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Managing Travel for Planned Special Events: First National Conference Proceedings

PLENARY SESSION — A MULTIDISCIPLINARY VIEW

Robert Hicks, Public Technology, Inc., Presiding

Managing Travel for Planned Special Events: What, Why, and Benefits

Walt Dunn
Dunn Engineering Associates, P.C.

Thank you, Robert. It is a pleasure to participate in this conference and to provide an overview of the Managing Travel for Planned Special Events Handbook. The development of the handbook was sponsored by FHWA and the TMC Pooled-Fund Study (PFS). Jon Obenberger and Laurie Radow from FHWA provided excellent direction in preparing the handbook, as did PFS members. The effort of these individuals is greatly appreciated. You received the handbook on a CD-ROM with the conference registration packet. It is also available on the TMC PFS website at tmcpfs.ops.fhwa.dot.gov.

A three-day National Highway Institute (NHI) training course is being developed based on the handbook. I will try to cover the key parts of the handbook in 30 minutes – rather than three days. My comments focus on what managing travel for planned special events is, why it is important, and potential benefits.

The first task in developing the handbook was to agree on a definition of a planned special event. This task was more difficult than it might seem as there was no commonly used definition available. With input from TMC PFS members and others, the following definition was agreed upon. A planned special event is a public activity with a scheduled time, location, and duration that may impact the normal operation of the surface transportation system due to increased travel demand and/or reduced capacity attributed to event staging.

This definition identifies the key characteristics of planned special events. In developing the definition, we also identified elements that would not be included in the handbook. For example, the handbook does not focus on random and emergency events, such as hurricanes, snowstorms, tornadoes, bridge collapses, and terrorist attacks. Roadway construction and maintenance are also not included in the handbook.

The second task in developing the handbook focused on defining planned special event categories. Initially, four categories were identified. A fifth was added to address the unique elements associated with special events in rural areas. The five categories of planned special events included in the handbook are:

Special events in each of these categories have unique characteristics. Discrete/recurring events at a permanent venue have specific starting times and predictable ending times. Sporting events and concerts are examples of discrete/recurring events. The known starting time, the anticipated ending time, the venue capacity, and advanced ticket sales can all be used to estimate the traffic volume from an event and the timing of the extra demand on the transportation system.

Continuous events include fairs, festivals, and other related activities. While these events start at a specific time, they operate throughout the day, with visitors arriving and departing at random. As a result, continuous events do not typically have a rush impact on the transportation system. Continuous events may also occur over multiple days. Advance tickets are typically not sold for these types of events.

Street use events include parades, running races, bicycle races, and other related activities. These events require temporary closures of roadways. Since the capacity of the viewing area, which is along the roadway, is hard to determine, it is difficult to estimate the potential crowd associated with these types of events.

A regional multi-venue event occurs when there are multiple planned special events occurring in the same area. The Olympics provide an example of a regional multi-venue event. Major regional multi-venue events often provide a focus for enhancements to the transportation system.

A major golf tournament in a rural area provides an example of a rural planned special event. The roadway capacity in a rural area may be very limited, and there is typically no regular public transportation service available.

Obviously, each of the five categories of planned special events has different characteristics and different impacts on the transportation system. The handbook provides step-by-step approaches for addressing the transportation needs for each type of special event.

The four main purposes of the handbook are to: 1) bridge the gap between the state-of-the-practice and state-of-the-art; 2) provide a framework for establishing an integrated and stakeholder coordinated practice; 3) recommend proven and innovative strategies and techniques; and 4) to profile successful practices.

Figure 1 illustrates the phases of managing travel for planned special events. The first phase involves regional planning and coordination for all types of planned special events. Event-specific elements include operations planning and implementation, day-of-event activities, and post-event activities. It is important to have a feedback loop to regional planning and coordination after an event to enhance future efforts.

The audiences for the handbook include transportation engineers, law enforcement officers, and event organizers. The handbook was designed to be user friendly. Icons are used to highlight sections of special interest to these different groups. Photographs, tables, and figures are used to illustrate key points and to highlight examples. A toolbar on the right side of the page identifies specific sections.

 

Figure 1 illustrates the phases of managing travel for planned special events.
Figure 1. Phases of Managing Travel for Planned Special Events

The handbook consists of 15 chapters organized into five sections. These sections are overview, advance planning, day-of-event activities, post-event activities, and event profiles. The event profiles provide a step-by-step process for examining the transportation impacts associated with special events in each of the five categories and for developing a traffic management plan for a special event.

The titles of the 15 chapters are:

Managing travel for planned special events involves a number of key elements. First, advanced operations planning, stakeholder coordination, and partnerships are critical elements of successful approaches. Second, multi-agency traffic management teams are used in most areas to coordinate planning and operations. These teams develop the traffic management plan, prepare procedures and protocols, and conduct day-of-event traffic control and coordination. It is important to raise the awareness of potential travel impacts and to coordinate agency services and resource sharing.

The typical goals of managing travel for planned special events include achieving predictability, ensuring safety, maximizing efficiency, and meeting public and event patron's expectations. Figure 2 illustrates some of the factors that may impact traffic management at special events. Examples of issues and characteristics that planners should consider include the anticipated travel demand magnitude, rate, and modal split. The background traffic, transit, and parking capacity also need consideration. Planners should also consider the market area for an event and the staging area requirements should be considered. Available personnel and equipment resources for planning and day-of-event operations need examination. External issues include weather, security, and possible contingencies. It is also important to identify other concurrent events or activities that will impact the transportation system.

 

Figure 2 illustrates some of the factors that may impact traffic management at special events.
Figure 2. Factors that Impact Transportation at Planned Special Events

Planned special events are important activities in most metropolitan areas, as well as many smaller communities and rural areas. Los Angeles has some 2,650 planned special events each year. Milwaukee averages 450 planned special events annually that influence travel along one downtown segment of I-94.

Figure 3 highlights the various stakeholder groups typically involved in planning and operating traffic management strategies for planned special events. As noted previously, the use of a multi-agency team is a good way to ensure that all stakeholders are involved throughout the planning, day-of-event, and debriefing steps.

 

Figure 3 highlights the various stakeholder groups typically involved in planning and operating traffic management strategies for planned special events. They can include law enforcement, media, transportation agencies, public safety, public, government agencies, regional organizations, private industry, elected officials, and event organizer.
Figure 3. Potential Stakeholders for Planned Special Events

The various stakeholder groups face numerous challenges in managing traffic for planned special events. A first priority is mitigating the impacts of event-generated traffic, including the potential for heavy volumes of transit vehicles and pedestrians. A second challenge is coordinating travel management activities with the event operator and the overall planning team. Ensuring that needed staff resources and support services are available represents another common challenge. Addressing possible infrastructure needs at the event site may also be a challenge.

Possible travel choices for event attendees include express buses, shuttle bus services, and charter buses; designated routes and parking areas; and walking. Accommodating all of these modes safety and providing a secure environment is not easy.

Managing traffic for planned special events safely, securely, and efficiently can have numerous benefits. First, reduced traffic congestion is an obvious benefit, as is improved mobility for event attendees and other travelers. Improved travel safety for all groups is also a benefit. Other potential benefits include forming partnerships and building trust among personnel at different agencies and promoting interagency coordination, resource utilization, and resource sharing. Finally, procedures, plans, and practices used with special events may be incorporated into day-to-day operations and may be used with emergencies and unexpected events.

The handbook outlines possible performance measures associated with managing traffic for planned special events. Three possible performance measures associated with the transportation system include travel time and delay for traffic and transit, arrival and departure service rates, and the number and location of traffic incidents. Possible performance measures associated with community impacts include economic benefits, emergency vehicle access, public agency costs, and travel demand.

Based on the examples reviewed in the handbook, five keys to success are included. The first key is the development of a good traffic management and parking plan. The second key is input and participation of involved agencies early and throughout the process. The third key is the implementation of the plan by all agencies and groups. The fourth key is providing on-site traffic management. The final key is the ability to modify the plan and to accommodate real-time traffic needs.

Finally, it is important to expect the unexpected. For example, at a recent pro golf tournament there was the threat of a thunderstorm. At golf tournaments, play is stopped when lightening is in the area. At the same time, an ambulance was called for a spectator with an injured leg. The ambulance siren was running. What the traffic management personnel did not know is that a siren signals the end of play for the day. The siren was quickly turned off and efforts were undertaken to be sure no golfers left the course. This example shows that you need to expect the unexpected.

I hope you have a better understanding of the handbook scope and purpose, as well as the benefits of managing traffic for planned special events. I look forward to hearing other presentations and discussing your thoughts and ideas on ways to advance the state-of-the-practice. Thank you.

Transit Comments and Perspectives

Bill Millar
American Public Transportation Association

I appreciate the invitation to participate in this session and this important conference. Public transportation plays an important role in managing traffic at planned special events. Before describing how transit assists in moving people to, from, and around special events, let me highlight my background and the American Public Transportation Association (APTA).

I have spent 33 years in transit at the local, state, and regional levels, and now in Washington, D.C. I spent 19 years in Pittsburgh, including 13 years as head of the Port Authority of Alleghany County (PAT), the transit agency. At PAT, we provided numerous services to assist with planned special events.

For those of you not familiar with APTA, we are a non-profit trade association, which represents and supports our members from offices in Washington, D.C. APTA has some 1,500 members. Our members include public transit agencies, such as the Regional Transit Authority (RTA) here in New Orleans, and private industries and business associated with transit equipment, operation, and planning and engineering. Most of our members are from North America, but we have international members as well.

Of the 32 million trips that will be made on public transportation in America today, more than 90 percent will use the services of an APTA member. Our website is www.atpa.com. Transit is a very simple, cost effective way to increase roadway capacity. Rather than thinking of transit as another stakeholder to accommodate, think of transit as a tool, an asset, and an opportunity. Transit agencies need to be involved early in the planning process and throughout the implementation and operations phases for special events.

I am here to provide the transit perspective on planning for special events and to highlight why it is important to incorporate public transportation into planning for special events. Transit can be a big help if involved from the beginning, but we cannot help if you do not ask. Each fully-occupied bus takes the place of some 60 cars. Each light rail train can take the place of 125 to 200 cars. Each subway or commuter train can take the place of upwards of 1,000 automobiles.

These figures highlight why transit is important when planning any major special event. This capacity is only valuable if people use it. People will use it only if you plan it to be useable. People will not use transit if it is an afterthought, if transit stops are well away from the venue, and if the needs of transit riders are not considered. Critics may assert that people who do not use transit regularly will not use it for special events. Experience demonstrates that these critics are wrong.

Transit carries a significant number of people to many special events. In some cases, such as the MCI Center in Washington, D.C., transit carries upwards of 60 percent of venue attendees. At many baseball and football stadiums, transit carries from 5 percent to 60 percent of the crowd. Occasional events like a PGA golf tournament can also be served by special transit services.

Transit has also played significant roles at major events like the 2002 Winter Olympics in Salt Lake City. Surveys of attendees at the Olympics indicated that 92 to 95 percent had a good to excellent experience with transportation. The Utah Transit Authority used 900 extra buses from around the country and 29 extra light rail transit (LRT) vehicles borrowed from Dallas, more than tripling its normal capacity.

Not only do transit agencies have experience moving large numbers of people, transit agencies have a full range of technical skills to assist in developing and implementing plans for special events. These technical skills include service planning, police, marketing, customer information, and service delivery. Each of these skills can be valuable in planning for and serving large numbers of people attending special events. Finally, transit agencies have a full range of important assets including vehicles, control centers, and expert personnel that know how to move people. Draw upon this expertise for special events.

Earlier speakers mentioned unanticipated events and the need to respond quickly to these events. The Reagan Memorial in Washington, D.C. this past summer provides an example of quick response to an unexpected event. During the two days of Memorial activities, the Washington Metropolitan Area Transit Authority (WMATA) carried its first (850,000) and fourth highest (763,000) one-day ridership. WMATA had the capacity available to accommodate the extra riders. Without WMATA, it would have been impossible to accommodate the crowds.

The recent political conventions in New York and Boston also highlight the importance of transit to special events. In New York, New Jersey Transit delivered clockwork commutes to passengers into Penn Station thanks in part to the 300 extra customer service representatives who were dispatched to key locations. The Port Authority Trans-Hudson Corporation (PATH) increased its volume of service during the convention. In the months approaching the convention, the Long Island Railroad (LIRR) released a comprehensive communications campaign for riders consisting of brochures, posters, website postings, stations announcements, and signage. These transit services were able to accommodate their regular passengers and the extra demand from the convention. In Boston, the Massachusetts Bay Transportation Authority (MBTA) created a detailed plan, available in pamphlet form and on its website, to help the delegates and other passengers deal with closed roads and other security measures.

These agencies successfully used every tool at their disposal to continue offering customers the level of service that they expect and demand. These transit systems showed how planning big events can be accomplished. The success rests with the ability to partner, and to draw upon the expertise of transit systems like these.

As other speakers have stressed, the success of planning and operating transportation measures for specific events rests on coordination. Working together means that no one agency or one mode takes the whole load. All agencies and all assets, most of which have already been paid for with taxes, are involved. To achieve coordination, agency staff must meet early and regularly. Agency personnel must do what they say they will do. Leave nothing to chance. Personnel must be willing to make changes from the norm. Building trust among staff at different agencies takes time. The investment is well worth it, however.

It is important to develop and practice contingency plans. Be prepared in the event of service breakdowns, power outages, and other unanticipated circumstances. It is critical to have adequate staff available. Make personnel visible for visitors and others who may be using transit for the first time. Make sure there is ongoing communication among all personnel working the event. Also, remember to include local law enforcement personnel and to make sure they understand any special treatments for buses and other transit vehicles.

Funding is usually an issue. There are expenses associated with providing extra transit service, traffic management, and law enforcement for a special event. Most agencies do not have unlimited resources for extra service and personnel for special events. Certainly, budget for special events if you can. However, we should also be creative in seeking funding from event sponsors, special purpose taxes, corporate supporters, and business activity districts.

Debriefing after an event is critical. Learn from any problems and build on successes. What we learn from one event can help on future projects and with daily operations. Continue to meet on a regular basis, even when there is no large event scheduled. You do not want to meet your counterparts for the first time after a disaster strikes.

So why should we go to all this trouble? Of course, we do it to serve the public. We all reap the benefits of a job well done. One benefit of successfully planning a special event is that it creates positive public opinion. Special events provide an extra opportunity to showcase your system and to create a positive impression. Many people, who would not consider riding transit otherwise, will do so for a special event. It is important to make a good first impression with these people. By putting your best foot forward, public transportation may generate interest in the customer returning to transit for a future trip.

A job well done may provide more support for all agencies at budget time. There are numerous reasons for working together and there are numerous reasons for being successful together. Good planning and operation starts early. It is important that we focus on coordinated approaches.

Public transportation is a vital part of what it takes to move people for special events. We have experience moving large crowds quickly. When planning an event, think of us – public transportation providers. Better yet, get transit involved from the beginning. Public transportation can be an important part of the entire transportation system, but not if we are left out. Together we can overcome any challenge and make a special event a success.

It is a pleasure to be with you today. Thank you.

Special Events in Los Angeles – Law Enforcement and Traffic Management Working Together

Captain Charles Roper
Los Angeles Police Department
Aram Sahakian
Los Angeles Department of Transportation

Since the Los Angeles Police Department and the Los Angeles Department of Transportation work closely on planning and operating traffic management for planned special events, we thought it would be appropriate to give a joint presentation. We will highlight the number and nature of planned special events in Los Angeles, describe the process for coordinating special event planning, and provide some examples of traffic management strategies with planned special events.

The Los Angeles Department of Transportation has approximately 2,000 employees. The Department employs some 200 engineers, 350 technicians, 300 field personnel, 600 traffic officers, and 500 support staff. The Special Traffic Operations and Emergency Response Division is responsible for traffic management at special events and emergencies. The responsibilities include planning, training, responding, and recovery. Los Angeles has some 2,500 special events annually. In 2004, the Division responded to 56 major emergencies. The Division also uses personnel from other sections of the department to address the needs of special events. For example, we use some 500 traffic officers, 80 traffic engineers, and 200 field personnel for the Los Angeles Marathon.

The Los Angeles Police Department includes approximately 9,400 personnel, including 254 motor officers. For events like the Los Angeles Marathon and the Laker Victory Parade, the department deploys 500 to 750 officers. The fire department also plays key roles in supporting special events. For the marathon last year, the fire department brought in 100 emergency vehicles due to the record heat. The department dealt with over 1,000 runners with heat exhaustion and transported at least 100 runners.

The current structure and approach for planning and operating transportation at special events resulted from the 1991 Oakland/East Bay fire which destroyed approximately 3,000 homes in a four-hour period. One of the homes belonged to a state senator. A fire truck was in front of his house, but the truck did not have the correct coupling for the fire hydrant. Also, when the fire crossed jurisdictional boundaries there was a new incident commander. In 1993, the California Emergency Management System became law.

The main difference between traffic management for emergencies and special events is that special events are pre-planned. While we have plans for responding to different types of emergencies, they are different from the pre-planning conducted for specific special events. The skills and interagency coordination developed for special events greatly benefits the ability of all agencies to respond to emergencies, however.

Examples of special events in Los Angeles include stationary sporting events and concerts, community events, races, walks, parades, conventions, demonstrations, and award shows, such as the Academy Awards and the Grammy Awards. There are five different levels of planning directly related to the size of the event and the attendance. Planning starts well in advance of the actual event. The planning and the operation of some events, such as the Academy Awards have evolved since 9/11. Several layers of security are now used and the influence of the traffic management system extends to the surrounding area.

Traffic management activities and security for award programs and other events are coordinated with the California Department of Transportation (Caltrans), the California Highway Patrol (CHP), and other agencies and jurisdictions. A variety of techniques and technologies are used to ensure the safety and security of the actors, actresses, and other individuals attending the Academy Awards.

A security component is included in the traffic management plan of any major event in the city. The 2000 Democratic National Convention in Los Angeles required a great deal of planning and special considerations. Some 265 buses circulated throughout the city and converged on the Staples Center, which was cordoned off by jersey barriers. There were demonstrations and protests daily. Bicycle and motorcycle patrols assisted with crowd control at the convention.

The working relationship between the police department and the transportation department is very good. As part of the unified command, the transportation department has a traffic group. Police officers assigned to the traffic group for a special event respond to directions from transportation department personnel just as they would from their superior officers.

Examples of emergencies include earthquakes, major fires, floods, water main breaks, and bomb threats. The police department maintains close communications with the transportation department in responding to emergencies. Needed traffic management plans are developed in real-time based on the specific circumstances of the emergency.

For example, five hours after the Northridge earthquake, the transportation department field command post was operational. Approximately 650,000 vehicles had to be rerouted due to the collapse of two freeways. Over 1,500 detour signs were posted within the first day after the earthquake. Within three days, some 800 traffic signals were modified to add mast arms or signal heads. Power was initially lost to some 1,200 signals. The key intersections, which were pre-identified after the experience with the New York blackout, are automatically under control through the Automated Traffic Surveillance and Control (ATSAC) Center. Field crews had to modify miles of pavement striping. It was important to have the transportation department within the incident command structure because, when changes were made in the traffic operations, they were published by the incident command structure and were communicated to police in the field and to the press as well.

A lengthy process is undertaken prior to actually managing traffic for a special event. The permit process is the first step. The event organizers complete a permit application at the police department. The application, which may be accompanied by a city council motion, is faxed to some 28 departments. Once the application is received at the transportation department, the planning process begins.

The Special Traffic Operations and Emergency Response Division has a very extensive database. For example, the traffic management plans for events within the past five years are in the database. Approximately 74 percent of the permits come through council motions, 19 percent come through the Department of Public Works, and seven percent come through police permits. If there is no impact on local streets or secondary highways, the Public Works Department can issue a permit.

The special events distribution list includes some 150 agencies and offices, including the LADOT districts, enforcement, LAPD, the Metropolitan Transportation Authority (MTA), and Caltrans. The film office is also notified to coordinate with the 25 to 30 daily filming permits. It is truly a unified command, with all agencies working together in a coordinated approach.

Traffic data is examined for special events. If the event has been held before, the traffic volumes are reviewed. Pedestrian volumes are reviewed and the transit routes that may be impacted are identified. A field check is conducted to identify possible hot points, which may include hospitals, hotels, churches, schools, parks, radio stations, police and fire stations, and 24-hours maintenance yards for gas, water, and other related services. Representatives from these hot points are included in the planning process.

The next step is to identify the impact area for the specific special event. Everything within the impacted area is examined and detour routes are identified. All of the appropriate agencies and groups are included in the coordination of the planning process and meetings. Other governmental agencies, city departments, event organizers, and other groups are involved in the planning meetings.

There are five response levels within the city. Level 1 requires an inspection. For example, with a block party, inspectors make sure the barricades are properly located and other elements are in place. Level 2 involves the closure of minor streets, which means that traffic officers are required. Level 3 includes engineering and use of the ATSAC. Incident response level 4 activates the Department Operations Center (DOC) and field command posts in addition to the ATSAC. Incident response level 5, which is the highest level, activates the City Emergency Operations Center (EOC).

The ATSAC controls some 2,900 traffic signals, which are linked by fiber optics. Signal timing engineers in the center monitor key signals and make adjustments as needed. The ATSAC is a very important element of managing traffic for major events in the city. We are in the process of converting many elements to wireless connections as part of a mobile command post strategy. The wireless connections provide the ability to monitor and operate the system from the department's mobile command posts.

The ATSAC dynamic maps provide both an area view and an intersection view. The area maps highlight traffic levels and possible congestion. Traffic signal timing can be adjusted as needed. We are also adding a software program called Adaptive Traffic Management System, which can adjust traffic signal timing automatically based on information from the inductive loops. The intersection map provides real-time occupancy, speed, and volume information. A copy of this information is provided to the incident command post in the operations section. Briefings are provided to police personnel in the command post and in the field.

Fact sheets are prepared for each special event. The fact sheet highlights the major activities and the operational procedures associated with the event. The fact sheets are distributed to all the appropriate agencies. Information is also received from these agencies and all the fact sheets are used in staff briefings. It is important that everything is written down and reviewed with staff well in advance of the event.

Different traffic management strategies and technologies are used for different types of events. Stationary street closures, vehicle scans, designated routes, and secure parking areas are used for the Academy Awards. Other techniques include moving street closures for the triathlon, rolling street closures for protests and marches, and sector closures for the marathon. There is a special team that monitors protests and marches.

Detailed traffic control plans are developed for each intersection along the marathon route. Sometimes there are multiple special events on the same day. For example, the grand opening of the new Cathedral of Our Lady of the Angels and the triathlon occurred on the same day. The bicycle route for the triathlon, which had been planned well in advance, conflicted with the cathedral opening. Based on contingency plans, the route was shifted to accommodate the 10,000 people attending the cathedral opening.

A post-event traffic contingency plan was developed for the Lakers NBA playoffs and championship games. Streets are blocked off around the Staples Center based on the game time. Some streets adjacent to the Center are closed prior to the game. Other streets are closed at the beginning of the second quarter and at the beginning of the third quarter. A final set of streets may be closed upon notification by the police department to prevent vehicles cruising around the Staples Center. If these streets are closed, it is a seven-mile drive around the perimeter of the Staples Center. Jersey and hydraulic barriers are used to block off streets and to reroute traffic.

Parking is an issue for many special events. If adequate parking is not available, an event organization may be required to provide shuttle bus service or other public transportation services may be used. Multiple parking lots are used for the marathon. Available parking is monitored by the command center and changeable message signs (CMS) are used to direct people to open lots.

Detailed deployment forms are prepared. The forms identify each task, the responsible individuals, the radio call sign, and the radio channel. A communication plan is developed for each event. Nine different radio channels are used for the marathon. Personalized time-line instructions are developed for all personnel assigned to an event. Field operations time-lines are also prepared and distributed to all appropriate personnel. A day-of-event equipment list is developed to guide deployment. Maps and information on temporary parking restrictions and MTA routes and schedule modifications are prepared and distributed.

Event access passes are used to help manage traffic for different vehicles and event attendees. Prior to a major event, the Department of Public Works sweeps and cleans the routes. Water and medical stations are operated for races and parades.

An event activity log is maintained. The log contains every activity that occurs during an event. Personnel also complete critiques after an event. Personnel must complete a critique to be eligible for overtime pay. The logs and the critiques are used in debriefings after an event.

Public information and outreach are very important parts of planning for special events in the city. There are varieties of methods used to provide information to the public. These methods include weekly detailed faxes with information on upcoming special events to 115 agencies, a 24-hour phone line with recorded messages, highway advisory radio, a real-time traffic website, and changeable message signs.

Thank you.


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