flow sit stations, express/charter bus stations, on walkways during planned special events DAY-OF-EVENT ACTIVITIES shuttle bus stations, and pick-up/drop-off include: areas. Moreover, some event patrons may make their entire trip, originating from home • Locating access route termini. or work, on foot. In meeting the managing • Providing additional, temporary pedes- travel for planned special events goal of en- trian walkway capacity. suring safety, the event planning team must develop a plan that: (1) accommodates pe- Table 3-23 describes tactics for improving

destrians accessing an event via a network the safety and capacity of pedestrian street POST-EVENT ACTIVITIES of safe walking routes and (2) minimizes crossings. Use of a temporary pedestrian pedestrian/vehicular conflicts. bridge represents an effective tactic for crossing wide streets or roadways where A successfully implemented pedestrian ac- traffic throughput is emphasized. Tempo- cess plan for planned special events permits rary street closures during event egress al- rapid dispersion of pedestrian flow. Al- low the venue to empty faster and permits though high pedestrian volumes encompass

pedestrians to disperse to a number of adja- EVENT PROFILE the immediate venue area during ingress and cent mode transfer points and pedestrian ac- egress, the plan effects efficient access cess routes. Mid-block crossings not only through a radial network of pedestrian

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Table 3-22 Site and Parking Plan Checklist ELEMENT PROVISION Event patron • Highlight free, pay (state rates), and reserved (permit) parking areas. parking areas • Indicate lots where tailgating is permitted. • Show specific parking area access points and state restrictions. • Indicate number of entrance/exit lanes (or servers) at each access point. • Designate lots by a number or letter and provide lot-specific directions. • State time parking areas open, particularly if time varies by parking area. • Discuss features of each parking area (e.g., paved, staffed, lighting, security). • State estimated walking time from each parking area. • Indicate connecting pedestrian access routes. • Show overflow parking areas, state distance from venue, and indicate criteria for operation (e.g., sell-out). • Indicate parking areas for motorcycles. • Indicate parking areas for recreational vehicles (e.g., overnight parking). • Furnish map of available off-site parking areas. o Include information on street regulations (e.g., one- or two-way) and connections to freeways and major arterials. o State on-street parking restrictions. o Specify private parking area regulations (e.g., egress control). o Indicate location of entrance/exit points to off-street parking areas. o Include rates if available. o Show restricted off-site parking areas (e.g., residential neighborhoods, etc.) Gate access • Indicate gate names as shown on event patron tickets. information VIP information • Show VIP (e.g., official guest / sponsor) parking areas. • Show credential pick-up location. • Show hospitality areas. Shuttle bus route • Display shuttle route and all stations. and stations • State cost, and emphasize free services. Drop-off / pick-up • Show access points and circulation lanes for transit/taxi/limo/shuttle service. sites • Show exclusive bus lanes. • Show transit / express bus stations. • Indicate general drop-off / pick-up sites where turnaround is permitted. • Indicate valet parking drop-off. • Show disabled drop-off / pick-up site. Other parking • Show express/charter bus parking area. areas • Show limousine parking area. • Show media parking area. • Show venue employee parking area. Disabled parking • State specific location (e.g., first row) of disabled-only spaces in general parking areas. areas • Indicate number of spaces available. Other • Show aerial map. considerations • Promote advance purchase (permit) options. • Indicate towed vehicle (e.g., illegally parked) pick-up area. • Emphasize new provisions (e.g., new parking areas, etc.). • Present map in grid format for easy reference. • Prepare maps for different venue events if parking plan varies. • Draw map to scale. • Show private property. • Display landmarks. • Indicate municipal fireworks viewing areas.

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Table 3-23 Pedestrian Crossing Tactics 3 TACTIC APPLICATION Temporary pedestrian bridge • Provides uninterrupted flow. • Achieves total separation of pedestrians and vehicles. • Enhances pedestrian safety. Street closure • Provides uninterrupted flow. • Accommodates very heavy pedestrian volume.

• Allows pedestrian dispersion. OVERVIEW • Requires officer control. Mid-block street crossing • Provides interrupted flow. • Avoids pedestrian conflict with turning vehicles. • Requires officer control. Staffed crossings • Provides interrupted flow. • Accommodates light pedestrian volume.

reduce the likelihood of vehicle-pedestrian ployee parking area service. A particular collisions, but accident severity as well. planned special event may involve multiple private and public (e.g., transit agency) shut- ADVANCE PLANNING The pedestrian access plan must accommo- tle service operators, all of whom must co- date disabled event patrons arriving via all ordinate with the event planning team on travel modes serving a planned special service details and station locations. Suc- event. This involves examining all routes cessful shuttle bus services positively influ- that a disabled event patron may traverse ence the travel mode or destination (e.g., and, in turn, ensuring the patron has an un- off-site) choice made by persons traveling to impeded path from mode transfer point to and from a planned special event. venue seat. Accessible pedestrian routes must: (1) maintain a minimum path width, The end result in shuttle bus service design DAY-OF-EVENT ACTIVITIES (2) include curb cuts and temporary ramps involves determining the required number of for negotiating grade separations, and (3) buses to meet expected ridership levels. conform to local Americans with Disabili- Based on event category and associated op- ties Act (ADA) regulations. If a particular erations characteristics, the number of shut- route (e.g., from express/charter bus station tle buses needed during event ingress and or transit station) does not meet accessibility egress may vary. requirements, then accessible shuttles must operate between affected mode transfer A temporary shuttle bus station will exist at POST-EVENT ACTIVITIES points and accessible pick-up/drop-off areas. both a mode transfer point and at the event venue. Station design and operations should A shuttle bus service should be operated facilitate the rapid loading and unloading of continuously within the venue site area dur- shuttle passengers without impacting adja- ing event ingress and egress, with the ser- cent traffic operations and pedestrian vice schedule revolving around event patron movement. Because of the high concentra- arrivals and departures. Common shuttle tion of pedestrian traffic at the event venue EVENT PROFILE service to/from a planned special event during ingress and egress, venue station de- venue include: (1) satellite parking area ser- sign is critical. On-site shuttle bus stations vice, (2) transit station service, and (3) em- should: (1) facilitate easy shuttle bus access,

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(2) provide a defined passenger waiting enhancing strategies and tactics that handle area, (3) promote an orderly queue forma- forecasted event traffic demand on these tion, and (4) shield waiting passengers from routes. adjacent vehicular and pedestrian traffic. The advantage of developing a traffic flow Table 3-24 lists pertinent pedestrian access plan is two-fold: plan informational elements of interest to event patrons and participants. A traffic • Allows the event planning team to influ- flow map or traffic control plan, prepared as ence and control event patron patterns of a traveler information tool, may contain ingress and egress. callouts to pedestrian facilities and day-of- • Provides important advance information event control tactics. for event patrons and participants regarding best access routes to the event. Table 3-24 Pedestrian Access Plan Checklist The traffic flow plan must account for two ELEMENT types of traffic flow routes: corridor and • Show recommended pedestrian access local: routes. • Show pedestrian bridges and tunnels. • Indicate special pedestrian crossing tactics • Corridor flow routes include the free- (e.g., street closure or mid-block crossings) ways and major arterial roadways serv- • Show shuttle bus route, direction of travel, ing the planned special event venue. stop locations, and loading and unloading ar- • Local flow routes traverse the street sys- eas. tem adjacent to the event venue and ser- • Show vertical connections between infrastructure levels (e.g., stairs, escalator, eleva- vice a particular parking area or pick- tor, ramps). up/drop-off point. • Show designated pedestrian crossings at • A target point represents the point of street use event venues. connection between corridor and local • Indicate special regulations. flow routes, characterized by a freeway • Highlight pedestrian access routes and crossings suitable for disabled event patrons. interchange or major arterial intersection. Traffic Flow Plan • On the day-of-event, the management of corridor flow routes typically involves The preparation of a traffic flow plan repre- surveillance and dissemination of trav- sents a required preliminary step to the de- eler information regarding target point sign of a traffic control plan. The traffic and local flow route operations. The demand analysis component of a feasibility traffic management team implements study indicates the freeway/arterial corridors traffic control initiatives beginning at the and local streets that event patrons will util- target point and continuing along the lo- ize to access the venue site area. In develop- cal flow route. ing a traffic flow plan, the event planning team modifies predicted flow routes to Figure 3-10 describes a process for assessing maximize transportation system operating corridor and/or local traffic flow routes. efficiency on the day-of-event while meet- Traffic control strategies for increasing cor- ing public safety agency needs. In turn, a ridor route capacity include eliminating traffic control plan facilitates traffic flow on weaving areas or other ramp control tactics. recommended flow routes through service- Strategies for local routes include striping

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Identify Traffic Reevaluate tion describes these strategies and other Flow Route Traffic Flow Route mitigation alternatives in greater detail. 3

Estimate Existing Other considerations involved in the devel- Route Capacity opment of traffic flow plans include:

• Emergency access routes Forecast • Background traffic accommodation No Traffic

Demand > • Transit accommodation OVERVIEW Capacity? Emergency access route planning involves Yes designating street closures or emergency Identify Reevaluate Traffic Control Strategy Traffic Control access lanes within the venue site area to to Increase Capacity Strategies connect to some or all of the following termini: (1) public safety (e.g., fire and emergency medical service) headquarters, (2) lo- Forecast cal hospital, (3) freeway or major arterial Traffic Yes Demand > serving a regional hospital, and (4) location Capacity? of staged ambulances and first-aid stations ADVANCE PLANNING for on-site medical treatment. No Estimate Changes in Background Table 3-25 presents a range of passive (e.g., Traffic Demand traveler information dissemination only) and aggressive (e.g., physical traffic control) tac- Conduct Analysis and Modeling to Estimate tics for accommodating background traffic Operational MOEs during a planned special event.

Review Route with Identify Event Traffic

Community Interest A traffic management plan that prioritizes DAY-OF-EVENT ACTIVITIES or Parking Restrictions Stakeholders bus flow to and from the venue site area positively influences the utility associated with transit and other travel choices involv-

Impact on No ing express bus, charter bus, or shuttle bus Traffic Operations Acceptable? transport. Transit agencies should operate on scheduled bus transit routes up until the last possible point to divert around a road Yes

closure required to stage a planned special POST-EVENT ACTIVITIES Recommend Route event. This avoids user confusion and minimizes inconvenience to non-event at- Figure 3-10 tendees. Traffic Flow Route Assessment Process Table 3-26 lists tactics for accommodating scheduled and event-generated bus service. additional travel lanes to handle flow in the EVENT PROFILE predominant direction, restricting turning The traffic flow plan serves stakeholders movements, and revising traffic signal tim- managing the planned special event in addi- ing plans. The “Traffic Control Plan” section to event patrons and participants. The

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Table 3-25 Tactics for Accommodating Background Traffic during Planned Special Events USER TACTIC BENEFIT GROUP Regional • Freeway-to-freeway diversion • Maintains mobility. through traffic beginning a significant distance • Reduces the level of background traffic on corridor upstream of an event venue. flow routes serving the venue. Local through • Arterial-to-arterial diversion • Eliminates non-attendee exposure to venue site area. traffic • Discourages cruising around site area. • Allows public to become familiar with route after repeated implementation. Neighborhood • Parking restrictions • Permits resident access to on-street parking spaces. residents and • Permits employee and customer access to public businesses parking areas. • Traffic control points • Restricts neighborhood area access to residents and business employees. • Signing and alternate routes • Directs customers to businesses and other traffic generators.

Table 3-26 marks the point of connection, or target Bus Accommodation Tactics point, between corridor flow routes and lo- TACTIC cal flow routes. Together, the three entities • Exclusive bus route comprise the roadway system servicing a • Exclusive/priority bus lane planned special event. The scope of traffic • On-demand communication with TMC or control expands and contracts, proportion- command post ally to system performance, during event product of strategic route planning involves ingress and egress. informing event patrons of best access routes to and from the planned special event. The main objective of freeway management Stakeholders can communicate preferred during planned special events involves route directions via: (1) event patron ticket minimizing freeway mainline congestion. mailings, (2) media public information cam- Freeway traffic control tactics implemented paigns, and (3) event, venue, or traffic in- in response to local traffic flow or ramp op- formation websites. eration degradation preserve freeway mainline operations. Freeway traffic control Table 3-27 contains a traffic flow plan de- and management strategies for planned spe- velopment checklist. cial events include traveler information dissemination and interchange operations. Traffic Control Plan Traveler information disseminated upstream Freeways represent corridor flow routes of freeway interchanges serving an event serving event patrons and participants des- venue effectively: (1) introduces all freeway tined to/from a planned special event from users to critical traffic management plan various parts of a region and beyond. These components affecting traffic flow in the vi- corridor flow routes connect to local, street- cinity of the event venue and (2) facilitates level flow routes that, in turn, serve event freeway lane management as motorists learn venue parking areas. A freeway interchange of temporary freeway ramp control tactics

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Table 3-27 Traffic Flow Plan Checklist ELEMENT PROVISION 3 Event patron • Indicate recommended freeway ramps, by route direction, to/from event venue or specific parking corridor flow area. route • Indicate corridor target points representing a connection to local flow routes. • State freeway or arterial lane assignments for event traffic (e.g., event traffic two right-lanes). • Furnish information on roadway construction projects, as applicable, and indicate alternate routes. • Indicate modified ramp control tactics (e.g., closures/additional lanes). • Show freeway interchange configurations (and direction of travel) and exit numbers. • State tolls, if applicable. OVERVIEW Event patron • Show connection to corridor flow route. local flow • Indicate local streets that connect to freeway entrance/exit ramps. route • Indicate recommended flow route to/from general and reserved parking areas (minimum) or individual parking areas (recommended). • Indicate one-way streets. • Show all road segment closures. • Specify permitted turning movements. • Emphasize controlled turn areas (turns prohibited or only one turn allowed). • List modified roadway striping (e.g., reversible lanes or contra-flow). • Indicate event participant/VIP access routes. Traveler • Promote use of regional park & ride locations and event satellite parking areas. ADVANCE PLANNING information • Indicate commercial radio and highway advisory radio frequencies with event travel information. • Alert motorists of static and changeable message sign guidance along route. • Stress importance of following route and adhering to traffic control officer instructions. Traffic man- • Include contingency maps detailing routes to overflow parking areas. agement team • Provide written directions for diverting corridor flow routes via local street system. information • Indicate alternate routes for ingress and egress to same target point. Other travel • Show transit routes and state corresponding route number(s). modes / user • Show preferred taxi routes. groups • Indicate bicycle routes. • Indicate pedestrian routes. Other • Provide information on both ingress and egress flow routes. DAY-OF-EVENT ACTIVITIES considerations • Emphasize law enforcement endorsement of recommended routes and directions. • State travel times (by mode of travel) and distances (e.g., from select origins) • State when special traffic flow routes go into effect and terminate. • Disseminate written ingress/egress driving directions. • Indicate potential points of confusion (“do not take”) along recommended route (e.g., freeway exits, turning movements). • Indicate heavy vehicle restrictions. • Indicate expected congested/non-congested areas. • Use callouts to highlight critical movements. • Label all streets and freeways. POST-EVENT ACTIVITIES • Color-code recommended routes to specific parking areas. • Emphasize new provisions (e.g., new road closures or route). • Prepare maps for different venue events if parking plan varies. • Show parking areas. • Show venue gates. • Draw map to scale. • Show private property.

• Display landmarks. EVENT PROFILE

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and/or downstream lane closures that war- to venue parking areas and pick-up/drop-off rant a lane-change. locations. Each route marker may consist of a color-coded letter or symbol. When Management of freeway interchange opera- erected along a local flow route, the route tions for planned special events involves marker assemblies collectively trailblaze a maximizing ramp capacity and preventing route to the drivers’ destination of choice. freeway mainline congestion. Table 3-28 Signs that introduce each route marker presents interchange operations tactics for should be placed on all freeway and arterial planned special events. corridors serving the event venue.

The central traffic control strategy for local The deployment of a portable traffic man- flow routes serving a planned special event agement system(s) (PTMS) provides a traf- involves emphasizing throughput. Tactics fic management team with the capability of that increase street capacity include a com- monitoring traffic operations at critical bination of: (1) on-street parking restric- roadway system locations in addition to dis- tions, (2) vehicle travel on road shoulders, seminating updated traveler information at and (3) alternative lane operations. Streets that location. Critical locations include tar- connecting freeway/arterial corridor routes get points connecting a corridor flow route and venue parking areas characteristically and a local flow route or key driver decision serve a predominant directional traffic flow points on the street network surrounding an during ingress and the reverse flow during event venue. Typical PTMS components egress. include:

Alternative lane operations comprise two • Surveillance camera categories: • Changeable message sign • Highway advisory radio • Reversible lane operation • Detection devices • Contraflow operation • Weather sensor • Flood lights The application of alternative lane opera- • Power source (e.g., solar) tions to streets during a planned special event creates an express route between an Wireless communication via spread spec- event venue and high-capacity free- trum radio enables the traffic management way/arterial corridors. Three key elements team to view full-motion video from PTMS in developing an alternative lane operations surveillance cameras. plan include lane balance, markings, and enforcement. A proactive approach toward developing strategies for controlling intersection traffic The management of traffic traversing a local during a planned special event aims to: flow route on the day-of-event involves route guidance and monitoring of traffic • Increase intersection traffic handling ca- control initiatives. pacity.

• Improve the orderly movement of traffic. The event planning team should design spe- • Prevent crash occurrences. cial route marker signs for guiding motorists

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Table 3-28 Interchange Operations Tactics for Planned Special Events EVENT 3 TACTIC APPLICATION BENEFIT TIME Rolling • Initiate tactic on freeway mainline up- • Alleviates traffic demand at inter- road block Ingress stream of congested interchange ramp(s). change, thus permitting street or ramp bottleneck to dissipate. • Initiate tactic on freeway mainline up- • Reduces level of congestion at the stream of a congested ramp junction or primary bottleneck location. weaving area.

Egress OVERVIEW • Use tactic to meter freeway mainline traffic demand without creating a secondary bottleneck upstream of the congested area. Entrance • Initiate tactic on ramps in close proximity • Eliminates congestion caused by ramp to and upstream of interchange target point traffic merging with heavy freeway closure Ingress for event traffic. mainline traffic. • Divert affected traffic to another downstream access point. • Initiate tactic as necessary to reduce free- • Reduces freeway mainline conges- Egress way mainline congestion in the vicinity of tion or prevents congestion from oc- closely spaced entrance ramps. curring. Exit ramp • Close ramp, as needed, to alleviate conges- • Reduces congestion on local flow closure tion on a downstream local flow route. route. ADVANCE PLANNING Ingress • Initiate only if a downstream exit ramp and local street system can handle diverted traffic. • Initiate tactic at freeway interchanges con- • Prevents traffic from accessing local necting local traffic flow routes that have flow routes in the direction of the Egress special egress traffic control measures in event venue that operate in favor of effect. egress traffic flow. Elimina- • Close cloverleaf interchange entrance • Eliminates weaving area congestion. tion of Ingress ramp to facilitate unimpeded diverge to • Extends deceleration lane for traffic weaving access adjacent exit ramp. using exit ramp. area • Close cloverleaf interchange exit ramp and • Eliminates weaving area congestion. DAY-OF-EVENT ACTIVITIES Egress mainline right-lane to facilitate unimpeded • Extends acceleration lane for traffic merge with mainline. using entrance ramp. Ramp • Meter freeway entrance ramps upstream of • Reduces congestion caused by traffic metering Ingress interchange target point for event traffic. merging with heavy freeway mainline traffic. • Meter freeway entrance ramps downstream • Reduces congestion caused by traffic Egress of interchange target point for event traffic merging with heavy freeway mainline traffic. Late • Deploy traffic cones along barrier line • Reduces congestion at diverge ramp diverge extending upstream of exit ramp gore area. junction caused by motorists at- POST-EVENT ACTIVITIES prohibition Ingress tempting to make a sudden lane- change to access an exit ramp. • Improves safety. Additional • Cone an additional lane on exit ramps • Provides additional ramp storage exit ramp serving traffic destined to an event venue. capacity. lane Ingress • Proves particularly effective if two- lane ramp traffic does not have to

merge at downstream end of ramp. EVENT PROFILE

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The key to maximizing capacity involves En-Route Traveler Information Plan simplifying traffic movements and minimizing the number of traffic signal phases. En-route traveler information can provide Stakeholders can also reduce the number of event patrons and other transportation sys- competing intersection traffic flow move- tem users with current roadway and transit ments by initiating a planned road closure. information while traveling en-route. In- Advance signing of permitted intersection formation is typically provided via devices movements improves the orderly movement deployed along the side of the roadway, or of traffic. from devices mounted on the dashboard of the vehicle. Along the roadway, CMS and The significant change in traffic volume and HAR messages typically provide informa- flow patterns at street intersections in the tion regarding an upcoming planned special vicinity of a planned special event venue event, including current conditions related to during event ingress and egress mandates a the special event such as traffic congestion, review of traffic signal timing plans during incident and construction locations, weather the event operations planning phase. Ad- advisories, parking availability, and alternate vance traffic signal operations planning in- routes. In-vehicle and personal mobile de- volve developing event traffic signal timing vices can provide a variety of en-route trav- plans. Traffic signal timing plans should eler information to both the traveler as well exist for a range of contingency scenarios as transportation providers. that prioritize either major street or minor street traffic movements. Methods to in- Static signs can be used for event manage- crease time for a specific movement include: ment to inform travelers of an upcoming (1) selecting an existing plan with a longer planned special event, to identify park & cycle length to increase the normal favored ride lots, and to guide motorists to particular phase, (2) implementing a custom plan fa- locations. It is not uncommon for agencies voring a minor street phase (3) deploying a to use static signing in special event man- contingency “flush” plan, consisting of an agement for the following purposes: extra long phase or cycle, to facilitate movement through a corridor, and (4) in- • Notify travelers of a future special event. creasing time for a movement through man- • Notify travelers of future facility ual traffic signal system operator control. In changes for the event such as lane clo- traffic signal system-controlled corridors sures or occupancy restrictions. carrying high traffic volumes on the day-of- • Identify special alternate routes for the event, system operators may enact simulta- event. neous coordination, where all signals within • Guide travelers to parking or park & ride a single corridor turn green at the same time. lots.

The event planning team designs traffic con- One of the most fundamental technologies trol plans for use by the traffic management available for disseminating traffic-related team and traffic control vendors. Table 3-29 information from the roadside is that of contains a traffic control plan development changeable message signs. CMSs are some- checklist for freeway, street, and intersection times referred to as dynamic message signs management.

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Table 3-29 Traffic Control Plan Checklist 3 ELEMENT PROVISION Freeway control plan • Specify maintenance and protection of traffic per MUTCD guidelines (e.g., location of traffic control equipment, equipment quantities, and safety signs). • Indicate ramp control and capacity modifications. • Highlight exclusive traffic flows (e.g., unimpeded merge, etc.). • Dimension weaving area, acceleration/deceleration lane lengths, ramp length.

• Indicate potential bottleneck locations for surveillance monitoring. OVERVIEW Street control plan • Show closed road segments. • Indicate directional lane control (e.g., alternative lane operations). • Show one-way streets. • Indicate number of ingress and egress lanes at each venue access point (e.g., parking areas, pick-up/drop-off points). • Show street use event route. • Indicate parking restrictions. • Indicate location of command post(s). • Integrate with signing plan (e.g., show route trailblazer signs). Intersection control plan • Specify maintenance and protection of traffic per MUTCD guidelines (e.g., location

of traffic control equipment, equipment quantities, and safety signs). ADVANCE PLANNING • Show permitted pedestrian movements and crosswalk locations. • Indicate approach lane designations and pavement markings. • Indicate traffic control. • Highlight exclusive/permitted traffic flows (indicate approach lane and corresponding receiving lane). • State special regulations (e.g., turn prohibition, exclusive bus lane, resident/permit only movement). • Show approach closures. • Indicate parking restrictions. • Indicate location of traffic control officers.

• Indicate location of equipment storage area at intersection. DAY-OF-EVENT ACTIVITIES Signing plan • Show location of permanent/portable changeable message signs. • Show location of permanent/portable highway advisory radio stations. • Indicate CMS/HAR message sets. o Default ingress and egress o Contingency scenarios • Show location of temporary static signs and message. • Indicate location of dynamic blank-out signs. Equipment location • State number of traffic cones, drums, and barricades required at designated locations. plan o Indicate equipment staging areas (e.g., shoulder, median, intersection corner) POST-EVENT ACTIVITIES • Indicate location of equipment storage areas. Other considerations • Provide plans for both ingress and egress operation. • Indicate roadway construction zones. • Include table of quantities. • Show aerial map. • Draw map to scale. • Display landmarks.

EVENT PROFILE

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or variable message signs. CMSs are pro- Other technology applications include: grammable traffic control devices that can usually display any combination of charac- • Cellular telephone-based systems ters to present messages to motorists. These • 511 signs are either: (1) permanently installed • In-vehicle displays above or on the side of the roadway, (2) • Subscription services portable devices attached to a trailer, or (3) • Personal data assistants portable devices mounted directly on a truck and driven to a desired location. An en-route traveler information plan must be developed in concert with the traffic flow Highway advisory radio is an effective tool plan and traffic control plan. The success of for providing timely traffic and travel condi- any traffic management plan depends on tion information to the public. It has various disseminating correct information to motor- advantages and disadvantages. Its most im- ists at the right time and location. portant advantage is that it can reach more travelers, or potential travelers, than the Detailed plans are necessary that identify the other roadside technology, changeable mes- facilities and resources to be used. For in- sage signs. While CMSs reach only those stance, what permanent CMS or HAR are to motorists at a particular point, and can only be used and what holes exist in the informa- convey a short message, HAR has the ad- tion dissemination strategy? Where will vantage of being able to communicate with portable devices be required? Traveler in- any person in the HAR broadcast range. formation plans must include planned mes- Furthermore, the amount of information that sage sets for equipment and technology used can be conveyed to the user is much greater. to disseminate en-route traveler information, Its primary disadvantage is that it is re- including static signs, changeable message stricted to low power, and this can lead to signs, highway advisory radio, and tele- poor signal quality (since many outside phone information systems. forces affect the signal, such as weather) and, therefore, poor listener levels. Traffic Surveillance Plan

The public has learned to depend upon the A traffic surveillance plan can include: media to provide them with “almost” real- time traffic information. Commercial radio • Closed-circuit television systems has proven to be a good means of providing • Field observation travelers with traffic information both in and • Aerial observation out of their vehicles. It is not uncommon for planned special event stakeholders, includ- • Media reports

ing public agencies, to partner with a com- Closed-circuit television surveillance is a mercial radio station (or for a commercial very valuable planned special event man- radio station to sponsor a special event) to agement tool for observing real-time condi- enhance the information dissemination re- tions related to special event corridors, al- lated to the event and its transportation con- ternate routes, parking and pedestrian condi- ditions. Care should be taken to ensure that tions, as well as for a verification tool for the information disseminated reflects current messages placed on changeable message traffic conditions and is credible. signs.

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A common and efficient technique to ob- safety plan specifies crash prevention tactics serve the traffic conditions during a planned and traffic incident quick clearance initia- special event is to place human observers, or tives, some of which denote special provi- 3 detectors, in the field, usually at critical lo- sions enacted just for the day-of-event. cations. Normally, these observers have the These traffic incident management tech- role of monitoring conditions and reporting niques preserve two goals of managing back to a central location for strategic as- travel for planned special events: (1) ensur- sessment. These human detectors are gath- ing safety and (2) maximizing efficiency. ering relevant information related to the OVERVIEW event and using established protocol to Crash prevention tactics focus on improving communicate the information back to the driver awareness of surroundings and driver central processing and coordination facility. behavior. Table 3-30 lists crash prevention tactics applicable to planned special events. It is common to deploy these observers where technology is lacking and where they Table 3-30 may perform an additional role in traffic Crash Prevention Tactics management or traffic incident management TACTIC (e.g., freeway service patrol operators). • Portable lighting • Congestion warning sign

ADVANCE PLANNING Aerial surveillance has long been used to • Public information safety campaign • Enforcement monitor the operation of the surface transportation network. “Observers” in aircraft Portable lighting devices enhance driver un- (fixed wing or helicopters) fly over freeways derstanding of traffic control and traffic flow and streets and monitor conditions in real- patterns at night. Congestion warning signs, time, using two-way radios to communicate placed upstream of known roadway bottle- with the TMC or with service patrols on the neck locations, alert drivers of demand- freeway. This approach can be relatively induced congestion on the day-of-event. A expensive when one considers the expense public information safety campaign strives DAY-OF-EVENT ACTIVITIES of leasing or operating an aircraft, although to change motorists’ behavior when travel- it does have the benefit of being able to ing to and from a planned special event by cover a large area. emphasizing event traffic control and regu-

lations, pedestrian safety, and vehicle opera- The media needs to be a partner in the tion. Enforcement aims at preventing driv- planned special event management and op- ers from executing illegal and dangerous erations effort. Agreements must be in place movements in an effort to bypass congestion that define their role within the plan, as well and/or day-of-event traffic control. POST-EVENT ACTIVITIES as what information needs to be communicated, both prior to and during the event. Service patrols can play a key role in traffic

incident management for planned special Traffic Incident Management and Safety events. The service has great versatility, and Plan patrol operators can satisfy a wide range of

traffic management team needs. For exam- The occurrence of a planned special event ple, operators can assist in establishing day- EVENT PROFILE that increases or disrupts the normal flow of of-event traffic control, performing traffic traffic places a premium on the optimal use surveillance, providing timely traffic condi- of existing facilities. A traffic incident and

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tion reports from various remote locations, utility associated with using transit, but also and rapidly clearing traffic incidents. to exceed the utility (e.g., travel time, parking fees, comfort, etc.) associated with trav- A quick clearance practice consists of laws, eling via personal automobile. Successful policies, procedures, and infrastructure transit services collectively may result in a aimed at effecting the safe and timely re- significant change in event patron modal moval of a traffic incident. Service patrols, split without impacting service to non- as previously described, represent a quick attendee users. clearance infrastructure component. Rapid clearance of traffic incidents during planned The availability of pre-trip travel informa- special event ingress and egress avoids sig- tion, consisting of essential event operations nificant impact to corridor and local traffic and real-time traffic information, proves ef- flow routes in addition to routes used by par- fective in assisting event patron evaluation ticipants and VIPs. of potential travel options, trip departure times, and travel routes to the event venue. The following quick clearance initiatives Similarly, other road users, seeking to benefit traffic incident management in high- minimize event-related impacts to their trip, volume corridors, characteristic of planned value this information. special events: (1) vehicle/cargo removal laws and policies, (2) stakeholder open TDM, transit, and pre-trip traveler informa- roads policy, and (3) public-private towing tion initiatives complement one another and contracts. work to reduce traffic on the roadway network in the vicinity of the event. These ini- Travel Demand Management and tiatives are not infrastructure improvements Traveler Information to increase capacity, but rather are methods that decrease vehicular traffic by providing Travel demand management represents a event patrons with various travel choices as key component of the overall advance plan- well as providing information that may lead ning process when forecasted traffic demand to a reduction in traffic volumes. levels approach or exceed available road capacity. TDM strategies may be warranted Demand Management Strategies for planned special events occurring during peak travel times, continuous events located Successful TDM strategies, developed to in downtown areas, street use events of long reduce the amount of event patron traffic, duration, regional/multi-venue events, and encourage carpooling and the use of alter- special events in rural areas having limited nate travel modes. TDM strategies may also transportation system capacity. The goal is influence the travel patterns of non-attendee to optimize event patron and non-attendee road users by encouraging a trip time shift or travel through incentives aimed at consoli- a change in travel mode. The resulting re- dating person trips and altering user travel duction in traffic demand reduces travel patterns and habits, while minimizing any times for both event patrons and non- penalties to the user. attendee road users.

The goal of transit operators involve design- Table 3-31 contains a summary of travel ing a special event service and related incen- demand management strategies. tives to not only improve the travel choice

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Table 3-31 Travel Demand Management Strategies 3 OVERVIEW ADVANCE PLANNING DAY-OF-EVENT ACTIVITIES POST-EVENT ACTIVITIES EVENT PROFILE

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Transit Service Table 3-33 lists techniques used to provide pre-trip information to the traveling public. Modifications to existing transit service for a special event represent TDM strategies. The The primary function of pre-trip information focus of the public transit agency is to in- involves assisting drivers with decisions re- crease ridership during the event by increas- garding route planning, travel mode, and the ing the attractiveness of the service that it time of day to travel. Accurate pre-trip provides. In many locations and for many travel information will provide benefits to types of special events, additional ridership all transportation system users in the form of to and from special event sites can provide time and cost savings. substantial additional revenue for the transit system at little additional cost. Also, transit Pertinent information that event patrons may system use may relieve traffic congestion want before beginning their trip include: around the venue. • Best driving route to the venue from Table 3-32 contains a summary of transit specific origins (e.g., cities or freeways) service strategies. • Best public transit route • Parking area locations and parking fees, Pre-Trip Traveler Information access to disabled parking spaces, and times that the parking areas open before Various traveler information techniques are the event used to disseminate information to the pub- • Recommended event ingress and egress lic, including both event patrons and non- routes, particularly if different for arri- attendee road users, so they can be better vals and departures informed when planning their trip to a planned special event, or around an event.

Table 3-32 Transit Service Strategies STRATEGY TECHNIQUES Public transit • Maximize use of public transit. service o Existing service with additional vehicle hours expansion o Modifying existing service by creating a route deviation with a stop near the event venue o Implementation of an express service to establish a special purpose route to and from the event site Express bus • Discourage event patrons from driving their vehicles to the event site due to expected site service parking deficiencies and anticipated roadway congestion. o Using express bus service between a park and ride facility or remote parking lot and event venue o Using park and ride lots that best intercept spectator traffic as it approaches the event site. Charter • Use a contract service to provide transportation directly to the event site from outlying ar- service eas (e.g., other neighborhoods and cities). • Consider both charter bus operations as well as charter rail service. Transit • Establish a comprehensive transit marketing program. service o Informing the public of the availability of public transit service to/from the event marketing venue o Convincing the public to use the service

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Table 3-33 this creates a more responsive traffic man- Pre-Trip Traveler Information agement team and fluid team operation, thus Dissemination Techniques translating to better transportation system 3 TECHNIQUE performance on the day-of-event. • Internet • Telephone information systems • Public information campaign Implementation Plan • Event and venue transportation guide • Kiosks An implementation plan details the actions

• Television required to put a traffic management plan OVERVIEW • Newspapers into effect on the day-of-event. Its purpose • Changeable massage signs is to: (1) define personnel assignments that • Highway advisory radio indicate the roles and responsibilities of individual traffic management team personnel • Up-to-the-minute roadway information on the day-of-event, (2) describe a scenario- (e.g., current traffic conditions and based, operations game plan at the manage- weather conditions) ment-level, and (3) communicate instruc- • Estimated travel time by different travel tions and organize personnel at the field- modes level. It is intended for use by individual

• Event information such as times and traffic management team personnel at the ADVANCE PLANNING schedules command post and in the field. While the • Recommended speed/safety advisories traffic management plan indicates how traf- • Scheduled roadway construction and fic, parking, and pedestrian operations will maintenance lane closures be managed, the implementation plan de- • On-street parking restrictions during the scribes the what, when, and where in terms event of personnel and equipment resource de- • Heavy vehicle restrictions ployment needed to execute traffic man- • Expected delays leaving the event agement plan provisions.

DAY-OF-EVENT ACTIVITIES IMPLEMENTATION Table 3-34 presents an implementation plan checklist. All planned actions, even if not ACTIVITIES explicitly noted in the table, must include what, when, and where instructions. For Implementation activities mark a transition multi-day or multi-venue events, traffic con- phase between event operations planning trol strategies and resource deployment can and day-of-event activities. Therefore, the be organized through matrices for easy ref- phase involves both the event planning team erence. POST-EVENT ACTIVITIES and traffic management team. This phase includes activities key to the success of any Review and Testing planned special event, including implementation plan development, stakeholder review Review and testing allows the traffic man- and testing exercises, and personnel resource agement team to identify potential limita- management and training. The underlying tions of the traffic management plan prior to objectives of these activities are to: (1) im- the day-of-event. With stakeholder agencies EVENT PROFILE prove the efficiency of traffic management representing various jurisdictions and disci- plan deployment and (2) increase traffic plines, review and testing promotes traffic management team preparedness. In turn, management team coordination and in-

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Table 3-34 Implementation Plan Checklist ELEMENT ACTION • Indicate agencies staffing the command post in addition to the name and schedule of agency representatives. • Specify equipment needs and times of delivery and set-up. Command post Computers, networking, temporary phone and modem lines, televisions and radios, operation o dry erase board or flipchart(s), message board, office supplies, furniture. • Indicate procedures for accessing the command post (e.g., clearing security) • Specify vehicle parking area and helicopter landing area. • Indicate command post location and hours of operation. • State parking, traffic control, and service patrol shifts. • State when egress plan goes into effect. • Specify parking area and venue gate open/close times. Operations timeline • Summarize the location and time (close/reopen) of planned full/partial road closures. • Include event schedule, such as event start time, event end time, and significant activities during the event (e.g., parade detail and headline entertainment schedule). • State times of sunrise and sunset, if applicable to traffic control measures (e.g., use of portable lighting). • Indicate scenario-based criteria for implementing traffic management plan components (e.g., traveler information message sets, traffic flow routing, reversible lane operations, etc.) • Include a series of operations details for sequential time segments on the day-of-event. Operations • Specify contingency plans – indicate available plans and associated equipment/personnel management resource deployments and changes in traffic management team command. • Indicate procedure for revising the traffic management plan on the day-of-event. • State protocol for terminating traffic and parking management detail. • Summarize traffic management plan changes since previous event. • State contact information for individual traffic management team members. Contact o Home phone, work phone, cell phone, pager number, fax number, e-mail address, information unit/radio assignment, rank, detail assignment, vehicle assignment. • Include contact information for agencies involved in contingency plan deployment. • List radio call-sign of traffic management team members. Communications • Indicate guidelines and restrictions regarding use of various radio channels or talkgroups (e.g., field-to-field communications, field-to-command post communications, non-event communications). • State agency duties, responsibilities (e.g., traffic control, traffic signal operation, traveler Traffic information device operation, etc.), and jurisdiction. management • Specify highest-ranking agency representative on the day-of-event in addition to mid- team level (e.g., zone) managers. organization • Summarize chain of command. • Mandate pre-event equipment check (e.g., CMS operation). • Specify locations and quantities of traffic control and other support (e.g., portable lighting) equipment. Indicate equipment owner and, if applicable, power source. • Indicate equipment delivery, installation, and removal schedule in addition to personnel assignments. Equipment and • Indicate schedule and location (zone) assignment of available equipment maintenance infrastructure crews on the day-of-event. management • Include equipment operating instructions (e.g., remote HAR programming). • Indicate temporary static sign locations and descriptions. • Specify planned traveler information message sets (e.g., CMS and HAR). • Specify personnel responsible for monitoring and programming traveler information devices on the day-of-event.

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Table 3-34 (cont’d) Implementation Plan Checklist ELEMENT ACTION 3 • Indicate protocol and personnel charged with implementing different traffic signal timing Equipment and plans as needed on the day-of-event. infrastructure • Indicate protocol and personnel charged with monitoring traffic surveillance equipment management (e.g., CCTV). (cont’d) • List available maintenance personnel and equipment resources. • Indicate agency personnel (e.g., number of staff or individual name, rank, and unit/radio assignment), report date and time. OVERVIEW • Specify schedule and route of roving service patrols. • State protocol and personnel assignments for maintaining unobstructed emergency access Location- routes. specific traffic • Specify task instructions, including traffic and pedestrian flow restrictions and permitted and pedestrian movements (e.g., special allowances for local traffic, buses, etc.). control • Summarize the location and time (close/reopen) of planned full/partial road closures encompassing a particular location. • Provide step-by-step directions in order for substitute personnel to quickly learn protocol. • Include explanation, supplemented with graphics, of special event parking area permits and event passes. • Describe components of post-event field personnel debriefing. Post-event o Time of heavy traffic and pedestrian flow ADVANCE PLANNING evaluation o Qualitative assessment of traffic and pedestrian operations at location. o Recommendations to improve traffic and/or pedestrian flow at location

creases stakeholder familiarity of the duties, planned special event will occur, much of responsibilities, and capabilities of other the plan will involve permanent TMCs or stakeholders. temporary command posts which are in operation before, during, and after the event. While a traffic management plan can cover Therefore it is important that all of the re- DAY-OF-EVENT ACTIVITIES many contingencies, it cannot cover all pos- sponsible agencies and TMCs, which may sibilities. Review and testing can allow par- have a role to play during the actual event, ticipants to see how they handle various be involved with the simulation exercise. scenarios and how varying elements can affect the plan. The testing of the plan should Exercises can take on two different forms: be considered part of the overall training that is needed for traffic management team • A tabletop exercise personnel to become familiar with the plan • A full-scale simulation POST-EVENT ACTIVITIES and their role in it. The purpose of both types of exercises is to: Stakeholder Simulation Exercises (1) test the written assumptions in the traffic management plan and (2) see what must be The simulation exercise can test important changed and how the plan can be improved. elements such as: (1) interagency communi- No matter how thorough a traffic manage- cations, (2) deployment of personnel and

ment plan may be, it can not account for all EVENT PROFILE equipment, and (3) information gathering contingencies. The plan assumes partici- and dissemination. While stakeholders may pants will follow the steps laid-out, but indi- conduct the exercise at the venue where the viduals make mistakes and equipment may

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fail. Both the tabletop and full-scale simulation allow the participants to see how they While testing is no guarantee that equipment react to those unexpected events. will work as expected, it is useful in identifying unknown problems and potential prob- In both a tabletop exercise and a full-scale lems before the event. simulation, participants receive and use the written traffic management plan and imple- Personnel mentation plan as the basis for their actions. Table 3-35 lists elements of a typical exer- Traffic management plan implementation on cise. the day-of-event involves personnel duties ranging from trivial tasks to responsibilities Table 3-35 critical to the safety and mobility of trans- Elements of a Stakeholder Simulation portation system users. A traffic manage- Exercise ment team comprised of supervisors and ELEMENT field staff having experience in assigned du- • Identify the stakeholders who will participate ties and responsibilities represents a key to in the exercise. • Distribute copies of the traffic management successfully managing travel for planned plan and implementation plan to participants. special events. Experienced personnel • Develop a script for the exercise, including should exist at all levels in the traffic man- surprise elements, which may not be ad- agement team hierarchy: interagency com- dressed in the traffic management plan. mand, agency command, and field opera- • Provide a timeline for the exercise to play-out tions. However, supplementing experienced (the exercise will probably take place in an accelerated timeframe compared to a real-life personnel with temporary staff and volun- event). teers on the day-of-event also provides ad- • Identify reviewers who will watch the exercise vantages that (1) reduce personnel cost as and take notes. public agency personnel likely require over- • Provide time to review the exercise. time wages on the day-of-event, (2) permit • Modify the plan based on what was learned public agencies to adequately meet other during the exercise. daily staffing requirements, and (3) provide

expanded control over transportation opera- Equipment Testing tions and greater convenience to event pa-

trons. A wide variety of equipment may be used to manage travel during a planned special In some cases, the amount of personnel re- event. This includes communications quired to implement traffic management equipment and equipment in the field, which plan strategies (e.g., traffic/pedestrian con- supports the traffic management plan and trol, parking, surveillance) on the day-of- helps the traffic management team manage event, coupled with implementation plan the event. Equipment that may need to be assignments such as equipment delivery and tested includes: installation, may exceed the staffing capa-

bilities of agencies and contractors involved • Center to center communications in managing travel for a planned special • Center to field communications event. As a result, the recruitment and train- • Changeable message signs, both fixed ing of temporary staff and volunteers be- and portable comes paramount to the success of day-of- • Highway advisory radio event operations. • CCTV

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Table 3-36 Volunteer Recruitment General Volunteer Training Activities ACTION 3 Prior to initiating volunteer recruiting ef- • Discuss traffic management team chain of forts, event planning team and/or traffic command. management team stakeholders must deter- • Summarize job training and required duties. • Schedule review. mine the number of volunteers needed. This • Present examples of typical and contingency represents a function of the number of po- scenarios and how volunteers should react. tential volunteer work assignments and • Provide background in customer service. OVERVIEW number of available volunteer supervisors. • Describe field communications infrastructure. An alternative approach to recruiting after • Discuss proper radio communications proto- traffic management plan development in- col. • Explain types of parking area permits and volves: (1) soliciting the public, through event passes. event advertisements, for volunteers early in • Discuss strategies for accommodating persons the event operations planning phase and (2) with disabilities (e.g., review disabled acces- developing a volunteer contact list for later sible routes and site facilities). reference as conditions warrant. • Review security guidelines. • Review guidelines for interacting with the media. Because different special event work as- • Indicate transportation information and alter- ADVANCE PLANNING signments peak varying levels of interest natives for volunteer access to event venue among volunteers, stakeholders should re- site. cruit additional volunteers for certain low- interest assignments. This avoids a potential shortfall relative to volunteers not showing DAY-OF-EVENT up for work on the day-of-event. ACTIVITIES

Training Activities Day-of-event activities focus on the daily

implementation of the traffic management DAY-OF-EVENT ACTIVITIES Training for volunteers and temporary staff plan in addition to traffic monitoring. The ensure these personnel: (1) understand the traffic management team represents a dis- traffic management plan component govern- tinct stakeholder group charged with executing their assignment, (2) disseminate accu- ing the traffic management plan and modify- rate information to event patrons and super- ing the plan as warranted by real-time condi- visors, and (3) understand traffic manage- tions on the day-of-event. Team organiza- ment team operations protocol. Training tion includes agency representatives sta- involves the distribution of reference mate- tioned at a central command post, at secon- POST-EVENT ACTIVITIES rial, pre-event seminars, or both. dary command posts, at a permanent TMC, and at strategic locations in the field for traf- Table 3-36 lists general volunteer training fic control and observation. The traffic activities. Since most volunteers do not pos- management team generally functions under sess relevant experience in managing trans- a formal management process, namely the portation and parking operations, training Incident Command System, to ensure suc- activities should address all of the potential cessful traffic management plan deployment EVENT PROFILE decision-making scenarios that volunteers and minimal impact to transportation system may encounter in addition to day-of-event users. Traffic monitoring provides traffic communications. and incident management support in addi-

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tion to performance evaluation data. Timely Command Post deployment of contingency plans developed during the event operations planning phase The ICS will most likely be used in a multi- depends on the accurate collection and agency command post. The command post communication of real-time traffic data be- will probably be at or near the venue where tween traffic management team members. the planned special event takes place. De- pending upon the size of the event, secon- Traffic Management Team dary command posts may exist. These secondary command posts may take on specific The traffic management team includes not areas of responsibility, such as law enforce- only many of those stakeholders that have ment or traffic control. been involved during the event operations planning phase, but all those who may be In some instances, a permanent TMC may involved for the first time on the day of the serve as the primary command post. The event. Table 3-37 lists typical stakeholders advantage of using the TMC is that many of involved in day-of-event activities. the communications resources and other needed tools are already in place. Table 3-37 Traffic Management Team Stakeholders Advantages of a single command post in- STAKEHOLDER clude: (1) key agencies are represented in a • Traffic operations agency single location and (2) communications • Transit agency among agencies are simplified. • Law enforcement • Public safety An advantage of secondary command posts • Event organizer is that event management can be more easily • Transportation consultants • Traffic control contractors switched if a problem develops at the pri- • Emergency management agency mary command post.

Stakeholder Roles and Coordination Resource Planning

A planned special event represents a source The plan developed for the resources needed of non-recurring congestion where, similar for the event represent the collected best to a traffic incident, stakeholders must adopt opinion on what is needed. Resource plan- a formal management process to ensure suc- ning involves the following two parts: (1) cessful traffic management plan deployment determining the scope and amount of re- and minimal impact to transportation system sources that will be used on the day-of-event users. The Incident Command System can and (2) identifying resources in advance in be used to handle traffic management during case the traffic management team needs planned special events. The ICS organizes more resources than planned to implement and coordinates multi-agency response to an the traffic management plan. incident by establishing responsibilities and lines of authority. An Incident Commander The most important resource that stake- has overall responsibility for managing the holders must plan for involve personnel re- planned special event. sources. Planning considerations include:

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• What type and quantity of skilled per- activity during the event, and participants sonnel are needed? should contribute their insights as they wit- • Where should personnel be deployed? ness the event unfolding. The traffic man- 3 • What responsibilities will individual per- agement team must be open to modifications sonnel have? of what had been agreed to during the event operations planning and implementation ac- Managing Traffic tivities phases.

Table 3-38 indicates key traffic management While the traffic management plan and sup- OVERVIEW porting implementation plan notes how plan evaluation activities on the day-of- stakeholders expect to manage traffic, the event. actual management of traffic on the day-of- event may differ from what the plan calls Table 3-38 for. Traffic incidents, changing weather Traffic Management Plan Evaluation conditions, and other unexpected events can Activities all cause the traffic management plan to be ACTION modestly modified or completely changed. • Establish briefing schedule and location (e.g., command post). After safety, successfully managing traffic • Identify ranking representative of each stake- represents the reason why stakeholders de- holder agency participating in briefings. ADVANCE PLANNING veloped the traffic management plan in the • Conduct day-of-event briefing. first place and that goal must remain para- o Situation status mount. o Objectives and priorities o Current organization o Personnel and equipment resource as- As part of the traffic management plan, vari- signments ous scenarios can be addressed from best o Communications case to worst case, together with likely o Concerns and related issues variations. Having different scenarios and o Recommended changes • Achieve consensus on recommended

response plans specified in the traffic man- DAY-OF-EVENT ACTIVITIES changes. agement plan will help managers more

quickly respond to changes. Again, not every variation can be noted, but experi- Communication enced staff can modify what the traffic management plan calls for. In most areas of the country, interoperable communications, in which all agencies are able to communicate on a common radio frequency, is not yet a reality. That being

Evaluation Activities POST-EVENT ACTIVITIES the case, it is necessary for a communication Although many hours have been spent creat- structure and protocol to be established. As ing the traffic management plan, the plan shown in Table 3-39, the structure should should remain flexible with the ability to include the noted primary considerations. modify and enhance it with necessary changes based on real-time traffic condi- Whatever frequency is used, it is important tions. Updates can continue through the that all those who must use it be able to ac- EVENT PROFILE course of the planned special event, account- cess the channel and that coverage include ing for new situations and unexpected all areas where operations will take place. events. Evaluation of the plan is an ongoing

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Table 3-39 The participating agencies may normally Communications Structure Primary operate on a wide variety of systems. VHF, Considerations UHF, and 800 MHz trunked systems are CONSIDERATION among those in common use, and agencies • What radio channels or frequencies will be cannot normally communicate from one sys- used. tem to another. Before the right equipment • Who will use these channels. can be identified, it is important for the • Will a common lexicon be used for communications. stakeholders to understand what they want the communications system to do. Is it simply a means to share information, or does real-time coordination have to take place? Another important part of the protocol in- Who has to operate on the channel? Where volves using common language on a multi- will they be located? Once these questions agency frequency. An increasing number of are answered, it becomes possible to identify agencies are now using clear language pro- the appropriate equipment to use for the tocols on their radio frequencies, and these event. standards should be followed if multiple agencies have to communicate with one an- Interacting with the Media other. Clear language simply says that commonly understood words and phrases The media may find that the usual means are used instead of codes. they use to get traffic information are unavailable during the planned special event. Interagency Communication Due to security concerns, airspace near the site may be off limits. This makes the media To minimize confusion and extraneous in- more dependent upon the agencies to pro- formation being shared among agencies, the vide them with updates. question of who will use which frequencies should be decided during the planning proc- Unless a proactive decision is made other- ess. Stakeholders should understand: (1) wise, most agencies would not want the me- how they can reach other traffic manage- dia to call the command post for updates. ment team members during the event, (2) Calls to and from the TMC may be the best which channels they will be found on, and way to get information to the media. Wher- (3) what information should be shared. ever the media are directed to call, it is important that the person handling those calls Since many of the stakeholders comprising has the most up-to-date, accurate informa- the traffic management team may not be action available. For the media to trust this customed to interagency coordination, they source, they must believe that this is the best should understand the importance of sharing place to get information. Since most media information with their interagency partners. want to verify information on their own, Information not shared with others who are agencies should be prepared for the media to affected could lead to difficulties managing seek out other sources. The media may also traffic and cause mistrust among participat- acquire information via cell phones from ing stakeholders. event patrons driving to the planned special event, and the media will want to verify the Equipment information the public provides with the transportation agencies. If trust is lost be-

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tween the media and the agencies, the agen- The information collected through the moni- cies may lose control of the flow of informa- toring effort is valuable for post-event tion. activities. After the event, the information 3 gathered and/or observed can be used as part Traveler Information Dissemination of the program or event evaluation. The data collected provides: (1) input into esti- Traveler information will have two impor- mating the benefits of the traffic manage- tant audiences during the event: (1) those ment plan and operation and (2) input into who plan to attend and (2) those who want planning for future planned special events. OVERVIEW to avoid the delays the event may cause. In both cases, traveler information tools can be Performance Evaluation Data used to effectively disseminate information. Performance measures provide the basis for On the day-of-event, it must be clear who identifying the location and severity of prob- will update traveler information devices and lems (such as congestion and delay), and for how timely and accurate information will evaluating the effectiveness of the imple- get to the officials responsible for providing mented planned special event management the updates. These individuals must be part strategies. In essence, performance meas-

of the communication chain. Assigning a ures are used to measure how the transporta- ADVANCE PLANNING dedicated person to handle the updates tion system, and therefore the traffic man- would be ideal. Conflicting priorities could agement plan, performs with respect to the result in out-of-date information being dis- adopted goals and objectives, both for ongo- seminated if one person is asked to handle ing management and operations of the spe- too many tasks. cial event and the evaluation of future options.

Traffic Monitoring In managing travel for planned special events, a direct relationship exists between

DAY-OF-EVENT ACTIVITIES Agencies responsible for managing planned the performance measures selected and the special events require numerous types of data needed in the performance measure- information on the current conditions of the ment process. The data and information system to support delivery of effective ser- used in decision-making must be of high vice for the planned special event. This re- quality because the remedies have to be per- quired information varies widely depending formed immediately. They must originate on: (1) the service being provided, (2) how from reliable, consistent sources and meet the needs of the decision makers. Moreover,

often it needs to be collected, and (3) how POST-EVENT ACTIVITIES accurate it needs to be. the decision makers must have confidence in the information, or it will not be used. In a traffic management system, the traffic monitoring component, or surveillance POST-EVENT component, is the process in which data is collected in the field. This data is used to ACTIVITIES supply information about conditions in the EVENT PROFILE field to other system components including Post-event activities range from informal personnel located in the field on the day-of- debriefings between agencies comprising the event. traffic management team to the development

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of a detailed evaluation report. Qualitative There are two areas of effectiveness that evaluation techniques include individual de- should be measured, internal and external. briefings of traffic management team mem- Table 3-40 indicates examples of internal bers, patron surveys, and public surveys. measures. Table 3-41 presents a list of ex- Quantitative evaluation techniques include ternal measures. performing an operational cost analysis and analyzing performance evaluation data col- Table 3-40 lected during the traffic monitoring process. Internal Measures of Effectiveness Evaluation results, identifying needs and MEASURE successes, represent valuable input toward • Number of messages displayed on changeable planning for future planned special events message signs • Number of messages broadcast on highway and creates an iterative process. advisory radio • Number of traffic incidents handled Evaluation Framework • Number of messages transmitted between stakeholders The first steps in the evaluation of the traffic • Number of traffic signal timing changes management plan implemented for the • Number of times a ramp(s) was closed and time/duration of closure(s) planned special event take place during the event operations planning phase. Knowing Table 3-41 ahead of time that a post-event evaluation External Measures of Effectiveness will occur allows participants to make provi- MEASURE sions for the review. In particular, this • Volume of traffic on major routes means collecting data during the event, • Volume of traffic on alternate routes which can be used as part of the review • Volume of traffic entering and exiting the site process. At a minimum, this would include and parking areas data indicating how the system performed • Hours of delay and a log of what took place during the • Number of event patrons and participants utilizing transit to and from the event event. • Travel times • Modal split Measures of Effectiveness • Average vehicle occupancy

Measures of effectiveness represent quanti- Application to Future Events tative measures that give some insight into how effectively a unit is performing. MOEs Whether the event is a one-time only hap- are measures of activity that, while not re- pening or an annual occurrence, what has flecting performance directly, show work- been learned through the evaluation can con- load and trends. To evaluate how well the tribute toward proactively improving travel traffic management plan worked, some form management for all planned special events of measurement is necessary. In addition to occurring in a region. telling stakeholders how effective their plan was, the measurements provide transporta- To be beneficial for future planned special tion professionals the means to demonstrate events, the results of the evaluation should to others, including the media and elected be documented and made accessible. In the officials, how well the plan may have case of a one-time only event, the evaluation worked. may show both general and specific insights, which can be used for other future planned

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special events. These could include areas planned special event. It is largely for their such as traveler information, interagency benefit the traffic management plan was cre- communications, and the planning process ated in the first place, and they are the ones 3 itself. likely to suffer the greatest consequences if the plan does not work. Therefore, the For recurring events, a file providing the viewpoint of event patrons is needed if a cumulative benefit of lessons learned will credible evaluation of the plan is to be done. help sharpen the traffic management plan developed for each new occurrence. It is Table 3-42 OVERVIEW also important to remember that with recur- Elements of a Stakeholder Debriefing ring events, slight changes in circumstances ELEMENT will require modifications to the plan. • Introductions of individuals and the roles they played (if not obvious) • Explanation that the debriefing is not designed Participant Evaluation to find blame for anything which may have gone wrong, but to identify areas of improve- Participant evaluation includes: (1) stake- ment for future planned special events holder debriefing, (2) patron survey, and (3) • Distribution of a chronology of the special public survey. event, preferably one which melds individual agencies’ own chronologies ADVANCE PLANNING • Review of the timeline of events Stakeholder Debriefing • Discussion of other areas of concern • Next steps to incorporate lessons learned At the conclusion of the planned special event, a debriefing session should be held. Sample questions for possible inclusion in a The stakeholder debriefing is an opportunity patron survey include: to bring together those involved and impacted by the planned special event. In it, • Were you aware of any special travel these individuals, and the groups they repre- information before the event? sent, can compare what the plan called for • Did you find information provided en- DAY-OF-EVENT ACTIVITIES and what actually took place. They can also route to the event (e.g., via signs, radio) examine areas the plan may not have ad- helpful? dressed but turned out to be issues in hind- • Did you experience any unexpected sight. All of those who were involved in problems approaching the venue? creating the traffic management plan, as • Do you have any suggestions or other well as key people who played a role during comments you wish to offer? the event itself, should be present for this

session. This includes stakeholders forming POST-EVENT ACTIVITIES Public Survey the event planning team and traffic management team. Table 3-42 lists elements of The public survey takes in a wider audience a stakeholder debriefing. than the patrons. This includes those who may have been impacted by the planned Patron Survey special event even though they did not attend the event. Since this is a larger and Although the goal is to keep traffic moving more diverse group of stakeholders, it may EVENT PROFILE on all of the transportation facilities, the pa- be more difficult to identify and survey trons are the ultimate customers of everyone them. involved in the traffic management of the

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Sample questions for possible inclusion in The purpose of the post-event debriefing is public survey include: not to just identify what could have been done better but to note what was successful. • Were you aware of the event before it The successes and lessons learned must be took place? chronicled so that those stakeholders who • If you were aware of the event before- are responsible for planning the next hand, would you have altered your plans planned special event will be able to tap the based on that information? wisdom of those who have done this before. • Did you change your plans or schedule as a result of the event? Post-Event Report • How would you evaluate the effectiveness of traffic management efforts for Table 3-44 presents an outline of a typical this event (poor, good, excellent)? post-event report. • Do you have any additional comments or suggestions based on your experience? Table 3-44 Post-Event Debriefing Outline of Post-Event Report REPORT ORGANIZATION • Outline report topics. A post-event debriefing should be held to • Document products of the event operations review what took place. The purpose of the planning phase. debriefing is to: (1) examine what took • Identify key successes. place, (2) compare it to what was expected • Present lessons learned. to happen, (3) identify what worked well, • Identify improvements for future events. and (4) determine areas of improvement for • Configure to serve as a working document for future special event planning. future planned special events. • Review chronologically what took place. • Summarize both positive and negative aspects. It is important to remember that the post- • Include all stakeholder viewpoints. event debriefing is not designed to be a time OPERATIONAL COST ANALYSIS to blame individuals or agencies for what • Examine operational costs. took place during the event. • Include staffing, overtime, and equipment for each involved agency. • Identify potential cost savings. Table 3-43 lists the broad topic areas that o Reallocation of personnel should be covered in the post-event debrief- o Division of responsibilities ing. o Use of technology • Include total staffing, overtime, and equip- Table 3-43 ment for all agencies. Post-Event Debriefing Meeting QUALITATIVE EVALUATION • Include survey of stakeholders. Agenda Topics • Include survey of event patrons. TOPIC AREA • Include survey of public. • Purpose of meeting QUANTITATIVE EVALUATION • The planning process • Provide numerical picture of the event. • Interagency communications o Costs • Traffic management in and around the venue o Hours saved • Traffic management outside of the event site o Traffic incidents handled • Traveler information, including media o Passengers carried on various modes. • Lessons learned • Present cost/benefit analysis.

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Since the process of handling the planned special event follows a timeline, the easiest way to organize the report may involve re- 3 viewing what took place chronologically. An alternative method of organizing the report concerns dividing it by subject areas such as traffic management, traveler information, command center operation, and communications. OVERVIEW

The report should summarize both positive and negative aspects. Remember, this is not designed to be a public relations piece to promote the handling of the planned special event but a working document to assist future special event planning.

ADVANCE PLANNING DAY-OF-EVENT ACTIVITIES POST-EVENT ACTIVITIES EVENT PROFILE

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CHAPTER FOUR REGIONAL AND LOCAL 4 COORDINATION OVERVIEW ADVANCE PLANNING

Figure 4-1 Closed-Circuit Television Camera on a Stadium Access Road DAY-OF-EVENT ACTIVITIES

PURPOSE efficiently and effectively complete event operations planning, implementation activi-

ties, day-of-event activities, and post-event This chapter covers the first of five phases activities for individual, future planned spe- of managing travel for planned special cial events. In turn, post-event activities events. Program planning for planned spe- (e.g., participant evaluation, stakeholder de- cial events involves activities unrelated to a POST-EVENT ACTIVITIES briefing meeting, evaluation report) per- specific event. This level of advance plan- formed for specific special events provide ning involves the participation and coordina- valuable input for on-going program plan- tion of stakeholders having an oversight role ning activities in a region or jurisdiction. in addition to agencies directly responsible for event operations planning. Products of This chapter presents key elements of pro- program planning include establishing new gram planning on a regional level and local institutional frameworks, policies, and legis- EVENT PROFILE level that facilitate improved planning and lation to monitor, regulate, and evaluate fu- management of travel for future planned ture planned special events. Stakeholders special events affecting multiple jurisdic- utilize program planning initiatives to more

4-1 tions or a single municipality, respectively. planned special events will extend be- It also describes strategic infrastructure yond the jurisdiction of a single agency. support considerations for improved traffic In this section, the key elements of re- management and dissemination of traveler gional planned special events programs information. The occurrence of major or will be identified, the scope and benefits recurring planned special events often serve of such programs will be noted, and as a platform for stakeholders to assess new stakeholder organization will be ex- services and infrastructure proposed for a plained. Also covered in this section is single or series of special events in the con- how such programs are developed, and text of supporting: (1) all special planned just as important, sustained. Services special events in a region and (2) day-to-day and initiatives that go into regional transportation system operations. planned special events management will be explained and the institutional issues, INTRODUCTION likely to be encountered, will be noted. Government agency permitting and • regulation framework. The permitting This chapter presents program planning ac- process can identify many of the basic tivities conducted for future planned special elements of the special event such as its events. These activities include the devel- timing, location and expected number of opment, by oversight team stakeholders, of event patrons. Through a carefully con- policies, programs, and regulations that col- structed permitting process, transporta- lectively comprise a special event program tion and public safety agencies can for managing all planned special events in a achieve a better sense of what resources region. Program planning for regional these stakeholders need to handle the planned special events requires an institu- event. This section will provide an tional framework for generating and manag- overview of the permit process, what the ing successful programs and initiatives. process includes, the components of a Some key topics and initiatives addressed in detailed application, and the associated this section include: requirements including recovery of pub-

lic stakeholder expenses. • Role of oversight stakeholders, including Infrastructure support. Technology can (1) how their involvement is coordi- • be used for a variety of purposes, includ- nated, (2) what are the programs and ini- ing communication among stakeholders tiatives that facilitate the planning and and to the public in addition to transpor- operation of planned special events, and tation system management and monitor- (3) how special events planning is inte- ing during events. Paying for these ac- grated with other ongoing transportation tivities is covered in the subsection on programs. funding sources. • Support necessary from a policy per-

spective. On a policy level, interagency

agreements permit those involved to work together. At times, legislation may REGIONAL LEVEL be needed to allow agencies to go beyond their current activities into areas Institutional Framework not currently permitted legally. • Regional planned special events pro- Stakeholder Roles and Coordination grams. In many instances, the impact of

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Program planning for regional planned spe- metropolitan planning organizations (MPOs) cial events concerns proactively improving that have an oversight role. 4 travel management for all planned special events in a region. This necessitates the involvement and coordination of stakeholders representing multiple jurisdictions. At the program planning level, the stakeholders include:

OVERVIEW • Those agencies directly involved in planning and day-of-event travel management for special events. These include law enforcement agencies, transportation departments, transit providers, and regional organizations. • Others who typically are not involved in transportation management, such as the event organizers and elected officials ADVANCE PLANNING serving an oversight role. Figure 4-2 • Typically, mid-to-upper level agency Major Elements of a Framework for administrators that collectively form the Regional Collaboration and Coordination(1) planned special events oversight team. As these questions are answered, a widening The FHWA publication, Regional Transpor- circle of stakeholders will be identified. As tation Operations Collaboration and Coor- they are listed, their roles and responsibili- dination, addresses how regional coordina- ties will be noted. Since not all stakeholders tion can take place during incidents and will have the same level of participation,

(1) DAY-OF-EVENT ACTIVITIES emergencies. While unplanned events are their involvement in the planning process not specifically targeted in the publication, can also be assessed. the same basic elements can be applied to planned special events. Figure 4-2 indicates Step Two: Identify a Lead Agency. While a five major elements of a framework for re- collaborative process is ideal in dealing with gional collaboration and coordination. The a planned special event, there is still a need balance of this section notes how each of the to identify a lead agency that will have over- elements fits into regional coordination for all responsibility for the group’s work. In planned special events. The five-step proc- many instances, no one agency will have a POST-EVENT ACTIVITIES ess described below is not instituted when clear leadership role for program planning. an incident or emergency takes place, but is A possible way to pick a leader without of- a way of doing business that facilitates re- fending other lead agencies is to use co- gional coordination when an event occurs. chairs representing different disciplines or geographic areas. Leadership can also rotate Step One: Identify the Stakeholders. Which to assure that all key players have an oppor- agencies and organizations will have a role tunity for a leadership role. EVENT PROFILE in managing events? Which agencies have an oversight role? Depending on the loca- While the lead agency oversees the entire tion, there may be multiple states or several process, it can delegate elements of the plan

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to others with expertise in particular areas. for that event, ongoing programs and initia- For example, public safety issues might be tives can be used to address general special assigned to a law enforcement agency or a event needs on a continual basis. This por- sub-committee of public safety agencies. tion can be described as the processes of co- These stakeholders would help make up the ordination. Processes are what the stake- structure in which regional coordination holders have agreed to that will provide the takes place. basis for how they will work together. An institutional framework can be created either Step Three: Maintain Communication. before an event takes place or based on the Throughout the planning process, communi- planning for a specific special event. This cation among stakeholders is critical. Meet- framework can be used on a continuing ba- ings of the stakeholders represent a venue sis to allow easier coordination among agen- where stakeholders can share what they see cies for future events and eliminates the as their role in the planning process. As need to re-establish working relationships, they meet, roles and responsibilities are ad- which have already been created. justed as agencies understand what other agencies will be doing and how they can as- A state transportation agency or an MPO sist each other. can develop a program that identifies what is needed for the effective management of spe- Step Four: Form Subcommittees. Depend- cial events. These overarching needs may ing upon the complexity of the event, sub- include funding mechanisms, means of early committees may be formed to focus on spe- identification of special events needing re- cific planning elements. For example, secu- gional planning, and a template to bring rity may only directly involve law enforce- stakeholders together to begin the planning ment agencies at the local, state and federal process. levels. These agencies can meet separately to plan their segment of the overall plan. Funding is an important consideration since Representatives of these subcommittees can it is needed to pay for the time of staff as- share their progress, along with their needs, signed to planning and coordination efforts. with other stakeholders at higher level plan- Without an identified source of funding, the ning meetings. participation of agencies is subject to the availability of financing from the home Step Five: Continue Communication. agencies of those asked to take a role. At Throughout the planning process, the lead times of budgetary restrictions, agencies agency takes a big picture view and serves may not choose to make staff members as a coordinator. Its responsibility is to see available for planning and coordination, or that communication and coordination are they may limit the time or number of staff taking place among the stakeholders and, if members who are needed to formulate a necessary, to facilitate that coordination plan. This could be especially true for agen- where it is not taking place. cies that are outside of the jurisdiction where the event is being held. However, funding Programs and Initiatives could be included within the budget of an MPO or a state DOT. While planned special events may be temporary, and the planning for those events may While all stakeholders may be aware of re- bring together a group of stakeholders only curring special events, such as sporting

4-4 events and annual fairs, or major events such one more reason to attend. Also, meeting as the Olympic Games or the Super Bowl, fatigue is limited by not having stakeholders 4 less prominent events may not gain notice attend separate meetings focused only on until just before the event. Having a pro- special events. gram in place to identify special events requiring planning well in advance is benefi- For some smaller special events, these regu- cial. This initiative could take several larly scheduled meetings may be sufficient forms. One example is regularly scheduled to alert affected stakeholders and to do a meetings where upcoming events are noted minimal amount of planning. For larger OVERVIEW and discussed among regional agencies. special events, requiring more detailed Identification of potential problems would preparation and coordination, separate meet- alert all involved to the event and allow ings should be considered. This will allow agencies to decide if multi-agency planning specialists to participate where necessary needs to take place. Such meetings could be and will allow the original meeting to not held specifically for this purpose, or they lose its focus on a wider agenda. The regu- could be incorporated as part of gatherings larly scheduled meetings can also be a place held for other purposes. where updates of the more detailed plan are presented. The process of regional coordination and ADVANCE PLANNING collaboration leads to the products of coor- Policy Support dination. These products include a regional concept of operations, baseline performance Interagency Agreements data, current performance information, and operating plans and procedures that inform In most instances, transportation and law regional entities (public and private sector) enforcement agencies have no prohibitions about how the regional transportation sys- from coordinating efforts with other agen- tem must operate over time (including cies, especially for events expected to have planned improvements). an impact on that agency. However, there DAY-OF-EVENT ACTIVITIES are instances where interagency agreements Integration with Other Transportation Pro- are helpful, or even necessary, for multi- grams agency cooperation.

Planned special events are just one example While interagency agreements will vary of transportation activities requiring multi- based on state law and the culture of the agency coordination. Special events plan- agencies, there are some common issues ning could be held in conjunction with other they can address. POST-EVENT ACTIVITIES multi-agency efforts such as construction coordination, incident management plan- One issue would be areas of responsibility. ning, and wireless communications coordi- State police, state DOT and toll agencies nation. These activities bring together most, could each be given broad areas of responsi- if not all, of the key regional transportation bility through an interagency agreement. By and public safety agencies and, in turn, al- spelling out these responsibilities ahead of low them to discuss special events while time, turf issues can be minimized and the EVENT PROFILE they are already together. By expanding the same ground does not have to be covered agenda of such meetings to include initial each time the agencies gather to plan a spe- special events planning, agencies are given cial event.

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counsel and executive management Funding issues can also be addressed in in- needs to be involved. Since these indi- teragency agreements. If it is known ahead viduals typically would not be involved of time who will be paying for various as- in special events planning where these pects of the effort, confusion will be reduced needs are first identified, it is also impor- and participation encouraged. In some in- tant that procedures be in place to begin stances, the agreements could specify that a the legislative process. non-public agency, such as the event organ- • Most agencies already have procedures izer, is responsible for paying for certain in place to bring legislative needs to the parts of the planning and coordination effort. attention of lawmakers, but it is important that those who first identify these Legislation needs know what those procedures are and how to get the process started. Legislation provides the legal authority for a government agency to take certain actions. Regional Planned Special Events In many instances, activities involved in Program special events planning have already been addressed by legislation. Examples include Key Elements law enforcement responsibilities for the state patrol on an interstate highway leading to A regional planned special events program the event venue or the state department of is an ongoing process designed to address a transportation being responsible for opera- region’s needs for managing special events. tion of a transportation management center It is not a program put in place to address a (TMC) in the area of the event. However, specific special event, although a specific there may be special circumstances not ad- event may trigger the formation of such a dressed in current legislation. program. Examples where special legislation may be needed could include permitting agencies to The program involves those agencies that operate outside their current jurisdiction or have a role in managing planned special taking on activities they have not been given events as well as those agencies that may be specific authority to undertake. in an oversight or funding role.

Some important considerations in establish- The program will put in place the frame- ing legislation during the program planning work for handling regional planned special phase include: events including:

A template for groups created to deal • Since creating and passing legislation is • with specific special events. normally a lengthy process, it is important that these needs are identified early • Identification of funding to support such so the process can be completed before planning. the new law is needed. • Identification of infrastructure improve- • In many instances, a request for legisla- ment needs in the region to better man- tion has to go through many steps within age special events. an agency before it is even presented to lawmakers. At a minimum, agency All of these elements used to implement a regional special events program can be con-

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sidered the resources. These resources will given the lead time needed to make the vary depending on what is available in the improvements. 4 region and to the participants. • Legislative and policy needs will also be identified through this program. As with Scope and Benefits infrastructure improvements, this will allow these needs to be addressed prior to The scope of such a program should focus their being required. on planned special events of regional sig- • An intangible benefit accruing from a nificance. If an event can be wholly man- regional planned special events program OVERVIEW aged within and by a single agency or juris- is the development of relationships that diction (e.g., through a planned special event will extend to other operational areas. permit program), then there is no need for • Better communication and cooperation is the regional plan to come into effect. likely and will help in areas such as incident management and construction coor- However, those events that reach beyond a dination. single agency or jurisdiction would be addressed by this program. Regional events It is important that performance measures be may vary in size. For example, a parade planned: (1) to note the performance bene- through two towns would have limited re- fits of the regional planned special events ADVANCE PLANNING gional impact and might require only mini- program and (2) to demonstrate the differ- mal coordination, but a mega-event, such as ences it has made to mobility and coordina- the Olympics, would involve multiple re- tion within the region. Since the goals and gions and a large number of agencies. objectives of the program are part of a collaborative process, what is measured should Key benefits of a regional planned special also be agreed to by the participants. event program include: Stakeholder Organization • The primary benefit to the creation and DAY-OF-EVENT ACTIVITIES maintenance of such a program is that it The stakeholders in a regional program such establishes a mechanism for agencies to as this will vary from region to region. Ta- work together before they are forced to ble 4-1 lists organizations that should be work together as the result of an impend- considered part of the program. Leadership ing event. of the program will vary by region, but the • By early identification of funding oppor- agencies most likely to take the lead include tunities, agencies can address monetary state DOTs, state law enforcement agencies, needs prior to the event. Therefore, and MPOs. POST-EVENT ACTIVITIES when an event is proposed, stakeholders can focus on planning and not be con- Program Development and Sustainment cerned with funding the planning. • Another benefit is that by early identifi- Perhaps the hardest step in the development cation of infrastructure improvements, of the program is the first step, creation of there is a higher likelihood that the im- the program. A champion of the idea, who

provements can be put in place before is willing to go through the difficulties in EVENT PROFILE they are needed. Noting what improve- establishing the program, is very helpful. ments are needed just before the event This person can reach out to those people in may mean they will not be available leadership positions who will support the

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program and assign people within their or- ers informed of what is being done as well ganization to work on its creation. The as problems that may be encountered. What champion will also shepherd the program is needed is not someone who only sees the through the red tape, agency mazes, and ob- good, but someone who can make a realistic stacles any significant new idea is sure to assessment of where the challenges lie and face. how to overcome them.

Table 4-1 While what is described in this section in- Regional Program Stakeholder volves varying levels of involvement, a re- Organizations gion just starting to initiate program plan- STAKEHOLDER ORGANIZATIONS ning for regional planned special events • State Department of Transportation should not be intimidated by what may be • Metropolitan Planning Organization required before they take their first steps. • State police/patrol As a starting point, even before high-level • Toll agencies support is obtained or funding is identified, • Mass transit agencies first steps can be taken on an informal basis • Municipal governments and police depart- among operations level staff to share infor- ments mation and to use resources which are al- • County governments and police departments ready available, such as highway advisory • Owners of large venues (e.g., arenas, stadi- radio (HAR), changeable message signs ums, universities) (CMSs), and interagency communications channels. Often it is these first, informal steps that demonstrate the value of regional Ideally, agencies should assign people coordination and lead to more formal sup- within their organization who support the port. concept and who can speak on behalf of their agency when decisions need to be Services and Initiatives made. These people should have a strong commitment to the program and be willing The customers for this group are the event to attend meetings and take follow-up ac- planning team and traffic management team tions identified at these meetings. charged with making planned special events run smoothly from a transportation perspec- Potential funding agencies should be a part tive. The services they provide should be of the program from the start. They can designed to make special event operations provide guidance on where funding is avail- run well. While the regional planned special able and the steps that need to be taken to events program stakeholder group will iden- obtain it. By being involved at the begin- tify early action steps and other needs, it is ning, the representative from the funding important that they seek the input of opera- agency can guide the group in what they tions personnel as they define the services must do and help avoid situations where they will provide. early decisions have to be adjusted to meet needs that are later identified. The very creation of the group provides an important service: (1) a forum for informa- The sustainment of the program will be due, tion to be shared and (2) needs to be identi- in part, to the support of those who partici- fied. Other services the program will pro- pate. Open lines of communication should vide are those noted earlier: keep all stakeholders and interested observ-

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• Identification of funding sources. Many institutional issues can best be handled by those who participate in the regional • Funding of the program itself. 4 • Identification of needed infrastructure planned special events program. The rela- improvements. tionships established by committee members can be extremely helpful in overcoming en- By handling these issues, the program will countered problems. As personal relation- allow operations staff to focus on specific ships develop among the members, institu- plans and leave some of these other con- tional barriers become less significant and cerns to the group. easier to deal with. OVERVIEW

Institutional Issues A regional committee on planned special events should not see their task as a one- A regional planned special events program time effort. Even without a specific event will face some of the same institutional is- on the horizon, the group should work to sues faced by other multi-agency programs. maintain the relationships developed and To assure the success of the program, the adjust the planning process so that it remains following two institutional issues should be fresh. This could be encouraged through handled at the start of the process: regular meetings in which the group looks at upcoming special events that might require ADVANCE PLANNING • Control and leadership issues. regional coordination or by expanding the • Need for buy-in from participating agen- role of the group so they can address other cies. transportation management issues in- between special events. This could include The program needs to be flexible enough to areas such as roadway construction coordi- deal with changing conditions. The struc- nation and incident management planning. ture established may not always be the ideal Some regions have even used groups such as one for every event. Agencies should be this to provide better regional coordination comfortable dealing with the ambiguity that for non-events such as road weather man- DAY-OF-EVENT ACTIVITIES comes with new situations and be able to agement or recreational traffic management adjust to the situation presented. (e.g., reach the beach, etc.).

The flexibility also affects budgeting. While While many of the issues addressed in this expenditures need to be allocated, a reallo- section look at planning for special events cation will likely be needed at times to ad- on both a short-term and medium-term ba- dress new concerns and needs. sis, agencies also should consider long-term planning (10-20 years) on how they wish to POST-EVENT ACTIVITIES While a core group will participate in run- handle special events. This long-term planning the program, it may be necessary from ning can address areas such as: (1) major time to time to bring in new organizations. infrastructure improvements, (2) creation of The program should anticipate expansion so new organizations that may be needed, or that it does not become an issue and can eas- (3) long-term financial and legislative needs ily be integrated. While institutional issues to address these improvements. While op- among participating agencies may be a prob- erations level people can help identify these EVENT PROFILE lem at the start, there exists danger of the needs, the development of long-term plans program itself becoming an institution and also will require the involvement of planners presenting its own set of issues. and executive staff, along with legislators

4-9 and their staffs. An MPO can also be ex- applicable to measuring a program’s pro- pected to play a major role in meeting these gress regarding the advance planning and long-term needs since they will approve management of travel for planned special Federal funding and will be able to view events. these needs in the context of all transportation needs for the region. Table 4-2 lists pertinent assessment questions categorized by the five defined phases Relationship to FHWA Traffic of managing travel for planned special Incident Management events. This technical reference provides Self-Assessment Guide guidance on the topics identified in the assessment questions from the perspective of

planned special event planning, operations, The FHWA maintains a Traffic Incident and evaluation. Management (TIM) Self-Assessment Guide intended for use by state and regional TIM program managers to assess their achieve- LOCAL LEVEL ment of a successful multi-agency program to manage traffic incidents effectively and Overview of Planned Special Event (2) safely. Managers may also utilize the tool Permitting to evaluate gaps and needs in existing multi- agency regional and statewide efforts to The development of a formal planned spe- mitigate congestion and safety impacts cial event permit program marks a key pro- caused by traffic incidents. The TIM Self- gram planning initiative to facilitate stake- Assessment tool consists of a series of ques- holder coordination, compliance with com- tions designed to allow those with traffic munity needs and requirements, and effi- incident management responsibilities to rate cient event operations planning. Backed by their performance, by assigning a score guidelines and regulations specified in mu- ranging from 0 (no progress) to 4 (out- nicipal ordinances, the program outlines a standing efforts), in specific organizational defined planning framework and schedule and procedural categories. for event organizers and participating review agencies to follow. It represents an agree- Planned special events often represent a ma- ment between participating public agencies jor element of a traffic incident management (e.g., transportation, law enforcement, pub- or freeway management and operations pro- lic safety, etc.) to ensure, through planning gram. Such programs may spawn a commit- activities or review, that all planned special tee on planned special events for the purpose events meet a set of mutually agreed upon of managing all planned special events in requirements for day-of-event travel man- the program’s region. The TIM Self- agement. A municipal permit represents Assessment tool contains a TIM administra- approval, or agreement between a jurisdic- tive team assessment question on planned tion and event organizer, to operate a special events. Question 4.1.2.5 states: Does planned special event, and it includes provi- the assessed TIM program conduct planning sions outside of travel management. La- for “special events” including sporting rimer County, WY defines the purpose of a events/concerts/conventions, etc.? This tool planned special event permit as follows: also includes several assessment questions

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Table 4-2

Traffic Incident Management Program Assessment Questions Relative to 4 Managing Planned Special Events PHASE ASSESSMENT QUESTION Does your program:

• Have formal interagency agreements on operational and administrative procedures and policies? • Have multi-agency, multi-year strategic plans detailing specific programmatic activities to be accomplished with appropriate budget and personnel needs identified? OVERVIEW Program • Have field-level input into the strategic plans ensuring that the plans will be workable by Planning those responsible for their implementation? • Have formalized multi-agency teams to meet and discuss administrative policy issues? • Hold regular meetings of the administrative team? • Have multi-agency agreements on what measures will be tracked and used to measure program performance? • Have established criteria for what is a “major event” – event levels or codes? Does your program:

• Have agreed upon methods to collect and analyze/track performance measures? • Have established targets for performance?

• Have a pre-identified (approved) contact list of resources? ADVANCE PLANNING Event • Have response equipment pre-staged for timely response? Operations • Utilize traffic control procedures in compliance with the MUTCD? Planning • Have mutually understood equipment staging procedures? • Have quick clearance policies? • Have a pre-qualified list of available and contracted towing and recovery operators? • Use motorist assistance patrols? • Have specific policies and procedures for traffic management during the event? Implementa- Does your program: tion • Conduct training through simulation or “in-field” exercises? Activities • Train all responders in traffic control procedures? Does your program: DAY-OF-EVENT ACTIVITIES

• Utilize traffic control procedures for the end of the traffic queue? • Utilize the Incident Command System? Day-of-Event • Have a two-way interagency voice communications system allowing for direct Activities communications between responders? • Use Traffic Management Center(s)? • Have the ability to merge/integrate and interpret information from multiple sources? • Have a real-time motorist information system providing event-specific information? Does your program: POST-EVENT ACTIVITIES Post-Event • Conduct post-incident debriefings? Activities • Conduct periodic review of whether or not progress is being made to achieve performance targets?

The purpose of the special event permit is to welfare, and convenience of the traveling insure that any changes, restrictions, or ad- public and citizens of Larimer County. aptations, resulting from such an event are EVENT PROFILE managed in a safe, prudent, and legal man- Special event permits apply to a single juris- ner in order to protect the health, safety, diction, and numerous cities and counties, encompassing metropolitan, urban, and/or

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rural areas, across the Nation maintain a The balance of this section on permitting special event permit program. In contrast, a will describe special event application com- state DOT permit targets the satisfactory ponents, review processes, guidelines, and maintenance and protection of traffic on regulations specific to managing travel for a state highways necessitating partial or full planned special event. The section will in- closure due to a proposed street use event. clude numerous references to special event In most cases, state DOTs encourage event permitting in city and county jurisdictions. organizers to use county roads or local streets whenever possible. Permit Process

Some important considerations and applica- Initiation of the permit process for a specific tions of planned special event permitting planned special event begins with the sub- include: mission of a completed special event permit application by the event organizer. The • Permitting proves particularly effective permit application represents a formal pro- for less frequent continuous events, posal by the organizer to stage a planned street use events, and rural events occur- special event. In some cases, particularly ring at a temporary venue not having a those where the event organizer requests as- known spectator capacity. These events sistance from the jurisdiction in locating a place an emphasis on advance planning suitable venue location or street use event and public outreach to mitigate traffic route, the event organizer and pertinent pub- operations deficiencies and community lic stakeholders may interact prior to appli- impacts. cation submission to review the proposed • Jurisdictions may not require a permit event and permit process. for special events held at permanent venues, such as stadiums, arenas, and Table 4-3 lists public stakeholders that may amphitheaters. administer special event permit applications • Permitting allows jurisdictions the op- and issue permits. In small and medium- portunity to engage the event organizer sized locales, law enforcement, transporta- at the beginning of the event operations tion department, or city/town manager’s of- phase. fice commonly processes a special event ap- • Public stakeholders can size-up the event plication for review internally and by other operations characteristics of a proposed agencies in the jurisdiction. Some metro- event in order to schedule adequate per- politan jurisdictions have an office of special sonnel and equipment resources to ac- events that serves in a similar capacity. A commodate the event. Resources may local district partnership may assume a lead include traffic control, security, and role in the permit process for events pro- maintenance. posed in commercial areas. Jurisdictions • From the event organizer’s perspective, issue an event permit based either on: a special event permit application and associated regulations outlines a general • A single official, such as a police chief, approach toward successfully managing fire chief, director of public works, or travel for the event, facilitates coordina- elected official, rendering a final deci- tion with appropriate stakeholders, and sion based on reviewer(s) input. gauges resource requirements on the • A multi-agency application approval day-of-event. where each agency signs off on the

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permit when the event organizer meets effect a comprehensive permit application specific agency prerequisites. review, including stakeholder meetings and 4 public outreach, jurisdictions should man- Table 4-3 date permit application deadlines at least 60 Stakeholders Governing Permit Applications days prior to a large-scale planned special APPLICATION ADMINISTRATION event. A shorter deadline is warranted when • Local law enforcement jurisdictions, for example Wichita, KS (30 • Local transportation department day deadline), require event organizers to • Fire department arrange all details with individual involved OVERVIEW • City/town manager’s office • City/town clerk agencies prior to submitting a permit appli- • Community development department cation for approval. • Office of special events • Local district partnership The special event permit process serves to • Public works department scope, schedule, and direct event operations • Parks and recreation department planning activities for proposed events. • Bureau of licenses This reduces unnecessary delay in facilitat- • Office of finance ing stakeholder coordination, developing • Risk management office PERMIT APPROVAL planning deliverables (e.g., traffic manage- ADVANCE PLANNING • Police chief ment plan, etc.), reviewing mitigation strate- • Fire chief gies, and mobilizing personnel and equip- • Transportation department director ment resources required to stage a particular • Director of public works planned special event. Practitioners may • Multi-agency approval (e.g., public works, expand and contract the process in order to law enforcement, and city manager). best fit: (1) the area type and involved • City manager • Community development director stakeholders, (2) the special guidelines and • Street and sidewalk use coordinator of the regulations unique to a particular jurisdic- bureau of licenses tion, (3) the operations characteristics of a

• Local district partnership particular event, and (4) the purpose of a DAY-OF-EVENT ACTIVITIES • City/town council particular event, such as community events • County board of commissioners versus commercial, for-profit events involv- • Local planning commission ing event organizers from the private sector. Chapter 2 of this handbook, under a section Figure 4-3 presents a flowchart summarizing on “Impact Level,” summarizes example key event organizer and public agency ac- decision criteria and thresholds used to de- tions throughout the special event permit termine the need to initiate a special event process, from submitting a permit applica- permit process in addition to event permit POST-EVENT ACTIVITIES tion to conducting the proposed event. requirements. Agencies administering a permit application may assign a staff person, representing the As indicated in Figure 4-3, jurisdictions jurisdiction’s event coordinator, who will should conduct a preliminary review of the assist the event organizer throughout the proposed special event date and time in ad- permit process. Table 4-4 indicates permit dition to, if a street use event, the proposed application submission deadlines for several parade or race route. Table 4-5 shows select EVENT PROFILE cities and counties. Application deadlines jurisdiction regulations prohibiting the issu- significantly influence the scope of activities ance of a permit for a special event occur- performed during the permit process. To ring at a certain time and/or location. Aside

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Revise Submit Permit Application

Review Event Date and Time

Approved

Street Review Yes Use Event Route Event? Approved Gain Inter-jurisdictional Notify Bus No Approval Transit Service Distribute Application to Necessary Agencies

Conduct Meeting Review of Application Involved Agencies Material

Conduct Meeting with Event Organizer

Additional Yes Revise Requirements? Application

No Deliver Public Comments Presentation

Appeal Denied Issue Permit Decision

Determine Staffing Confirm Personnel Secure and Equipment Resources Parking Areas

Notify KEY: Emergency Services Event Organizer Action Inform Affected Property Owners Public Agency Action Disseminate Public Advertisement

Conduct Pre-Event Prepare Prepare Walk-Through Implementation Plan Operations Detail

Conduct Event

Figure 4-3 Planned Special Event Permit Process

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Table 4-4 should occur prior to distributing a street use 4 Planned Special Event Permit Application event application to all necessary agencies Submission Deadline with preliminary approval rendered at least SUBMISSION 30 days prior to the event. To expedite this LOCATION DEADLINE step, San Luis Obispo, CA, for example, PRIOR TO EVENT maintains two standard parade routes. 5 days for parade; Minneapolis, MN 60 days for race Las Vegas, NV 14 days The special event permit application review OVERVIEW Stamford, CT 14 days phase involves all agencies within a jurisdic- 20 days minimum; Fort Collins, CO tion having authority on an entity impacted 1 year maximum by the proposed event, and certain agencies Jackson, CA 20 days may require event organizers to meet pre- Clarksville, TN 30 days Coos Bay, OR 30 days requisites and/or obtain supplemental per- Hot Springs, AR 30 days mits. Transportation approvals include Lancaster, PA 30 days street occupancy permits, parking variances, West Des Moines, IA 30 days and requests for traffic control services. Wichita, KS 30 days City and County of 40 days minimum; Some key stakeholder considerations during ADVANCE PLANNING Honolulu, HI 9 months maximum Bowling Green, KY 45 days the permit application review phase include: 45 days minimum; Reno, NV 1 year maximum • Involved agencies may conduct a meet- 40 days; Larimer County, WY ing to coordinate their review and event 50 days for road closure planning considerations. Louisville, KY 60 days City and County of • For large-scale events, jurisdictions and 60 days Denver, CO associated review agencies may meet Kane County, IL 60 days with the event organizer to discuss addi-

Menlo Park, CA 60 days tional requirements and contingencies. DAY-OF-EVENT ACTIVITIES Miami Beach, FL 60 days • Agencies should complete review of a Milwaukee, WI 60 days special event permit application within Ypsilanti, MI 60 days Montgomery County, about two weeks of receipt to allow the 2 months MD event organizer sufficient time to revise Virginia Beach, VA 60-90 days the application (e.g., site plan, parking Redmond, WA 90 days plan, traffic control plan, etc.). Evanston, IL 90 days • To ensure full mitigation of potential Aurora, IL 120 days local traffic and community impacts, ju- POST-EVENT ACTIVITIES risdictions, such as Miami Beach, FL from regulations designed to avoid conflicts and San Diego, CA (see Appendix A) with commuter traffic, the possibility of for example, may require event organiz- staging multiple events concurrently may ers to present the proposed special event cause significant travel impacts and logistics management plan to neighborhood and problems. Law enforcement, traffic engi- business associations and the general neering, and fire department agencies may public for review and recommendation. EVENT PROFILE conduct a preliminary review of a proposed • The event organizer should deliver the event route and grant approval contingent on public presentation early in the permit required traffic control measures. This step process, at least 30 days prior to the

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Table 4-5 Planned Special Event Permit Restrictions EVENT LOCATION RESTRICTION CATEGORY City and Street use • No parade or activity permitted between the hours of 5:30 a.m. to 8:30 a.m. County of event and 3:30 p.m. and 6:00 p.m., Monday through Friday, except holidays. Honolulu, HI • In the Central Business District, a parade or activity permitted only on weekends and holidays or after 6:00 p.m. on weekdays. • No parade or activity permitted to use or travel the entire distance on Hotel Street, from Richards Street to North King Street. • Only one parade or activity permitted on any given day on any street. Louisville, All events • Permit holders shall open the event venue to patrons at least one hour KY prior to the event. Miami All events • No special event permitted if it interferes with a previously scheduled Beach, FL activity or repair work scheduled for a site. • No event permitted if it interferes with any other scheduled event. The City Manager may take into account simultaneously occurring events in the region or other factors that would impact the city’s capability to host an event before approving an event. • No permit issued for more than four consecutive days or five non-consecutive days during the course of a calendar year. Minneapolis, Street use • No permit granted for a parade/race to be conducted within the downtown MN event area between the hours of 7:00 a.m. and 9:00 a.m. or 4:00 p.m. and 6:00 p.m. on any day which is not Saturday, Sunday, or a legal holiday. • No permit granted for bicycle racing, foot racing, race walking, wheelchair racing, rollerblading, marathons, and jogging events unless the activity is to take place between the hours of 6:00 a.m. and 3:00 p.m. on Saturday, Sunday, or legal holiday.

event, so public comments can be incor- Table 4-6 provides a snapshot of select ju- porated into application revisions. risdictions and criteria referenced by officials when rendering a final decision on a Jurisdictions typically issue a special event special event permit application. Due to the permit approximately 7 to 15 days prior to changing dynamics of planned special event the event. The lead time allows the event operations, jurisdictions, particularly in met- organizer and other stakeholders to carry out ropolitan areas, may issue a special event necessary tasks under the implementation permit only days in advance of the event activities phase. These tasks include deter- date. mining resource requirements and preparing an operations plan. Certain jurisdictions Table 4-7 presents a list of common event may handle, by regulation, day-of-event organizer tasks performed during the special traffic control, while other jurisdictions des- event permit process coupled with example ignate partial or all responsibility to the deadlines. A common prerequisite to ob- event organizer. Stakeholders representing taining a local jurisdiction event permit in- the event traffic management team should volves the event organizer securing permits consider conducting a pre-event walk- from all jurisdictions controlling roadways through, done a few days before the event to slated for temporary full/partial closure. permit modifications, to review the final site This represents a program planning initiative plan and traffic management plan. for managing all planned special events in a

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Table 4-6 Planned Special Event Permit Application Decision Criteria 4 EVENT LOCATION APPROVAL CRITERIA CATEGORY Anaheim, CA Street use • Time of the proposed parade. event • Place of the proposed parade. • Manner in which the proposed parade is to be held. • Other proper uses of the streets such as construction/maintenance or pedestrian traffic; construction/maintenance on the streets involved in the

proposed parade route. OVERVIEW Menlo Park, All special • Day(s) of the week; time of day; number of days. CA events • Venue distance from nearest legal residential use. • Number of people involved. • History of complaints. Minneapolis, Street use • Conduct of the parade/race does not substantially interrupt the safe and MN event orderly movement of other traffic contiguous to its route or will interfere with street maintenance or other legally permitted events. • Concentration of persons, animals, and vehicles at assembly points of the parade/race will not unduly interfere with proper fire and police protection of, or ambulance service to, areas contiguous to such assembly

areas. ADVANCE PLANNING • Conduct of such parade/race will not interfere with the movement of firefighting equipment en-route to a fire. • Parade/race is scheduled to move from its point of origin and to its point of termination expeditiously and without unreasonable delays en-route. Redmond, All special • Event does not disrupt traffic beyond a practical solution. WA events • Event does not interfere with access to fire stations and fire hydrants. • Event does not cause undue hardship to surrounding businesses and residents. • Event does not require the diversion of so many public employees that service is denied to other local residents.

Reno, NV All special • Event will not conflict with established on-going events. DAY-OF-EVENT ACTIVITIES events • Event will not create a substantial interruption of public transportation or other traffic; conflict with development in the right-of-way; close major streets during peak commuter hours. • Event will not cause a diversion of such a great number of police employees that police protection of the remainder of the city is in jeopardy. • Event will not create undue interference with emergency vehicles. • Availability of sufficient traffic controllers, crowd monitors, safety

equipment, or insurance coverage. POST-EVENT ACTIVITIES West Des All special • Route of the event. Moines, IA events • Date and time of event. • Maximum length of the event • Impact on residential and commercial neighbors. • Limitations on public use of area requested for event. • Number of events previously scheduled in the city on the same date. • Amount of city personnel necessary to regulate and monitor the event.

• Interference with peak transportation periods, movement of the transit EVENT PROFILE vehicles, movement of authorized emergency vehicles, and schedules of various construction projects. • Participant provisions including parking and dispersal routes.

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Table 4-7 Event Organizer Special Requirements TASK DEADLINE SPECIFICATIONS Gain inter- • 30 days before • Secure appropriate approval if temporarily closing roadways under jurisdictional event.1 the control of another jurisdiction. approval Notify transit • 1 month before event.2 • Communicate street closure specifics for bus re-routing. service Deliver public • Present special event management plan to appropriate neighbor- presentation • 30 days before event.1 hood associations or local planning board for review and recommendation. Confirm • Obtain written confirmation from stakeholders that sufficient traffic personnel management team personnel resources will be available on the day- resources of-event. • 21 days before event.3 • Use private staff to patrol private parking lots (not responsibility of on-duty law enforcement officers). • Off-duty law enforcement officers must be hired to provide VIP/dignitary escorts and to staff traffic control posts. Secure parking • Obtain written confirmation to use private parking lots (schools, -- areas churches, businesses). Notify emer- • Inform fire departments and emergency medical service of the exact • 14 days before event.3 gency services location, date, and time of planned road closures. Inform affected • 30 days before event.4 • Distribute an approved road closure notice to all property owners property owners • 14 days before event.5 adjacent to a planned road closure. • 10 days before event (14 • Notify property owners, residents, and businesses within 300 feet of days for review).3 the event venue. • Minimum 2 days before • Distribute parking passes and/or escort passes issued by governing event and 7 days maxi- jurisdiction. mum.6 Disseminate • Publicize the special event through the media, including newspa- public • 15 days before event.2 pers, radio and/or television stations. advertisement • 7 days before event.3 • Identify the event date and time, contact information, any traffic • 2 days before event.7 and parking restrictions, and a map of the street use event route. • Require review of announcement by public stakeholders. Prepare • Summarize traffic management plan specifics. implementation • 7 days before event.3 plan • Require plan for review by public stakeholders. Prepare • Indicate traffic management team personnel assignments and day- operations detail of-event operations activities. • Complete before event. • Specify radio or cellular interface between agencies comprising the traffic management team. Hire on-site • Hire a public employee as an overall on-site coordinator, having coordinator decision-making authority, whose responsibility will be to ensure -- that all services are provided, the event runs smoothly, and all governing regulations and ordinances are complied with. Day-of-event • Install temporary signs and traffic control devices. activities -- • Maintain an approved copy of the permit application during the entire special event. Post-event • Remove temporary signs and traffic control devices. • 2 hours after event activities • File post-event report. close.8 • Participate in post-event debriefing with public agencies, affected • 30 days after event for citizens, and other involved stakeholders to address issues that report.9 arose during the event. Notes: 1 Miami Beach, FL mandate. 2 Louisville, KY mandate. 3 Larimer County, WY mandate. 4 San Luis Obispo, CA mandate 5 Reno, NV and San Diego, CA mandate. 6 Minneapolis, MN mandate. 7 Pitken County, CO mandate. 8 Larimer County, WY and Kane County, IL mandate. 9 U.S. Bureau of Land Management mandate.

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region. Appendix A contains Washington Table 4-8 summarizes the various items that 4 State DOT guidelines for street use events appear, in a questionnaire format, on a spe- conducted on state highways.(3) Key event cial event permit application. The applica- organizer actions typically performed upon tion serves to communicate event operations receipt of an approved special event permit characteristics to a jurisdiction, thus permit- include: ting it to impose appropriate impact mitigation requirements and/or advise the event

• Notifying emergency service agencies of organizer to change event operation parame- OVERVIEW temporary road closures and access re- ters. Key items include the event purpose strictions. that may signal the need to develop contin- • Informing property owners and resi- gency plans in response to possible security dents, located in the immediate vicinity threats or demonstrations. Information re- of the event venue, of traffic and parking garding event history and expected atten- restrictions. dance assists in achieving a more predictable • Disseminating travel and parking infor- event travel forecast. The application mation to community residents, repre- should prompt the event organizer to indi- senting potential event patrons, via me- cate travel demand management initiatives, dia advertisements. including use of carpools and other modes ADVANCE PLANNING of travel. Appendix A contains a sample Application Components special event permit application from Vir- ginia Beach, VA.

Table 4-8 Planned Special Event Permit Application Components APPLICATION SPECIFICATIONS COMPONENT Event sponsor/ • Organization, corporation, community group, etc. sponsoring event in addition to DAY-OF-EVENT ACTIVITIES organizer professional firm/agency contracted to produce the event. Primary contact • Decision-making authority and continuously available through the day-of-event activi- and coordinator ties phase. • Mailing address, e-mail address, phone (day/night/cell/radio frequency), and fax. • Location on day-of-event. Event name/ • Name used to advertise event. type of event Event date and • Event date(s). time • Hours of operation on each event day. POST-EVENT ACTIVITIES • Duration of event (if street use event). • Proposed timeline of activities through the event day(s). • Rain date. Event location • Location (e.g., street address). • Venue attendance capacity. • Temporary venue, permanent venue, on-street. • Zoning classification of property and/or present use of venue site.

• Alternate location. EVENT PROFILE Event purpose • Description of event. • Indication whether event differs from previous years. • Indication if event is political in nature.

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Table 4-8 (cont’d.) Planned Special Event Permit Application Components APPLICATION SPECIFICATIONS COMPONENT Event history • Number of times event has been held. • Event produced in other cities. • Receipt of a special event permit in the past by the event organizer. • Event organizer’s experience in handling special events. Expected • Attendance per day. attendance • Peak attendance at any given time. • Number of participants and spectators. • Basis for projection. • Attendance at past event occurrences. • Target age group (e.g., percent attendance by age group). • Estimated number of vehicles generated (cars and busses). Event • Set up and tear down (date and time) preparation • Description of required activities. Audience • Admission charge. accommodation • Parking charge. Street use event • Route to be traveled or occupied. route • Assembly location and time. • Completion point. • Rest stop areas. • Estimated length of parade (front to rear). • Maximum interval of space to be maintained between parade units. • Minimum and maximum speed of the parade. • Number and type of parade floats/vehicles. • Number of pedestrians and number/type of animals in parade. Street closures • Reason for using a non-local roadway. • Street segments (indicate by cross streets) and direction of travel. • Use of entire street width for event. • Occurrence of event in intersections. • Bridge closure. • Closing date and time and opening date and time. • Affected bus transit routes. Traffic control • Name of private company providing traffic control equipment. • Date and time of temporary traffic control equipment setup and removal. • Overview of directional signing, number and type of sign. Access and • Available emergency vehicle access. parking • Sidewalk and parking lot closures. • Use of public parking lots intended. • Establishment of reserved/VIP parking areas. • Use of off-site parking areas. • Covering of parking meters. Transportation • Narrative on anticipated congestion impacts and proposed mitigation. • Special arrangements for dignitaries. • Use of a charter or express service intended. • Use of public transportation intended. • Development of initiatives to encourage transit use.

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Table 4-8 (cont’d.) Planned Special Event Permit Application Components 4 APPLICATION SPECIFICATIONS COMPONENT Personnel • Number of volunteers and staff working the event. • Intended volunteer work assignments. • Number of staff working in a supervisory capacity. • On-site communications, cellular or radio. Event notifica- • Notification of other involved jurisdictions and whether a permit has been obtained. tion and • Use of media to advertise event (radio, television, print, Internet). OVERVIEW advertisement • Use of a process to notify affected property owners and residents. Dismantling and • Restoration of roadway right-of-way and other public property. clean-up • Clean-up start and end times.

Table 4-9 lists supplemental requirements to a special event permit application, required Permitting Requirements of the event organizer either at the time of initial application submission or after juris- Jurisdictions maintain the following general ADVANCE PLANNING diction review of the application question- requirements for planned special events: (1) naire. Traffic flow plans that specify a street event restrictions, (2) impact mitigation and use event route should identify any: (1) hin- traffic control, (3) legal, and (4) funding. As dering of access by authorized emergency indicated in Table 4-11, the municipal codes vehicles, (2) conflict with bus transit routes, of jurisdictions across the Nation specify a and (3) interference with non-event attendee wide range of requirements for managing access to hospitals, airports, transit stations, travel for planned special events, all of businesses, churches, and other public build- which become incorporated in the special ings. Traffic control plans should address in event permit process. The previous sections DAY-OF-EVENT ACTIVITIES detail the service and protection of event highlighted several requirements and associ- patron traffic, the accommodation of emer- ated examples under the first three cited gency vehicles and background traffic, and categories. With regard to traffic control, the necessary traffic control equipment and Appendix A contains a Hot Springs, AR personnel resources. The event site plan and checklist of traffic control requirements for parking plan must provide accessible park- street use events using a particular city ing and routes to the event venue. As an street. This checklist serves as a traffic example, Table 4-10 shows Miami Beach, management and operations plan for recur- POST-EVENT ACTIVITIES FL special event parking and site plan ring street use events on the cited street, thus guidelines for compliance with the Ameri- permitting traffic management team mem- cans with Disabilities Act. bers to become proficient at efficiently managing traffic for events on the designated Jurisdictions require event organizers to sign route. Appendix A also contains a detailed a hold harmless agreement and post a cer- traffic control resource checklist, complete

tificate of insurance, typically $1 million, with equipment specifications, used in EVENT PROFILE before issuing a special event permit. Ap- Montgomery County, MD and special event pendix A contains a sample hold harmless directional sign regulations maintained in agreement from Evanston, IL. Marco Island, FL.

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Table 4-9 Planned Special Event Permit Application Supplemental Requirements APPLICATION SPECIFICATIONS COMPONENT Event site plan • Identify access points/gates, traffic circulation, lighting, and sign locations. • Show location of fencing, barriers, and/or barricades including temporary fencing that can be removed for emergency vehicle access. • Show adjacent external roads. • Show emergency and handicap accessible routes. • Identify location for a command/communication center. • Provide computer-assisted drawing. Traffic flow plan • Provide map of street use event route. • Show street use event staging and disbanding area. • Indicate required sidewalk, street, and parking lot closures. • Indicate affected transit routes and proposed mitigation. • State locations and/or parking meter numbers that require covering. • Indicate traffic flow routes and capacity (e.g., number of travel lanes, etc.) Traffic control plan • Specify temporary directional sign, advance warning sign, barricade, and traffic cone locations. • Conform to Manual on Uniform Traffic Control Devices specifications. • Allow for a continuous, through traffic lane, typically 20 feet wide, on closed roads for use by public safety personnel in an emergency. • Show proposed alternate routes. • Indicate how normal traffic pattern will be accommodated. • Describe how local resident and commercial traffic has access during the event. • State what stakeholder furnishes, installs, and removes traffic control equipment. • Specify temporary, removable pavement markings only. • Provide traffic control agent or law enforcement officer (signalized intersections especially) at all intersections requiring traffic control. • Provide volunteers to monitor barricades at all intersections not requiring traffic control personnel. • Indicate pedestrian access routes and major pedestrian crossings. Parking plan • Show parking sites (e.g., paved and unpaved) and access points. • State the number and size of vehicles planned to stage for the event in addition to the staging location. • Accommodation of media vehicles. • Indicate number of spaces available. • Include valet parking and route. • State the number of parking staff required. • Indicate parking lot assignments (e.g., permit, public, fee), costs, and vehicle processing procedures. Emergency evacuation • Evacuation routes. plan Notice of event for • Present event concept. affected property • Indicate travel impacts in addition to planned parking and traffic restrictions. owners and residents • Distribute to residents, businesses, schools, places of worship, and other affected entities. Event advertising • Provide event operations information (e.g., times, dates, ticket information). brochure • Indicate travel information (e.g., directions, parking, travel incentives).

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Table 4-9 (cont’d.) Planned Special Event Permit Application Supplemental Requirements 4 APPLICATION SPECIFICATIONS COMPONENT Hold harmless • Specify that event organizer agrees to defend, indemnify, and hold a municipality, agreement including its officers and employees, harmless from any liability or claim caused by the event organizer failing to fulfill all obligations. Certificate of • Require event organizer to obtain and name the governing municipality and its em- Insurance ployees as insured. • Name transportation agencies as insured. OVERVIEW • Ranges from $500,000 to $1,000,000.

ADVANCE PLANNING

Table 4-10 training program is available, during permit- Guidelines for Compliance with the ted special events. For instance, the County Americans with Disabilities Act(4) of San Diego, CA specifies the following REQUIREMENT traffic control requirements during planned • All on-site accessible pedestrian routes from special events: accessible parking to the event must be equipped with curb cuts or temporary ramps. DAY-OF-EVENT ACTIVITIES All ramps must meet applicable codes. Table 4-11 • Additional disabled parking must be provided Municipal Code Provisions on Planned and staffed. A disabled parking area must be Special Events designated and located near to the main en- PROVISION trance and accessible to pedestrian routes. • Special event definition Necessary signs must be provided to indicate • Conditions for permit requirement this parking area. An accessible shuttle may • Permit restrictions be used for remote parking areas. • Content of permit application • All Americans with Disabilities Act consid- • Permit application submission and review erations must be identified on the site plan. deadline POST-EVENT ACTIVITIES • Notification of city/town officials Section 12200 of the California Vehicle • Notification of abutting property owners and Code defines a special event monitor as a residents person who has completed a traffic control • Permit approval criteria program approved by the California High- • Event organizer duties • City/town authority to restrict parking and way Patrol. Use of special event monitors close local roads reduces demand on law enforcement staff • Hold harmless clause EVENT PROFILE needed for security detail and highway pa- • Insurance requirements trol. Jurisdictions in California require these • Recovery of expenses trained monitors, when the day-of-event • Procedure for appealing a denied permit

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• Traffic control is to be provided at vari- Providing Extraordinary Governmental Ser- ous locations, such as, narrow road vices. Appendix A contains a copy of the segments, intersections, and starting or cited ordinance, Section 10-28 of the Wal- ending points. worth County Code. • Only properly trained or certificated personnel (by a training program ap- The social and economic benefits yielded by proved by the Commissioner of the Cali- planned special events, in addition to the fornia Highway Patrol) are to handle the purpose of select events, result in jurisdic- traffic control responsibilities. tions periodically waiving cost reimburse- • Traffic controllers shall wear orange ment requirements even for privately spon- vests and utilize a "Stop/Slow" paddle. sored special events. Table 4-14 lists crite- • Advance warning signs shall be placed, ria that planned special events in Louisville, well in advance of any personnel and the KY must meet for City provision of free event, to alert oncoming vehicles of the services for event operation and manage- supplemental traffic control and the ment. event. • Traffic controllers will avoid delays or INFRASTRUCTURE back up of traffic onto primary County roadways such that "grid-lock" does not SUPPORT happen; waits of more than two minutes are excessive and will not be allowed. Technology Applications • Adjacent driveways to neighboring businesses and residences will not be While the most critical aspect of managing blocked. travel for planned special events is the coordination of the many stakeholders involved, Funding technology lends an assisting hand to the effort. Technology is fast becoming a main- Public agencies recover costs incurred in stay in every aspect of transportation, from providing services during the event opera- road maintenance and snow removal to inci- tions planning phase and resources on the dent management and emergency evacua- day-of-event through event organizer fees tion. Special event management is no dif- and other funding mechanisms. Table 4-12 ferent in this regard. The variety of tech- lists special event permit application fees for nologies and their application serve to assist a select number of jurisdictions across the managers in both informing travelers of an country. Table 4-13 describes five different upcoming event as well as monitoring and approaches used by jurisdictions to obtain managing the event in real-time. cost reimbursement for staff and equipment rental. Most technology applications, as they relate to travel management, fall under the cate- After an August 2002 Grateful Dead concert gory of Intelligent Transportation Systems attracted 35,000 spectators at an amphithea- (ITS). ITS is comprised of a number of ter in rural Walworth County, WI, and event technologies, including information process- stakeholders prepared to turn away thou- ing, communications, control, and electron- sands of expected ticketless spectators, ics. These technologies are comprised of county officials passed an innovative ordi- tools that can be deployed permanently for nance, Recovery of Expenses Incurred for uses other than planned special events or

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Table 4-12 4 Planned Special Event Permit Application Fees LOCATION PERMIT FEE LOCATION PERMIT FEE Anaheim, CA $25 Palm Beach Gardens, FL $50 per event day Fort Collins, CO $25 Ypsilanti, MI $50-$100 Lancaster, PA $25 Charlotte County, FL $87 Larimer County, WY $25 Virginia Beach, VA $75-$150 Louisville, KY $25 Branson, MO $100 Marysville, WA $25 Clarksville, TN $100 OVERVIEW Stamford, CT $25 West Des Moines, IA $100 West Palm Beach, FL $25 West Sacramento, CA $125 $25 parade; $250 application fee; Minneapolis, MN $100 + $0.50/participant Miami Beach, FL $250 permit fee for race Lincoln, NE $45 Mount Pleasant, TX $250 Kane County, IL $50 Pitken County, CO $275 Marco Island, FL $50

Table 4-13 ADVANCE PLANNING Planned Special Event Funding Mechanisms FUNDING MECHANISM COMMENTS/EXAMPLES Event organizer pays a deposit • Applies to events necessitating road closure. Deposit is reimbursed if all with permit application road closure requirements are fully complied with ($500 – Larimer submission. County, WY) • Requires $2,500 refundable security deposit no later than 30 days in advance (Miami Beach, FL). • Requires a $1,000 security deposit, returned if the transportation department determines the roadways are in good or better condition than

before the event took place (Kane County, IL). DAY-OF-EVENT ACTIVITIES • Requires a $25 deposit on each city owned traffic control device used during an event (Golden, CO). Public agency sends post-event • Allows event organizer to be charged for law enforcement, traffic engineer- invoice to the event organizer ing, and public works services. for resources used. • Requires four-hour minimum charge for each public employee engaged by the event organizer (Miami Beach, FL). Event organizer pays for • Requires event organizer pre-payment or bond posting before issuing an estimated, required public event permit (Anaheim, CA). agency resources before event. • Requires event organizer to submit payment for services and equipment two POST-EVENT ACTIVITIES weeks before the event (Miami Beach, FL). • Requires event organizer to pay for parking meter rentals ($10 per meter/day for Miami Beach, FL; 50% of the standard fees in Denver, CO) and rental of public parking lots (Ypsilanti, MI requires 20% gross revenue sharing) as applicable. A charge on each ticket sold is • Establishes Ordinance No. 232-11/02 (Walworth County, WI). set to recover expenses incurred for providing extraordinary governmental services. EVENT PROFILE Event organizer posts a • Covers post-event street cleaning and/or damages to roadway infrastructure. performance bond.

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Table 4-14 provide, or more simply as functions. In the Louisville, KY Criteria for Providing Free realm of managing planned special events, Services for a Special Event(28) there are a number of functional areas that CRITERIA technology can support. The following sec- • Ability of the City to provide all or part of tions describe these functional areas in requested support services. greater detail. • Extent to which the event is economically, socially, and culturally beneficial to the community. Traffic Management • Intended use by the sponsoring organization of any revenue over and above expenditures. Traffic management is the most common • Impact of the event (positive or negative) on function associated with special event plan- normal commercial activities. ning and management. It includes the real- • Extent to which the event contributes toward the promotion of tourism. time detection, surveillance, and management of traffic conditions. In a typical event deployed temporarily during the special management scenario, managers and opera- event only. Table 4-15 discusses these tech- tors would monitor traffic, pedestrian, and nologies and implementation alternatives in parking conditions in real-time using various more detail. Joining these technologies to technologies, and modify control strategies our transportation system will save lives, such as modifying traffic signal and ramp save time, and save money.(6) In its infancy, meter timing, transit priority, opening gates ITS addressed incident management, but for high occupancy vehicle (HOV) lane ac- over time, it has become an application of cess, to name just a few. This function also management strategies to improve mobility forms the basis for collecting much of the in everyday responsibilities of transportation information communicated to travelers. managers of various modes. Mobility may There are a number of specific management be defined as ability and knowledge to travel strategies that encompass traffic manage- from one location to another using a multi- ment: modal approach. ITS not only benefits the transportation managers, but other service • Arterial traffic management differs providers such as emergency service provid- considerably from that of the freeway. ers (e.g., police, fire, ambulance) and sup- While the basics are similar – detect or port providers such as towing services. In survey, verify, respond and inform – the short, ITS has become a significant enabler strategies and tools are not. As a rule, for operating and managing the transporta- streets do not have any available capac- tion network. ITS is a tool for transportation ity compared to the using of a freeway managers, and as such, it augments the shoulder, for instance. Parking can be many non-technical activities to plan and removed, but there is an economic and manage an event. social price to pay to remove parking. Two-way streets can be made to operate At one time, ITS was characterized as tech- in one direction, but this, too, can come nology looking for a problem. Over the at significant cost. years, transportation managers realized the need to first identify needs and problems, Successful arterial traffic management and then associated solutions, usually tech- results from utilizing every bit of road- nological, to those needs. As such, ITS ap- way capacity and adapting to changing plications are grouped into services they can traffic conditions. Typically, streets are

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Table 4-15

Planned Special Event Technology Applications 4 ITEM FUNCTIONS DEPLOYMENT APPLICATION BENEFIT Detectors Traffic Permanent – in • Provides the managers at the • Provides a status of Management field. Transportation Management real-time traffic con- Center (TMC) with reliable, ditions on the high- Portable – on real-time information on condi- way to managers so trailers for tem- tions in the field. they may adapt their porary deploy- • Collects various data, but the plans as conditions

ment. most common are vehicular or warrant. OVERVIEW travel speed, volume and occupancy. • Includes inductance loop detectors and infrared or ultrasonic detectors placed in, over, or be- side the highway. • Uses portable detection systems installed on trailers that allow for locating the technology any- where in the event area that managers want to survey. ADVANCE PLANNING Closed-Circuit Traffic Permanent – in • Consists of one of the oldest and • Provides managers Television Management field. most reliable methods of survey- instant information (CCTV) ing the network in real-time. on the status of the Portable – on • Uses cameras installed in the highway, transit sta- trailers or perma- field to monitor conditions in tion, or pedestrian nent structures real time. mall to managers to for temporary • Allows systems to be located allow them to react deployment. temporarily for the event using quickly to issues, trailer-mounted rigs. thereby minimizing • Whether permanent or portable, impacts to users. provides managers at the TMC DAY-OF-EVENT ACTIVITIES with real-time video of conditions on the highway, allowing them to adapt their plans accord- ingly. Transportation Traffic and Permanent. • Serves as the nerve center where • Provides a single Management Transportation the event managers from various location where all Center (TMC) Management Portable – in mo- disciplines, transportation and the managers of the bile trailer or van. other, work together to ensure agencies involved close coordination. with the special

Virtual – a single • Often includes a “situation event can work face- POST-EVENT ACTIVITIES person connected room” where the event managers to-face and be able to the central work, all the time being in con- to communicate with systems from any tact with the control room. their respective op- remote location. • Utilizes many technological erators and field per- tools at the TMC including: (1) sonnel. map displays showing real-time traffic and transit conditions, (2)

video display walls, (3) change- EVENT PROFILE able message sign, (4) closed- circuit television control systems, (5) telephone and radio communications to communi-

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ITEM FUNCTIONS DEPLOYMENT APPLICATION BENEFIT cate with their field liaisons, and (6) incident management and traffic signal control systems. • In most cases, consists of a government agency facility, but in some specialized cases, such as at stadium venues, the venue itself may house this coordination center. Mobile Traffic Portable. • Provides common form of • Allows managers to Telephone Management communication between event stay in communica- managers and field personnel. tion with their field Traveler • Provides real-time traffic condi- personnel at all times Information tions to managers (i.e., manual via cell phone. detection) and permits receipt of • As a traveler infor- real-time traffic conditions in- mation device, formation through a paging ser- transmits informa- vice or by dialing into a tele- tion on real-time phone information system (see conditions to digital below). telephones equipped to receive text messages. • There is a large potential market for this form of traveler information. • Requires timeliness since 3rd party In- formation Service Providers (ISPs) are used. Personal Traveler Portable. • Sends real-time traffic condi- • Has a large potential Digital Information tions to pagers registered to re- market for this tech- Assistants ceive the traveler information. nology for traveler Traffic • Allows two-way pagers (e.g., information. Management Blackberry™) to be used by • Requires timeliness rd field personnel to report prob- since 3 party ISPs lems or by travelers to do the are used. same. Internet Traveler Permanent. • Permits dissemination of infor- • Reaches large audi- Information mation regarding new traffic ence of pre-trip trav- Accessible from patterns, restrictions, etc. (along elers. Advertising any location with with other information regarding • Offers subscription connectivity. the event) well in advance of the e-mail service to no- date(s) of the event. tify traveler of an • Provides real-time information alert on their pre- regarding the travel conditions ferred routes. along the affected routes, inci- • As a rule, provides dents that are impacting traffic free service with the flow, and available parking. subscription to an • Aims to reach travelers before ISP. they commence their trip. Changeable Traveler Permanent – in • Informs travelers (en-route) • Reduces congestion Message Sign Information field. prior to the upcoming event of by informing motor-

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ITEM FUNCTIONS DEPLOYMENT APPLICATION BENEFIT its expected impact, infrastruc- ists in advance of the Advertising Portable – on ture changes (e.g. road or lanes event so they may 4 trailers for tem- closures, parking restrictions). alter their routes or porary deploy- • Provides real-time traveler in- mode choices. ment. formation during the event (e.g., • Informs en-route roadway conditions, incidents, travelers of potential parking availability). problems such as full parking areas. Highway Traveler Permanent – in • Similar to CMS, informs en- • When applied cor- OVERVIEW Advisory Information field. route motorists of an impending rectly, provides sig- Radio problem ahead. nificant benefit to Portable – on • Typically uses warning signs to en-route motorists trailers for tem- inform motorists that an impor- who must be advised porary deploy- tant message is being broadcast. of a traffic incident ment. • Allows messages to be con- or congestion ahead. trolled from a remote location, such as a TMC. • Technologically, consists of a low-power (e.g., 10-watt) transmitter located near the roadside.

Telephone Traveler Permanent – call • Provides a phone-in service to • Serves as a very use- ADVANCE PLANNING Information Information center remains at provide real-time traffic condi- ful tool in providing System a fixed location. tion information to en-route and current traffic condi- Traffic pre-trip travelers. tions to travelers. Management • Stores real-time conditions in a • Often can be an ex- database. Callers, with the help pensive undertaking. of computerized telephony, are • Has generated a routed to a recording of, or a live number of success operator stating real-time condi- stories during the tions on the segment of highway 511 program’s short requested by the caller. life.

• As a national 511 initiative, DAY-OF-EVENT ACTIVITIES serves as both a traveler information and traffic management tool, in that it provides current traffic conditions to callers as well as allows callers to report incidents on the network. Traffic Signal Traffic Permanent – • Signal systems are commonly • Increases the effi- System Management Closed Loop installed along arterial streets to ciency of the street Signal Systems. optimize traffic flow and mini- network and reduces POST-EVENT ACTIVITIES mize delay. the delay on the net- Permanent – • Closed Loop Signal Systems and work. Centrally con- Centrally controlled signal sys- trolled traffic tems allow system operators to signal systems. download and implement special signal timing plans for special Permanent – event management. These plans Centrally will optimize traffic operations controlled adap- during event ingress and egress. EVENT PROFILE tive signal sys- • Adaptive traffic signal systems, tems. due to a high level of detectori- zation and sophisticated system

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ITEM FUNCTIONS DEPLOYMENT APPLICATION BENEFIT programming, will adjust to event-generated traffic flows and optimize traffic operations during event ingress and egress. With adaptive signal systems, the engineering of event timing plans is largely accommodated by the system. However, adaptive systems are considerably more expensive to install than either Closed Loop or centrally controlled systems. Parking Traffic Permanent. • Outfits parking lots and garages • Reduces the circling Information Management with detection and surveillance pattern of vehicles in Systems technology to determine the a downtown area by available number of spaces. informing motorists • Collects information via detec- of the unavailability tion and surveillance technology of parking spaces. that is then processed by algorithms in computer systems, and can determine what space is available, using actual counts and predictive algorithms. The parking status is then conveyed to signs at the entrance or to an advanced traffic management system to be placed on CMSs or broadcast on HAR or commercial radio. • At arenas or stadiums, alerts motorists not to exit from a freeway to a parking lot if it is full, and directs them to available parking locations. Commercial Traveler Permanent. • Broadcasts traffic reports on a • If broadcasted in a Radio or Information regular basis, typically during timely manner, Television Accessible from peak traffic periods or periods of reaches the most Stations any location with special events. The information travelers and pro- connectivity. is received from aerial spotters vides them with in- or advanced traffic management formation to change systems. their route or mode to ensure the most efficient network for prevailing conditions.

managed by traffic signal systems, and and egress. Several strategies, having one of the most beneficial signal strate- various levels of complexity, exist for gies for planned special events is the use managing traffic signal systems on arte- of modified timing plans to optimize rial highways. The best strategies avail- traffic operations during event ingress able for special event management in-

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clude: (1) remote modification of the plan. These systems have the capability system, (2) individual signal timing in to continuously adapt to changing traffic 4 response to changing conditions, and (3) patterns, thus optimizing traffic flow. highly sophisticated adaptive control With adaptive traffic signal systems it systems, which, due to a higher level of would not be necessary to download data acquisition and system program- special signal timing plans in order to ming, automatically adapt to changing manage a special event. The adaptive traffic flows. Closed Loop Signal Sys- traffic signal systems would automati-

tems, which are relatively inexpensive cally adapt to changes in traffic caused OVERVIEW and are becoming widely used, offer a by additional event-generated traffic. means of implementing planned system timing plans designed for a particular • Ramp management represents a free- special event. Individual signals and way strategy that controls the amount of system timing can be monitored and traffic entering and exiting a freeway in modified remotely from a transportation order to maintain or increase its effi- management center or any other location ciency. It is typically provided by means equipped with a personal computer and of metering or closing ramps. The the- modem. ory behind metering is that the rate at which vehicles enter a freeway is con- ADVANCE PLANNING The more sophisticated centrally controlled, reducing turbulence at ramp trolled traffic signals have a fixed com- junctions where most congestion occurs. munication system between the traffic This, in effect, improves the efficiency signals and a control center. The traffic of the mainline freeway, thus reducing a signals and signal systems under control vehicle’s overall trip time. Ramp clo- are constantly monitored. These systems sure is rarely used as a long-term solu- generally have a higher level of pro- tion, but can be implemented when the gramming sophistication then the Closed capacity of an entrance or exit ramp is

Loop Systems. Planned special event exceeded and the resulting queues jeop- DAY-OF-EVENT ACTIVITIES management is accommodated in much ardize safety. the same way as with Closed Loop Sys- tems, with special timing plans being • Lane use management is a process used downloaded into the system in response to maximize benefits and use of existing to event conditions. The timing plans pavement, and improve the safety and are configured in advance, but as with efficiency of freeway operations. Lane Closed Loop Signal Systems, can be use management is typically exercised modified from a transportation manage- through use of signs (static and dy- POST-EVENT ACTIVITIES ment center in response to changes in the namic), temporary traffic control de- field. vices, economic incentives and disincen- tives, and law enforcement. Lane use Adaptive control systems represent the management includes designating cer- most sophisticated traffic signal systems. tain lanes for the use by a particular class These systems require considerably of vehicles (e.g., buses, carpools), the more detector input and communication use of shoulders as a traveled lane dur- EVENT PROFILE ability. Adaptive control systems rely ing peak periods, contra-flow lanes, re- on intricate software packages to pro- versible lane control, and lane use con- duce an ever-evolving signal timing trol. Lane use control uses dynamic

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signing to indicate whether a lane is parking location to parking location in open (green arrow pointing down over a hopes of finding an available space. lane), closed (red “X” over a lane), or is closed ahead (a diagonally cocked color Traveler Information arrow over the lane).(7) To ensure the successful management of a • Incident management represents an special event, it is vital to communicate with operational approach used on both free- travelers to inform them of anticipated (fu- ways and arterials that employs all of the ture) and current conditions on the network: available resources, including human and technological, to identify, manage, • One goal is to provide the conditions and clear incidents from a freeway in a information to en-route travelers so they quick and effective manner. In the may alter their route or mode, and to transportation management center, op- pre-trip travelers so they may alter their erators utilize networks of closed-circuit trip planning. Information that can be television cameras, vehicle detection provided includes current traffic condi- sensors, incoming 911 or 511 reports, tions, congestion, lane or turn restric- incoming media reports, and mobile re- tions, HOV restrictions, alternate routes, ports (from service patrols, police, main- parking availability, and road closures tenance personnel, and motorists) to and the relevant time periods. monitor, verify, and determine the scope • A second goal is to inform the public of of incidents to quickly dispatch the ap- the event well enough in advance to al- propriate emergency response personnel low intended travelers, whether event at- and equipment. This saves valuable tendees or not, to change their travel time when treating the injured and habits prior to the event. minimizes the effects incidents have on traffic conditions. After field personnel Various means and technologies are used to arrive at the incident scene, TMC opera- disseminate information to the public. In- tors continue to monitor the incident and formation is provided to: conditions surrounding the incident to (7) inform travelers of traffic conditions. • Pre-trip travelers via websites, media broadcasts, and mobile communication • Parking management facilitates im- devices (e.g., personal digital assistants, proved and sustained mobility - moving pagers, and cell phones). traffic through a location quickly, with • En-route travelers via roadside devices little delay, and only once. Parking such as changeable message signs and management supports effective mobility highway advisory radio, and in-vehicle by managing parking facilities. In this via commercial radio. discipline, systems monitor and survey • Both pre-trip travelers and en-route trav- the available capacity of parking facili- elers through mobile phones, web- ties, both surface lots and garages, and enabled wireless phones, pagers and per- communicate the availability or non- sonal digital assistants (PDA). availability of spaces to motorists. In doing so, motorists do not congest the In support of these functions, there are many highway network by traveling from technologies in the realm of ITS that have been incorporated for special event man-

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agement. Not all of these are a single tech- "adopt-a-highway" plans to include traffic nological device, nor are all of the parts pro- management will present options for fund- 4 vided by the managing agency alone. ing operations. Partnerships to sell or share data and video signals will continue to pro- Funding Sources vide new opportunities.(8)

Current funding practice typically favors The authority for transportation decision- building new or rehabilitating existing making is dispersed among several levels, or transportation facilities over operational im- “tiers”, of government, and often between OVERVIEW provements, such as freeway management several agencies with each governmental systems. A key reason is that agencies do level. The concept of special event man- not consider operations as a distinct line agement needs to be considered and sup- item in their budget. Freeway management ported at each of the different tiers noted (9) systems require both capital and mainte- below: nance funding. This topic has been under discussion for several years, and few agen- • The national tier involves the authoriz- cies have been willing to attempt new ap- ing legislation that establishes and pro- proaches.(7) vides direction, priorities, and resources for the federal regulations, policies, pro- ADVANCE PLANNING Involvement by the freeway practitioner in grams, and research that is initiated or funding processes and decisions cannot be implemented. over-emphasized. As noted in the Millen- nium Paper prepared by the Transportation • The regional/statewide tier involves the Research Board Freeway Operations Com- appropriate strategic transportation plan- mittee, “If funding for deployment of free- ning, programming, and coordination ef- way management systems and programs, forts that include a longer-range time ho- and their ongoing operations and expansion, rizon (10 –20 years). Statewide and re-

is not budgeted and the necessary resources gional transportation planning is the DAY-OF-EVENT ACTIVITIES allocated, the freeway investments will dete- structured process followed by states, riorate and eventually become useless.”(8) metropolitan planning organizations, municipalities, and operating agencies to Funding for ITS initiatives always has been design both short and long-term trans- a challenge and is tied in closely with how portation plans. Products are project- well we sell the concept of freeway opera- oriented, typically providing the State- tions and management. Because of tighter wide and Regional (Constrained) Long controls on money and a never-ending list of Range Plan (LRP), Statewide Transpor- POST-EVENT ACTIVITIES ways to spend it, there will continue to be tation Improvement Program (STIP), re- challenges in the search for new sources of gional Transportation Improvement Pro- funding to continue expanding the existing gram (TIP), and Unified Planning Work infrastructure. Such new concepts as part- Program (UPWP). While the process has nerships between the private and public sec- historically focused on capital projects, it tors, outsourced design/build/operate con- is now recognized that the state- tracts for transportation infrastructure pro- wide/regional transportation planning EVENT PROFILE jects, and user-pay scenarios will bring process must take management and op- about new opportunities for funding. Ex- erations of the transportation network, panding advertising, sponsorship, and and the ITS – based systems that support

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operations, into consideration. This is 1. “Regional Transportation Operations particularly true given that ITS appears Collaboration and Coordination,” to be losing its special funding status Federal Highway Administration, that it enjoyed in ISTEA and TEA-21. Washington, D.C., 2002 [Online]. The current trend to “mainstream” ITS Available: (and operations) into the traditional deci- http://www.itsdocs.fhwa.dot.gov//JP sion-making process of transportation ODOCS/REPTS_TE//13686.html. planning means that operations and ITS [2003, August 12]. deployments will be increasingly funded through regular sources and compared 2. “Traffic Incident Management Self with traditional transportation compo- Assessment Guide,” Federal High- nents, such as road widening and new way Administration, Washington, construction. There is consequently a D.C., 2002 [Online]. Available: need to strengthen the ties between man- http://ops.fhwa.dot.gov/Travel/Incide agement and operations, ITS, and the ntMgmt/timsa.htm. [2003, August transportation planning process. 12].

• The agency tier is where the infrastruc- 3. Traffic Manual, Washington State ture comprising the surface transporta- Department of Transportation, tion network (e.g., freeways, bridges, Olympia, Washington, March 2002, tunnels, streets, rail lines, rolling stock, 182 pp. traffic control/management devices) is typically owned. This level develops a 4. Special Events Permit Requirements multi-year program and budget that de- and Guidelines, City of Miami fines resources and commitments for a Beach Office of Arts, Culture, & En- three to 10 year time frame, with updates tertainment, Miami Beach, Florida, every year or two. It is at this tier where n.d., 19 pp. priorities, budgets, and allocation of resources are established. From the per- 5. Festivals & Events: Policies & Pro- spective of freeway management and cedures, City of Louisville, Louis- operations, it is at the agency level ville, Kentucky, September 1999, 49 where the planning, design and imple- pp. mentation activities for the freeway management program (i.e. special event) 6. ITS America website, www.itsa.org. take place. It is important that the process to develop the ITS – based strategic 7. Federal Highway Administration, plan (or any such focused plan or pro- “Freeway Management and Opera- ject) support the overall transportation tions: State–of –the–Practice White planning process; not compete with it. Paper”, January, 2003. Moreover, the end products of these “focused” processes can and should be used 8. “Freeway Operations in 2000 and to feed information back into the overall Beyond”, Members and Friends of transportation planning process. the TRB Committee on Freeway Op- erations. REFERENCES

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9. Descriptions of tiers from material found in, “Integrated Surface Trans- 4 portation Systems: The Role of Transportation Management Cen- ters”; Obenberger, J. and Kraft, W.; October 2001. OVERVIEW ADVANCE PLANNING DAY-OF-EVENT ACTIVITIES POST-EVENT ACTIVITIES EVENT PROFILE

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CHAPTER FIVE 5 EVENT OPERATIONS PLANNING OVERVIEW ADVANCE PLANNING

Figure 5-1 Event Planning Team Meeting

DAY-OF-EVENT ACTIVITIES PURPOSE affecting the scope of event impact on transportation system operations.

This chapter presents advance planning and Practitioners can use this chapter as a tool stakeholder coordination activities con- to: (1) establish an event operations planning ducted for a specific planned special event. framework for guiding stakeholder activities It represents the first of three successive throughout the phase, (2) assist in deciding chapters on the event operations planning whether to grant or deny preliminary ap- POST-EVENT ACTIVITIES phase. The primary, interrelated products of proval to schedule a proposed planned spe- the event operations planning phase include: cial event based on predicted transportation (1) feasibility study, (2) traffic management system impacts and (3) determine traffic and plan, and (3) travel demand management parking demand, roadway capacity deficien- initiatives. This chapter describes initial cies, and unplanned scenarios that define planning activities, summarizes feasibility that scope of traffic management plan re- study analysis steps specific to a planned quired (Chapter 6) in addition to the need for EVENT PROFILE special event, and highlights external factors developing travel demand management ini-

tiatives (Chapter 7).

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INTRODUCTION parking demand and existing conditions. It specifies traffic demand analysis and road-

way capacity analysis strategies, including This chapter helps practitioners to hit the the application of various traffic modeling ground running on advance planning for a and capacity analysis tools. To provide a specific planned special event. Compared to lead-in to the following two chapters on Chapters 6 and 7 which detail strategies and event operations planning, the section de- tactics for mitigating the impact of planned scribes a toolbox of mitigation strategies for special events on transportation system op- adjusting event traffic generation levels as erations, this chapter emphasizes, with sup- well as increasing transportation system ca- porting example case studies, the importance pacity. of facilitating a planning structure, stakeholder coordination, and comprehensive This chapter concludes with an examination event assessment in generating event plan- of external factors that may create consider- ning phase products that completely and ac- able impact on transportation system opera- curately guide operations activities on the tions if ignored. A feasibility study may not day-of-event. account for issues such as available re-

sources, weather, concurrent road construc- A section on initial planning activities de- tion activities, and concurrent planned spe- scribes input data requirements for analyz- cial events. These factors must be ac- ing the event impact and discusses scenarios counted for early in the advance planning linked to particular events that may require process as well as in traffic management the development of a contingency plan(s). plans prepared for a planned special event. The section lists transportation system per- For example, given a particular recurring formance objectives, and associated facility- event, event patrons and non-attendee trans- specific measures of effectiveness (MOEs), portation system users may realize satisfac- that satisfy the customer service require- tory system operations during one event oc- ments of event patrons and other road user currence, then experience an unacceptable classes. It presents an event operations level of service during the next event occur- planning schedule and lists various products rence. Such incidents occur when stake- of the event operations planning phase. The holders do not account for various external section concludes by examining situations factors, through scenario-based response necessitating public involvement, summariz- plans, early in the event traffic management ing the feasibility study and traffic manage- plan development process. ment plan review process, and identifying successful policies and agreements for managing and operating a planned special event. INITIAL PLANNING ACTIVITIES The event feasibility study section presents travel forecast process strategies and considerations for estimating modal split, event- Overview generated traffic demand, and vehicle occupancy factors. It reviews techniques for This section examines key planning initia- identifying a market area and directional dis- tives and special considerations in order to tribution of event-generated traffic. The help guide the user through the first steps of section reviews methodologies for identify- the event operations planning phase. The ing and evaluating the sufficiency of avail- event operations planning phase begins with able venue parking supply based on event stakeholders establishing a planning frame-

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work and schedule. The framework in- Event Planning Team Establishment cludes forming an event planning team, creating agreements, identifying performance An event planning team forms as a result of 5 goals and objectives, and deciding on miti- either: (1) coordination among traffic opera- gation assessment and approval protocol. tions agencies, transit agencies, law enforcement agencies, and event organizers Special considerations evolve from review- that represent the core event planning team ing the event operations characteristics of a stakeholders or (2) designation by a commit- particular special event (e.g., risk assess- tee on special events within a regional trans- OVERVIEW ment) in addition to past successes and les- portation management organization, such as sons learned. These considerations weigh a traffic incident management program. heavy on traffic management plan requirements, and stakeholders must address issues • The former typically describes event affecting community residents and busi- planning teams formed in response to lo- nesses through public outreach efforts early cal planned special events affecting few in the planning phase in order to ensure jurisdictions, such as events occurring in proper mitigation and non-conflict with traf- rural or urban areas. fic management plan specifications. • The latter may occur in metropolitan ar-

eas where planned special events happen ADVANCE PLANNING Stakeholder Roles and frequently, thus warranting an on-call Coordination event planning team.

The event planning team handles tasks asso- A regional transportation committee on ciated with event-specific operations plan- special events features stakeholders that ning and traffic management plan have achieved interagency coordination implementation. Table 5-1 lists the primary through past, cooperative travel manage- responsibilities of the event planning team ment efforts.

under the event operations planning phase. DAY-OF-EVENT ACTIVITIES The event planning team consists of a di- • Stakeholder representatives have first- verse group of stakeholders with either event hand knowledge of the roles, resources, operations or community interest as their and capabilities of each committee par- primary concern. The success of the event ticipant. planning team depends on achieving strong • Stakeholders commonly include traffic coordination among participating team operations agencies, law enforcement, stakeholders. transit agencies, event organizers or

venue operators, and the media. POST-EVENT ACTIVITIES • Committees in metropolitan areas may create task forces for specific planned Table 5-1 special event venues or recurring Event Planning Team Responsibilities planned special events (e.g., annual fairs, During the Event Operations Planning Phase fireworks displays, parades, etc.). The RESPONSIBILITY committee or task force generally meets • Perform feasibility study. and performs event operations planning EVENT PROFILE • Develop traffic management plan. tasks on an as-needed basis. The group • Evaluate travel demand management initia- may also convene regularly (e.g., tives. weekly, monthly, or quarterly) to review

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program planning efforts for future can serve as advocates for the event plan- planned special events. ning team; therefore, participation from these stakeholders should occur early in the Prior to initiating the event operations plan- event operations planning phase. ning process, the core event planning team should adopt a mission, or purpose, and so- Table 5-2 indicates the typical function of licit buy-in from public agency stakeholders, each participating stakeholder in generating the community, and other event support the primary products of the event operations stakeholders. In identifying pertinent juris- planning phase. A list of stakeholders is dictions, the event planning team may con- referenced to the three products produced: sider contacting stakeholders within a cer- (1) feasibility study, (2) traffic management tain distance (e.g., five miles) of the event plan, and (3) travel demand management. venue. The event planning team can obtain Stakeholders contribute data, communicate buy-in from community interest stake- needs, and/or furnish resources. Often, cer- holders more easily when a core group of tain agencies promote initiatives developed stakeholders already exists, including public by the event planning team, such as travel agencies. Elected officials and the public demand management strategies.

Table 5-2 Stakeholder Participation in Event Operations Planning PRODUCTS OF THE EVENT PLANNING TEAM TRAFFIC FEASIBILITY TRAVEL DEMAND MAN- STAKEHOLDER MANAGEMENT STUDY AGEMENT PLAN INPUT DEVELOP REVIEW INPUT DEVELOP REVIEW INPUT DEVELOP REVIEW PROMOTE Traffic Operations • • • • • • • • • • Agency Law Enforcement • • • Event Organizer • • • • • Fire and EMS • • • Elected Official • • • • • Transit Agency • • • • • • Public • • • • • Private Transporta- • • • • • tion Consultant Private Traffic • Control Contractor Media • Office on Special • • Events Emergency • • Management Agency Regional • • • • • • Organization

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Interagency Coordination trating on tasks that can be successfully accomplished collectively. 5 In establishing an event planning team, the core stakeholders must develop a working Common barriers to the event planning trust with each other. This trust results team’s progress include resource constraints when stakeholders realize that a planned and jurisdictional barriers. special event necessitates the same relationships cultivated in daily traffic and incident • Resource or funding constraints surface OVERVIEW management. when stakeholders assign a lower priority to the planned special event. In satis- A joint operations policy or other memo- fying individual and team goals, stake- randa of understanding strengthens the co- holders may have to make temporary operative bond among core stakeholders. project and program sacrifices, in terms These agreements identify common goals of personnel and equipment reassign- and responsibilities of the partnering agen- ment, to provide adequate benefits to the cies. event operations planning effort. • Jurisdictional barriers arise when two or

Consensus among stakeholders builds inter- more stakeholders are unclear on their ADVANCE PLANNING agency coordination and an understanding duties and responsibilities. Do not allow of each agency’s responsibility. Key ele- participating agencies to feel left out. At ments to consider include: the time of buy-in, the event planning team must indicate which stakeholders • Participating stakeholders must recog- are required on an as-needed basis. The nize that the motivations of individual team must have the ability to communi- agencies may differ from the event plan- cate effectively with stakeholders having ning team’s concerns as a result of their a peripheral involvement in the overall day-to-day responsibilities. planning effort. DAY-OF-EVENT ACTIVITIES • Although the event planning team does not have authority over individual stake- Risk Assessment holders, the planning team must realize that possible conflicts may exist between Based on the type and purpose of a planned the team’s objectives and a stakeholder’s special event, there exists potential scenarios primary responsibility. Understanding where event patron or non-attendee behavior this is key to overcoming such a prob- may cause overcrowded conditions in the lem; yet, the team can foster a coopera- vicinity of an event venue and/or create un- POST-EVENT ACTIVITIES tive spirit among stakeholders by em- planned road closures. The event planning phasizing that participants own a part of team must assess the nature of a proposed the event planning team’s common event and determine the need to incorporate goals. In turn, team goals and objectives special contingency plans in response to po- create incentives for individual stake- tentially dangerous situations that will inter- holders. fere with the planned travel management on • Stakeholders must remain focused on the the day-of-event. EVENT PROFILE goals and objectives of the event planning team in order to effectively support Table 5-3 lists four notable event-oriented and contribute in the event operations risk scenarios associated with some planned planning process. This includes concen- special events. This section further

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Table 5-3 Summary of Event-Oriented Risk Scenarios EVENT-ORIENTED RISK EXAMPLE SCENARIO Demonstration or protest • Any event that is political in nature or invokes social concern. • Political conventions and parades Ticketless event patrons • Sold-out sports championship games causing overcrowding • Sold-out concerts involving select performers Fan celebration • Response to city or school sports team winning a championship. Event patron violence • Motorcycle rally violence between patrons and/or participants.

describes these scenarios and highlights example case studies that illustrate resulting Overcrowding impacts on advance planning and/or day-of- event operations. Chapter 6 provides de- The occurrence of sports championship tailed guidance on contingency planning in games or major concerts at venues having a addition to the development of specific defined sell-out capacity may attract ticket- strategies (e.g., alternate route plans) needed less event patrons not accounted for in event to effectively respond to certain unplanned travel forecasts and impact mitigation scenarios. strategies. Events such as the Super Bowl or National Collegiate Athletic Association Demonstration or Protest (NCAA) Final Four cause an increase in area visitors beyond the actual event partici- Certain political or socially controversial pants and patrons. Sold-out music festivals planned special events may provoke a dem- may attract persons wanting to tailgate in onstration or protest. Those attending the venue parking areas despite not having a demonstration represent non-attendees, and ticket. the event planning team often has little or no advance information regarding the demon- For instance, event planners originally an- stration’s specific location and time of oc- ticipated 200,000 people to attend a two-day currence. The event planning team should Grateful Dead reunion concert at a 35,000 obtain access to relevant law enforcement seat amphitheater in rural East Troy, WI, intelligence reports regarding potential dem- located approximately 30 miles southeast of onstrations to develop an effective travel Milwaukee. The Walworth County High- management contingency plan. The threat way Committee initially denied the event of an unplanned road closure should prompt organizer a permit to hold the two concerts. the event planning team to consider develop- After the event organizer unveiled a coming an alternate route contingency plan de- prehensive security and traffic management tailing the personnel and equipment re- plan that included using advance check- sources necessary to effect an immediate points to turn away any vehicle that con- diversion of traffic. tained a ticketless occupant, county execu- tives overturned their decision and issued a Appendix B contains a contingency diver- permit.(1) Appendix B contains a list of re- sion routing plan prepared in response to the strictions imposed by the event organizer potential for demonstrations during the 2000 and event planning team to prevent ticket- Republican National Convention in Phila- less event patrons from gaining access to the delphia, PA. venue parking areas.

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Fan Celebration ture the homicide suspects, Nevada officials closed all highways and arterials serving Another severe impact risk associated with Laughlin, including Nevada State Route 163 5 sports championship games involves fan at the Nevada/Arizona border as shown in celebrations that occur when a city sports Figure 5-2. Trucks traveling U.S. 93, a team wins a championship at home. In this North American Free Trade Agreement case, the traffic management team charged (NAFTA) designated trucking corridor, with managing travel during event egress traverse State Route 163 because of prohibi-

must also mitigate traffic impacts caused by tions on crossing the Hoover Dam. Law en- OVERVIEW non-attendees converging on the venue site forcement maintained the road closures for a and unruly fans disrupting traffic and pedes- few hours.(4) A possible traffic management trian flow. contingency plan prepared in advance of the described security incident would specify a For instance, the Detroit Red Wings won the regional alternate route plan coupled with 2002 Stanley Cup in Detroit. Operating regional traveler information. from past experience, the Michigan State Police began closing portions of Interstate 75 and the Lodge Freeway (State Route 10) leading to downtown Detroit and the event ADVANCE PLANNING venue. This contingency plan went into effect at the start of the final period of play with Detroit leading the championship clinching game.(2) Contingency plan details were even posted in advance on Red Wings’ fan websites. Located approximately 16 miles north of the event venue, Royal Oak Figure 5-2 police and city officials maintained road clo- Nevada State Route 168 Closure During

sure contingency plans to accommodate the DAY-OF-EVENT ACTIVITIES Motorcycle Rally (Photo courtesy of the thousands of fans that went to the popular Laughlin Free Press) clubs and bars to celebrate the home team

win.(3) Performance Goals and Objectives Event Patron Violence The goals of managing travel for planned An outbreak of violence among event pa- special events include achieving predictability, ensuring safety, and maximizing effi-

trons warrants special security precautions POST-EVENT ACTIVITIES to contain and capture potential suspects. ciency. Table 5-4 states performance objec- Law enforcement may initiate a road closure tives, for the previously defined classes of as a first response to discourage people from transportation system users, applicable to entering and leaving the region where the satisfying the overall goal of operations effi- violence took place. ciency and safety. In meeting these performance objectives, the event planning During the 2002 Laughlin, NV River Run team must target the goal of achieving pre- EVENT PROFILE motorcycle rally, attended by tens of thou- dictability during the event operations plan- sands of motorcycle enthusiasts, a multiple ning phase. Table 5-5 presents common, homicide occurred after a clash between ri- easy-to-measure measures of effectiveness val motorcycle gangs. In an effort to cap- for assessing the performance

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Table 5-4 Transportation System Operations Performance Objectives for Planned Special Events USER CLASS PERFORMANCE OBJECTIVE Event patron • Minimize travel delay to/from the event. • Minimize conflicts between pedestrians and vehicles. • Minimize travel safety hazards. • Minimize impact of traffic incidents. • Disseminate accurate, timely, and consistent traveler information. • Increase automation of traffic control. • Maximize site access service flow rates. Non-attendee road • Minimize travel delay on major thoroughfares, freeways and major arterials. user • Minimize impact on commuter and trucker travel time reliability. • Maintain required parking and access for local residents and businesses. • Maintain unimpeded access for emergency vehicles. Transit user • Maintain scheduled travel times. • Minimize transit bus dwell times. • Maintain required transit station parking for non-attendee transit users.

objectives that describe traffic operations. clearance times (e.g., time for vehicles to The event planning team should consider clear a venue site area) and parking man- field studies to quantify existing MOEs at agement measures. key roadways and intersections to calibrate capacity analysis software and computer Table 5-5 simulation models applied during traffic Measures of Effectiveness for Assessing management plan development. The identi- Performance Objectives MEASURE OF fied MOEs represent day-of-event perform- LOCATION ance evaluation data, useful for: (1) making EFFECTIVENESS real-time adjustments to the traffic manage- Venue • Occupancy and turnover rate parking areas • Arrival and departure service ment plan on the day-of-event, (2) conduct- rate ing a post-event evaluation of transportation • Time to clear parking lots system performance, and (3) referencing Intersections • Vehicle delay during advance planning for future event • Queue length occurrences. Freeways • Travel time and delay and • Traffic volume to capacity NCHRP Synthesis 311, Performance Meas- streets ratio ures of Operational Effectiveness for High- • Traffic speed • Number and location of way Segments and Systems, reports on the crashes and other incidents state-of-the-practice of using performance • Traffic incident clearance time measures for the monitoring and operational management of highway segments and sys- (5) Planning Schedule and Deliverables tems. It assesses the relative strengths and weaknesses of various performance meas- Two deliverables, produced by the event ures. Based on a survey of current agency planning team during the event operations practice, the synthesis reports that perform- planning phase, include the feasibility study ance measures associated with planned spe- and the traffic management plan, designed cial event management are similar to traffic to mitigate impacts identified in the feasibil- and incident management, but may also in- ity study. Travel demand management clude performance measures related to represents a key component of the overall

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process when forecasted traffic demand lev- ized transit plan to reduce event traffic de- els approach or exceed available roadway mand. capacity. 5 The event planning team should: The previous chapter outlined a detailed special event permit process and identified • Obtain a completed special event permit advance planning deadlines applicable to the application and commence work on the event organizer. In turn, Figure 5-3 illus- event feasibility study no later than 60 trates a high-level event operations planning days prior to the event. OVERVIEW schedule for an event planning stakeholder • Start developing the event traffic man- group. The figure lists advance planning agement plan and obtain all initial public activities and potential stakeholder meetings input and recommendations no later than and public hearings in a timeline relative to 30 days before the event. the planning deliverables. The schedule in- • Set aside the final 14 days prior to the dicates other stakeholder planning initia- event for implementation activities in tives, such as the development of a special- addition to event information dissemination.

ADVANCE PLANNING

Perform Situation Analysis and Risk Assessment

Develop Transit Plan Conduct Public Outreach

Submit Permit Develop Travel Demand Management Initiatives Issue Permit Application Approval Approve

Establish Policies and Agreements Mitigation DAY-OF-EVENT ACTIVITIES

Develop Perform Advance to Propose Traffic Feasibility Implementation Event Management Study Activities Plan

EVENT OPERATIONS PLANNING TIMELINE

Meeting on Meeting on Meeting on Event Concept Traffic Management Traffic Management and Review Past Plan Requirements Plan Review

Lessons Learned POST-EVENT ACTIVITIES

Hearing with Public to Assess Needs 60 Days 30 Days 14 Days

MONTHS WEEKS DAYS Event N.T.S. Figure 5-3 Event Operations Planning Schedule EVENT PROFILE

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The planning schedule provides a generic and regular meetings with community timeline, recognizing that actual event op- groups and local elected officials. At these erations planning schedules vary considera- meetings, the event planning team should bly. For instance, some major, roving present the scope of the event in enough de- planned special events, such as the U.S. Golf tail to solicit quality input and buy-in from Open, require an event operations planning public stakeholders. Concerns revealed in phase spanning more than one year. this process should be addressed, and feasible solutions presented, so that the public Public Outreach stakeholders feel assured that impacts will be mitigated to their satisfaction. Planned special events that may impact adjacent neighborhoods and businesses usually The event planning team and public stake- require public involvement to address re- holders should identify potential problems lated concerns. The public represents indi- prior to the development of the traffic man- vidual residents, businesses, and associated agement plan. These problems can be iden- community groups. Public outreach activi- tified by first understanding the event scope ties initiated early in the event operations with consideration given to current planning phase can reveal important issues neighborhood traffic and parking restric- that local residents and businesses may tions, traffic management plans deployed have. Soliciting these concerns through during past planned special events, and iden- public involvement, and addressing the is- tified problems experienced during past sues in the planning process, can improve events. With this information, the public relations and day-of-event operations. stakeholders can make informed decisions and provide valuable input to the event Street use events or other planned special planning team. events that take place at venues located adjacent to residential and/or commercial dis- Example Case Studies tricts may significantly impact non-attendee mobility and community quality of life. Innovative strategies developed by the cities Specific neighborhood impact issues include of Seattle and Chicago to minimize heavy traffic demand on local streets and neighborhood traffic and parking impacts event patron use of available local on-street during discrete/recurring events at a perma- parking. These issues arise because, in nent venue are highlighted in three case some instances, event patrons may find on- studies summarized below. It should be street parking in residential neighborhoods recognized that an event planning team can and business districts affords more conven- implement these strategies on a temporary ient ingress and egress. In addition, illegal basis for less frequent continuous events and parking fines may not exceed, or signifi- street use events. cantly exceed, the fee charged at designated venue parking areas. Case Study One: University of Washington. Due to the construction of a new football Initiation of public outreach efforts includes stadium, the Seattle Seahawks moved their stakeholders, such as a traffic operations scheduled 2000 and 2001 home games to the agency or law enforcement, holding initial University of Washington’s Husky Stadium. Recognizing the Seahawks represented a

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new and different stadium user with unique formance objectives for the 2000 Seattle characteristics, the City of Seattle required Seahawks football season. development of a Seahawk Football Trans- 5 portation Management Program.(6) Case Study Two: Safeco Field in Seattle, WA. Safeco Field, home to baseball’s Seat- Key strategies included: tle Mariners, was constructed in 1999 and borders three neighborhoods. Recognizing • The City of Seattle DOT, Seahawks or- the residential and business needs of these ganization, University of Washington, neighborhoods, the City of Seattle devel- OVERVIEW neighboring residents, and other City of oped an Inaugural Season Transportation Seattle officials conducted formal meet- Management Program (TMP) for events at ings prior to and during the Seahawks the stadium venue.(7) football season to listen to community concerns, report on operations, develop Key strategies included: plan modifications, and review performance goal achievement. • Participating stakeholders set the follow- • A hotline was established for local resi- ing TMP goal: The primary goal, first dents to voice concerns and to commu- and foremost, is reducing the number of

nicate day-of-event observations. vehicles, drive-alone and otherwise, as- ADVANCE PLANNING • Stakeholders responded by developing sociated with game attendance, thereby carpool parking pricing incentives and deflecting the traffic and parking im- establishing new restricted parking pacts from the adjacent destination zones (RPZ) in residential neighbor- neighborhoods and the regional trans- hoods adjacent to Husky Stadium. portation system as a whole. The goals, • The number of parking enforcement of- which are stepped according to the kinds ficers assigned to patrol the RPZs on the of and anticipated attendance, are ex- day-of-event increased from 6 to 13, and pressed in vehicles per thousand attendees. the Seattle Municipal Court approved an DAY-OF-EVENT ACTIVITIES RPZ violation fine increase from $28 to • The Mariners organization, City staff, $44 (although a $71 fine was initially and the public formed the event planning proposed). team charged with developing the TMP. • Table 5-6 notes specific performance goals established by the event planning team to evaluate roadway system per-

Table 5-6 POST-EVENT ACTIVITIES Seahawk Football Transportation Management Program Goals and Objectives(6) MEASURED PER- GOAL MEASURE GOAL MET? FORMANCE No more than 195 Travel reduction 182 cars/1000 attendees Yes cars/1000 attendees Within 5% of Husky game -0.1% to 4.7% different Travel time Yes travel times than for Husky games

Duration of post-game Equal to or less than after EVENT PROFILE 35 minutes less Yes traffic Husky games

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• The stakeholders focused on meeting street parking by event patrons in adja- numerous performance-based traffic cent neighborhoods. demand mitigation requirements, varying by type of event and attendance lev- Case Study Three: U.S. Cellular Field in els, set by the Seattle City Council upon Chicago, IL. The City of Chicago DOT issuing a stadium master use permit. maintains a Resident Parking Permit Pro- • First year operation performance goals gram to preserve legal on-street parking for for Mariner’s baseball games ranged residents of neighborhoods surrounding U.S. from 330 (sell-out) to 345 vehicles per Cellular Field during all Chicago White Sox (8) 1000 attendees. The permit specified baseball games. third year operation and beyond performance goals ranging from 275 (sell- Key elements of the Resident Parking Per- out) to 325 vehicles per 1000 attendees. mit Program include: • A top priority for the TMP concerned deflecting special event parking impacts • For residents living within the program on the surrounding neighborhoods to the area, the City issues one resident parking Seattle Central Business District. permit per registered vehicle in addition • Table 5-7 lists specific measures consid- to one guest permit per resident. ered by City officials to minimize on-

Table 5-7 Measures Considered in Developing a Neighborhood Parking Management Plan for Seattle’s Safeco Field(7) PARKING MANAGEMENT OPTION • Extend parking meter enforcement hours (until at least 10 p.m. and on Sundays). • Replace existing meters with smart meters (programmable by season, allowing extended hours during baseball season, for instance). • Impose time limits on parking after 6 p.m. with signs (rather than extend meter hours, place 2 hour limits on metered spaces after 6 p.m. and on Sundays). • Impose time limits on parking after 6 p.m. with meter hoods. • Enforce parking restrictions 7 days per week (8 a.m. to 6 p.m. on Sundays). • Add new parking meters. • Reduce parking meter duration limits (change some 2 hour meters to 1 hour or less). • Replace 4 hour and unrestricted spaces with 2-hour spaces. • Refine role of City’s enforcement officers (add community/public relations function). • Assess higher fines for parking infractions in the ballpark neighborhoods. • Increase enforcement (additional parking enforcement officers on game days; multiple ticketing). • Create residential parking zones. • Increase number and/or size of loading zones. • Create business parking zones. • Discontinue access restrictions that temporarily remove on-street parking (before and after events). • Discontinue parking prohibitions for stadium access (before, during, and after events). • Parking space delineation in non-metered areas.

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• The City also makes available guest event travel impacts. Effective and rapid parking permits for area businesses and stakeholder review of event operations plan- 5 churches to allow customers and con- ning products requires: (1) an annotated gregation members to park in legal on- planning timeline, (2) a review process, and street parking spaces and gain access to (3) performance standards. off-street business/church parking within the program area. Annotated Planning Timeline

• Figure 5-4 shows a sign enforcing the OVERVIEW Resident Parking Permit Program. In cases where an event planning team col- • The City has a similar permit program in lectively develops a feasibility study, traffic place for neighborhoods surrounding management plan, and associated mitigation Wrigley Field, home to baseball’s Chi- strategies, an annotated planning timeline cago Cubs. proves effective for monitoring team progress.

The Wisconsin DOT found such a tool useful for tracking specific traffic management

planning and infrastructure deployment ac- ADVANCE PLANNING tivities required to prepare for the opening of Miller Park in Milwaukee. The agency maintained a responsibility matrix listing each action item, the stakeholder responsible, the due date, and the present deployment status. An event planning team should establish an annotated planning timeline early in the event operations planning phase and use the tool to guide subsequent team DAY-OF-EVENT ACTIVITIES Figure 5-4 meeting agendas as stakeholders develop Chicago Resident Permit Parking Program event impact mitigation strategies and tac- Enforcement tics.

Review Process Stakeholder Review of Planning Products Adopting a formal review process reduces unnecessary delay in producing event opera- POST-EVENT ACTIVITIES tions planning deliverables required to stage The previous chapter summarized various a planned special event. Key aspects to be criteria for planned special event permit ap- considered include: proval. However, as indicated in Figure 5-3, the event operations planning phase includes intermediate and final review periods for the • The review process should feature the event feasibility study and traffic manage- oversight team monitoring and reviewing plans developed by the event plan- ment plan. EVENT PROFILE ning team. Stakeholder review concentrates on the • The oversight team typically consists of identification and proposed mitigation of mid-to-upper level representatives of

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transportation agencies and law en- mitigation strategies or review planned spe- forcement in addition to elected officials cial event impacts on traffic should refer- and ranking officials of other public ence jurisdiction Traffic Impact Study agencies. guidelines defining accepted LOS thresh- • A regional organization may assume the olds. The LOS thresholds likely vary by duties of an oversight team. roadway classification. In urban and metro- • Under a formal review process, an event politan areas, jurisdictions may deem an planning team may seek oversight team LOS D, describing high-density stable flow, approval of a feasibility study scope or acceptable for freeways, arterials, and major conceptual traffic management plan intersections. Similarly, an LOS C, describ- prior to commencing work on the final ing stable flow, may represent the allowable deliverable. Both stakeholder groups in- threshold for local streets and intersections. teract again to review feasibility study Small urban and rural areas may have more results and final traffic management op- stringent requirements. Jurisdictions may erations plans. relax their performance standards and allow • Some jurisdictions have a champion LOS E operation, describing unstable charged with resolving institutional and capacity flow, on major roadway facilities operations issues affecting travel man- for infrequent planned special events. agement for planned special events. These champions have the position to Policies and Agreements mitigate issues hampering the event operations planning process. Therefore, The establishment of special policies and they should administer the review proc- agreements to support planning and day-of- ess. event management of planned special events • Jurisdictions should have an alternate facilitates efficient stakeholder collaboration official ready to replace the current and defines important event support stake- champion should that person resign from holder services that may be incorporated present duty. into a traffic management plan for a particular planned special event. These initiatives Performance Standards improve interagency relationships, clarify decision-making responsibilities and expec- This chapter included a review of various tations, and secure on-call services and transportation system operations perform- agency actions. For instance, a particular ance objectives and associated measures of policy or agreement may intuitively support effectiveness that stakeholders may use to a contingency response plan to mitigate un- monitor system performance on the day-of- anticipated congestion delay on the day-of- event and, in turn, evaluate travel manage- event. Stakeholders may develop policies ment efforts. During the event operations and agreements specific to a particular planning phase, stakeholders must set and planned special event or for all planned spe- agree to performance standards used to as- cial events in a region. Because of the po- sess traffic impact mitigation proposals. tential significant time to develop and ap- These performance standards typically rep- prove a particular policy or agreement, resent level of service (LOS) measures ap- stakeholders should establish these initia- plicable to freeway and street segments, tives early in the event operations planning freeway junctions, and roadway intersec- phase or during the program planning phase. tions. Stakeholders assigned to develop

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Table 5-8 summarizes four types of policies and agreements involving stakeholders re- Use of a standard street use event route of- 5 sponsible for event operations planning fers the following advantages: and/or day-of-event operations. • Allows reuse of traffic management and Interagency Agreement operations plans, with minor modifications as necessary. Interagency agreements include a joint op-

• Realizes a cost savings for stakeholders. OVERVIEW erations policy, memorandum of • Allows for the development of standard understanding, or mutual-aid agreement signs, specific to the event route and as- between two or more stakeholders. Table 5- sociated alternate routes for background 9 lists components of interagency traffic, that may be reused for future agreements. Appendix C contains an street use events. Illinois and Washington State joint opera- • Allows event patrons and non-attendee tions policy, between state DOT and state road users to become familiar with traf- police, that covers special event plan- fic patterns during recurring street use (9,10) ning. Stakeholders may also strike an events, thus minimizing potential traffic

interagency agreement, during the event problems on the day-of-event. ADVANCE PLANNING operations planning phase, applicable to a specific planned special event. Standard Street Use Event Routes Toll Facility Congestion Policy

The development and use of standard street Suspension of toll collections on turnpikes use event routes reduces the level and com- and other toll facilities during periods of plexity of event operations planning tasks heavy congestion represents a new policy and overall planning time. In establishing concept aimed at reducing congestion and such standard routes for parades and/or

the occurrence of traffic incidents at toll pla- DAY-OF-EVENT ACTIVITIES street races, stakeholders simplify planning zas. A toll facility congestion policy repre- tasks, thus creating a more efficient event sents a congestion mitigation strategy appli- operations planning process. The routes cable to planned special events. Both West specify appropriate event starting and end- Virginia and Maryland have experience with ing points coupled with staging areas for this policy: participant assembly and disbanding.

Table 5-8 Summary of Policies and Agreements Applicable to Managing Planned Special Events POST-EVENT ACTIVITIES ITEM EXAMPLE APPLICATION Interagency agreement • Joint operations policy between stakeholders that establishes a shared role regarding event operations planning and day-of-event travel management. • Memorandum of understanding defining stakeholder roles and responsibilities. • Mutual-aid agreement facilitating resource sharing and/or reimbursement for services. EVENT PROFILE Standard street use event routes • Routes established under the program planning phase for recurring street use events such as parades and races. Toll facility congestion policy • Suspension of tolls during periods of heavy congestion. Public-private towing agreement • On-call towing and recovery services during a special event.

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Table 5-9 moval and restoring the affected road sec- Components of Interagency Agreements tion back to normal operation. Public agen- COMPONENT cies commonly enter into agreements with • Advance planning duties and responsibilities one or more commercial towing companies • Day-of-event duties and responsibilities to secure on-call traffic incident clearance • Organization services, or at a minimum, the agencies • Resource sharing • Funding reimbursement mechanisms maintain a contact list of local private towing companies.

• A West Virginia Turnpike policy, enacted in December 2002, allows Turn- Traffic incident management represents a pike officials to open toll plazas for 15 key consideration in event operations plan- minutes any time vehicle queues extend ning. Event planning team stakeholders at least three miles upstream of the may establish event-specific public-private plaza. After the 15-minute period ends, towing agreements to secure on-site towing officials can determine whether the and recovery services. For instance, the queue dispersed or if another 15-minute City of Cincinnati has established, under the City rules and regulations for police rotation period is required. Under normal opera- (13) tions, Turnpike officials estimate that a wreckers, a special event tow category. vehicle joining a three-mile queue takes The City defines a special event tow as approximately 15 minutes to pass “when tow operator remains with police of- through a toll plaza. Officials noted 15 ficer for a specified period of time towing or minor crashes occurred on the Sunday moving vehicles as need arises.” The City after Thanksgiving in 2002, the Turn- regulation specifies a special event tow rate pike’s busiest day of the year.(11) of $20.00 per tow or $35.00 per hour, whichever is greater. • State legislators in Maryland debated a

proposed bill in 2003 to create a similar policy for the Chesapeake Bay FEASIBILITY STUDY Bridge.(12) The bill specifies suspending tolls if a traffic queue extends more than Overview five miles upstream of the toll plaza and is moving at less than 30 miles per hour. The structure and approach of a planned The increasing deployment of electronic special event feasibility study resembles a tolling may obviate the need for these Traffic Impact Study required for planned strategies in the future. developments, as illustrated in Figure 5-5. The figure shows the sequential steps in Public-Private Towing Agreement preparing a feasibility study for a planned special event. Private towing companies perform a specific functional activity in traffic incident man- Table 5-10 provides an overview of the first agement, that is, removal of disabled or five feasibility study components. The ac- wrecked vehicles, spilled cargo, and debris curacy of one analysis influences that of an- from an incident site. Law enforcement and other. Achieving predictability, a goal of traffic operations agencies alike have recog- managing travel for planned special events, nized the indispensable role private towing represents the focus of a feasibility study companies have in effecting incident re- effort.

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STEP SIX Traffic management plan MITIGATION OF IMPACTS 5

STEP FIVE Impact assessment ROADWAY CAPACITY ANALYSIS

STEP FOUR Trip assignment TRAFFIC DEMAND ANALYSIS

OVERVIEW STEP THREE Directional distribution (destination) PARKING DEMAND ANALYSIS

STEP TWO Directional distribution (origin) MARKET AREA ANALYSIS

STEP ONE Trip generation TRAVEL FORECAST

Figure 5-5 ADVANCE PLANNING Feasibility Study Analysis Steps

Table 5-10 Feasibility Study Analysis Summary COMPONENT ANALYSIS RESULT APPLICATION Travel forecast • Modal split • Number of trips by mode of • Input into parking de- travel mand analysis. • Event traffic genera- • Number of vehicle trips by • Input into traffic demand

vehicles per parking area and analysis. POST-EVENT ACTIVITIES unit of time Traffic demand • Background traffic • Background traffic demand • Input into roadway ca- analysis flow rate, adjusted for event- pacity analysis. required road closures • Event traffic assign- • Event traffic demand rate per ment assigned route Roadway ca- • Section and point ca- • Identification of capacity • Input into traffic man- pacity analysis pacity constraints and level of ser- agement plan. EVENT PROFILE vice • Input into travel demand • Network operations • Identification of bottleneck management assessment. locations and saturation flow rates

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The feasibility study gauges the impact a ing at area hotels. To increase travel fore- proposed event has on traffic and parking cast accuracy and meet the goal of achieving operations in the vicinity of the venue. It predictability, practitioners should research determines if a particular planned special appropriate historical data. event will cause travel problems, where and when the problems will occur, and the mag- The identification and quantification of site nitude of each identified problem using and transportation system capacity involves various MOEs. Initially, the study is con- performing a full inventory of the transpor- ducted without roadway capacity improve- tation system infrastructure serving the ments or initiatives to reduce travel demand. event venue. This includes obtaining data Once the feasibility study identifies event on roadway geometrics and associated regu- travel problems, practitioners can take steps lations (e.g., speed limits and travel restric- to mitigate transportation system deficien- tions). An inventory of freeway facilities cies. These results define the scope of the should include the capacity of such freeway traffic management plan required to success- components as ramp junctions and weaving fully manage travel for a planned special sections. In addition, street traffic control event. devices and signal timing plans must be identified and saturation flow rates deter- Data Requirements mined.

Feasibility study input data requirements Event operation characteristics impact both reflect measures of the three core factors travel demand and available capacity. The that determine the impact of the event: knowledge of certain event logistics, com- travel demand, road/site capacity, and event bined with available historical data, can help operation. Table 5-11 summarizes various predict the rate of event patron arrivals and types of input data to consider in a feasibil- departures over time. Practitioners, in tan- ity study. This includes transportation sys- dem with the event organizer, must also tem infrastructure, background traffic, and identify the scope of road closures and park- area data and information. With the assis- ing area needed just to stage the event (e.g., tance of other event planning team stake- parade/race route, hospitality areas, etc.). holders most data types are accessible. This does not include the roadway capacity and parking needed to accommodate event Travel demand data is used to develop the patron traffic. event travel forecast and to determine the event area of impact. Background traffic Travel Forecast data describes the scope of available roadway and parking capacity for event patron Travel forecast analysis involves estimating: traffic. Information regarding the venue (1) modal split, (2) event traffic generation, area assists in identifying possible event pa- and (3) traffic arrival rate. Event planning tron trip origins. For example, a venue lo- team stakeholders that typically collaborate cated in a downtown area may attract a sig- on this analysis include a traffic operations nificant number of patrons arriving from agency, traffic engineering consultant, tran- work, thus possibly reducing the number of sit agency, and event organizer. The event transit or vehicular trips generated. Events organizer supplies key input data regarding having a regional or greater scope may in- event operation. The transit agency assists volve a significant number of patrons stay-

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Table 5-11 Feasibility Study Data Requirements 5 FACTOR INPUT DATA DESCRIPTION Travel • Event patron • Daily attendance Demand traffic • Event patron demographics (e.g., advance/season ticket holder place of residence or zip code) • Admission (general/reserved seating and free/cost) • Venue attendance capacity

• Acceptable walking times (e.g., to determine available parking areas and OVERVIEW percent walking trips) • Background • Hourly traffic volumes traffic • Existing parking occupancy • Vehicle classification • Venue area • Employment centers in venue vicinity (e.g., number of jobs) • Hotels in venue vicinity • Historical • Attendance (e.g., trip generation rate) data (similar • Hourly traffic volumes events) • Parking demand (e.g., parking demand rate) • Vehicle occupancy

• Hourly/sub-hourly event patron arrival and departure distribution ADVANCE PLANNING • Modal spilt • Patron survey (e.g., demographics and travel) Road/Site • Roadway • Existing, areawide roadway network Capacity facilities o Freeway and arterial corridors o Local street facilities connecting corridors and the venue site • Location and capacity of site access points • Pedestrian (e.g., sidewalks and crossings) and bicycle accommodation • Geometrics, regulations, and lane assignments • Traffic control devices and traffic signal programming data • Toll plazas (freeway or bridge/tunnel) in venue vicinity • Parking • Location and capacity of site access points DAY-OF-EVENT ACTIVITIES availability • Location and capacity of off-street venue parking areas (free and paid) • Location and capacity of permitted on-street parking areas • Location and capacity of overflow parking areas • Transit avail- • Number and location of transit stations serving venue (e.g., public trans- ability portation – bus and rail) • Scope of transit services at identified stations (e.g., schedule and capacity) • Origin and scope of established express and charter bus service to venue (e.g., scheduled bus service from park and ride lots for special events only)

• Base transit spilt (e.g., without incentive or promotion) POST-EVENT ACTIVITIES Event • Event logis- • Venue location Operation tics • Event hours of operation • Site opening and closing times • Participant accommodation (e.g., arrive by bus, stay at hotel near venue, etc.) • Event personnel and volunteer travel demand • Site • Required road closures to stage event • Parking • Number of parking spaces lost in order to stage event (e.g., parking for EVENT PROFILE event participants, hospitality tents, etc.)

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in estimating modal split. The traffic opera- Francisco and New York, located within a tions agency or traffic engineering consult- metropolitan area, have excellent scheduled ant performs the analysis, and either stake- transit service, including commuter rail. holder may research historical traffic and Stadiums located in suburban areas, such as parking data or maintain a data archive re- Qualcomm Stadium in San Diego, and rural lated to operations for similar planned spe- areas generally have a high percentage of cial events. automobile trips.

Modal Split Travel time, travel convenience, parking accessibility and cost weighs significantly on Under the scope of a feasibility study, modal an event patron’s decision to drive or utilize split concerns identifying the existing modes an alternate mode of travel. This likely of travel event patrons will use to access the represents another contributor to the high event venue site. Common travel modes transit split in the San Francisco example, include personal automobile, public transit, where Pacific Bell Park resides adjacent to and walking. Public transit refers to sched- the downtown area. Other modes of travel uled bus transit or commuter rail. Transit include bicycle and taxi. agencies may assist in determining a base transit split, without service incentives or promotion, for patrons traveling to/from the event.

Illustrated in Figure 5-6, some patrons of the 1986 and 1995 U.S. Golf Open in rural Southampton, NY found the Long Island Rail Road commuter rail service an efficient and convenient mode of travel to/from Shin- necock Hills Country Club. To assure consideration of appropriate roadway mitigation, transportation operations planners analyzed a range of modal split percentages in the feasibility study to account for various scenarios. Commuter rail or other people mover systems exist in several metropolitan areas across the Nation and usually provide regular service to city stadium and arena venues. Transit availability includes scheduled express and charter bus service operating from other cities, suburban park and ride Figure 5-6 lots, and city neighborhoods. Commuter Rail Modal Split

Table 5-12 lists surveyed modal splits for Walking trips deserve consideration in mo- discrete/recurring events at a permanent dal split estimates for planned special events venue in San Francisco, New York, and San occurring at downtown venues. Practitio- Diego. The baseball stadium venues in San ners must consider the proximity of

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Table 5-12 Example Modal Split for Discrete/Recurring Events at a Permanent Venue 5 MODE OF TRAVEL EVENT ATTENDANCE AUTO TRANSIT WALKING OTHER San Francisco Giants 38,000 – 41,000 weekday baseball game – 48% 41% 8% 3% (capacity 41,000) August 2000(14) San Francisco Giants 38,000 – 41,000 weeknight baseball game – 50% 37% 7% 6% (capacity 41,000) OVERVIEW August 2000(14) San Francisco Giants 38,000 – 41,000 weekend baseball game – 58% 34% 5% 4% (capacity 41,000) August 2000(14) New York Mets weeknight 18,000 baseball game – 59% 41% -- -- (capacity 56,500) June 1997(15) San Diego Padres weekday baseball game – April/May Unknown 85% 12% -- 3% 1998(16) San Diego Padres weeknight baseball game – Unknown 95% 5% -- -- ADVANCE PLANNING April/May 1998(16) San Diego Padres weekend evening baseball game – Unknown 85% 12% -- 3% April/May 1998(16)

employment centers, residential develop- Event Traffic Generation ments, and hotels to a planned special event venue before dismissing walking as a viable Unlike other traffic generators such as travel mode. Venues located on university commercial developments, planned special DAY-OF-EVENT ACTIVITIES campuses typically draw a measurable per- event practitioners typically have advance centage of walking trips. Surveys for col- knowledge of event attendance and, in turn, lege football games have reported as many can develop traffic generation estimates via as 10 to 25 percent of event patrons arriving vehicle occupancy factors. On the other by foot.(17) hand, traffic generation rates, based on event traffic volume or parking occupancy data, Practitioners can best obtain measured data may not be appropriate for transfer and ap- on planned special event modal split through plication from one special event to another. POST-EVENT ACTIVITIES conducting a survey of event patrons. Ap- Too many variables exist with regard to pendix D contains an Internet-based event event category, event logistics, event popu- patron evaluation survey for those attending larity, weather, and parking characteristics. the 2003 Fair Saint Louis festival. In addi- Event operations and other external vari- tion to querying event patrons on mode of ables affect any application of historical data travel, obtaining origin location information to future events.

(e.g., zip code) assists event planning team EVENT PROFILE stakeholders configure transit schedules or Table 5-13 outlines a two-step process for express and charter bus services for future forecasting event traffic generation. Input similar events. data includes a modal split estimate since

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Table 5-13 Traffic Generation Forecast Process COMPONENT DETAIL Input data • Daily attendance • Percent automobile trips • Vehicle occupancy factor Step 1. (Daily Attendance) x (Percent Automobile Trips) = Person Trips Via Automobile Method Step 2. (Person Trips) / (Vehicle Occupancy Factor) = Vehicle Trips Result • Number of vehicle trips by personal automobile both to and from the event

the traffic generation forecast aims to esti- Traffic Arrival and Departure Rate mate the number of event-generated trips by personal automobile. In the absence of a In order to estimate peak traffic volumes daily attendance estimate, practitioners can generated by an event, practitioners must use percentage of venue capacity as a base. estimate the time and scope of peak traffic However, many continuous events or street flow during event ingress and egress. Traf- use events do not have a pre-specified venue fic arrival and departure rate indicates the capacity. Continuous events, such as fairs peak period (e.g., hour or 15 minute) of and festivals, often run for two or more event-generated traffic. The rate is used to days. Attendance generally fluctuates determine the following key parameters for greatly from day to day, with Saturday op- input into the traffic demand analysis: (1) erations yielding the highest daily atten- peak period time and (2) percent of total dance. A study of two-day (Satur- event-generated traffic within the peak pe- day/Sunday) festivals in West Virginia indi- riod. Event operation characteristics that cated 58 percent of the total festival atten- influence traffic arrival and departure rates dance was on Saturday.(18) The same study include: noted the following total event attendance distribution for three-day festivals: 20 per- • Event time and duration – e.g., specific cent on Friday, 50 percent on Saturday, and start time, abrupt end time, continuous 30 percent on Sunday. It should be recog- operation. nized that daily attendance reflects sched- • Event time of occurrence – e.g., uled headline entertainment or other main day/night, weekday/weekend. festival events. • Audience accommodation – e.g., reserved seating, general admission. Vehicle occupancy factors can serve as the • Event type – e.g., sports/concert, basis for estimating event-generated traffic. fair/festival, parade/race. Table 5-14 lists average vehicle occupancy factors for select discrete/recurring events at This section focuses on estimating the traffic a permanent venue and continuous events. arrival rate. The temporal share of event A discrete/recurring event at a permanent patron arrivals vary considerably by event venue that occurs on the weekend will likely type and requires prediction by practitioners. have a higher vehicle occupancy factor due Traffic arriving to an event can potentially to families and groups of tailgaters. A vehi- cause greater impacts to background traffic cle occupancy factor of 2.5 persons per ve- mobility than event departure traffic. This is hicle represents a common assumption, attributed to arrival traffic typically traveling however for forecasting purposes, practitio- from high-capacity roadway facilities (e.g., ners should consider a range of factors from freeways and arterials) to low-capacity fa- (15) 2.2 to 2.8 depending on local conditions. cilities (e.g., venue access roads). Roadway

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Table 5-14 Example Planned Special Event Vehicle Occupancy Factors EVENT ATTENDANCE AVERAGE VEHICLE OCCUPANCY 5 Discrete/Recurring Event at a Permanent Venue San Francisco Giants baseball games – 38,000 – 41,000 2.8 persons per automobile August 2000(14) (capacity 41,000) Anaheim Angels weeknight baseball game – 18,197 2.6 persons per automobile July 1997(15) (capacity 37,000) Cleveland Indians Saturday baseball game – 43,070 2.64 persons per automobile July 1997(15) (capacity 43,368) New York Mets weeknight baseball game – 18,000 2.31 persons per automobile OVERVIEW June 1997(15) (capacity 56,500) San Diego Padres weekday baseball game – Unknown 2.3 persons per automobile April/May 1998(16) San Diego Padres weeknight baseball game Unknown 2.5 persons per automobile – April/May 1998(16) San Diego Padres weekend evening Unknown 3.0-3.1 persons per automobile baseball game – April/May 1998(16) Denver Broncos football games – 3.0 persons per automobile on-site; 76,000 1998/2001(19) 2.3 persons per automobile off-site Continuous Event 1997 Stonewall Jackson Heritage Arts & 45,000 to 50,000 2.46 persons per automobile Crafts Jubilee - West Virginia(18) (four-day total)

6,000 ADVANCE PLANNING 1997 West Virginia Honey Festival(18) 2.15 persons per automobile (two-day total) 1997 West Virginia Wine & Jazz 3,500 2.42 persons per automobile Festival(18) (two-day total) 22nd Mountain Heritage Arts & Crafts Festi- 25,000 2.30 persons per automobile val – West Virginia(18) (three-day total)

congestion that occurs during event ingress may create queue spillbacks to freeways and major streets, thus impacting background DAY-OF-EVENT ACTIVITIES traffic.

Drivers departing an event venue site generally have little or no choice of exit routes. Roadway capacity constraints include freeway entrance ramps and turning movements to arterials and other major collector roadways. Departing traffic queues are usually POST-EVENT ACTIVITIES constrained to the venue access roadway and spillback into the parking areas. Figure 5-7 shows traffic operations, following a football game at Qualcomm Stadium in San Diego, CA, at: (1) a freeway entrance ramp, (2) a venue access road upstream of a freeway, and (3) an on-site venue parking area. EVENT PROFILE Figure 5-7

Event Patron Departure from a Dis-

crete/Recurring Event at a Permanent Venue

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Table 5-15 indicates traffic arrival rates and immediately prior to the event start. Since time of peak arrival for select dis- event patrons do not place a high priority on crete/recurring events at a permanent venue meeting a continuous event start time, the and continuous events. Time of arrival de- concentration of continuous event arrivals is pends on audience accommodation (e.g., relatively low compared to other event cate- general admission or reserved seating) gories. The peak level of event-generated and/or the nature of pre-event activities. traffic demand may occur during the middle Such activities include tailgating or prac- of a continuous event operating period when tices. Figure 5-8 illustrates NASCAR pre- both event arrival and departure traffic trav- race preparations that attract a significant erse the roadway system as patrons come number of event patrons well before the and go from the event. event start. Practitioners may use event patron travel As illustrated in Table 5-15, the traffic arri- surveys in addition to historical event- val rate for sporting games and concerts generated traffic volume and/or parking oc- peaks within one hour of the event start. cupancy counts to estimate the traffic arrival Due to high traffic arrival concentration, rate and peak time of occurrence. It should practitioners may consider estimating a peak be noted that weather conditions, particu- 15-minute traffic arrival rate and associated larly for continuous events and street use peak hour factor for roadway capacity events, may significantly skew data. Thus, analysis. With regard to continuous events, practitioners must exercise great care when peak traffic arrival rate generally occurs developing future event estimates from historical data.

Table 5-15 Example Planned Special Event Traffic Arrival Rate Characteristics EVENT SITE PEAK TRAFFIC EVENT ATTENDANCE START OPEN FLOW OCCURRENCE Discrete/Recurring Event at a Permanent Venue 2001 NASCAR Kansas 400(20) 100,000+ 12:00 P.M. 6:00 A.M. 8:00 A.M. 2+ hours 1 hour before first pitch Anaheim Angels weeknight 18,197 Evening before first (82% of arrivals – 29% baseball game – July 1997(15) (capacity 37,000) pitch peak 15 minutes) 2+ hours 1 hour before first pitch Cleveland Indians Saturday 43,070 Afternoon before first (67% of arrivals – 19% baseball game – July 1997(15) (capacity 43,368) pitch peak 15 minutes) 2+ hours 1 hour before first pitch New York Mets weeknight 18,000 Evening before first (62% of arrivals – 16% baseball game – June 1997(15) (capacity 56,500) pitch peak 15 minutes) Continuous Event Louisiana World Exposition in 31% of event patrons ar- New Orleans – weekday August 35,700 10:00 A.M. -- rived by 11:00 A.M. 1984(21) Louisiana World Exposition in 29% of event patrons ar- New Orleans – Saturday in August Unknown 10:00 A.M. -- rived by 11:00 A.M. 1984(21)

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not offer advance ticket sales typically require a market analysis based on travel time or distance and referencing area population 5 distribution.

Figure 5-9 illustrates an example travel time analysis for a downtown Chicago lakefront fireworks display. A geographic information system or other mapping software tool OVERVIEW can create travel time zones, as shown in the figure, based on user-defined thresholds. Multiple travel time zones allow users to Figure 5-8 perform a weighted analysis of population Pre-Event Activity distribution. Practitioners should categorize area population within each travel time zone Market Area Analysis by zip code or, for a 15 minute threshold or less, by census tract. Most geographic in- A market area analysis identifies the origin formation systems and computer mapping

and destination of trips to and from a tools generate spreadsheets identifying all ADVANCE PLANNING planned special event. The analysis focuses spatial population categories within each on developing a regional directional distri- travel time zone. Using the spreadsheet, bution of event patron trips to/from an event practitioners can assign a freeway or arterial site via personal automobile. The site refers corridor, serving the event venue site, to to the collective parking areas serving the each defined population category. The venue. A regional directional distribution population distribution among roadway sys- specifies: (1) the freeway and arterial corri- tem corridors constitutes the regional direc- dors serving the venue site and (2) the per- tional distribution for the planned special cent split and volume of event-generated event. Practitioners can also incorporate DAY-OF-EVENT ACTIVITIES automobile trips traversing each corridor. Census socioeconomic data into an analysis Appendix E contains a regional directional as necessary. distribution prepared for the NASCAR Kan- sas 400 race.(20) The described travel time analysis methodology applies to a distance analysis as well. Table 5-16 summarizes three analysis meth- Instead of travel time thresholds, users de- ods used to define a planned special event fine distance thresholds. Practitioners market area. should exercise care in developing a planned POST-EVENT ACTIVITIES special event market area by travel time or Travel Time and Distance Analysis absolute distance to the event venue site:

Practitioners can apply a travel time analysis • In the case of continuous events or or distance analysis to estimate the market street use events, the market area area for any planned special event. Con- must incorporate only the commu- tinuous events or street use events that do nity or region the event is staged for. EVENT PROFILE

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Table 5-16 Market Area Analysis Methods METHOD DESCRIPTION Travel time analysis • Determine population distribution within travel time threshold of event venue. Distance analysis • Determine population distribution within distance radius of event venue. Origin location analysis • Determine weighted distribution of known origins by place or zip code.

origins. Input data includes advance or season ticket holder place of residence (e.g., place or zip code) or place of trip origin obtained through a past/similar event travel survey. An event economic impact study also indicates the cities or regions patrons will arrive from. A discrete/recurring event at a permanent venue requires ticket sales, and event organizers initiate ticket sales weeks and even months in advance of the event. But, event organizers or ticket sales companies may consider customer information confidential or proprietary.

Figure 5-9 An event patron travel survey (see Appendix Example Travel Time Analysis D) proves effective in determining the exact origin of a patron trip to a planned special • Discrete/recurring events at a permanent event. For instance, weekday events may venue, such as professional/major col- attract a significant percentage of non-home- lege sporting events or major concerts, based trips as event patrons arrive from warrant an expanded market area. work. A survey of patrons attending week- • A travel time or distance analysis for night baseball games at Pacific Bell Park in San Francisco indicates 28 percent of pa- these events should not reflect a sensitiv- (14) ity to travel time or distance at the trons come from work. An event patron city/suburb level. In other words, an travel survey captures this critical informa- event patron located in a city suburb tion. Event patron departures from the event typically does not factor travel time into venue site typically involve home as a desti- a decision to attend a professional or ma- nation. jor college sporting event at a downtown venue. Practitioners performing an origin location analysis determine a geographical distribu- Origin Location Analysis tion of event patron origins. In turn, this distribution defines the freeway and arterial An origin location analysis represents the corridors that event patrons will use to ac- most accurate method for developing an cess the event venue site in addition to a event-specific regional directional distribu- traffic distribution. An origin location tion. This analysis utilizes a statistically analysis applies to all planned special significant database of event patron travel events.

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Parking Demand Analysis In evaluating parking supply versus demand, A parking demand analysis functions to de- consider as a rule of thumb that 90 to 95 5 termine the amount of required parking for percent lot occupancy represents a full park- (23) event patrons in the vicinity of the event ing area. This especially applies under venue. A parking occupancy study drives scenarios where event patrons must self- the overall analysis and determination of park. When a parking area reaches a near- event parking areas. This study indicates the capacity occupancy level, drivers experience difficulty locating an empty parking space level of parking spaces occupied, relative to OVERVIEW lot capacity, at intermittent time intervals. It and must circulate through the lot again or also specifies an estimate of peak parking seek another parking area. Continuous demand, a figure particularly useful for events and street use events often utilize managing continuous events where parking self-park areas. space turnover occurs throughout the event day. Overflow parking areas comprise both on- street parking and public/private off-street Figure 5-10 presents a parking demand parking areas, located off-site but in the im- analysis process used to determine the ade- mediate vicinity of the event venue. Figure quacy of event venue (on-site) parking and 5-11 shows a designated off-street parking ADVANCE PLANNING the identification of appropriate off-site area, as noted by a light post banner, for the parking areas. The flowchart denotes an Summerfest music festival in downtown analysis conducted for a one-time interval. Milwaukee, WI. Identification of off-site Practitioners should perform an iterative parking areas depends on walking distance parking demand analysis, over hourly time to the event venue. For example, a 15- periods as necessary, if considering parking minute walking time threshold allows con- areas characterized by high background sideration of off-street parking areas within parking turnover. 3,600 feet of an event venue, assuming a pedestrian walking speed of 4 feet per sec-

DAY-OF-EVENT ACTIVITIES Examination of on-site parking areas must ond. Parking areas located further from the account for spaces lost to the event sponsors, venue would require a continuous shuttle bus staging, limousine and taxi staging, me- service. dia parking, event employee parking, and event participant parking. Net parking sup- Table 5-17 shows a parking occupancy sum- ply incorporates event staging needs and any mary for a regional/multi-venue event in background traffic that can legally use the downtown Denver, CO. The spreadsheet format conveniently organizes and presents

parking area during event hours of opera- POST-EVENT ACTIVITIES tion. In order to conceptually measure park- occupancy estimates by time of day and day ing supply within a non-striped area, assume of week. A parking demand analysis for a 150 cars per acre as a rule of thumb.(22) The regional/multi-venue event presents special travel forecast analysis yields an estimate of challenges. Practitioners must determine the parking demand by quantifying the antici- hourly parking requirements for each facility pated number of event-generated automobile separately. Parking areas in this case func- trips. Aside from continuous events, practi- tion under shared parking operation, servic- EVENT PROFILE tioners should perform a parking demand ing variable demand rates from different analysis that accounts for maximum event- planned special events over the course of a generated parking demand. day.

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Identify On-Site Parking Area(s)

Parking No Use 150 cars/acre to Area Estimate Number Striped? of Spaces

Yes Inventory Gross Number of On-Site Spaces Estimate Event-Generated Vehicle Trips

Estimate Number of On-Site Parking Yes Spaces Needed to DONE Supply > Demand? Stage Event

Measure On-Site Parking Area No Background Occupancy

Identify Off-Site Parking Area No

Walking No Shuttle Service Distance to Venue Available for Acceptable? Event?

Yes Yes

Use 150 cars/acre to Parking No Estimate Number Striped? of Spaces

Yes Inventory Gross Number of Off-Site Spaces

Compute Net Remaining Event Parking Demand Off-Site Parking Yes Supply > Remaining DONE Demand? Measure Off-Site Parking Area Background Occupancy No

Figure 5-10 Parking Demand Analysis Process

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event-generated traffic arriving to or departing from a planned special event. The re- 5 gional directional distribution, as determined in the market area analysis, quantifies the percentage of event patron trips (e.g., origins) by regional freeway and arterial corridor, and the planned special event parking areas, as determined in the parking demand OVERVIEW analysis, represent sink nodes or location of trip destination. Traffic assignment includes event-generated automobile traffic, express buses, charter buses, limousines, and other Figure 5-11 vehicles transporting event patrons, partici- Designated Event Off-Site Parking Area pants, and event employees. Practitioners performing traffic demand analyses should possess a personal knowledge of the roadway system surrounding an event venue in

addition to existing traffic conditions. ADVANCE PLANNING

A parking demand analysis assesses event parking sufficiency. The analysis does not define local traffic patterns to/from individual parking areas. Practitioners, instead, must gauge the utility associated with drivers choosing individual parking areas. The key components comprising this utility include driving time, parking cost, and walk- Table 5-17 (24) DAY-OF-EVENT ACTIVITIES Example Event Parking Occupancy ing time. The attractiveness of each lot Summary(23) varies by freeway or arterial corridor serving the event site, yet event patrons will accept a moderate increase in overall driving/walking time in exchange for a substantial parking cost savings. The event planning team and Traffic Demand Analysis traffic management team must recognize such driver behavior and formulate the ap- POST-EVENT ACTIVITIES propriate traffic flow routes and develop A traffic demand analysis determines: (1) a traffic management strategies to manage site local area directional distribution and (2) the access and circulation effectively. Figure 5- overall assignment of event-generated traf- 12 illustrates one strategy, instituting on- fic. This analysis references results obtained street parking restrictions on the day-of- through the travel forecast, market area event. Pre-trip and en-route traveler infor- analysis, and parking demand analysis. mation also influences driver choice regard- EVENT PROFILE ing parking selection. The local area directional distribution indicates freeway ramps and intersections, including turning movements, traversed by

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road segment capacity analysis conducted as part of a feasibility study for a regional/multi-venue event in Denver, CO.

Figure 5-12 Local Area Planned Special Event Parking Restriction Figure 5-13 Example Preliminary Road Segment (23) Traffic demand analysis includes developing Capacity Analysis composite background and event-generated traffic projections for all roadway system facilities serving the event venue. Compos- Roadway Capacity Analysis ite traffic volumes expressed as an hourly (or sub-hourly) rate meet roadway capacity A roadway capacity analysis uses traffic analysis input requirements. These rates demand analysis results to measure the im- identify the peak hour capacity analysis pe- pact of a proposed planned special event on riods during event patron arrival and/or de- roadway system operations. At the feasibil- parture. Practitioners must adjust back- ity study level, a roadway capacity analysis ground traffic volumes to account for dis- references existing roadway facility opera- placed and diverted traffic due to road clo- tions and capacity (e.g., no reverse flow op- sures required to stage the planned special eration or other capacity enhancements). event. These road closures alter traffic pat- The analysis assumes pedestrian access terns to/from commercial trip generators, management strategies will minimize pedes- residential areas, and places of worship. trian/vehicular conflicts, and parking area Displaced background traffic assignment access points provide sufficient service flow involves identifying the shortest path alter- rates through proper design. Regardless of nate route that has excess capacity. capacity analysis outcome, pedestrian accommodation and parking management rep- As a preliminary step to assess the need to resent key considerations in a planned spe- perform a detailed roadway capacity analy- cial event traffic management plan. sis, draw a circular screen line (e.g., 0.5 to 1 mile radius) around the event venue site. Roadway capacity analysis involves freeway Note each roadway segment intercepted by segments, freeway junctions such as ramps the screen line, and estimate the segment’s and weaving areas, street segments, signal- capacity in each direction of travel. Create a ized intersections, and unsignalized intersec- chart of hourly composite traffic volumes tions. To evaluate these facilities, practitio- for each identified segment, and assess ca- ners can employ one of two approaches: (1) pacity deficiencies in both directions of analyze section and point capacity or (2) travel. Figure 5-13 shows a preliminary analyze network operations.

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• The first approach pertains to applying Highway Capacity Manual (HCM) recommended capacity analysis method- 5 ologies to discrete locations in the study area. Practitioners determine roadway sections, freeway junctions, or intersections for analysis, then apply an appropriate HCM methodology to identify movement capacity constraints and OVERVIEW measure operations level of service. • The latter approach concerns utilizing a computer traffic simulation model to identify bottleneck locations, or hot Figure 5-14 spots, and associated saturation flow CORSIM Simulation Animation rates. Practitioners scope the size and detail of the simulation model network, Mitigation of Impacts and the model works to reveal opera-

tional deficiencies. Mitigating anticipated planned special event

ADVANCE PLANNING impacts on travel represents the ultimate Computer traffic simulation models provide goal of conducting a feasibility study. The seamless analysis of traffic operations across mitigation of congestion and potential safety a network of roadway segments and inter- impacts identified through a feasibility study sections. This proves particularly useful in requires development of a traffic manage- analyzing a corridor of closely spaced traffic ment plan and complementing travel de- signals where signal coordination and vehi- mand management strategies. In turn, prac- cle spillback from adjacent intersections titioners can utilize the tools and techniques sharply impact traffic operations. Numerous used to determine feasibility study results in macroscopic and microscopic simulation order to evaluate various mitigation strate- DAY-OF-EVENT ACTIVITIES models exist, including the CORSIM micro- gies and determine if the selected strategies scopic computer traffic simulation model adequately mitigate identified transportation developed and supported by FHWA. COR- system deficiencies. SIM can interface component freeway

(FRESIM) and arterial (NETSIM) simula- Table 5-18 lists numerous tools for mitigat- tion models. For example, it has the capa- ing planned special event impacts on local bility of showing a freeway entrance ramp roadway and regional transportation system bottleneck and the resulting queue spillback operations. In meeting the overall travel POST-EVENT ACTIVITIES on adjacent streets (or vice versa). As management goal of achieving efficiency, shown in Figure 5-14, CORSIM also affords these tools target utilizing the excess capac- practitioners and event planning team stake- ity of the roadway system, parking facilities, holders the opportunity to view an animation and transit. Through travel demand man- of simulated traffic operations. agement, event planning team stakeholders develop attractive incentives and use inno-

vative communication mechanisms to influ- EVENT PROFILE ence event patron decision-making and, ultimately, traffic demand. Chapters 6 and 7

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Table 5-18 Tools for Mitigating Planned Special Event Impacts on Transportation System Operations CATEGORY EXAMPLE TOOLS Traffic Control and Capacity Improvements Freeway traffic control • Ramp closures or additional capacity • Alternate routes • Ramp metering Street traffic control • Lane control • Alternative lane operations • Road closures • On-street parking restrictions • Trailblazer signing • Parking management systems Intersection traffic control • Access and turn restrictions • Advance signing to improve traffic circulation • Traffic signal timing and coordination Traffic incident management • Service patrols • Tow truck staging • Advance congestion warning signs • Portable lighting

Traffic Management Traffic surveillance • Closed-circuit television systems • Field observation • Aerial observation • Media reports • Portable traffic management systems En-route traveler information • Changeable message signs • Highway advisory radio • Media • Static signing • Destination signing

Travel Demand Management Transit incentives • Public transit service expansion • Express bus service from park and ride lots • Charter bus service High occupancy vehicle incentives • Preferred parking • Reduced parking cost Event patron incentives • Pre-event and post-event activities Bicyclist accommodation • Bicycle routes and available parking/lock-up Local travel demand management • Background traffic diversion • Truck diversion Pre-trip traveler information • Internet • Telephone information systems • Public information campaign • Event and venue transportation guide • Media

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detail impact mitigation strategies and tac- affected (e.g., does the external factor tics. impact a particular corridor or the entire region?) 5 EXTERNAL FACTORS • Intensity – volume of impact (e.g., how severe is the impact?) AFFECTING SCOPE OF EVENT IMPACT Practitioners should express the impact of an external factor in terms of how it affects

travel demand, road/site capacity, and per- OVERVIEW Overview sonnel/equipment resource quantities. Fea- sibility study input data can reflect adjust- This chapter summarizes event operations ments made due to certain anticipated exter- planning and impact analysis activities that nal factors, or practitioners can rerun park- address the core factors affecting planned ing and roadway capacity analyses to ac- special event severity. That is, travel de- count for a new unexpected factor (e.g., oc- mand, road/site capacity, and event opera- currence of emergency road construction). tion. A number of secondary factors warrant In turn, revised results may warrant adjust- consideration in the event operations phase, ments to the event traffic management plan. including:

ADVANCE PLANNING Available Resources • Available resources

Weather • Available resources refer to the quantity and • Concurrent roadway construction experience of personnel and equipment • Concurrent planned special events available to plan and conduct day-of-event travel management operations. Besides the These factors can greatly influence the level size of a planned special event, the level of of impact a planned special event has on required resources depend on time/place of transportation system operations. By gain-

occurrence, other planned special events, DAY-OF-EVENT ACTIVITIES ing an understanding of the special chal- and equipment status. lenges that these external factors present, the event planning team can develop appropriate A special factor that may place significant contingency response plans, using the tools strain on available resources involves the and strategies presented in Chapters 6 and 7, occurrence of planned special events at a to mitigate infrequent but high-impact sce- venue under reconstruction. Shown in Fig- narios. ure 5-15, venue reconstruction places addi-

tional demand on the amount of traffic man- POST-EVENT ACTIVITIES An assessment of the level of impact that an agement team personnel and equipment re- external factor has on travel during a par- sources needed to manage events hosted by ticular planned special event involves the the venue during its reconstruction. Stake- consideration of the following components: holder response to on-site parking restrictions include redevelopment of traffic man- • Duration – temporal impact (e.g., when agement plans to accommodate parking de- does the external factor impact opera-

mand, pedestrian access, and traffic flow in EVENT PROFILE tions and for how long?). the immediate vicinity of the venue. • Extent – spatial impact or scope of area

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will bypass arriving at the venue early to tailgate, thus concentrating patron arrivals.

Concurrent Road Construction and Planned Special Events

The occurrence of planned events, including road construction and other planned special Figure 5-15 events, create a range of impacts affecting Stadium Reconstruction different traffic management plan components. On a regional level, the characteris- Figure 5-16 presents a site and pedestrian tics (e.g., increased traffic demand, accommodation plan for 2002 Green Bay road/lane closures) of concurrent planned Packers games during Lambeau Field reno- events reduce available capacity in roadway vation. Appendix F contains contingency corridors serving a particular planned spe- parking and pedestrian accommodation cial event, thus affecting traffic flow pat- plans for event patrons traveling to Lambeau terns. Local impacts include reduced park- Field. ing supply, in the event of other area planned special events, and restricted traffic Weather circulation.

Weather conditions affect travel demand, The identification of concurrent planned road/site capacity, or both. For example, in events requires interagency communication winter, snow banks in permanent venue at the local, county, and state level. Figure parking areas reduce the number of on-site 5-18 illustrates an example of a local de- parking spaces required for an event sell- partment of public works (DPW) inventory, out. Rain can create significant problems accessible through the DPW website, of ac- for unpaved parking areas and access roads. tive local road construction and other A one-day rain event totaling approximately planned special events within the jurisdic- 0.70 inches during the 2002 U.S. Golf Open tion. forced the traffic management team to close all unpaved parking areas adjacent to the Key considerations include: golf course. Figure 5-17 displays a traffic advisory service television announcement • With regard to planning for a specific issued to indicate contingency parking ar- planned special event, the event planning rangements that used paved lots. team should identify road construction activities in all jurisdictions within a cer- With regard to travel demand, weather contain travel time or distance radius, ditions have a significant impact on atten- equivalent to the event market area, of dance (e.g., increased attendance or reduced the event venue. Appendix G contains a attendance) and/or the rate of arrivals and local stakeholder outreach letter pre departures at some special events. For in- pared by the Wisconsin DOT to identify stance, event patrons will attend an event at local road construction in the vicinity of a domed stadium on a rainy day, but patrons Miller Park and scheduled during the 2002 All-Star baseball game.

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5 OVERVIEW ADVANCE PLANNING

Figure 5-16 Site and Pedestrian Accommodation Plan for Stadium Reconstruction DAY-OF-EVENT ACTIVITIES

• The event planning team must also interact with area venue operators and determine a timeline of planned special events in the region, particularly those affecting the transportation system serving the subject planned special event. POST-EVENT ACTIVITIES • Recognizing the regional impacts (e.g., county and multi-county) of major planned special events, the event planning team should obtain information, in- Figure 5-17 cluding attendance estimates, on planned Contingency Parking Plan for Weather special events occurring in other metropolitan areas and areas with large venues within a certain radius (e.g., 50 or 100 EVENT PROFILE miles). Highway corridors traversing one jurisdiction can realize a significant

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regular meetings with traffic operations agencies, law enforcement, community officials, event organizers, and other agencies. The committee facilitates communication and coordination between specific event planning and operation task forces to ensure optimal application of personnel and equipment resources. The Traffic Incident Man- agement Enhancement (TIME) program in southeastern Wisconsin maintains such a committee. As highlighted in Chapter 2, the TIME special event committee proposed development of a traffic management plan- Figure 5-18 ning tool designed to evaluate the severity Internet Summary of Road Construction and level of any planned special event proposed Planned Special Events (Graphic courtesy of in the greater Milwaukee metropolitan area. the City of Milwaukee DPW.) Table 5-19 lists specific external factors, and associated criteria, accounted for in the draft planning tool. increase in background traffic during typical off-peak periods as a result of REFERENCES traffic generated by major events occurring in other jurisdictions. 1. Held, T., “Dead Family Reunion in East Troy Is a Go,” Milwaukee Jour- External Factor Monitoring and nal-Sentinel, June 28, 2002. Assessment 2. Schmitt, B., “State Troopers Close The event planning team should maintain, Roads into Downtown Detroit,” De- and continually update, a spreadsheet matrix troit Free Press, June 13, 2002. or map of inter-jurisdictional roadway construction and planned special events occur- 3. Laitner, B., “Royal Oak Preparing to ring over some defined period of time. For Handle Crowds of Red Wings Fans,” example, Appendix G contains a Wisconsin Detroit Free Press, June 13, 2002. DOT summary of local and state road construction coupled with major planned special 4. “Hundreds questioned in Nevada Ca- events occurring in the Milwaukee metro- sino Deaths,” CNN.com, April 28, politan area over Summer 2002. Identifica- 2002. tion of concurrent planned events allows stakeholders to merge transportation plan- 5. Shaw, T., Performance Measures of ning and operations efforts and consider re- Operational Effectiveness for High- vising road construction schedules. way Segments and Systems, NCHRP Synthesis 311, Transportation Re- On a broader scale, a regional committee on search Board, National Research planned special events monitors planned Council, Washington D.C., 2003, 59 events across a metropolitan area through pp.

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Table 5-19 External Factors Considered in the Wisconsin TIME Program 5 Special Event Planning Tool(25) INCREASING EVENT IMPACT QUESTION CRITERIA What is the effect of construction on traffic? Is there a construction project on any of the corridors Not appli- Some Moderate Considerable Severe leading to or away from the special event venue? cable impact impact impact impact Are there any lane closures? What effect does the event scheduling have on traffic? OVERVIEW Is the event scheduled to begin or end during a peak period? Not appli- Some Moderate Considerable Severe Is there more than one event beginning or ending at the cable impact impact impact impact same time? What are the weather conditions? Is there a forecast for severe weather before, during, or Severe- Severe- Clear Mild Moderate after the special event that might affect traffic? summer winter Are all human resources available? Is the event scheduled to begin and end during normal working hours? Yes Most Some Few None Are key individuals available if needed?

Is all equipment available? ADVANCE PLANNING Are all facilities available? Is communication equipment working? Yes Most Some Little None Is all traffic control equipment available?

6. Markley, D.D., N.L. Conrad, and http://www.ci.chi.il.us/Transportatio G.S. Rutherford, “Serving the Uni- n/Sox/. [2003, April 25]. versity of Washington’s Husky Sta- dium,” Preprint No. 00113, Prepared 9. Joint Operational Policy Statement,

for the 2001 ITE Annual Meeting Illinois Department of Transporta- DAY-OF-EVENT ACTIVITIES and Exhibit, Institute of Transporta- tion and Illinois State Police, Febru- tion Engineers, Chicago, Illinois, ary 1999. August 19--22, 2002. 10. A Joint Operations Policy Statement, Washington State Patrol and Wash- 7. Rankin, E.A., “A Home Run or Out ington State Department of in Left Field? Transportation Man- Transportation, Washington,

agement for the New Seattle Mari- February 2002. POST-EVENT ACTIVITIES ner’s Baseball Park,” Prepared for the ITE 1998 Annual Meeting and 11. Wrenn, D., “Turnpike Letting Driv- Exhibit, Institute of Transportation ers Go Free in Heavy Traffic,” Engineers, Toronto, Ontario, Can- Charleston Daily Mail, December 4, ada, 1998. 2002.

8. “2003 U.S. Cellular Field Resident 12. Townsend, E., “Freshman Delegate EVENT PROFILE Permit Parking Program”, Chicago Wants Bridge Tolls Stopped in Department of Transportation, Chi- Backups,” The Star Democrat, Feb- cago, Illinois, [Online]. Available: ruary 10, 2003.

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13. “Wrecker and Towing Rules and County of Denver by Turner/HNTB, Regulations for Police Rotation June 2002. Wreckers,” City of Cincinnati Mu- nicipal Code Section 869.21. 20. Volz, M.A. and B.J. Nicholson, “Kansas Speedway Event Manage- 14. Robbins, G., A. Felder, and W.E. ment Using ITS,” n.d. Hurrell, “San Francisco’s New Downtown Ballpark: A Home Run 21. Womble, J.E., “A Transportation and for Public Transit,” Preprint No. Tourism Profile of Visitors to the 00111, Prepared for the 2001 ITE 1984 Louisiana World Exposition in Annual Meeting and Exhibit, Insti- New Orleans,” ITE Journal, Vol. 55, tute of Transportation Engineers, No. 4, April 1985, pp. 49--53. Chicago, Il., August 19--22, 2001. 22. Boggs, R., “Challenges in Support- 15. Grava, S. and F. Nangle, “Get Me to ing Planned Special Events in Your the Ball Game on Time – Access Community,” Presented at the Insti- Time Patterns at Baseball Stadia,” tute of Transportation Engineers Preprint No. 00395, Prepared for the 2003 Technical Conference and Ex- 2000 Annual Meeting of the Trans- hibit Program,” Fort Lauderdale, portation Research Board, National Florida, March 23—26, 2003. Research Council, Washington, D.C., January 9--13, 2000. 23. Shell Grand Prix of Denver – Park- ing and Traffic Management Plan, 16. Peterson, M., D.M. Marum, and A. Prepared for the Grand Prix of Den- Moran, “Mode of Access for the ver by URS Corporation, August New Downtown San Diego Ball- 2002, 33 pp. park,” Prepared for the ITE 2000 Annual Meeting and Exhibit, Insti- 24. Sattayhatewa, P. and R.L. Smith, tute of Transportation Engineers, San “Development of Parking Choice Diego, Ca., 2000. Models for Special Events,” Pre- sented at the 82nd Annual Meeting of 17. Traffic Considerations for Special the Transportation Research Board, Events, Institute of Transportation Washington, D.C., January 12-16, Engineers, Washington, D.C., 1976, 2003. 44 pp. 25. Silverson, S., Wisconsin Department 18. Montag, D.A., Trip Generation of Transportation – District 2, Per- Rates and Characteristics for sonal Communication, February 18, Theme-Oriented Fairs and Festivals, 2003. West Virginia University, Morgan- town, West Virginia, May 1998.

19. Parking and Traffic Management Plans for Investco Field at Mile High, Prepared for the City and

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CHAPTER SIX TRAFFIC MANAGEMENT PLAN 6 OVERVIEW ADVANCE PLANNING

Figure 6-1 Temporary Reversible Lane Operation

PURPOSE merous example applications, to assist prac- DAY-OF-EVENT ACTIVITIES titioners in developing a traffic management

plan. A comprehensive plan consists of a This chapter details the components of the site access and parking plan, pedestrian ac- traffic management plan, which represents cess plan, traffic flow plan, traffic control the main product of the event operations plan, en-route traveler information plan, planning phase. A traffic management plan traffic surveillance plan, and traffic incident indicates how traffic, parking, and pedes- management and safety plan. Sections on

trian operations will be managed on the day- POST-EVENT ACTIVITIES plan components and analysis and modeling of-event. The plan contains strategies and further guide practitioners by presenting a tactics for mitigating travel impacts identi- fundamental background on traffic man- fied in a planned special event feasibility agement plan development and evaluation. study analysis (Chapter 5). It also accom- The organization of this chapter allows prac- modates travel demand management initia- titioners to conveniently extract information tives aimed at improving transportation sys- on developing a particular traffic manage- tem operations on the day-of-event. ment plan component. At the same time, EVENT PROFILE

this chapter guides the user in integrating the This chapter provides data, guidelines, pro- components into an overall plan. cedures, and checklists, supported by nu-

6-1

INTRODUCTION be used by practitioners to manage future planned special events in a region.

After identifying traffic operations deficiencies in the planned special event feasibility PLAN COMPONENTS study, the next step for the event planning team is to develop a traffic management Overview plan that details traffic, parking, and pedestrian management techniques to mitigate any Managing travel for planned special events and all anticipated problems on the day-of- involves developing a transportation man- event. The challenge to stakeholders in- agement plan that contains operations and volves not only developing a strategy to service strategies specific to managing traf- mitigate a potential congestion or safety hot fic, transit, and travel demand. A transporta- spot, but also ensuring each tactic does not tion management plan consists of three key defeat the objectives of another. components:

A breakdown (e.g., pedestrian flow) occur- • Traffic management plan ring at the venue, parking areas, site access • Transit plan roads, transit system, local street system, or • Travel demand management initiatives regional corridors serving the event can yield a potential snowball effect on other A transportation management plan repre- integrated components of the transportation sents an extension of the feasibility study, system. A proactive traffic management referencing study input data and analysis plan for planned special events prohibits in- conclusions, then expanding the analysis to dividual transportation system components include mitigation strategies and tactics. from impeding one another. It represents a These strategies create a physical change in flexible plan that can adapt to and optimize travel pattern flow, and tactics describe proposed transit service changes and travel available tools or management approaches demand management initiatives. to meet the associated strategy.

The scope of a traffic management plan var- The feasibility study results influence the ies for each planned special event, even for scope of the transit plan and other travel events happening in the same jurisdiction or demand management initiatives by identify- region. Different strategies and tactics are ing traffic capacity deficiencies and com- successful in handling different categories of munity (e.g., residential and commercial planned special events occurring in metro- business) impacts. Transit agencies may politan, urban, and rural areas. A successful work off-line to develop a transit plan detail- traffic management plan satisfies both the: ing schedules and necessary equipment and (1) customer requirements of all transporta- personnel resources. The transit plan may tion system users and (2) allotted budget for specify one of more categories of transit op- personnel and equipment resources assigned eration that include: to the day-of-event operation. From a program planning perspective, the deployment • Existing service plus additional vehicle of automated systems at a particular venue hours (e.g., more frequent service or ex- improves travel management for all future panded hours of operation) planned special events at the venue. Simi- • Existing service plus route deviation larly, a portable system obtained for use dur- (e.g., includes new stop at transit sta- ing a particular planned special event may tion(s) near venue)

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• Express service (e.g., new route and Table 6-1 schedule) Traffic Management Plan Objectives • Charter service (e.g., contract service) OBJECTIVE 6 • Facilitate safe and quick travel to/from the Numerous factors affect the category and event site for spectators and participants. • Utilize excess transportation system capacity. extent of service provided. Public transit • Maximize efficiency of parking operations agencies must consider service boundaries and internal circulation. and Federal Transit Administration regula- • Accommodate pedestrians. tions, particularly with regard to charter ser- • Automate traffic control tasks.

vice. Profitability and resource availability, • Disseminate useful and credible traveler in- OVERVIEW particularly if the planned special event oc- formation. • Maximize safety. curs during a commute or high-recreational • Minimize impact on affected residents and traffic period, governs decision-making as businesses. well. A traffic management plan incorporates the transit plan by accommodating As shown in Table 6-2, the key components proposed services and/or mitigating service of a traffic management plan for planned deficiencies. It also promotes special travel special events include: demand management strategies, such as designating parking in preferred locations for • Site access and parking plan ADVANCE PLANNING high occupancy vehicles only. • Pedestrian access plan • Traffic flow plan A traffic management plan includes opera- • Traffic control plan tions strategies for managing event- • En-route traveler information plan generated and background traffic within the local and regional area impacted. The plan • Traffic surveillance plan also specifies techniques to facilitate site • Traffic incident management and safety access, parking, and pedestrian access. Ta- plan ble 6-1 lists objectives of a planned special Not all plan components represent a distinct event traffic management plan. Pedestrian DAY-OF-EVENT ACTIVITIES accommodation involves handling pedestri- formal plan but warrant consideration, either ans arriving to a planned special event venue individually or in concert with another com- via all available modes of travel. To ensure ponent. For instance, a traffic incident man- the dissemination of credible traveler infor- agement (TIM) plan may reference an exist- mation, the event planning team should in- ing TIM manual for a region but include clude media representatives and partnerships new operations details (e.g., freeway service developed if necessary. The traffic man- patrol routes and quick clearance strategies) agement plan should include mechanisms specific to the planned special event. POST-EVENT ACTIVITIES for dissemination of accurate and up-to-date information. The plan should state expected The event planning team in-charge of devel- transportation conditions, categorized by oping the traffic management plan also mode of travel (e.g., expected travel time by should consider the number and operating car, transit, express/charter service, etc.), characteristics of traffic management team with congestion mitigation measures. Safety command centers to be used on the day-of-

provisions include prevention of secondary event. Figure 6-2 shows three command EVENT PROFILE traffic incidents, reduced driver confusion, center arrangements for traffic management and reduced vehicular and pedestrian con- team operations on the day-of-event. Stake- flicts.

6-3

Table 6-2 Traffic Management Plan Components COMPONENT CONSIDERATION COMPONENT CONSIDERATION Site Access and • Lot assignment Pedestrian • Pedestrian control Parking Plan • Vehicle access and circulation Access Plan o Pedestrian routing o Parking area ingress o Pedestrian crossing o Pick-ups and drop-offs • Disabled accessibility o Parking area egress • Shuttle bus service • Parking area design and op- o Service design eration o Station design o Process component o Management o Park component o Cost • Parking occupancy monitoring • Parking regulations • Traveler information Traffic Flow • Route planning Traffic Control • Freeway traffic control Plan o Corridor traffic flow route Plan o Traveler information o Local traffic flow route o Interchange operations • Alternate routes • Street traffic control • Emergency access routes o Alternative lane operations • Background traffic accommo- o Route marker signing dation o Monitoring • Transit accommodation • Intersection traffic control o Turning movement lane balance o Traffic signal operations En-route • Static signing Traffic • Closed-circuit television sys- Traveler • Changeable message signs Surveillance tems Information Plan • Highway advisory radio Plan • Field observation • Media • Aerial observation • Other technology applications • Media reports Traffic Incident • Crash prevention Management and o Signing Safety Plan o Public information safety campaign • Service patrols • Traffic incident quick clearance initiatives

holders may utilize one to all command cen- agency: (1) coordinates critical elements of ter types during the day-of-event. The tacti- the plan (e.g., freeway to street connections) cal approach presented in the traffic man- with other pertinent stakeholders during agement plan depends on what command event planning team meetings, (2) formally centers are planned. A transportation man- distributes the plan during the implementa- agement center (TMC) allows for the auto- tion activities phase, and (3) staffs a supervi- mation of several traffic surveillance and sor at an interagency command post on the control tasks. Agencies dispatching a mo- day-of-event. Therefore, for a single bile command post on the day-of-event may planned special event, the traffic manage- take responsibility of developing a traffic ment plan may include one plan developed management plan for the road system seg- by an interagency event planning team or a ment within their jurisdiction. In turn, the series of plans specific to each affected

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6 OVERVIEW ADVANCE PLANNING

DAY-OF-EVENT ACTIVITIES Figure 6-2 Traffic Management Team Command Centers on the Day-of-Event

jurisdiction or each transportation system that drive the consideration and evaluation component (e.g., freeways, streets and inter- of mitigation measures throughout this proc- sections, and venue site). ess. Characteristics of demand include volume, route of travel, and mode of travel. POST-EVENT ACTIVITIES Development Process and Transportation system characteristics in- Integration clude:

The following principles steer the traffic • Existing infrastructure (e.g., number of management plan development process: (1) travel lanes, parallel roadways, etc.) provide a satisfactory level of service to all • Operational policies and regulations EVENT PROFILE transportation system users, and (2) achieve (e.g., scheduled transit service, traffic balanced transportation system operations. signal control, etc.) Figure 6-3 illustrates the fundamental rela- • Monetary costs (e.g., parking fees, tolls, tionships in transportation system operations etc.)

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agement plan. Such measures, when ana-

TRANSPORTATION lyzed or implemented, cause a flow pattern 3 SYSTEM change.

FLOW 1 PATTERN The most cost-effective and preferred set of strategies for planned special event travel management utilizes the existing transporta- DEMAND 2 tion system infrastructure and services. This represents the recommended initial focus of the event planning team; Achieve balanced Figure 6-3 transportation system operations, then Fundamental Relationships in evaluate system level of service. Transportation System Operations Planned Special Event Activity Networks In Chapter 5, the feasibility study evaluated the flow pattern created by the transportation Figure 6-4 outlines the various activity net- system and demand (relationship #1). The works that may serve a planned special traffic management plan development proc- event venue. Each activity network de- ess begins with an assessment of this flow scribes the inter-modal movements and pattern. First, practitioners should recognize transfer points from origin to venue destina- that flow pattern influences travel choice tion. Integration of the traffic management and, therefore, demand (relationship #2) as plan components involves meeting the ser- long as other attractive (e.g., higher utility) vice requirements of these activity networks. travel alternatives exist. For instance, a fea- For example: sibility study may identify a roadway capacity deficiency, but an effective traveler in- • A pedestrian access plan must accom- formation plan can alleviate the deficiency modate pedestrian trips connecting vari- by informing transportation system users of ous modes of travel. other, underutilized travel alternatives (e.g., • A courtesy shuttle bus operation may alternate routes or modes). This effort service both public transit stations and achieves balanced transportation system op- satellite parking areas within the venue erations by equalizing the utility of all avail- site area. able travel choices and may succeed in pro- • Traveler information plans must account viding a satisfactory level of service for all for all activity networks. system users. • Impacts to non-attendee transportation system users occur on the regional level, Flow pattern also influences the transporta- and activity network components within tion system (relationship #3), causing plan- the site area level impact local residents ners to implement capacity improvements or and businesses near the venue. changes in transportation system operations. Simple changes include establishing tempo- For smaller planned special events, the event rary regulations or revising monetary planning team may target one activity net- charges (recouped from event organizers) to work, such as improving automobile access influence travel choice utility. Other infra- to designated parking areas or improving structure and operations mitigation measures public transit usage. For larger events, the required to manage travel for a planned spe- team must coordinate and achieve seamless cial event are developed by the event plan- operation among several activity networks. ning team and specified in the traffic man-

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REGI GION E ON R ORIGIN 6 Transit S s Au IT u o to/ Station r B t Wa rte u lk E AREA ha A T C ran E AREA o / Express Bus sit T im / L Station Transit SI xi e Ta ttl Station Auto hu S us B VENU s s e r s e Pickup / p ttl Shuttle Bus x u hu W E Drop-off E B S us Station a VENUE B lk Express Bus

k Station l lk OVERVIEW a Wa W W Parking Shuttle Bus a lk Area Station

k l a = Mode Transfer W

Walk

Figure 6-4 Planned Special Event Activity Networks

ADVANCE PLANNING Special Considerations Dignitaries

The event planning team must create a Ensuring the security of dignitaries traveling flexible traffic management plan that ac- to and from an event venue requires added commodates modifications on the day-of- traffic control measures and constant sur- the-event as well as special considerations veillance while a motorcade is in motion. that surface prior to the planned special This includes the implementation of a roll- event. ing roadblock as the motorcade traverses a

planned route in addition to the use of aerial DAY-OF-EVENT ACTIVITIES Table 6-3 lists the various groups that either surveillance for monitoring motorcade pro- attend or have a direct interest in a planned gress and downstream traffic conditions. In special event. Throughout the traffic man- fact, the transport of dignitaries represents a agement plan development process, the planned special event in itself, regardless of event planning team must regularly monitor travel purpose. Dignitaries may not an- and communicate any special considerations nounce a visit until the last minute, well af- that arise in conjunction with the needs of ter the event planning team finalizes the the groups attending the event. event traffic management plan. Also, non- POST-EVENT ACTIVITIES security personnel, including transportation Table 6-3 agency officials, may not receive informa- Groups Attending a Planned Special Event tion on the actual dignitary arrival time or GROUP motorcade travel route until a short time be- • Participants fore the motorcade commences travel. In • Spectators turn, the event planning team must maintain

• Event sponsor special provisions within the traffic man- EVENT PROFILE • Dignitaries agement plan, such as alternate road clo- • Media sures based on motorcade route, to allow a • Non-ticketed visitors • Street vendors motorcade unimpeded access to its destination.

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include tactics for eliminating illegal street Event Participants vendor activities.

Event participants not only require secure transport, but maintaining their travel itiner- ary is of critical importance. In particular, regional/multi-venue events may require event participant transport while ingress/egress operations take place at adjacent planned special event venues. Here, stakeholders may elect to outfit vehicles used to transport participants with an Auto- matic Vehicle Location (AVL) system. The traffic management team can continually monitor the exact location of vehicles trans- Figure 6-5 porting participants and other VIPs from a Street Vendor Activity TMC or command post and implement special traffic control (e.g., change traffic sig- Contingency Planning nals to a green indication) as needed. Contingency planning represents event in- Media surance. While stakeholders may consume additional time and resources during ad- Media often arrives to a planned special vance planning for a planned special event, event well before spectators and marks one the availability of contingency plans helps of the last groups to depart the event. How- mitigate a potential systemic breakdown of ever, media crews may conduct broadcasts the transportation system during an unex- outside the event venue. Coverage of a pected event occurring at or near the same street use event involves special accommo- time as the planned special event. Key steps dations as well. The event planning team in contingency planning include: should coordinate with media groups on where: (1) media trucks will park, (2) cam- • Develop a traffic management plan that eras positioned, and (3) cables run. is scenario-based. This concept applies

to various plan components as well as to Street Vendors pertinent tactics. Each developed plan

should include response actions for dif- Under normal day-to-day traffic operations, ferent unplanned scenarios. Plans and side friction generally refers to the fre- tactics may consider identical and differ- quency of parking maneuvers and transit ent scenarios. A response action under stops occurring in and out of travel lanes. one plan may warrant implementation of Street vendor activities during planned spe- a contingency response described in an- cial events, shown for example in Figure 6- other plan. For example, heavy rains 5, impede traffic flow as event patrons slow that force the closure of a parking area or stop to conduct transactions (e.g., buy triggers traveler information message event tickets or merchandise). Motorist changes to an alternate planned set. safety becomes a concern when street ven- • Consider and plan for a range of possible dors traverse the right-of-way of freeways unplanned scenarios. Table 6-4 provides and arterial roads. Elements of a traffic in- a contingency plan checklist for planned cident management and safety plan should

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special events. This checklist includes channel for planned special event only the risk scenarios presented in the previ- communications. ous chapter. An emergency management agency may maintain a separate Consider the level of response to a security 6 emergency response plan that, if put into threat, involving a suspicious truck stopped effect, supercedes the traffic manage- on a freeway, that occurred during the 2002 ment plan. Yet, the emergency man- Winter Olympics:(1) agement agency and other public safety agencies work as part of the event plan- Early in the Games, a semi-trailer truck was

ning team to ensure adequate emergency stopped on the I-15 freeway, just south of OVERVIEW access routes, pedestrian access routes, downtown Salt Lake City. Because the truck and evacuation destination areas exist to did not have the legally required markings meet emergency management plan re- and other reasons, the Utah Highway Patrol quirements. (UHP) considered the situation to be a potential safety threat. Additional law- Table 6-4 enforcement resources were summoned to Contingency Plan Checklist the scene. During the entire time, the staff CONTINGENCY in transportation management center Room • Weather 230 (regional transportation management

o Severe weather outbreak stakeholders) monitored the situation ADVANCE PLANNING o Flooding on event site access routes o Flooding in event parking areas closely, viewing it with a nearby CCTV o Parking during wet weather camera as well as monitoring radio reports • Security threat from the UHP officers at the scene. After • Major traffic incident almost an hour passed without a resolution, • Delayed event staff in Room 125 (senior Utah DOT traffic • Event cancellation engineers) began preparing to invoke the • Absence of trained personnel and volunteers contingency plan for closing the freeway in on the day-of-event • Equipment breakdown both directions. This Action Set would have

• Demonstration or protest diverted all freeway traffic to parallel arte- DAY-OF-EVENT ACTIVITIES • Unruly spectator behavior rials, with the appropriate traffic manage- • Overcrowding ment actions (new signal timing on the sur- • Event patron violence face streets, changeable message sign messages on the freeway), plus traveler • Determine changes in operation due to information actions (issuing a unplanned scenarios. Aside from CommuterLink Alert, media bulletin, etc.). evacuation, the occurrence of a major Fortunately, it was soon determined that the

traffic incident or security threat creates cargo in the truck was benign and the POST-EVENT ACTIVITIES a multi-faceted problem for a traffic “issue” was closed in Room 230. management team. This includes potential reallocation of personnel, from field crews to supervisors who must manage ANALYSIS AND the unexpected event, and equipment re- MODELING sources. In addition, intra- and inter-

agency radio communications may be- Overview EVENT PROFILE come deficient in servicing the unplanned event and planned special event No planned special event transportation if agencies failed to assign a dedicated management plan, not even for a repeated

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special event, can be prepared and executed Analysis Techniques without detailed planning and without modifications as the event unfolds. To be suc- Planners historically have used simple plan- cessful, the event planning team has to an- ning techniques as well as high-tech com- ticipate, and therefore plan for, all the possi- puter-assisted techniques to plan and man- ble scenarios that will challenge the trans- age for planned special events. These plan- portation network and the mobility of the ning techniques take many forms, ranging plan. from traditional incident management processes and traffic engineering processes to A special event transportation and imple- computer modeling of scenarios. mentation plan includes elements such as personnel assignments, communications Three primary ingredients for successful from various sources, communications be- event management are: (1) proper resources, tween multiple agencies, and guidelines for both human and non-human, (2) a good accessing and utilizing remote equipment. communications plan (implementation plan), All of these elements are used in various and (3) a firm understanding of the transpor- manners depending upon the existing condi- tation system’s capabilities and, more tions, and the plan should be flexible to al- importantly, its limitations. The best and low modification throughout the event. In most proven techniques for event operations essence, a special event plan is a plan for planning are to model and test the scenarios multiple contingencies and multiple scenar- using any and all contingencies. ios. Tabletop Exercises Many tools and techniques are available to analyze and assess the plans. Most are sce- Tabletop exercises bring all of the stake- nario-based and use techniques to simulate holders together. During these exercises, the event to ensure that the proper resources scenarios are posed and escalated. These and communication protocols are in place scenarios typically do not require modeled and are efficient. These techniques address network information, as their primary pur- the many contingencies, and as such, nu- pose is to test the stakeholders as to how merous plans are developed prior to the they would react and to fine tune the respon- event and implemented during the event, as sibilities of each stakeholder and the com- they are needed. munications protocol between the stakeholders. Many scenarios that can cause dis- It is important to note that the assessment ruptions to the event transportation are and development of plans do not end when played out, and any loopholes in the opera- the event ends. At the conclusion of the tions planning are obvious to the partici- event, stakeholders comprising the event pants. This type of exercise is supported by planning team and traffic management team more detailed analyses, usually in the form must evaluate the plan in order to improve of computer simulation. the plan as well as to utilize the lessons learned in future traffic management appli- Computer Traffic Simulation cations. Further, this evaluation process is not restricted to post-event, but instead can In large-scale event planning, it is beneficial and should be conducted throughout the to understand the impact that the event will event, and modifications to the plan made have on the existing roadway system. on-the-fly. Where this network is complex and multiple

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alternatives may exist, each will need to be network being modeled. Examples in- evaluated. The common approach to this clude INTEGRATION, Paramics, Syn- function is to apply tools to model the net- chro/SimTraffic, and the TSIS suite of work. Capacity and LOS analyses are useful models. 6 tools for gauging the expected operating conditions along roadway segments and for Some simulation models are designed for determining the “order-of-magnitude” analysis of individual intersections or spe- changes that will result from major changes cific types of facilities, while others are de- in traffic flow (e.g., as caused by a planned signed for network-level analysis. Models

special event) and roadway improvements capable of network-level analysis include OVERVIEW (e.g., widening, bottleneck improvements). TRANSYT-7F, Synchro/SimTraffic, INTE- However, improvements provided by trans- GRATION, and Paramics. The TSIS (Traf- portation management strategies and sys- fic Software Integrated System) set of mod- tems are typically not reflected in such pro- els includes NETSIM for network analysis, cedures. Moreover, information on per- FRESIM for freeway analysis, and COR- formance measures (e.g., vehicle delays, SIM, which is an integrated package of the fuel consumption, emissions) is not provided network and freeway models. The TRAF by capacity analysis techniques. It may set of models includes NETFLO for network therefore be worthwhile to utilize computer analysis, FREFLO for freeway analysis, and traffic simulation models, which can exam- an integrated package (CORFLO) of the ADVANCE PLANNING ine the manner the roadway network per- network and freeway models. FREQ simu- forms under various sets of simulated condi- lates corridor traffic operations including tions. one freeway and one parallel arterial.

As implied by the name, traffic simulation The individual models vary in their capabili- models examine the manner in which the ties, limitations, and ease of use (a discus- roadway network performs under various sion of which is beyond the scope of this sets of “simulated” conditions. They pro- Handbook). A significant amount of effort

vide an excellent means of estimating generally is required to learn to use traffic DAY-OF-EVENT ACTIVITIES changes in roadway performance metrics simulation models, including setting up the (e.g., average speeds, travel time, delays, appropriate inputs and parameters. A sig- emissions) resulting from increased traffic, nificant amount of effort may also be re- roadway restrictions, traffic management quired to obtain traffic and network data to strategies and improvements. conduct the analysis and to calibrate the model to local conditions. Data require- Traffic simulation models can be divided ments are proportional to the extent of the into the following two general classes: network being modeled. The required data POST-EVENT ACTIVITIES can include characteristics of each link (e.g., • Macroscopic models are based on de- length, number of lanes, auxiliary / HOV terministic relationships between road- lanes, ramps, grade, speed limits, lane way and intersection characteristics and widths, pavement condition), link traffic traffic flow. Examples include TRAN- flow information (e.g., entering / exiting SYT-7F, FREQ, and the TRAF suite of volumes, ramp volumes, travel times, per-

models. cent heavy vehicles and buses, lane chang- EVENT PROFILE ing characteristics) and other types of infor- • Microscopic models simulate the move- mation such as detector locations, incident ment of individual vehicles through the characteristics (e.g., effect of lane blockage on capacity), and ramp metering operations.

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a manageable dispersion of pedestrian traf- Simulation models generally require a non- fic. Parking area access and site circulation trivial analysis effort. Moreover, any arrangements must correlate with street traf- model-specific limitations should be taken fic control schemes. into consideration when interpreting the outputs of simulation. Sensitivity analyses Site access and parking plan development are important to developing an understand- involves a three-step process: (1) access, (2) ing of: (1) how reasonable the simulation process, and (3) park: estimates are and (2) how much confidence the analyst should place in them. • Access refers to getting event traffic from the adjacent street system to their SITE ACCESS AND destination, such as a parking area or pick-up/drop-off area, during ingress and PARKING PLAN vice versa during egress. The traffic management team manages the access Overview operations component. • Process involves activities necessary to Chapter 5 detailed steps for conducting a “approve” vehicles for entry into a park- parking demand analysis, including guide- ing area. A fee transaction between a lines for evaluating the scope of parking parking area operator and motorist area required to serve event patrons. In turn, represents a common process activity. a site access and parking plan contains op- • Park involves handling vehicles from a erations strategies for managing automobile, process point to a parking space. A bus, taxi, and limousine traffic destined to parking team and associated volunteers and from the following areas in the vicinity operate the process and park compo- of a planned special event venue: (1) public nents. A breakdown in any one of the parking area, (2) reserved (permit) parking three components can result in conges- area, (3) overflow parking area, and (4) tion extending to the adjacent street sys- pick-up/drop-off area. The event planning tem and possibly to freeway and arterial team must create a flexible plan that con- corridors serving the planned special tains proactive strategies for responding to event. real-time event patron travel patterns driven by their choice of public parking areas, es- Parking Policies and Tactics pecially if parking fees vary from lot to lot. Traffic destined to the three other site areas General Considerations has a fixed ingress and egress pattern as specified in the plan through lot assignments Table 6-5 presents three general considera- and permitted movements. tions regarding proactive parking management for planned special events. The site access and parking plan must fit seamlessly into other components of the Table 6-5 traffic management plan. This includes the General Parking Management pedestrian access plan, traffic flow plan, and Considerations traffic control plan. For instance, the pedes- CONSIDERATION trian access plan must accommodate pedes- • Lot assignment trians arriving to/from each parking area or • Traveler information pick-up/drop-off point while still achieving • Contingency plans

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Lot Assignment • In evaluating parking areas for heavy vehicles (e.g., buses and recreational ve- The objectives of lot assignment include: hicles), the event planning team must verify that vehicles can execute all re- 6 • Efficiently distribute the flow of traffic. quired turning movements during ingress • Minimize the superimposition of traffic and egress. flow on a single access road section. • If the use of any parking area requires a • Separate pedestrian, automobile, and lease or third-party agreement (e.g., use bus/taxi/limo traffic. of a commercial lot), then planners must

• Accommodate group needs. have the agreement signed well before OVERVIEW the day-of-event. Table 6-6 lists the factors that influence this planning process. Key considerations for Table 6-6 some of these factors include: Factors Influencing Lot Assignment FACTOR • Parking areas designated for disabled, • On-site parking location • Off-site parking location reserved, and valet parking require on- • Disabled parking site spaces with easy access to the event • Reserved (VIP/permit) parking venue. However, the location of these • Participant parking ADVANCE PLANNING lots must afford users the opportunity to • Valet parking egress immediately after the event with- • Media parking out intersecting extreme levels of pedes- • Employee parking trian traffic. • Bus parking • Some planned special events draw a sig- • Recreational vehicle parking • Taxi/limo staging nificant level of event patrons traveling in a recreational vehicle. These patrons Traveler Information typically arrive well before the event start, if not one day prior to the event, Dissemination of traveler information on DAY-OF-EVENT ACTIVITIES and tailgate after the event. As a result, site access and parking utilizes several tools a recreational vehicle parking area and approaches, including pre-trip and en- should exist adjacent to streets segments route: that the traffic management team may temporally close after the event to safely • As part of pre-trip information dissemi- accommodate pedestrian traffic. This nation, the event planning team should consideration also applies to the selec- prepare a site and parking plan for tion of media and participant parking ar-

stakeholder use and for distribution to POST-EVENT ACTIVITIES eas. These groups arrive before and de- event patrons via advertisements as well part after the majority of event patrons as the event or venue website. The event and require parking near the venue, es- operator should include directions to pecially media who have to transport specific parking areas with pre-event heavy equipment. ticket and parking pass distribution. • For major special events, employees • En-route information dissemination should park at a remote off-site lot with

techniques begin with any combination EVENT PROFILE shuttle bus service. of static signs, portable changeable mes- • The section on site access and circula- sage signs (CMS), and highway advisory tion will discuss taxi and limo opera- radio (HAR) positioned on freeway and tions. arterial corridors serving the event. Fig-

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ure 6-6 shows a freeway CMS, operated way or arterial access point to various by the Maryland State Highway Admini- parking areas. stration with real-time sign status posted o Top priority involves guiding event on the Coordinated Highways Action patrons and participants destined to Response Team (CHART) website, dis- reserved parking areas. Unlike most playing access information for different event patrons who will eventually parking areas. accept any public parking area, travelers possessing a permit will circulate through the street system adjacent to the event venue until they encounter their designated parking area. o Figure 6-7 shows a temporary guide sign for event parking permit holders.

Figure 6-6 Freeway CMS Displaying Parking Information (Graphic courtesy of the Mary- land State Highway Administration.) Figure 6-7 • As part of developing the site access and Guide Sign for Reserved Parking Areas parking plan, the event planning team should prepare a signing plan and • Traveler information considerations dur- CMS/HAR message sets. ing event egress include the provision of o Default messages provide directions parking area identification landmarks, to assigned parking areas. and guide signs to major freeway/arterial o Stakeholders should maintain alter- routes at parking area exit points and ad- nate message sets to divert traffic jacent access roadways. away from full lots to overflow park- o In the absence of parking staff, the ing areas. guide signs assist motorists unfamil- o Implementation of alternate message iar with the area in making critical sets places a premium on interagency turns to access known freeways communications. and/or arterials when departing the • On the day-of-event, the command post event venue site. must process real-time information re- o Missed turns result in additional cir- ceived from parking area operators and culation through the site area and observers and, in turn, immediately impacts street network operations communicate recommended changes to during egress. all agencies managing traveler informa- • Standard parking area identification tion devices as the situation dictates. landmarks at permanent venues include • The signing plan indicates a network of fixing a parking section banner to light trailblazer and guide signs from a free- posts or naming different levels of a

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parking garage. The lack of such per- such as a park, and/or allowing on-street manent identification landmarks at un- parking. paved parking areas can create significant pedestrian/vehicular conflicts, not Technology Applications 6 to mention added delay for the event patron, as pedestrians scan the parking area Technology utilized for day-to-day traffic for their vehicle. management can greatly enhance parking o Figure 6-8 shows an innovative park- management and efficiency of operation at ing area identification technique ap- permanent venues that serve numerous

plied to unpaved parking areas, planned special events. In particular, use of OVERVIEW which represented a golf course, at technology can improve operator monitoring the Rose Bowl. The technique in- of parking areas and facilitate accurate, up- volved attaching a numbered balloon to-date dissemination of traveler informa- to portable lighting trailers stationed tion. at various unpaved parking areas. Some balloons were visible from in- Advanced Parking Management System side the stadium. A basic advanced parking management system allows operators, stationed at a transpor-

tation management center, to monitor park- ADVANCE PLANNING ing areas and control traveler information devices used to disseminate parking information. Key considerations include:

• Advanced systems include electronic detection equipment that transmits real- time traffic volume counts and speeds to the TMC.

Figure 6-8 • The system surveillance and monitoring DAY-OF-EVENT ACTIVITIES Temporary Parking Area Identification system incorporates pan-tilt closed- Landmark circuit television (CCTV) cameras for viewing parking areas and adjacent ac- Contingency Plans cess roads. • Traveler information devices include a Contingency planning involves the devel- CMS and HAR network coupled with opment of traveler information message sets strategically positioned blank-out signs to divert and guide event ingress traffic to that communicate parking area status in- POST-EVENT ACTIVITIES overflow parking areas: formation (e.g., lot full) to motorists. • With real-time access to CCTV, TMC • If unpaved parking areas are used, the traffic signal system operators can im- traffic management team should have a plement timing modifications on de- contingency plan when wet weather pre- mand. vents the use of unpaved lots. This in- • Operators at the TMC can integrate the cludes using other paved areas, particu- advanced parking management system EVENT PROFILE larly lots serving an inactive land use or into the greater Advanced Traveler In- one adversely affected by wet weather formation System for the region (e.g.,

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automated information transmission to The Minnesota DOT, Federal Highway Ad- other agencies, websites, and kiosks). ministration (FHWA), City of Saint Paul Department of Planning and Economic De- Advanced Parking Information System velopment, City of Saint Paul Department of Public Works, and one private partner con- The deployment of advanced parking infor- ducted a one-year Saint Paul Advanced mation systems have successfully occurred Parking Information System Operational at some airports and metropolitan areas Test for planned special events in the area.(3) across the Nation. This system automati- The stakeholders performed the test in the cally disseminates accurate, up-to-date in- Civic Center/Rice Park area of downtown formation regarding parking facility occu- Saint Paul, and the test consisted of the fol- pancy status to motorists upstream of the lowing: facility, coupled with routing directions to open facilities. From the perspective of • Determination of parking stall occu- planned special events, the system would pancy by participating parking operators function well for an event venue served by during planned special events in down- several parking facilities, such as one lo- town Saint Paul and instantaneous cated in a downtown area. Electronic signs transmission of available parking to the controlled by the system inform motorists of Saint Paul Traffic Control Center (TCC). open parking facilities as soon as they exit • Instantaneous transmission of informa- the freeway system. tion on available parking by the Saint Paul TCC to electronic message signs. An advanced parking information system • Wireless, automated parking advisory generally consists of the following four signs placed at appropriate locations to components: (1) vehicle detectors, (2) a display the number of stalls available at parking control center, (3) information dis- parking garages or lots with direction ar- plays, and (4) a telecommunications net- rows to the garages or lots. work. Automated detection methods include inductive loop, ultrasonic, infrared, micro- Table 6-7 summarizes some key findings wave, and machine vision, although studies yielded by the operational test. have shown infrared detection functions best for advanced parking information systems. Vehicle Access and Circulation The parking control center receives and syn- thesizes data collected by detectors, and the In order to facilitate safe and quick spectator center transmits messages pertaining to and participant travel to/from the event site, parking facility occupancy to information the site access and parking plan should spec- displays for motorists’ use. Operators at the ify tactics that prevent potential congestion parking control center can override the sys- on parking area access roads and allow for tem during planned special events or un- good circulation on roadways surrounding usual circumstances. Information displays the event site. Table 6-8 indicates site ac- include a combination of static and dynamic cess and circulation considerations applica- signs disseminating parking availability in- ble to the development of a site access and formation and directions to open facilities. parking plan. The three considerations of: The system can incorporate other traveler (1) parking area ingress, (2) pick-ups and information devices, such as HAR, the drop-offs, and (3) parking area egress are Internet, telephones, commercial television, (2) discussed in the following subsections. and in-vehicle navigation.

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Table 6-7 • Traffic flow plan, traffic control plan, Key Findings from Saint Paul Advanced and parking area design provisions that Parking Information System Operational impact the scope of mitigation required Test(3) to provide adequate site access and cir- 6 FINDING culation. • Advanced Parking is perceived beneficial to the participating parking operators and the city Parking Area Ingress of Saint Paul. • Most motorists responding to a mail-back survey thought the system has value. During event ingress operation, several fac-

• There were some improvements on the surface tors influence the operation of access roads OVERVIEW transportation system, but the improvements connecting the adjacent street system and could not be attributed directly to Advanced parking areas: Parking. • Advanced Parking signs with full matrix displays have sufficient capabilities to support • While the physical characteristics of the other traffic functions in downtown Saint adjacent street system and associated Paul; Advanced Parking counter signs alone traffic control may meter traffic flow do not have sufficient capabilities. destined to access roadways, the roads • There were no institutional, legal, or other likely do not have sufficient capacity to private sector issues, which had a significant effect on the operational test. service incoming traffic. As a result, the • Advanced Parking is transferable to other cit- event planning team should designate ADVANCE PLANNING ies without significant modification. contraflow (e.g., one-way) operation on the access road segment connecting a The reader should review: major feeder intersection and the relevant parking area. An advantage of im- • Select street and intersection control tac- plementing access road contraflow op- tics (e.g., alternative lane operations, eration concerns the capability of han- turning movement lane balance, traffic dling two or more conflicting move- signal operations) described in the “Traf- ments from a feeder intersection with

fic Control Plan” section of this chapter proper channelization. In turn, the de- DAY-OF-EVENT ACTIVITIES warrant review for possible mitigation of sign of parking area access points should site circulation deficiencies. ensure accommodation of vehicles in all travel lanes.

Table 6-8 Site Access and Circulation Considerations CONSIDERATION TACTIC

Parking area ingress • Right turn circulation pattern POST-EVENT ACTIVITIES • Contraflow operation • Shoulder utilization • Lane channelization • Parking area overflow access points Pick-ups and drop-offs • Use of off-street areas • Designation of pick-up/drop-off areas to avoid conflict with primary traffic ingress/egress routes

• Storage area EVENT PROFILE Parking area egress • Right turn circulation pattern • Preservation of adjacent street flow • Provision of rapid parking area unloading

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• Shown in Figure 6-9, shoulder utilization • The use of multiple access points to the represents another strategy to gain addi- same parking area provides an opportu- tional access road capacity. As indicated nity where vehicles traversing the left in the figure, the temporary right shoul- lane must enter the first access point and der lane services through traffic, and the vehicles traversing the right lane has ac- inside lane provides direct access to a cess to remaining downstream access parking area. points (e.g., left lane becomes exclusive lane to the next downstream access point). • A breakdown in either parking area process or park operations creates congestion on the access roadway serving the parking area. This is not a “lot full” situation but, instead, a situation characterized by excessive service time to conduct parking fee transactions or to park vehicles. If parking operators do not Figure 6-9 mitigate the breakdown quickly, conges- Shoulder Utilization tion on the access road propagates to the adjacent street system. The use of over- • Figure 6-10 shows an example of lane flow access points and on-call opera- channelization implemented on an ac- tors/volunteers can effectively limit and cess road serving venue parking areas. even reduce congestion until parking This control technique eliminates unnec- area operations return to normal. essary lane changing, which reduces roadway capacity, in the vicinity of Pick-ups and Drop-offs parking area access points. Advance signing can inform motorists on which Table 6-9 lists guidelines for designating lane to use. pick-up and drop-off areas. Some considerations include:

Table 6-9 Guidelines for Designating Pick-up and Drop-off Areas GUIDELINE • Utilize off-street areas for private vehicles, taxis, limousines, and buses. • Select areas that do not require vehicles to intersect heavy traffic flow to/from parking areas or pedestrian access routes. • Designate separate areas for different vehicle classes. • Ensure adequate space exists within the off- street area to accommodate vehicle storage and turnaround. Figure 6-10 Lane Channelization • A site vehicle circulation rule of thumb involves implementing a right turn pat-

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tern of ingress and egress to achieve conflict with heavy egress traffic, or as a maximum street system capacity. The client courtesy, drivers typically arrive at quandary with pick-ups and drop-offs a designated pick-up area before the end concerns accommodating two-way vehi- of the event. 6 cle travel, departing traffic during event • Practitioners can estimate and compare ingress and arriving traffic during event the service rate (vehicles per hour) of all egress. lanes comprising a particular pick- o First, recognize these motorists will up/drop-off area to the peak arrival rate encounter resistance only in exiting of traffic using the area. The service

the immediate site area during in- flow rate for one lane equals one hour OVERVIEW gress and vice versa during egress. divided by the time to process (i.e., ser- They likely will travel in the oppo- vice time) one vehicle picking- site direction of peak flow on free- up/dropping-off event patrons. If an av- way and arterial corridors serving the erage pick-up/drop-off service time is event venue. two minutes, then the service rate of one o Second, vehicles may have to turn- lane equals 30 vehicles per hour (60 around after a pick-up/drop-off. minutes divided by 2 minutes per vehi- • The utilization of off-street parking areas cle). for taxi and limousine event service o Personnel assigned to monitor pick- eliminates taxi/limo cruising at the end up/drop-off area operation on the ADVANCE PLANNING of a planned special event. For example, day-of-event can enforce a particular limousine drivers would have to meet service time or length of time a par- their customers after the event and escort ticular vehicle can stay in the pick- them back to the parked limousine. This up/drop-off area. strategy has proven successful at reduc- • Note that a pick-up/drop-off area queuing pedestrian/limousine conflicts at in- ing system operates stochastically. Traf- tersections near the Staples Center in fic arrival rates will vary, and individual Los Angeles, CA.(4) service times that collectively determine

• For private vehicles, an off-street lot the service rate will also vary. DAY-OF-EVENT ACTIVITIES provides a convenient meeting location. • To handle a potential overflow situation • Pick-up and drop-off area capacity at a pick-up/drop-off area, prohibit park- represents another key concern that prac- ing on the access road adjacent to the titioners must address. pick-up/drop-off area, and cone (when • A queuing system, discussed in the next necessary) a vehicle stacking lane along section on parking area design and op- the access road shoulder. eration, can describe the operation of pick-up/drop-off areas for taxis and Parking Area Egress POST-EVENT ACTIVITIES drop-off areas for private automobiles, limousines, and buses. Two basic strategies surround parking area • In the case of pick-ups involving private egress operations. These contrasting strate- automobiles, limousines, and buses, the gies include: (1) preserving adjacent street event planning team must designate an flow and (2) effecting rapid parking area off-site parking area of sufficient capac- unloading. Several important considerations ity, as determined through a parking de- include: EVENT PROFILE mand analysis, to stage vehicles operated by drivers intending to pick-up a specific • Regardless of strategy, planners should event patron(s). In an effort to avoid locate parking area access points as far

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away as possible from major intersec- o An alternate approach involves tem- tions so that vehicles can exit immedi- porarily striping additional exit ately from the parking areas without dis- lanes, for a nominal distance (e.g., rupting the flow of traffic on the adja- 1000+ feet) plus taper, on the adjacent access road. cent access road to allow for multiple • When the adjacent street represents a lanes of traffic out of the parking collector or arterial roadway, the traffic area. Figure 6-11 illustrates this management team generally seeks to strategy, implemented for a county preserve flow. This is accomplished ei- fair in rural Dutchess County, New ther by manual or automated means. A York. This approach works well manual operations approach involves when the parking area access point is traffic management team personnel centrally located and accommodates monitoring parking exit points. Crews traffic from opposite ends of the permit a maximum volume of traffic to parking area. exit the parking areas while still maintaining a smooth traffic flow on the adjacent roadway network. If traffic begins to queue downstream of an exit point, personnel would communicate via radio and movement out of the relevant parking areas stopped until mainline congestion dissipates. o This strategy worked successfully during two major rural events, the 1986 and 1995 U.S. Golf Open at Shinnecock Hills Golf Course in Southampton, New York.(5) Figure 6-11 o Instead of manually controlling traf- Access Road Traffic Pattern During Event fic, traffic management team person- Egress(6) nel could operate portable traffic signals placed at parking area access points. Parking Area Design and o If access points have a permanent Operation traffic signal, operators can simply implement new timing plans in favor Parking area operations consist of two dis- of either egress strategy. tinct components: process and park. A sig- • To effect rapid parking area unloading, nificant breakdown in either component consider providing multiple access will, in turn, cause congestion to occur and points for each parking area. propagate on the access road serving the o For planning purposes, practitioners parking area. The objective of designing may either assume an access point and operating parking areas involves provid- capacity of 900 vehicles per hour per ing an access point capacity in excess of the lane (e.g., 4 second headway be- peak rate of traffic flow that traverses the tween vehicles) or use computer traf- driveway. fic simulation software to gain a more precise estimate based on local Process Component conditions.

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Any planned special event parking area that • The maximum arrival rate represents the requires a fee or permit for access has a ser- lesser of: (1) access point capacity or (2) vice facility in-place to process vehicles en- adjacent access road capacity. 6 tering the lot. Therefore, a first-in-first-out • The service rate, µ, is the number of ve- queuing system exists. Figure 6-12 provides hicles the service facility can process a schematic of this system. The queuing over some period of time. The magni- system is bounded by the service facility tude of this rate depends on the number (e.g., parking area gate) and the queue stor- of servers (e.g., staff or automated gates) age area. Figure 6-13 illustrates a queuing that comprise the service facility and system at the entrance of a venue parking server efficiency. OVERVIEW area. From a parking area operations per- • Queuing happens when the arrival rate spective, queuing system characteristics in- exceeds the service rate. For example, if clude: the maximum arrival rate is 600 vehicles per hour and four parking area gates are

( µ = Service Rate ) open, then each server or staff person Servers must process 150 vehicles per hour, or 1 vehicle in 24 seconds (e.g., the service time), in order to prevent vehicle queues

Arrival Departure from forming. Motorists will locate ADVANCE PLANNING at Queue from open servers, but the event planning System System team should utilize the queuing system ( λ = Arrival Rate ) concept, and consider predicted arrival rates, when staffing parking area access points. Service Facility • A parking area queuing system operates Boundaries of Queuing System stochastically. Traffic arrival rates will Figure 6-12 vary, and individual transaction times Queuing System Schematic that collectively determine the service

rate will also vary. DAY-OF-EVENT ACTIVITIES • In designing a service facility for a planned special event parking area, select a conservative server service time (e.g., the time to serve one vehicle) and determine the required number of servers that can process the maximum anticipated arrival rate with one server on break. POST-EVENT ACTIVITIES • Service time may increase if law enforcement conducts random checks of Figure 6-13 vehicles entering a parking area. Permanent Venue Gate and Queue Storage • To avoid the occurrence of long service Lanes times, designate a turnout area adjacent to the gates for vehicles subject to a de- • The arrival rate, λ, denotes the number tailed security check. EVENT PROFILE of vehicles traversing a single parking area access point over some period of Table 6-10 indicates three vehicle process- time. ing tactics.

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Table 6-10 Advance parking sales provide a two-fold Vehicle Processing Tactics at Parking Area advantage from a parking operations per- TACTIC spective. First, event patrons will have ad- • Manual transaction vance information on exactly where to park • Permit display at the event venue, and repeat customers will • Automated transaction become familiar with the fastest route to the parking area. Second, the tactic eliminates Manual Transaction cash transactions at reserved parking areas on the day-of-event, substantially reducing Manual transaction refers to cash transac- service time. In fact, a service facility is un- tions made between a driver and human necessary if parking operators post proper server. This tactic involves the longest and signage and conduct a vehicle check for vio- most variable service times, as servers have lators between event ingress and egress. to periodically make change and even answer questions. The operation of a permit-only parking area mirrors that of a free parking area. In de- Manual transaction operation at parking ar- termining the capacity of individual access eas closely resembles the operation of man- lanes to a free or permit-only parking area, ual (cash) lanes at toll facilities. In both practitioners may assume a 4 second head- cases, signs inform drivers of the fee in ad- way between vehicles (or 900 vehicles per vance of the service facility, and servers hour per lane capacity). This represents the conduct cash-only transactions. Numerous capacity assumption made by officials, dur- publications on toll facility evaluation report ing the planning process, for free parking the capacity of a manual toll lane ranges areas used by spectators of the 2002 Winter from 300 to 400 vehicles per hour. This Olympics.(7) In order to account for road- equates to a service time of between 9 to 12 way geometrics or special turning maneu- seconds per vehicle. Practitioners may as- vers, practitioners can determine the capac- sume a service time in the stated range, ity of access lanes using computer traffic where 12 seconds per vehicle denotes a con- simulation software. servative service time, for individual servers handling cash transactions at a planned spe- Automated Transaction cial event parking area. An automated transaction involves deploy- Permit Display ment of an electronic fee collection system, suitable for permanent venues hosting nu- The use of permits for planned special event merous events. Similar in operation to an parking has become increasingly common. electronic toll collection system, the system Originally, permanent venue or recurring would require event patrons to have a trans- event season ticket holders received or pur- ponder in their vehicle. Implementation of a chased a parking permit as part of their sea- small-scale system could involve distribut- son ticket package. Internet commerce has ing transponders to season ticket holders. spurred venues and event organizers to sell reserved parking spaces in advance to event Park Component patrons. Typical offers involve obtaining a guaranteed parking space near the venue and Parking operators and volunteers must meet main gate. the following two requirements for parking vehicles:

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• Park vehicles at the same rate as those event planning team predictions. As a re- being processed. sult, some parking areas, particularly non- • Minimize pedestrian/vehicular conflicts reserved lots, may load faster than other lots. 6 inside parking areas. The event planning team and traffic management team must, in advance of the event, When multiple servers process vehicles, op- develop a detail for monitoring parking area erators should consider creating multiple occupancy levels for the ingress period. The vehicle streams from the service facility and, focus of this task involves making a “lot in turn, parking vehicles in different sections full” decision at a time when all vehicles of the parking area. Each stream must main- between the parking area access point and OVERVIEW tain an adequate speed or congestion will traveler information devices directing mo- occur within the parking area and spillback torists to the parking area (e.g., the pipeline) to the service facility. Prior to the event, can still park at the subject lot. As soon as parking operators should survey the parking team personnel make a “lot full” call, TMC area and note any features that may slow or command post operators change the mes- vehicles traversing a parking area. Such fea- sage set communicated by traveler informa- tures include ditches, sand, and humps. tion devices in order to direct motorists to an alternate lot. The traveler information de- Figure 6-14 shows an excellent example of vice(s) forming the upstream boundary of minimizing pedestrian/vehicular conflicts the pipeline must be located upstream of the ADVANCE PLANNING inside a parking area. Simply ensure that access road serving an alternate parking every vehicle entering a parking area parks area. In some cases, a parking area pipeline as close to the adjacent pedestrian access may extend to a freeway or arterial corridor route, leading to the venue or shuttle bus serving the event venue. station, as possible. Erect pedestrian walkway signs and instruct volunteers to tell Two methods for making a “lot full” deci- event patrons where to walk as soon as pa- sion in the field include: (1) vehicle count at trons exit their vehicle. parking area access points and (2) visual in-

spection. Both methods require field per- DAY-OF-EVENT ACTIVITIES sonnel to have an estimate of the pipeline capacity during load-in. That is, the defined pipeline length (account for multiple travel lanes) divided by average vehicle spacing. Consider that up until the parking area reaches capacity, vehicles traversing the pipeline will be moving. Therefore, average

vehicle spacing equals vehicle length plus POST-EVENT ACTIVITIES the space allotted by drivers between vehicles. Average vehicle spacing ranges from Figure 6-14 30 feet (conservative) to 40 feet. Minimizing Pedestrian/Vehicular Conflicts in Parking Areas The vehicle count method involves conducting a manual or machine count at the down-

Parking Occupancy Monitoring stream pipeline end beginning at the start of EVENT PROFILE parking area load-in. This count represents On the day-of-event, traffic patterns and the number of vehicles that have entered the parking area loading patterns may vary from parking lot. The following equation defines a “lot full” decision:

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(Capacity of parking area) – (Vehicle count) illustrated in Figure 6-15, to: (1) preserve – (Pipeline capacity) = 0 (Lot full) parking for nearby residents and businesses and (2) increase capacity on critical access The visual inspection method involves the routes serving the planned special event. traffic management team or parking opera- Table 6-12 lists some considerations for de- tors making a “lot full” decision based on veloping off-street parking regulations. comparing a visual estimate of available parking spaces to the pipeline capacity. The parking area access point(s) must denote the downstream pipeline terminus. Team personnel can obtain an estimate of available parking spaces on the ground, from an overhead vantage point, or from aerial observation. This method is not as precise as the vehicle count method, but the visual inspection method: (1) requires less personnel resources and (2) can be implemented in the latter stages of load-in, as necessary to assess conditions. Figure 6-15 Parking Restriction Signs Table 6-11 summarizes the parking occupancy monitoring plan used during the 2002 Table 6-12 Winter Olympics. Off-street Parking Regulation Considerations Table 6-11 CONSIDERATION 2002 Winter Olympics Parking Occupancy • Parking area opening and closing time Monitoring Plan(1) • Parking on grass adjacent to paved areas STEP • Parking on islands, medians, and berms • The observers at each lot reported hourly to • Parking on the access road shoulder the TMC command post on the percent of lot • Private parking area regulations regarding the capacity in use. obstruction of traffic flow • The status of all lots was tracked by the TMC • Obstruction of pedestrian access routes (e.g., command post. sidewalks) • As any lot approached capacity, a backup lot • Tailgating: was identified by the TMC command post. o Occupy one parking space only • For each lot and backup lot, the upstream o Saving of parking spaces CMS locations were identified. o Blocking of aisles • Diversion messages were posted by the TMC at those CMS locations. Practitioners should assess the use of private • Approaching motorists saw the CMS instruc- land (residential or business) for event pa- tions and diverted to the new lot. tron parking. Owners entice arriving event patrons to use private parking areas by offer- Parking Regulations ing a reduced fee relative to event parking areas, or drivers recognize the convenience Planned special events require law enforce- of the lot location with respect to accessing a ment and other stakeholders to consider freeway or arterial corridor needed to exit various on-street and off-street parking regu- the area during egress. Problems may occur lations. On-street parking regulations in- particularly during event egress when a con- volve day-of-event parking restrictions, as tinuous stream of traffic exiting a private

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lot(s) conflicts with heavy adjacent street should include elements of the site and park- traffic attempting to exit the local area suring plan. Table 6-13 contains a site and rounding the event site. Congestion on the parking plan development checklist. Ap- adjacent street creates congestion that pendix H contains example site and parking 6 propagates upstream and toward the event maps prepared for permanent venues. site area. Solutions to mitigate the potential impact of private parking areas on adjacent Event patrons primarily focus on informa- street traffic flow during event ingress and tion specifying time of operation, location, egress include: (1) requiring owners of pri- and cost. These elements define the utility

vate land to obtain a permit to offer parking associated with choosing a particular park- OVERVIEW for a fee during a planned special event and ing area or electing to drive to the event site (2) staffing traffic control officers at private altogether. As shown in Figure 6-16, the driveways during egress to meter traffic distribution of an annotated aerial map bene- flow out of the private parking area. fits event patrons unfamiliar with the immediate venue area. Figure 6-17 shows a Three keys to successfully implementing a downtown arena parking map that displays parking regulation include enforcement, ad- parking fees for various off-site parking ar- vertising, and signing. Enforcement in- eas within sufficient walking distance from volves both ticketing and towing. Tow the venue. Table 6-14 lists considerations trucks assigned to the planned special event for posting any planned special event plan ADVANCE PLANNING venue site can facilitate immediate removal on an Internet website. of illegally parked vehicles. Prior to the event, the event planning team could desig- PEDESTRIAN ACCESS nate an on-site area to serve as a repository for towed vehicles. Event patrons could ac- PLAN cess the area on foot and then would have to pay a towing charge to retrieve their vehicle. Overview

The event planning team should inform af- A pedestrian access plan provides for the DAY-OF-EVENT ACTIVITIES fected local residents and businesses of safe and efficient movement of pedestrians parking restrictions via direct contact or within the immediate area of the venue. mailing. To better meet community needs, This includes accommodating pedestrian stakeholders can setup a telephone hotline trips to/from several mode transfer points in during the planned special event to field any a planned special event activity network. complaints. This tactic assists law enforce- These points, shown for example in Figure ment in identifying areas requiring greater 6-18, include site parking areas, transit sta- enforcement. For multi-day events, law en- tions, express/charter bus stations, shuttle POST-EVENT ACTIVITIES forcement can base second-day enforcement bus stations, and pick-up/drop-off areas. patrols on first-day public comments. Moreover, some event patrons may make their entire trip, originating from home or Plan Specifications work, on foot. In meeting the managing travel for planned special events goal of en- The event planning team should design a suring safety, the event planning team must site and parking plan to service both the traf- develop a plan that: (1) accommodates pe- EVENT PROFILE fic management team and event patrons. destrians accessing an event via a network Pre-trip traveler information dissemination of safe walking routes and (2) minimizes (via media, websites, mailings, brochures) pedestrian/vehicular conflicts.

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Table 6-13 Site and Parking Plan Checklist ELEMENT PROVISION Event patron • Highlight free, pay (state rates), and reserved (permit) parking areas. parking areas • Indicate lots where tailgating is permitted. • Show specific parking area access points and state restrictions. • Indicate number of entrance/exit lanes (or servers) at each access point. • Designate lots by a number or letter and provide lot-specific directions. • State time parking areas open, particularly if time varies by parking area. • Discuss features of each parking area (e.g., paved, staffed, lighting, security). • State estimated walking time from each parking area. • Indicate connecting pedestrian access routes. • Show overflow parking areas, state distance from venue, and indicate criteria for operation (e.g., sell-out). • Indicate parking areas for motorcycles. • Indicate parking areas for recreational vehicles (e.g., overnight parking). • Furnish map of available off-site parking areas. o Include information on street regulations (e.g., one- or two-way) and connections to freeways and major arterials. o State on-street parking restrictions. o Specify private parking area regulations (e.g., egress control). o Indicate location of entrance/exit points to off-street parking areas. o Include rates if available. o Show restricted off-site parking areas (e.g., residential neighborhoods, etc.) Gate access • Indicate gate names as shown on event patron tickets. information VIP information • Show VIP (e.g., official guest / sponsor) parking areas. • Show credential pick-up location. • Show hospitality areas. Shuttle bus route • Display shuttle route and all stations. and stations • State cost, and emphasize free services. Drop-off / pick- • Show access points and circulation lanes for transit/taxi/limo/shuttle service. up sites • Show exclusive bus lanes. • Show transit / express bus stations. • Indicate general drop-off / pick-up sites where turnaround is permitted. • Indicate valet parking drop-off. • Show disabled drop-off / pick-up site. Other parking • Show express/charter bus parking area. areas • Show limousine parking area. • Show media parking area. • Show venue employee parking area. Disabled parking • State specific location (e.g., first row) of disabled-only spaces in general parking areas. areas • Indicate number of spaces available. Other • Show aerial map. considerations • Promote advance purchase (permit) options. • Indicate towed vehicle (e.g., illegally parked) pick-up area. • Emphasize new provisions (e.g., new parking areas, etc.). • Present map in grid format for easy reference. • Prepare maps for different venue events if parking plan varies. • Draw map to scale. • Show private property. • Display landmarks. • Indicate municipal fireworks viewing areas.

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Table 6-14 Considerations for Posting Plans on an 6 Internet Website CONSIDERATION • Recognize detailed plans and maps may be difficult to read, especially when compressed for easy downloading. • Create an interactive plan to better present

detailed information contained in the plan. OVERVIEW • Allow users to access information on specific entities via hyperlinks embedded in the plan. • Provide a black and white version of plans for event patrons to download and print. • Provide text directions to support plans. • Provide maps and directions based on point of origin (e.g., city or roadway).

Figure 6-16 Annotated Aerial Map of Venue Site (Photo ADVANCE PLANNING courtesy of the Pepsi Center.)

DAY-OF-EVENT ACTIVITIES Figure 6-18 Mode Transfer Point

As with planned special event travel demand, peak event-generated pedestrian demand rates vary by event category:

• A discrete/recurring event at a perma- POST-EVENT ACTIVITIES nent venue is characterized by high peak pedestrian arrival and departure rates. Maximum pedestrian demand occurs after the end of a discrete event, and the Figure 6-17 high demand level meters pedestrian Downtown Area Venue Parking Map flow to event parking areas and tran- (Graphic courtesy of the Conseco Field- sit/shuttle stations, thus metering vehicle EVENT PROFILE house) departures from the venue area. • High attendance at continuous events and street use events yields high pedes-

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trian traffic traversing the adjacent street Pedestrian Control system for a sustained period of time. Pedestrian access routes are comprised of Existing pedestrian facilities, namely side- two components: walks and crosswalks as illustrated in Figure 6-19, can not adequately accommodate pe- • A routing component, consisting of destrian traffic in the vicinity of a planned sidewalks or paths between street inter- special event venue during ingress or egress. sections. If stakeholders fail to implement proper pe- • A crossing component, consisting of in- destrian control measures, then pedestrians frastructure or other vehicle control will risk exposure to moving traffic and measure that allows pedestrians to cross traverse travel lanes, causing traffic conges- a street safely. tion, under heavy flow conditions. Also, the popularity of planned special event transit Planned special event pedestrian manage- service requires advance consideration of ment involves the implementation of inte- moving pedestrians between an event venue grated control tactics to facilitate pedestrian and nearby transit stations. routing and crossing between a mode transfer point and the event venue. Key considerations include:

• Pedestrian access route capacity represents the smallest of its routing and crossing component capacities. • In a radial network, where pedestrian volume is highest at the center or venue, the event planning team should design pedestrian access routes to provide increasingly greater capacity from site Figure 6-19 area to venue. At-Grade Pedestrian Crossings Adjacent to a • Another important planning and opera- Venue Gate tions consideration involves preventing

the intersection of pedestrian access A successfully implemented pedestrian ac- routes. This results in overcrowding at cess plan for planned special events permits the intersection point and compromises rapid dispersion of pedestrian flow. Al- pedestrian safety, particularly if two though high pedestrian volumes encompass streams of pedestrians intersect at a the immediate venue area during ingress and street crossing. egress, the plan effects efficient access • Practitioners should design each access through a radial network of pedestrian route to exclusively serve a venue gate routes. It also includes time-sensitive and implement control tactics to prevent strategies to minimize overcrowding condi- routes from converging until reaching tions at venue gates and mode transfer the event venue. points. The plan also considers a continuous shuttle bus service operations detail to han- • Associated tactics include erecting pe- dle event patrons destined to/from satellite destrian crossing barriers, as shown in parking areas and transit stations not easily Figure 6-20, at street intersections and accessible by foot. deploying roving law enforcement pa-

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trols for pedestrian protection and Pedestrian Routing crowd control. Two strategies for managing pedestrian flow on walkways during planned special events 6 include:

• Locating access route termini. • Providing additional, temporary pedestrian walkway capacity.

OVERVIEW Key design aspects to consider include:

Figure 6-20 • The event planning team and parking Pedestrian Crossing Barrier area operators should avoid having a pedestrian access route and parking area • Use of bicycle, equestrian, or all-terrain access point intersect. vehicle patrols allow officers to conven- • Vehicle turning movements in and out of iently access and travel on streets, pedes- access driveways impact pedestrian trian access routes, and parking areas. safety and flow, and the implementation • A traffic operations agency can assist of special traffic control measures re- ADVANCE PLANNING law enforcement in maintaining orderly duces vehicle arrival rate to parking ar- pedestrian flow through the site area by eas and may create congestion on park- using CCTV to monitor pedestrian ing area access roads. Instead, stake- travel and operations at critical crossing holders should provide an uninterrupted points. Shown in Figure 6-21, stake- pedestrian walkway, connecting a pedes- holders managing travel for major trian access route to parking areas, and events at the Daytona International station volunteers inside parking areas to Speedway successfully used portable prevent pedestrian/vehicular conflicts. CCTV cameras to monitor the pedes- • To effect pedestrian dispersion in the DAY-OF-EVENT ACTIVITIES trian egress flow rate from the venue in immediate area of the venue, locate tem- addition to operations at several nearby porary transit stations a sufficient dis- street crossings. tance away from venues while still af- fording event patrons a convenient walking distance. As a result, potential station overcrowding during event egress does not impede pedestrians from accessing routes leading to other mode POST-EVENT ACTIVITIES transfer points. This tactic also benefits transit users as traffic management team personnel can better manage station queues by cordoning loading/unloading areas and closing street curb lanes to furnish additional queuing area not available adjacent to the venue. EVENT PROFILE

Figure 6-21 Obtaining additional pedestrian walkway Pedestrian Traffic Monitoring Via CCTV capacity involves increasing walkway width.

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Tactics for achieving increased width include: (1) removing movable sidewalk ob- stacles, such as news racks and benches and (2) closing the adjacent street curb lane for pedestrian traffic. Key considerations include:

• Consider implementing the latter tactic between the event venue and access Figure 6-22 points to parking areas and pick- Pedestrian Access Route and Emergency up/drop-off areas, but terminate the lane Access Route(8) at street intersections if turning traffic can traverse the pedestrian-designated curb lane. Pedestrian Crossing • Use barricades and drums, coupled with law enforcement patrol, separate traffic Table 6-15 describes tactics for improving and pedestrian flow. the safety and capacity of pedestrian street • To satisfy both public safety agency and crossings. pedestrian accommodation needs, consider closing street segments adjacent to an event venue. For example, as shown in Figure 6-22, a closed street can function as a pedestrian access route and emergency access route.

Table 6-15 Pedestrian Crossing Tactics TACTIC APPLICATION Temporary pedestrian bridge • Provides uninterrupted flow. • Achieves total separation of pedestrians and vehicles. • Enhances pedestrian safety. Street closure • Provides uninterrupted flow. • Accommodates very heavy pedestrian volume. • Allows pedestrian dispersion. • Requires officer control. Mid-block street crossing • Provides interrupted flow. • Avoids pedestrian conflict with turning vehicles. • Requires officer control. Staffed crossings • Provides interrupted flow. • Accommodates light pedestrian volume.

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Use of a temporary pedestrian bridge repre- the need to staff multiple at-grade crossings sents an effective tactic for crossing wide as patrons arrive and depart throughout the streets or roadways where traffic throughput event day. 6 is emphasized. Advantages include safety and minimal traffic management team staffing requirements. Disadvantages include cost and the lack of access for disabled persons. Figure 6-23 shows a temporary, pre-

fabricated pedestrian bridge that was suc- OVERVIEW cessfully deployed during the 1995 U.S. Golf Open as a pedestrian crossing, over an arterial roadway and the Long Island Rail Figure 6-24 Road, between the event venue and two Road Closure Adjacent to Event Venue mode transfer points (transit station and VIP

parking area). Figure 6-25 shows a staffed, mid-block pe-

destrian crossing. Mid-block crossings not only reduce the likelihood of vehicle- pedestrian collisions, but accident severity ADVANCE PLANNING as well. As with all staffed crossings, traffic management team supervisors should establish the relative priority of competing pedestrian and traffic movements and communicate that priority to officers controlling such crossings.

Figure 6-23 Temporary Pedestrian Bridge DAY-OF-EVENT ACTIVITIES

Temporary street closures during event egress allow the venue to empty faster and permits pedestrians to disperse to a number of adjacent mode transfer points and pedes- Figure 6-25 trian access routes. Recognize that heavy Staffed Mid-block Crossing pedestrian flow on street crosswalks near

POST-EVENT ACTIVITIES venue gates significantly reduces traffic Analysis turning movement capacity. Therefore, total street closure mainly impacts cross street Practitioners should analyze the level of ser- through traffic flow, traffic that can be di- vice of major pedestrian access routes and verted away from the immediate venue area. crossings, first and foremost to ensure an- The traffic management team reopens the ticipated pedestrian demand levels do not street when traffic signal phasing can ac- exceed available capacity at any time during EVENT PROFILE commodate remaining pedestrian demand. event ingress and egress. Overcrowding on As shown in Figure 6-24, law enforcement pedestrian facilities compromises the safety may close a road segment(s) adjacent to the of pedestrians and may interfere with adja- main gate of a continuous event to alleviate cent street traffic flow.

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The Highway Capacity Manual (HCM) in- gates. This does not apply for temporary cludes procedures for computing capacity venues or locations of street use events. and level of service for various types of pe- Disabled parking spaces at municipal and destrian routes and crossings, summarized in private parking areas serving continuous Table 6-16.(9) With regard to capacity, a events and street use events may be located Level of Service E indicates design volumes too far a distance from venue gates or event approach the limit of facility capacity. The viewing areas. Each individual special HCM also discusses characteristics of pe- event parking area includes a minimum destrian flow and various performance number of disabled parking spaces to meet measures. ADA regulations, thus rendering an on- demand, accessible shuttle operation from Table 6-16 the lot impractical. As a result, the event Pedestrian Facilities Covered in the planning team should sign and staff one Highway Capacity Manual parking area, nearest to venue gates or prime FACILITY TYPE event viewing areas, for disabled parking. • Walkways and sidewalks Figure 6-26 shows an access point to a mu- • Pedestrian queuing areas (e.g., transit/shuttle nicipal lot designated a disabled parking stations and street crossing areas) area for a downtown planned special event • Pedestrian crosswalks at signalized and unsignalized intersections at a temporary venue. • Pedestrian facilities along urban streets (e.g., extended pedestrian facilities with both interrupted and uninterrupted flows)

Disabled Accessibility

The pedestrian access plan must accommodate disabled event patrons arriving via all travel modes serving a planned special event. This involves examining all routes that a disabled event patron may traverse Figure 6-26 and, in turn, ensuring the patron has an un- Special Event Disabled Parking Area Access impeded path from mode transfer point to Point venue seat. Accessible pedestrian routes must: (1) maintain a minimum path width, Shuttle Bus Service (2) include curb cuts and temporary ramps for negotiating grade separations, and (3) A shuttle bus service should be operated conform to local Americans with Disabili- continuously within the venue site area dur- ties Act (ADA) regulations. If a particular ing event ingress and egress, with the ser- route (e.g., from express/charter bus station vice schedule revolving around event patron or transit station) does not meet accessibility arrivals and departures. Common shuttle requirements, then accessible shuttles must service to/from a planned special event operate between affected mode transfer venue include: (1) satellite parking area ser- points and accessible pick-up/drop-off areas. vice, (2) transit station service, and (3) employee parking area service. A particular Permanent venue parking areas have desig- planned special event may involve multiple nated accessible parking and pick-up/drop- private and public (e.g., transit agency) shut- off areas that provide disabled event patrons tle service operators, all of whom must co- with unobstructed access to event venue

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ordinate with the event planning team on service details and station locations.

The shuttle bus service planning process 6 should incorporate the considerations listed in Table 6-17. These considerations impact Figure 6-27 the overall travel choice utility associated Shuttle Bus Service Promotion (Graphic with the activity network supported by a courtesy of The Ohio State University.) shuttle bus service. Its design and operation Service Design on the day-of-event must satisfy a range of OVERVIEW user needs, summarized in Table 6-18. These needs pertain to service and station The end result in shuttle bus service design provisions. Successful shuttle bus services involves determining the required number of positively influence the travel mode or des- buses to meet expected ridership levels. tination (e.g., off-site) choice made by per- Based on event category and associated op- sons traveling to and from a planned special erations characteristics, the number of shut- event. As illustrated by the event website tle buses needed during event ingress and promotion displayed in Figure 6-27, an egress may vary. Discrete, recurring events event public information campaign may at a permanent venue demand maximum spotlight shuttle bus operations to promote service at the end of the event. ADVANCE PLANNING alternate travel options, such as transit use or parking at a satellite parking area. Primary service design inputs include event patron arrival and minimum service head- Table 6-17 way (e.g., time between bus arrivals). To Considerations in Shuttle Bus Operations(10) estimate the magnitude and rate of arrival, CONSIDERATION consult parking demand analysis and travel • Travel time forecast results applicable to the mode trans- • Directness fer point(s) (e.g., parking area or transit sta- • Avoidance of traffic problem areas tion) to be serviced by the shuttle bus. Util- DAY-OF-EVENT ACTIVITIES • Separation of shuttle buses from event traffic ize vehicle occupancy figures referenced in • Boarding locations the event feasibility study to convert vehi- • Ability to load/unload passengers simultaneously on several buses cle-trips to person-trips in order to develop • Pedestrian routing shuttle ridership estimates. The shuttle bus • Neighborhood impacts service will serve approximately the same number of persons during egress operation as it does during ingress operation. As pre-

viously noted, demand rates likely may vary. POST-EVENT ACTIVITIES Table 6-18 On the day-of-event, service operators Shuttle Bus Service User Needs(11) should utilize ingress passenger counts to NEED reevaluate service needs before the planned • Have less than a 5-minute wait time. special event ends. • Have a short or moving embarking queue. • Have an on-time arrival. Minimum service headway represents a • Be free of confusion.

function of route service time. The follow- EVENT PROFILE • Be protected from weather conditions. • Have less than a quarter-mile walk to/from the ing equation defines route service time: shuttle station. Route service time = (Round-trip travel time) + (Number of shuttle bus stations on

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route) * (Average passenger loading time at For analysis purposes, arrival rate refers one station + Average passenger unloading to the rate of pedestrians arriving to a time at one station + Average dwell time at shuttle bus station at a parking one station) area/transit station and at a venue during event ingress and egress operations, re- Travel time estimates must reflect day-of- spectively. Practitioners should increase event operations and may vary depending on the number of shuttle buses serving a transit accommodation strategies contained particular route, as necessary based on in the event traffic control plan. The follow- analysis results, to meet peak event pa- ing equation defines minimum service tron arrival rates and avoid overcrowd- headway: ing at shuttle bus stations. • Third, account for dwell time and event Minimum service headway = (Route service patron demand at all shuttle bus stations time) / (Number of shuttle buses operating serviced by a particular shuttle route. on a specific route at any given time) Station Design The following steps describe how to determine the required capacity to successfully A temporary shuttle bus station will exist at operate a shuttle bus service on a particular both a mode transfer point and at the event route: venue. Station design and operations should facilitate the rapid loading and unloading of • First, design the shuttle bus fleet size shuttle passengers without impacting adja- based on the criteria of providing a cent traffic operations and pedestrian minimum service headway less than the movement. Because of the high concentra- maximum desired user wait time. Using tion of pedestrian traffic at the event venue the above equation for minimum service during ingress and egress, venue station de- headway: (1) substitute the maximum sign is critical. On-site shuttle bus stations desired user wait time for minimum ser- should: (1) facilitate easy shuttle bus access, vice headway, (2) insert the route service (2) provide a defined passenger waiting time, and (3) solve for the number of area, (3) promote an orderly queue forma- shuttle buses required on the route, tion, and (4) shield waiting passengers from rounding up to account for the user wait adjacent vehicular and pedestrian traffic. time criteria. Note that the service Figure 6-28 shows an on-site shuttle bus sta- headway between successive shuttle tion located adjacent to a roadway desig- buses may be greater than the minimum nated exclusively for bus use during a rural service headway if the fleet of buses as- planned special event. Table 6-19 summa- signed to a particular route are not per- rizes key considerations that surround shut- fectly staggered to yield equal headways tle bus station design. between buses. • Second, compare the event patron rate of arrival to the rate of available shuttle bus seats per unit of time. To accommodate pedestrian flow during peak periods of ingress and egress, practitioners should consider a sub-hourly analysis (e.g., peak 15 or 30 minutes) using the highest anticipated event patron arrival rates.

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Management

Shuttle bus service operators should have access to pertinent traffic management team 6 radio communication channels and/or consider stationing a supervisor in the event command post. Station volunteers can monitor passenger queuing and loading/unloading times. Bus operators can

monitor passenger volume and communicate OVERVIEW bus travel time and location. The service Figure 6-28 supervisor, in turn, directs service response On-Site Shuttle Bus Station to schedule delays, bus breakdowns, station overcrowding, and traffic incidents blocking service routes.

Table 6-19

Considerations in Shuttle Bus Station Design ADVANCE PLANNING CONSIDERATION TACTIC BENEFIT Location at venue • Designate an exclusive curbside bus lane on a road seg- • Avoids pedestrians ment adjacent to the venue. using shuttle from • Locate station adjacent to bus lane but away from venue crossing streets. gates. • Assures safe and • Design bus loading areas and turnarounds by using ap- efficient design for propriate bus turning templates. bus movements. • Layout bus turnarounds in the field and use the selected bus size for a test drive to assure U-turns can be accommodated without requiring the bus to back-up. Pedestrian • Connect stations to planned pedestrian access routes. • Improves passen- DAY-OF-EVENT ACTIVITIES management • Enclose passenger waiting area with temporary barriers ger safety. (e.g., snow fencing or barricades) • Minimizes conflict with other pedestrian traffic. Shuttle loading • Designate sections within passenger waiting area that • Reduces shuttle correspond to different shuttle bus destinations (if any). loading time. • Erect signs disseminating information on fare structure, • Eliminates passen- ticket purchasing, and important regulations. ger confusion. • Deploy volunteers to answer questions and assist passen- POST-EVENT ACTIVITIES gers in shuttle embarking and disembarking. • Create ability to load/unload several buses simultaneously. Passenger comfort • Provide shelter over station (e.g., tent). • Creates a landmark for identifying the station. • Keeps passengers protected from EVENT PROFILE weather conditions.

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Shuttle bus operation contingency plans Table 6-20 should include alternate shuttle routes in the Pedestrian Access Plan Checklist event of a traffic incident occurrence. The ELEMENT alternate route should traverse a completely • Show recommended pedestrian access routes. different set of streets than the preferred • Show pedestrian bridges and tunnels. route. Service operators should maintain an • Indicate special pedestrian crossing tactics (e.g., street closure or mid-block crossings) operations and route detail for any parking • Show shuttle bus route, direction of travel, areas denoted as an alternate (e.g., for over- stop locations, and loading and unloading ar- flow or weather reasons) to the primary lot eas. served by the service. Other applicable con- • Show vertical connections between infrastruc- tingency information includes temporary ture levels (e.g., stairs, escalator, elevator, service locations for bus maintenance and ramps). • Show designated pedestrian crossings at street fueling. use event venues. • Indicate special regulations. Cost • Highlight pedestrian access routes and crossings suitable for disabled event patrons. The operation of a shuttle bus service likely will realize greater efficiency for discrete TRAFFIC FLOW PLAN events compared to continuous events such as fairs and festivals. Funding is obtained Overview through satellite parking area fees, corporate

sponsorship, or general event revenues. In The preparation of a traffic flow plan repre- some cases, parking is free, and the shuttle sents a required preliminary step to the de- service charges a nominal fare to passen- sign of a traffic control plan. The traffic gers. This arrangement may cause delays demand analysis component of a feasibility during passenger embarking, particularly if study indicates the freeway/arterial corridors the bus operator must collect fares. Shuttle and local streets that event patrons will util- users likely will resist any fare charged for ize to access the venue site area. In develop- shuttle bus service from a transit station. ing a traffic flow plan, the event planning Therefore, a fare-based shuttle service could team modifies predicted flow routes to significantly impact the utility that event pa- maximize transportation system operating trons assign to transit when considering efficiency on the day-of-event while meet- planned special event travel options. ing public safety agency needs. In turn, a

traffic control plan facilitates traffic flow on Plan Specifications recommended flow routes through service- enhancing strategies and tactics that handle Table 6-20 lists pertinent pedestrian access forecasted event traffic demand on these plan informational elements of interest to routes. event patrons and participants. A traffic flow map or traffic control plan, prepared as The advantage of developing a traffic flow a traveler information tool, may contain plan is two-fold: callouts to pedestrian facilities and day-of- event control tactics. Traffic management • Allows the event planning team to influ- team personnel will require an implementa- ence and control event patron patterns of tion plan tailored to each pedestrian man- ingress and egress. This improves trans- agement initiative. portation system operations and reduces

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the impact to neighborhoods surrounding • Recommended traffic flow routes should the event venue. not traverse or intersect emergency ac- • Provides important advance information cess routes, if possible. 6 for event patrons and participants • Event mandated road closures refer, in regarding best access routes to the event. particular, to street use event parade and These directions provide event patrons, race routes. If not already designated, particularly those not familiar with the the event planning team should first de- region, an increased level of comfort termine the street use route. when traveling on the day-of-event. o Table 6-22 provides a general check-

Event patrons also recognize that the list for evaluating the impact of clos- OVERVIEW traffic management team will sign, staff, ing one or more adjoining street and prioritize flow on designated routes. segments, while Figure 6-29 shows a Non-attendee transportation system us- parade staging area. ers benefit by gaining advance notice of o Typical staging areas include off- event-designated traffic and transit street parking areas and cross streets routes. adjacent to the parade route. o Upon reviewing the street closure Information Requirements checklist, the event planning team should consult with community in- Table 6-21 lists various sources of data and terest stakeholders and public safety ADVANCE PLANNING information that drive the traffic flow plan agencies in order to identify all con- development process. Key points that cerns and solicit input. should be considered include: Another key information component concerns the identification of roadway capacity Table 6-21 deficiencies or bottleneck locations. This Traffic Flow Plan Information Sources includes freeway weaving areas, freeway SOURCE ramp junctions, freeway/street lane-drops,

• Market area analysis and intersection traffic control. Bottleneck DAY-OF-EVENT ACTIVITIES o Regional directional distribution locations yield a constant rate of flow (e.g., • Traffic demand analysis o Local directional distribution saturation rate), and appropriate traffic con- o Day-of-event traffic demand trol strategies can temporarily alleviate the • Site access and parking plan bottleneck on the day-of-event by increasing o Parking area assignment saturation flow rate. Consult the feasibility • Road closures required for event staging study roadway capacity analysis results or o Street use event conduct new analyses to evaluate operations • Public safety agency requirements POST-EVENT ACTIVITIES o Emergency access routes on traffic flow routes not previously consid- • Transit agency requirements ered. In addition, practitioners should con- o Scheduled and event service sider driving, and creating a video/photo log, of proposed traffic flow routes, emergency access routes, and transit routes. This activ- • A traffic flow plan should accommodate ity assists in verifying computer analysis background traffic flow in addition to results and facilitating off-site event plan- transit service, which will be promoted ning team evaluation of recommended EVENT PROFILE as an event patron travel alternative. routes.

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Table 6-22 Road Closure Impact Checklist(12) ELEMENT PROVISION One-way street operation • Does not significantly disrupt traffic operations on adjacent one-way streets. Impacts on access • Does not have an adverse impact on: • Public safety agency station access • Hospital access • Local resident neighborhood access • Public facility access (e.g., schools, parks, etc.) • Access to places of worship • Access to local businesses • Heavy vehicle access • Public transit access Parade staging area • Provide sufficient area for parade staging. Coincidence with • Does not conflict with existing roadway construction activities. roadway construction Proximity to major • Has no adverse impact on nearby major traffic generator (e.g., shopping center, traffic generators entertainment venue, etc.). Presence of alternate • Has available alternate routes for local access. routes for local access • Width of traveled-way and number/designation of travel lanes • Traffic control (e.g., traffic signals and signs) • Street signage • Restricted traffic movements • Presence of impeding traffic calming devices

• Local flow routes traverse the street system adjacent to the event venue and service a particular parking area or pick- up/drop-off point. • A target point represents the point of connection between corridor and local flow routes, characterized by a freeway interchange or major arterial intersection. o In the driver’s mindset, reaching a target point during event ingress sig- Figure 6-29 nals entrance into the local area sur- Parade Staging Area rounding the event site. At this point, the driver anticipates receiving Strategic Route Planning information and directions on event parking and pick-up/drop-off areas. The traffic flow plan must account for two o During event egress, the driver’s ob- types of traffic flow routes: corridor and jective involves reaching the nearest local: target point (e.g., freeway interchange) in order to access a familiar • Corridor flow routes include the free- corridor flow route leading toward ways and major arterial roadways serv- home or some other destination. ing the planned special event venue.

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• On the day-of-event, the management of Table 6-23 corridor flow routes typically involves Traffic Flow Route Development surveillance and dissemination of trav- Considerations eler information regarding target point CONSIDERATION 6 and local flow route operations. The • Focus on ingress and egress operations sepa- traffic management team implements rately. • Avoid left-turn movements across traffic traffic control initiatives beginning at the flow. target point and continuing along the lo- • Divert traffic flow routes from critical loca- cal flow route. tions (e.g., other flow routes) that could cre-

o Figure 6-30 displays a traffic flow ate congestion. OVERVIEW plan that indicates, for reference by • Develop multiple local flow routes, con- event patrons, various target points nected to one corridor flow route, as necessary to achieve optimum traffic distribution for access to individual venue park- on the roadway system. ing areas. • Assign local flow routes to contingency overflow parking areas identified in the site access and parking plan.

ADVANCE PLANNING

Figure 6-30 DAY-OF-EVENT ACTIVITIES Corridor Target Points (Graphic courtesy of Dover Motorsports, Inc.)

Table 6-23 indicates general considerations Figure 6-31 for developing traffic flow routes. Figure 6- Multiple Local Traffic Flow Routes 31 shows one corridor flow route spawning, (Graphic courtesy of the City of San Diego.) via two target points, three local flow routes destined to the same venue access point. POST-EVENT ACTIVITIES The figure demonstrates how a traffic flow plan works to assure that traffic demand on the existing street system adjacent to an event venue does not exceed capacity on the day-of-event if signed and staffed appropri- ately. EVENT PROFILE

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Figure 6-32 describes a process for assessing corridor and/or local traffic flow routes. Identify Traffic Reevaluate Traffic control strategies for increasing cor- Flow Route Traffic Flow Route ridor route capacity include eliminating weaving areas or other ramp control tactics. Estimate Existing Strategies for local routes include striping Route Capacity additional travel lanes to handle flow in the predominant direction, restricting turning movements, and revising traffic signal tim- Forecast ing plans. The “Traffic Control Plan” sec- No Traffic Demand > tion of this chapter describes these strategies Capacity? and other mitigation alternatives in greater

detail. Yes Identify Reevaluate Traffic Control Strategy Traffic Control Aside from parking contingencies and the to Increase Capacity Strategies occurrence of severe congestion on the day- of-event, practitioners should maintain and promote the same flow routes identified in Forecast the traffic flow plan. These routes are gen- Traffic Yes Demand > erally pre-signed and communicated to Capacity? event patrons and participants prior to the

event. Measures of effectiveness for evalu- No ating the performance of designated traffic Estimate Changes in Background flow routes, in additional to corresponding Traffic Demand traffic control strategies, include: (1) time to regain free-flow operations and (2) time to Conduct Analysis and Modeling to Estimate clear parking areas. Operational MOEs

Review Route with Alternate Routes Identify Event Traffic Community Interest or Parking Restrictions Stakeholders The deployment of an alternate route plan marks a key traffic management strategy for minimizing the effect of non-recurring con- Impact on No gestion, caused by a traffic incident or Traffic Operations event-generated traffic demand, on traffic Acceptable? flow. It serves to reduce demand at a traffic incident site or bottleneck through the diver- Yes sion of traffic from the mainline to parallel Recommend Route freeways, arterials, and streets. As part of traffic incident management efforts, some jurisdictions may maintain alternate route plans for freeway and arterial segments traversing a region. Figure 6-32 Traffic Flow Route Assessment Process

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An alternate route plan represents a contin- The effectiveness of deploying an alternate gency plan that stakeholders should consider route plan revolves around the accommoda- developing for corridors serving a planned tion of diverted traffic along the alternate special event venue, where high-speed route. It is essential that the diverted traffic 6 crashes or cargo spills may block travel encounter an equal or higher level of service lanes for a long duration. In other instances, on the alternate route compared with that on an alternate route plan becomes a critical the mainline. As shown in Figure 6-33, al- component of the overall event traffic man- ternate route plan deployment, particularly agement plan when roadway or bridge con- plans developed specifically for a planned

struction activities limit the capacity of special event, typically requires significant OVERVIEW mainline corridor flow routes. Transporta- law enforcement resources for alternate tion system operators should also promote route traffic management and operations travel choice alternatives, such as using surveillance. Technology applications for other travel modes, as an option to driving managing traffic on an alternate route, and alternate routes. reducing field personnel requirements, include the installation of dynamic route guid- The process of developing alternate route ance signs controllable from a transportation plans and procedures for plan deployment operations center. Figure 6-34 shows a dy- requires a group endeavor involving all af- namic trailblazer sign. During the program fected agencies, most of which likely com- planning phase, stakeholders managing re- ADVANCE PLANNING prise the event planning team and/or traffic curring planned special events at permanent management team. Table 6-24 lists the steps venues should evaluate the need for install- required in developing an alternate route ing these devices along commonly used al- plan. Practitioners should consult NCHRP ternate routes serving the event venue. Synthesis 279, Roadway Incident Diversion Practices, for state-of-the-practice informa- Emergency Access Routes tion about the development and deployment (13) of alternate route plans. Table 6-25 high- Emergency access route planning involves lights numerous considerations in alternate designating street closures within the venue DAY-OF-EVENT ACTIVITIES route plan development, all of which are ad- site area to connect the some or all of the dressed in the cited synthesis report. following termini: (1) public safety (e.g., fire and emergency medical service) head- Table 6-24 quarters, (2) local hospital, (3) freeway or Alternate Route Plan Development Process major arterial serving a regional hospital, STEP and (4) location of staged ambulances and • Identify mainline bottleneck or problem loca- first-aid stations for on-site medical treat-

tions. POST-EVENT ACTIVITIES • Evaluate proposed alternate routes. ment. • Determine appropriate criteria for plan deployment. • Achieve participating agency agreement on roles and responsibilities. • Identify equipment and personnel resources required to deploy an alternate route plan. • Establish guidelines for plan evaluation and updating. EVENT PROFILE

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Table 6-25 Alternate Route Plan Development Considerations ITEM CONSIDERATION Alternate Route Selection

• Advance planning stakeholders and stakeholders involved in alter- • Stakeholder Roles and Coordina- nate route deployment tion • Interagency agreements for advance planning and/or operations

• Freeway, street, and toll facility • Types of Alternate Routes • Secondary alternate routes

• Access, capacity, vehicle restrictions, traffic control, background

traffic, pavement conditions, road geometrics, percentage of heavy • Inventory Potential Alternate vehicles, transit accommodation, and available surveillance Routes • Considerations in rural, urban, and metropolitan areas

• Capacity analysis and modeling • Alternate Route Evaluation • Traffic signal timing optimization

• Alternate Route Selection Criteria • Road user and community impacts

Alternate Route Plan Development • Incident location limits, direction of routed traffic, ramp/street closures, traffic control resources, alternate route distance and capac- • Alternate Route Plan Map ity, alternate route regulations and restrictions, and emergency service stations

• Traffic Control Requirements • Traffic control officers, temporary signs, and barricades

• Criteria for Alternate Route Plan • Incident duration, number of lanes blocked, time of day, etc. Deployment

• Checklist for field supervisor and communications center supervi- • Deployment Operations Plan sor

Road User Accommodation • Pre-trip and en-route • Motorist Information Resources • Message sets • Planned media release

• Traffic Management on Alternate • Permanent trailblazers Route • Technology applications

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stage a planned special event allows unimpeded emergency vehicle access throughout the entire local street network impacted by the event. This particularly applies to street 6 use event routes. Typical specifications for an emergency access lane involve delineat- ing a 20 foot wide, paved curb lane within the existing roadbed (e.g., shoulder plus traveled-way).

OVERVIEW Figure 6-33 Background Traffic Background Traffic Diversion Accommodation

The composition of background traffic, or non-attendee motorists, traversing streets and highways in the vicinity of a planned special event venue include the following categories:

• Regional through traffic ADVANCE PLANNING o Includes truckers and intra- or inter state travelers represent regional through traffic. Figure 6-34 • Local through traffic Dynamic Route Guidance Sign (Photo cour- o Includes commuters and area resi- tesy of the Minnesota DOT.) dents, some of whom may simply cruise local streets adjacent to the For large-scale planned special events, event. emergency access routes remain closed to all • Neighborhood residents and businesses DAY-OF-EVENT ACTIVITIES non-emergency vehicles. Traffic control o Includes residents living in the im- officers staff each intersection along the mediate vicinity of the event venue route and permit side street traffic to cross that may incur impacts attributed to the route when conditions permit. For high traffic demand and temporary smaller-scale special events, the emergency traffic control strategies. access route denotes a local flow route for o Includes nearby businesses requiring emergency vehicles that may be utilized by accommodation for both employees POST-EVENT ACTIVITIES general traffic under non-emergency condi- and patrons. tions. Under an emergency scenario, law enforcement officers may escort emergency Table 6-26 presents a range of passive (e.g., vehicles, using a rolling roadblock, via the traveler information dissemination only) and designated access route. Emergency access aggressive (e.g., physical traffic control) tac- routes should not traverse or intersect event tics for accommodating background traffic patron traffic flow routes to/from the event during a planned special event. venue and associated parking areas. EVENT PROFILE

The provision of emergency access lanes along streets slated for closure in order to

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Table 6-26 Tactics for Accommodating Background Traffic during Planned Special Events USER GROUP TACTIC BENEFIT Regional • Freeway-to-freeway diversion • Maintains mobility. through traffic beginning a significant dis- • Reduces the level of background traffic on corridor tance upstream of an event flow routes serving the venue. venue. Local through • Arterial-to-arterial diversion • Eliminates non-attendee exposure to venue site traffic area. • Discourages cruising around site area. • Allows public to become familiar with route after repeated implementation. Neighborhood • Parking restrictions • Permits resident access to on-street parking spaces. residents and • Permits employee and customer access to public businesses parking areas. • Traffic control points • Restricts neighborhood area access to residents and business employees. • Signing and alternate routes • Directs customers to businesses and other traffic generators.

Freeway-to-Freeway Diversion causing undue congestion and blocking neighborhood access and circulation pat- Transportation management system opera- terns. If this represents a potential concern tors can implement freeway-to-freeway di- during advance planning, then locate event version through control of permanent parking areas a sufficient distance away changeable message signs and highway ad- from affected neighborhood areas and create visory radio. traffic control points to prevent event- generated traffic from penetrating these ar- Parking Restrictions eas. Residents and business employees would receive a pass allowing them access Parking restrictions accomplish the task of through the traffic control points. preventing event-generated traffic from de- viating from local event traffic flow routes and traversing neighborhood residential and commercial areas.

Traffic Control Points

Road closures may impact customer access to businesses and other traffic generators. Figure 6-35 shows a sign diverting traffic destined to a major traffic generator located adjacent to a planned special event temporary venue. Figure 6-35 Large-scale events may generate sufficient Accommodation of Traffic Destined to traffic demand to saturate the entire local Major Generators street system adjacent to the event venue,

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Arterial-to-Arterial Diversion will be closed. Otherwise, travelers may mistakenly assume that the entire street use Arterial-to-arterial diversion applies to event route will remain closed for the dura- planned special events occurring in city tion of the parade or road race. 6 downtown or commercial areas, where arterials and local streets adjacent to the event Table 6-27 venue serve a significant volume of back- Pre-Trip Traveler Information for Street Use ground traffic. In turn, the addition of Events event-generated traffic causes congestion ITEM

and impacts commercial businesses (e.g., • Indicate the entire parade or race route cou- OVERVIEW restaurants, hotels, retail stores). This tactic pled with participant staging and disbanding areas. involves: (1) restricting commercial street • Estimate, based on the event pace and length access to businesses employees, customers, of the field, and specify times each roadway emergency vehicles, taxis, and transit buses segment and intersection will be closed and and (2) deploying an alternate route to direct reopened. background through traffic and event- • State other traffic and parking restrictions in generated traffic around the restricted street. the vicinity of the event course. • Organize information for easy reference using maps and reference numbers (for intersections Planned special event stakeholders in At- and roadway segments). lanta, Georgia developed such an alternate ADVANCE PLANNING route, entitled the “Blue Loop” to divert traf- Transit Accommodation fic away from restricted Peachtree Street during special events in downtown At- (14) A traffic management plan that prioritizes lanta. Stakeholders prepared the plan bus flow to and from the venue site area during the program planning phase in re- positively influences the utility associated sponse to lessons learned from past planned with transit and other travel choices involv- special events that occur in the Atlanta ing express bus, charter bus, or shuttle bus downtown area and generate significant transport. Transit agencies should operate

automobile traffic. They hope the term on scheduled bus transit routes up until the DAY-OF-EVENT ACTIVITIES “Blue Loop” becomes an alert that city resi- last possible point to divert around a road dents will recognize and understand that the closure required to stage a planned special alternate route is in effect. Traffic monitor- event. This avoids user confusion and ing represents a key to Blue Loop operation, minimizes inconvenience to non-event at- and the route deployment detail specifies tendees. several release points for diverting Blue Loop traffic to adjacent highways. Table 6-28 lists tactics for accommodating scheduled and event-generated bus service. POST-EVENT ACTIVITIES Street use events involving a parade or road race permit the traffic management team to Table 6-28 reopen certain roadway sections after event Bus Accommodation Tactics participants pass, even if the event has not TACTIC completed. Background traffic accommoda- • Exclusive bus route tion includes disseminating specialized trav- • Exclusive/priority bus lane eler information, summarized in Table 6-27, • On-demand communication with TMC or EVENT PROFILE command post prior to the event. The information provides non-attendee transportation system users a timeframe, relative to the parade/race pace and field length, that certain route sections

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Exclusive Bus Route ing a planned special event. Table 6-29 summarizes drawbacks associated with the Exclusive bus routes that cause a negligible temporary operation of an exclusive bus impact to background traffic and adjacent lane. A bus priority lane is used by both neighborhoods represent the recommended buses and general traffic between intersec- bus accommodation tactic. Advantages of tions. However, at intersection approaches exclusive bus routes include: (1) use of the such as that shown in Figure 6-37, regula- same route during ingress and egress, (2) tions limit general traffic to a turning increased mobility and travel time reliabil- movement, while buses can continue straight ity, and (3) better venue station accommoda- through the intersection and “jump” adjacent tions for riders as temporary stations may through-lane queues. exist adjacent to bus routes, thus avoiding conflicts with event vehicle and pedestrian Table 6-29 traffic. Exclusive Bus Lane Limitations LIMITATION Depending on roadway network layout, a • Lane may obstruct access to mid-block drive- special event traffic flow plan may feature ways. • Mid-block turning movements may create an exclusive bus route from corridor target queues in adjacent through travel lanes. points and satellite parking areas direct to • Congestion may occur upstream of the lane designated pick-up/drop-off areas adjacent start, especially if the lane utilizes an existing to the venue. Other bus routes may only di- travel lane. vert buses around known bottleneck loca- • Shoulder lane use may eliminate area for tions. Figure 6-36 shows an exclusive bus emergency stops. • Manned intersection control may be required route implemented for a major rural planned to allow buses and cars to turn in front of the special event. An exclusive bus route must other. accommodate minimum overpass height re- • Maintenance of signs and lane delineators are quirements, vehicle weight requirements, necessary. and vehicle turning radii. • Special enforcement requirements are needed.

Figure 6-36 Exclusive Bus Route Figure 6-37 Exclusive/Priority Bus Lane Bus Priority Lane

An exclusive bus lane represents a travel On-Demand Communication lane for bus traffic only. Temporary applications include converting an existing road- On-demand communication with a com- way shoulder or travel lane for bus use dur- mand center represents another bus accom-

6-46 modation tactic that the traffic management TRAFFIC CONTROL team may employ in conjunction with other previously discussed tactics. Bus operations PLAN supervisors or other traffic management 6 team personnel, stationed at the TMC or Overview event command post, monitor roadway surveillance sources (e.g., CCTV and field ob- Freeways represent corridor flow routes servers) in order to identify areas of conges- serving event patrons and participants des- tion before a bus encounters it. When su- tined to/from a planned special event from pervisors verify a traffic bottleneck affecting various parts of a region and beyond. These OVERVIEW a bus route, they immediately notify bus op- corridor flow routes connect to local, street- erators and work to divert buses around the level flow routes that, in turn, serve event congested area. venue parking areas. A freeway interchange marks the point of connection, or target Plan Specifications point, between corridor flow routes and local flow routes. Together, the three entities The traffic flow plan serves stakeholders comprise the roadway system servicing a managing the planned special event in addi- planned special event. The scope of traffic tion to event patrons and participants. The control expands and contracts, proportion- product of strategic route planning involves ally to system performance, during event ADVANCE PLANNING informing event patrons of best access ingress and egress. routes to and from the planned special event. Stakeholders can communicate preferred The keys to successful transportation system route directions via: (1) event patron ticket management, including traffic and transit, mailings, (2) media public information cam- during planned special events include: paigns, and (3) event, venue, or traffic information websites. • Real-time surveillance • Open communications Table 6-30 contains a traffic flow plan de- • Planned response DAY-OF-EVENT ACTIVITIES velopment checklist. • Rapid implementation

Appendix I contains example traffic flow Planned response requires a detailed traffic maps prepared for various planned special control plan that facilitates a proactive traf- (15) events. fic management team response to system deficiencies and unexpected events. The Traffic flow plans should emphasize avail- other keys depend on technology applica- able express, charter, and shuttle bus ser- tions, such as remote surveillance and auto- POST-EVENT ACTIVITIES vices from regional park and ride lots and/or mated control of traveler information and satellite parking areas. Driving directions traffic control devices, in addition to inter- should be accompanied by useful travel tips jurisdictional coordination and collabora- that coincide with the day-of-event operation. tion of recommended traffic flow routes. Travel tips include accessing en-route traveler information and adhering to traffic con- EVENT PROFILE trol tactics.

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Table 6-30 Traffic Flow Plan Checklist ELEMENT PROVISION Event patron • Indicate recommended freeway ramps, by route direction, to/from event venue or specific parking corridor flow area. route • Indicate corridor target points representing a connection to local flow routes. • State freeway or arterial lane assignments for event traffic (e.g., event traffic two right-lanes). • Furnish information on roadway construction projects, as applicable, and indicate alternate routes. • Indicate modified ramp control tactics (e.g., closures/additional lanes). • Show freeway interchange configurations (and direction of travel) and exit numbers. • State tolls, if applicable. Event patron • Show connection to corridor flow route. local flow • Indicate local streets that connect to freeway entrance/exit ramps. route • Indicate recommended flow route to/from general and reserved parking areas (minimum) or individual parking areas (recommended). • Indicate one-way streets. • Show all road segment closures. • Specify permitted turning movements. • Emphasize controlled turn areas (turns prohibited or only one turn allowed). • List modified roadway striping (e.g., reversible lanes or contra-flow). • Indicate event participant/VIP access routes. Traveler • Promote use of regional park & ride locations and event satellite parking areas. information • Indicate commercial radio and highway advisory radio frequencies with event travel information. • Alert motorists of static and changeable message sign guidance along route. • Stress importance of following route and adhering to traffic control officer instructions. Traffic • Include contingency maps detailing routes to overflow parking areas. management • Provide written directions for diverting corridor flow routes via local street system. team information • Indicate alternate routes for ingress and egress to same target point. Other travel • Show transit routes and state corresponding route number(s). modes / user • Show preferred taxi routes. groups • Indicate bicycle routes. • Indicate pedestrian routes. Other • Provide information on both ingress and egress flow routes. considerations • Emphasize law enforcement endorsement of recommended routes and directions. • State travel times (by mode of travel) and distances (e.g., from select origins) • State when special traffic flow routes go into effect and terminate. • Disseminate written ingress/egress driving directions. • Indicate potential points of confusion (“do not take”) along recommended route (e.g., freeway exits, turning movements). • Indicate heavy vehicle restrictions. • Indicate expected congested/non-congested areas. • Use callouts to highlight critical movements. • Label all streets and freeways. • Color-code recommended routes to specific parking areas. • Emphasize new provisions (e.g., new road closures or route). • Prepare maps for different venue events if parking plan varies. • Show parking areas. • Show venue gates. • Draw map to scale. • Show private property. • Display landmarks.

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Transportation system management typi- certainty and potential indecision by drivers cally involves state DOT operating freeways destined to the planned special event. and county/local agencies operating streets 6 and intersections along local flow routes. Common freeway operator methods of dis- Planned special events place a premium on seminating en-route traveler information to information sharing (e.g., CCTV feeds, traf- freeway users include use of: fic conditions, traffic incidents, etc.) between these agencies, through local/regional • Changeable message signs

TMC operators and/or agency supervisors at • Highway advisory radio OVERVIEW the event command post. This information, • Telephone information systems (e.g., and subsequent traffic management team 511 service) collaboration, drives stakeholder selection and implementation of traffic control tech- The event planning team should develop niques. CMS and HAR message sets specific to planned traffic management and control, Freeway Traffic Control during event ingress and egress, on the day- of-event. Supplemental planned message The main objective of freeway management sets should exist for all special event contin- during planned special events involves gency scenarios considered. The traffic ADVANCE PLANNING minimizing freeway mainline congestion. management team can reference message Freeway traffic control tactics implemented boilerplates for other unexpected events in response to local traffic flow or ramp op- such as traffic incidents. If stakeholders eration degradation preserve freeway utilize 511 for planned special event travel mainline operations. Freeway traffic control management, then the event planning team and management strategies for planned spe- should establish protocol for updating 511 cial events include traveler information dis- recordings. This may involve coordinating semination and interchange operations. with an agency office (e.g., state DOT head-

quarters) outside the region where the DAY-OF-EVENT ACTIVITIES Traveler Information planned special event takes place. The overall advance planning effort improves Traveler information disseminated upstream traveler information accuracy and timeliness of freeway interchanges serving an event on the day-of-event. venue effectively: (1) introduces all freeway users to critical traffic management plan En-route traveler information consists either components affecting traffic flow in the vi- of pre-event or day-of-event information. cinity of the event venue and (2) facilitates Prior to the event, permanent and portable POST-EVENT ACTIVITIES freeway lane management as motorists learn CMSs located on freeways serving a of temporary freeway ramp control tactics planned special event can indicate that an and/or downstream lane closures that war- upcoming planned special event may affect rant a lane-change. Under lane manage- corridor travel or cite planned freeway ramp ment, freeway operators strive to reduce tur- closures. In addition, CMS message sets bulence at ramp junctions, weaving areas, can advise motorists to tune to an HAR fre- and lane drops by alerting motorists to make quency for a message containing additional, EVENT PROFILE necessary mainline lane-changes as soon as detailed information. Table 6-31 lists some possible. This also reduces the level of un- HAR pre-event message considerations. These roadside traveler information device

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messages should appear a few days before travel speed and HAR signal range, format the event, including one weekday to inform HAR messages so that motorists can listen commuters that use periodically the freeway to each message at least twice. Ensure port- corridor on weekends. This strategy also able HAR coverage areas do not overlap informs visiting event patrons that arrive to with adjacent HAR signals. the host city prior to the day-of-event. Table 6-33 Table 6-31 Changeable Message Sign Message Highway Advisory Radio Pre-Event Template Message Considerations MESSAGE SET DISPLAY CONSIDERATION Single Phase – All Freeway Users • Planned special event(s) date, time, and loca- • First line: traffic problem tion • Second line: problem location • Road closure(s) location • Third line: recommended action • Road closure(s) date and time Single Phase – Specific User Group • Access to event parking areas • First/second line: user group (e.g., event pa- • Traffic and parking restrictions trons) • Alternate routes and modes of travel • Second/third line: recommended action Two Phases – Specific User Group Table 6-32 indicates some day-of-event • First phase: user group message considerations. • First/second phase: recommended action • Second phase: additional information sources (e.g., HAR) Table 6-32 Highway Advisory Radio Day-of-Event Message Considerations CONSIDERATION • Directions to local traffic flow routes serving traffic destined to a venue • Road closure details • Event traffic and parking restrictions

Table 6-33 provides a range of CMS message templates for planned special events. To obtain specific and detailed guidance on the operation of and/or message design for large permanent CMSs or portable CMSs, practitioners should consult the FHWA re- Figure 6-38 port Guidelines for Changeable Message Portable Changeable Message Sign (Photo Sign Messages.(16) For example, Figure 6-38 courtesy of the Wisconsin DOT.) shows a message displayed on a portable CMS positioned upstream of a freeway in- Interchange Operations terchange serving event patron traffic. Management of freeway interchange opera- Day-of-event HAR messages include directions for planned special events involves tions on accessing local flow routes to a maximizing ramp capacity and preventing venue, road closure details, and event traffic freeway mainline congestion. Interchange and parking restrictions. Activation of HAR ramps adjoining a freeway and modified lo- sign beacons should occur on the day-of- cal event traffic flow route may represent a event only. By taking into consideration system bottleneck if operators fail to im-

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prove interchange capacity and operating Street Traffic Control efficiency. Traffic flow breakdowns can occur on ramps, at weaving areas, or at ramp The central traffic control strategy for local 6 junctions. Proactive interchange traffic con- flow routes serving a planned special event trol focuses on minimizing freeway mainline involves emphasizing throughput. Tactics congestion and, during event egress, conges- that increase street capacity include a com- tion spillback to local flow routes and ad- bination of: (1) on-street parking restric- joining event parking areas. tions, (2) vehicle travel on road shoulders, and (3) alternative lane operations. Streets

Table 6-34 presents interchange operations connecting freeway/arterial corridor routes OVERVIEW tactics for planned special events. Tactics and venue parking areas characteristically such as ramp closures and rolling roadblocks serve a predominant directional traffic flow represent short-term congestion mitigation during ingress and the reverse flow during measures deployed by the traffic manage- egress. ment team on an as-needed basis. Other control tactics, such as the temporary elimi- The following section examines alternative nation of a freeway weaving area shown in lane operation techniques for handling high- Figure 6-39, comprise the base traffic con- volume flow in one direction. trol plan for the planned special event and operate for a sustained period of time. Law Alternative Lane Operations ADVANCE PLANNING enforcement officers can temporarily close ramps using their cruisers. However, other Alternative lane operations comprise two techniques that reduce valuable personnel categories: requirements include using Type 3 barricades and traffic cones for longer closures. • Reversible lane operation Figure 6-40 shows an example of reinforc- • Contraflow operation ing a barrier line, by deploying traffic cones coupled with pedestal-mounted signing, to Reversible lane operation involves using one

prohibit late diverges from a freeway or more travel or auxiliary (e.g., two-way DAY-OF-EVENT ACTIVITIES mainline. Freeway operators may develop left turn lane) lanes for travel in the opposite new ramp metering plans based on fore- direction. The street or highway operates as casted traffic volumes and the location of two-way; however, additional travel lanes controlling bottlenecks identified through serve traffic in the predominant direction of analysis and modeling. flow.

Freeway and interchange operations man- Contraflow operation involves converting a agement during planned special events de- roadway corridor from two-way to one-way POST-EVENT ACTIVITIES mands real-time surveillance and control operation only. capabilities. Outside of a permanent TMC, wireless and Internet connections allow the Major metropolitan areas, such as Washing- traffic management team remote access to ton, D.C., use daily reversible lane (see Fig- CCTV in addition to CMS and HAR de- ure 6-42) and contraflow (see Figure 6-43) vices. As shown in Figure 6-41, freeway operation to efficiently handle commuter operators stationed at an event command traffic to/from the downtown area. EVENT PROFILE post can view CCTV video at critical locations and, in turn, change CMS messages via a laptop computer or HAR messages through a cellular telephone call.

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Table 6-34 Interchange Operations Tactics for Planned Special Events EVENT TACTIC APPLICATION BENEFIT TIME Rolling • Initiate tactic on freeway mainline • Alleviates traffic demand at inter- road block Ingress upstream of congested interchange change, thus permitting street or ramp(s). ramp bottleneck to dissipate. • Initiate tactic on freeway mainline • Reduces level of congestion at the upstream of a congested ramp junction primary bottleneck location. or weaving area. Egress • Use tactic to meter freeway mainline traffic demand without creating a secondary bottleneck upstream of the congested area. Entrance • Initiate tactic on ramps in close prox- • Eliminates congestion caused by ramp imity to and upstream of interchange traffic merging with heavy freeway closure Ingress target point for event traffic. mainline traffic. • Divert affected traffic to another downstream access point. • Initiate tactic as necessary to reduce • Reduces freeway mainline conges- freeway mainline congestion in the vi- tion or prevents congestion from oc- Egress cinity of closely-spaced entrance curring. ramps. Exit ramp • Close ramp, as needed, to alleviate • Reduces congestion on local flow closure congestion on a downstream local flow route. route. Ingress • Initiate only if a downstream exit ramp and local street system can handle diverted traffic. • Initiate tactic at freeway interchanges • Prevents traffic from accessing local connecting local traffic flow routes flow routes in the direction of the Egress that have special egress traffic control event venue that operate in favor of measures in effect. egress traffic flow. Elimina- • Close cloverleaf interchange entrance • Eliminates weaving area congestion. tion of Ingress ramp to facilitate unimpeded diverge • Extends deceleration lane for traffic weaving to access adjacent exit ramp. using exit ramp. area • Close cloverleaf interchange exit ramp • Eliminates weaving area congestion. Egress and mainline right-lane to facilitate un- • Extends acceleration lane for traffic impeded merge with mainline. using entrance ramp. Ramp • Meter freeway entrance ramps up- • Reduces congestion caused by traffic metering Ingress stream of interchange target point for merging with heavy freeway event traffic. mainline traffic. • Meter freeway entrance ramps down- • Reduces congestion caused by traffic Egress stream of interchange target point for merging with heavy freeway event traffic mainline traffic. Late • Deploy traffic cones along barrier line • Reduces congestion at diverge ramp diverge extending upstream of exit ramp gore junction caused by motorists attempt- prohibi- Ingress area. ing to make a sudden lane-change to tion access an exit ramp. • Improves safety. Additional • Cone an additional lane on exit ramps • Provides additional ramp storage exit ramp serving traffic destined to an event capacity. lane Ingress venue. • Proves particularly effective if two- lane ramp traffic does not have to merge at downstream end of ramp.

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OVERVIEW

Figure 6-39 Temporary Elimination of Freeway Weaving Area

ADVANCE PLANNING

Figure 6-41 Remote Traffic Surveillance and Manage- ment

DAY-OF-EVENT ACTIVITIES POST-EVENT ACTIVITIES

Figure 6-40 Prohibition of Late Freeway Diverge Figure 6-42 Daily Reversible Lane Operation

EVENT PROFILE

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Table 6-35 lists disadvantages of alternate lane operations on divided highways.

Table 6-35 Disadvantages of Divided Highway Alternative Lane Operations(17) CONSIDERATION • Signs, pavement markings, and safety features will not necessarily be visible to drivers traveling in the opposite direction. • Safety appurtenances such as guide rail transi- Figure 6-43 tions, crash attenuators, and post support bases Daily Contraflow Operation have not been designed to provide adequate protection at hazardous locations from the op- The application of alternative lane opera- posite direction of travel. tions to streets during a planned special • Outbound contraflow operation prohibits in- event creates an express route between an bound emergency vehicle access. • Drivers will likely find operation confusing. event venue and high-capacity free- • Nighttime operation is difficult to manage. way/arterial corridors. For instance, Figure • Cost to plan, design, and deploy operation is 6-44 shows contraflow operation used dur- extensive. ing event traffic egress to facilitate rapid clearance of venue parking areas. An alter- Three key elements in developing an alternative lane operation for freeways involves native lane operations plan include lane bal- designating an “express lane(s)” for through ance, markings, and enforcement. Key con- traffic. Median crossovers at section termini siderations regarding lane balance include: permit access to designated reversible lanes. In order to avoid congestion at the down- • The success of any plan stems from stream merge point, right-lane traffic diverts achieving lane balance at the down- upstream of the merge via an exit ramp to stream terminus of a reversible lane or another freeway or arterial. Though rare, contraflow section. The number of lanes stakeholders may consider alternative lane exiting an alternative lane section should operations for freeways or other divided not exceed the number of available re- highways in rural areas only. ceiving lanes at the end of the section. Otherwise, congestion will occur as a result of traffic merging at the section end. • An alternative lane street section either terminates at a freeway interchange or street intersection. • To effect lane balance, each lane in the alternative lane section must have a dedicated receiving lane. As a result, select travel lanes may become an exclusive turning lane at the end of the section. Figure 6-44 • Temporary signing must inform motor- Contraflow Operation during Event Traffic ists of lane destinations and restrictions Egress

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before they enter an alternative lane sec- The management of traffic traversing a local tion. flow route on the day-of-event involves route guidance and monitoring of traffic The following represent common methods control initiatives. 6 of designating reversible lanes: Aside from equipment quantity limitations, • Lane control signals local street right-of-way and the presence of • Roadside signing lateral obstructions may limit the placement • Physical markings such as traffic cones of portable CMS at regular intervals along a

and movable barriers local flow route to guide drivers. Instead, OVERVIEW the event planning team should design spe- Figure 6-45 illustrates the use of lane control cial route marker signs for guiding motorists signals for temporary reversible lane opera- to venue parking areas and pick-up/drop-off tion in a roadway construction zone. These locations. Each route marker may consist of signals assist motorists in gaining a clear a color-coded letter or symbol. Figure 6-46 understanding of the scope of reversible lane shows an example route marker sign for a operation in effect. Similar lane control sig- particular special event parking area. When nal applications apply to planned special erected along a local flow route, the route events as well. marker assemblies collectively trailblaze a route to the drivers’ destination of choice. ADVANCE PLANNING As illustrated in Figure 6-47, signs that introduce each route marker should be placed on all freeway and arterial corridors serving the event venue. The event planning team must design and place all route marker assemblies in accordance with standards contained in the Manual on Uniform Traffic Control Devices. Sign fonts must be legible

at free-flow travel speeds. DAY-OF-EVENT ACTIVITIES

Figure 6-45 Temporary Reversible Lane Operation with Lane Control Signals

Reversible lanes require additional enforcement, particularly at section termini. Law POST-EVENT ACTIVITIES enforcement should monitor section operation and ensure drivers maintain a relative safe operating speed. This applies even when the alternative lane section operates congestion-free. If traffic cones delineate travel lanes, then high-speed traffic may strike cones or cause them to blow over. Figure 6-46 EVENT PROFILE Route Marker Sign Management and Monitoring

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monitoring traffic operations at critical roadway system locations in addition to disseminating updated traveler information at that location. Critical locations include target points connecting a corridor flow route and a local flow route or key driver decision points on the street network surrounding an event venue. Figure 6-49 shows a PTMS Figure 6-47 deployment. Table 6-36 lists typical PTMS Introduction of Route Marker Sign Symbols components. Wireless communication via spread spectrum radio enables the traffic The street network surrounding a planned management team to view full-motion video special event venue likely encompasses mul- from PTMS surveillance cameras. tiple jurisdictions. In turn, multiple traffic operations and/or law enforcement agencies, representing the local, county, and state level, may participate in street operations control and management on the day-of- event. The event planning team and traffic management team must ensure the traffic control strategies outlined in agency-specific plans complement one another, including contingency actions.

Some larger cities have installed permanent CCTV cameras for monitoring and managing high-traffic arterial operations. Figure Figure 6-48 6-48 shows the Daytona Beach, FL TMC Daytona Beach (FL) Transportation that has access to CCTV video for select Management Center (Photo courtesy of the streets traversing the city. In areas not cov- Florida DOT.) ered by land-based CCTV, the traffic management team may alternatively utilize aerial surveillance to monitor street operations. The use of law enforcement aircraft allows on-demand surveillance of street corridors. If a TMC and/or event command post can not access video from the aircraft, then the aircraft should carry personnel involved in preparing the traffic management plan. Such personnel can best assess plan effectiveness and transportation system operation at potential problem areas identified during advance planning.

The deployment of a portable traffic management system(s) (PTMS) provides a traffic management team with the capability of Figure 6-49 Portable Traffic Management System(15)

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Table 6-36 vices for intersection traffic control, mark- Portable Traffic Management System out device locations prior to the event for Components fast and accurate placement on the day-of- COMPONENT event. 6 • Surveillance camera • Changeable message sign • Highway advisory radio • Detection devices • Weather sensor CCTV • Flood lights

• Power source (e.g., solar) OVERVIEW

Intersection Traffic Control

A proactive approach toward developing strategies for controlling intersection traffic during a planned special event aims to: Figure 6-50

Elimination of Competing Intersection • Increase intersection traffic handling ca- Traffic Flow pacity. ADVANCE PLANNING • Improve the orderly movement of traffic. • Prevent crash occurrences.

The key to maximizing capacity involves simplifying traffic movements and minimizing the number of traffic signal phases. A typical 4-leg intersection has 32 conflict points. After prohibiting all left-turn movements and cross-street through movements, the same intersection has just 4 con- DAY-OF-EVENT ACTIVITIES flict points. As shown in Figure 6-50, lane channelization limits competing intersection traffic flow which, in turn, facilitates continual flow into a parking area access road or other road segment (e.g., alternative lane Figure 6-51 section). Turning Movement Lane Balance(18)

POST-EVENT ACTIVITIES Figure 6-51 presents an example, based on Stakeholders can also reduce the number of an intersection serving a Daytona Interna- competing intersection traffic flow move- tional Speedway parking area, of achieving ments by initiating a planned road closure. intersection turning movement lane balance. Figure 6-52 illustrates this tactic, where law The plan shows three competing traffic enforcement blocked a venue ingress route flows that, with proper channelization ap- to facilitate event traffic egress through an plied, have unimpeded access to one receiv-

intersection. EVENT PROFILE ing street segment. Given four receiving lanes, the channelization limited the number Advance signing of permitted intersection of approach lanes to four. When planning to movements improves the orderly movement use traffic cones or other channelizing de- of traffic. This particularly applies to cases

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when intersection operation on the day-of- speed of vehicles entering and departing the event deviates significantly from daily op- intersection, thus reducing rubbernecking. erations. Figure 6-53 shows a high-visibility sign erected over an intersection approach contained in a planned egress route. Ad- vance sign posting allows neighboring residents and local motorists to become familiar with planned day-of-event traffic control.

Figure 6-54 Positive Traffic Control

Intersection traffic control changes from event ingress to egress operations. With re- Figure 6-52 gard to some street use events, particularly Road Block of Ingress Route to Facilitate those involving a long event route and/or Egress slow event pace, intersection traffic control complements a system of staged road closures along the event route. Law enforcement escorts the head and tail of the parade or street race. Traffic management team personnel deploy intersection traffic control a certain time (e.g., 15-30 minutes) before the head arrives and restores permitted intersection movements after the event tail clears.

Traffic Signal Operations

Figure 6-53 The significant change in traffic volume and Intersection Advance Signing flow patterns at street intersections in the vicinity of a planned special event venue Traffic control officers have a large role in during event ingress and egress mandates a maximizing intersection operating effi- review of traffic signal timing plans during ciency. By using positive traffic control, as the event operations planning phase. Except illustrated in Figure 6-54, officers guide mo- in isolated cases, traffic control officers torists through an intersection. This mini- should not manually control traffic signals mizes headway between vehicles and re- on the day-of-event. Field decisions are dif- duces stops due to driver confusion, particu- ficult to make, and a manually controlled larly at the downstream end of a reversible signal does not operate on a plan or in coor- lane section. The officer commands a dination with adjacent signals. driver’s attention and works to control the

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Advance traffic signal operations planning tions with a control center fail. The avail- involve developing event traffic signal tim- ability of a roving technician proves effec- ing plans. Traffic signal timing plans should tive for making quick changes to traffic sig- exist for a range of contingency scenarios nal operations to meet user needs on the 6 that prioritize either major street or minor day-of-event. Prior to a planned special street traffic movements. Methods to in- event, a technician should inspect traffic crease time for a specific movement include: signals at critical locations, and operators (1) selecting an existing plan with a longer should test traffic signal system control ca- cycle length to increase the normal favored pabilities from the control center.

phase, (2) implementing a custom plan fa- OVERVIEW voring a minor street phase (3) deploying a contingency “flush” plan, consisting of an extra long phase or cycle, to facilitate movement through a corridor, and (4) increasing time for a movement through manual traffic signal system operator control. In traffic signal system-controlled corridors carrying high traffic volumes on the day-of- event, system operators may enact simulta- neous coordination, where all signals within ADVANCE PLANNING a single corridor turn green at the same time.

A successful traffic signal system management approach for planned special events involves providing a traffic signal system operator with access to real-time CCTV Figure 6-55 video of intersection operations. Appendix J Portable CCTV Camera Mounted on Traffic contains sample protocol for the operation of Signal Pole(6) a centralized traffic signal system, supple- DAY-OF-EVENT ACTIVITIES mented with permanent CCTV coverage at major intersections, in Anaheim, CA during (19) a permanent venue event. If a real-time Plan Specifications communication link to traffic signal controllers exist, then agencies can elect to mount a The event planning team designs traffic con- portable CCTV camera on a traffic signal trol plans for use by the traffic management pole, as shown in Figure 6-55, or other team and traffic control contractors. Table structure for day-of-event monitoring of in- POST-EVENT ACTIVITIES 6-37 contains a traffic control plan devel- tersection operations. Real-time monitoring opment checklist for freeway, street, and ensures rapid implementation of appropriate intersection management. Appendix K con- timing plans and permits operator manual tains example traffic control plans and maps control as needed. prepared for various planned special

events.(18,20) Because equipment demand The traffic management team should include varies on the day-of-event, traffic control a traffic signal technician, available on the EVENT PROFILE plans should indicate equipment storage area day-of-event for emergency maintenance. locations and inventory remaining equip- Also, the technician could facilitate timing ment available. plan downloads in the field, required for isolated signals or in the event that communica-

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Table 6-37 Traffic Control Plan Checklist ELEMENT PROVISION Freeway control plan • Specify maintenance and protection of traffic per MUTCD guidelines (e.g., location of traffic control equipment, equipment quantities, and safety signs). • Indicate ramp control and capacity modifications. • Highlight exclusive traffic flows (e.g., unimpeded merge, etc.). • Dimension weaving area, acceleration/deceleration lane lengths, ramp length. • Indicate potential bottleneck locations for surveillance monitoring. Street control plan • Show closed road segments. • Indicate directional lane control (e.g., alternative lane operations). • Show one-way streets. • Indicate number of ingress and egress lanes at each venue access point (e.g., parking areas, pick-up/drop-off points). • Show street use event route. • Indicate parking restrictions. • Indicate location of command post(s). • Integrate with signing plan (e.g., show route trailblazer signs). Intersection control • Specify maintenance and protection of traffic per MUTCD guidelines (e.g., loca- plan tion of traffic control equipment, equipment quantities, and safety signs). • Show permitted pedestrian movements and crosswalk locations. • Indicate approach lane designations and pavement markings. • Indicate traffic control. • Highlight exclusive/permitted traffic flows (indicate approach lane and corresponding receiving lane). • State special regulations (e.g., turn prohibition, exclusive bus lane, resident/permit only movement). • Show approach closures. • Indicate parking restrictions. • Indicate location of traffic control officers. • Indicate location of equipment storage area at intersection. Signing plan • Show location of permanent/portable changeable message signs. • Show location of permanent/portable highway advisory radio stations. • Indicate CMS/HAR message sets. o Default ingress and egress o Contingency scenarios • Show location of temporary static signs and message. • Indicate location of dynamic blank-out signs. Equipment location • State number of traffic cones, drums, and barricades required at designated loca- plan tions. o Indicate equipment staging areas (e.g., shoulder, median, intersection corner) • Indicate location of equipment storage areas. Other considerations • Provide plans for both ingress and egress operation. • Indicate roadway construction zones. • Include table of quantities. • Show aerial map. • Draw map to scale. • Display landmarks.

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EN-ROUTE TRAVELER ity of travel are also likely good sur- rogates for reduced driver stress. INFORMATION PLAN From this common sense perspec- 6 tive, it is clear that the benefit of im- Overview proved travel reliability and predictability from ATIS will outweigh The dissemination of traveler information whatever small return is generated for a planned special event is an integral part from the monetization of aggregate of operating and managing the transporta- travel time reductions. OVERVIEW tion network. The following three issues must be considered in developing and main- • Performance Measures – In order to taining the event plan: assess the extent to which the traffic management plan efforts within are • Stakeholders – The information needs meeting goals and objectives, a set of of travelers extend well beyond an performance criteria and measures-of- agency’s infrastructure and include other effectiveness pertaining to these efforts jurisdictions’ highway facilities, transit must be identified. Relative to coordina- facilities, airports, etc. The private section and information dissemination, per- tor should also be an active partner in the formance criteria have three different, ADVANCE PLANNING traveler information process and must be yet interrelated, dimensions that are of included as a stakeholder. interest:

• Evaluation – Care should be taken not o Information credibility – An infor- to overestimate the benefits achieved by mation dissemination tool must be the implementation of information dis- credible to travelers if it is to be util- semination components in the plan. ized and have an impact upon traffic Specifically, it is important to recognize operations. The following criteria

that travel patterns are quite dynamic define how credibility is established: DAY-OF-EVENT ACTIVITIES and that some drivers will divert natu- (1) the information must be accurate, rally when they encounter congestion (2) the information must be timely, regardless of whether or not they receive and (3) the information must be rele- information beforehand about that con- vant to its intended audience. gestion. A Washington, D.C. Advanced Traveler Information Systems (ATIS) o Market penetration – Market study revealed: penetration refers to the percentage o If ATIS deployments are evaluated of the potential audience reached by POST-EVENT ACTIVITIES purely on time-savings, the benefits the information dissemination ef- of ATIS will likely be grossly under- forts. Performance criteria regarding estimated. market penetration may be appropri- o ATIS users value improved travel re- ate for evaluating certain system liability. The value of improved on- goals and technologies, particularly time reliability is not easily nor di- those emerging as part of ATIS. It is rectly monetized, but it is clear that expected that some technologies, EVENT PROFILE many types of travelers can benefit such as in-vehicle dynamic route from ATIS. guidance, will require only limited o Improved reliability and predictabil- market penetration in order to achieve operational benefits. Other

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operational benefits. Other technolo- Information Needs gies, such as information kiosks in major traffic generators, may require En-route traveler information can provide agencies to strive for as great a mar- event patrons and other transportation sys- ket penetration as possible in order to tem users with current roadway and transit distribute the information to a wider information while traveling en-route. In- audience and possibly attract private formation is typically provided via devices sector advertising and sponsorship. deployed along the side of the roadway, or from devices mounted on the dashboard of o Traveler response – Ultimately, the the vehicle. Along the roadway, change- purpose of providing information to able message signs and highway advisory travelers is to effect some change in radio messages typically provide informa- traveler behavior that will cause an tion regarding an upcoming planned special improvement in safety or operations. event, including current conditions related to Thus, performance measures are also the special event such as traffic congestion, needed to determine the extent to incident and construction locations, weather which information dissemination ac- advisories, parking availability, and alternate complishes this purpose. Changes in routes. In-vehicle and personal mobile de- traveler mode, departure time, and vices can provide a variety of en-route trav- route (if appropriate) are appropriate eler information to both the traveler as well for evaluating the effectiveness of as transportation providers. Sophisticated real-time, travel-related information. route guidance systems can assist motorists However, it may be very difficult in route planning as well as providing timely and expensive to obtain actual data directions via a computer synthesized voice. for these measures. Traveler opinions about the effectiveness of the in- Static Signing formation being provided can be another important evaluation measure. Static signs can be used for event management to inform travelers of an upcoming o It is important to recognize that be- planned special event, to identify park & cause of the complex travel patterns ride lots, and to guide motorists to particular of travelers at any point in the road- locations. It is not uncommon for agencies way, it may not be possible to ade- to use static signing in special event man- quately measure the overall effects agement for the following purposes: of many types of information or dissemination modes upon traffic vol- • Notify travelers of a future special event. umes, speeds, or delays. The day-to- • Notify travelers of future facility day variances in travel patterns changes for the event such as lane clo- themselves may mask the effects of sures or occupancy restrictions. any information disseminated during • Identify special alternate routes for the a specific event such as an incident, event. particularly if the information is intended for a very specific audience • Guide travelers to parking or park & ride (such as vehicles within a traffic lots. stream destined for a specific downstream exit). Transportation incident responders utilize static signing in day-to-day operations to trailblaze motorists along an alternate route

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or venue access route. These are temporary ists with real-time information that advises signs, mounted on fold-away supports, along them of a problem and in some cases, a sug- the shoulder of the roadway or at exit gores gested course of action. CMSs are also used to direct motorists to alternate routes as a to improve motorist safety and reduce traffic 6 matter of typical traffic management or in congestion and delay during events. CMSs response to an incident and redirecting of can be used to manage traffic by displaying traffic. the following types of messages:

Changeable Message Signs • Early warning messages give motorists

advance notice of slow traffic and queu- OVERVIEW One of the most fundamental technologies ing ahead and are effective in reducing available for disseminating traffic-related secondary crashes. When used in free- information from the roadside is that of way work zones, early warning mes- changeable message signs. CMSs are some- sages also give notice of new detours, times referred to as dynamic message signs changes in alternate routes, changes in or variable message signs. CMSs are pro- lane patterns, special speed control grammable traffic control devices that can measures, etc. usually display any combination of charac- ters to present messages to motorists. These • Advisory messages provide motorists signs are either: (1) permanently installed with useful information about a specific ADVANCE PLANNING above or on the side of the roadway, (2) problem along their route. This informa- portable devices attached to a trailer, or (3) tion allows motorists to change their portable devices mounted directly on a truck speed or path in advance of the problem and driven to a desired location. Portable area, or may encourage them to volun- CMSs are much smaller than permanent tarily take an alternate route to their des- CMSs and are oftentimes used in special tination. event situations, highway work zones, when major crashes or natural disasters occur, and • Alternate route messages influence mo-

emergency situations. torists to travel to their chosen destina- DAY-OF-EVENT ACTIVITIES tion by using different routes than origi- When installed, CMSs become a part of the nally intended. The alternate route is total motorist information system. Thus the one designated by the transportation information presented on CMSs and the agency. In cases when the freeway is placement of the signs must be consistent physically closed as a result of construc- and compatible with static signs. Highway tion, crash, or natural disaster, the mo- signs – both static and dynamic – must pro- torists are notified that an alternate route ject a message so that the driver can: must be used. POST-EVENT ACTIVITIES

1. Detect the sign, The most critical locations for installing 2. Read and understand the sign, permanent CMSs are in advance of inter- 3. Make appropriate decisions based on the changes or highways where drivers have the information gained from the sign, and opportunity to take some action in response 4. If necessary, initiate a control response, to messages displayed on CMSs. In many

and complete the required maneuver. special event cases, permanent CMSs are EVENT PROFILE already strategically located to advise event CMSs perform a critical role in special event patrons of special conditions and non-event management. Such signs can furnish motor- motorists of alternate bypass routes. Figure

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6-56 shows a permanent CMS over an arte- to a central management point, making them rial located adjacent to a stadium venue and a very attractive and flexible tool. serving venue parking areas. Portable signs are usually located at the side of the road and do not sit as high as an overhead sign, which can impair drivers visibility. Most are 3-line, 8 or 9-character signs, and although most have the capability of displaying multiple phases, they tend to be used with simple short messages to allow drivers to read and comprehend the message.

Highway Advisory Radio

Although not as widely used as changeable Figure 6-56 message signs, highway advisory radio is Permanent CMS Over Stadium Access Road another means of providing highway users with information in their vehicles. Tradi- A CMS should not compete with existing tionally, information is relayed to highway roadway signs. In general, a CMS should be users through the AM radio receiver in their permanently installed at the following loca- vehicles. Upstream of the HAR signal, users tions: are instructed to tune their vehicle radios to a specific frequency via roadside or over- • Upstream from major decision points head signs. Usually, the information is re- (e.g., exit ramps, freeway-to-freeway in- layed to the users by a prerecorded message, terchanges, or intersection of major although live messages can also be broad- routes that will allow drivers to take an cast. alternate route) • Upstream of bottlenecks, high-accident Highway advisory radio is an effective tool areas, and/or major special event facili- for providing timely traffic and travel condi- ties (e.g., stadiums, convention centers) tion information to the public. It has various • Where regional information concerning advantages and disadvantages. Its most im- weather conditions such as snow, ice, portant advantage is that it can reach more fog, wind, or dust is essential travelers, or potential travelers, than the other roadside technology, changeable mes- Portable CMS sage signs. While CMSs reach only those motorists at a particular point, and can only The use of trailer-mounted CMSs provides convey a short message, HAR has the ad- an agency with a great deal of flexibility. vantage of being able to communicate with The signs, which are typically much smaller any person in the HAR broadcast range. than permanent, over-the-road CMSs, are Furthermore, the amount of information that used most commonly for temporary applica- can be conveyed to the user is much greater. tions. As such, portable CMSs are very Its primary disadvantage is that it is re- suitable for special event management. stricted to low power, and this can lead to They are usually diesel- or solar-powered poor signal quality (since many outside and use wireless (cellular) communications

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forces affect the signal, such as weather) HAR can be broadcast in two ways: Point or and, therefore, poor listener levels. Wide-Area coverage.

HAR is an element of the Federal Commu- • In Point broadcast, a single transmitter is 6 nication Commission’s (FCC) Traveler In- used to broadcast over a given area. formation Systems (TIS) designation. They This is typically used at diversion points are permitted under strict FCC guidelines in advance of areas of recurring conges- and regulations associated with technology tion to notify motorists of queues and and operations. They are licensed as a sec- congestion. This type of implementation ondary user, which means simply that they is popular with travelers because the in- OVERVIEW cannot interfere with a primary user, i.e., a formation is specific to them. This is the commercial broadcast station. As a secon- most common application for HAR, and dary user, HAR broadcasts are restricted in it typically utilizes 10-Watt transmitters. signal strength, a level that limits their It is the simplest to manage in terms of transmission range to no more than three or equipment to maintain. four miles from the transmitter. A number of technologies are available for HAR • Wide Area Broadcast transmits a signal transmission, using both AM and FM bands. to a larger coverage area using multiple synchronized transmitters. This is an ef- Typically, HAR has been implemented us- fective strategy when a single message is ADVANCE PLANNING ing 10-watt AM transmitters. This is be- applicable to a large coverage area and cause, beginning in 1977, it was the only the coverage area is sufficiently large for technology permitted by the FCC for trav- a motorist to hear the longer message eler information. As such, this technology length. The fact that a long single mes- implementation has also proven to be the sage, that is pertinent to specific travel- most effective. Other means involve very- ers for only a part of the message, is in- low power AM transmission, where multiple deed a disadvantage. Studies have transmitters are spaced closely together to shown that travelers want brief, specific form a large area of coverage. This applica- information, pertinent to their location DAY-OF-EVENT ACTIVITIES tion, however, has not proven very success- and situation. They are not likely to lis- ful. As late as 2000, the FCC ruled to allow ten for long periods of time until their in- the use of low-power FM transmission for formation is broadcast. Technically, TIS. This technology has limited applica- synchronization is difficult to accom- tion to-date. plish between transmitters because both the time and repeated voice signal must Urban areas typically present a unique set of be in sync. challenges to HAR application, which can POST-EVENT ACTIVITIES hinder downtown event management. Tall Both of these applications are practical and buildings present an obstacle to uniform viable for planned special event manage- transmission since the FCC restricts antenna ment. height to approximately fifty (50) feet. High-power electric lines can incur noise on Portable and Mobile Systems the transmission that negatively impacts broadcast quality. Portable systems permanently installed on EVENT PROFILE trailers and mobile systems installed on ser- Deployment Strategies vice or maintenance vehicles can be of value in providing timely dissemination of infor-

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mation to motorists during short-term deviations from normal highway conditions, or Media more specifically, during planned special events. These systems can be solar pow- The public has learned to depend upon the ered, generator powered, or battery powered. media to provide them with “almost” real- time traffic information. Commercial radio Portable and/or mobile systems could be set has proven to be a good means of providing up at decision points where a route guidance travelers with traffic information both in and system directs motorists to an alternate out of their vehicles. Traffic and roadway route. This will increase motorist comfort condition reports have become standard level by reinforcing their confidence that programming items on many commercial they are following the alternate route in- radio stations. Commercial radio has the structions correctly. best potential of reaching the greatest number of commuters, since most of them have HAR signs, indicating the frequency at radios in the vehicles they drive to and from which traffic information is available, are work. It is not uncommon for planned spe- typically installed throughout each zone. cial event stakeholders, including public These signs usually include flashing beacons agencies, to partner with a commercial radio that are activated only when a message of station (or for a commercial radio station to some predetermined level of importance is sponsor a special event) to enhance the in- being broadcast and a legend reading (or formation dissemination related to the event similar) “TRAFFIC ALERT WHEN and its transportation conditions. Care FLASHING.” This technique permits the should be taken to ensure that the informa- system to continuously broadcast “default” tion disseminated reflects current traffic messages in each zone during non- conditions and is credible. congestion periods, while alerting the motorist to an urgent/emergency message by turn- Other Technology Applications ing on the flashing beacons. Thus the system prevents motorists from tuning to the Other technology applications include: HAR frequency only to hear the default message time and time again, situations that • Cellular telephone-based systems could negatively impact system credibility. • 511

• In-vehicle displays Changeable message signs can also be used to alert the motorist to the broadcast of a • Subscription services message of the utmost importance. These • Personal data assistants signs can be controlled through phone lines, or with cellular or paging technology, and Telephone Based Traveler Information can be solar powered with battery back up. They offer a great deal of flexibility, by al- An in-vehicle communication technology lowing only the pertinent signs to be acti- that has seen dramatic growth in the past vated. For instance, while two signs (one in few years is cellular telephones, which gives each direction) may be associated with a the motorist the ability to call special “hot- particular transmitter, only one would be line” systems for traffic information from activated for a downstream incident, thereby within their vehicle. Originally, these sys- eliminating any loss in credibility due to tems allowed motorists and transit users to providing a message that is not applicable to call for information to assist in pre-trip deci- one of the directions of travel. sions from their homes. Information can

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now be accessed en-route via cellular tele- any calls made using cellular telephones phone, and decisions can be made whether must be paid for by either the motorist, or a to alter travel routes. The creation of call-in public agency, or else absorbed by the cor- systems has been a popular traffic impact poration providing cellular telephone com- 6 mitigation strategy for many major urban munication capabilities in the region. Fi- freeway reconstruction projects in recent nally, there is some concern that cellular years. telephone usage while driving may degrade motorist attention and operating capabilities. This type of in-vehicle communication has Manufacturers have developed “hands-free”

the advantage over HAR of giving the mo- telephones that allow motorists to listen and OVERVIEW torist some control over the type and amount talk without holding the telephone receiver, of information he/she wants to obtain although the need to push the telephone but- through the touch-tone menus. In addition, tons to go through a menu of information it is also possible to generate two-way operations can defeat the “safety” purpose communication between the motorist and behind hands-free devices. the information source. Many metropolitan areas established cellular Recommendations for establishing cellular “hotlines” for motorists to call in and report telephone-based systems include the follow- traffic incident information to the highway ing: agency. Examples included #77 and *SP. ADVANCE PLANNING However, the establishment of the 511 na- • The call must be toll-free to users. tional traveler information number is envi- • The telephone number must be easy to sioned to replace these already established remember and dial. numbers. • The information must be concise. • If a menu system is used, a long and te- 511 dious menu selection process should be avoided. Understanding the importance of consis-

• A sufficient number of telephone lines tency and simplicity in providing telephone- DAY-OF-EVENT ACTIVITIES should be provided to prevent the major- based traveler information, in 1999, the U.S. ity of users from receiving a busy signal. Department of Transportation (USDOT) pe- • If a system is going to be used to gather titioned the FCC to designate a nationwide information from users, there must be a three-digit telephone number for traveler method of ensuring the accuracy of the information. This petition was formally incoming information. supported by 17 state DOTs, 32 transit operators, and 23 Metropolitan Planning Or- • “Official” use of tipster information ganizations and local agencies. On July 21, POST-EVENT ACTIVITIES should include procedures for verifying 2000 the FCC designated 511 as the national that information. traveler information number. • If incident information is to be received,

a human operator is recommended so Simply put, 511 represents an abbreviated that secondary questions can be asked to three-digit dialing code that is a short cut to clarify confusing or unclear reports. a ten-digit telephone number for obtaining

traveler information from a telephone. In EVENT PROFILE As with HAR systems, this technology also petitioning the FCC, USDOT had to demon- requires action by the motorist to access in- strate the need and benefits for such a num- formation. There are also significant operat- ber. To that end, the USDOT identified the ing costs associated with this technology, as following:(21)

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ing, and navigational information). Further benefits are realized. 511 puts a • Computer-generated navigational maps “face” on ITS and transportation opera- and displays are logical extensions of tions, while increasing attention on the po- traditional forms of providing drivers tential for traveler information services. with route guidance and navigation in- With 511, transportation agencies can offer formation. easier access to information via telephone, and have the same number work in multiple Information can be displayed in text, graph- places. It is not uncommon for traveler in- ics, or both and tailored to the needs and de- formation numbers to change across juris- sires of each motorist. There are also limita- dictional boundaries, creating confusion tions to in-vehicle VDTs. These include the among motorists. following:

In-Vehicle Displays • Drivers have to take their eyes off the roadway in order to receive the informa- A video display terminal (VDT) mounted in tion. the dashboard is another form for communi- • In-vehicle VDTs present the driver with cating with motorists in their vehicles. This complex maps and diagrams that may is primarily a private sector industry, which create a potential to overload the driver has not been used widely for information with too much information. distribution. These systems can be used to • VDTs may also add to the visual clutter provide motorists with route guidance and already inside the vehicle. navigational information in one of two different formats. One approach is to present As technology continues to improve, the the driver navigation and route guidance in- Head-Up Display (HUD) has become an- formation in the form of maps or equivalent other alternative to in-vehicle VDTs for pre- displays. With these systems, a global pic- senting visual navigational and route guid- ture of the traffic network can be provided. ance information to motorists. Although Recommended routes can be highlighted on originally developed for the aviation indus- the video map display as well. In another try, several automobile manufacturers are approach, simple symbolic signals (e.g., ar- beginning to develop HUDs for presenting rows, text instructions, or a combination of vehicle status and navigational information both) guide the driver along a recommended to drivers. route. Some prototype systems use a variety of displays depending upon whether or not A wide variety of options for displaying in- the vehicle is in motion, the functions se- formation may be available using HUDs. lected, and level of informational and navi- Through both icons and alphanumeric text, gational displays available. navigation and route guidance information may be projected directly into the driver’s In-vehicle VDTs offer a number of advan- field of view. This is expected to reduce the tages over available technologies in provid- need for visual scanning between two in- ing information to motorists while driving. formation sources (the inside instrument These include the following: panel and the outside environment) and the associated visual accommodation time. • Travel information is more readily accessible to the driver (providing continuous access to current position, rout-

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Subscription Services mation system, request pertinent information, and then log off. PDAs offer the user A number of private providers supply trav- increased communication and information eler information services on-demand as a transmission/receiving power over alpha- 6 subscription. Most notably, General Mo- numeric pagers. tors’ (GM) OnStar is a 24 hours a day, 7 days a week motorist assistance system in- Plan Specifications stalled in the vehicle. It provides a wide range of services to the driver, including An en-route traveler information plan must

concierge service, telephone service, remote be developed in concert with the traffic flow OVERVIEW unlocking of the car, and notification of air- plan and traffic control plan. The success of bag deployment just to name a few. any traffic management plan depends on disseminating correct information to motor- Another feature OnStar provides is route ists at the right time and location. guidance to motorists. Here, the motorist initiates a call from a button installed in the Items to be included in this plan include: car, is connected to a live Onstar operator, and proceeds to ask for directions. The op- • Names of contact person(s) for each in- erator knows the vehicle’s location through volved partner OnStar’s automated vehicle location system • Protocols and methods to be utilized to ADVANCE PLANNING and provides directions for the fastest route. coordinate OnStar currently uses a third-party wireless • Definition of each partner’s responsibili- analog network and is moving to a digital ties regarding control and information technology, which will allow the service to exchange be expanded to handheld devices as well. Presently, 53 current (2003) vehicle models Detailed plans are necessary that identify the are offered with OnStar, and GM intends to facilities and resources to be used. For in- expand to 60 models by the end of 2003. stance, what permanent CMS or HAR are to Routing assistance is the most utilized ser- be used and what holes exist in the informa- DAY-OF-EVENT ACTIVITIES vice, and OnStar reports that it handles more (22) tion dissemination strategy? Where will than 220,000 routing calls per month. portable devices be required? Traveler information plans must include planned mes- Personal Data Assistants sage sets for equipment and technology used to disseminate en-route traveler information, Personal Data Assistants (PDAs) are the including static signs, changeable message next higher level of sophistication in both signs, highway advisory radio, and tele- off and on-roadway information dissemina- phone information systems. POST-EVENT ACTIVITIES tion technology. PDAs are computer products that have enough power to support ap- As in the desktop exercise and modeling plications such as time management and analyses, various scenarios must be exam- handwriting recognition. By adding radio ined, and as a result, specific tactical strate- frequency (RF) communications technology, gies will be developed. Of particular impor- PDAs allow users to interact directly with tance in planned special event management travel information systems. This interaction is the creation of information messages for EVENT PROFILE allows users to obtain route planning assis- the various devices available to the manager. tance, traffic information broadcasts, and This includes changeable message sign mes- other pertinent information. Through key- sages, highway advisory radio messages, pad entry, the user can log on to the infor-

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Internet and PDA messages. Each of these • Video monitors and camera controls lo- must be developed for various scenarios, cated in control center including contingency ramp closures, full parking lots, and emergency situations. The CCTV systems allow operations personnel traveler information plan may also specify to visually monitor sections of roadway and protocol for disseminating traveler informa- to react directly to the actual conditions on tion via the media. the roadway. Since operators can lose interest if required to constantly view CCTV TRAFFIC monitors, and may fail to notice incidents immediately after they occur, current sys- SURVEILLANCE PLAN tems are being designed to automatically position cameras at suspected incident locations (as signaled by incident detection algo- A traffic surveillance plan can include: rithms) and to alert the operator.

• Closed-circuit television systems Portable CCTV Systems • Field observation • Aerial observation Portable CCTV systems can serve several • Media reports purposes including the following:

Closed-Circuit Television Systems • Short-term traffic monitoring in areas with non-recurring congestion (e.g., cor- Closed-circuit television systems have been ridor serving a planned special event used for many years to provide visual sur- venue, work zone, critical incident, de- veillance of the highway network. Control tours, etc.) centers typically use CCTV systems for the • Traffic monitoring at special traffic gen- following purposes: erators for planned special events • Traffic monitoring along evacuation • Detection and verification of incidents routes • Monitoring traffic conditions • Determination of optimum camera loca- • Monitoring incident clearance tion for fixed location CCTV systems • Verifying message displays on changeable message signs Portable CCTV systems are typically mounted in a light truck or van or on a For fixed location CCTV systems, video trailer. Components of a portable system cameras are permanently mounted either on include the following: existing structures along the roadway or on specially installed camera poles. This type • Camera with pan-tilt-zoom capability of system consists of various components, • Telescopic boom including the following: • Television monitor • Video recorder • Video camera unit • Camera control unit for controlling pan, • Mounting structure (existing or installed) tilt, and zoom functions • Controller cabinet housing the control • Generator for powering equipment; or equipment battery power with solar charging • Communication system connecting cam- • Air compressor for operating telescopic era to control center boom

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• Wireless communications (It should be Field Observation noted that during planned special events, cellular capacity is strained, and as such, A common and efficient technique to ob- 6 there is a risk of failing communications serve the traffic conditions during a planned to portable surveillance systems with special event is to place human observers, or cellular communications.) detectors, in the field, usually at critical locations. Normally, these observers have the Figure 6-57 shows a portable CCTV camera, role of monitoring conditions and reporting mounted on an overhead sign structure, used back to a central location for strategic as- for freeway surveillance during a planned sessment. These human detectors are gath- OVERVIEW special event. ering relevant information related to the event and using established protocol to communicate the information back to the central processing and coordination facility.

It is common to deploy these observers where technology is lacking and where they may perform an additional role in traffic management or traffic incident management (e.g., freeway service patrol operators). For ADVANCE PLANNING instance, an observer may be placed at a critical pedestrian location, where besides Figure 6-57 reporting back to central command on the Portable CCTV Camera for Freeway status of the location, the observer may Surveillance serve the role of a traffic engineer by adjusting the signal timing to better accommodate Temporary CCTV camera installation re- the pedestrian volumes. quires consideration of video image trans-

mission, and limited communications op- Aerial Observation DAY-OF-EVENT ACTIVITIES tions may exist. Telephone lines and cellular channels facilitate the transmission of Aerial surveillance has long been used to compressed or slow scan video. The trans- monitor the operation of the surface transmission of real-time motion video requires portation network. “Observers” in aircraft infrastructure such as fiber optic cable, (fixed wing or helicopters) fly over freeways coaxial cable, or wireless (e.g., spread spec- and streets and monitor conditions in real- trum radio). time, using two-way radios to communicate with the TMC or with service patrols on the POST-EVENT ACTIVITIES Closed-circuit television surveillance is a freeway. This approach can be relatively very valuable planned special event man- expensive when one considers the expense agement tool for observing real-time condi- of leasing or operating an aircraft, although tions related to special event corridors, al- it does have the benefit of being able to ternate routes, parking and pedestrian condi- cover a large area. tions, as well as for a verification tool for messages placed on changeable message An emerging trend is the use of remote sens- EVENT PROFILE signs. ing via unmanned aerial vehicles, similar to airborne platforms/drones used by the military, and satellites. Information gathered

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from satellite, aircraft, and unmanned aerial TRAFFIC INCIDENT vehicles can be used to estimate arterial and freeway traffic characteristics over long time MANAGEMENT AND scales and large geographic areas, including SAFETY PLAN those where data were previously unavail-

able. The spatial coverage provided from air- and satellite-based sensors can poten- Overview tially support the development of new metrics that better represent highway utilization The occurrence of a planned special event and congestion. that increases or disrupts the normal flow of traffic places a premium on the optimal use Media Reports of existing facilities. A traffic incident and safety plan specifies crash prevention tactics

and traffic incident quick clearance initia- As discussed earlier, the media needs to be a tives, some of which denote special provi- partner in the planned special event man- sions enacted just for the day-of-event. agement and operations effort. Agreements These traffic incident management tech- must be in place that define their role within niques preserve two goals of managing the plan, as well as what information needs travel for planned special events: (1) ensur- to be communicated, both prior to and during safety and (2) maximizing efficiency. In ing the event. the event of a major traffic incident that

blocks travel lanes for a prolonged duration, The primary disadvantage of using the me- the traffic management team should refer to dia relates to the accuracy of the informa- response procedures and guidelines con- tion. Traffic reports often are transmitted tained in an established traffic incident man- only when normal scheduling permits. This agement manual for the region. may cause considerable time delays between

when a condition changes and when the media reports it. Often, many problems go un- Crash Prevention Tactics reported or are cleared by the time they are reported on the radio and television. The Crash prevention tactics focus on improving accuracy of the information provided by driver awareness of surroundings and driver commercial radio, for instance, is a function behavior. Table 6-38 lists crash prevention of the time between the broadcaster’s last tactics applicable to planned special events. communication with the incident reporting Table 6-38 source and the number of incidents that have occurred and/or have been cleared during Crash Prevention Tactics that time. TACTIC • Portable lighting • Congestion warning sign Some transportation agencies have made • Public information safety campaign substantial efforts to improve coordination • Enforcement and cooperation between themselves and the media traffic reporters. For example, some Portable Lighting agencies allow private traffic advisory services to place personnel in the TMC to ob- Portable lighting devices enhance driver un- tain information on traffic conditions and derstanding of traffic control and traffic flow expected agency responses in an accurate patterns at night. As shown in Figure 6-58, and timely manner. the devices prove particularly useful at rural,

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unlit freeway interchanges or arterial target control and regulations, pedestrian safety, points that handle high-volume turning and vehicle operation. For example, the movements during event ingress and egress. Louisiana DOT launched a $94,000 public Portable lighting makes traffic control offi- information campaign in 2002 to reduce the 6 cers more visible to approaching drivers, number of crashes caused by drivers follow- and in the vicinity of the event venue, the ing too closely.(23) The campaign targeted devices can spotlight pedestrian/vehicular spectators attending Louisiana State Univer- conflict areas. sity football games through advertisements on radio stations carrying the games and ad-

vertisements in game-day football programs. OVERVIEW The advertisements specified driver tips on how to avoid tailgating.

ADVANCE PLANNING

Figure 6-58 Portable Lighting (Photo courtesy of the Wisconsin DOT.) Figure 6-59 Congestion Warning Signs Congestion Warning Sign

Congestion warning signs, placed upstream Enforcement of known roadway bottleneck locations, DAY-OF-EVENT ACTIVITIES alert drivers of demand-induced congestion Enforcement aims at preventing drivers on the day-of-event. The tactic aims to pre- from executing illegal and dangerous vent rear-end crashes as a result of drivers movements in an effort to bypass congestion encountering unexpected congestion. and/or day-of-event traffic control. For in- Stakeholders should strongly consider de- stance, drivers attempting to access a free- ploying congestion warning signs along way may travel past a congested entrance event ingress and egress routes containing ramp serving egress traffic, make an illegal significant geometric curves. In order to U-turn, and traverse an uncongested freeway POST-EVENT ACTIVITIES control message display and preserve its entrance ramp from the opposite direction. credibility, consider deploying portable The behavior of one motorist provokes other changeable message signs or static signs that motorists to execute the same maneuver. hinge open, as shown in Figure 6-59.

Public Information Safety Campaign Service Patrols

EVENT PROFILE A public information safety campaign Service patrols function to typically satisfy strives to change motorists’ behavior when the incident detection, verification, response, traveling to and from a planned special and removal components of incident man- event. Campaigns emphasize event traffic agement in the event of a minor incident,

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such as a vehicle disablement or property- damage-only crash. Patrol operators strive to identify and remove debris or hazards impeding traffic flow, and they aid in the fast removal of immobilized or wrecked passenger cars blocking one or more travel lanes. Service patrol programs create a sense of security for motorists in addition to improving public relations for the service’s sponsor. Other examples of motorist assists that are typically offered free of charge include supplying fuel, changing flat tires, providing a jump-start, and calling private towing companies.

Service patrols can play a key role in traffic incident management for planned special events. The service has great versatility, and patrol operators can satisfy a wide range of traffic management team needs. For example, operators can assist in establishing day- Figure 6-60 of-event traffic control, performing traffic Service Patrol Vehicle (Graphic courtesy of surveillance, and providing timely traffic the Minnesota DOT.) condition reports from various remote locations. As shown in Figure 6-60, service pa- Table 6-39 trols carry equipment to support traffic man- Service Patrol Operations Considerations agement at incident sites and congestion lo- CONSIDERATION cations. • Number of service patrols deployed • Time of operation Table 6-39 indicates considerations in pre- • Patrol routes and/or staging location paring a service patrol operations plan for a • Storage of towed vehicles planned special event. To avoid having • Operator communication with TMC or event drivers abandon disabled vehicles or risk command center exposure to adjacent traffic flow, stake- Figure 6-61 holders should alert roadway users of service patrol operation on the day-of-event via roadside traveler information devices. Fig- ure 6-61 shows a special event HAR message disseminating safety tips to drivers and promoting service patrol operation.

Highway Advisory Radio Traveler Safety Message(24)

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Traffic Incident Quick Clearance agencies. Chapter 5 discusses contract tow- Initiatives ing service for planned special events.

6 Quick clearance is the practice of rapidly Practitioners should consult NCHRP Syn- and safely removing temporary obstructions thesis 318, Safe and Quick Clearance of from the roadway.(25) Quick clearance prac- Traffic Incidents, for state-of-the-practice tices increase the safety of traffic incident information about laws, policies, proce- responders and victims by minimizing their dures, infrastructure, and technologies asso- exposure to adjacent passing traffic. A re- ciated with developing a quick clearance

practice and increasing the efficiency of traf- OVERVIEW duced probability of secondary incidents (25) accompanies decreased congestion levels fic incident removal operations. resulting from fast removal of lane-blocking obstructions. Quick clearance represented the overarching theme within the Utah DOT traffic incident A quick clearance practice consists of laws, management plan for the 2002 Winter policies, procedures, and infrastructure Olympics. Table 6-40 summarizes some aimed at effecting the safe and timely re- notable quick clearance strategies contained moval of a traffic incident. Service patrols, in the event traffic incident management as previously described, represent a quick plan. The table also states statistics and per- clearance infrastructure component. Rapid formance measures that conclude the Utah ADVANCE PLANNING clearance of traffic incidents during planned DOT, together with its partner law enforce- special event ingress and egress avoids sig- ment and transportation agencies, developed nificant impact to corridor and local traffic and deployed a successful quick clearance flow routes in addition to routes used by par- practice for the Olympics.

ticipants and VIPs. Table 6-40

Traffic Incident Quick Clearance for the The following quick clearance initiatives 2002 Winter Olympics(26) benefit traffic incident management in high- STRATEGY volume corridors, characteristic of planned • Staging of heavy-duty tow trucks throughout DAY-OF-EVENT ACTIVITIES special events: (1) vehicle/cargo removal Olympic venue routes between 5:00 AM and 1:00 laws and policies, (2) stakeholder open PM (ingress). • Carrying of kits by incident responders to tow roads policy, and (3) public-private towing every type of bus used to transport people. contracts. Vehicle removal laws require • Use of photogrammetry by law enforcement during drivers to immediately move vehicles ob- incident investigations. • Deployment of heavy service patrol coverage to structing travel lanes. Also, agencies have reduce the number of abandoned vehicles and authority to aggressively clear vehicles and lessen security concerns. spilled cargo without incurring unnecessary EVALUATION STATISTIC POST-EVENT ACTIVITIES delay. Similar policies establish no stopping • 29 vehicles were removed from incident scenes on the athlete routes to facilitate traffic flow. zones in highly traveled locations. An inter- • 12 fatality or critical crashes were investigated by agency open roads policy informs traffic in- law enforcement using photogrammetry in under cident responders of the urgent need to rap- one hour, and in one case, police shot an incident scene with evidence markers within 30 minutes. idly remove disabled or wrecked vehicles, • A serious injury crash was cleared in 23 minutes spilled cargo, and debris that obstruct the because of excellent teamwork. normal flow of traffic, and the policy dis- • Incident Management Team crews spent an average EVENT PROFILE of 70 minutes at each crash scene during the seminates key guidelines to ensure a coop- Games, down from an average of 115 minutes prior erative incident removal effort between to the Games. • 2,306 motorists were assisted during the 17 days of the Games.

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REFERENCES 7. McBride, J., Utah Department of Transportation, Personal Communi-

cation, July 14, 2003. 1. Glazer, L.J. and R. Cruz, Intelligent

Transportation Systems at the 2002 8. Kelman, L., “World Youth Day 2002 Salt Lake City Winter Olympic – Transportation Planning and Op- Games: Event Study – Traffic Man- erations,” Presented at the 82nd An- agement and Traveler Information, nual Meeting of the Transportation Utah Department of Transportation, Research Board, Washington, D.C., Salt Lake City, Utah, April 2003, January 12—16, 2003. 160 pp.

9. Highway Capacity Manual, 2. Burdette, D., “An Evaluation of Ad- Transportation Research Board, vanced Parking Information Systems National Research Council, at Airports,” Prepared for the 2001 Washington, D.C., 2000. Annual Meeting of the Transporta-

tion Research Board, National Re- 10. Shell Grand Prix of Denver – Park- search Council, Washington, D.C., ing and Traffic Management Plan, January 7—11, 2001. Prepared for the Grand Prix of Den-

ver by URS Corporation, August 3. Advanced Parking Information Sys- 2002, 33 pp. tem Evaluation Report, Minnesota

Department of Transportation, St. 11. Coffel, B. and F. Wambalaba, Tri- Paul, Mn., 2000, 52 pp. Met SETS Program, Tri-County

Metropolitan Transportation District 4. Gibson, P.A. and A.D. Rifkin, “An of Oregon, Portland, Oregon, 1995. Integrated Event Parking and Circu-

lation Management Plan for the Sta- 12. Traffic Management for Special ples Center and the Los Angeles Events, Version 6, New South Wales Convention Center,” Prepared for the Roads and Traffic Authority, Austra- ITE 2000 Annual Meeting and Ex- lia, February 2002, 82 pp. hibit, Institute of Transportation En-

gineers, Nashville, Tn., 2000. 13. Dunn, W.M., R.A. Reiss, and S.P.

Latoski, Roadway Incident Diversion 5. Dunn, Jr., W.M., “Traffic Manage- Practices, NCHRP Synthesis 279, ment for 1995 U.S. Open,” Preprint Transportation Research Board, Na- No. 00131, Prepared for the ITE tional Research Council, Washing- 2001 Annual Meeting and Exhibit, ton, D.C., 1999, 84 pp. Institute of Transportation Engineers,

Chicago, Il., August 19--22, 2001. 14. Suggs, E., “Festival to Test New

Traffic Plan,” Atlanta Journal- 6. The Dutchess County Fair Traffic Constitution, April 8, 2003. Plan, New York State Department of

Transportation, Presentation at the 15. Volz, M.A. and B.J. Nicholson, 2002 ITS New York Meeting, Sara- “Kansas Speedway Event Manage- toga Springs, Ny., June 5--7, 2002, ment Using ITS,” n.d. 24 pp.

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16. Dudek, C.L., Guidelines for tional Research Council, Washing- Changeable Message Sign Messages, ton, D.C., 2003, 143 pp. Federal Highway Administration, Washington, D.C., September 2002 26. National Conference on Traffic Inci- 6 (Draft), 256 pp. dent Management: A Road Map to the Future, March 11-13, 2002: Pro- 17. Wolshon, B., “’One-Way-Out’: Con- ceedings, American Association of traflow Freeway Operation for Hur- State Highway and Transportation ricane Evacuation,” Natural Hazards Officials, Washington, D.C., 2002.

Review, Vol. 2, No. 3, August 2001, OVERVIEW pp. 105--112.

18. Daytona Beach Traffic Engineering Speed Weeks 2002, City of Daytona Beach Public Works, 2002.

19. Anaheim Special Event Manual, City of Anaheim Department of Public Works (Draft), Anaheim, Ca., 2002,

40 pp. ADVANCE PLANNING

20. Transport Management Plan: New South Wales Bush Fire Parade, Ver- sion 1, New South Wales Roads and Traffic Authority, Australia, Febru- ary 2002.

21. Schuman, R. and E. Sherer, “511

‘101’,” 511 Deployment Confer- DAY-OF-EVENT ACTIVITIES ence, Scottsdale, Arizona, March 2002.

22. “Inside ITS,” Volume 13, No. 7, April 1, 2003, p. 3.

23. Anderson, A., “Program Will Try to

Put the Brakes on Tailgating,” The POST-EVENT ACTIVITIES Times-Picayune, September, 5, 2002.

24. Derby Day Plan, Traffic Response and Incident Management Assisting the River Cities, May 2002.

25. Dunn, W.M. and S.P. Latoski, Safe EVENT PROFILE and Quick Clearance of Traffic Inci- dents, NCHRP Synthesis 318, Transportation Research Board, Na-

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CHAPTER SEVEN TRAVEL DEMAND MANAGEMENT 7 AND TRAVELER INFORMATION OVERVIEW ADVANCE PLANNING

Figure 7-1 Planned Special Event Express Bus Service from Park and Ride Lot

DAY-OF-EVENT ACTIVITIES

PURPOSE agement initiatives can reduce traffic demand and, in turn, improve system effi-

ciency and travel time reliability. This third chapter on event operations plan-

ning reviews strategies for: (1) mitigating the travel demand impacts of planned spe- INTRODUCTION cial events and (2) ensuring the transportation system operates as efficiently as possi- Travel Demand Management (TDM) repre- POST-EVENT ACTIVITIES ble on the day-of-event. Successful strate- sents a key component of the overall ad- gies are presented in three sections that in- vance planning process when forecasted fluence travel choice utility; travel demand traffic demand levels approach or exceed management, transit service, and pre-trip available road capacity. TDM strategies traveler information. These initiatives en- may be warranted for planned special events hance transportation system operations and occurring during peak travel times, continu-

improve customer service for all users by ous events located in downtown areas, street EVENT PROFILE utilizing all available system resources and use events of long duration, regional/multi- excess capacity. The identification and suc- venue events, and special events in rural ar- cessful promotion of travel demand man- eas having limited transportation system capacity. The goal is to optimize event patron

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and non-attendee travel through incentives TDM, transit, and pre-trip traveler informa- aimed at consolidating person trips and tion initiatives complement one another and altering user travel patterns and habits, while work to reduce traffic on the roadway net- minimizing any penalties to the user. work in the vicinity of the event. These initiatives are not infrastructure improvements Transit service for a particular planned spe- to increase capacity, but rather are methods cial event includes: (1) public transit service that decrease vehicular traffic by providing expansion or modification, (2) express buses event patrons with various travel choices as from area neighborhoods or park and ride well as providing information that may lead lots, and (3) charter bus service from other to a reduction in traffic volumes. Some of cities and counties. These services, though these strategies are implemented by: (1) the configured to net operators a profit, repre- public agency involved with the special sent a travel demand management initiative. event, (2) the event planners themselves, and The goal of transit operators involve design- (3) a combination of both groups. ing a special event service and related incentives to not only improve the travel choice TRAVEL DEMAND utility associated with using transit, but also to exceed the utility (e.g., travel time, park- MANAGEMENT ing fees, comfort, etc.) associated with traveling via personal automobile. Successful Overview transit services collectively may result in a significant change in event patron modal TDM strategies are used to maximize the split without impacting service to non- efficiency of the transportation system, thus attendee users. reducing the volume of traffic on the roadway and minimizing the peak demand rates The availability of pre-trip travel informa- that cause congestion. They do not repre- tion, consisting of essential event operations sent infrastructure improvements to increase and real-time traffic information, proves ef- capacity, but rather are methods that cause fective in assisting event patron evaluation traffic demand reduction by encouraging of potential travel options, trip departure other travel mode choices, particularly for times, and travel routes to the event venue. event patrons. As shown in Table 7-1, TDM Similarly, other road users, seeking to techniques for planned special events in- minimize event-related impacts to their trip, volve two distinct groups. value this information.

Table 7-1 Travel Demand Management Goals USER TRIP PURPOSE TDM GOAL GROUP Event patrons • Traveling to the • Encourage the use of travel modes other than personal automo- event itself bile. • Encourage a shift in arrival and departure times to reduce peak traffic volumes. • Increase vehicle occupancy. Non-attendee • Traveling for rea- • Divert non-attendee travelers around the impacted area. road users sons other than • Alter non-attendee time of travel to avoid conflict with event the event itself peak ingress and egress times.

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Demand Management Strategies weekday hours, or even into weekend hours, in order to encourage event patrons to car- 7 Successful TDM strategies, developed to pool. reduce the amount of event patron traffic, encourage the use of alternate travel modes. Incentives can be provided to encourage two Essentially, a successful, integrated plan in- or more persons per vehicle. Figure 7-2 il- cludes, for example, providing convenient lustrates one such example. The Suffolk alternates to driving an automobile to the County Fair and a radio station (WALK) in event site and encouraging the use of these New York offered a promotion of $40 per OVERVIEW alternate travel modes. This includes in- carload on certain days. This price included creases in scheduled public transit service. parking, fair admission, and unlimited rides In addition, express bus service can also be for everyone in the vehicle. In this manner, provided from park and ride lots to the event it was not economically feasible to travel site as well as charter buses traveling to the alone, but rather to travel with as many peo- event site from outlying areas. TDM strate- ple as possible in one vehicle. gies are also used to influence the travel patterns of non-attendee road users by encour- Another strategy to encourage HOV’s in- aging a trip time shift or a change in travel volves offering special privileges at the mode. The resulting reduction in traffic de- event site. Special parking lots can be re- ADVANCE PLANNING mand reduces travel times for both event stricted to HOV only, and these lots may be patrons and non-attendee road users. TDM located nearer to the venue in order to en- also reduces delay, increases levels of courage carpools. Lower parking rates fur- safety, decreases motorist stress levels, re- ther increase the attractiveness of this initia- duces fuel consumption, and decreases cer- tive. Private parking lot operators can be tain vehicle emissions. persuaded to offer special HOV pricing in exchange for promotion in special event ad- Table 7-2 contains a summary of travel de- vertisements. As demonstrated by Figure 7- mand management strategies. 3, this information needs to be relayed to the DAY-OF-EVENT ACTIVITIES public so that they know the advantages of High Occupancy Vehicle Incentives carpooling to the event site.

One successful implementation of HOV in- The ultimate goal of any high occupancy centives took place at Husky Stadium on the vehicle (HOV) strategy is to increase the campus of the University of Washington in number of persons traveling in each vehicle. Seattle for football games.(1) The Transpor- One option to reduce the amount of vehicles tation Management Plan (TMP) included a POST-EVENT ACTIVITIES on the roadway is to encourage HOV use. parking pricing system to provide financial In some areas, limited-access highways in- incentives for carpooling. During the 2000 clude HOV lanes to increase the attractive- football season, parking on campus cost $7 ness and efficiency of carpooling and van- for vehicles with three or more persons and pooling. Many of these HOV lanes are in- $10 for vehicles with less than three persons. tended to assist commuters on a daily basis Operators charged $17 for parking a recrea- and, as such, the hours of the HOV may be tional vehicle and $20 for buses, regardless EVENT PROFILE limited to weekday commuting hours. In the of the number of people in the vehicle. In case of a major planned special event, con- addition to the cost incentives, a marketing sideration should be given to continuing the plan was also developed to encourage car- HOV restrictions on these lanes to later pooling. Messages such as “carpools save

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Table 7-2 Travel Demand Management Strategies

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and 35,000 off-street parking spaces around the Seahawks original stadium. Carpool 7 parking pricing incentives were established similar to those used for University of Washington football games. At the beginning of the season, game day parking was $15 for carpools with three or more persons per vehicle and $20 for vehicles with less

than three persons. Stakeholders reduced OVERVIEW the carpool parking fee in mid-season to $10 in an effort to increase higher vehicle occupancy.

Figure 7-2 In addition to venue operators offering HOV High Occupancy Vehicle Incentive privileges at venue parking areas, private parking operators in the site area can also be time and money and are a lot more fun than encouraged to offer special incentives to going alone” were incorporated into the event patrons. For example, if private lot Husky football transportation guide. operators offer a special HOV discount, then ADVANCE PLANNING the event advertisements can mention that In addition to the plan implemented for Uni- particular private lot by name and location. versity of Washington football games, a The “free advertising” may help private op- similar plan was implemented for Seattle erators balance discounts given for HOV Seahawks football games during the 2000- parking. 2001 season when stadium construction forced the Seahawks to use Husky Stadium Thus, three high occupancy vehicle incen- for home games. The public information tive techniques include:

campaign for Seahawks football included a DAY-OF-EVENT ACTIVITIES summary of available parking in the vicinity • Consider continuing HOV restrictions on of the stadium. Since the Seahawks were HOV lanes to later weekday hours, or playing in a temporary stadium, fans had to even into weekend hours, in order to en- be oriented to: (1) new traffic flow routes to courage event patrons to carpool. access the stadium and (2) new event park- • Reduce parking fees for vehicles with ing locations and costs. A public informa- more than two people. tion campaign outlined Husky Stadium • Provide free advertising for private lots parking limitations, including only 9,000 on- to balance discounts given for HOV POST-EVENT ACTIVITIES campus spaces being provided as compared parking. to the 11,000 free on-street parking spaces

EVENT PROFILE Figure 7-3 High Occupancy Vehicle Parking Incentive (Graphic courtesy of the Seattle Center.)

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Event Patron Incentives concept also benefits businesses in the vicinity of the event venue. Stakeholders managing discrete/recurring events at a permanent venue that generate Incentives that can be used to attract patrons high peak arrival and departure rates can to events earlier than usual include: encourage event patrons to arrive early or leave late in order to reduce the peak traffic • Registration in free drawings and con- demand. tests that occur before the event to attract spectators to the event site. Sporting events and concerts fall into this • Venue restaurants can open early and category given that, when the game or show offer special incentives to attract specta- ends, the majority of event patrons leave the tors before the event. venue at one time. This departure pattern • Tailgating may also be encouraged to scenario can be offset using several strate- attract event patrons to venue parking gies: areas hours before the actual start of the event. • For instance, event organizers or venue • Organizers of sporting events can en- operators can offer special incentives for courage spectators to arrive early and spectators to stay after the event, such as watch teams warm-up before the game. special programming on the stadium video screens or post-event fireworks. Venues that do not have pre- or post-event • Restaurants and pubs located in or near activities can solicit suggestions from the the event venue can remain open and public through mailings or via the venue may even offer special price savings website. For example, when season ticket with a ticket stub. applications or tickets to the event are • Some sporting events and other types of mailed, an accompanying survey can ask events may feature live music after event patrons which type of pre- or post- games in order to encourage spectators game activities they would be more likely to to remain at the venue. take advantage of. Similar types of ques- • One incentive for parents to remain tions can also be presented on an event or longer at sporting events with their chil- venue website, as illustrated in Figure 7-4. dren is a “meet the mascot” type of pro- As a result, the pre- or post-game events will motion. cater to the persons who actually attend the • Venues in downtown areas can also pro- event, thus increasing the number of specta- vide extended parking, at no additional tors attending staged activities. For recur- cost, for event patrons who wish to re- ring events, stakeholders can survey the pa- main in the area and go to downtown trons in the venue or distribute suggestion restaurants or shops. Instead of parking cards when patrons enter or exit the venue. lots having to be vacated a certain time after the event, extended parking hours One example of implementing successful allow event patrons to linger in the sur- event patron incentives involves the San rounding downtown area. These incen- Jose, CA “America Festival”. The website tives help to spread out the flow of de- for this event alerted spectators that they parting traffic and lessen the peak traffic need to plan ahead for the event’s hallmark th demand on the roadway network. This 4 of July fireworks display since the park venue reached capacity early the year be-

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fore. The website suggested that event pa- In addition to the recommendations for ar- trons arrive early and see one of the many riving event patrons, the website also sug- bands that performed at the festival in addi- gested that spectators remain after the fire- 7 tion to sampling the food and drinks avail- works for another concert. Figure 7-5 dis- able. In this manner, the arrival patterns to plays the slogan posted on the event website. the event become spread out over a longer In this manner, stakeholders assumed that time period. Instead of all spectators show- some event patrons would leave immedi- ing up at one time, the arrival patterns are ately after the fireworks display and some influenced by the music that the event pa- would stay to listen to the music. This re- tron would like to listen to. In addition, the duces the peak departure demand on the OVERVIEW availability of food and drinks at the festival transportation system. The post-fireworks also helps to spread out the arrival patterns. concert entertained spectators as they waited These incentives reduce congestion by re- for traffic congestion to dissipate. In turn, ducing the peak arrival rate of event patrons. event patrons did not feel that they were just Collectively, the incentives convert a dis- “sitting around and waiting” for congestion crete event (fireworks display) into a con- to dissipate. tinuous event (festival).

ADVANCE PLANNING

Figure 7-5 Event Patron Incentive (Graphic courtesy of EHC & FILCO.)

Bicyclist Accommodation

Another alternate form of transportation that can be used to access the event is a bicycle, DAY-OF-EVENT ACTIVITIES especially in downtown areas. Special accommodations need to be provided for event patrons that wish to arrive by bicycle. Safety is a concern for all bicyclists, and proper bicycle paths need to be provided. These paths can consist of existing bike lanes and trails that are augmented with temporary paths leading to the event site. POST-EVENT ACTIVITIES The provision of bicycle paths maximizes safety for the bicyclists and keeps them off roadways that experience higher traffic volumes due to the event.

Figure 7-4 Security represents a major concern of bicy- Venue Website Survey on Event Patron In- clists. Figure 7-6 shows a bicycle parking EVENT PROFILE centives (Graphic Courtesy of Conseco area for a planned special event. In order to Fieldhouse.) encourage bicycle travel, bicycle parking areas may be staffed (e.g., valet service) to

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prevent bicycle theft. In addition, if the bi- Businesses can help minimize traffic de- cycle parking area is located close to the en- mand during peak commuting hours through trance of the venue, it may encourage event implementing TDM strategies such as: patrons to use their bicycles in order to access the event easier. Public transit opera- • Telecommuting tors may also provide accommodations for • Flexible hours bicycles during events, such as bicycle racks • Modified delivery schedules on the front of transit buses that allow spectators to access mass transit while carrying a Carpooling should also be encouraged by bicycle. major employers and through public information campaigns. In order to assist the business community in the implementation of TDM, information detailing recommended strategies and how to implement them should be distributed.

The event planning team should inform the local community as to the magnitude of the planned special event through a series of press releases and public service announcements. Alternate routes to and around the event can also be published in daily newspapers, discussed on local television or radio Figure 7-6 news, and communicated by public and pri- Bicycle Parking Area vate traveler information services.

Local Travel Demand Management In the special case of events that occur infrequently, businesses located in the imme- TDM strategies that reduce the amount of diate vicinity of a venue (e.g., hosting a background, non-attendee traffic consist of: Monday Night Football game) may allow employees to leave early on event dates. • Increasing the use of transit (e.g. transit This initiative causes an increase in parking promotion). supply for event patrons. A public informa- • Encouraging use of carpools. tion campaign can be used to notify busi- • Shifting of work hours. nesses of the possible problems that could • Shifting of commercial truck travel occur and how these problems can be allevi- routes and delivery/travel times. ated by clearing, for example, a downtown area prior to a certain time. For non-attendee road users, a successful TDM plan encourages alternate travel Successful local travel demand management choices, such as avoiding travel during times techniques, instituted by local businesses, of event ingress/egress or travel near the were utilized during the 2002 Winter Olym- event venue, that ultimately increase mobil- pics in Salt Lake City, Utah.(2) These strate- ity and travel time reliability for these users gies effected a change in residents’ travel compared to their default travel choice. This patterns during the event. A post-event tele- includes personal and business travel in ad- phone survey indicated that about one-fifth dition to commercial truck travel. of residents changed their travel patterns

7-8 during the games. The predominant change TRANSIT SERVICE involved employers revising normal work schedules during the event and allowing ear- 7 lier work hours or flexible schedules. Overview

In order to reduce commercial truck traffic, Modifications to existing transit service for a stakeholders should contact pertinent truck- special event represent TDM strategies. The ing companies and advise them of times that focus of the public transit agency is to in- truckers should avoid traversing freeway crease ridership during the event by increas- and arterial corridors serving the event ing the attractiveness of the service that it OVERVIEW venue. Trucking companies should attempt provides. In many locations and for many to reduce the number of truck trips made and types of special events, additional ridership shift some of their remaining truck trips to to and from special event sites can provide nighttime hours. Special mailings can be substantial additional revenue for the transit sent to long haul trucking companies in or- system at little additional cost. Also, transit der to inform them of an upcoming planned system use may relieve traffic congestion special event and affected road corridors. In around the venue. addition, fliers can be distributed to truck drivers at major points of entry to the region, Table 7-3 contains a summary of transit ser- disseminating information on the days and vice strategies. ADVANCE PLANNING times of the event, high impact locations, and special traffic patterns. During the Public Transit Service Expansion event, e-mails containing traffic advisories can be sent to trucking companies so that In order to maximize the use of public tran- they can, in turn, get the word out to truck- sit, options need to be convenient (e.g., ers via citizens-band radio and through their faster travel time and satisfactory comfort electronic distribution lists. Portable level) for event patrons without impacting changeable message signs (CMS) and high- non-attendee transit users. way advisory radio (HAR) can also be DAY-OF-EVENT ACTIVITIES placed at major ports of entry to alert truck Three possible approaches to using public drivers.(2) transit during special events includes:

Some components of a successful freight • Existing service with additional vehicle management plan include requiring trucks to hours. In general, this represents an ex- have permits to enter certain areas between a tension of the existing service and is in set time frame. In this way only trucks that addition to the regularly scheduled tran- need to be in the area will be present during sit service. The extension of existing POST-EVENT ACTIVITIES peak traffic times. In addition, delivery service may include: (1) expanded hours hours can be restricted to overnight to com- of operation or (2) increased frequency pletely avoid conflict with event traffic. of system service on a particular route in Long-haul trucking can be discouraged from order to serve a planned special event. certain roadways in the event area by pro- • Modifying existing service by creating a viding directions on the roadway that divert route deviation. A deviation involves trucks around the area surrounding an event adding a new transit stop near the event EVENT PROFILE venue. venue to the existing route. In addition, a deviation of the regular route may be required due to road or travel lane closures needed to stage the planned special

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event. Because of these deviations, sta- special services are evaluated based on the tion-to-station travel times may change. following criteria as outlined in Tri-Met’s • Implementation of an express service to Service Standards: establish a special purpose route to and from the event. This service, including • Serving the Public Interest - Certain bus and commuter rail, usually requires community events require the movement riders to pay a fare, although event spon- of large groups of people during certain sors may reimburse the service cost or hours of the day. These are events that include the cost in the ticket price. The would otherwise seriously restrict traffic express service will involve an entirely movements unless public transit took an new route and new schedule of service expanded role. Historically, these events that accommodates the operational char- are annual events, although some one- acteristics of the event served. Express time events may also be considered. The bus routes may originate, for example, decision to provide the service is based from regional park and ride lots or re- on an evaluation of available resources gional commercial centers with available and the need for the service. parking. Express bus operations are dis- • Cost Effectiveness - The special service cussed in more depth in the “Express requested must be evaluated based on Bus Service” section. both operations and system cost and on the availability of operators and equip- The Portland, Oregon area has a special Tri- ment. Met SETS (Special Events Transit Service) Program that handles all requests for modifications to existing transit service due to a planned special event.(3) Requests for all

Table 7-3 Transit Service Strategies STRATEGY TECHNIQUES Public • Maximize use of public transit. transit o Existing service with additional vehicle hours service o Modifying existing service by creating a route deviation with a stop near the event expansion venue o Implementation of an express service to establish a special purpose route to and from the event site Express bus • Discourage event patrons from driving their vehicles to the event site due to expected site service parking deficiencies and anticipated roadway congestion. o Using express bus service between a park and ride facility or remote parking lot and event venue o Using park and ride lots that best intercept spectator traffic as it approaches the event site. Charter • Use a contract service to provide transportation directly to the event site from outlying ar- service eas (e.g., other neighborhoods and cities). • Consider both charter bus operations as well as charter rail service. Transit • Establish a comprehensive transit marketing program. Service o Informing the public of the availability of public transit service to/from the event marketing venue o Convincing the public to use the service

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• Patronage Potential - The special ser- order for an express bus service to operate vice must be evaluated on its potential successfully, the express bus stations (e.g., 7 ridership. park and ride areas) must be strategically • Service That Could Be Provided By Oth- located to intercept spectator traffic as it ap- ers - Consideration is given as to proaches the event. In determining appro- whether or not the service can be propriate express bus station locations, the vided by others, which includes charter event planning team should review the re- bus operations, taxis, carpools, vanpools, sults of a feasibility study market area and other dial-up services. Included in analysis. OVERVIEW these considerations are the possibility that larger buses may be needed based Six successful examples of express bus ser- on cost, geographic limitations, and po- vice include: tential market penetration. • Partnership Building - Tri-Met’s goals • A successful public transit and express include partnership building in the bus campaign was utilized during the community. This helps to enhance Tri- 2002 Winter Olympics in Salt Lake City, (2) Met’s role as a community partner and Utah. During the event, over 2.5 mil- as a facilitator of mobility. lion passenger trips were recorded on the Salt Lake City public transit system for ADVANCE PLANNING In areas where service overlaps involve two an average of about 150,000 per day. or more agencies, inter-agency coordination TRAX (Salt Lake City’s light rail sys- is very critical especially on issues of fares, tem) carried two-thirds of the passengers transfers, and scheduled service hours. One and park and ride express buses carried pitfall to avoid, especially for non-regular the remaining third. riders, is forcing riders to use several different fare instruments. In other words, trans- • Another successful implementation of fers may not be allowed unless the rider express bus service involves football pays a new fare. This obstacle should be games at Husky Stadium on the campus DAY-OF-EVENT ACTIVITIES eliminated through inter-agency coordina- of the University of Washington in Seat- tion. tle.(1) Football game attendees were encouraged to take public transportation to Express Bus Service the stadium. All football ticket holders were able to ride King County Metro Stakeholders managing travel for a particu- buses for free to the stadium via special lar event may discourage event patrons from service routes from park and ride lots in driving their private vehicles to the event the region. Event parking revenues sub- POST-EVENT ACTIVITIES site due to expected site parking deficiencies sidized the cost of the express bus ser- and anticipated roadway congestion. These vice. spectators would likely utilize an express bus service, originating from a permanent • In addition to the plan implemented for park and ride facility or other vacant parking University of Washington football area (e.g., regional mall overflow parking games, a similar plan was implemented area), if the service provides a higher level for Seattle Seahawks football games dur- EVENT PROFILE of service to event patrons compared to the ing the 2000-2001 season, when the drive-alone option. An express bus would Seahawks were forced to use Husky Sta- furnish direct service to the event venue. In dium for home games. The Seahawks

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developed a comprehensive public in- after 5 P.M. on weekdays and all week- formation and promotion campaign. The end. The Downtown Shuttle Service campaign, entitled “Tackle Traffic,” in- provides 5 to 10 minute headways dur- cluded a full range of television, radio, ing the event and stops at designated sta- and print media promotions. Fans were tions along the route serving the event. advised of the free fare transit service The cost of this service is $2 roundtrip. through the campaign. The campaign also informed event patrons that the Charter Service transit service provided faster travel times than driving to the game due to the Charter service represents a contract service priority routes and loading locations as- that provides transportation directly to the signed to buses before and after the event venue from outlying areas (e.g., other game. neighborhoods and cities). Users often can purchase tickets in advance and generally in • The Regional Transportation District of conjunction with the event ticket. This ser- Denver, Colorado provides an express vice can include both charter bus operations bus service for Denver Broncos football as well as charter rail operations. The char- games known as BroncosRide. This ter service configuration usually involves service provides transportation from 30 providing direct service to the event venue. free park and ride lots in the surrounding However, service may also connect to an area. A fee of $6 roundtrip is charged to existing transit station or park and ride lot each event patron for the bus service or (e.g., express bus transfer). spectators can also purchase a season pass. In addition, after the game, the ex- Advantages of charter operations include: press bus stations exist directly outside of the stadium. • Provides the opportunity for residents of outlying areas to use mass transporta- • Milwaukee, Wisconsin hosts the annual, tion. This represents the main focus of multi-day Summerfest music festival charter service. where special express bus service, pro- • Allows people who would not normally vided by the Milwaukee County Transit have access to public transportation for a System and other private companies, op- particular event to use the service. erates throughout the event. The express • Results in a reduction in traffic in the service utilizes existing park and ride fa- vicinity of an event site as well as on cilities in the area. Certain buses are major corridor flow routes serving the provided free of charge, while service on site. other express routes cost $5 for a round- • May include free parking in the outlying trip ticket with tickets available only at area to help promote the service. the point of origin. • Allows operators to offer special season passes at a discount rate to attract riders • The Downtown Shuttle Service also op- for recurring events (e.g., football erates in the Milwaukee downtown area. games). A list of parking lots and structures located near the shuttle route is dissemi- One key aspect of charter bus service con- nated on the event website. These park- cerns the need to provide emergency trans- ing facilities offer a special parking rate portation for riders should the need arise. of $5 or less when event patrons enter For example, charter service travel times

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may exceed an hour. Patrons who use the which the transit agency wants to provide charter service must remain in the area of charter service. Specifics of this FTA regu- the event until the completion since, typi- lation are contained in 49 CFR Part 604, 7 cally, only one bus or train is utilized for the “Charter Service” which went in effect on event. Therefore, if a patron needs to return May 13, 1987. home as a result of an emergency, a “guaranteed ride home” service needs to be pro- Transit Service Marketing vided as part of the charter service. This represents one of the factors against charter In order for public transit to be effective, the service and, therefore, the availability of an general public must be made aware of the OVERVIEW emergency ride home policy will likely at- benefits of using the transit system. This tract more users. can be accomplished through a comprehensive transit marketing program. This pro- One example of a successful charter service gram serves to: (1) inform the public of the involves the Rochester-Genessee (NY) Re- availability of public transit service to/from gional Transportation Authority (RTS). The a special event venue (2) convince the pub- RTS runs a charter bus operation from the lic to use the service. Stakeholders can de- Rochester area to Buffalo Bills’ games. The velop various marketing techniques to ac- first pick-up is at the RTS headquarters and complish one or both of these tasks. occurs 4 ½ hours before the kick off. Three ADVANCE PLANNING more stops exist, 4 hours, 3 ½ hours, and 2 San Francisco Giants Program hours and 45 minutes before the game. Af- ter the last stop, a direct trip is taken to the One successful implementation of a transit stadium facility with the bus arriving one marketing program involved the San Fran- hour before kickoff. The charter bus departs cisco Giants baseball team in coordination for the Rochester area 45 minutes after the with the regional Metropolitan Transporta- completion of the game. RTS operates a tion Commission (MTC), Bay Area transit similar charter bus operation for Syracuse operators, and the San Francisco Department Orangemen football and basketball games, of Parking and Traffic. These stakeholders DAY-OF-EVENT ACTIVITIES including the first stop a full 4 hours before collectively developed and implemented a the event start. comprehensive transit marketing campaign prior to the opening of the new Pac Bell Public transit agencies may provide charter Park in San Francisco. service, but only under special circumstances. In cases where the Federal Transit The goal of the program involved attracting Administration (FTA) subsidizes a particular patrons to transit in large numbers. The transit agency and that agency wants to pro- name of the campaign was “Your Ticket POST-EVENT ACTIVITIES vide any charter service using FTA funded Home,” and it was funded by the Giants, the equipment or facilities, then the transit MTC, and a number of corporate sponsors. agency must first determine if any local pri- Each corporate sponsor’s logo was printed vate bus companies can and will elect to on materials associated with the campaign. provide the desired charter service. If a pri- The transit marketing program targeted first- vate operator exists, FTA regulations pro- time transit riders. Since the Bay Area has

hibit transit agencies from establishing a an extensive public transportation system, EVENT PROFILE charter service with FTA funded equipment the main focus of the campaign was to edu- or facilities. Public transit agencies must cate the traveling public. Key elements of submit a charter service request to the FTA the transit marketing campaign included: at least 90 days prior to the first day on

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PRE-TRIP TRAVELER • Transit Information Guide – A pocket- sized foldout information guide was de- INFORMATION veloped and widely distributed to Giants fans, including all season ticket holders. Information Needs • Transit Information Hotline – A toll-free number was developed to provide live Various traveler information techniques are transit planning assistance for patrons. used to disseminate information to the pub- • Transit Tickets by Mail – Giants season lic, including both event patrons and non- ticket holders were provided the oppor- attendee road users, so they can be better tunity to purchase transit tickets in ad- informed when planning their trip to a vance through the mail. planned special event, or around an event. • Transit Incentive Program – Giants fans Table 7-4 lists techniques used to provide that purchased transit tickets in advance pre-trip information to the traveling public. were rewarded with points toward the Giant’s fan appreciation program. Table 7-4 • Transit Advertising – An advertising Pre-Trip Traveler Information Dissemina- campaign was developed using the tion Techniques “Your Ticket Home” logo and was fea- TECHNIQUE tured on Bay Area trains and buses and • Internet in the ballpark. The use of public trans- • Telephone information systems • Public information campaign portation was also heavily promoted on • Event and venue transportation guide Giant’s radio and television broadcasts • Kiosks as well as on the scoreboard inside the • Television park. • Newspapers • Transit Ambassador Program – The Gi- • Changeable message signs ants and the various transit agencies • Highway advisory radio worked together to provide “transit ambassadors.” These ambassadors helped The primary function of pre-trip information to answer questions and guide new riders involves assisting drivers with decisions re- through transfers and fare collection garding route planning, travel mode, and the procedures at various stations. These time of day to travel. Accurate pre-trip ambassadors wore brightly colored uni- travel information will provide benefits to forms that were easy to recognize. all transportation system users in the form of time and cost savings. The Giants, the MTC and the San Francisco Department of Parking and Traffic also Pertinent information that event patrons may worked together to effectively publicize want before beginning their trip include: available transit services through local media including newspapers, television, and • Best driving route to the venue from radio. In addition, press releases were is- specific origins (e.g., cities or freeways) sued and interviews were scheduled on tele- • Best public transit route vision and radio to further promote the tran- • Parking area locations and parking fees, sit program. access to disabled parking spaces, and times that the parking areas open before the event

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• Recommended event ingress and egress The main issues for the non-attendee road routes, particularly if different for arri- user becomes, “How will the event gener- vals and departures ated traffic impact my daily driving rou- 7 • Up-to-the-minute roadway information tine?” The most relevant information is up- (e.g., current traffic conditions and to-the-minute traffic reports in the area of weather conditions) the venue, used by non-attendee road users • Estimated travel time by different travel to determine if their travel route needs ad- modes justing. Information on travel lane closures • Event information such as times and is also important to determine if extra time schedules needs to be budgeted or an alternate route OVERVIEW • Recommended speed/safety advisories taken. • Scheduled roadway construction and maintenance lane closures All of this pre-trip information helps transportation system users plan their best route • On-street parking restrictions during the to and from the event or around the event. event The event patrons will have the information • Heavy vehicle restrictions they need to arrive on time for the event; • Expected delays leaving the event moreover, the information will prepare them

for what may lie ahead in their trip. The

This information may help event patrons ADVANCE PLANNING non-attendee road users are also made aware better gauge the utility associated with of what to expect as a result of a planned available travel choices and, in turn, assess special event. If residents and businesses in what transportation mode and route they will the area surrounding a venue incur signifi- be taking to the event. Pre-trip traveler in- cant impacts, then it may be more difficult, formation also helps event patrons budget in the future, to obtain special event permits sufficient time in accessing the event venue. in the area.

Non-transportation information that may be In order to improve public understanding, pertinent to an event patron’s travel plan in- cooperation, and acceptance of the planned DAY-OF-EVENT ACTIVITIES cludes security procedures. This encom- special event, stakeholders should consider passes items allowed to be brought into the the following actions: parking area or the venue itself, including pets. This information is important since it • Develop public information programs to may impact the amount of time it takes spec- encourage early travel to the event tators to get into a parking area or venue. and/or spectator use of alternative routes Other information includes what vendors are or transit. available on-site, since event patrons may POST-EVENT ACTIVITIES have the option of eating before or after the • Develop public information programs to encourage non-attendee road users to special event. This will impact the time the consider transit, ridesharing, and alterna- event patron designates for venue arrival. In tive work hours. addition, a seating chart and gate locations may assist the spectator in selecting which • Develop agreements with trucking agen- parking area to use. cies to avoid peak period travel and deliveries. Non-attendee road users also desire informa- EVENT PROFILE tion on event specifics, but this information is directed more to possible road/lane closures or changes in normal traffic patterns.

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Internet ment speeds or traffic incident locations. In addition, websites can include in-depth de- Internet websites have several key points of tails regarding traffic incident characteristics interest when they are used to disseminate by allowing the user to click on icons for a traveler information: more detailed explanation. As an example, if a certain icon shows a traffic incident, the • Provide global information distribution user can click on that icon and see a more since geography is not a limiting factor. detailed explanation of the traffic incident • Facilitate interactivity by allowing users itself. to control information display. Users can find information about what they are interested in and may also find information they did not know was available. • Can target a specific subject area and concentrate on this area with links to other related sites. • Provide detailed information that is not easily conveyed by telephone. • Provide flexibility since revisions and updates can be made in a fraction of the time and cost of re-printing material Figure 7-7 (e.g., brochures). Traffic Information Dissemination Via a • Identify conditions affecting service, Public Agency Website (Graphic courtesy thus answering the question: “Why are of the Chicago DOT.) there delays on this section of roadway at this time?” Public agency websites also provide infor- • Use graphics capabilities. Users under- mation on roadway closures, locations of stand complicated subject matter better roadway construction sites, and details of when presented with graphics. This planned special events impacting transporta- concept holds true with driving direction system operations. Again, the user can tions and transit maps, for example. It is obtain more detailed information for each easier to digest the information via a location by clicking on a certain area within map rather than read a table of times and the website. A typical public agency web- destinations. In addition, the graphics site may provide weather information along can be printed and used at a later date if with information on pavement conditions. needed. • Promote existence and use of telephone Public agency websites may disseminate information systems (e.g., 511 service). closed-circuit television (CCTV) camera images. By clicking on CCTV location Public Agency Websites icons, a snapshot picture of the latest CCTV image is shown on the website. In addition, As illustrated in Figure 7-7, a typical public locations of CMS and their current message agency website includes up-to-the-minute can also be shown. Public agency websites, information for the traveling public both be- or private traffic advisory services, may also fore the event and on the day-of-event. In- allow users to subscribe to an alert system formation provided on these websites in- that allows them to receive e-mails if a traf- cludes traffic conditions, such as road seg- fic incident, roadway construction, or

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planned special event impacts operations on event. Successful websites also provide in- a user-defined route. formation on the availability of public transportation and route maps for all public 7 One successful implementation of a website transportation alternatives. Venue ingress for disseminating pre-trip traveler informa- and egress routes can be specified on a web- tion was the Utah DOT’s CommuterLink site to provide valuable advance information Website (CLW) used during the 2002 Win- to the traveling public. Appendix L contains ter Olympics in Salt Lake City, Utah.(2) The examples of public agency and event- CLW represented the most highly accessed specific websites.

traveler information element during the OVERVIEW Olympics. It included typical public agency Telephone Information Systems information on traffic conditions including speeds and incidents. It also disseminated Another method to disseminate pre-trip information on roadway closures, current traveler information to the public is by the roadway construction, weather conditions, use of telephone information systems (e.g., and pavement conditions. In addition to the 511 service). This system consists of an typical public agency information, the CLW automated voice recognition system and/or a provided Olympics travel information. menu that can be accessed by using a touch- tone phone, and the system provides up-to- In order to assess the usefulness of the CLW the-minute traveler information. The system ADVANCE PLANNING during the Olympics, a survey was con- includes information on traffic conditions, ducted of both residents and visitors to the public transit information, and road condi- Salt Lake City area. The results of the visi- tions. The system can also provide event- tor survey showed that 41 percent of visitors related information such as times, location, heard of the CLW and 34 percent of visitors and event descriptions. Parking information stated they used the CLW. The results of can also be provided, such as parking loca- the resident survey indicated that 70 percent tions and parking lot status information. of residents heard of the CLW while 21 per- The system can furnish updated information cent used it. Both visitors and residents in- on event travel alternatives throughout the DAY-OF-EVENT ACTIVITIES dicated that they used the CLW to obtain: event. Stakeholders should coordinate with telephone information system operators • Traffic information (e.g., state DOT) to ensure that information • Road conditions pertaining to a specific planned event is in- • Olympics information (e.g., travel op- cluded in the system and updated regularly. tions and event operations information) • Weather information Marketing a 511 service for a planned special event includes the following considera- POST-EVENT ACTIVITIES Event or Venue Website tions:

A typical planned special event or venue • Deployment of roadside signs on travel website includes event start times and direc- routes to the event venue and placed in tions to the event. The website can also advance of the event dates. provide information on parking area loca- • Promotion through the media. tions, fees, alternate routes, or incentives to • Establishment of partnerships between EVENT PROFILE use different modes of transportation. A 511 service operators and all venue op- venue website represents one of the best erators in a region. techniques to reach the people attending the

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• Use of television commercials and radio the 511 service and 17 percent used it. The advertisements. survey results reported 44 percent of resi- • Use of an event transportation guide for dents heard of the 511 service; however, information on the service. only 4 percent of residents used it.

In addition to disseminating information via The 511 service is normally run by a re- the Internet during the 2002 Winter Olym- gional or statewide public agency, and the pics, the Utah DOT also operated a 511 service is not intended solely for planned telephone information system. Figure 7-8 special events. A telephone information shows the 511 service structure established system is also used on a daily basis by by the Utah DOT. On a typical day during commuters and other travelers in the area to the Olympics, the 511 service received obtain information on daily traffic condi- 1,923 calls.(2) Callers to the 511 service actions. However, one way that planned spe- cessed the following main menus within the cial event stakeholders can promote use of system: the existing service is to advertise it on the event website. This was done on the Bristol • Traffic menu (TN) Motor Speedway’s website. On the • Transit menu first page of directions to the venue, an ad- • Olympics menu vertisement, shown in Figure 7-9, was • Road conditions menu placed for the area’s 511 service. As a result, the event website alerted event patrons Both residents and visitors were surveyed in of a means to obtain accurate, up-to-date regard to an evaluation of the telephone in- traveler information before commencing formation system. The results of the survey their trip to the event venue or while en- showed that 25 percent of visitors heard of route.

Figure 7-8 Telephone Information System Menu Structure(2)

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planned special event and related travel options. 7

Figure 7-9 OVERVIEW Promotion of 511 Service on Event Website (Graphic courtesy of Bristol Motor Speed- way.)

Public Information Campaign

A public information campaign is simply an outreach initiative designed to disseminate a Figure 7-10 message(s) to a general audience and to gar- Public Information Campaign Promotion

ner public response to the message subject. ADVANCE PLANNING The Wisconsin DOT and its stakeholder Key considerations include: partners provide several information packages for events held throughout the state. • In order for a public information cam- One such event was the 2002 Major League paign to be successful, stakeholders must Baseball All-Star game held at Miller Park initiate the campaign well in advance of in Milwaukee. The DOT provided a de- a special event. tailed brochure for event patrons going to the baseball game, informing them of road • Information disseminated through the construction and potential difficulties (e.g., campaign needs to reach both event pa- DAY-OF-EVENT ACTIVITIES delays) in accessing the ballpark. The bro- trons and non-attendee road users. chure then specified, in detail, alternate • Maps showing event site and location of routes that motorists could take to avoid the parking areas, as well as any associated most congested areas. The brochure also roadway closures and/or special traffic directed event patrons to the DOT website patterns, can be placed in local newspa- for further information concerning any topic pers. In addition, this information can covered. be broadcast on local radio and televi-

sion newscasts throughout the day. POST-EVENT ACTIVITIES The Wisconsin DOT also produced a bro- • Special media briefings can be held in chure entitled “Get Down Downtown” for advance of the event so that the media the Milwaukee area. This brochure included has ample time to inform the public of maps of the area that specified all on-going the upcoming activities. Stakeholders roadway construction projects. It also pro- can provide the media with maps and vided information on available public transit written information. system service and parking area locations. Suggestions, such as “carpool with friends EVENT PROFILE As shown in Figure 7-10, television adver- and coworkers,” were made to reduce traffic tisements can broadcast telephone numbers demand in the downtown area, particularly to call for additional information about a when planned special events occur. The

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brochure listed summer travel tips in addition to guidance (e.g., websites) on where to get more information about any particular topic. In this manner, the brochure provided an abundance of information while not overburdening the reader. Instead of the reader having to look through an entire guide, subject areas were listed coupled with statements on how to obtain additional information. Figure 7-11 presents the summer travel tips communicated by the brochure.

Event and Venue Transportation Guide

Another strategy that can be used to distribute pre-trip traveler information is through an event-specific or venue transportation guide. These guides are normally distributed to event patrons when they receive their tickets for an event, or the guides can be downloaded from an event or venue website. Local hotels can also maintain copies of the transportation guide.

Typical items that may be included in a transportation guide that comprise useful pre-trip traveler information include:

• Schedule of events • Driving directions • Area map • Inbound and outbound traffic flow routes • Parking areas • Area transportation options

Transportation guides can illustrate the benefits of carpooling. Parking facilities within a downtown area can be shown, and the guide can emphasize those parking fa- Figure 7-11 cilities that offer HOV pricing. Local access Public Information Campaign Brochure streets can be identified with a request not to use those streets while driving to and from the event unless the driver intends to patron- ize local businesses either before or after the event.

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Appendix M contains an example of a venue • Road construction and road closure in- transportation guide prepared for Ford Field formation in Detroit, Michigan. • Public transit information 7 • Weather information. The Nazareth Speedway in Nazareth, Penn- sylvania produces an informative venue Successful kiosk implementations include guide each year that provides in-depth in- information that can be displayed on a color- formation about the raceway itself as well as coded map and/or printed. This information travel options to the venue site. Appendix can include such items as turn-by-turn route M contains the transportation section of the planning. The ideal location for a kiosk is in OVERVIEW guide prepared for this venue. This guide high pedestrian traffic areas, such as hotels, can be downloaded from the venue’s web- tourist attractions, businesses, schools and site. The opening sections of the guide pro- universities, military bases, shopping malls, vide a venue overview and list important rest areas, hospitals, and amusement parks. travel tips, including the use of recommended routes and the possibility of incur- The kiosk concept is used extensively in the ring delay due to both traffic congestion and San Antonio, Texas area which operates 4 security issues. Since ingress and egress outdoor and 36 indoor interactive traveler traffic patterns differ, both sets of directions information kiosks.(4) Before deployment of are communicated in the venue guide. A the kiosks in San Antonio, a focus group ADVANCE PLANNING facility map shows available amenities as was established that randomly selected peo- well as parking area locations (including ple in the area to try the kiosk software. disabled parking). In addition, the guide This allowed designers to evaluate different includes a grandstand map and states park- types of presentation layouts and informa- ing area opening times in addition to parking tion and to base designs on user feedback. rules and regulations. The design process proved successful in creating demand for the kiosks in the San An- Other Technology Applications tonio area. DAY-OF-EVENT ACTIVITIES Other technology applications include: Television

• Kiosks A successful pre-trip information strategy • Television includes the use of local media outlets to • Roadside traveler information devices disseminate information to the traveling public. During planned special events, tele- Kiosks vision stations may show actual footage obtained from CCTV cameras along roadways POST-EVENT ACTIVITIES Kiosks are used extensively to provide mul- in order to communicate real-time traffic ti-modal transportation information to the information. These CCTV camera links traveling public, such as: originate from a transportation management center (TMC), and the TMC can prevent • Area maps media access to certain cameras for security • Route guidance information or privacy reasons. In addition, a successful • Real-time travel condition information information campaign includes the release EVENT PROFILE (e.g., speeds, traffic incidents, etc.) of regular e-mail or voice recording updates • Planned special event information to various media outlets by TMC operators. The local media outlets, especially radio and

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television, use this information to alert mo- HAR can disseminate more detailed infor- torists of traffic incidents, alternate routes, mation about transportation alternates and and general traffic information. parking access for the event. The service can promote alternate modes of travel such Television can be used to disseminate pre- as light rail, bus, or bicycle. In addition, in- trip traveler information by way of regular formation on shuttle buses for the event can broadcast updates or a dedicated cable tele- be included in HAR message sets. vision channel. A dedicated channel allows travelers to turn on the television and view a REFERENCES traffic report with little delay. As shown in

Figure 7-12, maps can be provided that 1. Markley, D.D., N.L. Conrad, and show icons with traffic incident locations G.S. Rutherford, “Serving the Uni- and color coded road segments that indicate versity of Washington’s Husky Sta- current travel speeds. Television traffic re- dium,” Preprint No. 00113, Prepared ports can broadcast planned special event for the 2001 ITE Annual Meeting travel information as well as road closures, and Exhibit, Institute of Transporta- construction, detours, weather conditions, tion Engineers, Chicago, Il., August transit, and current traffic conditions. 19--22, 2002.

2. Glazer, L.J. and R. Cruz, Intelligent Transportation Systems at the 2002 Salt Lake City Winter Olympic Games: Event Study – Traffic Man- agement and Traveler Information, Utah Department of Transportation, Salt Lake City, Utah, April 2003, 160 pp.

3. Coffel, B. and F. Wambalaba, Tri- Met SETS Program, Tri-County Figure 7-12 Metropolitan Transportation District Television Travel Report of Oregon, Portland, Oregon, 1995.

Roadside Traveler Information Devices 4. Miller, K.T. and L.J. Dignazio, “The

San Antonio Model Deployment Ini- Roadside traveler information devices, such tiative Experience: Lessons as CMS and HAR, can be used in the days Learned,” Preprint No. 00840, Pre- and weeks prior to an event to alert compared for the 1999 Annual Meeting muters and local residents of possible spe- of the Transportation Research cial traffic patterns and closures due to a fu- Board, National Research Council, ture planned special event. Device mes- Washington, D.C., January 11--15, sages can be specific in terms of the exact 1999. days and times of the anticipated travel impacts and roadway modifications. Message broadcast should commence at least one week prior to the planned special event.

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CHAPTER EIGHT IMPLEMENTATION ACTIVITIES 8 OVERVIEW ADVANCE PLANNING

Figure 8-1 Personnel Monitoring of Arterial Ramp Closure

PURPOSE ness. In turn, this creates a more responsive DAY-OF-EVENT ACTIVITIES traffic management team and fluid team op-

eration, thus translating to better transporta- This chapter describes the third phase of tion system performance on the day-of- managing travel for planned special events. event. Implementation activities mark a transition

phase between event operations planning and day-of-event activities. Therefore, the INTRODUCTION

phase involves both the event planning team POST-EVENT ACTIVITIES and traffic management team. This phase The operational success of a planned special includes activities key to the success of any event traffic management plan rests on traf- planned special event, including implemen- fic management team members having first- tation plan development, stakeholder review hand knowledge of pertinent plan strategies and testing, and personnel resource man- and tactics. Although most stakeholder agement. agencies comprising the traffic management

team participated in developing the traffic EVENT PROFILE The underlying objectives of the chapter ma- management plan, the actual stakeholder terial are to: (1) improve the efficiency of representatives may be different. Middle traffic management plan deployment and (2) and senior level personnel partaking in event increase traffic management team prepared- operations planning initiatives may assume a

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traffic management team supervisory posi- IMPLEMENTATION tion, while agency field-level personnel may implement traffic management plan specifi- PLAN cations and details. An implementation plan instructs field-level personnel, some of Overview whom have little or no direct experience in managing travel for planned special events, An implementation plan details the actions on the what, when, and where aspects of required to put a traffic management plan their assignment in relation to traffic man- into effect on the day-of-event. Its purpose agement plan requirements. On a manage- is to: (1) define personnel assignments that ment-level, an implementation plan specifies indicate the roles and responsibilities of in- an action plan for activating, changing, and dividual traffic management team personnel deactivating various traffic management on the day-of-event, (2) describe a scenario- plan provisions. based, operations game plan at the management-level, and (3) communicate instruc- Review and testing allows the traffic man- tions and organize personnel at the field- agement team to identify potential limita- level. It is intended for use by individual tions of the traffic management plan prior to traffic management team personnel at the the day-of-event. With stakeholder agencies command post and in the field. While the representing various jurisdictions and disci- traffic management plan indicates how traf- plines, review and testing promotes traffic fic, parking, and pedestrian operations will management team coordination and in- be managed, the implementation plan decreases stakeholder familiarity of the duties, scribes the what, when, and where in terms responsibilities, and capabilities of other of personnel and equipment resource de- stakeholders. Activities range from tabletop ployment needed to execute traffic man- exercises that examine how different agen- agement plan provisions. Traffic manage- cies react to various scenarios to “hands-on” ment plan revisions made on the day-of- applications that can involve a full simula- event mandate corresponding implementation or deploying a traffic management plan tion plan modifications. Field personnel for smaller planned special events as a test. may lack familiarity with a traffic management plan developed by mid-level and sen- In developing the traffic management plan, ior-level agency representatives, and an im- stakeholders design transportation control plementation plan ensures a coordinated and and management strategies to satisfactorily consistent traffic management team effort mitigate the impacts of event-generated and prevents field personnel from having to travel demand. The level of response re- make independent decisions. Table 8-1 lists quired to implement planned mitigation general field-level operations guidelines. measures may place significant strain on agency and contractor personnel available Table 8-1 on the day-of-event. The recruitment of General Field-Level Operations Guidelines temporary staff and volunteers expands traf- ACTION fic management team capabilities and ele- • Follow assignment detail, unless revised by a supervisor (via command post). vates its operations efficiency. Practitioners • Review traffic control at adjacent locations. can capitalize on the benefits of having addi- • Review event permits and passes to minimize con- tional personnel resources by recognizing fusion and traffic flow disruption. • Maintain radio communication with pertinent su- volunteer limitations and applying proven pervisors and/or command post. training methods. • Expect temporary changes in operations detail.

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The implementation plan communicates tions. This allows lower-level staff to re- traffic management plan specifics using a solve certain problems without having to 8 quick reference format. The plan ranges contact the command post, thus reducing the from a memorandum to a detailed manual burden on command post personnel. While depending on event size and scope of plan review and testing exercises may not involve coverage. Figure 8-2 shows two examples all traffic management team personnel, su- of implementation plans prepared for a spe- pervisors should conduct an implementation cific planned special event. Individual plan review with field staff prior to the event stakeholders may develop a plan for the or during day-of-event roll call. OVERVIEW freeway/arterial corridor(s) or street networks under their jurisdiction. A large-scale Plan Specifications implementation plan, such as an event manual, is organized by: (1) traffic management An implementation plan describes functional plan component (e.g., signing plan, intersec- activities, as specified in the traffic man- tion control plan, etc.), (2) zones correlating agement plan, by location and/or re- to supervisor assignments, or (3) agency ju- source/infrastructure type. Locations in- risdiction. clude freeway and street segments, freeway ramps, intersections, mid-block locations, and parking area access points. Specific re- ADVANCE PLANNING sources and infrastructure include roadway traveler information devices, static signs, traffic control equipment, and traffic signals and associated timing plans.

The overall implementation plan organization creates numerous action plans for specific traffic management personnel or small

personnel groups. Location-specific details DAY-OF-EVENT ACTIVITIES typically specify traffic and/or pedestrian control duties and responsibilities. With re- Figure 8-2 gard to equipment deployment, the imple- Planned Special Event Implementation Plans mentation plan contains protocol for deliv-

ery, installation, monitoring, and takedown. Traffic management team supervisors Stakeholders design the implementation plan should develop an implementation plan prior to match specific personnel experienced in

to any review and testing exercises to permit POST-EVENT ACTIVITIES operating certain equipment and infrastruc- revisions and allow the participants an op- ture. portunity to become familiar with the details of their assigned job. The key to plan de- Table 8-2 presents an implementation plan velopment, and day-of-event operations, in- checklist. Appendix N contains example volves assigning the right personnel, author- implementation plans prepared for specific ity, and responsibility to effect optimal traf- planned special events. All planned actions, fic management plan deployment. Complex even if not explicitly noted in the table, must EVENT PROFILE tasks require skilled personnel with satisfac- include what, when, and where instructions. tory experience. The implementation plan For multi-day or multi-venue events, traffic should empower traffic management team control strategies and resource deployment supervisors at every level: event command can be organized through matrices for easy post, agency command post, and field loca- 8-3

Table 8-2 Implementation Plan Checklist ELEMENT ACTION • Indicate agencies staffing the command post in addition to the name and schedule of agency representatives. • Specify equipment needs and times of delivery and set-up. Command post Computers, networking, temporary phone and modem lines, televisions and radios, operation o dry erase board or flipchart(s), message board, office supplies, furniture. • Indicate procedures for accessing the command post (e.g., clearing security) • Specify vehicle parking area and helicopter landing area. • Indicate command post location and hours of operation. • State parking, traffic control, and service patrol shifts. • State when egress plan goes into effect. • Specify parking area and venue gate open/close times. Operations timeline • Summarize the location and time (close/reopen) of planned full/partial road closures. • Include event schedule, such as event start time, event end time, and significant activities during the event (e.g., parade detail and headline entertainment schedule). • State times of sunrise and sunset, if applicable to traffic control measures (e.g., use of portable lighting). • Indicate scenario-based criteria for implementing traffic management plan components (e.g., traveler information message sets, traffic flow routing, reversible lane operations, etc.) • Include a series of operations details for sequential time segments on the day-of-event. Operations • Specify contingency plans – indicate available plans and associated equipment/personnel management resource deployments and changes in traffic management team command. • Indicate procedure for revising the traffic management plan on the day-of-event. • State protocol for terminating traffic and parking management detail. • Summarize traffic management plan changes since previous event. • State contact information for individual traffic management team members. Contact o Home phone, work phone, cell phone, pager number, fax number, e-mail address, information unit/radio assignment, rank, detail assignment, vehicle assignment. • Include contact information for agencies involved in contingency plan deployment. • List radio call-sign of traffic management team members. Communications • Indicate guidelines and restrictions regarding use of various radio channels or talkgroups (e.g., field-to-field communications, field-to-command post communications, non-event communications). • State agency duties, responsibilities (e.g., traffic control, traffic signal operation, traveler Traffic information device operation, etc.), and jurisdiction. management • Specify highest-ranking agency representative on the day-of-event in addition to mid- team level (e.g., zone) managers. organization • Summarize chain of command. • Mandate pre-event equipment check (e.g., CMS operation). • Specify locations and quantities of traffic control and other support (e.g., portable lighting) equipment. Indicate equipment owner and, if applicable, power source. • Indicate equipment delivery, installation, and removal schedule in addition to personnel assignments. • Indicate schedule and location (zone) assignment of available equipment maintenance Equipment and crews on the day-of-event. infrastructure • Include equipment operating instructions (e.g., remote HAR programming). management • Indicate temporary static sign locations and descriptions. • Specify planned traveler information message sets (e.g., CMS and HAR). • Specify personnel responsible for monitoring and programming traveler information devices on the day-of-event. • Indicate protocol and personnel charged with implementing different traffic signal timing plans as-needed on the day-of-event. 8-4

ELEMENT ACTION • Indicate protocol and personnel charged with monitoring traffic surveillance equipment (e.g., CCTV). 8 • List available maintenance personnel and equipment resources. • Indicate agency personnel (e.g., number of staff or individual name, rank, and unit/radio assignment), report date and time. • Specify schedule and route of roving service patrols. • State protocol and personnel assignments for maintaining unobstructed emergency access Location- routes.

specific traffic • Specify task instructions, including traffic and pedestrian flow restrictions and permitted OVERVIEW and pedestrian movements (e.g., special allowances for local traffic, buses, etc.). control • Summarize the location and time (close/reopen) of planned full/partial road closures encompassing a particular location. • Provide step-by-step directions in order for substitute personnel to quickly learn protocol. • Include explanation, supplemented with graphics, of special event parking area permits and event passes. • Describe components of post-event field personnel debriefing. Post-event o Time of heavy traffic and pedestrian flow evaluation o Qualitative assessment of traffic and pedestrian operations at location. o Recommendations to improve traffic and/or pedestrian flow at location

ADVANCE PLANNING reference. Traffic management team super- tion. The event operations planning process, visors should maintain a full version of the by its very nature, is based on assumptions event traffic management plan, including and expectations. Those event planning contingency response plans, at the command team members who helped draw-up the plan post. may have a thorough knowledge of their agencies’ experience and capabilities, but In an effort to best prepare traffic manage- there are probably many traffic management ment team personnel, particularly team su- team members and volunteer personnel who pervisors, for day-of-event operations, the had little or no role in developing the plan, DAY-OF-EVENT ACTIVITIES plan can include a qualitative evaluation yet have the responsibility of implementing summary of transportation system opera- it and managing travel on the day-of-event. tions for a previous, similar planned special event. This allows team members to famil- While a traffic management plan can cover iarize themselves with past operations and many contingencies, it cannot cover all pos- lessons learned. The plan may highlight sibilities. Review and testing can allow par- new provisions and changes for the subject ticipants to see how they handle various event aimed at mitigating past lessons scenarios and how varying elements can af- POST-EVENT ACTIVITIES learned. fect the plan. The testing of the plan should be considered part of the overall training REVIEW AND TESTING that is needed for traffic management team personnel to become familiar with the plan

and their role in it.

Purpose EVENT PROFILE This section covers what should be done in

the days leading up to plan deployment, in- While all of the steps discussed up to this cluding simulation exercises and equipment point are important, the best traffic man- testing which will help assure that what is agement plans may fail if they are not re- planned is what actually happens. viewed and tested prior to their implementa- 8-5

Stakeholder Simulation Exercises Without the benefit of testing the traffic A plan is just a plan until it is implemented. management plan, discrepancies may not be Simulation exercises allow that plan to be realized until the actual implementation of given life and allow stakeholders to see how the plan. During simulation exercises, mis- it might work in the real world of the takes can be discovered while there is still planned special event. time to make modifications and before any negative consequences are realized. The simulation exercise can test important elements such as: (1) interagency communi- In both a tabletop exercise and a full-scale cations, (2) deployment of personnel and simulation, participants receive and use the equipment, and (3) information gathering written traffic management plan and imple- and dissemination. While stakeholders may mentation plan as the basis for their actions. conduct the exercise at the venue where the Table 8-3 lists elements of a typical exer- planned special event will occur, much of cise. the plan will involve permanent transportation management centers (TMC) or tempo- Table 8-3 rary command posts which are in operation Elements of a Stakeholder Simulation before, during, and after the event. There- Exercise fore it is important that all of the responsible ELEMENT agencies and TMCs, which may have a role • Identify the stakeholders who will participate in the exercise. to play during the actual event, be involved • Distribute copies of the traffic management with the simulation exercise. plan and implementation plan to participants. • Develop a script for the exercise, including Communications should be tested not just surprise elements that may not be addressed in from a technical standpoint but also to make the traffic management plan. sure what is being communicated is under- • Provide a timeline for the exercise to play-out (the exercise will probably take place in an stood. The simulation provides an opportu- accelerated timeframe compared to a real-life nity to make certain this part of the plan event). works as expected. • Identify reviewers who will watch the exercise and take notes. Exercises can take on two different forms: • Provide time to review the exercise. • Modify the plan based on what was learned during the exercise. • A tabletop exercise • A full-scale simulation The goal of the testing is not to be mistake- free, but to identify potential problems. The purpose of both types of exercises is to: Therefore, when the actual event takes place (1) test the written assumptions in the traffic errors, may be minimized and the event can management plan and (2) see what must be run smoothly. changed and how the plan can be improved. No matter how thorough a traffic manage- For both tabletop and full-scale simulations ment plan may be, it can not account for all to be effective, they should test as many contingencies. The plan assumes partici- parts of the traffic management plan as pos- pants will follow the steps laid-out, but indi- sible using scenarios that are as realistic as viduals make mistakes and equipment may possible. Since participants can not be ex- fail. Both the tabletop and full-scale simula- pected to remember all that takes place dur- tion allow the participants to see how they ing the exercise, it is critical that observ- react to those unexpected events. 8-6

ers be used to: (1) watch what happens, (2) This could mean that those who are playing take notes on what is seen and heard, and (3) the role of a traffic management team mem- 8 recount observations during the review ber might handle events differently than process. Participant input is also crucial in those who actually would take the actions on the review process. They can note difficul- the day-of-event, or that actions might differ ties experienced during the exercise that if there were interaction with other partici- might not be obvious to observers. Review- pants. It also means that the insights, ques- ers should debrief participants as soon as tions and suggestions of these operational

possible after the exercise so participants do personnel are lost. One way this can be ad- OVERVIEW not forget what they experienced. These dressed, in part, is to have several tabletop participant observations should also be in- exercises, which review portions of the plan cluded in a more extensive review of the ex- with smaller groups. Having multiple table- ercise. top exercises better accommodates the schedule of designated traffic management Individuals who do not represent day-of- team personnel. These exercises can focus event traffic management team personnel or on that portion of the plan, which in turn, event stakeholders can be very useful in involves these individuals. moderating the review process since they do not bring real or perceived bias into the A tabletop may also miss outside influences ADVANCE PLANNING process. that would be dealt with during an actual planned special event. For example, a TMC Finally, all of the observations and insights operator may be handling other activities are useless unless there exists some oppor- during a special event such as an incident tunity to incorporate recommended changes not associated with the event. into the traffic management plan. It should be noted that a tabletop exercise Tabletop Exercise could be held prior to a more detailed exer-

cise, which involves a greater number of DAY-OF-EVENT ACTIVITIES At its most basic level, a tabletop exercise people. In fact, a tabletop may identify can simulate what actions will be taken us- problems which can be corrected prior to a ing only a limited number of people. The more detailed exercise and allow a better tabletop exercise may be held within the simulation of what takes place. confines of a room, but there is still an opportunity for representatives of all Full-Scale Simulation participating stakeholders to take part. The

tabletop exercise can be run by a handful of A full-scale simulation involves a larger POST-EVENT ACTIVITIES people who regularly manage travel for number of people and takes place at various other planned special events occurring in locations. During the exercise, actual com- their region and, therefore, know how munication takes place between participants stakeholders deal with other events. The including those at the planned special event participants take on roles such as the TMC site, TMCs, and in the field. operator or field personnel and state what actions they would take based on a scenario While the simulation tests elements of the EVENT PROFILE as it is presented and as it evolves. traffic management plan, there is also benefit to throwing in a few curveballs to see One shortcoming of the tabletop is that not how participants handle the unexpected. all of the participants, especially the front- While a TMC, for example, may bring in line personnel, will take part in the exercise. additional staff to handle the added work- 8-7 load of the planned special event, there is a • Center to center communications possibility of a major unexpected incident • Center to field communications taking place at the same time as the event. • Changeable message signs (CMS), both In this instance, it may be impossible to fol- fixed and portable low all elements of the traffic management • Highway advisory radio (HAR) plan, and participants can be tested on how • Closed-circuit television they identify priorities and decide what portions of the plan to follow or discard. While testing is no guarantee that equipment will work as expected, it is useful in identi- While a simulation will bring weaknesses to fying unknown problems and potential prob- light, it is important that all those affected lems before the event. For example, if an become aware of those weaknesses and event is taking place in a remote area, com- work together on how to modify the plan, munication to field devices may be hindered prior to the day-of-event, to minimize the by weak or nonexistent signals. weak spots. Stakeholders should consider testing for An important part of the simulation is the these types of problems as far in advance of review that follows. All those who partici- the event as possible so that alternatives can pated in the simulation now have an oppor- be identified and developed. Other types of tunity to: (1) go over the simulation step-by- testing, such as the functioning of field step, (2) compare it to the traffic manage- equipment, should take place just prior to ment plan which was developed, and (3) the event to make sure it will be working modify the plan as appropriate. There are during the event. several reasons why it is important that all participants have an opportunity to critique During a planned special event, communica- the simulation. First, a problem may only be tions will often be routed from the command observed by one individual, yet that problem post at the planned special event site through could affect the entire operation. Secondly, the TMC, if present, to field personnel and if the plan is modified, it needs to be dis- others responsible for implementing various cussed by all those who are affected. In the elements. Since the venue is at a location same way it is important for all pertinent where transportation management activities stakeholders to have a role in developing the may not normally take place, it is especially traffic management plan, it is important also important that communication linkages be- for everyone to be aware of necessary plan tween the venue and the TMCs work well. changes and to note how those changes may If radio communications are required, these impact their agency’s operation on the day- should be tested on all frequencies expected of-event. to be used. If wired communications are installed, then they should also be tested. Equipment Testing Back-up communication channels should also be tested in the event primary channels A wide variety of equipment may be used to develop problems. For instance, cellular manage travel during a planned special phone systems might be overloaded during event. This includes communications an event that draws a large number of peo- equipment and equipment in the field, which ple, especially if a problem occurs during supports the traffic management plan and the event, which causes many event patrons helps the traffic management team manage to use their mobile phones. the event. Equipment that may need to be tested includes: 8-8

Communication from the TMC to various field staff having experience in assigned du- field staff must also be tested. Again, some ties and responsibilities represents a key to 8 of these field personnel may be in locations successfully managing travel for planned not normally used during day-to-day activi- special events. Experienced personnel ties, and this testing will verify communica- should exist at all levels in the traffic man- tion can take place from the TMC to all field agement team hierarchy: interagency com- positions. mand, agency command, and field operations. However, supplementing experienced

There are other pieces of equipment that are personnel with temporary staff and volun- OVERVIEW also important and these should be tested. teers on the day-of-event also provides ad- For example, motorist information tools vantages that (1) reduce personnel cost as such as CMS and HAR may be used to public agency personnel likely require over- transmit important information both to (1) time wages on the day-of-event, (2) permit those attending the event and (2) those who public agencies to adequately meet other are traveling through the area and who daily staffing requirements, and (3) provide stakeholders want to steer clear of the event. expanded control over transportation opera- In many instances, portable CMS may be tions and greater convenience to event pa- deployed. Communications from the TMC trons. to the signs must be tested to make certain ADVANCE PLANNING there are no problems updating the signs. In some cases, the amount of personnel re- Again, keep in mind that portable signs may quired to implement traffic management use the same cellular phone frequencies that plan strategies (e.g., traffic/pedestrian con- event patrons use and, as a result, communi- trol, parking, surveillance) on the day-of- cations that work during a simulation may event, coupled with implementation plan not be as reliable during the actual event. assignments such as equipment delivery and installation, may exceed the staffing capa- As with other elements of the traffic man- bilities of agencies and contractors involved agement plan, contingencies should be de- in managing travel for a planned special DAY-OF-EVENT ACTIVITIES veloped. If wireless communications are event. As a result, the recruitment and train- unavailable, what alternates are available? ing of temporary staff and volunteers be- Can field personnel be deployed to manually comes paramount to the success of day-of- adjust equipment? Do these individuals event operations. The effectiveness and ul- possess sufficient qualifications needed to timate success of a traffic management plan operate the equipment? There are a host of depends on the level of personnel (and questions that should be considered and equipment) resources available to implement tested. the plan. A determination to use and train POST-EVENT ACTIVITIES volunteers, or additional volunteers, may PERSONNEL occur as late as after the completion of stakeholder simulation exercises and after

stakeholders make final revisions to the traf- Overview fic management plan and implementation plan. Traffic management plan implementation on EVENT PROFILE the day-of-event involves personnel duties Table 8-4 lists common personnel resource ranging from trivial tasks to responsibilities requirements on the day-of-event. The table critical to the safety and mobility of trans- indicates volunteers are better suited for portation system users. A traffic manage- non-essential activities, primarily because of ment team comprised of supervisors and experience and reliability concerns. Yet, 8-9 these activities contribute toward improved signing staff experienced in handling chal- traffic and pedestrian flow within the venue lenging tasks that comprise a particular traf- site area. For instance, the deployment of fic, pedestrian, or parking management field observers allows for data and informa- strategy. While some experienced personnel tion to be collected, processed, and transmit- may not have worked a planned special ted in real-time to traffic management su- event in the past, they have performed the pervisors. Volunteers can facilitate im- same or similar task(s) on regular basis as a proved operations at mode transfer points, result of day-to-day responsibilities or re- such as shuttle bus stations and pick- sponse to other events (e.g., traffic incidents up/drop-off areas. Public agency stake- and roadway construction activities). For holders do not have the resources or budget instance, the actions involved in program- to assign paid staff for every activity sup- ming a CMS or HAR during a planned spe- porting traffic management plan implemen- cial event does not change from its use in tation. These stakeholders, coupled with other situations. The stakeholder simulation private contractor support, can instead work exercises described in the previous section to supervise teams of volunteers charged represent training for experienced personnel with traffic and pedestrian management on managing travel for a particular planned support tasks. special event. In contrast to experienced personnel, many volunteers have no past This section focuses on tasks associated with experience in managing travel for planned the use of volunteer personnel in managing special events, nor do they have experience travel for planned special events. As em- in tasks associated with traffic and pedes- phasized in this and previous chapters, trian control and parking operations. stakeholders have the responsibility of as-

Table 8-4 Day-of-Event Personnel Resource Requirements RECOMMENDED ACTIVITY EXAMPLE TASKS PERSONNEL Event transportation • Operate shuttle bus. Experienced personnel services Active traffic and • Manage competing traffic and pedestrian flow. Experienced personnel pedestrian control • Monitor barricades and other traffic control devices. Passive traffic control Volunteers • Guide traffic or pedestrian flow (e.g., pull-through). • Guide vehicles through parking area access point. Experienced personnel Parking operations • Process vehicles at parking area gate. and volunteers • Park vehicles. • Monitor parking area occupancy levels. Experienced personnel Operations monitoring • Observe traffic and pedestrian operations. and volunteers • Collect performance evaluation data. • Prevent overcrowding and vehicular/pedestrian con- Crowd control Experienced personnel flicts. • Disseminate directions at mode transfer points. Event patron assistance Volunteers • Provide support at shuttle bus stations.

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interest among volunteers, stakeholders Volunteer Recruitment 8 should recruit additional volunteers for cer- Prior to initiating volunteer recruiting ef- tain low-interest assignments. For example, forts, event planning team and/or traffic most volunteers do not like parking assign- management team stakeholders must deter- ments; therefore, overkill in volunteers sta- mine the number of volunteers needed. This tioned at parking areas represents a good (2) represents a function of the number of po- tactic. This avoids a potential shortfall tential volunteer work assignments and relative to volunteers not showing up for OVERVIEW number of available volunteer supervisors. work on the day-of-event. An alternative approach to recruiting after traffic management plan development in- Various perks can improve and speed-up the volves: (1) soliciting the public, through volunteer recruiting process. Stakeholders event advertisements, for volunteers early in should consider providing volunteers with the event operations planning phase and (2) (1) free public transportation to and from the developing a volunteer contact list for later event venue site and (2) free food and bev- reference as conditions warrant. The list erages while on shift. Table 8-5 summarizes may also indicate the type of work task(s) other rewards for volunteer service. favored by each volunteer. Event organizers ADVANCE PLANNING or traffic management team supervisors Table 8-5 should obtain written confirmation from Example Rewards for Volunteer Service stakeholders that personnel resources REWARD pledged during the event operations plan- • Free admission to the special event ning phase will be available on the day-of- • Tickets to a future venue event • Permission to keep work uniform event. • Recognition gift or dinner • Drawings for substantial prizes A key consideration in supervising volunteers, or any personnel, involves maintaining Training Activities DAY-OF-EVENT ACTIVITIES good span of control. Incident Command System guidelines suggest keeping the span Training for volunteers and temporary staff of control between three and seven persons ensure these personnel: (1) understand the reporting to a supervisor with one supervisor (1) traffic management plan component govern- per five subordinates as a rule of thumb. ing their assignment, (2) disseminate accu- A supervisor should represent an agency or rate information to event patrons and super- contractor involved in planning and manag- visors, and (3) understand traffic manage- POST-EVENT ACTIVITIES ing a particular planned special event. The ment team operations protocol. Training supervisor should also have full knowledge involves the distribution of reference mate- of the duties and responsibilities of each rial, pre-event seminars, or both. Reference subordinate, and supervisors may train the material should detail specific duties and list particular volunteer group that they have volunteer report time, roll call location, shift been assigned to lead on the day-of-event. duration, and supervisor assignment. A day- of-event checklist would assist volunteers in Volunteer recruiting and associated training identifying and remembering items (e.g., EVENT PROFILE activities result in volunteers knowing their proper clothing, sunscreen, sunglasses, ref- respective work assignment prior to the day- erence guide, etc.) to bring for their shift. of-event. Because different special event Volunteers also would benefit from carrying work assignments peak varying levels of an event transportation and parking guide or

8-11 fact sheet for quick reference when assisting verbal instruction, including sample conver- event patrons. Such reference guides con- sations, on radio protocol that includes: (1) tain information on key traffic management how to make and receive a call, (2) common plan provisions, particularly those that con- radio terminology, (3) making priority or trast normal transportation system opera- emergency calls, and (4) conditions warrant- tions in the vicinity of the event venue. ing a priority call. Volunteers also should know how to use all radio functions. Table 8-6 lists general volunteer training activities. Since most volunteers do not pos- REFERENCES sess relevant experience in managing transportation and parking operations, training 1. Incident Command System, National activities should address all of the potential Training Curriculum – Organiza- decision-making scenarios that volunteers tional Overview, Module 3 I-200, may encounter in addition to day-of-event National Wildfire Coordinating communications. Group, October 1994.

Table 8-6 2. U.S. Olympic Festival 1989 After General Volunteer Training Activities Action Report: Transportation, ACTION • Discuss traffic management team chain of Planning, Coordination and Opera- command. tions, BRW, Inc., Oklahoma City, • Summarize job training and required duties. Ok., October 1989, 35 pp. • Schedule review. • Present examples of typical and contingency scenarios and how volunteers should react. • Provide background in customer service. • Describe field communications infrastructure. • Discuss proper radio communications protocol. • Explain types of parking area permits and event passes. • Discuss strategies for accommodating persons with disabilities (e.g., review disabled accessible routes and site facilities). • Review security guidelines. • Review guidelines for interacting with the media. • Indicate transportation information and alternatives for volunteer access to event venue site.

The traffic management team may supply some volunteer staff with a handheld, two- way radio for volunteer-to-volunteer and volunteer-to-supervisor communication. Compared to cell phone use, two-way radios allow all pertinent personnel, including those at the command post, to hear one message. Volunteers should receive written and

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CHAPTER NINE 9 DAY-OF-EVENT ACTIVITIES OVERVIEW ADVANCE PLANNING

Figure 9-1 Traffic Management Team Day-of-Event Interaction

DAY-OF-EVENT ACTIVITIES

PURPOSE cations framework for planned special events transportation management.

The purpose of this chapter is to discuss the actual implementation and operation of the INTRODUCTION traffic management plan during the day-of- event. This constitutes the fourth phase of During the advance planning process, count- POST-EVENT ACTIVITIES managing travel for planned special events. less meetings were attended, numerous The chapter covers several areas, including hours were spent developing and reworking sections on the traffic management team, the traffic management plan, and every con- communications, and traffic monitoring. tingency was considered. Now, the day is This information allows the transportation here and it is time to implement and operate management center (TMC) staff and traffic the plan. management team members to gain an un- EVENT PROFILE derstanding of how the Incident Command This chapter looks at what happens on the System (ICS) can be used for managing day(s) of the event. Not only do the re- travel during planned special events and quirements of the traffic management plan provide guidance on setting up a communi- have to be considered, but also it is essential

9-1 to monitor what can be a very fluid situation been involved during the event operations to see how the plan is working and then de- planning phase, but all those who may be termine what needs to be adjusted based on involved for the first time on the day of the real-time traffic conditions. event. This includes other event support stakeholders, other stakeholder representa- Always expect the unexpected and be ready tives, and volunteer personnel. Table 9-2 to handle that unplanned situation. Assess lists typical stakeholders involved in day-of- the adequacy of the established communica- event activities. tions structure and determine if it is possible to deploy what is needed in a timely manner. Table 9-2 Traffic Management Team Stakeholders While there is no way to be certain until it STAKEHOLDER happens, this chapter provides tools that will • Traffic operations agency help practitioners deal with and manage all • Transit agency that might happen on the day-of-event. • Law enforcement • Public safety • Event organizer Table 9-1 lists the key day-of-event activi- • Transportation consultants ties. • Traffic control contractors • Emergency management agency Table 9-1 Day-of-Event Activities A planned special event represents a source ACTION of non-recurring congestion where, similar • Implement a management process for the traf- to a traffic incident, stakeholders must adopt fic management team. a formal management process to ensure suc- • Designate a multi-agency command post. cessful traffic management plan deployment • Conduct a traffic management plan evaluation(s) during the day-of-event. and minimal impact to transportation system • Establish protocol for traffic management team users. The Incident Command System can officials to consider and implement changes to be used to handle traffic management during the traffic management plan to accommodate planned special events. The ICS organizes real-time traffic conditions. and coordinates multi-agency response to an • Establish interagency communication protocol. • Review communication equipment compatibil- incident by establishing responsibilities and ity. lines of authority. An Incident Commander • Use the media to communicate with event pa- has overall responsibility for managing the trons and other transportation users. planned special event. Depending upon the • Perform traffic monitoring on the day-of-event. size of the event a number of individuals will report to the Incident Commander. A TRAFFIC key to the ICS is that the reporting relationships be kept to a manageable size. If the MANAGEMENT TEAM number of people reporting to a single individual grows too large, another layer of Stakeholder Roles and command should be added.

Coordination Unified Command represents an ICS management process that functions to coordinate The traffic management team includes not inter-jurisdictional and multi-disciplinary only many of those stakeholders that have

9-2 stakeholders comprising the traffic man- special event, a transfer of command may agement team without sacrificing agency occur. The decision to effect a transfer of 9 authority, responsibility, or accountability. command depends on the qualifications and Figure 9-2 displays an example of a Unified experience of all on-site branch agency su- Command organization for managing travel pervisors relative to that of the acting Inci- for planned special events. The Unified dent Commander. For example, if a severe Command hierarchy includes the Incident weather event took place during a planned Commander serving to coordinate and man- special event, an emergency management OVERVIEW age the activities performed by stakeholders agency official may assume the role of Inci- classified under the following organizational dent Commander. elements: branches, groups, and units. A branch agency manages a specific opera- An advantage of using the ICS during a tional function. For example, a law en- planned special event is that it clarifies how forcement agency is responsible for traffic decisions are made if the traffic management control and pedestrian accommodation. plan requires adjustment. Unexpected Group agencies manage and execute specific events may necessitate adjusting the plan to functional activities. Units execute specific meet changing circumstances. In this in-

functional activities. For instance, a private stance, there may not be the luxury of meet- ADVANCE PLANNING towing company is responsible for removing ing with all stakeholders to develop a con- illegally parked or disabled vehicles. sensus on how to modify the plan. The In- cident Commander should have the author- Per Unified Command protocol, if an unex- ity to make those adjustments that are pected event happens during the planned needed.

Incident Commander

DAY-OF-EVENT ACTIVITIES Information Officer

Emergency Public Local State Department of Transit Event Branches Management Safety Police Police Transportation Agency Organizer Agency

POST-EVENT ACTIVITIES Transportation Transportation Groups Management Consultant Center (traffic/parking)

Private Freeway Traffic EVENT PROFILE Volunteer Units Towing Service Control Crew Company Patrol Vendor Figure 9-2 Unified Command Organization for Planned Special Events

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Team Management in Wisconsin. This will probably be at or near the venue where the planned special Typically for a planned special event, a rep- event takes place. Again, depending upon resentative of a law enforcement agency will the size of the event, secondary command take on the role of Incident Commander. posts may exist. These secondary command Representatives of various agencies will, in posts may take on specific areas of respon- turn, report to the Incident Commander. sibility, such as law enforcement or traffic Among those working under the Incident control. Regardless of where the command Commander will be one or more transporta- post is located, or if it is located in multiple tion representatives. A lead person should locations, the same principles of incident be identified for each agency responsible for command will apply. An Incident Com- part of the traffic management plan. Among mander will still have overall responsibility those who may be a part of the transporta- for managing the event. What may differ, if tion team are representatives from the state there are secondary command posts, is how department of transportation, local traffic communications are handled to and from the agencies, toll agencies and transit agencies. Incident Commander. Depending upon what is worked out in the event operations planning phase, all of these In some instances, a permanent TMC may individuals may be represented by a single serve as the primary command post. The Incident Commander (e.g., transportation advantage of using the TMC is that many of commander) or by individuals representing the communications resources and other each of their respective agencies. needed tools are already in place. If the TMC is used, the ICS should still be em- Command Post ployed if multiple agencies comprise the traffic management team. This operation The ICS will most likely be used in a multi- would likely differ from typical activities in agency command post. Figure 9-3 shows a the TMC, given the presence of multiple command post established at a freeway rest outside agency representatives. In the event

area for a major rural planned special event

Figure 9-3 Planned Special Event Command Post (Photo courtesy of the Wisconsin DOT.)

9-4 operations planning phase, the ICS would be personnel may require frequent breaks in used to identify who is the Incident Com- difficult weather conditions, and traffic 9 mander at the TMC and how activities are management team officials may have to sub- coordinated within the TMC during the stitute back-up staff if planned relief is not event. available.

Advantages of a single command post in- The operation of planned special events on clude: (1) key agencies are represented in a the day-of-event includes three phases: in- OVERVIEW single location and (2) communications gress, the event itself, and egress. Resources among agencies are simplified. need to be available for all three phases with emphasis on ingress and egress. The traffic An advantage of secondary command posts management team will likely need fewer is that event management can be more easily personnel for traffic management during the switched if a problem develops at the pri- event, and part of the planning should in- mary command post. clude what level of staffing is needed during this period. Depending on the length of the Resource Planning event, a second shift may report to handle

egress. If a first (ingress) and second ADVANCE PLANNING The plan developed for the resources needed (egress) shift exists, traffic management for the event represent the collected best team officials can stagger work times (e.g., opinion on what is needed. Resource plan- first shift individual reporting later and leav- ning involves the following two parts: (1) ing later or second shift individual reporting determining the scope and amount of re- early and leaving early) to maintain suffi- sources that will be used on the day-of-event cient personnel on-site during the event. and (2) identifying resources in advance in Another consideration concerns how quickly case the traffic management team needs staff and other resources can be deployed incase the event ends sooner than expected,

more resources than planned to implement DAY-OF-EVENT ACTIVITIES the traffic management plan. thus causing early departures.

The most important resource that stake- Managing Traffic holders must plan for involve personnel resources. Planning considerations include: While the traffic management plan and supporting implementation plan notes how • What type and quantity of skilled per- stakeholders expect to manage traffic, the

sonnel are needed? actual management of traffic on the day-of- POST-EVENT ACTIVITIES • Where should personnel be deployed? event may differ from what the plan calls • What responsibilities will individual per- for. Traffic incidents, changing weather sonnel have? conditions, and other unexpected events can all cause the traffic management plan to be Most day-of-event field personnel will work modestly modified or completely changed. in areas different from their normal, day-to- After safety, successfully managing traffic represents the reason why stakeholders de- day work location. Relief for personnel may EVENT PROFILE be more difficult to obtain because of veloped the traffic management plan in the agency constraints, and relief assignment first place and that goal must remain para- should be part of personnel planning. Field mount.

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For this reason, it is important that involved tion is almost as worthless as too little in- stakeholders understand that the traffic man- formation. agement plan provides guidance but is not an ironclad law that must be followed re- Other staff should be on hand to assist with gardless of what takes place on the day-of- other activities taking place in the command event. center. This includes handling VIPs, disseminating information to the media, and As part of the traffic management plan, vari- addressing routine items such as equipment ous scenarios can be addressed from best problems. case to worst case, together with likely variations. Having different scenarios and Evaluation Activities response plans specified in the traffic management plan will help managers more Although many hours have been spent creat- quickly respond to changes. Again, not ing the traffic management plan, the plan every variation can be noted, but experi- should remain flexible with the ability to enced staff can modify what the traffic man- modify and enhance it with necessary agement plan calls for. changes based on real-time traffic conditions. Updates can continue through the When done well, managing traffic is done course of the planned special event, account- on a proactive basis, anticipating what will ing for new situations and unexpected happen next and reacting before problems events. Evaluation of the plan is an ongoing cascade. Like an orchestra conductor, the activity during the event, and participants traffic managers are calling on different should contribute their insights as they wit- elements to play as the event proceeds. A ness the event unfolding. The traffic man- traffic queue in one area will require ad- agement team must be open to modifications justments to signal timing on primary and of what had been agreed to during the event alternate routes. Traffic incidents not only operations planning and implementation ac- require response to the site of the incident tivities phases. but the activation of appropriate messages on roadside traveler information devices. Table 9-3 indicates key traffic management plan evaluation activities on the day-of- As a general rule, drivers tend to be more event. understanding about a congestion delay if they are informed of what is taking place There are several different ways to accom- and are assured steps are being taken to plish this evaluation and revision process: mitigate the problem. • Some modifications will be minor in na- To properly manage traffic, the managers ture and will not require significant dis- need timely and accurate information. Staff cussion. For example, moving a traffic in the field must understand the importance post may be a simple change that im- of the information they provide, and staff at proves the flow of traffic. The Incident the command center must help the managers Commander may have authority to make understand the information coming in, such such a change. as pointing out what is most important. Too much information without some interpreta-

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Table 9-3 meetings to discuss: (1) what has taken Traffic Management Plan place, (2) what lies ahead, and (3) what 9 Evaluation Activities changes are recommended. ACTION • Establish briefing schedule and location (e.g., If scheduled meetings are planned, the next command post). question is when to hold these meetings: • Identify ranking representative of each stakeholder agency participating in briefings. • If the event stretches over several days • Conduct day-of-event briefing. OVERVIEW o Situation status with a clear end time each day, it is logi- o Objectives and priorities cal to conduct a meeting at the end of o Current organization each day’s activities. At this point, the o Personnel and equipment resource assignments participants will not be distracted by o Communications managing the event, and they will have o Concerns and related issues the benefit of their experience that day to o Recommended changes decide what should be revised. • Achieve consensus on recommended changes. • If the event is longer, perhaps even running around-the-clock, regular meetings

• A more significant change, such as the can be scheduled during expected lulls in ADVANCE PLANNING route of buses to the venue site, involves activity. These meetings may be spe- a greater number of agencies and indi- cifically scheduled in anticipation of key viduals. These changes need to be dis- activities, such as the egress of event pa- cussed before being implemented to trons. make certain everyone affected is aware • For events where a shift change is of the change so that any concerns with needed in the command center, a meet- the proposed change are addressed and ing of the crew, or crew supervisor, go- overcome. ing off-duty may be helpful so they can • If the suggested change is urgent, a

recommend changes to those relieving DAY-OF-EVENT ACTIVITIES quick discussion among the agencies in- them. volved may suffice. • If it is not urgent, the modification can Many of the same procedures used during be discussed during a regularly sched- the creation of the plan can be used to make uled meeting of the stakeholder repre- revisions during the event. Those involved sentatives. discuss the changes, call for input from those directly affected, and agree on what How and if these meetings are scheduled

will be done. It is important that any POST-EVENT ACTIVITIES can vary depending upon the dynamics of changes be communicated to all involved. the planned special event: Major problems can develop if one group is operating under old assumptions. In many • If the event is small in scale and only a cases, having a computer and printer avail- few agencies are involved, there may be able will make updates easier to share. If no need for scheduled meetings. Revi- the plan is in a notebook or manual form, the sions can be easily discussed among par- revised section can just take the place of the EVENT PROFILE ticipants at the command post. old section. Participants should note on the • On the other hand, large events involv- revised plan that it represents an update and ing many stakeholders would require when that revision was made. This makes it

9-7 easier to track changes and make certain Table 9-5 everyone is operating with the same infor- Advantages of Operating on a mation. Common Frequency ADVANTAGE • Most of the infrastructure is provided by a COMMUNICATION private company. • Coverage can be achieved over a wider area Structure and Protocol than some individual agencies enjoy. • Agencies’ normal channels are freed for regular operations. In most areas of the country, interoperable • Other frequencies are not jammed with trans- communications, in which all agencies are missions related to the planned special event. able to communicate on a common radio frequency, is not yet a reality. That being the case, it is necessary for a communication structure and protocol to be established. As Another important part of the protocol in- shown in Table 9-4, the structure should involves using common language on a multi- clude the noted primary considerations. agency frequency. Many agencies use verbal shorthand in the form of codes when Table 9-4 transmitting. These codes work well when Communications Structure used by those who know them, but when Primary Considerations other stakeholders are involved, the codes CONSIDERATION can be a source of confusion and miscom- • What radio channels or frequencies will be munication. An increasing number of agen- used. cies are now using clear language protocols • Who will use these channels. on their radio frequencies, and these stan- • Will a common lexicon be used for communications. dards should be followed if multiple agencies have to communicate with one another. Whatever frequency is used, it is important Clear language simply says that commonly that all those who must use it be able to ac- understood words and phrases are used in- cess the channel and that coverage include stead of codes. For instance, instead of call- all areas where operations will take place. ing an accident a Signal 11, the crash should be called an accident on the radio. In some cases, operating on a common frequency may require the distribution of ra- Interagency Communication dios to some of the stakeholders. In some instances, agencies have used cellular Since multiple stakeholders are involved, it phones with a push-to-talk feature to provide is critical that they be able to communicate a common channel during an event. Some with one another on the day-of-event: agencies may already have these handsets and use them for day-to-day operations. • The most basic, and least desirable, form One or more special talk channels can be of interagency communication involves established for use during the planned spe- messages being relayed indirectly from cial event to allow only traffic management one agency to another. An example team members to be on the air. Table 9-5 could include a police officer in the field lists the advantages of using this type of sys- wishing to coordinate a road closure tem. with the DOT. The officer radios the in-

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formation to a dispatcher who, in turn, UHF, and 800 MHz trunked systems are calls the dispatcher at the DOT. The among those in common use, and agencies 9 DOT dispatcher then radios the crew in cannot normally communicate from one sys- the field. Coordination might take sev- tem to another. Before the right equipment eral messages being sent back and forth can be identified, it is important for the through this chain. This form of com- stakeholders to understand what they want munication delays the sharing of infor- the communications system to do. Is it sim- mation and is subject to miscommunica- ply a means to share information, or does OVERVIEW tion. real-time coordination have to take place? • As noted in the previous section, operat- Who has to operate on the channel? Where ing on a common channel with clear will they be located? Once these questions language greatly improves interagency are answered, it becomes possible to identify communication. Depending upon the the appropriate equipment to use for the size of the planned special event, more event. than one channel may be used. For example, one channel could be deemed as Table 9-6 lists several levels of communica- the primary channel, which is used by all tion that must also be studied. First, there is

participants for the sharing of critical in- communication within the venue. In this ADVANCE PLANNING formation. Another channel may be relatively small area, a radio system that dedicated to transportation concerns. provides coverage just in the area of the venue may be sufficient. Hand-held units To minimize confusion and extraneous in- may be given to personnel who have to co- formation being shared among agencies, the ordinate at the site. Communications may question of who will use which frequencies take place between individuals or between should be decided during the planning proc- field staff and the command post. ess. Stakeholders should understand: (1) how they can reach other traffic manage- Table 9-6 DAY-OF-EVENT ACTIVITIES ment team members during the event, (2) Levels of Communication which channels they will be found on, and COMMUNICATION LEVEL (3) what information should be shared. • Within the venue • Between individual stakeholders Since many of the stakeholders comprising • Between field staff and command post • Between command post and TMCs the traffic management team may not be ac- customed to interagency coordination, they Another level of communication would be should understand the importance of sharing between the command post and the TMCs. POST-EVENT ACTIVITIES information with their interagency partners. Here it may be more difficult to identify the Information not shared with others who are best equipment to use. The TMCs may be affected could lead to difficulties managing geographically distant from each other and traffic and cause mistrust among participat- the command post. Because the centers are ing stakeholders. inside buildings, and often on lower floors, radios without an external antenna may not

Equipment be able to reach all the participating stake- EVENT PROFILE holders. In order to depend upon these The participating agencies may normally communication channels, it is important that operate on a wide variety of systems. VHF, they be tested before the event. If no radio

9-9 communication is practical, a hardwire con- Communication with the media should start nection may be needed. In some TMCs and before the event. If there is pre-event advice command centers, phone jacks are installed that stakeholders wish to disseminate, then to allow dedicated phones to be deployed for the media can be a conduit to the public. events. During the event, the media can be used to A trunked radio system provides what is provide real-time updates about transporta- needed for interagency communication dur- tion system delays and blockages. Again, ing a planned special event. Other agencies, advice on how to avoid the delays can be which also operate on a trunked system, may provided. be able to modify their units to operate on a common frequency. A trunked system also Most agencies already have some forms of allows a dedicated channel to be set aside communication in place with the media. for the event. Those agencies without the However, these may not be the best way to proper equipment can be loaned radios, communicate during the planned special which allow them to operate on the common event. For example, many agencies work channel. with traffic reporting services during periods of recurring congestion. The planned spe- Interacting with the Media cial event may be taking place on a weekend or holiday when the traffic reporting service The media is an important part of the is not in service. Alternate means to get planned special event. If the event involves real-time information to broadcasters may a lot of people, it also is a news story and the be needed. media will want to cover it like any other story. The media can also be an important The media may also find that the usual part of traffic management plan implementa- means they use to get traffic information are tion. Table 9-7 indicates how the media can unavailable during the planned special be used to communicate with event patrons event. Due to security concerns, airspace and other transportation system users. near the site may be off limits. This makes the media more dependent upon the agencies Table 9-7 to provide them with updates. Use of Media BEFORE EVENT Unless a proactive decision is made other- • Identify preferred routes. wise, most agencies would not want the me- • Identify approved parking areas. dia to call the command post for updates. • Identify transit alternatives. Calls to and from the TMC may be the best • Identify locations where event patrons can way to get information to the media. Wher- obtain travel information on the day-of-event. DURING EVENT ever the media are directed to call, it is im- • Warn people ahead of time about the routes portant that the person handling those calls they should take. has the most up-to-date, accurate informa- • Advise of available options. tion available. For the media to trust this • Alert drivers about problems, delays, and source, they must believe that this is the best blockages. place to get information. Since most media • Suggest actions travelers should take. want to verify information on their own, agencies should be prepared for the media to

9-10 seek out other sources. The media may also transportation system users. Figure 9-4 acquire information via cell phones from shows a Seattle Department of Transporta- 9 event patrons driving to the planned special tion web page detailing specific planned event, and the media will want to verify the special event traffic impacts and multi- information the public provides with the modal travel options. transportation agencies. If trust is lost between the media and the agencies, the agencies may lose control of the flow of informa- OVERVIEW tion.

Traveler Information Dissemination

Traveler information will have two important audiences during the event: (1) those who plan to attend and (2) those who want to avoid the delays the event may cause. In both cases, traveler information tools can be ADVANCE PLANNING used to effectively disseminate information.

Table 9-8 presents various pre-trip and en- route traveler information dissemination methods. Figure 9-4 Internet Traveler Information (Graphic Table 9-8 courtesy of the Seattle DOT.) Traveler Information

Dissemination Methods DAY-OF-EVENT ACTIVITIES METHOD Changeable message signs function best to • Newspapers and printed material raise awareness of a potential problem while • Radio and television • Internet (e.g., websites and e-mail) road users are en-route, and highway advi- • Changeable message signs sory radio is somewhere in the middle, being • Highway advisory radio able to provide more detail than signs, but • Telephone information systems (e.g., 511) less than printed material. The planned special event is likely to require the deployment

The dissemination of traveler information of portable changeable message signs be- POST-EVENT ACTIVITIES begins before the event with warnings of cause a greater concentration of information what may occur, preferred routes to the site is needed and because the event may be tak- and around it, and where drivers can get up- ing place in a location where permanent de- dates on the day-of-event. Different tools vices are not in place. Portable highway ad- lend themselves to particular uses. Newspa- visory radio stations may also be considered pers and other printed material, for example, to reach motorists. lend themselves to graphic information such EVENT PROFILE as maps. The Internet represents a powerful In planning for the event, stakeholders must medium for disseminating pre-trip travel consider: (1) which devices will be used, (2) information to event patrons and other approved messages that can be displayed,

9-11

and (3) how to disseminate the information ning phase depends on the accurate collec- to event patrons and other transportation tion and communication of real-time traffic system users. data between traffic management team members. This section describes how traffic The growth of 511 services represents an- monitoring activities support real-time traf- other important avenue to disseminate in- fic management and control decisions dur- formation. As 511 becomes more well ing the day-of-event. known and more widespread, travelers are more likely to think about dialing 511 before Purpose they go or while they are en-route to get the latest information. Even where 511 is not Agencies responsible for managing planned yet in use, other recorded telephone services special events require numerous types of can be used. information on the current conditions of the system to support delivery of effective ser- No one system will reach all of the people vice for the planned special event. This re- that stakeholders wish to alert. In fact, even quired information varies widely depending if all systems are used, operators will not on: (1) the service being provided, (2) how reach every transportation system user. But, often it needs to be collected, and (3) how by using a variety of tools, the traffic man- accurate it needs to be (e.g., for traffic con- agement team will be able to reach a critical trol and traveler information purposes, sim- mass of people so that delays will be mini- ply knowing whether pavement is wet/icy or mized and the customer requirements of all not may suffice; for purposes of managing users satisfied. snow and ice control activities, more detailed information is required). On the day-of-event, it must be clear who will update traveler information devices and Information is crucial for successful opera- how timely and accurate information will tions of the transportation network. As get to the officials responsible for providing noted in an FHWA TEA-21 reauthorization the updates. These individuals must be part proposal: “Operating the highway system to of the communication chain. Again, assign- achieve security, safety, and reliability ob- ing a dedicated person to handle the updates jectives requires an ability to know what is would be ideal. Conflicting priorities could happening on the system. Real-time infor- result in out-of-date information being dis- mation on highway system performance and seminated if one person is asked to handle weather conditions / events is vital to assist too many tasks. highway professionals in managing the available capacity, responding to disruptions TRAFFIC MONITORING to capacity (including emergencies, evacuations, and security threats), and to system users in planning the timing, mode, and Traffic monitoring represents an important route for their trips.” In essence, the many day-of-event activity, serving to provide benefits of the various planned special event traffic and incident management support in management strategies cannot be fully real- addition to performance evaluation data. ized unless practitioners are aware of the Timely deployment of contingency plans real time conditions on the highway net- developed during the event operations plan- work.

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Traffic Management Support particular point or location must be monitored rather than an area or region, and this 9 In a traffic management system, the traffic strategy of manual detection is the most monitoring component, or surveillance cost-effective and efficient. component, is the process in which data is collected in the field. This data is used to Various technologies that exist for collecting supply information about conditions in the this information are described in Table 9-10.

field to other system components including OVERVIEW personnel located in the field on the day-of- Table 9-10 event. Surveillance provides the informa- Data Collection Methods tion needed to perform the functions identi- METHOD fied in Table 9-9. • In-roadway and over-roadway sensors for measuring traffic flow parameters • Vehicle probes for collecting data on travel Table 9-9 times and origin-destination information Use of Surveillance Information • Closed circuit television (CCTV) systems for FUNCTION viewing real time video images of the road- • Measure traffic and environmental conditions way in real-time. • Road weather information systems (RWIS) ADVANCE PLANNING • Make control decisions. for gathering information on pavement and • Disseminate traveler information. weather conditions • Monitor and evaluate system and plan per- • Traffic signal and system detectors to measure formance. congestion on streets • Parking management systems to monitor available capacity in parking garages or lots • Manual methods Surveillance is not limited to collecting and

monitoring traffic condition information

alone, nor in some instances are they auto- Detection and surveillance, whether highly

mated in nature. Surveillance is applied to DAY-OF-EVENT ACTIVITIES technical and automated or simple and man- weather and pavement conditions to provide ual, is the cornerstone of traffic monitoring. operators and maintenance staff more in- Traffic management strategies and Intelli- formation to support their traffic and transit gent Transportation Systems (ITS) tech- management responsibilities. These systems nologies can assist in reducing congestion, also are being used to manage snow re- improving safety, and enhancing mobility. moval, icy roadway treatment, to detect lim- However, without the capability to know the ited sight distance problems caused by fog current operating conditions, coupled with

or smoke, and to detect high water levels POST-EVENT ACTIVITIES the cooperation and coordination among along roadways. While much traffic surveil- personnel in the responsible agencies, the lance (detection) is accomplished via auto- potential benefits of these strategies and mated means, manual detection, most nota- technology systems may not be realized. To bly via in-field personnel on cell phones or that end, it is not a simple matter to quantify two-way radios and cell-phone calls from benefits from detection and surveillance motorists, is a viable and reliable strategy alone, but instead to understand the benefits

for planned special event management. In EVENT PROFILE realized from traffic management strategies many instances of planned special event and ITS technologies that rely on detection management, the surveillance must be mi- and surveillance. Some benefits of particu- croscopic rather than macroscopic, i.e., a lar importance are noted in Table 9-11.

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Table 9-11 Performance Evaluation Data Benefits of Detection and Surveillance BENEFIT Performance measures provide the basis for • Reduction in delay and congestion related to identifying the location and severity of prob- early detection and verification of incidents. • Reduction in secondary accidents as a result lems (such as congestion and delay), and for of early incident detection. evaluating the effectiveness of the imple- • Reduction in capital (e.g., salt) and recurring mented planned special event management (e.g., plow crews) costs associated with snow strategies. Table 9-12 indicates uses of this and ice removal with the use of Remote monitoring information. In essence, per- Weather Information Sensor technology. formance measures are used to measure how • Improved traveler information. the transportation system, and therefore the

traffic management plan, performs with re-

spect to the adopted goals and objectives,

both for ongoing management and opera- The information collected through the moni- tions of the special event and the evaluation toring effort is valuable for post-event ac- of future options. tivities. After the event, the information gathered and/or observed can be used as part of the program or event evaluation. The Table 9-12 data collected provides: (1) input into esti- Traffic Monitoring Information Uses mating the benefits of the traffic manage- USE ment plan and operation and (2) input into • Track changes in system performance during planning for future planned special events. the event. An example of some statistics or measures • Identify locations or corridors with poor per- that can be obtained from traffic monitoring formance. on the day-of-event, and can commonly be • Identify potential causes and associated reme- used to evaluate the effectiveness of the dies (i.e., contingency plans). • Identify specific areas that require improve- event traffic management plan and operation ment/enhancements for future events. includes: • Provide information to decision-makers and the public. • Reduction in delay • Provide input to post-event evaluation. • Change in mode • Increase in transit ridership • Reduction of travel time Most measures for planned special event • Increase in travel speed management are congestion-based and are measures that can be quickly and efficiently • Reduction in loaded cycle lengths at sig- assessed. Table 9-13 indicates key perform- nalized intersections ance evaluation measures. Certainly other

non-transportation measures are important to In summary, most of the benefits realized successful planned special event manage- during planned special events results in ment; however, these are neither accurate some way from the real-time information nor timely enough to allow for day-of-event provided by traffic monitoring. management.

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Table 9-13 the decision makers must have confidence in Performance Evaluation Measures the information, or it will not be used. 9 MEASURE • Parking occupancy and turnover rate The most common data problems are acquir- • Arrival and departure service rate at parking ing the required information in the exact area access points form desired, and in ascertaining the quality • Time to clear parking lots • Vehicle delay at intersections of the data. The ‘‘garbage in, garbage out’’ concept applies to the data used in a per-

• Queue length OVERVIEW • Travel time and delay on freeways and formance measurement system. If the data streets gathered are highly uncertain, then the con- • Traffic volume to capacity ratio clusions drawn by converting those data into • Traffic speed performance measures also will be highly • Number and location of crashes and other uncertain and will have reduced value to in- incidents • Traffic incident clearance time terested stakeholders. For this reason, great care needs to be taken in data collection. In reality, however, some things either cannot Table 9-14 lists some of the reasons that be measured accurately or cannot be meas- agencies have instituted performance measured accurately at an acceptable cost and in ADVANCE PLANNING ures and the associated monitoring and an acceptable timeframe. Transportation evaluation processes. agencies need to consider the uncertainty introduced by inaccurate data when taking Table 9-14 action based on their system of performance Reasons for Traffic Monitoring and measures, especially in planned special Evaluation event management, where the modifications REASON have immediate, and possibly disastrous, • Provide better information about the transpor- results. tation system to the public and decision makers (in part due, no doubt, to a greater expecta- DAY-OF-EVENT ACTIVITIES tion for accountability of all government agencies). • Improve management access to relevant performance data. • Improve agency efficiency and effectiveness, particularly where demands on the transportation agency have increased while available resources have become more limited.

POST-EVENT ACTIVITIES In managing travel for planned special events, a direct relationship exists between the performance measures selected and the data needed in the performance measurement process. The data and information used in decision-making must be of high quality because the remedies have to be per- EVENT PROFILE formed immediately. They must originate from reliable, consistent sources and meet the needs of the decision makers. Moreover,

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CHAPTER TEN 10 POST-EVENT ACTIVITIES OVERVIEW ADVANCE PLANNING

Figure 10-1 Field Observation of Traffic Management Plan Implementation

DAY-OF-EVENT ACTIVITIES PURPOSE participant evaluation, post-event debriefing, and post-event report.

This chapter covers the fifth and final phase, post-event activities, of managing travel for INTRODUCTION planned special events. It identifies pertinent activities that should be included in the The last event patron has left the venue site,

evaluation of local and regional traffic op- the command post is closed, and traffic has POST-EVENT ACTIVITIES erations for planned special events. This once again returned to normal. The traffic chapter presents an evaluation framework management team is finally finished with that describes advance planning considera- this planned special event…well, not really. tions and the importance of evaluation in Now comes the final phase of managing managing travel for planned special events, travel for planned special events, where par- particularly the integration of data and find- ticipating stakeholders and volunteers can

ings into future planning activities for all look back on what took place and evaluate EVENT PROFILE planned special events in a region. This what happened. While post-event evalua- chapter also examines the three primary tion may mark the final stakeholder activity products of the post-event activities phase: for this special event, it should be consid-

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ered as the first step in planning for the next counter on an exit lane serving a parking planned special event. The program plan- area at a fair. Figure 10-3 shows a traffic ning phase utilizes lessons learned and management team member maintaining a evaluation results from one planned special log of freeway service patrol motorist assists event to develop products, such as policies during the day-of-event. Data collection and regulations and permanent infrastructure activities also include surveying of event deployment, for improving travel manage- patrons and the public to get their perspec- ment for all planned special events occurring tive on how well elements of the traffic in a region. management plan worked.

No matter how thorough the traffic management plan, chances are excellent not eve- rything happened as expected. Maybe it was an oversight or an unexpected glitch. Per- haps some elements worked better than expected, and it turns out that all the resources allocated were not needed. Whatever the case, the evaluation phase is where the plan should be compared with what actually happened and appropriate decisions be made as to what to do differently the next time. Even if the same planned special event was handled dozens of times previously, there are Figure 10-2 adjustments that can be made based on the Electronic Vehicle Counter Installation(1) most recent experience.

EVALUATION FRAMEWORK

Overview

The first steps in the evaluation of the traffic management plan implemented for the planned special event take place during the event operations planning phase. Knowing ahead of time that a post-event evaluation will occur allows participants to make provisions for the review. In particular, this Figure 10-3 means collecting data during the event, Maintenance of Freeway Service Patrol which can be used as part of the review pro- Assist Log cess. At a minimum, this would include data indicating how the system performed and a log of what took place during the event. For example, Figure 10-2 shows Table 10-1 summarizes key post-event ac- technicians installing an electronic vehicle tivities.

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Table 10-1 Table 10-2 Key Post-Event Activities Internal Measures of Effectiveness ACTION MEASURE 10 • Review measures of effectiveness identified in • Number of messages displayed on changeable event operations planning phase. message signs • Compile agency measures of effectiveness. • Number of messages broadcast on highway • Compile performance evaluation data. advisory radio • Conduct stakeholder participant debriefing. • Number of traffic incidents handled • Conduct event patron survey. • Number of messages transmitted between • Conduct public survey. stakeholders OVERVIEW • Conduct a post-event debriefing meeting. • Number of traffic signal timing changes • Prepare a post-event report. • Number of times a ramp(s) was closed and time/duration of closure(s) Measures of Effectiveness

Measures of effectiveness (MOEs) represent • External measures are readily identifi- quantitative measures that give some insight able by the public during a planned spe- into how effectively a unit is performing. cial event. The volume of traffic on MOEs are measures of activity that, while primary and alternate routes represent two examples.

not reflecting performance directly, show ADVANCE PLANNING workload and trends. To evaluate how well • External measures are clearly experi- the traffic management plan worked, some enced by most spectators attending a form of measurement is necessary. In addi- special event and are factors most likely tion to telling stakeholders how effective to be noted by the public. their plan was, the measurements provide • External measures are likely to be transportation professionals the means to viewed as more important by those out- demonstrate to others, including the media side the traffic management team, such and elected officials, how well the plan may as transportation system users and com- have worked. munity interest stakeholders. DAY-OF-EVENT ACTIVITIES • Table 10-3 presents a list of external There are two areas of effectiveness that measures. should be measured, internal and external:

• Internal measures are actions taken by Table 10-3 the traffic management team that may External Measures of Effectiveness not be apparent to the public. For exam- MEASURE ple, while the public would note a traffic • Volume of traffic on major routes • Volume of traffic on alternate routes POST-EVENT ACTIVITIES incident being cleared, they would not • Volume of traffic entering and exiting the site be aware of the total number of traffic and parking areas incidents handled. • Hours of delay • Examples of internal data, which can be • Number of event patrons and participants util- measured, are indicated in Table 10-2. izing transit to and from the event • Internal measures are beneficial to • Travel times • Modal split

stakeholders in helping them evaluate • Average vehicle occupancy EVENT PROFILE traffic management team activity.

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• Stakeholders may measure hours of de- could be applied to this new event. If this is lay by predefining what is considered a recurring event, previous evaluations congestion and noting how long the con- would have more specific insights that can gestion lasts. be applied. • While external measures provide hard statistics to demonstrate the plan’s effec- Since evaluation will be taking place tiveness, softer measures may also be throughout the planning process and during beneficial. A survey of attendees may the event itself, it is important that the show how effective they perceived the evaluation steps, goals and objectives be es- traffic management plan. Their level of tablished during the program planning phase satisfaction with ease of access, quality or early in the event operations planning of traveler information, and other activi- phase for a specific planned special event. ties can provide insights into how the users of the system view the effective- Finally, as the event concludes, it is also im- ness of the plan that was implemented. portant that a mechanism be created to take what is learned in the evaluation of a spe- Before deciding what to measure, it is im- cific planned special event and put it in a portant to decide how to evaluate the traffic form that allows the evaluation results to be management plan and the performance of applied to future events. the traffic management team. This decision may be driven, in part, by difficulties ex- Application to Future Events perienced during previous planned special events, political considerations, or a need to Whether the event is a one-time only hap- demonstrate the value of particular tools pening or an annual occurrence, what has used during the event. been learned through the evaluation can contribute toward proactively improving travel Integration with Program Planning management for all planned special events Process occurring in a region.

The evaluation must be more than an after- To be beneficial for future planned special thought to gain the maximum benefit from events, the results of the evaluation should it. As part of the program planning process, be documented and made accessible. In the the evaluation should be considered from the case of a one-time only event, the evaluation initiation of the process through its conclu- may show both general and specific insights, sion. If the evaluation is being done for the which can be used for other future planned first time, those who are putting the plan to- special events. These could include areas gether have to look at the goals and then de- such as traveler information, interagency sign the evaluation to measure whether the communications, and the planning process goals have been met. itself.

If previous evaluations have been done, For recurring events, a file providing the even if they were done for another event, the cumulative benefit of lessons learned will results of those evaluations should be exam- help sharpen the traffic management plan ined before the traffic management plan is developed for each new occurrence. It is designed. In the case of an unrelated event, also important to remember that with recur- there may be some lessons learned that

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ring events, slight changes in circumstances oped the plan and were involved in its exe- will require modifications to the plan. cution. However, other stakeholders also have a strong interest, even if they had no 10 PARTICIPANT part in creating the plan. For example, businesses that may have been affected by the EVALUATION special event, due to closed roadways limiting access, are stakeholders with a strong Stakeholder Debriefing financial stake in the event.

OVERVIEW At the conclusion of the planned special The debriefing process should involve those event, a debriefing session should be held. directly involved in traffic and parking man- The stakeholder debriefing is an opportunity agement during the event. This includes to bring together those involved and im- traffic management team members stationed pacted by the planned special event. In it, at the command post, at the transportation these individuals, and the groups they repre- management centers (TMC), and in the sent, can compare what the plan called for field. While they may not be present at the and what actually took place. They can also debriefing session, the viewpoints of other examine areas the plan may not have ad- stakeholders should also be considered dur- dressed but turned out to be issues in hind- ing the debriefing process. Figure 10-4 ADVANCE PLANNING sight. All of those who were involved in highlights Indiana State Police debriefing creating the traffic management plan, as protocol for officers in-charge (OIC) of traf- well as key people who played a role during fic control during the Brickyard 400 auto the event itself, should be present for this race. session. This includes stakeholders forming the event planning team and traffic man- The debriefing should not be viewed as a agement team. Table 10-4 lists elements of “finger-pointing” or “blame” session. If it is a stakeholder debriefing. perceived that way, stakeholders will tend not to be frank about any of their own short-

DAY-OF-EVENT ACTIVITIES Table 10-4 comings and will more likely focus on de- Elements of a Stakeholder Debriefing fending themselves. To ensure involvement ELEMENT of all relevant stakeholders and to encourage • Introductions of individuals and the roles they their candid comments, it should be made played (if not obvious) clear that the debriefing session is not a time • Explanation that the debriefing is not designed to blame anyone for something which may to find blame for anything which may have gone wrong, but to identify areas of improve- have gone wrong during the event.

ment for future planned special events POST-EVENT ACTIVITIES • Distribution of a chronology of the special A log or chronology of what took place dur- event, preferably one which melds individual ing the event should be used to guide the agencies’ own chronologies discussion. Ideally, this log will incorporate • Review of the timeline of events the activities of all stakeholders so the • Discussion of other areas of concern events can be seen in the light of other ac- • Next steps to incorporate lessons learned tions that took place on the day-of-event. This log may be kept by a representative at Stakeholders include anyone who had a role EVENT PROFILE or was affected by the planned special event. the command post or at the TMC. If a mas- This certainly includes the transportation ter log is not kept, individual agencies can and public safety professionals who devel- share their own chronologies before the

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Figure 10-4 Indiana State Police Debriefing Protocol for Brickyard 400(2)

meeting and these can then be merged into a for similar planned special events or future single document. During the event, end-of- events occurring at the same venue. day review meeting notes should be exam- ined to focus on actual situations and modi- Patron Survey fications that were incorporated into the plan. Although the goal is to keep traffic moving on all of the transportation facilities, the pa- The evaluation will compare the plan with trons are the ultimate customers of everyone what actually took place. Actions, whether involved in the traffic management of the considered good or bad, that deviated from planned special event. It is largely for their the plan should be noted. It is not enough to benefit the traffic management plan was cre- simply note what was different than ex- ated in the first place, and they are the ones pected, but why it differed from the plan. likely to suffer the greatest consequences if Stakeholders should also be candid about the plan does not work. Therefore, the what they would do differently based on viewpoint of event patrons is needed if a their experience during the event. credible evaluation of the plan is to be done.

If the planned special event is a recurring It is impossible to question everyone who one, lessons learned should be documented attended the event, but a survey of attendees so that when a traffic management plan is will give insight into the patrons’ opinions. developed for the next event occurrence, the Unless measuring statistics for use in future plan addresses past lessons learned. Even if event travel forecasting, it is not necessary the event represents a one-time activity, the that a scientific survey be done either. What lessons learned should still be documented. is important is that a cross-section of patrons Many of the lessons may have application be surveyed in order to identify common for the next planned special event and can be threads. For example, if a significant num- used in developing traffic management plans ber of patrons say traveler information was

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inaccurate, it will become clear that aspect be more difficult to identify and survey of the plan needs to be reexamined. them. 10 As shown in Table 10-5, the patron survey Methods for reaching the public include sur- can take several forms. Appendix D con- veys in rest areas along alternate routes and tains an Internet-based event patron evalua- approach routes to the event, solicitations tion survey for those attending the 2003 Fair via websites, and comments provided by Saint Louis festival. The patron survey phone and mail. Surveys may be mailed to probably will not be able to identify prob- homeowners and businesses in the area af- OVERVIEW lems in great detail, but combined with re- fected by the special event to solicit their cord keeping by the participating stake- opinions. Sample questions for possible in- holders, the survey should be able to focus clusion in public survey include: on where problems occurred. • Were you aware of the event before it Table 10-5 took place? Types of Event Patron Surveys • If you were aware of the event before- TYPE hand, would you have altered your plans • Comment cards event patrons can fill-out based on that information? • Surveyors who question attendees • Did you change your plans or schedule ADVANCE PLANNING • Solicited and unsolicited e-mailed comments as a result of the event? The survey should be brief in order to en- • How would you evaluate the effective- courage a response. Yes or no type ques- ness of traffic management efforts for tions are easily answered. Sample questions this event (poor, good, excellent)? for possible inclusion in a patron survey in- • Do you have any additional comments or clude: suggestions based on your experience?

• Were you aware of any special travel An effort must be made to collate all com- information before the event? ments from widespread locations to be cer- DAY-OF-EVENT ACTIVITIES • Did you find information provided en- tain all input is considered. Specific out- route to the event (e.g., via signs, radio) reach may be made to members of the public helpful? who were directly impacted by the event. Businesses, residents, and transit riders are a • Did you experience any unexpected few of those who may have experienced im- problems approaching the venue? pacts caused by the planned special event. • Do you have any suggestions or other Since these individuals can be found at eas- comments you wish to offer?

ily identifiable locations, or perhaps actively POST-EVENT ACTIVITIES

participated in the review and comment of Public Survey the traffic management plan during the event operations phase, it is easier to survey these The public survey takes in a wider audience stakeholders. than the patrons. This includes those who may have been impacted by the planned special event even though they did not at- POST-EVENT tend the event. Since this is a larger and DEBRIEFING EVENT PROFILE more diverse group of stakeholders, it may

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A post-event debriefing should be held to should be skilled in involving all the partici- review what took place. The purpose of the pants and in digging into responses to get to debriefing is to: (1) examine what took the root of any stated problems. place, (2) compare it to what was expected to happen, (3) identify what worked well, If the traffic management plan included a and (4) determine areas of improvement for transportation management center, there future planned special events. may also be some advantages to holding the meeting at the TMC. Figure 10-5 shows a Meeting Organization meeting room located inside a TMC. As indicted in the figure, there may be addi- Ideally, the post-event debriefing should be tional resources in the TMC which can be planned during the event operations plan- used, and having it available visually can ning phase and before the event takes place. help participants better understand what If that does not happen, the debriefing took place during the planned special event. should still be held, but it may be more difficult to get full participation by all involved stakeholders.

The meeting should be scheduled at least a few days after the event, giving traffic management team members some time to absorb what took place during the event and an opportunity to put it into perspective. How- ever, the meeting should not be delayed too long after the event so memories of what took place remain fresh.

The place and timing of the meeting should Figure 10-5 be such that maximum attendance is real- TMC Meeting Room ized. Considerations should include: (1) the rotating schedules of those who may attend, Meeting Agenda (2) ease of access to the meeting location, and (3) potential conflicts with other events. It is important to remember that the post- event debriefing is not designed to be a time If there were significant interagency con- to blame individuals or agencies for what flicts during the planning of the event, or took place during the event. This should be during the event itself, a neutral location and reflected in the agenda developed for the moderator may improve dialogue during the meeting. It should clearly state the intended meeting. purpose of the meeting. This will help keep meeting attendees focused and provide If these types of conflicts were not a prob- added assurance that the meeting is designed lem, consideration should be given to having to identify successes and lessons learned. one of the traffic management team supervisors or incident commander lead the meet- Stakeholders can agree on a general outline ing. Whatever the case, the moderator for the debriefing even before the event. This helps assure the debriefing covers top-

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ics of interest to all participants and not de- It is helpful if participants are asked to iden- signed to be biased against any stakeholder. tify, before the post-event debriefing, what Further details of the agenda can be filled in they see as key successes and lessons 10 after the event and when problems requiring learned. It may also prove beneficial if closer examination can be identified. Again, these notes are shared among the partici- it would be beneficial if all participants had pants before the meeting to help facilitate input into revising the agenda to make cer- discussion. tain all concerns are addressed. While identifying these points are very use- OVERVIEW Table 10-6 lists the broad topic areas that ful, it has little value unless there is some should be covered in the post-event debrief- way to identify how to apply what is learned ing. to the next planned special event. No one individual should be expected to serve as Table 10-6 either the group’s or their agency’s corpo- Post-Event Debriefing Meeting rate memory. The successes and lessons Agenda Topics learned must be chronicled so that those TOPIC AREA stakeholders who are responsible for plan- • Purpose of meeting ning the next planned special event will be • The planning process

able to tap the wisdom of those who have ADVANCE PLANNING • Interagency communications done this before. • Traffic management in and around the venue • Traffic management outside of the event site • Traveler information, including media As an example, the following represents an • Lessons learned excerpt, regarding traffic management and operations during Daytona Beach, FL Race Identification of Key Successes and Week (e.g., Daytona 500) and Bike Week, from the minutes of a regular, bi-monthly Lessons Learned Volusia County (FL) Freeway Incident Management Team meeting:(3) The purpose of the post-event debriefing is DAY-OF-EVENT ACTIVITIES not to just identify what could have been • Race Week was February 14th to Febru- done better but to note what was successful. ary 17th. Traffic was very heavy each As has been the case from the start of the day of the races. Friday the 15th had event operations planning process through problems in Ormond Beach. There was the event itself, multiple viewpoints are an unexpected large outbound towards helpful as stakeholders identify key suc- Ormond Beach. Saturday, Florida cesses and lessons learned. Depending upon Highway Patrol, Ormond Beach PD, POST-EVENT ACTIVITIES perspective, one element of the plan may be Daytona Beach PD, Volusia County viewed as a success by one party and seen as Traffic Engineering, FDOT and Daytona an area needing improvement by another. Beach Traffic Engineering met to discuss traffic patterns and staffing for Or- Identifying these areas can be accomplished mond Beach so Friday’s problems would as each stakeholder individually reviews its not happen during the outbound of the actions leading up to and going through the Daytona 500 Race. Sunday’s traffic was EVENT PROFILE event and as the stakeholders, as a group, extremely heavy for the inbound. The review what took place. free parking lot entrance on Williamson will need to be larger for next year. The

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traffic trying to enter this parking lot An alternative method of organizing the re- could not enter fast enough so, this area port concerns dividing it by subject areas became grid locked. This area was grid such as traffic management, traveler infor- locked from northbound Williamson to mation, command center operation, and Beville, eastbound and westbound on communications. Since some areas overlap, Beville at Williamson further than the there should be references in the report to view of the traffic cameras. Capt. Dun- other sections, which may have application can enforced a rolling roadblock on I-4 in multiple areas. to stop traffic from entering this area. This gave traffic time to get into the Table 10-7 parking lot. Video was collected of the Outline of Post-Event Report new Pedestrian Overpass. This overpass REPORT ORGANIZATION was successfully used by thousands of • Outline report topics. race fans. • Document products of the event operations st th planning phase. • Bike Week was March 1 to March 10 . • Identify key successes. Port Orange reported problems at Nova • Present lessons learned. Road and Dunlawton. Mr. Lester stated • Identify improvements for future events. they went out to this location to see if • Configure to serve as a working document for anything could be done with the traffic future special event planning. signal to alleviate the traffic congestion. • Review chronologically what took place. Unfortunately, the signal was at its • Summarize both positive and negative aspects. • Include all stakeholder viewpoints. maximum timing and nothing could be OPERATIONAL COST ANALYSIS changed. • Examine operational costs. • Include staffing, overtime, and equipment for POST-EVENT REPORT each involved agency. • Identify potential cost savings. o Reallocation of personnel o Division of responsibilities Table 10-7 presents an outline of a typical o Use of technology post-event report. • Include total staffing, overtime, and equipment for all agencies. QUALITATIVE EVALUATION Report Organization • Include survey of stakeholders. • Include survey of event patrons. A report that reviews the planned special • Include survey of public. event is necessary to document what was QUANTITATIVE EVALUATION learned. By clearly outlining the material in • Provide numerical picture of the event. the report, it becomes easier to identify the o Costs o Hours saved key successes and lessons learned. It also o Traffic incidents handled makes it easier to go back to the report and o Passengers carried on various modes. look at particular aspects of the traffic man- • Present cost/benefit analysis. agement plan implemented when planning the next planned special event. The report should summarize both positive and negative aspects. Remember, this is not Since the process of handling the planned designed to be a public relations piece to special event follows a timeline, the easiest promote the handling of the planned special way to organize the report may involve re- event but a working document to assist fu- viewing what took place chronologically. ture special event planning. If differing per-

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spectives are noted during the debriefing viewed with areas of potential cost saving process and there is not consensus on how to identified. In some cases, these expenses address a particular situation, all stakeholder may be in areas where the reallocation of 10 viewpoints should be documented. personnel would result in reduced expenses or improved operations. In other areas, the Table 10-8 lists the elements that should be use of technology may result in savings. included in a post-event report. As with the post-event debriefing, the post-event report While individual stakeholders are responsi- should not blame individuals or organiza- ble for gathering information on their own OVERVIEW tions for anything that did not go well. The costs, there is also benefit in merging the report should provide a factual recounting of figures of all agencies to have a better pic- the special event, including planning the ture of total expenses for personnel and event itself and what took place during the equipment. This may also provide opportu- post-event debriefing. If opinions are noted nities to see how dividing responsibilities in in the report, then the opinions should be different ways could result in cost savings. segregated from the factual information and Among the costs that should be analyzed are noted as opinions. overtime expenses, costs of deploying equipment, equipment rental costs, addi-

Table 10-8 tional communications expenses, and ex- ADVANCE PLANNING Elements of a Post-Event Report penses for public information efforts. ELEMENT • A copy of the original traffic management Qualitative Evaluation plan • A combined chronology of the event, incorpo- rating actions by all participants The qualitative evaluation, while based on • List of recommended improvements softer measures such as opinion and • Statistical information (e.g., number of traffic perspective, still provides a very valuable incidents, number of CMS and HAR mes- measure of the success in handling the sages).

planned special event. This is especially DAY-OF-EVENT ACTIVITIES • Survey results true when measuring patron and public • General comments by participants views on the event. Quantitative measures may be easier to manage, but qualitative Operational Cost Analysis judgments may help determine the success of the plan. Even if the numbers show the Part of the evaluation process is to look at plan was a success, if the qualitative evalua- the operational costs of managing the tion shows significant dissatisfaction, it will planned special event. Expenses such as

be difficult to view the event in a positive POST-EVENT ACTIVITIES staffing, equipment and overtime should be light. noted by the agency incurring the expense. The qualitative evaluation is based on a This information should be broken down number of factors, including the survey of into categories that allow others to under- the public and event patrons. Also impor- stand the costs and the specific efforts asso- tant is the qualitative evaluation provided by ciated with the expenditures. those stakeholders who managed the event. EVENT PROFILE If they view the exercise as a failure, it will In the same way, operational decisions can be difficult to get them to fully commit to be reviewed to identify areas that can be im- subsequent efforts for future planned special proved. Operational costs can also be re-

10-11 events. Table 10-9 summarizes key topics toga Springs, Ny., June 5--7, 2002, of a qualitative evaluation. 24 pp.

Table 10-9 2. Indiana State Police 2002 Brickyard Key Topics of a Qualitative Evaluation Race Detail, Indiana State Police, TOPIC 2002. • Quality of pre-event information • Quality of day-of-event information 3. “Minutes of the Volusia County • Direction provided to the event and at the Freeway Incident Management venue • Traffic management at the site Team,” Volusia County Freeway In- • Egress from the venue cident Management Team, March 13, 2002. Quantitative Evaluation

The quantitative evaluation provides a numerical picture of the event. Figures such as costs, hours saved, incidents handled, and passengers carried provide a view which can be compared with similar events and provide a metric to judge how well the traffic management plan worked. As the saying goes, what gets measured gets done. If that is the case, then involved stakeholders should identify, before the event, what they wish to measure. While computer programs allow any number of items to be tabulated and measured, a good understanding before the event will facilitate the measurement of the key areas identified.

The quantitative evaluation is very useful when conducting a cost/benefit analysis of activities for the planned special event. Knowing where the most benefit was realized for the costs incurred can help in the planning process to see if resources should be reallocated for the next event.

REFERENCES

1. The Dutchess County Fair Traffic Plan, New York State Department of Transportation, Presentation at the 2002 ITS New York Meeting, Sara-

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CHAPTER ELEVEN DISCRETE/RECURRING EVENT AT A 11 PERMANENT VENUE OVERVIEW ADVANCE PLANNING

Figure 11-1

Discrete/Recurring Event at a Permanent Venue: Qualcomm Stadium in San Diego, CA DAY-OF-EVENT ACTIVITIES

PURPOSE stages of a planned special event of this category for a particular locale. Although

Chapter 3 presents all the steps necessary to In order to assist the user in planning for a manage travel for a planned special event, particular planned special event, this chapter

this chapter provides a roadmap to help POST-EVENT ACTIVITIES describes an advance planning and travel guide the user through all five phases of management process and considerations managing travel for planned special events, specific to a discrete/recurring event at a identifying issues, analysis, and products permanent venue. It summarizes recom- applicable to discrete/recurring events at a mended policies, guidelines, procedures, and permanent venue. To further guide readers, resource applications that were previously this chapter specifies references to data, spe- discussed in the first ten chapters of this

cial considerations, and best practices for EVENT PROFILE technical reference. This chapter presents this event category. these guidelines and procedures in tables, flowcharts, and checklists that can be followed to help guide the user through all the

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INTRODUCTION Table 11-2 Distinguishing Operating Characteristics of

a Discrete/Recurring Event at a Permanent In order to guide the user, this chapter ad- Venue dresses four key topics, corresponding to CHARACTERISTIC five phases of managing travel for planned • Specific starting and predictable ending times special events, including: (1) event opera- • Known venue capacity tions planning, (2) implementation and day- • Advance ticket sales of-event activities, (3) post-event activities, • Weekday event occurrences and (4) program planning. In planning for all planned special events in a region, the Special Considerations final section on program planning highlights issues to consider that evolve from and/or In light of the characteristics of a dis- pertain to discrete/recurring events at a per- crete/recurring event at a permanent venue, manent venue. By following each one of the special considerations when planning such steps and procedures, the user will have an event include: identified and covered all the significant aspects that are necessary to result in success- • Permanent venues located in urban areas ful management of travel for a planned spe- usually have exclusive off-street parking cial event with characteristics specific to a to accommodate capacity events, and discrete/recurring event at a permanent good access exists between venue park- venue. ing areas and freeway/arterial corridor traffic flow routes serving the venue. A discrete/recurring event at a permanent • In metropolitan areas, permanent venues venue occurs on a regular basis at a site often feature high-capacity connections zoned and designed specifically to accom- (e.g., transit) to the transportation system modate planned special events. Table 11-1 serving the region. indicates different types of planned special • Parking areas at many permanent venues events classified as a discrete/recurring exist immediately adjacent to the venue, event at a permanent venue. This category creating a more self-contained site traffic includes events that occur in urban and met- circulation and pedestrian access envi- ropolitan areas, and the rural event category ronment similar to other major, perma- includes discrete/recurring events at a per- nent traffic generators (e.g., airports and manent venue that take place in rural areas. regional shopping centers). Table 11-2 lists key characteristics of a dis- • These events generate high peak arrival crete/recurring event at a permanent venue. rates because of event patrons’: (1) urgency to arrive at the venue by a specific Table 11-1 start time and (2) possession of a re- Types of Discrete/Recurring Events at a served seat ticket that does not require Permanent Venue early arrival. EVENT TYPE • Sporting and concert events at stadiums and • Special events that have general admis- arenas sion seating or permit tailgating have • Concert events at amphitheaters lower, yet pronounced, peak arrival rates. • Discrete/recurring events at a permanent venue end abruptly, thus creating high

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peak pedestrian and traffic departure Attendance, time of occurrence, previous rates. lessons learned, and other special circum- 11 • The travel demand rate profile, over stances should be considered during this re- time, represents a distinguishing charac- view. teristic that warrants special consideration during advanced planning and day- Figure 11-2 presents 31 steps in the event of-event travel management. operations planning process for all planned • Event characteristics, such as known special events. The flowchart covers devel- venue capacity and advance ticket sales, opment and integration of the phase’s three OVERVIEW afford practitioners the opportunity to primary products: feasibility study, traffic perform travel demand forecasts with management plan, and travel demand man- greater precision and accuracy. agement initiatives. Table 11-3 comple- • Discrete/recurring events at a permanent ments the flowchart by providing step-by- venue allow the collection of transfer- step guidance on issues and recommended able historical data that improves pre- analyses for a discrete/recurring event at a dictability in feasibility study traffic and permanent venue. The table also presents parking analyses for future events held at reference information contained in this a particular venue. handbook that is specific to dis- • Experience gained from each planned crete/recurring events at a permanent venue. ADVANCE PLANNING special event can be used to further im- While all of the major handbook topics un- prove the identification and mitigation of der event operations planning apply to a dis- roadway capacity deficiencies. crete/recurring event at a permanent venue, • Weekday events place a high priority on Table 11-3 indicates data, planning consid- prediction and stakeholder preparation erations, and agency example applications because of potential impacts on com- (e.g., via narratives or photos) within the muter traffic and transit operations. context of this event category. In turn, practitioners can use example applications pre-

sented for a discrete/recurring event at a DAY-OF-EVENT ACTIVITIES EVENT OPERATIONS permanent venue to manage travel for other PLANNING categories of planned special events.

The level of stakeholder effort required un- It is important for the user to note that the der the event operations planning phase for a planning process described herein applies to discrete/recurring event at a permanent a single special event occurrence only. Fea- venue depends on whether a venue traffic sibility study results and traffic management management plan already exists. The event plan specifications vary for: (1) recurring POST-EVENT ACTIVITIES planning team focuses either on developing events of the same type (e.g., all home a new plan or modifying an existing traffic games for a specific sports team) and (2) management plan designed and imple- capacity events of different types held at the mented for past events at the subject venue. same venue (e.g., a sold-out sporting event In the latter case, the event planning team versus sold-out concert at the same sta- should conduct a review of past, pertinent dium). In the former case, practitioners feasibility studies for each proposed event. should conduct an iterative event operations EVENT PROFILE This will help to identify special transporta- planning process in order to develop traffic tion characteristics of each event and identify similarities to previously held events.

11-3 Initiate Feasibility Study

26 1 2 TDM and Modal Transit Service Transit Service Split

3 Event Traffic Generation

27 4 Event Patron Traffic Arrival and Incentives Departure Rate

5 Market Area Analysis

6 9 Parking Demand Shuttle Bus Analysis Service

7 10 Traffic Demand Lot Analysis Assignment

8 20 Roadway Capacity Vehicle Access 13 Analysis and Circulation Alternate Routes 11 14 12 21 Corridor Traffic Emergency Local Traffic Parking Area Design Flow Routes Access Routes Flow Routes and Operation 15 Background Traffic Accommodation 16 22 Transit Parking Occupancy Accommodation Monitoring

17 18 19 23 24 Freeway Street Intersection Pedestrian Disabled Traffic Control Traffic Control Traffic Control Control Accessibility

25 Analysis and Modeling

28 Traffic Incident Management

KEY: 29 Traffic Planning En-Route Traveler Information Parking Planning 30 Traffic Transit Planning Surveillance

31 Pre-Trip Traveler Information

Advance to Implementation Activities

Figure 11-2 Event Operations Planning Process Flowchart

11-4

Table 11-3

Event Operations Planning Steps 11 Discrete/Recurring Event at a Permanent Venue STEP EVENT-SPECIFIC REFERENCE INFORMATION EVENT-SPECIFIC ISSUES NO. PAGE TOPIC PAGE • Potential high level of express/charter bus • Data: Percentage of walking trips for on- 5-21 service for sporting events. campus college football games. 1 5-20 • Review of historical transit data. • Data: Example modal split for various perma- 5-21 nent venues; Table 5-12. • Impact of weekday events on non-attendee • Example: Express bus services. 7-11 2 7-9

transit users. • Example: Charter bus service. 7-13 OVERVIEW • Variation in vehicle occupancy by event type, • Data: Vehicle occupancy factor; Table 5-14. 3 5-21 5-23 event day/time, and venue location. • Change in peak arrival rate by event type and • Data: Traffic arrival rate characteristics; Table 5-24 day/time. 5-15. 4 5-22 • Special consideration: Traffic operations 5-23 during event patron departure. • Use of origin location analysis. • Data: Estimate of non-home based trips for a 5-26 • Larger market area for major concert and downtown venue. sporting events. • Special consideration: Recommended market 5 5-25 5-26 • Attraction of non-home based trips for week- area analysis methodology and considerations. day events. • Example: Appendix E – Regional directional 5-25 distribution. 6 5-27 • Very low turnover during event.

7 5-29 ADVANCE PLANNING 8 5-30 • Analysis of peak arrival and departure periods. • Design of service to expand and contract (e.g., • Special consideration: Shuttle bus service 6-33 number of buses operating) based on event pa- design. 9 6-32 tron arrival/departure rates throughout the day- • Special consideration: Shuttle bus service 6-36 of-event. cost. • Significant media parking requirement for 10 6-13 major sporting events. • Example: Plan showing target points; Figure 6-39 11 6-38 6-30. • Example: Appendix I – Traffic flow maps. 6-47 • Example: Plan showing multiple local traffic 6-39 12 6-38 flow routes; Figure 6-31.

• Example: Appendix I – Traffic flow maps. 6-47 DAY-OF-EVENT ACTIVITIES 13 6-40 14 6-41 • Key consideration for downtown venues and 15 6-43 venues adjacent to residential and business areas. 16 6-45 • Example: Temporary elimination of freeway 6-53 weaving area; Figure 6-39. • Example: Prohibition of late freeway diverge; 6-53 Figure 6-40. 17 6-49

• Example: Remote traffic surveillance and POST-EVENT ACTIVITIES 6-53 management; Figure 6-41. • Example: Appendix K – Traffic control plans 6-59 and maps. • Example: Contraflow operation during event 6-54 traffic egress; Figure 6-44. 18 6-51 • Example: Appendix K – Traffic control plans 6-59 and maps. • Example: Elimination of competing intersec- 19 6-57 6-57 tion traffic flow; Figure 6-50.

• Example: Achieving intersection turning EVENT PROFILE 6-57 movement lane balance; Figure 6-51. • Example: Roadblock of ingress route to facili- 6-58 tate egress; Figure 6-52. • Example: Intersection advance signing; Figure 6-58 6-53.

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STEP EVENT-SPECIFIC REFERENCE INFORMATION EVENT-SPECIFIC ISSUES NO. PAGE TOPIC PAGE • Example: Appendix J – Operation of central- 6-59 ized traffic signal system. • Example: Appendix K – Traffic control plans 6-59 and maps. • Vehicle cruising after event to pick-up event • Example: En-route information dissemination 6-14 patrons. on site access and parking; Figure 6-6. • Example: Temporary parking area identifica- 6-15 tion landmark; Figure 6-8. • Example: Implementation of lane channeliza- 20 6-16 tion on a parking area access road; Figure 6- 6-18 10. • Example: Strategy for eliminating taxi/limo 6-19 cruising at the end of an event. • Example: Appendix H – Site and parking 6-25, maps; Figures 6-16 and 6-17. 6-27 • Key consideration for event ingress operations. • Special consideration: Permanent venue gate 21 6-20 6-21 and queue storage lanes; Figure 6-13. 22 6-23 • Pedestrian overcrowding near venue. • Special consideration: Pedestrian arrival and 6-27 departure rates. 23 6-28 • Example: Pedestrian traffic monitoring via 6-29 closed-circuit television; Figure 6-21. 24 6-32 • Analysis of peak ingress and egress travel 25 6-9 periods. • High applicability of HOV incentives and • Example: High occupancy vehicle incentives; 7-3, 7-2 to express/charter bus service to this event cate- Figure 7-3. 26 7-5 7-14 gory. • Example: Transit service marketing. 7-13 • Particularly applicable to managing event • Special consideration: Recommended event 7-6 arrival and departure rate. patron incentives. 27 7-6 • Example: Survey on event patron incentives; 7-7 Figure 7-4. • Example: Public information safety campaign. 6-73 28 6-72 • Example: Highway advisory radio traveler 6-74 safety message; Figure 6-61. • Example: Permanent changeable message sign 29 6-61 6-64 over stadium access road; Figure 6-56. 30 6-70 • Dissemination of traveler information through • Example: Appendix L – Public agency and 7-17 event and venue websites. event-specific websites. • Dissemination of transportation guide with • Example: Telephone information systems; 7-19 advance ticket mailings. Figure 7-9. 31 7-14 • Example: Public information campaign. 7-19 • Example: Appendix M - Venue transportation 7-21 guides. • Example: Television travel report; Figure 7- 7-22 12.

management plans for a range of future games. In the latter case, different event event scenarios, varying by characteristics types have dissimilar event operation char- such as attendance and time of occurrence. acteristics such as market area, audience ac- Example scenarios include expected high- commodation, and time of occurrence. attendance events because of special promo- Available transportation services and stake- tions or circumstances and weeknight foot- holder resources may vary from one capac- ball games versus traditional weekend ity event to another. For instance, an exclu-

11-6

sive express bus service between area park- • Traffic management plan components in and-ride lots and a stadium may operate for Chapter 6 that provide an overview of 11 Sunday football games but not for a concert various principles driving plan develop- at the same facility because of resource con- ment in addition to a contingency plan straints. checklist.

The flowchart in Figure 11-2 represents a suggested order of event operations planning IMPLEMENTATION AND activities. However, as noted below, the DAY-OF-EVENT OVERVIEW event planning team can modify activities to create a dynamic and more effective plan- ACTIVITIES ning process tailored to the scope of a spe- The traffic management team that manages cific planned special event: travel for a discrete/recurring event at a

permanent venue usually has familiarity • Based on lessons learned from past spe- with traffic patterns and potential flow cial events at a particular permanent breakdown points in the vicinity of the site, venue, stakeholders may program new primarily based on their past experience on infrastructure or adopt new policies (e.g.,

previously held special events at the same ADVANCE PLANNING parking restrictions) early in the event venue. Hence, stakeholder development of operations planning process. implementation plan details focus on trans- Links between process steps are two- • portation operation successes and lessons way as stakeholders evaluate alternative learned for previous, similar events at the strategies and/or integrate traffic man- subject venue. Special events regularly oc- agement plan components. cur at stadium, arena, and amphitheater ven- • The event planning team can develop ues. Involved traffic operations and law en- different traffic management plan com- forcement personnel, for instance, maintain ponents concurrently. a level of preparedness akin to that of traffic DAY-OF-EVENT ACTIVITIES incident responders. The event operations planning process references information and concepts contained in Table 11-4 presents a checklist of the advance planning section of this hand- implementation and day-of-event activities book, and it directs the user to recommended for stakeholders to consider regarding any guidelines, procedures, strategies, and re- discrete/recurring event at a permanent source applications for managing travel for a venue. As indicated in the table, the event specific planned special event. When fol- planning team must determine, based on POST-EVENT ACTIVITIES lowing the process, practitioners should re- various event operations characteristics view: (e.g., event type, event location, event time of occurrence, attendance, market area, etc.) • Important advance planning considera- and other external factors, what unique set tions and external factors, summarized in of activities apply in handling a specific Chapter 5, that influence planning activi- special event. The table facilitates fast ties. For instance, under risk assess- access to handbook sections providing ment, scenarios relating to fan celebra- detailed guidance, including recommended EVENT PROFILE tions and excessive overcrowding may strategies, protocol, and resource warrant consideration if planning for a applications, required by users to plan and major sporting or concert event. execute these activities.

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Table 11-4 Checklist of Implementation and Day-of-Event Activities for Discrete/Recurring Events at a Permanent Venue HANDBOOK APPLIES ACTION PAGE 8-2 • Develop an implementation plan. 8-6 • Conduct a stakeholder simulation exercise(s). 8-8 • Test equipment resources slated for use on the day-of-event. 8-9 • Recruit and train volunteers to fulfill personnel resource needs. 9-2 • Implement a traffic management team management process. 9-4 • Designate a multi-agency command post. 9-6 • Conduct traffic management plan evaluation(s) during the day-of-event. • Establish protocol for traffic management team officials to consider and 9-6 implement changes to the traffic management plan to accommodate real- time traffic conditions. 9-8 • Establish interagency communication protocol. 9-9 • Review communication equipment compatibility. 9-10 • Use the media to communicate with event patrons and other transportation users. 9-12 • Perform traffic monitoring on the day-of-event.

Some distinguishing considerations of this ingly, and the media provides significant event category during the day-of-event ac- coverage of major sporting events that tivities phase include: usually includes traveler information and transportation system operations moni- • Because of the numerous planned spe- toring. The traffic management team cial events held annually at a permanent may interact with these information pro- venue, stakeholders typically have a set viders on the day-of-event. location for an on-site command post. • The collection and evaluation of trans- For larger venues in metropolitan areas, portation system performance data the command post may reside inside the proves valuable in guiding decision- venue, contain permanently installed making for future discrete/recurring equipment (e.g., computer and commu- events at a permanent venue. Stake- nication connections, video monitors, holders can archive raw data for use in etc.), and function as a satellite transpor- future feasibility studies, and various tation management center. evaluation measures can identify specific • Interagency communication structure areas that require improvement for fu- and protocol is generally well estab- ture, similar events at the subject venue. lished and understood by all participat- The traffic management team must exer- ing personnel. cise great care in collecting performance • Traffic advisory services often monitor evaluation data in order to ensure data special events at permanent venues and quality and consistency. disseminate traveler information accord-

11-8

POST-EVENT Some distinguishing considerations of this 11 ACTIVITIES event category during the post-event activities phase include: Since a discrete/recurring event at a permanent venue has the benefit of numerous • Post-event debriefings represent a com- events having been held at the site, it is usu- mon and recommended stakeholder ac- ally not necessary to conduct all post-event tivity regarding discrete/recurring events activities normally required for other event at a permanent venue. OVERVIEW categories. Table 11-5 presents a checklist o On a regional level, such meetings of post-event activities applicable to any may coincide with a regular traffic discrete/recurring event at a permanent incident management team meeting. venue. Certain special events of this cate- o With major discrete/recurring events gory (e.g., new event type at venue, state- (e.g., capacity or near-capacity) often wide/national market area, etc.) that present regularly occurring at permanent a challenging and potentially recurring venues, the event planning team and travel management scenario for stakeholders traffic management team may use a warrant most, if not all, activities listed in post-event debriefing as a basis to the table. The post-event activities section update a traffic management plan ADVANCE PLANNING of this handbook provides detailed informa- and travel demand management ini- tion on common techniques, special consid- tiatives for future planned special erations, and recommended protocol that events at the venue. facilitate the activities listed in Table 11-5.

Table 11-5 DAY-OF-EVENT ACTIVITIES Checklist of Post-Event Activities for Discrete/Recurring Events at a Permanent Venue HANDBOOK APPLIES ACTION PAGE 10-2 • Review measures of effectiveness identified in event operations planning phase. 10-3 • Compile agency measures of effectiveness. 9-14 • Compile performance evaluation data. 10-5 • Conduct stakeholder participant debriefing. 10-6 • Conduct event patron survey. POST-EVENT ACTIVITIES 10-7 • Conduct public survey. 10-7 • Conduct a post-event debriefing meeting. 10-10 • Prepare a post-event report.

EVENT PROFILE

11-9

• Public surveys warrant strong considera- Stakeholders that have a consistent role in tion for special events under this cate- managing travel for planned special events gory as event performance evaluation at a particular permanent venue can address data fails to assess all community im- recurring needs and improve the planning pacts. process for future events through various o Though not necessary for every regional planned special event program ini- event occurrence, stakeholders may tiatives. conduct a public survey: (1) after the first of a series of recurring special Table 11-6 summarizes program planning events (e.g., sports season), (2) after activities for discrete/recurring events at a receiving negative feedback through permanent venue. community interest stakeholders, or (3) after a specified period of time Some distinguishing considerations of this (e.g., annually or every few years) event category during the program planning for all events held at a particular phase include: permanent venue. o Survey results alert special event • The fixed location of major planned spe- stakeholders of impacts to affected cial event venues allows for the easy residents and businesses, in addition identification of stakeholder representa- to non-attendee transportation sys- tives involved in regular planning and tem users, that may continue to occur day-of-event travel management for spe- with each successive major special cial events at these venues. Under a re- event at a particular permanent gional planned special events program venue. As a result, stakeholders can framework, these representatives col- develop and implement appropriate laborate as a task force, working to: (1) strategies (e.g., enforcement, etc.) to strengthen interagency coordination for mitigate the identified impact(s) for future special events, (2) identify needs future planned special events. Traf- relative to minimizing community im- fic management team efforts also pacts and improving transportation sys- would include monitoring known tem operations during venue events. community impacts on the future The latter involves proposing new poli- day-of-event followed by a post- cies, regulations, and infrastructure de- event evaluation. ployments to support future event- specific traffic management plans and PROGRAM PLANNING travel demand management initiatives. Permanent infrastructure deployments • prove cost-effective at permanent venues

hosting numerous planned special events Program planning activities involve the de- or multiple major events in a calendar velopment of policies, programs, and initia- year. As indicated in Table 11-6, infra- tives that facilitate improved planning and structure deployment also includes new management of travel for future planned transportation services designed to in- special events. Program planning activities crease transportation system capacity for all planned special events in a region during a planned special event. For in- have a high level of applicability to dis- stance, a transit agency may design and crete/recurring events at a permanent venue.

11-10

market an express bus service for an en- in a region and (2) day-to-day transpor- tire sports season. tation system operations. The fore- 11 • The occurrence of major dis- knowledge of planned special events al- crete/recurring events at a permanent low stakeholders to work with transpor- venue (e.g., roving sports championship tation agency administrators in order to events, auto races, other capacity events, incorporate pertinent planned special etc.) often serve as a platform for stake- events initiatives in agency budgets holders to assess new services and infra- and/or transportation improvement pro-

structure proposed for a single, major grams. OVERVIEW special event in the context of supporting: (1) all special planned special events

Table 11-6 Program Planning Activities for Discrete/Recurring Events at a Permanent Venue PAGE PRODUCT TOPIC NO.

Institutional • Creation of a regional transportation committee on planned special events 2-15 ADVANCE PLANNING frameworks (e.g., oversight team). 4-2 5-3 • Creation of a transportation operations task force for a specific permanent 5-3 venue. • Development of a joint operations policy. 5-15 Policies and • Traffic and parking restrictions. 5-10 regulations • Public-private towing agreements. 5-16 • Public information safety campaign. 6-73 • High occupancy vehicle incentives. 7-3 Infrastructure • Advanced parking management system. 6-15 DAY-OF-EVENT ACTIVITIES deployment • Electronic fee collection system. 6-22 • Planned alternate route for diverting background traffic around a venue. 6-40 • Portable traffic management system. 6-56 • Express, charter, or shuttle bus service. 6-32 7-11 7-12 • Telephone information systems. 7-17 • Kiosks. 7-21

POST-EVENT ACTIVITIES

EVENT PROFILE

11-11

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11-12

CHAPTER TWELVE 12 CONTINUOUS EVENT OVERVIEW ADVANCE PLANNING

Figure 12-1 Continuous Event: Summerfest Music Festival in Milwaukee, WI (Photo courtesy of the Wisconsin DOT.)

DAY-OF-EVENT ACTIVITIES

PURPOSE necessary to manage travel for a planned special event, this chapter provides a road-

map to help guide the user through all five In order to assist the user in planning for a phases of managing travel for planned spe- particular planned special event, this chapter cial events, identifying issues, analysis, and describes an advance planning and travel products applicable to continuous events. management process and considerations

To further guide readers, this chapter speci- POST-EVENT ACTIVITIES specific to a continuous event. It summa- fies references to data, special considera- rizes recommended policies, guidelines, tions, and best practices relating to this event procedures, and resource applications that category. were previously discussed in the first ten chapters of this technical reference. This chapter presents these guidelines and proce- INTRODUCTION dures in tables, flowcharts, and checklists that can be followed to help guide the user In order to guide the user, this chapter ad- EVENT PROFILE through all the stages of a planned special dresses four key topics, corresponding to event of this category for a particular locale. five phases of managing travel for planned Although Chapter 3 presents all the steps special events, including: (1) event opera-

12-1 tions planning, (2) implementation and day- Table 12-2 of-event activities, (3) post-event activities, Distinguishing Operating Characteristics of and (4) program planning. The final section a Continuous Event on program planning highlights issues to CHARACTERISTIC consider, that evolve from and/or pertain to • Occurrence often over multiple days continuous events, in planning for all • Arrival and departure of event patrons planned special events within a region or throughout the event day • Typically little or no advance ticket sales jurisdiction. By following each one of the • Capacity of venue not always known steps and procedures, the user will have • Occurrence sometimes at temporary venues identified and covered all the significant aspects that are necessary to result in success- Special Considerations ful management of travel for a planned special event with characteristics specific to a In light of the characteristics of a continuous continuous event. event, special considerations when planning such an event include: Table 12-1 indicates different types of planned special events classified as a con- • Daily attendance, a key input in the tinuous event. This category includes events travel forecast analysis process, is often that occur in urban and metropolitan areas, difficult to estimate, and day-of-event and the rural event category includes con- weather conditions may significantly af- tinuous events that take place in rural areas. fect it. Aside from conventions and state/county • The traffic generation characteristics and fairs, many continuous events take place at a market area of different continuous temporary venue, a park, or other large open events may vary considerably, thus lim- space. These venues host planned special iting the transfer of historical data be- events on a less frequent basis than perma- tween non-identical special events. nent multi-use venues, and planned special • Most events do not have an attendance event permitting typically governs whether a capacity or defined “sell-out.” temporary venue can adequately handle the transportation impact of a particular con- • Venues may have limited access to tran- tinuous event. Table 12-2 lists key charac- sit stations and adjacent high-capacity teristics of a continuous event. arterial roadways and freeways. • High attendance events in downtown areas require extensive planning for parking and travel demand management. Table 12-1 • Major continuous events typically gen- Types of Continuous Events erate trips from a multi-county region. EVENT TYPE • Potential weather impacts require the • Fairs consideration of a wide range of contin- • Festivals gency plans relative to site access, park- • Conventions and expos ing, pedestrian access, traffic control, • Air and automobile shows and traffic incident management. • Continuous events held at temporary venues may significantly impact nearby neighborhood residents and businesses.

12-2

EVENT OPERATIONS (e.g., via narratives or photos) within the context of this event category. In turn, prac- 12 PLANNING titioners can use example applications presented for a continuous event to manage Because of the contrasting characteristics of travel for other categories of planned special different continuous events and the respec- events. tive venues hosting these events, the event planning team should develop (1) a feasibil- The flowchart in Figure 12-2 represents a ity study, (2) a traffic management plan, and suggested order of event operations planning OVERVIEW (3) travel demand management initiatives activities. However, as noted below, the (as necessary) in the event operations plan- event planning team can modify activities to ning phase. The stakeholder composition of create a dynamic and more effective plan- an event planning team varies by event, as ning process tailored to the scope of a spe- some continuous events represent commu- cific planned special event: nity or not-for-profit events while others involve commercial dealings. Recurring con- • A jurisdiction planned special event tinuous events, such as an annual fair or air permit process and requirements will show, permit stakeholders to reference a scope, schedule, and direct event opera- past feasibility study and traffic manage- tions planning activities for continuous ADVANCE PLANNING ment plan, coupled with operations suc- events. cesses and lessons learned, when conducting • Links between process steps are two- advance planning activities for a future way as stakeholders evaluate alternative event. However, due to the significant time strategies and/or integrate traffic man- between recurring continuous events, the agement plan components. event planning team must anticipate (1) • The event planning team can develop changes in the operations characteristics of a different traffic management plan com- future event, (2) modifications to the trans- ponents concurrently. portation system serving the event, and (3) DAY-OF-EVENT ACTIVITIES changes in the community (e.g., land use, The event operations planning process refer- socioeconomic, regulations, etc.). ences information and concepts contained in the advance planning section of this hand- Figure 12-2 presents 31 steps in the event book, and it directs the user to recommended operations planning process for all planned guidelines, procedures, strategies, and re- special events. The flowchart covers devel- source applications for managing travel for a opment and integration of the phase’s specific planned special event. When fol- aforementioned three products. Table 12-3 lowing the process, practitioners should re- POST-EVENT ACTIVITIES complements the flowchart by providing view: step-by-step guidance on issues and recommended analyses for a continuous event. • Advance planning and travel manage- The table also presents reference informa- ment process and considerations pro- tion contained in this handbook that is spe- vided in Chapter 11, as appropriate, for cific to continuous events. While all of the continuous events that occur at a perma- major handbook topics under event opera- nent venue (e.g., stadium, arena, amphi- EVENT PROFILE tions planning apply to a continuous event, theater, and convention center). Table 12-3 indicates data, planning considerations, and agency example applications

12-3

Initiate Feasibility Study

26 1 2 TDM and Modal Transit Service Transit Service Split

3 Event Traffic Generation

27 4 Event Patron Traffic Arrival and Incentives Departure Rate

5 Market Area Analysis

6 9 Parking Demand Shuttle Bus Analysis Service

7 10 Traffic Demand Lot Analysis Assignment

17 18 19 23 24 Freeway Street Intersection Pedestrian Disabled Traffic Control Traffic Control Traffic Control Control Accessibility

25 Analysis and Modeling

28 Traffic Incident Management

KEY: 29 Traffic Planning En-Route Traveler Information Parking Planning 30 Traffic Transit Planning Surveillance

31 Pre-Trip Traveler Information

Advance to Implementation Activities

Figure 12-2 Event Operations Planning Process Flowchart

12-4

Table 12-3

Event Operations Planning Steps 12 Continuous Event EVENT-SPECIFIC REFERENCE INFORMATION STEP EVENT-SPECIFIC ISSUES NO. PAGE TOPIC PAGE • Example: Appendix D – Internet-based event 1 5-20 5-21 patron evaluation survey. • Potential financial incentive for transit service 2 7-9 to provide express/charter service. • Data: Daily attendance split for multi-day • Variation in daily attendance on each day of a 5-22 continuous events. OVERVIEW multi-day event. 3 5-21 • Data: Vehicle occupancy factor; Table 5-14. 5-23 • Impact of weather on attendance (if open-air • Special consideration: Estimating daily atten- venue). 5-22 dance. • Peak rates may increase if event features head- • Data: Traffic arrival rate characteristics; Table 5-24 line entertainment. 5-15. 4 5-22 • Impact of weather on time of arrival and/or • Special consideration: Using historical data to 5-24 departure (if open-air venue). estimate traffic arrival rate. • Use of travel time or distance analysis if no • Special consideration: Recommended market 5-25 advance ticket sales. area analysis methodology. 5 5-25 • Market area includes the community or region • Special consideration: Market area analysis. 5-25 the event is staged for. • Special consideration: Parking demand analy- 5-27 • Continuous turnover during event. sis.

6 5-27 ADVANCE PLANNING • Use of off-site parking areas. • Example: Designated event off-site parking 5-29 area; Figure 5-11. • Analysis of conditions prior to, during, and 7 5-29 after event.

• Possible composite traffic volume peak during 8 5-30 the event. • Design of service to operate throughout the event. • Special consideration: Shuttle bus service 9 6-32 6-36 • Increased round-trip travel time if loading cost. occurs both at parking areas and at venue. 10 6-13 • Secure of lease or agreement for off-site lots. 11 6-38 • Consideration of ingress and egress operations 12 6-38 during the event. DAY-OF-EVENT ACTIVITIES 13 6-40 14 6-41 • Example: Accommodation of traffic destined 15 6-43 6-44 to major generators; Figure 6-35. 16 6-45 17 6-49 18 6-51 19 6-57

20 6-16 • Two-way traffic during event. 21 6-20 • Potential use of unpaved parking areas.

• Variation of parking occupancy during the POST-EVENT ACTIVITIES 22 6-23 event. • Special consideration: Pedestrian traffic. 6-27 • Example: Pedestrian access route and emer- 6-30 gency access route; Figure 6-22. 23 6-28 • Two-way pedestrian traffic during event. • Example: Road closure adjacent to event 6-31 venue; Figure 6-24. • Example: Staffed mid-block pedestrian cross- 6-31 ing; Figure 6-25. • Special consideration: Disabled parking 6-32

spaces. EVENT PROFILE 24 6-32 • Strong consideration for temporary venues. • Example: Special event disabled parking area 6-32 access point; Figure 6-26.

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EVENT-SPECIFIC REFERENCE INFORMATION STEP EVENT-SPECIFIC ISSUES NO. PAGE TOPIC PAGE

• Analysis of peak period during event as well as peak ingress and egress. 25 6-9 • Consideration of detailed analysis (e.g., tabletop exercises) for temporary venues.

• Example: High occupancy vehicle incentive; • High applicability of HOV incentives, bicy- 7-5 7-2 to clist accommodation, public transit incentives, Figure 7-2. 26 7-14 and express/charter bus service to this event • Example: Bicycle parking area; Figure 7-6. 7-8 category. • Example: Express bus service. 7-12 27 7-6 28 6-72 • Emphasis on portable roadside traveler infor- 29 6-61 mation devices for temporary venues. • Emphasis on portable closed-circuit television, 30 6-70 field observation, and/or aerial observation for temporary venues. • Example: Traffic information dissemination 7-16 via public agency website; Figure 7-7. 31 7-14 • Key step for infrequent events. • Example: Appendix L - Event-specific web- 7-17 site.

• Important advance planning considera- ticular continuous event types occur infre- tions and external factors, summarized in quently, stakeholder simulation exercises Chapter 5, that influence planning activi- prove valuable in assisting traffic manage- ties. For instance, effective and rapid ment team personnel understand the roles stakeholder review of event operations and responsibilities of participating stake- planning products requires: (1) an anno- holders in addition to the actions taken on tated planning timeline, (2) a review the day-of-event. Equipment testing marks process, and (3) performance standards. another key consideration. These intensive • Traffic management plan components in stakeholder activities reflect the typical un- Chapter 6 that provide an overview of familiarity with managing travel for a con- various principles driving plan develop- tinuous event coupled with the fact that ment in addition to a contingency plan transportation management activities, on the checklist. order required for a planned special event, may not regularly take place in the vicinity of the event venue. IMPLEMENTATION AND DAY-OF-EVENT Table 12-4 presents a checklist of implementation and day-of-event activities ACTIVITIES for stakeholders to consider regarding any continuous event. As indicated in the table, Implementation activities represent an the event planning team must determine, essential phase in advance planning for con- based on various event operations tinuous events. The traffic management characteristics (e.g., event type, event team involves new interagency relation- location, event time of occurrence, ships, and it requires an event-specific im- attendance, market area, etc.) and other plementation plan to communicate specifics external factors, what unique set of activities of the new traffic management plan prepared apply in handling a specific special event. by the event planning team. Because par- The table facilitates fast access to handbook

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Table 12-4 12 Checklist of Implementation and Day-of-Event Activities for Continuous Events HANDBOOK APPLIES ACTION PAGE 8-2 • Develop an implementation plan. 8-6 • Conduct a stakeholder simulation exercise(s). 8-8 • Test equipment resources slated for use on the day-of-event. 8-9 • Recruit and train volunteers to fulfill personnel resource needs. OVERVIEW 9-2 • Implement a traffic management team management process. 9-4 • Designate a multi-agency command post. 9-6 • Conduct a traffic management plan evaluation(s) during the day-of-event. • Establish protocol for traffic management team officials to consider and im- 9-6 plement changes to the traffic management plan to accommodate real-time traffic conditions. 9-8 • Establish interagency communication protocol. 9-9 • Review communication equipment compatibility. 9-10 • Use the media to communicate with event patrons and other transportation users. 9-12 • Perform traffic monitoring on the day-of-event.

ADVANCE PLANNING

sections providing detailed guidance, includ- sessing personnel resource needs and using recommended strategies, protocol, and ing volunteers on the day-of-event. The resource applications, required by users to chapter also specifies volunteer training plan and execute these activities. activities and summarizes basic functions required of all volunteers. Some distinguishing considerations of this • The traffic management team likely in- DAY-OF-EVENT ACTIVITIES event category during the day-of-event ac- cludes stakeholder representatives in- tivities phase include: volved in managing travel for a particular continuous event type for the first • The scope and duration of continuous time. To ensure successful traffic man- events, especially those that occur over agement plan deployment, the traffic multiple days, demand a significant level management team must adopt a formal of personnel resources. Supplementing management process and establish an in- traffic management team personnel with teragency communication structure and POST-EVENT ACTIVITIES temporary staff and volunteers may rep- protocol to support day-of-event opera- resent a necessary action to meet daily tions. staffing requirements. However, many • Other essential team management con- volunteers have no past experience in siderations involve (1) the designation of tasks associated with traffic and pedes- an Incident Commander for the planned trian control and parking operations. As special event and (2) the set up of a tem- a result, volunteer training becomes porary, multi-agency command post at EVENT PROFILE paramount to the success of day-of-event or near the event venue. operations. Chapter 8 contains checklists and relevant considerations for as-

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• Traffic management team officials • The traffic management team must exer- should anticipate enacting modifications cise great care in collecting performance to the traffic management plan through- evaluation data in order to ensure data out the duration of the continuous event. quality and consistency. • Surveillance information and performance evaluation data define transporta- POST-EVENT tion operation conditions and, thus, influence decision-making at a day-of- ACTIVITIES event briefing. • Multi-day continuous events should in- All of the primary products of this phase clude: (1) a traffic management team (e.g., participant evaluation, post-event de- meeting at the end of each day’s activi- briefing, and post-event report) have a high ties to review the traffic management level of applicability to continuous events. plan and team performance and/or (2) a Given the infrequent occurrence of continu- traffic management team meeting before ous events coupled with the scarcity of the start of the next event day. travel forecast data, post-event activity re- • The collection and evaluation of trans- sults represent a key resource in planning for portation system performance data future continuous events in a region. proves valuable in guiding decision- making not only on the day-of-event but Table 12-5 presents a checklist of post-event also for recurring continuous events. activities for continuous events. The post- Stakeholders can archive raw data for event activities section of this handbook use in future feasibility studies, and provides detailed information on common various evaluation measures can identify techniques, special considerations, and rec- specific areas that require improvement ommended protocol that facilitate the activi- for future, similar events at the subject ties listed in the table. venue.

Table 12-5 Checklist of Post-Event Activities for Continuous Events HANDBOOK APPLIES ACTION PAGE 10-2 • Review measures of effectiveness identified in event operations planning phase. 10-3 • Compile agency measures of effectiveness. 9-14 • Compile performance evaluation data. 10-5 • Conduct stakeholder participant debriefing. 10-6 • Conduct event patron survey. 10-7 • Conduct public survey. 10-7 • Conduct a post-event debriefing meeting. 10-10 • Prepare a post-event report.

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Some distinguishing considerations of this ture continuous events can tap the event category during the post-event activi- wisdom of past participants. 12 ties phase include: • The occurrence of a major, recurring continuous event warrants development • In regard to participant evaluation, con- of a post-event report. In turn, the report tinuous event patron travel surveys yield can serve as a working document to as- important information and statistics that sist in advance planning for the next can assist practitioners in (1) improving (year’s) event.

the accuracy of future continuous event • A post-event report for a recurring con- OVERVIEW travel forecasts and (2) developing travel tinuous event should include an opera- demand management incentives (e.g., tional cost analysis to assist stakeholders public transit incentives and ex- in identifying potential cost-saving re- press/charter bus services) for similar source deployment strategies for the next events. event occurrence. • Periodic public surveys warrant consideration for special events under this PROGRAM PLANNING category as event performance evalua-

tion data fails to assess all community

ADVANCE PLANNING impacts. Survey results alert special Program planning activities involve the de- event stakeholders of impacts to affected velopment of policies, programs, and initia- residents and businesses, in addition to tives that facilitate improved planning and non-attendee transportation system us- management of travel for future planned ers, that may continue to occur with each special events. successive special event at a particular

venue location. As a result, stakeholders Program planning for continuous events in- can develop and implement appropriate clude activities, as summarized in Table 12- strategies (e.g., enforcement, etc.) to 6, on both a regional and local level. mitigate the identified impact(s) for fu- DAY-OF-EVENT ACTIVITIES

ture planned special events. Some distinguishing considerations of this Post-event debriefings represent a com- • event category during the program planning mon and recommended stakeholder ac- phase include: tivity for continuous events.

On a regional level, such meetings o • A regional transportation committee on may coincide with a regular traffic planned special events considers the incident management team meeting.

planning and resource requirements of POST-EVENT ACTIVITIES A key aspect of a post-event debrief- o continuous events in connection with ing for continuous events involves managing all planned special events in a preparing detailed meeting minutes region. A primary committee focus con- that include the identification of key cerns facilitating interagency coordina- successes and lessons learned. tion and collaboration. For instance, a Considering the potential significant o task force may exist for a specific large- time between similar event types, scale, recurring continuous event that stakeholders must chronicle partici- EVENT PROFILE works throughout the year to integrate pant survey results and debriefing past event successes and lessons learned meetings so that those stakeholders into future event planning. charged with managing travel for fu-

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Table 12-6 Program Planning Activities for Continuous Events PAGE PRODUCT TOPIC NO. Institutional • Creation of a regional transportation committee on planned special events (e.g., 2-15 frameworks oversight team). 4-2 5-3 • Development of a formal planned special event permit program. 4-10 • Creation of a transportation operations task force for a recurring continuous 5-3 event. • Development of a joint operations policy. 5-15 Policies and • Traffic and parking restrictions. 5-10 regulations • Public-private towing agreements. 5-16 Infrastructure • Planned alternate route for diverting background traffic around a venue. 6-40 deployment • Portable traffic management system. 6-56 • Express, charter or shuttle bus service. 6-32 7-11 7-12 • Telephone information systems. 7-17 • Public information campaign. 7-19

• Two or more stakeholders, representing framework. A section on program plan- multiple jurisdictions and/or disciplines, ning for local planned special events in may establish a joint operations policy Chapter 4 provides complete and infor managing travel for all planned spe- depth coverage on developing a permit cial events in a region. program applicable to continuous events. • Because continuous events occur infre- • Funding represents a key public agency quently and occasionally at temporary consideration for continuous events in venues, an infrastructure needs assess- the program planning phase. ment on the program planning level o Commercial events may involve should focus on equipment and technol- event organizers and participants ogy applications transferable to manag- from outside the community hosting ing all planned special events in a region the event. and/or day-to-day transportation system o Prior to initiating event operations operations. planning activities for a specific con- • A planned special event permit program tinuous event, stakeholders should proves particularly effective for continu- establish a funding mechanism for ous events that, because of such charac- recovering costs incurred in provid- teristics as event attendance and event ing services during the event opera- location, may (1) conflict with municipal tions planning phase and resources or state guidelines and regulations and on the day-of-event. (2) impact transportation operations and o Funding often represents a require- the community. The program specifies a ment of a comprehensive planned permit process, coupled with supporting special event permit program. restrictions and requirements, that allows stakeholders to plan and assess all types of continuous events within a common

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CHAPTER THIRTEEN 13 STREET USE EVENT OVERVIEW ADVANCE PLANNING

Figure 13-1 Street Use Event: New York City Cycling Championship

DAY-OF-EVENT ACTIVITIES PURPOSE this chapter provides a roadmap to help guide the user through all five phases of

managing travel for planned special events, In order to assist the user in planning for a identifying issues, analysis, and products particular planned special event, this chapter applicable to street use events. To further describes an advance planning and travel guide readers, this chapter specifies refer- management process and considerations ences to special considerations and best specific to a street use event. It summarizes

practices relating to this event category. POST-EVENT ACTIVITIES recommended policies, guidelines, procedures, and resource applications that were previously discussed in the first ten chapters INTRODUCTION of this technical reference. This chapter presents these guidelines and procedures in ta- In order to guide the user, this chapter ad- bles, flowcharts, and checklists that can be dresses four key topics, corresponding to followed to help guide the user through all five phases of managing travel for planned the stages of a planned special event of this special events, including: (1) event opera- EVENT PROFILE category for a particular locale. Although tions planning, (2) implementation and day- Chapter 3 presents all the steps necessary to of-event activities, (3) post-event activities, manage travel for a planned special event, and (4) program planning. In planning for

13-1 all planned special events in a region, the Table 13-2 final section on program planning highlights Distinguishing Operating Characteristics of issues to consider that evolve from and/or a Street Use Event pertain to street use events. By following CHARACTERISTIC each one of the steps and procedures, the • Occurrence on a roadway requiring temporary user will have identified and covered all the closure significant aspects that are necessary to re- • Specific starting and predictable ending times • Capacity of spectator viewing area not known sult in successful management of travel for a • Spectators not charged or ticketed planned special event with characteristics • Dedicated parking facilities not available specific to a street use event. Special Considerations A street use event occurs on a street requiring temporary closure. Table 13-1 indicates In light of the characteristics of a street use different types of planned special events event, special considerations when planning classified as a street use event. This cate- such an event include: gory includes events that occur in rural, urban, and metropolitan areas. Street use • Daily attendance, a key input in the events generally occur in a city or down- travel forecast analysis process, is often town central business district; however, race difficult to estimate, and day-of-event events, motorcycle rallies, and dignitary mo- weather conditions significantly affect it. torcades may necessitate temporary closure • The entire parade or race route repre- of arterial streets or, to accommodate a mo- sents the event venue. torcade, limited-access highways. Planned • Parking areas and traffic flow routes special event permitting guidelines and re- serve an expanded site area. strictions typically (1) influence event operations characteristics (e.g., location, street • Race events or motorcycle rallies often use event route, time of occurrence, etc.) and require the temporary closure of road- (2) govern whether a traffic management ways over a significant distance. plan can mitigate the transportation impact • Spectator viewing areas may have lim- of a particular street use event. Table 13-2 ited access to transit stations and adja- lists key characteristics of a street use event. cent high-capacity arterial roadways and freeways. • High attendance events in downtown areas require extensive planning for Table 13-1 parking and travel demand management. Types of Street Use Events • Major street use events typically gener- EVENT TYPE ate trips from a multi-county region. • Parades • These events impact parking and access • Marathons required by nearby neighborhood resi- • Bicycle races dents and businesses. • Grand Prix auto races • Temporary road closures, required to • Motorcycle rallies • Dignitary motorcades stage the event, impact background traffic and transit flow in addition to emergency vehicle access and other local services.

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EVENT OPERATIONS Figure 13-2 presents 31 steps in the event 13 PLANNING operations planning process for all planned special events. The flowchart covers devel- Since street use events take place on the opment and integration of the phase’s roadway system and different event types aforementioned three products. Table 13-3 have contrasting characteristics (e.g., pa- complements the flowchart by providing rades versus road races), the event planning step-by-step guidance on issues and recom- team should develop: (1) a feasibility study, mended analyses for a street use event. The OVERVIEW (2) a traffic management plan, and (3) travel table also presents reference information demand management initiatives (as neces- contained in this handbook that is specific to sary) in the event operations planning phase. street use events. While all of the major The stakeholder composition of an event handbook topics under event operations planning team varies by event, as most pa- planning apply to a street use event, Table rades represent community events while 13-3 indicates planning considerations and road races and motorcycle rallies may in- agency example applications (e.g., via narra- volve commercial dealings. In regard to a tives or photos) within the context of this community-sponsored special event, trans- event category. In turn, practitioners can portation and/or law enforcement agencies use example applications presented for a ADVANCE PLANNING usually bear the responsibility of developing street use event to manage travel for other all of the necessary event planning phase categories of planned special events. products. These stakeholders guide the planning process for commercial street use The flowchart in Figure 13-2 represents a events as well. Jurisdictions may mandate suggested order of event operations planning that private event organizers use a standard activities. However, as noted below, the route and adhere to numerous guidelines and event planning team can modify activities to regulations (e.g., see the street use event create a dynamic and more effective plan- checklist contained in Appendix A) devel- ning process tailored to the scope of a spe- DAY-OF-EVENT ACTIVITIES oped by public agencies, in the program cific planned special event: planning phase, as part of a greater permit program for all planned special events. • A jurisdiction planned special event permit process and requirements will Recurring street use events, such as an an- scope, schedule, and direct event opera- nual holiday parade, allow stakeholders to tions planning activities for street use reference a past feasibility study and traffic events. management plan, coupled with operations • The event planning team should plan an POST-EVENT ACTIVITIES successes and lessons learned, when con- event route, spectator traffic flow routes, ducting advance planning activities for a fu- and background traffic accommodation ture event. However, due to the significant strategies early in the event operations time between recurring street use events, the planning phase, referencing guidelines event planning team must anticipate (1) and tactics for developing a traffic flow changes in the operations characteristics of a plan (Steps 11 through 16). future event, (2) modifications to the trans- • Links between process steps are two- EVENT PROFILE portation system serving the event, and (3) way as stakeholders evaluate alternative changes in the community (e.g., land use, strategies and/or integrate traffic man- socioeconomic, regulations, etc.). agement plan components.

13-3 Initiate Feasibility Study

26 1 2 TDM and Modal Transit Service Transit Service Split

3 Event Traffic Generation

27 4 Event Patron Traffic Arrival and Incentives Departure Rate

5 Market Area Analysis

6 9 Parking Demand Shuttle Bus Analysis Service

7 10 Traffic Demand Lot Analysis Assignment

17 18 19 23 24 Freeway Street Intersection Pedestrian Disabled Traffic Control Traffic Control Traffic Control Control Accessibility

25 Analysis and Modeling

28 Traffic Incident Management

KEY: 29 Traffic Planning En-Route Traveler Information Parking Planning 30 Traffic Transit Planning Surveillance

31 Pre-Trip Traveler Information

Advance to Implementation Activities

Figure 13-2 Event Operations Planning Process Flowchart

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Table 13-3 Event Operations Planning Steps 13 Street Use Event STEP EVENT-SPECIFIC REFERENCE INFORMATION EVENT-SPECIFIC ISSUES NO. PAGE TOPIC PAGE 1 5-20 2 7-9 • Impact of weather on attendance. 3 5-21 • Difficult to estimate attendance. • Special consideration: Estimating attendance. 5-22 • Lack of historical traffic generation data.

• Impact of weather on time of arrival and/or • Special consideration: Using historical data to OVERVIEW 4 5-22 5-24 departure. estimate traffic arrival rate. • Use of travel time or distance analysis. • Special consideration: Recommended market 5-25 5 5-25 • Market area includes the community or region area analysis methodology. the event is staged for. • Special consideration: Market area analysis. 5-25 • Low turnover during event. • Special consideration: Parking demand analy- 6 5-27 • Exclusive use of off-site parking areas. 5-27 sis. • Self-parking. • Requirement of road closures to stage the event. 7 5-29 • Utility (e.g., attractiveness) of individual parking areas vary. • Use of computer traffic simulation model to 8 5-30 measure the full impact of road closures on

operations across a network of streets. ADVANCE PLANNING • Design of service to expand and contract (e.g., number of buses operating) based on event pa- 9 6-32 tron arrival/departure rates throughout the day- of-event. 10 6-13 11 6-38 • Special consideration: Road closure impact 6-38 checklist; Table 6-22 12 6-38 • Special consideration: Parade staging area; 6-38 Figure 6-29 • Consideration for road closures required to • Special consideration: Personnel resources for 13 6-40 6-43 stage the event. alternate route plan deployment; Figure 6-33.

• Ambulances or first-aid stations staged at • Special consideration: Emergency access DAY-OF-EVENT ACTIVITIES 14 6-41 6-43 various locations for a street race. lanes. • Special consideration: Pre-trip traveler infor- 15 6-43 • Key consideration for this event category. 6-45 mation; Table 6-27. 16 6-45 • Example: Appendix K – Street control plan 17 6-49 6-59 and equipment location plan. • Example: Appendix K – Street control plan 18 6-51 6-59 and equipment location plan. • Special consideration: Intersection traffic 6-58 control along the event route. 19 6-57 • Example: Appendix K – Street control plan

6-59 POST-EVENT ACTIVITIES and equipment location plan. • Circulation problems due to lack of dedicated 20 6-16 parking facilities. • Consideration only for privately operated 21 6-20 parking areas. • Coordination with private parking area opera- 22 6-23 tors. • High volume of pedestrian traffic and continu- 23 6-28 • Special consideration: Pedestrian traffic. 6-27 ous circulation around the venue perimeter. • Special consideration: Disabled parking

24 6-32 • Strong consideration for this event category. 6-32 EVENT PROFILE spaces. • Consideration of detailed analysis (e.g., table- 25 6-9 top exercises) and modeling.

13-5 STEP EVENT-SPECIFIC REFERENCE INFORMATION EVENT-SPECIFIC ISSUES NO. PAGE TOPIC PAGE • High applicability of bicyclist accommodation, public transit incentives, and event/charter bus 7-2 to 26 service to this event category. 7-14 • Applicability of local travel demand management to downtown events. • Particularly applicable to managing event 27 7-6 departure rate. 28 6-72 • Emphasis on portable closed-circuit television, 29 6-61 field observation, and/or aerial observation. 30 6-70 31 7-14 • Key step for infrequent events.

• The event planning team can develop ment in addition to a contingency plan different traffic management plan com- checklist. ponents concurrently. IMPLEMENTATION AND The event operations planning process references information and concepts contained in DAY-OF-EVENT the advance planning section of this hand- ACTIVITIES book, and it directs the user to recommended

guidelines, procedures, strategies, and re- Implementation activities represent an source applications for managing travel for a essential phase in advance planning for specific planned special event. When fol- street use events. The traffic management lowing the process, practitioners should re- team may involve new interagency view: relationships, and it requires an event-

specific implementation plan to • Important advance planning considera- communicate specifics of the new traffic tions and external factors, summarized in management plan prepared by the event Chapter 5, that influence planning activi- planning team. Because particular street use ties. For instance, effective and rapid event types occur infrequently, stakeholder stakeholder review of event operations simulation exercises prove valuable in planning products requires: (1) an anno- assisting traffic management team personnel tated planning timeline, (2) a review understand the roles and responsibilities of process, and (3) performance standards. participating stakeholders in addition to the Under risk assessment, scenarios relating actions taken on the day-of-event. to unplanned demonstrations or event Equipment testing marks another key con- patron violence may warrant considera- sideration as day-of-event operations at and tion for a particular special event if law in the vicinity of the event site usually de- enforcement intelligence reports indicate pend on portable equipment for traffic con- such potential. trol, surveillance, and dissemination of en- • Section on “Special Considerations” in route traveler information. These intensive Chapter 6 with regard to controlling traf- stakeholder activities reflect the typical un- fic during a dignitary motorcade. familiarity with managing travel for a street • Traffic management plan components in use event coupled with the fact that trans- Chapter 6 that provide an overview of portation management activities, on the or- various principles driving plan develop- der required for a planned special event,

13-6 may not regularly take place in the vicinity day-of-event. Law enforcement officers of the event site. or other personnel properly trained in 13 traffic control should (1) direct traffic at Table 13-4 presents a checklist of imple- intersections adjacent to closed streets mentation and day-of-event activities for and (2) control pedestrian crossing loca- stakeholders to consider regarding any street tions. use event. As indicated in the table, the • Supplementing traffic management team event planning team must determine, based personnel with temporary staff and vol- on various event operations characteristics unteers may represent a necessary action OVERVIEW (e.g., event type, event location, event time to meet staffing requirements. Compe- of occurrence, attendance, market area, etc.) tent adult volunteers can monitor barri- and other external factors, what unique set cade placement and minor intersec- of activities apply in handling a specific tion/driveway approaches. Many volun- special event. The table facilitates fast ac- teers have no past experience in tasks as- cess to handbook sections providing detailed sociated with traffic and pedestrian con- guidance, including recommended strate- trol and parking operations. As a result, gies, protocol, and resource applications, volunteer training becomes paramount to required by users to plan and execute these the success of day-of-event operations. activities. Chapter 8 contains checklists and rele- ADVANCE PLANNING vant considerations for assessing per- Some distinguishing considerations of this sonnel resource needs and using volun- event category during the day-of-event ac- teers on the day-of-event. The chapter tivities phase include: also specifies volunteer training activities and summarizes basic functions re- • Street use events demand the use of ex- quired of all volunteers. perienced personnel in the field on the

Table 13-4 DAY-OF-EVENT ACTIVITIES Checklist of Implementation and Day-of-Event Activities for Street Use Events HANDBOOK APPLIES ACTION PAGE 8-2 • Develop an implementation plan. 8-6 • Conduct a stakeholder simulation exercise(s). 8-8 • Test equipment resources slated for use on the day-of-event. 8-9 • Recruit and train volunteers to fulfill personnel resource needs. 9-2 • Implement a traffic management team management process. POST-EVENT ACTIVITIES 9-4 • Designate a multi-agency command post. 9-6 • Conduct a traffic management plan evaluation(s) during the day-of-event. • Establish protocol for traffic management team officials to consider and im- 9-6 plement changes to the traffic management plan to accommodate real-time traffic conditions. 9-8 • Establish interagency communication protocol. 9-9 • Review communication equipment compatibility. 9-10 • Use the media to communicate with event patrons and other transportation users. EVENT PROFILE 9-12 • Perform traffic monitoring on the day-of-event.

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• The traffic management team likely in- future feasibility studies, and various cludes stakeholder representatives in- evaluation measures can identify specific volved in managing travel for a particu- areas that require improvement for fu- lar street use event type for the first time. ture, similar events using the same route. To ensure successful traffic management • The traffic management team must exer- plan deployment, the traffic management cise great care in collecting performance team must adopt a formal management evaluation data in order to ensure data process and establish an interagency quality and consistency. communication structure and protocol to support day-of-event operations. POST-EVENT • Other essential team management considerations involve (1) the designation of ACTIVITIES an Incident Commander for the planned special event and (2) the set up of a tem- All of the primary products of this phase, porary, multi-agency command post at particularly participant evaluations and post- or near the event site. event debriefings, apply to evaluating trans- • Traffic management team officials portation operations for street use events. should anticipate enacting modifications Given the infrequent occurrence of street use to the traffic management plan during events coupled with the scarcity of travel the street use event. forecast data, post-event activity results rep- • Surveillance information and perform- resent a key resource in planning for future ance evaluation data define transporta- street use events in a region. tion operation conditions and, thus, influence decision-making at a day-of- Table 13-5 presents a checklist of post-event event briefing. activities for street use events. The post- • Due to the challenge of estimating event- event activities section of this handbook generated traffic in the event feasibility provides detailed information on common study, day-of-event briefings should oc- techniques, special considerations, and rec- cur at frequent intervals during event in- ommended protocol that facilitate the activi- gress operations. Moreover, traffic ties listed in the table. management team officials should conduct an expanded briefing prior to the Some distinguishing considerations of this end of the event in order to reassess the event category during the post-event activi- traffic management and implementation ties phase include: plan for egress operations, taking into consideration traffic and pedestrian de- • In regard to participant evaluation, street mand observed during ingress in addi- use event patron travel surveys yield im- tion to traffic and transit operations on portant information and statistics that alternate routes. can assist practitioners in (1) improving • The collection and evaluation of trans- the accuracy of future street use event portation system performance data travel forecasts and (2) developing travel proves valuable in guiding decision- demand management incentives (e.g., making not only on the day-of-event but public transit incentives and ex- also for recurring street use events (e.g., press/charter bus services) for similar annual parades or street races). Stake- events. holders can archive raw data for use in

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Table 13-5 13 Checklist of Post-Event Activities for Street Use Events HANDBOOK APPLIES ACTION PAGE 10-2 • Review measures of effectiveness identified in event operations planning phase. 10-3 • Compile agency measures of effectiveness. 9-14 • Compile performance evaluation data. OVERVIEW 10-5 • Conduct stakeholder participant debriefing. 10-6 • Conduct event patron survey. 10-7 • Conduct public survey. 10-7 • Conduct a post-event debriefing meeting. 10-10 • Prepare a post-event report.

• Periodic public surveys warrant consid- o Considering the potential significant eration for special events under this time between similar event types, category as event performance evalua- stakeholders must chronicle partici- ADVANCE PLANNING tion data fails to assess all community pant survey results and debriefing impacts. Survey results alert special meetings so that those stakeholders event stakeholders of impacts to affected charged with managing travel for fu- residents and businesses, in addition to ture street use events can tap the non-attendee transportation system us- wisdom of past participants. ers, that may continue to occur with each • The occurrence of a major, recurring successive special event on a particular street use event warrants development or route. As a result, stakeholders can de- update of a post-event report. In turn,

velop and implement appropriate strate- the report can serve as a working docu- DAY-OF-EVENT ACTIVITIES gies (e.g., create/revise a standard street ment to assist in advance planning for use event route, revise alternate route the next (year’s) event. plans, etc.) and regulations to mitigate • A post-event report for a recurring street the identified impact(s) for future use event should include an operational planned special events. cost analysis to assist stakeholders in • Post-event debriefings represent a com- identifying potential cost-saving re- mon and recommended stakeholder ac- source deployment strategies for the next

tivity for street use events. event occurrence. POST-EVENT ACTIVITIES o On a regional level, such meetings may coincide with a regular traffic PROGRAM PLANNING incident management team meeting.

A key aspect of a post-event debrief- o ing for street use events involves Program planning activities involve the de- preparing detailed meeting minutes velopment of policies, programs, and initia- that include the identification of key EVENT PROFILE tives that facilitate improved planning and successes and lessons learned. In management of travel for future planned turn, findings may refine special special events. event permit program provisions for

future street use events.

13-9 Program planning for street use events in- • Two or more stakeholders, representing clude activities, as summarized in Table 13- multiple jurisdictions and/or disciplines, 6, on both a regional and local level. may establish a joint operations policy for managing travel for all planned spe- Some distinguishing considerations of this cial events in a region. event category during the program planning • Stakeholders may develop a standard phase include: route for all street use events of a certain type (e.g., parades, street races, etc.) that • A regional transportation committee on occur within a region or jurisdiction in planned special events considers the order to create a more efficient event op- planning and resource requirements of erations planning process for future street use events in connection with street use events. managing all planned special events in a • Because street use events occur infre- region. A primary committee focus con- quently and on the roadway system, an cerns facilitating interagency coordina- infrastructure needs assessment on the tion and collaboration. For instance, a program planning level should focus on task force may exist for a specific large- equipment and technology applications scale, recurring street use event that transferable to managing all planned works throughout the year to integrate special events in a region and/or day-to- past event successes and lessons learned day transportation system operations. into future event planning.

Table 13-6 Program Planning Activities for Street Use Events PAGE PRODUCT TOPIC NO. Institutional • Creation of a regional transportation committee on planned special events (e.g., 2-15 frameworks oversight team). 4-2 5-3 • Development of a formal planned special event permit program. 4-10 • Creation of a transportation operations task force for a recurring street use event. 5-3 • Development of a joint operations policy. 5-15 Policies and • Traffic and parking restrictions. 5-10 regulations • Standard street use event routes. 5-15 • Public-private towing agreements. 5-16 Infrastruc- • Planned alternate route for diverting background traffic around a venue. 6-40 ture • Portable traffic management system. 6-56 deployment • Express, charter or shuttle bus service. 6-32 7-11 7-12 • Telephone information systems. 7-17 • Public information campaign. 7-19

13-10

• A planned special event permit program

proves particularly effective for street 13 use events that, because of such characteristics as event attendance, event time of occurrence, and event location (e.g., route), may (1) conflict with municipal or state guidelines and regulations and (2) impact transportation operations and

the community. The program specifies a OVERVIEW permit process, coupled with supporting restrictions and requirements, that allows stakeholders to plan and assess all types of street use events within a common framework. For instance, stakeholder review of a proposed event route represents one step in the permit process in addition to a key decision criteria for rendering permit application approval. A section on program planning for local ADVANCE PLANNING planned special events in Chapter 4 provides complete and in-depth coverage on developing a permit program applicable to street use events. • Funding represents a key public agency consideration for street use events in the program planning phase. o Commercial events may involve

event organizers and participants DAY-OF-EVENT ACTIVITIES from outside the community hosting the event. o Prior to initiating event operations planning activities for a specific street use event, stakeholders should establish a funding mechanism for recovering costs incurred in provid-

ing services during the event opera- POST-EVENT ACTIVITIES tions planning phase and resources (e.g., namely personnel for traffic control) on the day-of-event. o Funding often represents a requirement of a comprehensive planned special event permit program.

EVENT PROFILE

13-11 THIS PAGE LEFT BLANK

13-12

CHAPTER FOURTEEN 14 REGIONAL/MULTI-VENUE EVENT OVERVIEW ADVANCE PLANNING

Figure 14-1 Regional/Multi-Venue Event: Bradley Center, U.S. Cellular Arena, and Midwest Airlines Center (convention center) Adjacent to 4th Street in Milwaukee, WI

DAY-OF-EVENT ACTIVITIES

PURPOSE necessary to manage travel for a planned special event, this chapter provides a road-

map to help guide the user through all five In order to assist the user in planning for a phases of managing travel for planned spe- particular planned special event, this chapter cial events, identifying issues, analysis, and describes an advance planning and travel products applicable to regional/multi-venue management process and considerations

events. To further guide readers, this chap- POST-EVENT ACTIVITIES specific to a regional/multi-venue event. It ter specifies references to special considera- summarizes recommended policies, guide- tions and best practices relating to this event lines, procedures, and resource applications category. that were previously discussed in the first ten chapters of this technical reference. This chapter presents these guidelines and proce- INTRODUCTION dures in tables, flowcharts, and checklists that can be followed to help guide the user In order to guide the user, this chapter ad- EVENT PROFILE through all the stages of a planned special dresses four key topics, corresponding to event of this category for a particular locale. five phases of managing travel for planned Although Chapter 3 presents all the steps special events, including: (1) event opera-

14-1 tions planning, (2) implementation and day- Table 14-2 of-event activities, (3) post-event activities, Distinguishing Operating Characteristics of and (4) program planning. In planning for a Regional/Multi-Venue Event all planned special events in a region, the CHARACTERISTIC final section on program planning highlights • Occurrence of events at multiple venues and issues to consider that evolve from and/or at or near the same time • Events having a time specific duration, a con- pertain to regional/multi-venue events. By tinuous duration, or both following each one of the steps and proce- • Overall capacity generally not known if con- dures, the user will have identified and cov- tinuous events or street use events are in- ered all the significant aspects that are nec- volved essary to result in successful management of travel for a planned special event with char- Special Considerations acteristics specific to a regional/multi-venue event. In light of the characteristics of a regional/multi-venue event, special considera- A regional/multi-venue event refers to mul- tions when planning such an event include: tiple planned special events that occur within a region at or near the same time. • Traffic flow routes to/from different Individual events may differ by classifica- events may use the same road segments, tion category. Table 14-1 indicates different and predominant traffic demand occurs types of planned special events classified as in the same or opposite directions. a regional/multi-venue event. Concurrent • Traffic flow routes that serve different planned special events require consideration special event venues may intersect. as a regional/multi-venue event if traffic • Overflow parking areas typically re- generated by different, competing special served for a recurring special event or events use the same traffic flow routes (e.g., permanent venue may be required to ac- freeway/arterial corridors, local streets) or commodate demand from nearby con- parking areas over the same time frame. As current events. a result, stakeholders involved in planning • Ingress and egress operations for concur- and managing individual special events rent events may occur at the same time. must, as a group, forecast and mitigate the • Event patrons and participants may global impact of concurrent special events travel from one planned special event to on transportation system operations. Table another. 14-2 lists key characteristics of a re- • Traffic control and traveler information gional/multi-venue event. for different special events can confuse

event patrons. Table 14-1

Types of Regional/Multi-Venue Events EVENT TYPE EVENT OPERATIONS • Occurrence of a single-theme event requiring multiple venues to stage the event PLANNING • Occurrence of a downtown parade or festival in the vicinity of a downtown fixed venue also Planned regional/multi-venue events in- hosting a special event clude, for example, multi-day sporting • Occurrence of special events at two fixed games (e.g., Olympic style) that require venues in a region at or near the same time multiple venues to stage various events and

major fireworks displays in areas offering

14-2 several vantage points (e.g., parks, etc.) operations planning for a regional/multi- spread out over a large area. Other revenue event requires input and participation 14 gional/multi-venue events evolve as a result by all involved stakeholder groups. Public of individual planned special events slated to agency stakeholders responsible for the occur within a region at or near the same planning or approval of individual venue time. These events involve any combination events should facilitate interaction between of discrete/recurring events at a permanent event planning teams and ensure mitigation venue, continuous events, and street use of transportation and community impacts events. As a result, the collective re- from the composite regional/multi-venue OVERVIEW gional/multi-venue event often represents a event. one-time occurrence, particularly if one or more individual events involve a sporting or Figure 14-2 presents 31 steps in the event concert event. Concurrent events may span operations planning process for all planned one day or multiple days. special events. The flowchart covers development and integration of the phase’s The scope and infrequent occurrence of a aforementioned three products. Table 14-3 regional/multi-venue event generally re- complements the flowchart by providing quires the event planning team(s) to de- step-by-step guidance on issues and recom- velop: (1) a feasibility study, (2) a traffic mended analyses for a regional/multi-venue ADVANCE PLANNING management plan, and (3) travel demand event. The table also presents reference in- management initiatives (as necessary) in the formation contained in this handbook that is event operations planning phase. The over- specific to regional/multi-venue events. all event operations planning approach for a While all of the major handbook topics un- regional/multi-venue event remains the same der event operations planning apply to a re- for all event types. That is, the event plan- gional/multi-venue event, Table 14-3 indi- ning team should first develop preliminary cates planning considerations and agency event operations products on a venue-by- example applications (e.g., via narratives or venue basis and then combine and evaluate figures) within the context of this event DAY-OF-EVENT ACTIVITIES venue-specific findings and recommended category. In turn, practitioners can use ex- mitigation actions for the regional/multi- ample applications presented for a revenue event. The latter step helps to deter- gional/multi-venue event to manage travel mine: (1) additional transportation system for other categories of planned special capacity constraints not identified in indi- events. vidual event/venue analyses, (2) potential conflicts in event/venue traffic management The flowchart in Figure 14-2 represents a plan provisions, and (3) additional mitiga- suggested order of event operations planning POST-EVENT ACTIVITIES tion measures designed to improve transpor- activities. However, as noted below, the tation operations for the overall re- event planning team can modify activities to gional/multi-venue event. create a dynamic and more effective planning process tailored to the scope of a spe- A regional/multi-venue event places an em- cific planned special event: phasis on interagency coordination and collaboration. Each venue event may involve a EVENT PROFILE distinct group of planning and operations stakeholders if individual events within a region do not relate to each other. Event

14-3 Initiate Feasibility Study

26 1 2 TDM and Modal Transit Service Transit Service Split

3 Event Traffic Generation

27 4 Event Patron Traffic Arrival and Incentives Departure Rate

5 Market Area Analysis

6 9 Parking Demand Shuttle Bus Analysis Service

7 10 Traffic Demand Lot Analysis Assignment

17 18 19 23 24 Freeway Street Intersection Pedestrian Disabled Traffic Control Traffic Control Traffic Control Control Accessibility

25 Analysis and Modeling

28 Traffic Incident Management

KEY: 29 Traffic Planning En-Route Traveler Information Parking Planning 30 Traffic Transit Planning Surveillance

31 Pre-Trip Traveler Information

Advance to Implementation Activities

Figure 14-2 Event Operations Planning Process Flowchart

14-4

Table 14-3 Event Operations Planning Steps 14 Regional/Multi-Venue Event STEP EVENT-SPECIFIC REFERENCE INFORMATION EVENT-SPECIFIC ISSUES NO. PAGE TOPIC PAGE 1 5-20 • Performance of step for each individual event. • Potential financial incentive for transit service 2 7-9 to expand service or provide express/charter service. 3 5-21 • Performance of step for each individual event.

4 5-22 • Performance of step for each individual event. OVERVIEW 5 5-25 • Performance of step for each individual event. • Special consideration: Parking demand analy- 5-27 sis. • Variable demand rates from different events. • Special consideration: Shared parking opera- 6 5-27 • Staggering of event times creates continuous 5-27 tion. turnover over the course of the day-of-event. • Example: Parking occupancy summary; Table 5-29 5-17. • Example: Preliminary road segment capacity 7 5-29 • Performance of step for each individual event. 5-30 analysis; Figure 5-13. 8 5-30 • Analysis of multiple time periods. • Design of service specific to individual parking areas or events. • Establish service, as necessary, to accommo- 9 6-32 date satellite parking areas (e.g., event patron ADVANCE PLANNING and employee parking), transit stations, and event participants (e.g., to/from area hotels). • Conflict concerning multiple events using one 10 6-13 lot. 11 6-38 • Multiple events using the same traffic flow 12 6-38 route. 13 6-40 14 6-41 • Evaluation of needs for each individual event. • Key consideration if road closures are required 15 6-43 to stage an event(s). 16 6-45

17 6-49 DAY-OF-EVENT ACTIVITIES 18 6-51 19 6-57 • Circulation conflicts caused by multiple events 20 6-16 in the same area. 21 6-20 • Circulation conflicts caused by multiple events • Example: Parking occupancy monitoring plan; 22 6-23 6-24 in the same area. Table 6-11. • Consideration of pedestrian access routes that 23 6-28 connect different venues. 24 6-32 • Consideration of detailed analysis (e.g., table- 25 6-9 POST-EVENT ACTIVITIES top exercises) and modeling. • Example: Local travel demand management 7-2 to • High applicability of all travel demand man- 7-8 26 techniques. 7-14 agement initiatives to this event category. • Example: Express bus service. 7-11 27 7-6 • Performance of step for each individual event. • Example: Event patron incentives; Figure 7-5. 7-7 • Key consideration for freeway corridors within • Example: Traffic incident quick clearance 28 6-72 6-75 a region. strategies; Table 6-40. 29 6-61 30 6-70 • Example: Dissemination of pre-trip traveler 7-17 EVENT PROFILE information via the Internet. 31 7-14 • Key step for infrequent events. • Example: Use of 511 service for a planned 7-18 special event.

14-5 • The event planning team should repeat IMPLEMENTATION AND process steps, as indicated in Table 14-3, for individual venue events comprising DAY-OF-EVENT the regional/multi-venue event. ACTIVITIES • Final planning products should account for the overall impact of the re- Implementation activities represent an es- gional/multi-venue event. sential phase in advance planning for re- • Links between process steps are two- gional/multi-venue events. Depending on way as stakeholders evaluate alternative event type, one traffic management team strategies and/or integrate traffic man- may handle day-of-event operations for mul- agement plan components. tiple venues (e.g., sporting games) or a sin- • The event planning team can develop gle venue. Nonetheless, implementation different traffic management plan com- plans for individual event venues must cor- ponents concurrently. relate in terms of traffic control strategies deployed and resources used. Such specifi- The event operations planning process refer- cations can be organized through matrices ences information and concepts contained in for easy reference. the advance planning section of this handbook, and it directs the user to recommended Because regional/multi-venue events occur guidelines, procedures, strategies, and re- infrequently, stakeholder simulation exer- source applications for managing travel for a cises prove valuable in assisting traffic man- specific planned special event. When fol- agement team supervisors and field person- lowing the process, practitioners should re- nel understand the roles and responsibilities view: of participating stakeholders in addition to the operations game plan and actions for in- • Advance planning and travel manage- dividual venue events. Tabletop exercises ment process and considerations pro- allow traffic management team officials to vided in Chapters 11 through 13, as ap- review the impact of certain event-specific propriate, for individual venue events action plans on other concurrent events. A comprising the regional/multi-venue full-scale simulation proves advantageous event. by providing venue managers and transpor- • Important advance planning considera- tation operators, stationed at various com- tions and external factors, summarized in mand posts (e.g., on-site and at the transpor- Chapter 5, that influence planning activi- tation management center), with the oppor- ties. tunity to test the communications infrastruc- • Section on “Special Considerations” in ture used on the day-of-event. These inten- Chapter 6 with regard to transporting sive stakeholder activities reflect the typical dignitaries and event participants. unfamiliarity with managing travel for a re- • Traffic management plan components in gional/multi-venue event coupled with the Chapter 6 that provide an overview of fact that transportation management activi- various principles driving plan develop- ties usually performed for a particular, re- ment in addition to a contingency plan curring special event may require modifica- checklist. tion to accommodate nearby concurrent planned special events.

14-6

Table 14-4 presents a checklist of event category during the day-of-event ac- implementation and day-of-event activities tivities phase include: 14 for stakeholders to consider regarding any regional/multi-venue event. The event plan- • The scope of regional/multi-venue ning team must determine, based on various events demand a significant level of per- event operations characteristics (e.g., event sonnel resources. Supplementing traffic type, event location, event time of occur- management team personnel with tem- rence, attendance, market area, etc.) and porary staff and volunteers may repre- other external factors, what unique set of sent a necessary action to meet staffing OVERVIEW activities apply in handling all venue events requirements for all concurrent special comprising a regional/multi-venue special events. Many volunteers have no past event. In turn, stakeholders should review experience in tasks associated with traf- the special considerations and recommended fic and pedestrian control and parking activities presented in Chapters 11 through operations. As a result, volunteer train- 13 for pertinent individual special events. ing becomes paramount to the success of The table facilitates fast access to handbook day-of-event operations. Chapter 8 con- sections providing detailed guidance, includ- tains checklists and relevant considera- ing recommended strategies, protocol, and tions for assessing personnel resource resource applications, required by users to needs and using volunteers on the day- ADVANCE PLANNING plan and execute these activities. of-event. The chapter also specifies volunteer training activities and summarizes Some distinguishing considerations of this basic functions required of all volunteers.

Table 14-4

Checklist of Implementation and Day-of-Event Activities for Regional/Multi-Venue Events DAY-OF-EVENT ACTIVITIES HANDBOOK APPLIES ACTION PAGE 8-2 • Develop an implementation plan. 8-6 • Conduct a stakeholder simulation exercise(s). 8-8 • Test equipment resources slated for use on the day-of-event. 8-9 • Recruit and train volunteers to fulfill personnel resource needs. 9-2 • Implement a traffic management team management process. 9-4 • Designate a multi-agency command post. 9-6 • Conduct a traffic management plan evaluation(s) during the day-of-event. POST-EVENT ACTIVITIES • Establish protocol for traffic management team officials to consider and 9-6 implement changes to the traffic management plan to accommodate real- time traffic conditions. 9-8 • Establish interagency communication protocol. 9-9 • Review communication equipment compatibility. 9-10 • Use the media to communicate with event patrons and other transportation users. EVENT PROFILE 9-12 • Perform traffic monitoring on the day-of-event.

14-7

• Multi-venue events may strain available fluence decision-making at a day-of- stakeholder resources needed to manage event briefing. travel in the vicinity of a particular event • Day-of-event briefings should occur at venue; therefore, traffic management key breakpoints, such as at the end of team officials should reconfirm the ingress/egress operations for a particular availability of necessary traffic control venue event, during a regional/multi- and communications equipment prior to venue event. This allows traffic man- the day-of-event. agement team officials to reassess the • To ensure successful traffic management traffic management and implementation plan deployment and coordination across plan for all concurrent events and make all venue locations, the traffic manage- revisions as necessary. ment team(s) must establish an interagency communication structure and POST-EVENT protocol to support regional/multi-venue event operations on the day-of-event. ACTIVITIES • Other essential team management considerations involve the set up of a com- Table 14-5 presents a checklist of post-event mand post, most likely at a regional activities for regional/multi-venue events. transportation management center, for The post-event activities section of this monitoring and managing all venue handbook provides detailed information on events. common techniques, special considerations, • Traffic management team officials and recommended protocol that facilitate the should anticipate enacting modifications activities listed in the table. to the traffic management plan(s) during the regional/multi-venue event. Some distinguishing considerations of this • Surveillance information and perform- event category during the post-event activi- ance evaluation data define transporta- ties phase include: tion operation conditions and, thus, in-

Table 14-5 Checklist of Post-Event Activities for Regional/Multi-Venue Events HANDBOOK APPLIES ACTION PAGE 10-2 • Review measures of effectiveness identified in event operations planning phase. 10-3 • Compile agency measures of effectiveness. 9-14 • Compile performance evaluation data. 10-5 • Conduct stakeholder participant debriefing. 10-6 • Conduct event patron survey. 10-7 • Conduct public survey. 10-7 • Conduct a post-event debriefing meeting. 10-10 • Prepare a post-event report.

14-8

event occurrence either in the host re- • With regard to regional/multi-venue 14 events consisting of individual non- gion or another locale (e.g., for roving related venue events occurring at or near regional/multi-venue events). the same time, stakeholders may conduct post-event activities specific to individ- PROGRAM PLANNING ual events.

• Practitioners should reference the post- OVERVIEW event activities guidelines and considera- Program planning activities involve the de- tions contained in Chapters 11 through velopment of policies, programs, and initia- 13, as appropriate, for individual venue tives that facilitate improved planning and events comprising the regional/multi- management of travel for future planned venue event. special events. • Post-event debriefings represent a common and recommended stakeholder ac- Program planning for regional/multi-venue tivity for all regional/multi-venue events. events include activities, as summarized in o On a regional level, such meetings Table 14-6, aimed at facilitating interagency may coincide with a regular traffic

coordination both during the event opera- ADVANCE PLANNING incident management team meeting. tions planning phase and on the day-of-event o The meeting agenda should include when concurrent venue events take place. discussion topics on the planning Practitioners should reference program process, interagency communication, planning activities contained in Chapters 11 and coordination of travel manage- through 13, as appropriate, for individual ment activities among individual venue events comprising the regional/multi- venue events on the day-of-event. venue event. These handbook chapters also o A key aspect of a post-event debrief- describe and recommend various considera- ing for regional/multi-venue events tions concerning policies, regulations, and involves preparing detailed meeting infrastructure deployment potentially appli- DAY-OF-EVENT ACTIVITIES minutes that include the identifica- cable to recurring, single-theme re- tion of key successes and lessons gional/multi-venue events. learned. o Considering the potential significant Some distinguishing considerations of this time between regional/multi-venue event category during the program planning events, stakeholders must chronicle phase include: debriefing meetings so that those POST-EVENT ACTIVITIES stakeholders charged with managing • A regional transportation committee on travel for future events can tap the planned special events considers the wisdom of past participants. planning and resource requirements of • The occurrence of a major, single-theme regional/multi-venue events in connec- regional/multi-venue event warrants par- tion with managing all planned special ticipant evaluations and the development events in a region. A primary committee of a post-event report. Given the infre- focus concerns facilitating interagency quent occurrence of this event type, coordination and collaboration. For in- EVENT PROFILE post-event activity results represent a stance, the committee may form a task key resource in planning for the next force if stakeholders expect that multiple

14-9 Table 14-6 Program Planning Activities for Regional/Multi-Venue Events PAGE PRODUCT TOPIC NO. Institutional • Creation of a regional transportation committee on planned special events (e.g., 2-15 frameworks oversight team). 4-2 5-3 • Development of a formal planned special event permit program. 4-10 • Creation of a transportation operations task force for a regional/multi-venue event. 5-3 • Development of a joint operations policy. 5-15 • Development of a mutual-aid agreement to facilitate resource sharing. 5-15

venue events will impact the same traffic cial event if it conflicts with another flow routes and/or parking areas over the planned special event. A section on pro- same time frame, thus requiring planning gram planning for local planned special and operation as a regional/multi-venue events in Chapter 4 provides complete event. and in-depth coverage on developing a • Two or more stakeholders, representing permit program applicable to re- multiple jurisdictions and/or disciplines, gional/multi-venue events and other may establish a joint operations policy to planned special event categories, notably ensure a cooperative effort in managing continuous events and street use events. travel for all planned special events in a • Funding represents a key public agency region. consideration for regional/multi-venue • Stakeholders may develop a mutual-aid events in the program planning phase. agreement to facilitate resource sharing o Commercial events may involve and/or reimbursement for services in or- event organizers and participants der to handle future planned special from outside the community hosting events, particularly events under this the event. category. o Prior to initiating event operations • A planned special event permit program planning activities for a specific re- proves particularly effective for regional/multi-venue event, stake- gional/multi-venue events that, because holders should establish a funding of such characteristics as event atten- mechanism for recovering costs in- dance, event times of occurrence, and curred in providing services during event locations may (1) conflict with the event operations planning phase municipal or state guidelines and regula- and resources on the day-of-event. tions and (2) impact transportation op- o Funding often represents a require- erations and the community. For in- ment of a comprehensive planned stance, permit regulations may restrict special event permit program. the approval of a particular planned spe-

14-10

CHAPTER FIFTEEN 15 RURAL EVENT OVERVIEW ADVANCE PLANNING

Figure 15-1 Rural Event: U.S. Open Championship in Southampton, NY

DAY-OF-EVENT ACTIVITIES PURPOSE manage travel for a planned special event, this chapter provides a roadmap to help

guide the user through all five phases of In order to assist the user in planning for a managing travel for planned special events, particular planned special event, this chapter identifying issues, analysis, and products describes an advance planning and travel applicable to rural events. To further guide management process and considerations readers, this chapter specifies references to specific to a rural event. It summarizes rec-

best practices relating to this event category. POST-EVENT ACTIVITIES ommended policies, guidelines, procedures, and resource applications that were previously discussed in the first ten chapters of INTRODUCTION this technical reference. This chapter presents these guidelines and procedures in ta- In order to guide the user, this chapter ad- bles, flowcharts, and checklists that can be dresses four key topics, corresponding to followed to help guide the user through all five phases of managing travel for planned the stages of a planned special event of this special events, including: (1) event opera- EVENT PROFILE category for a particular locale. Although tions planning, (2) implementation and day- Chapter 3 presents all the steps necessary to of-event activities, (3) post-event activities,

15-1 and (4) program planning. In planning for In light of the characteristics of a rural all planned special events in a region, the event, special considerations when planning final section on program planning highlights such an event include: issues to consider that evolve from and/or • Need for stakeholders to assume new pertain to rural events. By following each and/or expanded roles. one of the steps and procedures, the user • Need to work closely with all affected will have identified and covered all the sig- stakeholders in order: (1) to gain their nificant aspects that are necessary to result help in identifying concerns and (2) to in successful management of travel for a introduce them to mitigation measures planned special event with characteristics that they may be unfamiliar with due to specific to a rural event. the rural nature of the area. • Need to work closely with involved A rural event encompasses any dis- stakeholders so that a trust relationship is crete/recurring event or continuous event established, thus lessening sensitive feel- that occurs in a rural area. Table 15-1 indi- ings of an outsider coming in and impos- cates different types of planned special ing initiatives that could overlook the events classified as a rural event. Rural significance of local issues. events collectively have the event operation • Existence of limited road capacity to ac- characteristics of discrete/recurring events at cess the event venue and potentially lim- a permanent venue and continuous events ited parking capacity at the venue. with one notable exception; rural events take • Existence of fewer alternate routes to place in rural areas. Table 15-2 lists key accommodate event and background characteristics of a rural event. traffic. Table 15-1 • Lack of regular transit service and hotels Types of Rural Events near the venue. EVENT TYPE • Existence of limited or no permanent • Fairs and festivals in rural areas infrastructure for monitoring and manag- • Events at a rural amphitheater ing traffic. • Events at a rural race track venue • Generation of trips from a multi-county • Professional golf tournaments in rural areas region.

Table 15-2 Distinguishing Operating Characteristics of EVENT OPERATIONS a Rural Event CHARACTERISTIC PLANNING • Rural or rural/tourist area • High attendance events attracting event pa- The scope and infrequent/one-time occur- trons from a regional area rence of a high-attendance rural event, cou- • Limited roadway capacity serving an event pled with the typical limited capacity of venue transportation systems in rural areas, re- • Area lacking regular transit service quires the event planning team to develop: • Events having either a time specific duration or continuous duration (1) a feasibility study, (2) a traffic management plan, and (3) travel demand manage- Special Considerations ment initiatives (as necessary) in the event operations planning phase. The stakeholder

composition of an event planning team var-

15-2

ies by event, as some rural events represent event planning team can modify activities to community or not-for-profit events while create a dynamic and more effective plan- others involve commercial dealings. In re- ning process tailored to the scope of a spe- 15 gard to a community-sponsored special cific planned special event: event, transportation and/or law enforcement agencies usually bear the responsibility of • A jurisdiction planned special event developing all of the necessary event plan- permit process and requirements will ning phase products. Recurring rural events, scope, schedule, and direct event operations planning activities for rural events,

such as an annual festival or auto race, per- OVERVIEW mit stakeholders to reference a past feasibil- particularly continuous events occurring ity study and traffic management plan, cou- in rural areas. pled with operations successes and lessons • Based on lessons learned from past spe- learned, when conducting advance planning cial events at a particular permanent activities for a future event. However, due venue, stakeholders may program new to the significant time between recurring ru- infrastructure or adopt new policies (e.g., ral events, the event planning team must an- parking restrictions) early in the event ticipate (1) changes in the operations charac- operations planning process. teristics of a future event, (2) modifications • Links between process steps are two-

to the transportation system serving the way as stakeholders evaluate alternative ADVANCE PLANNING event, and (3) changes in the community strategies and/or integrate traffic man- (e.g., land use, socioeconomic, regulations, agement plan components. etc.). • The event planning team can develop different traffic management plan com- Figure 15-2 presents 31 steps in the event ponents concurrently. operations planning process for all planned special events. The flowchart covers devel- The event operations planning process refer- opment and integration of the phase’s ences information and concepts contained in aforementioned three products. Table 15-3 the advance planning section of this hand- DAY-OF-EVENT ACTIVITIES complements the flowchart by providing book, and it directs the user to recommended step-by-step guidance on issues and recom- guidelines, procedures, strategies, and re- mended analyses for a rural event. The table source applications for managing travel for a also presents reference information con- specific planned special event. When fol- tained in this handbook that is specific to lowing the process, practitioners should re- rural events. While all of the major hand- view: book topics under event operations planning • Advance planning and travel manage-

apply to a rural event, Table 15-3 indicates POST-EVENT ACTIVITIES agency example applications (e.g., via narra- ment process and considerations pro- tives or photos) within the context of this vided in Chapters 11 and 12 depending event category. In turn, practitioners can on the type of rural event. use example applications presented for a ru- • Important advance planning considera- ral event to manage travel for other catego- tions and external factors, summarized in ries of planned special events. Chapter 5, that influence planning activities. For instance, effective and rapid EVENT PROFILE The flowchart in Figure 15-2 represents a stakeholder review of event operations suggested order of event operations planning planning products requires: (1) an activities. However, as noted below, the

15-3 Initiate Feasibility Study

26 1 2 TDM and Modal Transit Service Transit Service Split

3 Event Traffic Generation

27 4 Event Patron Traffic Arrival and Incentives Departure Rate

5 Market Area Analysis

6 9 Parking Demand Shuttle Bus Analysis Service

7 10 Traffic Demand Lot Analysis Assignment

17 18 19 23 24 Freeway Street Intersection Pedestrian Disabled Traffic Control Traffic Control Traffic Control Control Accessibility

25 Analysis and Modeling

28 Traffic Incident Management

KEY: 29 Traffic Planning En-Route Traveler Information Parking Planning 30 Traffic Transit Planning Surveillance

31 Pre-Trip Traveler Information

Advance to Implementation Activities

Figure 15-2 Event Operations Planning Process Flowchart

15-4

Table 15-3 Event Operations Planning Steps Rural Event 15 STEP EVENT-SPECIFIC REFERENCE INFORMATION EVENT-SPECIFIC ISSUES NO. PAGE TOPIC PAGE • Example: Commuter rail service as alternative 1 5-20 • Consideration of 100% automobile trips. 5-20 mode of travel; Figure 5-6. • Public transit not existing or serving area 2 7-9 surrounding the venue location. • Influence of seasonal population on atten- 3 5-21 dance.

4 5-22 OVERVIEW • Larger market area for high attendance events. 5 5-25 • Origins of area visitors attending the event. • Use of off-site parking areas. 6 5-27 • Likely use of unpaved parking areas. 7 5-29 • Detailed analysis of roadways providing ac- 8 5-30 cess to event venue and parking areas. • Example: On-site shuttle bus station; Figure 6- 9 6-32 6-35 28. • Low capacity local traffic flow routes serving 10 6-13 multiple parking areas. 11 6-38 12 6-38 13 6-40 ADVANCE PLANNING 14 6-41 • Impact of high attendance events on back- 15 6-43 ground traffic flow. 16 6-45 • Example: Exclusive bus route; Figure 6-36. 6-46 • Special consideration: Alternative lane opera- 6-54 tions for freeways. • Example: Portable changeable message sign; 17 6-49 6-50 Figure 6-38. • Example: Appendix K – Equipment location 6-59 plan. • Example: Temporary reversible lane opera- 6-1 tion; Figure 6-1.

• Example: Route marker signs; Figures 6-46 6-55 and DAY-OF-EVENT ACTIVITIES 18 6-51 and 6-47. 6-56 • Example: Appendix K – Equipment location 6-59 plan. • Example: Positive traffic control; Figure 6-54. 6-58 19 6-57 • Example: Appendix K – Equipment location 6-59 plan. • Presence of few roadways providing access to • Example: Roadway shoulder utilization; Fig- 6-18 venues and adjacent parking areas. ure 6-9. • Consideration of strategies to increase the • Example: Strategy for effecting parking area 6-20 20 6-16 capacity of site access roads and parking area egress.

access points. • Example: Striping additional exit lanes on POST-EVENT ACTIVITIES • Potential for event patrons to park illegally on parking area access roads for egress; Figure 6- 6-20 site access road shoulders. 11. • Example: Minimizing pedestrian/vehicular 21 6-20 • Likely use of unpaved parking areas. 6-23 conflicts in parking areas; Figure 6-14. 22 6-23 • Likely lack of sufficient existing pedestrian • Example: Temporary pedestrian bridge; Figure facilities within area surrounding the event 6-23. 23 6-28 6-31 site. • Emphasis on pedestrian safety.

24 6-32 • Strong consideration for temporary venues. EVENT PROFILE • Consideration of detailed analysis (e.g., table- 25 6-9 top exercises) and modeling for high attendance events.

15-5 STEP EVENT-SPECIFIC REFERENCE INFORMATION EVENT-SPECIFIC ISSUES NO. PAGE TOPIC PAGE • High applicability of high occupancy vehicle 7-2 to 26 incentives, local travel demand management, 7-14 and charter bus service to this event category. 27 7-6 • Roadway network serving the event likely not • Example: Portable lighting; Figure 6-58. 6-73 lighted. 28 6-72 • Example: Congestion warning sign; Figure 6- • Consideration of quick clearance initiatives to 6-73 59. avoid breakdown of critical traffic flow routes. • Emphasis on portable roadside traveler infor- 29 6-61 mation devices. • Emphasis on portable closed-circuit television, 30 6-70 field observation, and/or aerial observation. • Communication to a regional audience. • Event patrons likely unfamiliar with roadways 31 7-14 and the transportation system serving the event.

annotated planning timeline, (2) a review Because particular rural event types occur process, and (3) performance standards. infrequently, stakeholder simulation exer- Under risk assessment, scenarios relating cises prove valuable in assisting traffic man- to excessive overcrowding may warrant agement team personnel understand the consideration if planning for a sporting roles and responsibilities of participating or concert event. stakeholders in addition to the actions taken • Traffic management plan components in on the day-of-event. Exercises must involve Chapter 6 that provide an overview of field staff, some of whom represent person- various principles driving plan develop- nel obtained temporarily from other regions ment in addition to a contingency plan for the purpose of increasing local stake- checklist. holder (e.g., state police, etc.) staff for an event. Temporary staff, although possibly experienced in traffic control, usually do not IMPLEMENTATION AND have familiarity with the local transportation DAY-OF-EVENT system or roadways in the vicinity of the venue site. Equipment testing marks an- ACTIVITIES other key consideration as day-of-event operations at and in the vicinity of the event Implementation activities represent an site usually depend on portable equipment essential phase in advance planning for rural for traffic control, surveillance, and dis- events. The traffic management team may semination of en-route traveler information. involve new interagency relationships, and it These intensive stakeholder activities reflect requires an event-specific implementation the typical unfamiliarity with managing plan to communicate specifics of the new travel for a rural event coupled with the fact traffic management plan prepared by the that transportation management activities, event planning team. Stakeholder develop- on the order required for a planned special ment of implementation plan details for an event, may not regularly take place in the event at a permanent venue focuses on vicinity of the event site. transportation operation successes and lessons learned for previous, similar events at Table 15-4 presents a checklist of imple- the subject venue. mentation and day-of-event activities for

15-6

Table 15-4 Checklist of Implementation and Day-of-Event Activities for Rural Events HANDBOOK APPLIES 15 ACTION PAGE 8-2 • Develop an implementation plan. 8-6 • Conduct a stakeholder simulation exercise(s). 8-8 • Test equipment resources slated for use on the day-of-event. 8-9 • Recruit and train volunteers to fulfill personnel resource needs. 9-2 • Implement a traffic management team management process.

9-4 • Designate a multi-agency command post. OVERVIEW 9-6 • Conduct a traffic management plan evaluation(s) during the day-of-event. • Establish protocol for traffic management team officials to consider and im- 9-6 plement changes to the traffic management plan to accommodate real-time traffic conditions. 9-8 • Establish interagency communication protocol. 9-9 • Review communication equipment compatibility. 9-10 • Use the media to communicate with event patrons and other transportation users. 9-12 • Perform traffic monitoring on the day-of-event.

ADVANCE PLANNING

stakeholders to consider regarding any rural • The scope of high-attendance rural event. As indicated in the table, the event events demand personnel resources that planning team must determine, based on may exceed the level of available staff various event operations characteristics from local event stakeholders. Supple- (e.g., event type, event location, event time menting traffic management team per- of occurrence, attendance, market area, etc.) sonnel with temporary staff and volun-

and other external factors, what unique set teers may represent a necessary action to DAY-OF-EVENT ACTIVITIES of activities apply in handling a specific meet staffing requirements for rural spe- special event. In addition, stakeholders cial events. Many volunteers have no should review the special considerations and past experience in tasks associated with recommended activities presented in Chap- traffic and pedestrian control and park- ters 11 and 12 for discrete/recurring events ing operations. As a result, volunteer at a permanent venue and continuous events, training becomes paramount to the suc- respectively, as appropriate based on the cess of day-of-event operations. Chapter

type of rural event. The table facilitates fast 8 contains checklists and relevant con- POST-EVENT ACTIVITIES access to handbook sections providing de- siderations for assessing personnel re- tailed guidance, including recommended source needs and using volunteers on the strategies, protocol, and resource applica- day-of-event. The chapter also specifies tions, required by users to plan and execute volunteer training activities and summa- these activities. rizes basic functions required of all volunteers.

Some distinguishing considerations of this • The traffic management team likely in- EVENT PROFILE event category during the day-of-event ac- cludes stakeholder representatives in- tivities phase include: volved in managing travel for a particular rural event type for the first time. To

15-7 ensure successful traffic management holders can archive raw data for use in plan deployment, the traffic management future feasibility studies, and various team must adopt a formal management evaluation measures can identify specific process and establish an interagency areas that require improvement for fu- communication structure and protocol to ture, similar events. support day-of-event operations. • The traffic management team must exer- • Other essential team management concise great care in collecting performance siderations involve (1) the designation of evaluation data in order to ensure data an Incident Commander for the planned quality and consistency. special event and (2) the set up of a temporary, multi-agency command post at POST-EVENT or near the event venue. • Traffic management team officials ACTIVITIES should anticipate enacting modifications to the traffic management plan during All of the primary products of this phase the rural event. (e.g., participant evaluation, post-event de- • Surveillance information and perform- briefing, and post-event report) have a high ance evaluation data define transporta- level of applicability to rural events. Given tion operation conditions and, thus, in- the infrequent occurrence of rural events fluence decision-making at a day-of- coupled with the scarcity of travel forecast event briefing. Given the typical lack of data, post-event activity results represent a transportation management centers in ru- key resource in planning for future rural ral areas, transportation system operators events in a region. usually monitor system operations from the event command post using portable Table 15-5 presents a checklist of post-event equipment (e.g., laptop computers, de- activities for rural events. The post-event vices using radio/cellular/spread spec- activities section of this handbook provides trum radio communication, etc.). detailed information on common techniques, • The collection and evaluation of trans- special considerations, and recommended portation system performance data protocol that facilitate the activities listed in proves valuable in guiding decision- the table. making not only on the day-of-event but also for recurring rural events. Stake-

Table 15-5 Checklist of Post-Event Activities for Rural Events HANDBOOK APPLIES ACTION PAGE 10-2 • Review measures of effectiveness identified in event operations planning phase. 10-3 • Compile agency measures of effectiveness. 9-14 • Compile performance evaluation data. 10-5 • Conduct stakeholder participant debriefing. 10-6 • Conduct event patron survey. 10-7 • Conduct public survey. 10-7 • Conduct a post-event debriefing meeting. 10-10 • Prepare a post-event report.

15-8

Some distinguishing considerations of this preparing detailed meeting minutes event category during the post-event activi- that include the identification of key 15 ties phase include: successes and lessons learned. o Considering the potential significant • Practitioners should reference the post- time between rural events, stake- event activities guidelines and considera- holders must chronicle participant tions contained in Chapters 11 and 12, as survey results and debriefing meet- appropriate, based on the type of rural ings so that those stakeholders OVERVIEW event. charged with managing travel for fu- • In regard to participant evaluation, rural ture rural events can tap the wisdom event patron travel surveys yield impor- of past participants. tant information and statistics that can • The occurrence of a major, recurring ru- assist practitioners in (1) improving the ral event warrants development of a accuracy of future rural event travel post-event report. In turn, the report can forecasts and (2) developing travel deserve as a working document to assist in mand management incentives (e.g., ex- advance planning for the next (year’s) press/charter bus services, event patron event.

incentives) for the market area served by • A post-event report for a recurring rural ADVANCE PLANNING rural events. event should include an operational cost • Periodic public surveys warrant consid- analysis to assist stakeholders in identi- eration for special events under this fying potential cost-saving resource de- category as event performance evalua- ployment strategies for the next event tion data fails to assess all community occurrence. impacts. Survey results alert special event stakeholders of impacts to affected PROGRAM PLANNING residents and businesses, in addition to

non-attendee transportation system us- DAY-OF-EVENT ACTIVITIES

ers, that may continue to occur with each Program planning activities involve the de- successive special event at a particular velopment of policies, programs, and initia- venue location. As a result, stakeholders tives that facilitate improved planning and can develop and implement appropriate management of travel for future planned strategies (e.g., enforcement, etc.) and special events. regulations to mitigate the identified im-

pact(s) for future planned special events. Program planning for rural events include

• Post-event debriefings represent a com- activities, as summarized in Table 15-6, on POST-EVENT ACTIVITIES mon and recommended stakeholder ac- both a regional and local level. Practitioners tivity for all rural events. should reference program planning activities o Written comments should be ob- contained in Chapters 11 and 12, as appro- tained from temporary, borrowed priate, depending on the type of rural event. staff used on the day-of-event if staff can not participate in a debriefing Some distinguishing considerations of this

meeting. event category during the program planning EVENT PROFILE o A key aspect of a post-event phase include: debriefing for rural events involves

15-9 Table 15-6 Program Planning Activities for Rural Events PAGE PRODUCT TOPIC NO. Institutional • Development of a formal planned special event permit program. 4-10 frameworks • Creation of a transportation operations task force for a recurring rural event or 5-3 specific permanent venue. • Development of a joint operations policy. 5-15 • Development of a mutual-aid agreement to facilitate resource sharing. 5-15 Policies and • Traffic and parking restrictions. 5-10 regulations • Public-private towing agreements. 5-16 • Public information safety campaign. 6-73 • High occupancy vehicle incentives. 7-3 Infrastructure • Planned alternate route for diverting background traffic around a venue. 6-40 deployment • Portable traffic management system. 6-56 • Express, charter, or shuttle bus service. 6-32 7-11 7-12 • Telephone information systems. 7-17

• The fixed location of planned special state guidelines and regulations and (2) event venues (e.g., fairgrounds, amphi- impact transportation operations and the theaters, golf courses, and race tracks) in community. The program specifies a rural areas allow for the easy identifica- permit process, coupled with supporting tion of stakeholder representatives in- restrictions and requirements, that allow volved in planning and day-of-event stakeholders to plan and assess all types travel management for high-attendance of rural events within a common frame- special events at these venues. These work. A section on program planning representatives may collaborate year- for local planned special events in Chap- round as an inter-jurisdictional, multi- ter 4 provides complete and in-depth discipline task force, working to: (1) coverage on developing a permit pro- strengthen interagency coordination for gram applicable to rural events. future special events, (2) identify needs • Two or more stakeholders, representing relative to minimizing community im- multiple jurisdictions and/or disciplines, pacts and improving transportation sys- may establish a joint operations policy tem operations during venue events. for managing travel for all planned spe- The latter involves proposing new poli- cial events in a region. cies, regulations, and infrastructure de- • Stakeholders may develop a mutual-aid ployments to support future event- agreement to facilitate resource sharing specific traffic management plans and (e.g., personnel or equipment) and/or re- travel demand management initiatives. imbursement for services in order to • A planned special event permit program handle future planned special events. proves particularly effective for rural • Because rural events usually occur in- events that, because of such characteris- frequently and occasionally at temporary tics as event attendance and event loca- venues, an infrastructure needs assess- tion, may (1) conflict with municipal or ment on the program planning level

15-10

should focus on equipment and technology applications transferable to managing all planned special events in a region 15 and/or day-to-day transportation system operations. • Funding represents a key public agency consideration for rural events in the program planning phase. Commercial events may involve

o OVERVIEW event organizers and participants from outside the community hosting the event. o Prior to initiating event operations planning activities for a specific rural event, stakeholders should establish a funding mechanism for recovering costs incurred in providing services during the event operations planning

phase and resources on the day-of- ADVANCE PLANNING event. o Funding often represents a requirement of a comprehensive planned special event permit program.

DAY-OF-EVENT ACTIVITIES POST-EVENT ACTIVITIES EVENT PROFILE

15-11 THIS PAGE LEFT BLANK

15-12 APPENDIX A SAMPLE SPECIAL EVENT PERMIT REGULATIONS, APPLICATIONS, AND AGREEMENTS

SAN DIEGO, CA: SPECIAL EVENT REGULATIONS ON MITIGATING PUBLIC IMPACTS

A-1 WASHINGTON STATE DOT: STATE HIGHWAY USE DURING STREET USE EVENTS

A-2 VIRGINIA BEACH, VA: PERMIT APPLICATION

A-3

A-4

A-5

A-6 EVANSTON, IL: SPECIAL EVENT HOLD HARMLESS AGREEMENT

A-7 HOT SPRINGS, AR: STREET USE EVENT CHECKLIST

A-8 MONTGOMERY COUNTY, MD: SPECIAL EVENT TRAFFIC CONTROL REGULATIONS

A-9

A-10

A-11 MARCO ISLAND, FL: SPECIAL EVENT DIRECTIONAL SIGN REGULATIONS

WALWORTH COUNTY, WI: COUNTY CODE SECTION 10-28 RECOVERY OF EXPENSES INCURRED FOR PROVIDING EXTRAORDINARY GOVERNMENTAL SERVICES

A-12 APPENDIX B EVENT-ORIENTED RISK SCENARIO CONTINGENCY PLANS

NEW JERSEY DOT CONTINGENCY ALTERNATE ROUTE PLAN FOR THE 2000 REPUBLICAN NATIONAL CONVENTION

B-1

ALPINE VALLEY MUSIC THEATRE (WI) TRAVEL DEMAND MANAGEMENT STRATEGY FOR THE GRATEFUL DEAD – TERRAPIN STATION MUSIC FESTIVAL

YOUR QUESTIONS ANSWERED! TERRAPIN STATION Q&A

(East Troy – July 26, 2002) ) Greetings from Alpine Valley! We are only a week away from one of the most anticipated concerts in our legendary history, Terrapin Station August 3 and 4. As preparation for this incredible event continues, we at Alpine would like to answer some very important questions from the fans. A great deal of this information is being released for the first time today, so please read carefully.

I don’t have a ticket. How can I be part of this event? Well, the first thing to do if you don’t have a ticket is enjoy the show from somewhere other than Alpine Valley. As we know, the Grateful Dead folks have been very firm in reminding everyone not to come to the show without a ticket. You’ve seen letters from the band, you’ve heard announcements on the radio, and, if you were at one of numerous concerts around the country in the last two weeks, you were personally handed a flyer reiterating that message. Given that very clear message from the band not to come to Alpine without a ticket, we have worked hard to find to ways for those without tickets to enjoy the show either by themselves or with friends and family.

How strict are the ticket checkpoints going to be at the show? Every person will be required to have a ticket for that evening’s show. Make sure everyone has his or her tickets before you leave for the theatre! The checkpoints will begin as you exit the interstate or approach the facility on the county road system. The right front seat passenger should have all the tickets and be ready to show them at various checkpoints on the way to the parking lot. Upon reaching the parking lot, the car will be stopped and the tickets will be validated. At this point any vehicle that does not have a ticket for each person in the car will be refused entry. Cars that comply will be issued a parking pass and allowed to enter the lots. This process will be as mellow as we (and you!) can possibly make it. Nobody will be hassled and everybody will be treated courteously and respectfully. However, a large staff of Alpine Valley employees backed up by the county police will be checking each and every ticket very carefully.

What happens if someone in my vehicle decides to get out and walk into the facility? No pedestrians will be allowed admittance. Spotters will be on the road to identify vehicles that have allowed individuals to get out and become pedestrians. When such a vehicle reaches the final checkpoint, it will be turned away and possibly ticketed.

Won’t all of these measures slow traffic to a crawl? We understand that traffic may be moving a bit slower that a typical show, but given the enormous staff that will be used for ticket verification, our expectation is that the delays will be minimal.

My friends and I will be arriving by bus. Who should hold our tickets and what do we do? All buses and limousines will be directed to enter the facility via a special route identified by the police. Once the bus or limo has entered, a staff member will come to the vehicle and validate each ticket. If you are on a bus or in a limo, please hold onto your individual tickets. Anyone not having a valid ticket for that performance will be required to stay in the vehicle. If the vehicle has numerous people in it without tickets, the entire bus including fans with tickets may be refused entry to the property. Please make sure that everyone has there ticket prior to getting on the bus and the process should be a very simple once you arrived at Alpine.

The band recently said that additional shows would be added prior to the Alpine Show playing. Are these shows happening? The band has announced, on a conditional basis, a tour for this fall. They have also stated very clearly that these dates will only play if all goes well at Alpine Valley. Basically, if Terrapin Station at Alpine Valley goes well, then The Other Ones will be able to take their magic around the country once again, bringing music and happiness to thousands of people. If it doesn’t, they won’t. Simple as that.

B-2 APPENDIX C INTERAGENCY AGREEMENTS FOR SPECIAL EVENT PLANNING

ILLINOIS DOT AND ILLINOIS STATE POLICE JOINT OPERATIONAL POLICY STATEMENT ON TRAFFIC SYSTEMS MANAGEMENT

C-1 WASHINGTON STATE PATROL AND WASHINGTON STATE DOT JOINT OPERATIONS POLICY STATEMENT ON EVENT PLANNING

C-2 APPENDIX D 2003 FAIR SAINT LOUIS EVENT PATRON SURVEY

Source: www.fairstl.org

D-1 APPENDIX E REGIONAL DIRECTIONAL DISTRIBUTION FOR 2001 NASCAR KANSAS 400

Source: Reference 20 (Chapter 5)

E-1 APPENDIX F PARKING AND PEDESTRIAN ACCOMMODATION PLANS LAMBEAU FIELD RECONSTRUCTION

Source: www.packers.com

F-1

F-2 APPENDIX G WISCONSIN DOT ORGANIZATION AND DISSEMINATION OF INTER-JURISDICTIONAL ROAD CONSTRUCTION AND PLANNED SPECIAL EVENT INFORMATION

G-1

G-2

G-3 APPENDIX H EXAMPLE SITE AND PARKING MAPS

LAS VEGAS MOTOR SPEEDWAY

Source: www.lvms.com

H-1 BRISTOL (TN) MOTOR SPEEDWAY

Source: www.bristolmotorspeedway.com

H-2 JACKSONVILLE (FL) JAGUARS NFL FOOTBALL GAMES

Source: www.jaguars.com

H-3 PALACE OF AUBURN HILLS (MI) PARKING EGRESS MAP

Source: www.palacenet.com

H-4 APPENDIX I EXAMPLE TRAFFIC FLOW MAPS

NASCAR KANSAS 400

Source: Reference 15 (Chapter 6)

I-1 TALLADEGA (AL) SUPERSPEEDWAY

Note: “Hot Tip” indicates route not usually congested during event ingress.

Source: www.talladegasuperspeedway.com

I-2 STAPLES CENTER – LOS ANGELES, CA

Source: www.staplescenter.com

I-3 NASCAR DAYTONA 500

Source: www.daytona500.com

I-4 HOMESTEAD MIAMI (FL) SPEEDWAY

Source: www.homesteadmiamispeedway.com

I-5 MICHIGAN INTERNATIONAL SPEEDWAY

Source: www.mispeedway.com

I-6 TEXAS MOTOR SPEEDWAY

Source: www.texasmotorspeedway.com

I-7 MARTINSVILLE (VA) SPEEDWAY

Source: www.martinsvillespeedway.com

I-8 APPENDIX J EXAMPLE PROTOCOL FOR PLANNED SPECIAL EVENT TRAFFIC SIGNAL SYSTEM OPERATIONS

ANAHEIM, CA

Source: Reference 19 (Chapter 6)

J-1 APPENDIX K EXAMPLE TRAFFIC CONTROL PLANS

STREET CONTROL PLAN SANTA CLARITA (CA) 4TH OF JULY PARADE

Source: www.scvleon.com/parade/

K-1 INTERSECTION CONTROL PLAN DAYTONA (FL) SPEEDWEEKS

Source: Reference 18 (Chapter 6)

K-2 FREEWAY SIGNING PLAN NASCAR BRICKYARD 400 – SPEEDWAY, IN

Source: Indiana DOT

K-3

EQUIPMENT LOCATION PLAN ALPINE VALLEY (WI) CONCERT EVENT

Source: Wisconsin DOT

K-4

EQUIPMENT LOCATION PLAN SYDNEY, AUSTRALIA PARADE

Number of barricades NSW Bush Fire N Road closure Partial road closure Parade Closure location 8 February 2002 Contingency closure location T Contingency road closureOW NS P T L S T R O F R E W 2 O L 1 3 3 ARGYL E

O R

Circular Quay 2

G Royal Botanic

R 233 2682 Gardens N R

A O ALFRE H D S ST T T

2 K T

S S C S 2 I 256

H 232 P S G I

U L N L T I U

H O

O 2 P Y GROSVENOR L 3061 300 ST 5 BRIDGE243

T E 4

2290 S B 5 E N 3 T ST S MARGARET 3042 T H 4 301 UNTER241 5 T E S E TREET

R ST T T ERSKINE S E

T E

E R T

E C T E E D

I R L S E A K S R T A 4 Y R

E O U A S R O 6 T

N R S U

E S R M T ar SE tin N Q

K Plac e L C C

X A A E

M I

8 P 7 KING 281 S STRE O E H

l T

l 2 a M

S ES JAM R t T t S D i 2 P 2 271 STREE248T 269 MARKET 2

6 T S

T R S T E R

E T E E Hyde E Darling Harbour R E E T E

T E R T 6

E T T 3 S 2651 2662 3 235 PARK ST 3 315 8

2631 2311B E ATHURST G STREE E T L 3

O E H C 4 G G Park R A

T O E H T

I T E R 3 P E G E

B L 2826 T A Z 2301 S I

A 262 L 12 LIVER C E POOL2322 3 ST2282 253

E O V X 2672 A F O H R T D 261 R S GOUL O T BURN W 3 T ST N E W

Source: Reference 20 (Chapter 6)

K-5 APPENDIX L PUBLIC AGENCY AND EVENT-SPECIFIC WEBSITES

DAYTONA BEACH (FL) POLICE DEPARTMENT

L-1

Source: www.ci.daytona-beach.fl.us/police/special_events_safety_security.htm

L-2 CITY OF CHICAGO DEPARTMENT OF TRANSPORTATION

Source: www.ci.chi.il.us/Transportation/

L-3 SEATTLE CENTER SEATTLE, WA

Source: www.seattlecenter.com

L-4 ENTERTAINMENT AND SPORTS ARENA RALEIGH, NC

Source: www.esa-today.com

L-5 RICHMOND INTERNATIONAL RACEWAY RICHMOND, VA

Source: www.rir.com

L-6 DTE ENERGY MUSIC THEATRE CLARKSTON, MI

Source: www.palacenet.com

L-7 PNC PARK PITTSBURGH, PA

Source: pirates.mlb.com

L-8 APPENDIX M VENUE TRANSPORTATION GUIDES

NAZARETH SPEEDWAY NAZARETH, PA

M-1

M-2

Source: www.nazarethspeedway.com

M-3 FORD FIELD DETROIT, MI

M-4

Source: www.fordfield.com

M-5

APPENDIX N SAMPLE IMPLEMENTATION PLANS

INDIANA STATE POLICE 2002 BRICKYARD 400 - TABLE OF CONTENTS

Source: Indiana State Police

N -1

INDIANA DOT 2002 BRICKYARD 400

N-2

N -3

Source: Indiana Department of Transportation

N-4

N -5

Federal Highway Administration U.S. Department of Transportation 400 Seventh Street, S.W. (HOTM) Washington, D.C. 20590 Toll-Free “Help Line” 866-367-7487 www.ops.fhwa.dot.gov

Publication No. FHWA-OP-04-010 EDL Document No. 13883

NHI Training Course No. 133099 Managing Travel for Planned Special Events Publication No.: FHWA-NHI-03-120

N-6