Managing Travel for Planned Special Events: First National Conference Proceedings

BREAKOUT SESSIONS — TRAFFIC MANAGEMENT PLANS

PANEL SESSION

Donald Griffith, North Carolina Department of Transportation, Presiding

Case Study of Nashville NFL Stadium Transportation Plan

David Himes
Metro Nashville Public Works
Marshall Elizer
Greshman Smith & Partners

Marshall Elizer and David Himes discussed the traffic and parking plan for Titans Coliseum in Nashville, TN. They summarized the location of the Coliseum, the pre- and post-game traffic plans, and the shuttle bus plan. They also described the neighborhood management plan, coordination issues, and the public information plan. Finally, they discussed the experience to date and the lessons learned.

The Coliseum opened August 1999. It has a seating capacity of 68,000. The Coliseum is located across the Cumberland River from the Nashville CBD. A task force was formed to develop a comprehensive traffic and parking management plan for the Coliseum.
The Traffic and Parking Task Force included representatives from the involved agencies and groups. These agencies included Metro Nashville Public Works, Metro Police Department, Metro Transit Authority (MTA), Metro Fire Department, Tennessee Highway Patrol, and the Tennessee Department of Transportation (TDOT). The Tennessee Titans football team and the consultants, Gresham Smith and Partners, were also members of the team.
Planning studies indicated some 65,500 ticket holders would arrive by automobile. Other anticipated modes included shuttle buses, charter buses, hotel shuttles, and river travel. The average automobile occupancy was estimated to be 3.0 persons per vehicle. The total number of anticipated vehicles was 21,830.
The on-site parking at the Coliseum includes only 7,500 spaces. Off-site parking within a one-mile radius of the stadium includes 31,750 parking spaces, with 16,375 available parking spaces. Thus, the total number of available spaces is 23,875, which exceeds demand by approximately 2,000 spaces.
Attendee access was estimated at approximately 33,000 from the east side of the river. These attendees can utilize sidewalks and/or open spaces along local streets. Some 35,000 attendees were anticipated from the downtown side of the river. Of these, approximately 6,000 were estimated to use MTA shuttle bus service, with the remainder estimated to walk across the Woodland Street and Shelby Street bridges.
The strategy for the plan had two distinct components – one addressing the east bank and one focusing on the downtown area. The east bank component included ingress and egress routes, transit drop-off and pick-up areas, stadium parking lots, and parking on streets and in private lots. The downtown component focused on ingress and egress routes, shuttle bus routes, parking garages and lots, and on-street parking.
The 7,500 stadium parking spaces are pre-assigned to season ticket holders. Parking spaces are also provided for tour and charter buses. It was estimated that 3,000 to 4,000 on-street and private lot parking spaces would be used.
Vehicle access the stadium is by I-24 only. There are three freeway exits - Shelby Street, Interstate Drive, and North First Street – serving the Coliseum. No other entrance routes are promoted. While the plan was for no game-day parking in adjacent East Nashville residential neighborhoods and churches, it does happen.
Entrance routes are color-coded with east parking arriving via the blue routes and west parking arriving via the red routes. Lots are assigned to season ticket holders based on home zip codes. Parking guidance is provided to season ticket holders. Unique directions are printed on the back of all parking passes. Season ticket holders and single-game ticket buyers are provided access guidance to their lot.
The downtown component focuses on the remaining 35,000 fans without pre-assigned parking. These fans are directed by ticket sales to access CBD parking via I-40 utilizing four west side exits.
Access to the stadium for pedestrians from the downtown area is across Woodland Street and Shelby Street Bridges. Access is also provided by three shuttle routes. The Woodland Street Bridge is closed to all traffic except pedestrians, shuttle buses, and emergency vehicles beginning three hours before kickoff.
The philosophy of the pre-game traffic circulation is to divide and conquer. It focuses on avoiding conflicting movements, maximizing capacity, and minimizing wait times. Specific ingress routes are designated for the east bank and downtown components.
Pre-game police operations include members of the Metro Police Department and the Tennessee Highway Patrol. The Metro Police deploy some 54 officers, one lieutenant, three sergeants, and one supervisor. The Highway Patrol uses 12 officers and two supervisors. The pre-game plan focused on street closures, signing and barricading, and traffic rapid response units.
The shuttle bus system is operated by the MTA. It consists of about 75 buses and trolleys. There are two components to the system. One component is the CBD shuttle and the second is the park-and-ride express bus system.
The three downtown shuttle bus routes utilize shuttle bus-only lanes on 4th and 5th Avenues. Buses operate every four to five minutes at peak times. Fares are $6 for a round trip or $50 for season pass. Service begins 90 minutes before kick-off. Shuttle routes serve about 6,000 passengers per game.
The park-and-ride express shuttles serve five remote sites. Approximately 25 buses are used to operate the service. Fares are $10 for a round trip or $90 for a season pass. About 1,000 passengers use the service each game. Buses depart two hours prior to kick-off and return 45 minutes after the game.
Weekday night games present special challenges. First, fan arrival times are more condensed than with weekend games. Second, game parking and traffic conflict with downtown work traffic. Key elements of the plan for weeknight games include downtown businesses closing early, educating area residents and businesses, publicizing travel and parking information, and using freeway DMS as needed.
The neighborhood management plan was comprised of a number of elements. First, there was community agreement to prohibit game parking in East Nashville neighborhoods. The second element was extensive use of signs and barricades that read "Road Closed - Local Traffic Only." However, significant game parking does occur. For example, some churches have moved Sunday services and sell parking in church lots for fund raising.
A number of routine coordination efforts are used. First, overall plan coordination occurs through pre-game meetings and post-game critique meetings. Second, coordination occurs with downtown events. These events include music and other downtown festivals, the Gaylord Entertainment Center, the Municipal Auditorium, the Performing Arts Theatre, the Convention Center, and the Symphony Hall. Other examples of routine coordination efforts include interaction with TDOT's Regional Transportation Management Center (ITS) and the involvement of HELP service patrols.
The public information plan is critical to the success of making the traffic and parking plan work. The key messages of the public information plan are for fans to arrive early, to carpool, to follow recommended routes, and to use MTA shuttles.
The public information plan is targeted toward a number of different groups. First are season ticket holders and single-game ticket buyers. Other targets include regional media, East Nashville stadium-area residents, East Nashville churches, East Nashville businesses, and downtown businesses, residents, churches. Metro Nashville employees, state employees, other venues and Tennessee State University are also targets of the public information plan.
A number of lessons have been learned with traffic and parking for events at the Coliseum. First, it is critical to maximize communication on access and parking with event attendees and to reinforce the importance of following access directions. Second, a strong public information plan is necessary for optimum success. Third, it is important not to underestimate the overall impact pedestrians have on traffic. Fourth, the demand for shuttle service exceeded expectations.
Other lessons learned included the need to use motorcycle and horse police units for maximum flexibility. Additionally, different stadium events create greatly varying demands. Traffic congestion was worst for the three-day Billy Graham Crusade. Charging for parking in stadium lots significantly impacts traffic operations. Some events have created conflicts with associated cruising. Finally, it is critical to have contingency plans for unforeseen events.

TECHNICAL EXCHANGE SESSION

Transportation Management Plans and Caltrans' Lane Closure System

Jacqui Yuke Ghezzi
California Department of Transportation

Jacqui Yuke Ghezzi participated in the Technical Exchange Session. Ghezzi's display addressed transportation management plans (TMPs) and Caltrans' lane closure system. Caltrans' experience with TMPs, the statewide lane closure system (LCS), and how the LCS is used to assist with implementing and operating TMPs was highlighted.

TMPs were used for the 1984 Summer Olympics in Los Angeles and in response to the 1989 San Francisco earthquake. Traffic congestion was not a major problem with the Olympics due to the TMP and other local efforts. There was no advanced warning or planning for the 1989 earthquake, but Caltrans and other agencies were able to respond to collapsed freeways and bridges.
Caltrans' mission is to improve safety, mobility, and reliability. Currently, eight of the 15 most congested major cities in the country are in California. Given limited funding for capacity improvements, Caltrans is focusing on enhancing operations.
The use of the LCS follows FHWA's work zone safety and mobility final rule. Key elements include adopting and implementing state policies on considering and managing work zones, early planning for work zones traffic management, developing strategies to manage impacts, training staff, and monitoring results.
Caltrans' policy in 2000 addresses preparing TMPs for all highway work. The intent is to minimize motorist delays for all activities on state highways without compromising public or worker safety, or the quality of the work being performed.
Two new positions were created in each district to help implement the policy. These positions were a TMP manager and a district traffic manager. A statewide TMP training program was established for all involved staff. Personnel from traffic operations, project management, design, construction, and maintenance are included in the training. Regional TMCs were established to coordinate activities.
The TMP process includes a number of steps. These steps include determining the type of TMP required, obtaining and analyzing needed data, estimating costs, programming the project, refining the TMP if needed, and implementing, operating, and evaluating the TMP.
The three TMP categories are blanket TMPs, minor TMPs, and major TMPs. Blanket TMPs are used on projects where no delays are expected, those during off-peak periods, those on low volume roads, and those with moving lane closures. Minor TMP projects, which comprise the majority of projects, are characterized by minimal expected impacts. Lane requirement charts and some mitigation measures are required, however. Major TMPs involve projects expected to have significant impacts. Major TMPs typically have multiple TMP strategies, multiple contracts, and long lead times. Similar strategies are used for planned events and for construction projects.
Different traffic management strategies are used with the three TMP categories. Blanket TMPs typically involve the use of portable CMS, freeway service patrols (FSPs), transportation management teams, and off-peak work. Techniques used with minor TMPs include lane charts, night work, portable and fixed CMS, construction zone enhanced enforcement programs (COZEEP), maintenance zone enhanced enforcement programs (MOZEEP), HAR, FSP, and gawk screens. Major TMPs involve lane charts, public awareness campaigns, fixed CMS, extended closures, moveable barriers, COZEEP, MAZEEP, detours, reduced lane widths, and possibly helicopters.
There are six TMP strategies used for both work zones and planned events. These strategies include public information, motorist information, incident management, construction strategies, demand management, and alternate routes. Effectiveness measures are used to enhance TMPs and to monitor and evaluate use. Evaluation studies show that the TMPs are effective in reducing delays, enhancing safety, and providing other benefits.
A variety of public information strategies were used on the Central Freeway Replacement project. Survey results indicted that the most effective strategies were newspaper articles, news reports on television, radio traffic reports, word of mouth, and the project brochure. The survey results also indicated that travelers did alter their trips routes or made other changes in their trips.
Strategies used for construction projects include extended closures and construction staging. Other strategies included narrowing lane widths and using shoulders, moveable barriers, and contraflow lanes. Contingency plans are developed on construction projects.
Prior to 2004 there were six different electronic and six manual lane closure tracking systems. A web-based application was implemented in 2004. Lane closure requests are submitted on-line. The resident engineer, maintenance supervisor, or permit engineer approves the request. The system checks against lane requirement charts for possible conflicts. If a conflict is detected the requestor edits and resubmits the request. If no conflict is detected the closure is approved. The web-based application is accessible on any computer. It provides real-time data and allows for conflict resolution with multiple projects and events across district boundaries. Users include Caltrans office and field crews, construction contractors, permit-holders, and the public.
The TMPs and LCS have helped reduce corridor impacts. LCS makes conflict resolution easier with multiple projects and with special events. It also provides a source of traveler information and helps to improve motorist decisions. The LCS also provides a historical database to use in implementing TMPs based on prior experiences and to use in developing TMPs for future planned events or projects.
The experience to date highlights a number of elements. First, it is important to plan ahead and to involve the full design team to help eliminate potential problems. Second, involving the public information office staff is critical if major impacts are anticipated. The lead times for the media can be months or even years in the case of mega projects. Third, funding for TMP strategies needs to be identified and secured early. Funding for monitoring activities should be included in the request. Finally, TMP strategies may need to be modified before the work is done. If the event is successful, the process may be repeated the next year.
Planned special events typically have long lead times. It is important to check to be sure correct data are used and that the TMP is updated if needed. Techniques to enhance public awareness include maximizing the use of newspapers and television news spots. Advance signage is critical before decision points. It is important to test signing on preceding weeks or weekends. Also keeping lanes open when possible through reducing lane widths or using shoulders during peak hours may be an option.
Lane closure system design tips include knowing and involving all groups, including construction, maintenance, permits, and traffic departments. It is important to keep focused on the main objectives, as it is easy to get side tracked. Developing a testing script with each function and developing a change control process are also important. Experience also indicates the need to agree on expectations for the first delivered system and to plan for and identify ongoing improvements.
TMPs and LCS help Caltrans meet its mission. These approaches enhance safety for workers and the public. They improve the efficiency of the system, thus addressing the mobility mission. The use of TMPs and LCS can reduce traveler delays due to planned events, road work and incidents, providing motorists with predictable trip times.

Multi-Jurisdictional Approach to Managing Traffic during Corridor Reconstruction

Sam Wolfe
Indiana Department of Transportation – Toll Road District

Sam Wolfe participated in the Technical Exchange Session. His display focused on managing traffic during reconstruction and widening of a section of the Indiana Toll Road. A moveable barrier was used to create a reversible lane to help manage traffic during reconstruction.

Members of the project management team included the Indiana Department of Transportation - Toll Road District, the Borman Expressway TMC, RQAW Corporation (Project Manager), DLZ Indiana (Resident Engineer), Wilbur Smith Associates (Traffic Consultant), Rieth-Riley Construction (Contractor), and the Indiana State Police and Emergency Response.
The Indiana Toll Road and the Borman Expressway (I-80/90) serve the majority of traffic between northwest Indiana and the Chicago metropolitan area. The Borman Expressway has an average daily traffic (ADT) of 155,000 vehicles. Commercial vehicles represent 20 percent of traffic on the Borman Expressway and 10 percent on the toll road. The Indiana Toll Road serves as major alternate route to the Borman Expressway. Reconstruction on the Indiana Toll Road and the Borman Expressway began in 2004.
A number of issues had to be addressed in managing traffic during reconstruction. Two lanes of traffic were required in the peak direction on the Indiana Toll Road for directional peak-periods, event-related traffic surges, and congestion and incidents on the Borman Expressway. Bridges and construction allowed only three lanes for both directions combined. Lane closures were needed for construction. Access to I-65 had to be maintained during construction.
To address these issues, one local lane in each direction was provided and one reversible lane was operated. Access to I-65 was provided from the local lane. No access to I-65 was provided from the reversible lane. Orientation of the reversible lane switched based on traffic demand. Barrier Systems' Safeguard Link System® was selected to control access to the reversible lane. Access was controlled at the western terminus by Safeguard Link System®, and the eastern terminus by barricades. Five accident investigation sites in the construction zone were provided as was 24-hour towing service. Four CCTV cameras were added to monitor traffic flow and to facilitate the evaluation of emergency lane reversal needs.
Many special events are held in Chicago. For example, some 3.6 million people attended the 10 days of Taste of Chicago, 2.2 million people come to the two-day Chicago Air and Water Show, and 500,000 people watch the Chicago Marathon. In addition to the events in Chicago, the Indianapolis Motor Speedway hosts both the Indianapolis 500 in May of each year and the Brickyard 400 each August. Attendance at these races is 500,000 and 32,000, respectively. Notre Dame and Purdue have home football games and average 80,000 and 62,500, respectively.
Each week, historical traffic data are analyzed and a schedule for reversible lane operation is developed and distributed to numerous groups. The reversible lane schedule recognizes directional commute peaks, special events, and construction activities. Toll road traffic is monitored via on-line CCTV cameras and the Borman Expressway Trafficwise.org website.
Motorist information is provided from the Borman Expressway TMC to travelers via ratio and television stations and roadway dynamic message signs. Media announcements, newspaper articles, and flyers to toll road patrons were used to introduce the reversible lane.
A number of benefits have been realized from the project. First, traffic flow has been maintained through the construction zone. Second, the project has been able to accommodate a growth of 10 percent to 12.4 percent in ADT during construction. Third, spillover traffic from the Borman Expressway has been accommodated. Fourth, only minimal incidents have been experienced. Fifth, the average time to shift reversible lane has been approaching 26 minutes. Sixth, the cost-effectiveness of the reversible lane and active traffic management has been established for future projects.

CASE STUDY SESSION

Mary Stringfellow, Federal Highway Administration, Presiding

Managing Special Event Traffic in Milwaukee – Doing a Lot with a Little

Steven J. Cyra
HNTB Corporation

Steve Cyra discussed managing special event traffic in Milwaukee. He described special events in the city and highlighted traffic management techniques with Milwaukee Brewers baseball games, Harley-Davidson Anniversaries, and the 86th PGA championship. He recognized the assistance of Kelly Langer and Doug Dembrowski of the Wisconsin Department of Transportation and Captain David Pichette of the Wisconsin State Patrol.

Milwaukee hosts a number of planned special events. The Milwaukee Bucks basketball team and the Milwaukee Admirals hockey team play in the downtown areas, which is home to the Henry Maier Festival Park.
Maier Park, home of the Milwaukee Brewers, the Wisconsin State Fairgrounds, and the Milwaukee Mile Race Track are all located in the I-94 corridor. Regional events include the Harley-Davidson Motorcycle Anniversaries, PGA tournaments, musical festivals, and other activities.
These events have major impacts on the transportation system. Special events cause congestion and delay for event attendees and travelers. Safety issues and secondary incidents often result from the extra traffic associated with special events. Neighborhoods surrounding a venue are often disrupted by extra traffic and event parking. The extra traffic results in system inefficiencies and driver frustration. Traffic congestion and parking problems may discourage event attendees from returning.
The Wisconsin Department of Transportation (WisDOT) Traffic Operations Center in Milwaukee helps manage incidents on the freeway system. Traffic detectors, CCTV cameras, and cellular callers all help identify problems. Ramp meters, emergency services, signs, and HAR are all used to respond to problems, to keep traffic moving, and to communicate with drivers.
There is a well established Traffic Incident Management Program (TIME) in the Milwaukee area. TIME represents a multi-agency, multi-disciplined, inter-jurisdictional, and regional effort. TIME is an on-going program that focuses on results. There is a special events and construction committee to provide extra attention to the traffic management needs of these activities.
There are a number of common denominators to the approaches used in Milwaukee. Common elements include leveraging the relationships established through the TIME program and a multi-agency willingness and enthusiasm to pitch-in to help out. There is an almost automatic proactive approach to pre-planning.
The first case study is traffic management for Milwaukee Brewer baseball games at the new Miller Park. The I-94 corridor special events traffic management and traveler information study was a multi-agency effort lead by WisDOT. It provided a springboard for special event needs and solutions. The study verified existing conditions and identified problems and needs. It developed immediate, short, and long-term solutions. The study helped mainstream solutions into infrastructure design, construction, and incident management activities.
The study identified three fundamental needs: 1) minimize travel delay to and from events; 2) minimize travel safety hazards on freeways, arterials, and on-site; and 3) minimize travel frustration of attendees.
The key infrastructure elements included a direct fiber tie to the MONITOR system, remote FTMS workstation at the stadium, and portable and permanent DMS. Other elements include CCTV and video sharing, use of congestion maps on television monitors, traveler advisory radio, ramp metering and signal modes, and static signing.
The study also identified a number of key institutional elements. These elements included proactive planning involving all stakeholders throughout the process, clearly defining the roles and responsibilities of different agencies, and regular meetings. Including a public safety component and a transit component were also noted as important. Developing and maintaining media partnerships and outreach efforts to the public was further identified as critical.
Planning and managing traffic for special events has changed since the attacks of 9/11. Security is a very high priority now. Pre-planning for security and site evacuation is critical. The involvement of crisis experts, including the Federal Bureau of Investigation, the Department of Health, and emergency management offices is important. It is important not to overlook walking in developing evacuation plans. Providing emergency vehicle access is critical. It is also important to consider human needs, such as shelter, food, and water outside the site area.
The second case study is the 100th Anniversary of the Harley-Davidson Motorcycle Company, which is located in Milwaukee. The anniversary included a week-long celebration at multi-site venues. The projected attendance was over 500,000, with 75 percent of attendees coming from out of state. There was extensive multi-agency coordination on the traffic management plan. Participants included WisDOT, the Harley-Davidson Company, dealers, the Milwaukee County Sheriff's Department, and multiple local police and public works departments.
The traffic management and traveler information plan included a number of components. A call list with phone numbers and day-by-day event descriptions with times and locations were provided. Messages for portable VMS, CMS, and HAR were also developed.
Other tools and tactics for the anniversary included regular planning meetings, an action plan punch list, staffing plans, and printed materials, including a biker's guide. Road and ramp closures were used along with static signing. There was also visible law enforcement support and coordination.
The next case study is a rural event – the 86th PGA Championship, which was held August 12-15, 2004, at Whistling Straits Golf Course in Haven, WI. The course is approximately 50 miles north of Milwaukee on Lake Michigan. The course is served by a one-mile grid network of county highways and town roads.
The planning process for the PGA Championship started two years before the event with initial coordination with the county Sheriff's Department. The Wisconsin State Patrol became engaged in November 2003. A review of ticket sale information indicated that 85 percent of the attendees would be from sales from Wisconsin. Approximately 60 percent of tickets had been purchase by residents living to the south of the course, compared to 25 percent living to the north, and 15 percent living west of the site. This information on home locations of ticket purchases was used to develop ingress and egress routes.
Information on routes to use was provided in the ticket mailings. Repaving and shoulder work was conducted on key routes. There was aggressive speed zone enforcement on I-43 northbound. There were non-published contingency routes for players, buses, shuttles, and key individuals. The result was no player delays.
Traveler information and operations included 100 supplemental guide signs and portable CMS. Portable HAR was also used. There were some issues with the special parking hang-tags. Rural road geometrics do not accommodate congestion. Staffing, the command post and ongoing communications were key elements to the successful operation.
There is a Milwaukee special events home page that includes a traffic management planning tool, information on special event venues, and a calendar of events. The planning tool assists in determining what types of actions may need to be taken based on the venue, anticipated attendance, road conditions, and other factors. It also identifies the agencies responsible for various activities and the scheduling for those activities.
The experiences with these events highlight a number of key elements to successful planning and operations for traffic management with special events. First, proactive planning is a team effort. Involving all key groups from the start is critical. TIM programs are an excellent mechanism for dealing with special events. It is important for the state or local transportation agency to be a leader, rather than relying on the event organization to coordinate activities. It is also important to use all the tools available, including both high and low technology. Evaluating the traffic management program after a special event and fine tuning efforts for future events is also critical.

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