managing travel for planned special events - FHWA Operations ...

MANAGING TRAVEL FORPLANNED SPECIAL EVENTSFINAL REPORTSEPTEMBER 2003

NOTICEThis document is disseminated under thesponsorship of the Department ofTransportation in the interest of informationexchange. The United States Governmentassumes no liability for its contents or usethereof. This report does not constitute astandard, specification, or regulation.The United States Government does notendorse products or manufacturers. Tradeand manufacturers’ names appear in thisreport only because they are consideredessential to the object of the document.i

Technical Report Documentation Page1. Report No.2. Government Accession No. 3. Recipient’s Catalog No.FHWA-OP-04-0104. Title and Subtitle5. Report DateSeptember 2003Managing Travel for Planned Special Events 6. Performing Organization Code7. Author(s)Steven P. Latoski, Walter M. Dunn, Jr., Bernie Wagenblast,Jeffrey Randall, Matthew D. Walker9. Performing Organization Name and AddressDunn Engineering Associates, P.C.66 Main StreetWesthampton Beach, NY 1197812. Sponsoring Agency Name and AddressOffice of Transportation ManagementFederal Highway Administration400 Seventh Street, S.W.Washington, D.C. 2059015. Supplementary Notes8. Performing Organization Report No.10. Work Unit No. (TRAIS)11. Contract or Grant No.DTFH61-01-C-0018013. Type of Report and Period CoveredFinal ReportApril 2002 – September 200314. Sponsoring Agency CodeHOTMJon Obenberger, FHWA Operations Office of Transportation Management, Contracting Officer’sTechnical Representative (COTR).Technical report was performed under contract to Science Applications International Corporation.16. AbstractThis handbook presents and recommends policies, regulations, planning and operations processes,impact mitigation strategies, equipment and personnel resources, and technology applications used inthe 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 ofplanned special events impacting transportation system operations in rural, urban, and metropolitanareas. 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 planningand management.17. Key WordsPlanned Special Events, RegionalCoordination, Permit, Feasibility Study,Traffic Management, Parking Management,Pedestrian Control, Traveler Information,Travel Demand Management, TransitService, Implementation, TrafficManagement Team, Evaluation19. Security Classif. (of this report)UnclassifiedForm DOT F 1700.7 (8-72)18. Distribution StatementThis document may be distributed withoutrestriction.20. Security Classif. (of this page) 21. No. of PagesUnclassified427Reproduction of completed page authorized22. Pricei

ACKNOWLEDGEMENTSThis 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, NebraskaDepartment 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 bothrecognized and appreciated.In addition, the authors would like to express appreciation to the very many transportationprofessionals who contributed to the project by responding to requests for information. Specialrecognition is given to Mark Newland and Jay Wasson of the Indiana Department ofTransportation for hosting a visit by the writing team during the 2002 Brickyard 400. Thefollowing agencies and universities contributed valuable information and data in support of thisproject:• 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 Transportationiii

TABLE OF CONTENTSINTRODUCTION................................................................................................................... i-1Planned Special Events ........................................................................................... i-1Background .............................................................................................................. i-2Purpose.................................................................................................................... i-4References............................................................................................................... i-5CHAPTER ONE – BACKGROUND ..................................................................................... 1-1Definition .................................................................................................................. 1-1Statement of the Problem ........................................................................................ 1-1Sources of Congestion................................................................................ 1-1Impact of Planned Special Events .............................................................. 1-3Goals of Managing Travel for Planned Special Events ........................................... 1-4Benefits of Successful Planned Special Events ...................................................... 1-5Literature Review ..................................................................................................... 1-7NCHRP Synthesis 309................................................................................ 1-7FHWA Metropolitan ITS Infrastructure Deployment Tracking .................... 1-7Handbook Overview................................................................................................. 1-8Approach..................................................................................................... 1-8Intended Audience ...................................................................................... 1-9Organization................................................................................................ 1-11References............................................................................................................... 1-13CHAPTER TWO – CHARACTERISTICS AND CATEGORIES OF PLANNED SPECIALEVENTS ............................................................................................... 2-1Purpose.................................................................................................................... 2-1Planned Special Event Classification....................................................................... 2-1Characteristics ............................................................................................ 2-1Categories................................................................................................... 2-4Impact Level................................................................................................ 2-7Stakeholder Groups ................................................................................................. 2-13References............................................................................................................... 2-17CHAPTER THREE – OVERVIEW ........................................................................................ 3-1Purpose.................................................................................................................... 3-1Introduction .............................................................................................................. 3-1Background .............................................................................................................. 3-2What is Managing Travel for Planned Special Events?.............................. 3-2Stakeholder Roles and Coordination .......................................................... 3-4Phases of Managing Travel for Planned Special Events............................ 3-8Planned Special Event Categories .......................................................................... 3-9Discrete/Recurring Event at a Permanent Venue....................................... 3-9Continuous Event........................................................................................ 3-10Street Use Event......................................................................................... 3-10Regional/Multi-Venue Event ....................................................................... 3-11Rural Event ................................................................................................. 3-11Program Planning .................................................................................................... 3-11Regional Level ............................................................................................ 3-12Local Level .................................................................................................. 3-13Event Operations Planning ...................................................................................... 3-16Initial Planning Activities ............................................................................. 3-18Feasibility Study.......................................................................................... 3-22Traffic Management Plan............................................................................ 3-27Travel Demand Management and Traveler Information............................. 3-44iv

Implementation Activities ......................................................................................... 3-47Implementation Plan ................................................................................... 3-47Review and Testing..................................................................................... 3-47Personnel .................................................................................................... 3-50Day-of-Event Activities............................................................................................. 3-51Traffic Management Team.......................................................................... 3-52Communication ........................................................................................... 3-53Traffic Monitoring ........................................................................................ 3-55Post-Event Activities ................................................................................................ 3-55Evaluation Framework ................................................................................ 3-56Participant Evaluation ................................................................................. 3-57Post-Event Debriefing ................................................................................. 3-58Post-Event Report....................................................................................... 3-58CHAPTER FOUR – REGIONAL AND LOCAL COORDINATION....................................... 4-1Purpose.................................................................................................................... 4-1Introduction .............................................................................................................. 4-2Regional Level ......................................................................................................... 4-2Institutional Framework............................................................................... 4-2Policy Support............................................................................................. 4-5Regional Planned Special Events Program................................................ 4-6Relationship to FHWA Traffic Incident ManagementSelf-Assessment Guide .............................................................................. 4-10Local Level ............................................................................................................... 4-10Overview of Planned Special Event Permitting .......................................... 4-10Permit Process............................................................................................ 4-12Application Components ............................................................................. 4-19Permitting Requirements ............................................................................ 4-21Infrastructure Support .............................................................................................. 4-24Technology Applications ............................................................................. 4-24Funding Sources......................................................................................... 4-33References............................................................................................................... 4-34CHAPTER FIVE – EVENT OPERATIONS PLANNING....................................................... 5-1Purpose.................................................................................................................... 5-1Introduction .............................................................................................................. 5-2Initial Planning Activities........................................................................................... 5-2Overview ..................................................................................................... 5-2Stakeholder Roles and Coordination .......................................................... 5-3Risk Assessment......................................................................................... 5-5Performance Goals and Objectives ............................................................ 5-7Planning Schedule and Deliverables .......................................................... 5-8Public Outreach........................................................................................... 5-10Stakeholder Review of Planning Products.................................................. 5-13Policies and Agreements ............................................................................ 5-14Feasibility Study ....................................................................................................... 5-16Overview ..................................................................................................... 5-16Data Requirements ..................................................................................... 5-18Travel Forecast ........................................................................................... 5-18Market Area Analysis .................................................................................. 5-25Parking Demand Analysis........................................................................... 5-27Traffic Demand Analysis ............................................................................. 5-29Roadway Capacity Analysis........................................................................ 5-30Mitigation of Impacts ................................................................................... 5-31External Factors Affecting Scope of Event Impact .................................................. 5-33Overview ..................................................................................................... 5-33v

Available Resources ................................................................................... 5-33Weather....................................................................................................... 5-34Concurrent Road Construction and Planned Special Events ..................... 5-34External Factor Monitoring and Assessment .............................................. 5-36References............................................................................................................... 5-36CHAPTER SIX – TRAFFIC MANAGEMENT PLAN ............................................................ 6-1Purpose.................................................................................................................... 6-1Introduction .............................................................................................................. 6-2Plan Components..................................................................................................... 6-2Overview ..................................................................................................... 6-2Development Process and Integration........................................................ 6-5Special Considerations ............................................................................... 6-7Contingency Planning ................................................................................. 6-8Analysis and Modeling ............................................................................................. 6-9Overview ..................................................................................................... 6-9Analysis Techniques ................................................................................... 6-10Site Access and Parking Plan.................................................................................. 6-12Overview ..................................................................................................... 6-12Parking Policies and Tactics ....................................................................... 6-12Vehicle Access and Circulation................................................................... 6-16Parking Area Design and Operation ........................................................... 6-20Parking Occupancy Monitoring ................................................................... 6-23Parking Regulations.................................................................................... 6-24Plan Specifications...................................................................................... 6-25Pedestrian Access Plan ........................................................................................... 6-25Overview ..................................................................................................... 6-25Pedestrian Control ...................................................................................... 6-28Disabled Accessibility ................................................................................. 6-32Shuttle Bus Service..................................................................................... 6-32Plan Specifications...................................................................................... 6-36Traffic Flow Plan ...................................................................................................... 6-36Overview ..................................................................................................... 6-36Strategic Route Planning ............................................................................ 6-38Alternate Routes ......................................................................................... 6-40Emergency Access Routes......................................................................... 6-41Background Traffic Accommodation........................................................... 6-43Transit Accommodation .............................................................................. 6-45Plan Specifications...................................................................................... 6-47Traffic Control Plan .................................................................................................. 6-47Overview ..................................................................................................... 6-47Freeway Traffic Control............................................................................... 6-49Street Traffic Control................................................................................... 6-51Intersection Traffic Control.......................................................................... 6-57Plan Specifications...................................................................................... 6-59En-Route Traveler Information Plan ........................................................................ 6-61Overview ..................................................................................................... 6-61Information Needs....................................................................................... 6-62Static Signing .............................................................................................. 6-62Changeable Message Signs ....................................................................... 6-63Highway Advisory Radio ............................................................................. 6-64Media .......................................................................................................... 6-66Other Technology Applications ................................................................... 6-66Plan Specifications...................................................................................... 6-69Traffic Surveillance Plan .......................................................................................... 6-70Closed-Circuit Television Systems ............................................................. 6-70vi

Field Observation........................................................................................ 6-71Aerial Observation....................................................................................... 6-71Media Reports............................................................................................. 6-72Traffic Incident Management and Safety Plan......................................................... 6-72Overview ..................................................................................................... 6-72Crash Prevention Tactics............................................................................ 6-72Service Patrols ............................................................................................ 6-73Traffic Incident Quick Clearance Initiatives................................................. 6-75References............................................................................................................... 6-76CHAPTER SEVEN – TRAVEL DEMAND MANAGEMENT AND TRAVELERINFORMATION ............................................................................... 7-1Purpose.................................................................................................................... 7-1Introduction .............................................................................................................. 7-1Travel Demand Management .................................................................................. 7-2Overview ..................................................................................................... 7-2Demand Management Strategies ............................................................... 7-3High Occupancy Vehicle Incentives............................................................ 7-3Event Patron Incentives .............................................................................. 7-6Bicyclist Accommodation ............................................................................ 7-7Local Travel Demand Management............................................................ 7-8Transit Service ......................................................................................................... 7-9Overview ..................................................................................................... 7-9Public Transit Service Expansion ............................................................... 7-9Express Bus Service................................................................................... 7-11Charter Service ........................................................................................... 7-12Transit Service Marketing ........................................................................... 7-13Pre-Trip Traveler Information................................................................................... 7-14Information Needs....................................................................................... 7-14Internet ........................................................................................................ 7-16Telephone Information Systems ................................................................. 7-17Public Information Campaign...................................................................... 7-19Event and Venue Transportation Guide ..................................................... 7-20Other Technology Applications ................................................................... 7-21References............................................................................................................... 7-22CHAPTER EIGHT – IMPLEMENTATION ACTIVITIES ....................................................... 8-1Purpose.................................................................................................................... 8-1Introduction .............................................................................................................. 8-1Implementation Plan ................................................................................................ 8-2Overview ..................................................................................................... 8-2Plan Specifications...................................................................................... 8-3Review and Testing.................................................................................................. 8-5Purpose....................................................................................................... 8-5Stakeholder Simulation Exercises .............................................................. 8-6Equipment Testing ...................................................................................... 8-8Personnel ................................................................................................................. 8-9Overview ..................................................................................................... 8-9Volunteer Recruitment ................................................................................ 8-11Training Activities........................................................................................ 8-11References............................................................................................................... 8-12CHAPTER NINE – DAY-OF-EVENT ACTIVITIES ............................................................... 9-1Purpose.................................................................................................................... 9-1Introduction .............................................................................................................. 9-1Traffic Management Team....................................................................................... 9-2vii

Stakeholder Roles and Coordination .......................................................... 9-2Team Management..................................................................................... 9-4Command Post ........................................................................................... 9-4Resource Planning...................................................................................... 9-5Managing Traffic ......................................................................................... 9-5Evaluation Activities .................................................................................... 9-6Communication ........................................................................................................ 9-8Structure and Protocol ................................................................................ 9-8Interagency Communication ....................................................................... 9-8Equipment ................................................................................................... 9-9Interacting with the Media ........................................................................... 9-10Traveler Information Dissemination ............................................................ 9-11Traffic Monitoring ..................................................................................................... 9-12Purpose....................................................................................................... 9-12Traffic Management Support ...................................................................... 9-13Performance Evaluation Data ..................................................................... 9-14CHAPTER TEN – POST-EVENT ACTIVITIES..................................................................... 10-1Purpose.................................................................................................................... 10-1Introduction .............................................................................................................. 10-1Evaluation Framework ............................................................................................. 10-2Overview ..................................................................................................... 10-2Measures of Effectiveness.......................................................................... 10-3Integration with Program Planning Process................................................ 10-4Application to Future Events ....................................................................... 10-4Participant Evaluation .............................................................................................. 10-5Stakeholder Debriefing ............................................................................... 10-5Patron Survey ............................................................................................. 10-6Public Survey .............................................................................................. 10-7Post-Event Debriefing .............................................................................................. 10-7Meeting Organization.................................................................................. 10-8Meeting Agenda.......................................................................................... 10-8Identification of Key Successes and Lessons Learned .............................. 10-9Post-Event Report.................................................................................................... 10-10Report Organization.................................................................................... 10-10Operational Cost Analysis........................................................................... 10-11Qualitative Evaluation ................................................................................. 10-11Quantitative Evaluation ............................................................................... 10-12References............................................................................................................... 10-12CHAPTER ELEVEN – DISCRETE/RECURRING EVENT AT A PERMANENT VENUE ... 11-1Purpose.................................................................................................................... 11-1Introduction .............................................................................................................. 11-2Special Considerations ............................................................................... 11-2Event Operations Planning ...................................................................................... 11-3Implementation and Day-of-Event Activities ............................................................ 11-7Post-Event Activities ................................................................................................ 11-9Program Planning .................................................................................................... 11-10CHAPTER TWELVE – CONTINUOUS EVENT ................................................................... 12-1Purpose.................................................................................................................... 12-1Introduction .............................................................................................................. 12-1Special Considerations ............................................................................... 12-2Event Operations Planning ...................................................................................... 12-3Implementation and Day-of-Event Activities ............................................................ 12-6Post-Event Activities ................................................................................................ 12-8viii

Program Planning .................................................................................................... 12-9CHAPTER THIRTEEN – STREET USE EVENT.................................................................. 13-1Purpose.................................................................................................................... 13-1Introduction .............................................................................................................. 13-1Special Considerations ............................................................................... 13-2Event Operations Planning ...................................................................................... 13-3Implementation and Day-of-Event Activities ............................................................ 13-6Post-Event Activities ................................................................................................ 13-8Program Planning .................................................................................................... 13-9CHAPTER FOURTEEN – REGIONAL/MULTI-VENUE EVENT .......................................... 14-1Purpose.................................................................................................................... 14-1Introduction .............................................................................................................. 14-1Special Considerations ............................................................................... 14-2Event Operations Planning ...................................................................................... 14-2Implementation and Day-of-Event Activities ............................................................ 14-6Post-Event Activities ................................................................................................ 14-8Program Planning .................................................................................................... 14-9CHAPTER FIFTEEN – RURAL EVENT ............................................................................... 15-1Purpose.................................................................................................................... 15-1Introduction .............................................................................................................. 15-1Special Considerations ............................................................................... 15-2Event Operations Planning ...................................................................................... 15-2Implementation and Day-of-Event Activities ............................................................ 15-6Post-Event Activities ................................................................................................ 15-8Program Planning .................................................................................................... 15-9APPENDIX A – SAMPLE SPECIAL EVENT PERMIT REGULATIONS, APPLICATIONS,AND AGREEMENTS.................................................................................. A-1APPENDIX B – EVENT-ORIENTED RISK SCENARIO CONTINGENCY PLANS ............. B-1APPENDIX C – INTERAGENCY AGREEMENTS FOR SPECIAL EVENT PLANNING ..... C-1APPENDIX D – 2003 FAIR SAINT LOUIS EVENT PATRON SURVEY.............................. D-1APPENDIX E – REGIONAL DIRECTIONAL DISTRIBUTION FOR 2001 NASCARKANSAS 400 .............................................................................................. E-1APPENDIX F – PARKING AND PEDESTRIAN ACCOMMODATION PLANS –LAMBEAU FIELD RECONSTRUCTION.................................................... F-1APPENDIX G – WISCONSIN DOT ORGANIZATION AND DISSEMINATION OFINTER-JURISDICTIONAL ROAD CONSTRUCTION AND PLANNEDSPECIAL EVENT INFORMATION ............................................................. G-1APPENDIX H – EXAMPLE SITE AND PARKING MAPS.................................................... H-1APPENDIX I – EXAMPLE TRAFFIC FLOW MAPS ........................................................... I-1APPENDIX J – EXAMPLE PROTOCOL FOR PLANNED SPECIAL EVENT TRAFFICSIGNAL SYSTEM OPERATIONS.............................................................. J-1APPENDIX K – EXAMPLE TRAFFIC CONTROL PLANS .................................................. K-1ix

APPENDIX L – PUBLIC AGENCY AND EVENT-SPECIFIC WEBSITES........................... L-1APPENDIX M – VENUE TRANSPORTATION GUIDES ...................................................... M-1APPENDIX N – SAMPLE IMPLEMENTATION PLANS ...................................................... N-1x

LIST OF TABLESTable i-1 Practice of Managing Travel for Planned Special Events........................... i-2Table i-2 Keys to Successful Management of Planned Special Events .................... i-4Table 1-1 Congestion Impacts of Planned and Unplanned Events ............................ 1-2Table 1-2 Impacts on Transportation System Users................................................... 1-3Table 1-3 Planned Special Event Travel Management Goals .................................... 1-4Table 1-4 Technical Reference Objectives ................................................................. 1-5Table 1-5 Overall Benefits........................................................................................... 1-6Table 1-6 Benefits to Transportation Stakeholders and System Operations.............. 1-6Table 1-7 Community Benefits.................................................................................... 1-6Table 1-8 Planned Special Event Management Phases and Key Tasks.................... 1-10Table 1-9 Event Operations Stakeholders .................................................................. 1-11Table 1-10 Handbook Organization .............................................................................. 1-12Table 1-11 Technical Reference User Groups.............................................................. 1-13Table 2-1 Categories of Planned Special Events........................................................ 2-4Table 2-2 Characteristics of Different Planned Special Event Categories.................. 2-5Table 3-1 Responsibilities of Stakeholder Groups...................................................... 3-4Table 3-2 Event Operation Characteristics ................................................................. 3-10Table 3-3 Categories of Planned Special Events........................................................ 3-10Table 3-4 Distinguishing Operating Characteristics of a Discrete/Recurring Eventat a Permanent Venue ................................................................................ 3-10Table 3-5 Distinguishing Operating Characteristics of a Continuous Event ............... 3-10Table 3-6 Distinguishing Operating Characteristics of a Street Use Event ................ 3-10Table 3-7 Distinguishing Operating Characteristics of a Regional/Multi-VenueEvent ........................................................................................................... 3-11Table 3-8 Distinguishing Operating Characteristics of a Rural Event......................... 3-11Table 3-9 Regional Program Stakeholder Organizations ........................................... 3-13Table 3-10 Municipal Code Provisions on Planned Special Events ............................. 3-16Table 3-11 Summary of Event-Oriented Risk Scenarios .............................................. 3-19Table 3-12 Transportation System Operations Performance Objectives for PlannedSpecial Events ............................................................................................ 3-19Table 3-13 Measures of Effectiveness for Assessing Performance Objectives ........... 3-20Table 3-14Summary of Policies and Agreements Applicable to Managing PlannedSpecial Events ............................................................................................ 3-22Table 3-15 Feasibility Study Analysis Summary........................................................... 3-23Table 3-16 Traffic Generation Forecast Process .......................................................... 3-24Table 3-17 Market Area Analysis Methods ................................................................... 3-25Table 3-18Tools for Mitigating Planned Special Event Impacts on TransportationSystem Operations...................................................................................... 3-28Table 3-19 Groups Attending a Planned Special Event................................................ 3-29Table 3-20 Contingency Plan Checklist ........................................................................ 3-29Table 3-21 Site Access and Circulation Considerations ............................................... 3-30Table 3-22 Site and Parking Plan Checklist.................................................................. 3-32Table 3-23 Pedestrian Crossing Tactics ....................................................................... 3-33Table 3-24 Pedestrian Access Plan Checklist .............................................................. 3-34Table 3-25Tactics for Accommodating Background Traffic during Planned SpecialEvents ......................................................................................................... 3-36Table 3-26 Bus Accommodation Tactics....................................................................... 3-36Table 3-27 Traffic Flow Plan Checklist.......................................................................... 3-37Table 3-28 Interchange Operations Tactics for Planned Special Events ..................... 3-39Table 3-29 Traffic Control Plan Checklist...................................................................... 3-41xi

Table 3-30 Crash Prevention Tactics............................................................................ 3-43Table 3-31 Travel Demand Management Strategies .................................................... 3-45Table 3-32 Transit Service Strategies........................................................................... 3-46Table 3-33 Pre-Trip Traveler Information Dissemination Techniques .......................... 3-47Table 3-34 Implementation Plan Checklist.................................................................... 3-48Table 3-35 Elements of a Stakeholder Simulation Exercise ......................................... 3-50Table 3-36 General Volunteer Training Activities.......................................................... 3-51Table 3-37 Traffic Management Team Stakeholders.................................................... 3-52Table 3-38 Traffic Management Plan Evaluation Activities........................................... 3-53Table 3-39 Communications Structure Primary Considerations ................................... 3-54Table 3-40 Internal Measures of Effectiveness............................................................. 3-56Table 3-41 External Measures of Effectiveness............................................................ 3-56Table 3-42 Elements of a Stakeholder Debriefing ........................................................ 3-57Table 3-43 Post-Event Debriefing Meeting Agenda Topics .......................................... 3-58Table 3-44 Outline of Post-Event Report ...................................................................... 3-58Table 4-1 Regional Program Stakeholder Organizations ........................................... 4-8Table 4-2 Traffic Incident Management Program Assessment Questions Relative toManaging Planned Special Events ............................................................. 4-11Table 4-3 Stakeholders Governing Permit Applications ............................................. 4-13Table 4-4 Planned Special Event Permit Application Submission Deadline............... 4-15Table 4-5 Planned Special Event Permit Restrictions ................................................ 4-16Table 4-6 Planned Special Event Permit Application Decision Criteria ...................... 4-17Table 4-7 Event Organizer Special Requirements...................................................... 4-18Table 4-8 Planned Special Event Permit Application Components ............................ 4-19Table 4-9 Planned Special Event Permit Application Supplemental Requirements... 4-22Table 4-10 Guidelines for Compliance with the Americans with Disabilities Act .......... 4-23Table 4-11 Municipal Code Provisions on Planned Special Events ............................. 4-23Table 4-12 Planned Special Event Permit Application Fees......................................... 4-25Table 4-13 Planned Special Event Funding Mechanisms ............................................ 4-25Table 4-14 Louisville, KY Criteria for Providing Free Services for a Special Event...... 4-26Table 4-15 Planned Special Event Technology Applications........................................ 4-27Table 5-1 Event Planning Team Responsibilities During the Event OperationsPlanning Phase........................................................................................... 5-3Table 5-2 Stakeholder Participation in Event Operations Planning ............................ 5-4Table 5-3 Summary of Event-Oriented Risk Scenarios .............................................. 5-6Table 5-4 Transportation System Operations Performance Objectives for PlannedSpecial Events ............................................................................................ 5-8Table 5-5 Measures of Effectiveness for Assessing Performance Objectives ........... 5-8Table 5-6 Seahawk Football Transportation Management Program Goals andObjectives ................................................................................................... 5-11Table 5-7 Measures Considered in Developing a Neighborhood ParkingTable 5-8Management Plan for Seattle’s Safeco Field.............................................. 5-12Summary of Policies and Agreements Applicable to Managing PlannedSpecial Events ............................................................................................ 5-15Table 5-9 Components of Interagency Agreements ................................................... 5-16Table 5-10 Feasibility Study Analysis Summary........................................................... 5-17Table 5-11 Feasibility Study Data Requirements.......................................................... 5-19Table 5-12Example Modal Split for Discrete/Recurring Events at a PermanentVenue.......................................................................................................... 5-21Table 5-13 Traffic Generation Forecast Process .......................................................... 5-22Table 5-14 Example Planned Special Event Vehicle Occupancy Factors.................... 5-23Table 5-15 Example Planned Special Event Traffic Arrival Rate Characteristics......... 5-24Table 5-16 Market Area Analysis Methods ................................................................... 5-26Table 5-17 Example Event Parking Occupancy Summary ........................................... 5-29xii

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

Table 8-4 Day-of-Event Personnel Resource Requirements...................................... 8-10Table 8-5 Example Rewards for Volunteer Service .................................................... 8-11Table 8-6 General Volunteer Training Activities.......................................................... 8-12Table 9-1 Day-of-Event Activities................................................................................ 9-2Table 9-2 Traffic Management Team Stakeholders.................................................... 9-2Table 9-3 Traffic Management Plan Evaluation Activities........................................... 9-7Table 9-4 Communications Structure Primary Considerations ................................... 9-8Table 9-5 Advantages of Operating on a Common Frequency .................................. 9-8Table 9-6 Levels of Communication............................................................................ 9-9Table 9-7 Use of Media ............................................................................................... 9-10Table 9-8 Traveler Information Dissemination Methods ............................................. 9-11Table 9-9 Use of Surveillance Information .................................................................. 9-13Table 9-10 Data Collection Methods............................................................................. 9-13Table 9-11 Benefits of Detection and Surveillance ....................................................... 9-14Table 9-12 Traffic Monitoring Information Uses............................................................ 9-14Table 9-13 Performance Evaluation Measures............................................................. 9-15Table 9-14 Reasons for Traffic Monitoring and Evaluation........................................... 9-15Table 10-1 Key Post-Event Activities ............................................................................ 10-3Table 10-2 Internal Measures of Effectiveness............................................................. 10-3Table 10-3 External Measures of Effectiveness............................................................ 10-3Table 10-4 Elements of a Stakeholder Debriefing ........................................................ 10-5Table 10-5 Types of Event Patron Surveys .................................................................. 10-7Table 10-6 Post-Event Debriefing Meeting Agenda Topics .......................................... 10-9Table 10-7 Outline of Post-Event Report ...................................................................... 10-10Table 10-8 Elements of a Post-Event Report................................................................ 10-11Table 10-9 Key Topics of a Qualitative Evaluation ....................................................... 10-12Table 11-1 Types of Discrete/Recurring Events at a Permanent Venue ...................... 11-2Table 11-2 Distinguishing Operating Characteristics of a Discrete/Recurring Event ata Permanent Venue .................................................................................... 11-2Table 11-3 Event Operations Planning Steps - Discrete/Recurring Event at aPermanent Venue ....................................................................................... 11-5Table 11-4 Checklist of Implementation and Day-of-Event Activities forDiscrete/Recurring Events at a Permanent Venue ..................................... 11-8Table 11-5 Checklist of Post-Event Activities for Discrete/Recurring Events at aPermanent Venue ....................................................................................... 11-9Table 11-6 Program Planning Activities for Discrete/Recurring Events at aPermanent Venue ....................................................................................... 11-11Table 12-1 Types of Continuous Events ....................................................................... 12-1Table 12-2 Distinguishing Operating Characteristics of a Continuous Event ............... 12-2Table 12-3 Event Operations Planning Steps - Continuous Event ............................... 12-5Table 12-4Checklist of Implementation and Day-of-Event Activities for ContinuousEvents ......................................................................................................... 12-7Table 12-5 Checklist of Post-Event Activities for Continuous Events........................... 12-8Table 12-6 Program Planning Activities for Continuous Events ................................... 12-10Table 13-1 Types of Street Use Events ........................................................................ 13-2Table 13-2 Distinguishing Operating Characteristics of a Street Use Event ................ 13-2Table 13-3 Event Operations Planning Steps - Street Use Event ................................ 13-5Table 13-4Checklist of Implementation and Day-of-Event Activities for Street UseEvents ......................................................................................................... 13-7Table 13-5 Checklist of Post-Event Activities for Street Use Events ............................ 13-9Table 13-6 Program Planning Activities for Street Use Events..................................... 13-10xiv

Table 14-1 Types of Regional/Multi-Venue Events....................................................... 14-2Table 14-2 Distinguishing Operating Characteristics of a Regional/Multi-VenueEvent ........................................................................................................... 14-2Table 14-3 Event Operations Planning Steps - Regional/Multi-Venue Event............... 14-5Table 14-4 Checklist of Implementation and Day-of-Event Activities forRegional/Multi-Venue Events...................................................................... 14-7Table 14-5 Checklist of Post-Event Activities for Regional/Multi-Venue Events........... 14-8Table 14-6 Program Planning Activities for Regional/Multi-Venue Events ................... 14-10Table 15-1 Types of Rural Events................................................................................. 15-2Table 15-2 Distinguishing Operating Characteristics of a Rural Event......................... 15-2Table 15-3 Event Operations Planning Steps - Rural Event......................................... 15-5Table 15-4 Checklist of Implementation and Day-of-Event Activities for Rural Events 15-7Table 15-5 Checklist of Post-Event Activities for Rural Events..................................... 15-8Table 15-6 Program Planning Activities for Rural Events ............................................. 15-10xv

LIST OF FIGURESFigure i-1 Planned Special Event................................................................................ i-1Figure 1-1 Planned Special Event Patron Arrival......................................................... 1-1Figure 1-2 Community Promotion of Planned Special Events ..................................... 1-5Figure 1-3 Media Promotion of Stakeholder Efforts ..................................................... 1-7Figure 2-1 Event Traffic Management.......................................................................... 2-1Figure 2-2 Event Operation Characteristics ................................................................. 2-2Figure 2-3 Examples of Planned Special Events ......................................................... 2-6Figure 2-4 Example Regional/Multi-Venue Event ........................................................ 2-8Figure 2-5 Planned Special Event Impact Factors....................................................... 2-10Figure 2-6 Wisconsin TIME program Special Event Traffic Management PlanningTool ............................................................................................................. 2-14Figure 2-7 Planned Special Event Stakeholder Groups............................................... 2-16Figure 3-1 Event Pedestrian Management................................................................... 3-1Figure 3-2 Transportation Management Plan Components and Event PlanningTeam Involvement....................................................................................... 3-3Figure 3-3 Planned Special Event Stakeholders.......................................................... 3-5Figure 3-4 Planned Special Event Management Phases and Associated Products.... 3-9Figure 3-5 Planned Special Event Permit Process ...................................................... 3-15Figure 3-6 Event Operations Planning Process Flowchart .......................................... 3-17Figure 3-7 Event Operations Planning Schedule ......................................................... 3-21Figure 3-8 Feasibility Study Analysis Steps ................................................................. 3-23Figure 3-9 Parking Demand Analysis Process............................................................. 3-26Figure 3-10 Traffic Flow Route Assessment Process .................................................... 3-35Figure 4-1 Closed-Circuit Television Camera on a Stadium Access Road.................. 4-1Figure 4-2 Major Elements of a Framework for Regional Collaboration andCoordination................................................................................................ 4-3Figure 4-3 Planned Special Event Permit Process ...................................................... 4-14Figure 5-1 Event Planning Team Meeting.................................................................... 5-1Figure 5-2 Nevada State Route 168 Closure During Motorcycle Rally........................ 5-7Figure 5-3 Event Operations Planning Schedule ......................................................... 5-9Figure 5-4 Chicago Resident Permit Parking Program Enforcement........................... 5-13Figure 5-5 Feasibility Study Analysis Steps ................................................................. 5-17Figure 5-6 Commuter Rail Modal Split ......................................................................... 5-20Figure 5-7Event Patron Departure from a Discrete/Recurring Event at a PermanentVenue.......................................................................................................... 5-23Figure 5-8 Pre-Event Activity........................................................................................ 5-25Figure 5-9 Example Travel Time Analysis.................................................................... 5-26Figure 5-10 Parking Demand Analysis Process............................................................. 5-28Figure 5-11 Designated Event Off-Site Parking Area .................................................... 5-29Figure 5-12 Local Area Planned Special Event Parking Restriction .............................. 5-30Figure 5-13 Example Preliminary Road Segment Capacity Analysis ............................ 5-30Figure 5-14 CORSIM Simulation Animation................................................................... 5-31Figure 5-15 Stadium Reconstruction.............................................................................. 5-34Figure 5-16 Site and Pedestrian Accommodation Plan for Stadium Reconstruction..... 5-35Figure 5-17 Contingency Parking Plan for Weather....................................................... 5-35Figure 5-18 Internet Summary of Road Construction and Planned Special Events ...... 5-36Figure 6-1 Temporary Reversible Lane Operation....................................................... 6-1xvi

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

Figure 6-58 Portable Lighting ......................................................................................... 6-73Figure 6-59 Congestion Warning Sign ........................................................................... 6-73Figure 6-60 Service Patrol Vehicle................................................................................. 6-74Figure 6-61 Highway Advisory Radio Traveler Safety Message.................................... 6-74Figure 7-1 Planned Special Event Express Bus Service from Park and Ride Lot ....... 7-1Figure 7-2 High Occupancy Vehicle Incentive ............................................................. 7-5Figure 7-3 High Occupancy Vehicle Parking Incentive ................................................ 7-5Figure 7-4 Venue Website Survey on Event Patron Incentives ................................... 7-7Figure 7-5 Event Patron Incentive................................................................................ 7-7Figure 7-6 Bicycle Parking Area................................................................................... 7-8Figure 7-7 Traffic Information Dissemination Via a Public Agency Website ................ 7-16Figure 7-8 Telephone Information System Menu Structure ......................................... 7-18Figure 7-9 Promotion of 511 Service on Event Website .............................................. 7-19Figure 7-10 Public Information Campaign Promotion .................................................... 7-19Figure 7-11 Public Information Campaign Brochure ...................................................... 7-20Figure 7-12 Television Travel Report ............................................................................. 7-22Figure 8-1 Personnel Monitoring of Arterial Ramp Closure ......................................... 8-1Figure 8-2 Planned Special Event Implementation Plans ............................................ 8-3Figure 9-1 Traffic Management Team Day-of-Event Interaction.................................. 9-1Figure 9-2 Unified Command Organization for Planned Special Events ..................... 9-3Figure 9-3 Planned Special Event Command Post...................................................... 9-4Figure 9-4 Internet Traveler Information....................................................................... 9-11Figure 10-1 Field Observation of Traffic Management Plan Implementation................. 10-1Figure 10-2 Electronic Vehicle Counter Installation ....................................................... 10-2Figure 10-3 Maintenance of Freeway Service Patrol Assist Log ................................... 10-2Figure 10-4 Indiana State Police Debriefing Protocol for Brickyard 400........................ 10-6Figure 10-5 TMC Meeting Room.................................................................................... 10-8Figure 11-1 Discrete/Recurring Event at a Permanent Venue: Qualcomm Stadium inSan Diego, CA ............................................................................................ 11-1Figure 11-2 Event Operations Planning Process Flowchart .......................................... 11-4Figure 12-1 Continuous Event: Summerfest Music Festival in Milwaukee, WI.............. 12-1Figure 12-2 Event Operations Planning Process Flowchart .......................................... 12-4Figure 13-1 Street Use Event: New York City Cycling Championship........................... 13-1Figure 13-2 Event Operations Planning Process Flowchart .......................................... 13-4Figure 14-1 Regional/Multi-Venue Event: Bradley Center, U.S. Cellular Arena, andMidwest Airlines Center (convention center) Adjacent to 4 th Street inMilwaukee, WI............................................................................................. 14-1Figure 14-2 Event Operations Planning Process Flowchart .......................................... 14-4Figure 15-1 Rural Event: U.S. Open Championship in Southampton, NY..................... 15-1Figure 15-2 Event Operations Planning Process Flowchart .......................................... 15-4xviii

INTRODUCTIONFigure i-1Planned Special EventPLANNED SPECIALEVENTSPlanned special events include sportingevents, concerts, festivals, and conventionsoccurring at permanent multi-use venues(e.g., arenas, stadiums, racetracks, fairgrounds,amphitheaters, convention centers,etc.). They also include less frequent publicevents such as parades, fireworks displays,bicycle races, sporting games, motorcyclerallies, seasonal festivals, and milestonecelebrations at temporary venues.The term planned special event is used todescribe these activities because of theirknown locations, scheduled times of occurrence,and associated operating characteristics.Emergencies, such as a severe weatherevent or other major catastrophe, representspecial events that can induce extreme trafficdemand under an evacuation condition.However, these events occur at random andwith little or no advance warning, thus contrastingcharacteristics of planned specialevents.A planned special event creates an increasein travel demand and may require road closuresto stage the event. Planned specialevents generate trips, thus impacting overalltransportation system operations. This includesfreeway operations, arterial and otherstreet operations, transit operations, and pedestrianflow. Unlike roadway constructionactivities or traffic incidents that constraintravel within a single corridor, planned specialevents affect travel in all corridors servingthe event venue.i-1

BACKGROUNDPlanned special events pose a unique anddiverse set of challenges to stakeholderscharged with maintaining transportation systemsafety, mobility, and reliability. Thesechallenges include:• Managing intense travel demand• Mitigating potential capacity constraints• Influencing the utility associated withvarious travel choices• Accommodating heavy pedestrian flowManaging travel for planned special eventsencompasses both a local and regional level.The local level involves managing travel forone planned special event. The regionalperspective concerns proactively improvingtravel management for all planned specialevents occurring in a region where, in mostmajor U.S. metropolitan areas, hundreds ofplanned special events occur annually.Table i-1 compares current state-of-thepracticeactivities to state-of-the-art activitiesin managing travel for planned specialevents.Table i-1Practice of Managing Travel for Planned Special EventsSTATE-OF-THE-PRACTICESTATE-OF-THE-ARTInstitutional• Manage traffic and parking forplanned special events.• Manage travel for planned special events by adopting an intermodalapproach and utilizing travel demand management strategies.• Focus on traffic management team • Form multidisciplinary stakeholder groups and solicit public input.needs.• Secure verbal coordination betweenstakeholders.• Develop a joint operations policy or mutual-aid agreement betweenstakeholders.• Focus on single planned specialevents.• Conduct periodic ad-hoc eventplanning.• Focus on event-specific planningand operations only.• Obtain periodic participation andcontribution from community interestand event support stakeholders.• Create a committee on planned special events to monitor and plantravel management activities for all special events that occurwithin a region.Organizational• Follow an established event operations planning process.• Develop standard street use event routes and traffic flow routes.• Integrate event evaluation results into future planning activities tofacilitate continuous improvement of transportation system performance.• Establish stakeholder groups specific to advance planning andday-of-event activities to strengthen stakeholder coordination andcommitment.Technical• Utilize mobile devices: (1)• Utilize fixed freeway and arterialmanagement infrastructure tomonitor and manage traffic duringa planned special event. (1) o Portable traffic management systems (closed-circuit television,detectors, changeable message signs)o Portable traffic signalso Portable traffic management centers• Conduct point traffic and parkingmanagement using field personnel• Deploy automated systems:o Parking management systemso Dynamic trailblazer signso Lane control signso Blank-out signsi-2

The state-of-the-practice involves an operations-basedapproach that incorporates existingpolicies, procedures, and infrastructureapplied under daily traffic management,incident management, and multi-modalmanagement activities. In this approach,stakeholder planning activities parallel thosefor unplanned events, such as traffic incidentsand emergencies, where various whatifscenarios shape response and managementstrategies. Stakeholders characteristicallydiverge from an interagency concept of operationsand, instead, focus on the rapid mobilizationand execution of planned agencyspecifictasks.However, incident management or emergencyresponse experiences provide the opportunityto build on existing stakeholderrelationships, although it must be recognizedthat stakeholder roles and priorities changeconsiderably under planned special events.This technical reference will facilitate buildinga successful special event transportationmanagement plan starting from a cornerstoneof daily traffic, incident, and multimodalmanagement activities.The state-of-the-art in managing travel forplanned special events emphasizes a programapproach specific to planned specialevents. This approach revolves around distinct,chronological phases relative to advanceplanning, management, and evaluationactivities. Individual phases includeinterconnected strategies to assist stakeholdersin identifying needs and resultingoperations and service strategies tailored tothe characteristics of a specific planned specialevent:• Operations strategies include proactivecontrol and management tactics, coupledwith innovative technology applications,that effect changes in traffic and transitoperations to improve safety and reducedelay in addition to reducing field personnelrequirements.• Service strategies include policies andinitiatives aimed at communicating advisoryinformation and travel options toevent patrons and non-attendee road usersto reduce peak traffic demand levelson corridors serving an event venue, thusimproving system travel mobility and reliability.Collectively, these strategies meet the challengeof managing travel for planned specialevents on a local level or for a singleplanned special event. Stakeholders mustpredict travel demand and efficiently utilizethe excess capacity of the roadway system,parking facilities, and transit. They mustalso reach out to all road users, communicatetravel information, and offer attractiveincentives to influence traveler behavior anddecision-making.Integration of phases, from post-eventevaluation to advance planning for futureplanned special events, creates a seamlessprocess allowing for continuous improvementof transportation system performancefrom one planned special event to the next.This iterative process, where stakeholdersapply successes and lessons learned from aparticular special event to future events,meets the challenge of managing travel forplanned special events on a regional level orfor all planned special events in a region.The advance planning and management oftravel for planned special events requires theconsistent involvement and coordination ofstakeholders within and across every eventmanagement phase. Stakeholders may havethe opportunity to partner with new stakeholdersacross travel modes, disciplines, andjurisdictions. As a result, the state-of-the-arti-3

includes forming multidisciplinary stakeholdergroups assigned to carryout the objectivesof a particular phase of managingtravel for planned special events. Thisframework facilitates easy buy-in by agenciesnot involved in day-to-day transportationsystem operations and achieves betterstakeholder consensus on group objectives.PURPOSEGiven the dynamic characteristics ofplanned special events, the Federal HighwayAdministration (FHWA) TransportationManagement Center Pooled-Fund Study(TMC PFS) recognized the need to identifyoperations planning and program issues, deriveoperational strategies and plans, andexamine successful interagency cooperationand communication techniques specific toplanned special events. In turn, the TMCPFS commissioned development of a technicalreference document that provides direction,guidance, and recommended practicesrelated to the proactive management ofplanned special events. It builds on thestate-of-the-practice in managing travel forplanned special events and strives to complementand advance the present capabilitiesof TMCs in addition to that of traffic managementprograms in metropolitan, urban,and rural areas.This technical reference bridges the gap betweenthe state-of-the-practice and state-ofthe-artin managing travel for planned specialevents by providing both: (1) a frameworkfor establishing a stakeholder coordinatedand integrated planned special eventmanagement practice and (2) innovativetechniques for enhancing the efficiency andapplicability of current agency eventspecificplans. This handbook presents andrecommends various processes, operationsstrategies, service strategies, and technologyapplications that satisfy the special customerrequirements and stakeholder performancerequirements driving planned special eventtravel management. It profiles numeroussuccessful practices, highlighting provenpolicies, regulations, strategies, and resourcesused in the advance planning, management,and monitoring of travel forplanned special events.This handbook was written to assist responsibleagencies in managing the everincreasingnumber of planned special eventsimpacting transportation system operationsin rural, urban, and metropolitan areas. Itcommunicates to a wide audience, assistingreaders that possess the following backgrounds:(1) novice planned special eventpractitioner, (2) experienced planned specialevent practitioner, (3) local, singlejurisdictionevent planning and management,(4) regional, multi-jurisdiction eventplanning and management. This technicalreference facilitates easy extraction ofguidelines, processes, operations strategies,service strategies, and associated tactics tomeet the needs of transportation system operators.In turn, operators will gain an understandingof the keys to successfulplanned special event transportation management,as summarized in Table i-2.Table i-2Keys to Successful Managementof Planned Special EventsKEY EFFORTS• Achieve early, constant input and participationof involved agencies.• Predict event-generated travel impacts on botha local and regional level.• Develop an integrated transportation managementplan that can accommodate a rangeof traffic demands and other contingencies.• Ensure successful traffic management planimplementation.• Deploy a well-organized traffic managementteam equipped with the ability to communicateseamlessly between agencies.i-4

Table i-2 (cont’d.)Keys to Successful Managementof Planned Special EventsKEY EFFORTS• Conduct continuous traffic monitoring on theday-of-event and maintain protocol formodifying the traffic management plan toaccommodate real-time traffic conditions.• Transfer event management successes intodaily applications, and translate lessonslearned into future event planning and operationsneeds.REFERENCES1. Jacobson, L., Highway Traffic Operationsand Freeway ManagementState-of-the-Practice White Paper,Report No. FHWA-OP-03-076, FederalHighway Administration, Washington,D.C., March 2003, 43 pp.i-5

THIS PAGE LEFT BLANKi-6

CHAPTER ONEBACKGROUND1OVERVIEWDEFINITIONA planned special event is a public activity,with a scheduled time and location, that impactsnormal transportation system operationsas a result of increased travel demandand/or reduced capacity attributed to eventstaging.STATEMENT OF THEPROBLEMSources of CongestionFigure 1-1Planned Special Event Patron ArrivalThe public has become increasingly sensitiveto the impact congestion has on qualityof life, citing delays caused by traffic congestionas their top community transportationconcern in a recent National survey. (1)Congestion equates to decreased performanceand, in turn, economic loss for businessesand trucking companies. Congestioneither causes late deliveries or forces truckersto build additional travel time into theiritineraries, particularly when making just-intimedeliveries.Congestion simply refers to a conditionwhere traffic demand exceeds roadway capacity.Capacity measures potential or themaximum, sustainable rate of traffic volumethat can traverse a road segment. Congestionresults from sudden, significant changesin (1) traffic demand or (2) available roadwaycapacity, both of which cause demandto exceed capacity. When this occurs, theDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE1-1

congestion is considered either recurringor non-recurring based on its causal factors:• Recurring congestion is usually characterizedby an increase in traffic demand.Commuter traffic induces congestion atthe same time and location weekday afterweekday; hence traffic managers canessentially predict when recurring congestionwill happen. Recurring congestionreflects the daily, systematic relationshipbetween peak traffic demandrates, inadequate road capacity, and suboptimaloperation of traffic control devices.The latter represents one of thefew causes of recurring congestion thataffects capacity rather than demand.• Non-recurring congestion happens as aresult of an event. The spatial and temporalcharacteristics, or location andtime of an event, may be known in advance,or the event may happen at randomwith very little or no warning.These events are commonly termedplanned and unplanned events, respectively.Congestion causing events,whether planned or unplanned, result ineither a reduction in roadway capacity,an increase in traffic demand, or both.Table 1-1 summarizes how these eventsimpact roadway system operations.A planned special event represents the onlytype of event that can generate an increase intraffic demand and cause a temporary reductionin roadway capacity because of eventstaging. For example, a parade or bicyclerace may require street closures extendingover a significant distance, and other eventsmay warrant isolated road closures to accommodatepedestrian flow.Planned EventTable 1-1Congestion Impacts of Planned and Unplanned EventsEVENT-GENERATED IMPACTEVENT CATEGORYMajor roadway constructionand maintenanceTRAFFIC DEMAND• Increases background trafficdemand on parallel freewaysand arterials.Planned special event • Generates new trips and increasestraffic demand on allcorridors serving the event.ROAD CAPACITY• Closes travel lane(s) or roadsegments.• Closes travel lane(s) or roadsegments to stage event (typicallystreet use events).Unplanned EventTraffic incident(e.g., crash, disablement,spilled load, debris)• Causes background traffic diversionto parallel freeways andstreets.Emergency road work • Causes background traffic diversionto parallel freeways andstreets.Adverse weather(e.g., snow, ice, fog, heavyrain, sun glare)Emergency(e.g., severe weather, naturaldisaster, terrorism)• Decreases traffic demand (potentially).• Causes evacuations that generateextreme traffic demand.• Blocks travel lane(s) or roadsegments.• Blocks travel lane(s) or roadsegments.• Reduces vehicle operatingspeeds and increases headways,thus reducing capacity.• Renders road segments impassable(potentially).1-2

Impact of Planned Special EventsPlanned special events can significantly impacttravel safety, mobility, and travel timereliability. Mobility and reliability refer tothe ease and consistency of travel, respectively.The scope of these impacts representa function of several event operation characteristics,including attendance, rate of eventpatron arrival and departure, venue location,and adjacent roadway capacity. The effectand perceived magnitude of mobility andtravel time reliability impacts vary by classof transportation system user. Table 1-2lists the classes of transportation system userswhose needs must be accommodatedduring a planned special event.Transportation stakeholders place a priorityon minimizing impacts to event patron andnon-attendee road users and to transit usersas well. Event patrons accept a certain levelUSERCLASSEventpatron orparticipant• Event patron demand maycause roadway system congestion.Nonattendeeroad userTable 1-2Impacts on Transportation System Usersof delay as part of the overall experience ofattending an event, but place a high priorityon getting to their destination prior to theevent start.Because planned special events are scheduled,transportation and other agencies attemptto influence the schedule to avoidconflict with recurring congestion. Somemunicipal codes prohibit special events requiringroad closures at certain times of theday or week:• For example, Section 447.50 of the MinneapolisMunicipal Code states: Downtownarea restrictions. (a) No permitshall be granted for a parade/race to beconducted within the downtown area betweenthe hours of 7:00 a.m. and 9:00a.m. or 4:00 p.m. and 6:00 p.m. on anyday which is not Saturday, Sunday, or alegal holiday.USER TYPE IMPACT ON USERS USER RESPONSE• Local resident• Visitor• Local resident• Local business• Commuter• Trucker• EmergencyservicesTransit user • Bus• Commuter rail• Commuters and truckers mayencounter reduced travel timereliability in corridors servingan event venue.• Special event traffic controlstrategies may impact localresidents and businesses notinvolved with the event.• Emergency service providersmay experience increasedresponse times during an event.• Transit users may realizeservice impacts on the day-ofevent,including reducedavailability of parking attransit stations and systemcapacity conditions.• Event patrons may use anothermode of travel.• Non-attendee road users maydelay planned trips or divertaround a corridor impacted by aplanned special event.• Emergency service providersmandate the provision ofunimpeded emergency accessroutes to and from the eventvenue and its surrounding area.• Preferred parking areas may beset aside for commuters duringthe days of the event.1EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW1-3

GOALS OF MANAGINGTRAVEL FOR PLANNEDSPECIAL EVENTSTable 1-3 presents the goals of managingtravel for planned special events.The potential impact a planned special eventhas on transportation system operations isoften difficult to predict and measure. Periodicplanned special events at stadiums andarenas, or similar venues having good accessto adjacent high-capacity roadways, maygenerate highly predictable travel patternsknown even by local commuters. But, inmany other cases, the characteristics of aplanned special event that define the level ofevent-generated trips, coupled with the eventvenue location and scope of available transportationsystem capacity, collectively mayyield unpredictable impacts on travel withoutproper planning and analysis.Operations, with safety an overarching criteria,during the event can improve transportationsystem efficiency of operation. Withthe foreknowledge of a planned specialevent and the early initiation of planningefforts, practitioners can achieve efficienttransportation system operations even withthe additional traffic generated at and adjacentto the event venue.In meeting these goals, the mission of thistechnical reference involves disseminating asuite of travel management solutions, applicableon both a local and regional level, encompassingthe following three broadstrategies:• Process strategies include frameworksfor facilitating stakeholder coordination,steps for predicting event-generatedtravel demand and impacts, proceduresfor developing traffic management initiatives,methods for assessing event impactmitigation proposals, guidelines onimplementation activities, protocol forcommunication, and frameworks forevaluation.• Operations strategies include a rangeof regulations, traffic and pedestriancontrol strategies, and transit coordinationstrategies for operating the transportationsystem in a manner that fulfills thecustomer service requirements of eventpatrons and other road users during aplanned special event.GOALAchievingPredictabilityTable 1-3Planned Special Event Travel Management GoalsTECHNIQUE• Perform a multi-modal travel forecast.• 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 walkingroutes.• 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, includingroad and transit capacity.• Enhance transportation system operations.• Deploy incident management strategies to respond and clear traffic incidents.1-4

• Service strategies include travel demandmanagement policies and otherinitiatives that strive to improve the utilityassociated with available travelchoices (e.g., mode, vehicle occupancy,and parking destination).This technical reference emphasizes theneed to apply and integrate all possible solutionsthat benefit the safe and efficient managementof travel for a single planned specialevent or a series of events occurring in aregion. On a regional level, a committee onplanned special events may adopt processand operations strategies disseminatingstandard operating procedures. Certainstrategies, such as an express/charter busservice, may achieve greater public awarenessand success if configured for a series ofplanned special events. Table 1-4 presentsthe objectives of this technical reference.Table 1-4Technical Reference ObjectivesOBJECTIVE• Describe innovative stakeholder partnershipsthat facilitate continuous coordination, cooperation,and integration of personnel andequipment resources.• Describe processes that stakeholders mayadopt to improve current advance planningand day-of-event operations.• Provide methods to raise awareness of potentialtravel impacts to non-attendee road usersand the community at-large.• Detail new technology applications and successfuloperations strategies to minimize fieldpersonnel requirements, improve travel conditionsmonitoring, and reduce congestion levels.• Identify the advantages of transit use, traveldemand management, and accurate, up-to-datetraveler information dissemination during theoccurrence of a planned special event.• Demonstrate the importance of sound trafficmanagement team organization and communicationduring the day-of-event.• Communicate the advantages of integratingpost-event evaluation activities into programplanning for future planned special events.BENEFITS OFSUCCESSFUL PLANNEDSPECIAL EVENTSAs shown in Figure 1-2, communities andregions have promoted and supportedplanned special events to boost tourism andfuel local and state economies. Examplesinclude:• The filming of “The Fast and the Furious2,” requiring extensive use of freewaysand streets in Miami-Dade, Broward,and Palm Beach counties, brought an estimated$14 million to southeast Floridaduring the four-month filming. (2)• The following economic benefits ofplanned special events were realized bythe State of Wisconsin: (3)o $11 billion annual industry statewide.o $2.5 billion annual industry in metropolitanMilwaukee.o Over $1 billion generated in state taxrevenues.o Over $70 million generated in Federaland state transportation revenues.Figure 1-2Community Promotion of Planned SpecialEvents1EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW1-5

Public agencies can enhance the image oftheir area by adopting a planned, coordinated,and integrated approach toward managingtravel for planned special events thatminimizes traffic congestion, maintainstransportation system reliability, and exceedsthe customer service expectations ofall road users. These users include eventpatrons, commuters, truckers, and emergencyservice providers.Table 1-5 presents the overall benefits thatcan be realized through managing travel forplanned special events.Table 1-5Overall Benefits (4)BENEFIT• Reduced delay for motorists attending theplanned special event through more active informationdissemination, traffic management,and alternate mode use.• Reduced delay for motorists not attending thespecial event through active promotion of alternateroutes or modes.• Reduced overall traffic demand at or near thespecial event site through active promotion ofalternate routes or modes or dissemination ofinformation, resulting in the cancellation ordelay of unnecessary trips.• Improved safety through more active trafficmanagement and reduced motorist frustration.Table 1-6Benefits to Transportation Stakeholders andSystem OperationsBENEFIT• Deployment of new technologies for trafficcontrol and monitoring.• Incorporation of new procedures and tacticsinto everyday traffic/incident managementtasks.• Upgrade of transportation system infrastructure.• Improvement in stakeholder productivity.• Promotion of interagency sharing of personneland equipment resources.• Leverage of public support for newly deployedtraffic management and transit initiatives.• Attraction of new regular transit users andcarpoolers.• Development of new interagency relationshipscrossing jurisdictional boundaries.• Improvement in communication and trustbetween stakeholders.• Coordination of and participation in regionalorganizations to influence policy and improveactivities for all planned specialevents.• Dissemination of lessons learned and solutionsto technical problems that other jurisdictionsmay encounter in the future.• Promotion of stakeholder efforts in the media,as illustrated in Figure 1-3.The proactive and coordinated managementof travel for planned special events alsoyields numerous benefits to transportationstakeholders and transportation system operations,as indicated in Table 1-6.A successful planned special event also satisfiescommunity residents and businessespossessing no direct interest in the event.Table 1-7 specifies community benefits.Table 1-7Community BenefitsBENEFIT• Better community recognition.• Increased pride and community spirit.• Increased awareness of the community as atravel destination.• Increased knowledge of potential for investmentand commercial activity in the community.• Increased potential to attract other specialevents.1-6

Figure 1-3Media Promotion of Stakeholder Efforts(Graphic courtesy of the Wisconsin DOT.)LITERATURE REVIEWNCHRP Synthesis 309A National Cooperative Highway ResearchProgram (NCHRP) synthesis, TransportationPlanning and Management for SpecialEvents, reports on the state-of-the-practiceof transportation-related activities associatedwith the planning and management of specialevents. (4) It identifies how agencies areplanning, coordinating services, and managingtransportation systems for planned specialevents. Based on a survey of stakeholderpractices related to special eventplanning and management, the synthesis reportaddresses special event types, involvedstakeholders, tools and techniques for managingtravel demand and controlling traffic,operations guides, qualitative and quantitativeassessment efforts, and funding sources.FHWA Metropolitan ITSInfrastructure DeploymentTrackingThe FHWA maintains an Intelligent TransportationSystems (ITS) deployment trackingdatabase based on surveys of agencies inthe 78 largest U.S. metropolitan areas andencompassing six ITS infrastructure componentareas. (5) A survey on freeway managementincludes a select number of questionson special event management, including:(1) regional coordination for plannedspecial events, (2) dissemination of informationto the public via techniques such as theInternet, television, kiosks, and telephoneinformation systems, and (3) transportationmanagement center (TMC) operations. Below,survey responses for the Year 2002 arepresented, summarizing the scope of regionalspecial event planning and applicationof certain ITS system characteristics tospecial event traffic management.Regional Coordination for Planned SpecialEvents• 68 percent of surveyed agencies (119total) participate in a formal multiagencyinitiative to proactively plan forand coordinate activities regionally relatedto special events. Of the agenciesthat participate in a formal multi-agencyinitiative:o 59 percent of surveyed agencies planto document and coordinate activities,resources, and policies for allspecial events.o 36 percent of surveyed agencies haveentered into an interagency agreement.o 64 percent of surveyed agencies participatein a multi-agency team.1EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW1-7

• 73 percent of surveyed metropolitan areas(77 total) have agencies that participatein a formal multi-agency initiativeto proactively plan for and coordinateactivities regionally related to specialevents. Of the areas with agencies thatparticipate in a formal multi-agency initiative:o 63 percent of surveyed metropolitanareas have agencies that plan todocument and coordinate activities,resources, and policies for all specialevents.o 43 percent of surveyed metropolitanareas have interagency agreements.o 68 percent of surveyed metropolitanareas have multi-agency teams.Dissemination of Information to the Public• 43 percent of surveyed agencies distributeinformation on special events to thepublic.• 49 percent of surveyed metropolitan areashave agencies that distribute informationon special events to the public.Transportation Management CenterOperations• 73 percent of surveyed agencies operatea TMC.o Of the agencies that operate a TMC,84 percent indicate that special eventtraffic management represents afunctional capability of their TMC.• 78 percent of surveyed metropolitan areashave a TMC.o Of the metropolitan areas that have aTMC, 82 percent indicate that specialevent traffic management representsa functional capability of theTMC.HANDBOOK OVERVIEWApproachThis technical reference covers five phasesof managing travel for planned specialevents. These phases, comprising the corechapters, include:• Program planning encompasses advanceplanning activities completedmonths prior to a single, target event oractivities related to a series of futureplanned special events. This level of advanceplanning involves the participationand coordination of stakeholders servingan oversight role in addition to agenciesdirectly responsible for event planningand day-of-event traffic management.• Event operations planning involvesadvance planning and resource coordinationactivities conducted for a specificplanned special event. This phase involvesstakeholders organized under theevent planning team.• Implementation activities represent atransition phase between event operationsplanning and day-of-event activities.The event planning team and trafficmanagement team work to strategizetraffic management plan deployment inaddition to conducting necessary equipmenttesting and personnel training activities.• Day-of-event activities refer to the dailyimplementation of the traffic managementplan in addition to traffic monitoring.Rapid deployment of traffic managementplan strategies and tactics, includingcontingency plans, requires awell-organized traffic management teamand communications infrastructure.• Post-event activities cover the evaluationof local and regional transportationoperations based on stakeholder debrief-1-8

ings and an analysis of traffic data collectedduring the day-of-event. Evaluationinvolves both the traffic managementteam and event planning teamworking together to identify successesand lessons learned, and the stakeholdergroups may transfer their determinationsto the oversight team for considerationand action under the program planningphase.Table 1-8 describes common stakeholdergeneratedproducts under each phase ofmanaging travel for planned special events.The table highlights corresponding majortopics that the technical reference covers.Each of the handbook chapters describing aparticular step in the sequential process ofplanning and managing a planned specialevent represents a stand-alone chapter. Yet,the technical reference provides a smoothtransition from chapter to chapter and integratesthe chapters through numerous references.Intended AudienceThe successful implementation of a transportationmanagement plan for planned specialevents results in lessened traffic congestionand improved safety for event patronsand other transportation system users. Successfultransportation management alsomaintains satisfactory mobility levels forresidents and businesses in the vicinity ofthe event venue and preserves the overallreliability of the local and regional transportationsystem. Achieving this success requiresthe involvement of both transportationsystem operators and other stakeholders,representing various interests anddisciplines, to meet the needs of the communityand region. Three categories ofstakeholders that may participate in the coordinatedmanagement of travel for plannedspecial events include: (1) event operationsstakeholders, (2) community interest stakeholders,and (3) event support stakeholders:• Event operations stakeholders representthe target audience of this technicalreference. These stakeholders collectivelywork toward predicting, mitigating,and measuring the safety, mobility,and reliability impacts of a planned specialevent on transportation operationsthrough comprehensive advance planning,day-of-event traffic management,and evaluation and monitoring activities.A traffic operations agency, law enforcementagency, and event organizerrepresent core stakeholders because ofthe responsibility they bear in developingand implementing a transportationmanagement plan. As with a traffic operationsagency, law enforcement contributesto all phases of managing travelfor planned special events and involvesassociated personnel at the administrative,management, and field operationslevel.Other key stakeholders include transitagencies and public safety agencies (e.g.,fire and emergency medical service).Table 1-9 lists general responsibilities ofevent operations stakeholders. In manycases, an event predicted to generatesignificant travel demand across a regionwill necessitate the cooperation of multipleinter-jurisdictional stakeholders inthe affected region.• Community interest stakeholders ensureand review advance planning andoperations activities to manage eventgeneratedtravel for the purpose ofminimizing impacts on community qualityof life and maximizing potential socialand economic benefits. Nontransportationagencies and elected officialsplay an important role in1EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW1-9

Table 1-8Planned Special Event Management Phases and Key Tasks1-10

Table 1-9Event Operations StakeholdersSTAKEHOLDERRESPONSIBILITYTraffic operations agency • Operates and maintains the transportation system.Transit agency • Develops specialized transit plans, complementing an event traffic managementplan, 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 reimbursementof public agency resource costs, required on the day-of-event.• Hires a private traffic engineering consultant to perform an event feasibilitystudy and prepare a traffic management plan.Public safety (e.g., fireand emergency medicalservice)• Ensures adequate provision of emergency access routes to and from the eventvenue.establishing policies, regulations, andinitiatives for future planned specialevents. In fact, these agencies and officialsmay possess the authority to approveor disapprove a special event permitfor an event organizer.• Event support stakeholders support,execute, or adhere to the transportationmanagement plan and initiatives proposedby event operations and communityinterest stakeholders. These stakeholdersinclude private traffic controlvendors, private towing companies, thegeneral public, and automobile andtrucking associations. Event supportstakeholders and emergency servicestakeholders may gain valuable insighton the development of event traffic managementplan components, includingcontingency plans, in addition to strategiesfor reducing event-generated traveldemand.OrganizationOverview of Chapters and Major TopicsThis technical reference consists of 15 chapters,the final five of which detail and contrastadvance planning and travel managementactivities for each of the five definedcategories of planned special events discussedin Chapter 2.Table 1-10 lists the technical reference chaptersand indicates what chapters cover eachdistinct phase of special event management.The table shows Chapters 4 through 10,which represent the core chapters of thehandbook, encompass all five phases ofmanaging travel for planned special events.To assist the reader in quickly navigating thehandbook, each page displays a verticaltoolbar that indicates the current chapter andsection of the technical reference. As notedin Table 1-10, the sections include: (1) overview,(2) advance planning, (3) day-of-eventactivities, (4) post-event activities, and (5)event profile. Chapters designated under“event profile” discuss specific categories ofspecial events, detail and contrast advanceplanning and travel management activities,and communicate recommended policies,guidelines, procedures, and resource applicationsin a user-friendly format tailored to aspecific category of planned special event.In turn, readers can easily extract informationand reference sample applications.1EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW1-11

SPECIAL EVENTMANAGEMENTPHASEProgram PlanningEvent OperationsPlanningImplementationActivitiesDay-of-EventActivitiesPost-Event ActivitiesTable 1-10Handbook OrganizationHANDBOOK CHAPTERIntroductionChapter 1BackgroundChapter 2Characteristics and Categories of Planned Special EventsChapter 3OverviewChapter 4Regional and Local CoordinationChapter 5Event Operations PlanningChapter 6Traffic Management PlanChapter 7Travel Demand Management and Traveler InformationChapter 8Implementation ActivitiesChapter 9Day-of-Event ActivitiesChapter 10Post-Event ActivitiesChapter 11Discrete/Recurring Event at a Permanent VenueChapter 12Continuous EventChapter 13Street Use EventChapter 14Regional/Multi-Venue EventChapter 15Rural EventHANDBOOKSECTIONOverviewAdvance PlanningDay-of-Event ActivitiesPost-Event ActivitiesEvent ProfileUser ApplicationBy covering all phases of advance planningand management of travel for planned specialevents, this technical reference satisfiesthe information requirements of a widerange of stakeholders. Certain stakeholdersmay find the majority of handbook chapterspertain to their duties and responsibilitieswhen handling a planned special event.Other stakeholders may only have interest ininformation disseminated via a few handbooksections. This technical reference recognizesthree user groups, each of whom hasan identifiable icon featured in the handbook.If a major chapter section containstopics suited to a particular user group, thenthe icon representing that group will appearon the same line as the section heading.Three typical user groups, or event operationsstakeholders, charged with managingtravel for planned special events in jurisdictionsacross the country include: (1) transportationengineers, (2) law enforcementofficers, and (3) event organizers. Table 1-1-12

11 displays icons corresponding to each usergroup.Table 1-11Technical Reference User GroupsICONUSER GROUPTransportation engineer• Law enforcement officers may takeresponsibility for developing and executinga street traffic management plan.Other potential duties of law enforcementinclude traffic control and securityon the day-of-event, enforcing trafficand parking restrictions, escorting dignitariesto/from the event venue, and enforcingthe requirements of a traffic operationsagency.1OVERVIEWThe three user groups include:Law enforcement officerEvent organizer• Transportation engineers include trafficengineers, transit officials, and transportationplanners. Traffic engineersmay lead event operations planning andday-of-event traffic management activities.Event operations planning activitiesmay include developing and reviewingtraffic management plans and formulatingtraffic signal system timing plans toaccommodate anticipated fluctuations intraffic demand. Traffic engineers have aday-of-event responsibility of monitoringand maintaining traffic flow traversingtheir jurisdiction. Transit officialsexamine potential public transit incentivesin addition to event express busservice. Transportation planners mayadminister a permit application for a localplanned special event.• Event organizers initiate the event operationsplanning phase by notifyingstakeholders, through a written requestto public agencies or the submission ofan event permit application, and assemblingan event planning team. The eventorganizer governs the logistics of theplanned special event. The event organizercontinually works to maintain interagencycoordination in order to meetmilestones in the advance planningprocess and ultimately gain stakeholderapproval of the proposed transportationmanagement plan.REFERENCES1. Managing Our Congested Streetsand Highways, Report No. FHWA-OP-01-018, Federal Highway Administration,Washington, D.C.,2001, 18 pp.2. Kelleher, B., “Action on the Highways,”Transportation News, FloridaDepartment of Transportation, Vol.36, No. 1, January 2003, p. 7.3. Corbin, J., “Strategies to ImproveManagement of Travel for AllPlanned Special Events in a Region,”Presented at the 82 nd Annual Meetingof the Transportation ResearchDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE1-13

Board, Washington, D.C., January12—16, 2003.4. Carson, J.L. and R.G. Bylsma,Transportation Planning and Managementfor Special Events, NCHRPSynthesis 309, Transportation ResearchBoard, National ResearchCouncil, Washington D.C., 2003, 71pp.5. “ITS Deployment Tracking”, U.S.Department of Transportation,Washington, D.C., 2003 [Online].Available:http://itsdeployment2.ed.ornl.gov/its2002/default.asp. [2003, September10].1-14

CHAPTER TWOCHARACTERISTICS AND CATEGORIESOF PLANNED SPECIAL EVENTS2OVERVIEWFigure 2-1Event Traffic Management (Photo courtesy of the Wisconsin DOT.)DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPURPOSEThis chapter presents planned special eventoperations characteristics and associated factorsdefining the scope of event impact ontransportation system operations. It describesplanned special event classificationin terms of event categories and event impactlevel. This chapter also introduces thestakeholder groups organized under thevarious phases of managing travel forplanned special events.PLANNED SPECIALEVENTCLASSIFICATIONCharacteristicsA planned special event impacts the transportationsystem by generating an increasein travel demand in addition to possiblycausing a reduction in roadway capacity becauseof event staging. The first step towardachieving an accurate prediction of eventgeneratedtravel demand and potential transportationsystem capacity constraints involvesgaining an understanding of the eventPOST-EVENT ACTIVITIESEVENT PROFILE2-1

characteristics and how these characteristicsaffect transportation operations. In turn,practitioners can classify the planned specialevent in order to draw comparisons betweenthe subject event and similar historicalevents to shape travel forecasts and gaugetransportation impacts.Figure 2-2 shows typical operational characteristicsof a planned special event. Eachcharacteristic represents a variable thatgreatly influences the scope of event operationand its potential impact on the transportationsystem. These variables include:• Event time of occurrence defines thetime of day(s) the event is open for business,a key variable when comparingevent-generated traffic to backgroundtraffic.o For example, weekday events mayface constraints on roadway, transit,and parking capacity because ofcommuter travel.Event Timeand Duration• Specific start time• Predictable ending time• Continuous operation• Multiple start timesAreaType•Urban•Metro•RuralEventLocation• Single venue• Multiple venues• Fixed venue• Temporary venue•Park• StreetsExpectedAttendanceEventOperationCharacteristicsEvent Timeof Occurrence• Night/day• Weekdays/weekend• Single day• Multiple days• Multiple weeks• Tourist seasonAudienceAccommodationEventMarket AreaEventType• Sports/concert• Fair/festival• Parade/race• Convention•Free/cost• Ticket/ticketless• General admission• Reserved seating•Local•Regional• Statewide• NationalFigure 2-2Event Operation Characteristics2-2

• Event time and duration defineswhether the event features a specificmain event start time, likely to condenseevent patron arrival, or operates continuouslythroughout the day where patronsmay freely come and go.• Event location defines the characteristicsof the venue(s) location and connectionto the existing transportation infrastructure.o Typically, fixed venues, such as stadiumsor arenas, feature highcapacityparking areas adjacent tothe venue and good access to/fromadjacent freeways and principal arterialstreets.o Temporary venues may lack thesefeatures, thus requiring the developmentof a detailed site access andparking plan.• Area type defines the scope of availabletransportation services, the characteristicsof background traffic traversing thearea, and the various stakeholders thatmay become involved in event planningand management. These characteristicsinfluence the event operations planningprocess and day-of-event travel management,yet significantly vary acrossrural, urban, and metropolitan areas.• Event market area defines the areafrom where event patrons originate andthe scope of event exposure.o For example, the Summerfest musicfestival in downtown Milwaukeedrew over one million in attendanceover eleven days in 2002. Demographicsurveys indicated 56 percentof Summerfest patrons lived in thefour counties comprising the greatermetropolitan Milwaukee area, 22percent of patrons lived in other areasof Wisconsin, and 22 percent ofpatrons lived outside Wisconsin. (1)The event clearly had a regional/statewidemarket area.o Political conventions or major industryexhibitions feature a nationalscope where the majority of attendeesdo not reside in the host city.• Expected attendance defines the maximum,estimated number of event patrons.o Attendance estimates may includethe anticipated number of VIPs, advanceticket holders, patrons with anassigned parking pass, and patronsrequiring special assistance.o With regard to sporting events, keycomponents in estimating attendanceinvolve home team performance andvisiting team attraction.o Games involving high-profile visitingteams or performers may sell-outfar in advance of the event, allowingstakeholders sufficient notice to takeappropriate measures.o Attendance impacts traffic operationsin the immediate vicinity of theevent venue depending on the accessand parking capacity furnished at thevenue.• Audience accommodation defines thepotential to predict the number and originsof event-generated trips in additionto the type of trip patrons may make tothe venue.o Attendance at free events is hard topredict and may vary considerablybased on weather conditions andother factors on the day-of-event.o Events featuring advance ticket salesand reserved seating may decreasethe number of event patrons making2EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW2-3

a spur-of-the-moment decision to attendan event.• Event type defines the type of event thatmay be subject to special regulations andpermit requirements. The event type includesmany of the previously definedcharacteristics of planned special eventsthat influence event-generated traveldemand and level of impact on thetransportation system. Event plannersmay refer to event type when researchingimpacts on travel caused by similarevents.CategoriesThe event operation characteristics describedin the previous section create fivecategories of planned special events, listedin Table 2-1.Table 2-1Categories of Planned Special EventsSPECIAL EVENT CATEGORY• Discrete/recurring event at a permanent venue• Continuous event• Street use event• Regional/multi-venue event• Rural eventTable 2-2 contrasts some general characteristicsspecific to each defined event category.Figure 2-3 illustrates events representingfour event categories. The fifth category,regional/multi-venue event, includesany combination of the first three eventcategories listed in Table 2-1.This technical reference makes exclusivereference to the defined categories ofplanned special events when referencing orprofiling particular event types. In recognizingthe unique characteristics of each categoryof planned special event regarding tripgeneration and event impact on transportationsystem operations, many jurisdictionsacross the country have developed distinctplanning processes, policies, and regulationsspecific to particular event categories. Thebalance of this section describes each of thefive defined event categories.Discrete/Recurring Event at a PermanentVenueA discrete/recurring event at a permanentvenue occurs on a regular basis, and it has aspecific starting time and predictable endingtime. Events classified under this categoryhave predictable peak arrival and departurerates relative to other categories of plannedspecial events. These events generate highpeak travel demand rates because of patronurgency to arrive at the venue by a specificevent start time. Moreover, these events endabruptly upon game time expiration or theconclusion of a final song, which createshigh peak departure rates.Stadiums and arenas occasionally hostweeknight events that may conflict withcommuter traffic, especially if media broadcastingthe event mandates a specific starttime. For instance, a Monday Night Footballgame held in San Diego, San Francisco,Oakland, or Seattle usually begins at 6:00p.m. Pacific time to satisfy television broadcastrequirements.Continuous EventA continuous event occurs over a single ormultiple days. Unlike a discrete/recurringevent at a permanent venue, continuousevents do not exhibit sharp peak arrival andpeak departure rates. Event patrons typicallyarrive and depart throughout the eventday.Aside from conventions and state/countyfairs, many continuous events take place at atemporary venue, a park, or other large open2-4

CHARACTERISTICTable 2-2Characteristics of Different Planned Special Event CategoriesPLANNED SPECIAL EVENT CATEGORYDiscrete/Recurring Event at a Permanent VenueEvent Location • Fixed venueEvent Time of Occurrence • Single day; Night/day; Weekday/weekendEvent Time and Duration • Specific start time; Predictable ending timeArea Type • Metro; UrbanEvent Market Area • Local; Regional; Statewide; NationalExpected Audience • Known venue capacityAudience Accommodation • Cost; Ticket; Reserved seating; General admissionEvent Type • Sporting and concert events at stadiums, arenas, and amphitheaters.Continuous EventEvent Location • Temporary venue; Park; Fixed venueEvent Time of Occurrence • Single/multiple days; Weekends; Multiple weeksEvent Time and Duration • Continuous operationArea Type • Metro; UrbanEvent Market Area • Local; RegionalExpected Audience • Capacity of venue not always knownAudience Accommodation • Free/cost; Ticket/ticketless; General admissionEvent Type • Fairs; Festivals; Conventions/expos; Air/automobile showsStreet Use EventEvent Location • StreetsEvent Time of Occurrence • Single day; WeekendsEvent Time and Duration • Specific start time; Predicable ending timeArea Type • Metro; Urban; RuralEvent Market Area • Local; RegionalExpected Audience • Capacity generally not knownAudience Accommodation • Free; TicketlessEvent Type• Parades; Marathons; Bicycle races; Motorcycle rallies; Grand Prix auto races;Dignitary motorcadeRegional/Multi-Venue EventEvent Location • (Multiple) Fixed venue; Temporary venue; StreetsEvent Time of Occurrence • Single/multiple days; WeekendsEvent Time and Duration • Specific start time; Predictable ending time; Continuous operationArea Type • Metro (typically); Urban; RuralEvent Market Area • Local; Regional; Statewide; NationalExpected Audience• Overall capacity generally not known if continuous events or street use eventsinvolvedAudience Accommodation • Free/cost; Ticket/ticketlessEvent Type• Sporting games; Fireworks displays; Multiple planned special events within aregion that occur at or near the same timeRural EventEvent Location • Fixed venue; Temporary venue; ParkEvent Time of Occurrence • Single/multiple days; Weekends; Tourist seasonEvent Time and Duration • Specific start time; Predictable ending time; Continuous operationArea Type • RuralEvent Market Area • Local; RegionalExpected Audience • Capacity of venue not always knownAudience Accommodation • Free/cost; Ticket/ticketlessEvent Type • Discrete/recurring event; Continuous event2EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW2-5

Discrete/Recurring Event at a Permanent VenueContinuous EventStreet Use EventRural EventFigure 2-3Examples of Planned Special Eventsspace. As a result, roadway and parking capacityissues may arise in the immediatearea surrounding a temporary venue. Temporaryvenues may not have a defined spectatorcapacity, thus creating uncertainties inforecasting event-generated trips since a“sell-out” cap does not exist.Street Use EventA street use event occurs on a street requiringtemporary closure. These events generallyoccur in a city or town central businessdistrict; however, race events or motorcyclerallies may necessitate temporary closure ofarterial streets or limited-access highways.A street use event significantly impactsbusinesses and neighborhoods adjacent tothe event site from the perspective of parkingand access. A street use event closes asegment(s) of the roadway network andcauses background and event traffic to divertonto alternate routes, thus increasing trafficdemand on other streets in the roadway network.Filming activities may require the closure ofmajor roadways for an extended duration,but stakeholders can work with productioncompanies on day-of-the-week scheduling.2-6

Regional/Multi-Venue EventA regional/multi-venue event refers to multipleplanned special events that occurwithin a region at or near the same time.The collection of events may have differentstarting times and differ in classificationcategory. For instance:• On August 31, 2002, downtown Denverhosted the Grand Prix of Denver (attendance20,000), the Taste of Coloradofestival (attendance 150,000), and a collegefootball game (attendance76,000). (2) Grand Prix races and theTaste of Colorado also occurred simultaneouslyon two other days of LaborDay weekend 2002.• Major fireworks displays warrant considerationunder this event categorysince large crowds may spread out overa large area depending on the number ofgood vantage points available.• The lack of overflow parking and roadwaycongestion represents some of thekey concerns when planning for multipleevents occurring within a small area.A number of major metropolitan areas havetwo or more adjacent fixed venues or venuesutilizing the same freeway corridor. Multiplevenues may occasionally host events onthe same day.• Figure 2-4 illustrates an example of aregional/multi-venue event that occurredin Anaheim, CA. The Anaheim Angelsbaseball team hosted a playoff game atEdison Field, and the Mighty Ducks ofAnaheim hockey team played against ahigh-attendance drawing team from Detroitat the Arrowhead Pond, located onthe opposite side of State Route 57 andKatella Avenue from Edison Field. Bothevents sold-out, but the baseball gamehad been scheduled only days before itsoccurrence due to the baseball playoffsystem. Broadcast media likely requiredthe game start time of 1:05 p.m. As a result,high departure rates from EdisonField and high arrival rates to ArrowheadPond occurred at approximately thesame time.• Although special circumstances surroundedthe above example event, stakeholdersmanaging all planned specialevents within a region emphasize coordinationof event times to reduce peakparking demand and impact on transportationsystem operations.Rural EventRural events encompass any discrete/recurringevent or continuous eventoccurring in a rural area. Planned specialevents occurring in rural areas deserve astand-alone classification category for severalreasons:• Need for stakeholders to assume newand/or expanded roles.• Existence of limited road capacity to accessthe event venue and potentially limitedparking capacity at the venue.• Existence of fewer alternate routes toaccommodate event and backgroundtraffic.• Lack of regular transit service and hotelsnear the venue.• Existence of limited or no permanentinfrastructure for monitoring and managingtraffic.Impact LevelStakeholders responsible for planning andmanaging travel for planned special eventsmust gauge the potential severity of aplanned special event. Agencies must determinewith certainty if a planned specialevent will affect or impede the normal flow2EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW2-7

Arrowhead PondRed Wings vs. Mighty DucksStart time = 6:00 PMAttendance = 17,174State College Blvd.Katella Ave.S.R. 57Edison FieldTwins vs. AngelsStart time = 1:05 PMEnd time = 4:35 PMAttendance = 44,835October 13, 2002• Anaheim Angels win American League pennant.• Mighty Ducks of Anaheim regular season home opener.Figure 2-4Example Regional/Multi-Venue Eventof traffic and if yes, how much impact willthe event have. Answers to these questionsdetermine the scope of the transportationmanagement plan required to mitigate eventgeneratedimpacts on travel in addition tothe number of stakeholders that become involvedin advance planning and day-ofeventtravel management activities.Example Incident Management ProtocolThe stakeholders and resources involved intraffic incident management and managingtravel for planned special events overlap.The following examples of classifying aplanned special event under a traffic incidentseverity level illustrate how traffic incident2-8

esponders determine the resources and levelof effort required to manage traffic during aplanned special event:• A new chapter included in the proposedamendments to the 2000 Manual on UniformTraffic Control Devices(MUTCD), entitled “Control of TrafficThrough Traffic Incident ManagementAreas,” defines an incident as follows: (3)A traffic incident is an emergency roaduser occurrence, a natural disaster, or aspecial event that affects or impedes thenormal flow of traffic.The proposed MUTCD amendment classifiestraffic incident severity by durationof incident. Incident classificationlevels include:o Major – expected duration of morethan 2 hours;o Intermediate – expected duration of30 minutes to 2 hours; ando Minor – expected duration under 30minutes.Planned special events having a durationof two hours fall within the classificationof “major incident.”• The Colorado Department of Transportation(DOT) – Region 6 maintains the followingcriteria for classifying a plannedspecial event as a Level III Modified Incident,the highest Region 6 traffic incidentseverity level: special or plannedevents that have major impacts. (4)Planned Special Event SeverityIt is important to recognize that the impactof a planned special event on traffic andtransit operations depends on a combinationof several dynamic factors. Collectively,planned special event impact factors differfrom those considered in determining theseverity of other types of planned and unplannedevents.As illustrated in Figure 2-5, the three corefactors include travel demand, road/site capacity,and event operation. Available resourcesand external factors represent secondaryaspects that also affect the impact aplanned special event has on transportationsystem operations. Key considerations include:• Travel demand refers to the expectednumber of event patrons and their arrivaland departure rates. Modal split has asignificant influence on the level ofevent impact, particularly on traffic operations.Event patrons may travel to theevent via personal vehicle, transit, walking,or a combination of modes. Aplanned special event travel forecast involvesestimating travel demand magnitude,travel demand rate, and modalsplit.• Road/site capacity concerns the availablevenue access and parking backgroundcapacity in addition to the capacityof roadways and transit serving theevent venue. Capacity must take intoaccount: (1) background parking occupancyin parking areas serving the eventvenue and (2) volume of backgroundtraffic that normally traverses the roadsystem serving the event venue. Capacityinfluences travel demand to a limitedextent, as “seasoned” event patrons insome locales may choose to use transitto access an event venue, because of severetraffic congestion experienced inthe past, although they may not representregular transit users.2EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW2-9

TRAVELDEMANDROAD/SITECAPACITYAVAILABLERESOURCESEVENTOPERATIONEXTERNALFACTORSFigure 2-5Planned Special Event Impact Factors• Event operation essentially defines thescope of travel demand, including marketarea, and may reduce available backgroundcapacity because of event stagingrequirements. Event operations impactthe effect a planned special event has ontravel. For instance:o A venue may open earlier to betterspread the rate of arrivals for a concertor sporting game.o Event patrons may be given specialadvance instruction on specific parkingoptions.o An event organizer may relocate anevent to a different venue whenroadway capacity deficiencies cannot be adequately mitigated.o On the other extreme, corporate hospitalitytents at the 2003 Super Bowlin San Diego reduced the amount ofavailable on-site parking from19,600 spaces to 3,400 spaces. (5)• Available resources refer to the quantityof personnel and equipment availableto plan for and conduct day-ofeventtravel management operations.The occurrence of regional/multi-venueevents or other unplanned events maystrain available stakeholder resourcesneeded to manage a particular plannedspecial event.• External factors include concurrentroadway construction activities on roadwaycorridors serving a venue and prevailingweather conditions on the dayof-event.Weather conditions have asignificant impact on attendance (e.g.,2-10

travel demand) or the rate of arrivals anddepartures at some events. For example:o Event patrons will attend an open-airsporting event in extremely hotweather, but patrons may bypass arrivingat the venue early to tailgate,thus concentrating patron arrivals.o Rain events may flood unpavedparking lots and venue access roads,rendering them impassable and reducingavailable road/site capacity.Rain events may also cause sharp arrivaland departure rates in additionto safety problems.When determining the level of impact eachof the five stated planned special event factorshas on travel, consider each of the followingcomponents:• Duration – temporal impact.• Extent – spatial impact or scope of areaaffected.• Intensity – volume of impact.Planned Special Event Impact ClassificationJurisdictions have established definedplanned special event impact classificationlevels for the purpose of determining: (1)event permit requirements, (2) transportationmanagement plan deployment, and (3) scopeof potential impact on the transportation system.The balance of this section summarizesvarious frameworks, based on a range ofevent impact factors and thresholds, appliedto estimate the severity level of a particularplanned special event for advance planningpurposes.Event Permit RequirementsA number of communities with planned specialevent permit guidelines have also developedcriteria to categorize various sizes ofplanned special events. As a result, oneproposed special event may have to meetmore stringent permitting requirements thanother events based on its severity classification.Decision criteria include expectedattendance and scope of street closure.The following examples summarize thepermit classification standards of severaljurisdictions, and the collective categorythresholds specific to each jurisdiction varyby jurisdiction population:• Alpine County, CA (pop. 1,208) specifiesthree planned special event categorysizes:o Minor event – 75-100 people.o Mid-size event – 101-500 people.o Major Event – 501+ people: requirespublic hearing with the AlpineCounty Planning Commission.• West Sacramento, CA (pop. 31,615)maintains three planned special eventcategory sizes:o Category 1 event – 50 to 499 people.o Category 2 event – 500 to 2,999 people.o Category 3 event – 3,000 or morepeople: requires major police supportand traffic control.• Louisville, KY (pop. 256,231) specifiesthree planned special event categorysizes:o Small Event – maximum peak attendanceof 500 people or less.o Special Event – maximum peak attendanceof more than 500 and lessthan 5,000 people.o Major Event – maximum peak attendanceof 5,000 or more people.2EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW• Clarksville, TN (pop. 103,455) states a“minor event” must meet the following2-11

transportation impact criteria: (1) eventmust last no longer than one day and (2)street closures will be less than fourhours and limited in scope.• Palo Alto, CA (pop. 58,598) developedthree street use event impact classificationsbased on the spatial characteristicsof proposed street closures. The streetuse event categories are:o Class A – A celebration, parade, localspecial event, festival, meeting,procession, concert, rally, march, orany similar occurrence which exceedsone city block in length or obstructsmore than one intersection,whether or not such occurrence ismoving.o Class B – A Class A closure or ablock party of any similar occurrencenot exceeding one city block or oneintersection on other than arterial orcollector streets, and along which atleast two-thirds of the area is in aresidential zone.o Class C – A local special event orsimilar occurrence involving the display,exhibition, advertisement, orsale of merchandise, etc., upon a portionof the public sidewalk. Cannotexceed 50% of width of sidewalk.Venue Transportation Management PlanDeploymentStakeholders often develop transportationmanagement plans specific to a permanentvenue, such as a stadium, arena, or amphitheater.Development of site access andparking plans usually occur during venueconstruction. Transportation agencies andlaw enforcement may develop traffic controlplans, based on a generic or recurring event,for managing transportation operations onstreets adjacent to the venue and/or corridorsserving the venue during future planned specialevents. These program planning activitiesdo not focus on a single, known plannedspecial event. Therefore, stakeholders mustestablish transportation management plandeployment thresholds to ensure availabilityand placement of adequate resources tomaintain satisfactory site and transportationoperations during any future planned specialevent occurring at the venue.• The parking and transportation managementplan for Investco Field in Denvercontains separate traffic managementand operations plans, categorized underfour attendance scenarios, for futureplanned special events occurring at thevenue: (6)o Sold-out Denver Broncos (football)games.o Other large events with an attendanceof more than 60,000.o Medium events with an attendancebetween 40,000 and 59,000.o Small events with an attendance between20,000 and 39,000.The traffic management and operationsplans for each scenario vary based on:(1) event patron modal split prediction,(2) site parking lot usage, (3) InvestcoField transit service, and (4) level of personneland equipment resources for trafficcontrol in the vicinity of InvestcoField.Regional Traffic Operations Impact LevelThe State of Wisconsin and the City of LosAngeles assign event impact levels for aproposed planned special event:• The organization of the Traffic IncidentManagement Enhancement (TIME) programin southeastern Wisconsin includesa 40-plus agency Freeway IncidentManagement Team responsible for pro-2-12

viding technical guidance toward TIMEimplementation. This group maintains asubcommittee on special events. Thespecial events subcommittee proposed aconcept of creating a special event trafficmanagement planning tool applicable toany planned special event proposed inthe greater Milwaukee metropolitanarea. The tool proves particularly usefulfor assessing the required multi-agencyresponse to a planned special event proposedwith relatively brief advance notice.Based on the input of informationrelated to the previously described fiveevent impact factors, the tool assigns oneof five event impact levels to a proposedevent. The following numerical thresholdsdefine the five event impact levels:o Traffic Condition Level 1 = 15o Traffic Condition Level 2 = 25o Traffic Condition Level 3 = 35o Traffic Condition Level 4 = 45o Traffic Condition Level 5 = 65Figure 2-6 shows a draft version of theplanning tool, including the numericalvalues assigned to each event impactfactor answer. TIME stakeholders planto develop an action plan correspondingto each identified planned special eventlevel. The action plan will list recommendedpractices for stakeholders thatregularly manage traffic during the occurrenceof a planned special event, includingthe Wisconsin DOT – District 2,county highway departments, law enforcement,and event venue personnel.These recommended practices would detailrequired staffing levels, on-callequipment, alternate route usage, trafficsignal system modifications, availabletransit options, and other information. (7)• The City of Los Angeles DOT (LADOT)and Los Angeles Police Department(LAPD) maintain a database of plannedspecial events scheduled to occur withinthe agencies’ jurisdiction. The LADOTand LAPD assign an event impact levelto each event to describe the generalscope of each agency’s involvement inadvance planning and day-of-event trafficmanagement. The event impact levelsinclude:o Level 1: Install and enforce temporaryparking restrictions.o Level 2: Level 1 and deployment oftraffic officers (LAPD).o Level 3: Level 2 and engineering/ATSACsupport (LADOT).o Level 4: Coordinated major event responseeffort.ATSAC refers to LADOT’s AutomatedTraffic Surveillance and Control System.Initially deployed for the 1984 SummerOlympic Games, ATSAC is a computertraffic signal system that monitors trafficconditions and system performance, selectsappropriate traffic signal timingstrategies, and performs equipment diagnosticsand alert functions. Operatorsat the ATSAC Operations Center receivereal-time information from signalizedintersection detectors and signal controllers,and operators have access to closedcircuittelevision images at critical locationsthroughout the City. (8)STAKEHOLDERGROUPSTransportation system performance during aplanned special event affects numerousstakeholders. Achieving seamless and efficienttransportation operations betweenfreeways, streets, parking facilities, andtransit serving a special event venue requiresa sound multidisciplinary, interjurisdictional,and inter-modal approach.The organization and coordination of2EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW2-13

Figure 2-6Wisconsin TIME program Special Event Traffic Management Planning Tool(Graphic courtesy of the Wisconsin DOT.)2-14

planned special event stakeholders is paramountto meeting the goals of planned specialevent management: achieving predictability,ensuring safety, and maximizing efficiency.Steps toward meeting this objectivebegin in the advance planning of trafficmanagement plans and other initiatives andcontinues through implementation and dayof-eventtravel management.Planned special events can involve a widerange of stakeholders with diverse goals andincentives. One of the biggest challenges toconsistently achieving effective planned specialevent management is coordinating andintegrating the responses of all involvedstakeholders, each with responsibility toserve the public, but with sometimes divergentpriorities and performance objectives.Each stakeholder has its own norms, guidelines,sense of authority, and internal culture.The involvement of multiple stakeholderscan threaten the sense of securityand authority of each, causing such groupsto unconsciously de-emphasize the publicgood each has set out to serve. (9) As a result,the objectives of the collective stakeholdergroup are left unfulfilled.Several stakeholders active in the advanceplanning and management of planned specialevents also team to mitigate the occurrenceof unplanned events, such as trafficincidents and other emergencies, throughproactive planning and response. Thesestakeholders include transportation agencies,law enforcement, and emergency serviceagencies. It should be recognized that theroles and responsibilities of stakeholdersinvolved in managing unplanned eventschange under planned special events. However,the important partnerships and level oftrust established between stakeholders carryover to groups formed to plan and manageplanned special events.Figure 2-7 shows that advance planning andday-of-event management of travel forplanned special events involves stakeholderscomprising the following three distinctgroups:• The oversight team involves stakeholdersparticipating in program planningactivities to improve the managementof travel during future plannedspecial events. These stakeholders includemid-to-upper level representativesof transportation agencies and law enforcement.Additional stakeholders includeelected officials, regional organizations,and other government agencies.Members of an oversight team work toestablish policies, regulations, procedures,and task forces for future applicationto a specific planned special event.Team members may interact with anevent planning team, consulting on feasibilitystudy results and evaluating conceptualtransportation management plancomponents. Stakeholders may alsowork independent of the team to evaluatepotential new technology applicationsthat may improve their performanceand capabilities while meeting teamobjectives.• The event planning team involvesstakeholders participating in eventspecificoperations planning and trafficmanagement plan implementation tasks.Stakeholders comprising the oversightteam typically have mid-level representativesserving on the event planningteam. Other stakeholders include theevent organizer, media, emergency serviceagencies, private industry, and thepublic. Due to the wide range of advanceplanning tasks and potential eventmanagement initiatives, an event planningteam may create a number of2EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW2-15

INTEGRATIONOversightTeamEvent Planning TeamADAPTABILITYTraffic Management TeamTRANSFERABILITYFigure 2-7Planned Special Event Stakeholder Groupssatellite task forces. Example taskforces include a communications subcommitteeor task force on evaluatingpotential travel demand managementstrategies.• The traffic management team involvesstakeholders responsible for managingtravel on the day-of-event. These stakeholdersinclude operations managers andfield personnel representing transportationagencies, law enforcement, theevent organizer, media, and private industry.An event traffic managementteam typically interacts with the eventplanning team during implementationactivities. The traffic management teammay also debrief the oversight team andevent planning team during post-eventevaluation activities.Major annual event or venue task forces existin some jurisdictions that serve the role ofboth an oversight team and event planningteam. The task force may meet year-roundto mitigate lessons learned from past events,then expand to include additional event operationsstakeholders as the next event nears.The success of each identified stakeholdergroup in meeting the goals of managingtravel for planned special events depends onthree criteria: integration, adaptability, andtransferability:• Integration refers to achieving stakeholdercooperation and coordinationacross disciplines and jurisdictionalboundaries. Interagency resource sharingrepresents a product of such stakeholdercoordination.• Adaptability concerns the ability ofstakeholders to adapt to new roles and2-16

esponsibilities unique to managingtravel for planned special events. Thesenew roles may involve changes in stakeholderauthority compared to roles underother types of planned and unplannedevents.• Transferability refers to maintainingcontinuous interagency communication,sharing of expertise to effect interagencytraining, and exchanging observationsand lessons learned relative to stakeholderexperiences.The discussed criteria facilitates good managementthat, in turn, helps meet the needsof all road users and achieve satisfactoryoutcomes for each involved stakeholder.REFERENCES1. “FIMT 2002 Event Season Wrap Up– Summerfest Round Table,” MilwaukeeWorld Festival, Inc., Milwaukee,Wisconsin, 2002.2. Shell Grand Prix of Denver – Parkingand Traffic Management Plan,Prepared for the Grand Prix of Denverby URS Corporation, August2002, 33 pp.3. “MUTCD Millennium Edition, ProposedRevision No. 2, 5/21/2002,”Federal Highway Administration,Washington, D.C., 2002 [Online].Available:http://mutcd.fhwa.dot.gov/knomillennium_npa.htm.[2003, March11].4. “Protocols for Incidents in Region6,” Colorado Department of Transportation– Region 6, Denver, Colorado,March 1999.5. Smith, M.C., “King of Super BowlRoads,” Orange County Register,January 25, 2003.6. Parking and Traffic ManagementPlans for Investco Field at MileHigh, Prepared for the City andCounty of Denver by Turner/HNTB,June 2002.7. Silverson, S., Wisconsin Departmentof Transportation – District 2, PersonalCommunication, February 18,2003.8. “Los Angeles City TrafficInfo,” Cityof Los Angeles Department ofTransportation, Los Angeles, California,2003 [Online]. Available:http://trafficinfo.lacity.org. [2003,May 14].9. Strategic Highway Research: SavingLives, Reducing Congestion, ImprovingQuality of Life, Special Report260, Transportation Research Board,Washington, D.C., 2001, 220 pp.2EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW2-17

THIS PAGE LEFT BLANK2-18

CHAPTER THREEOVERVIEW3OVERVIEWPURPOSEThis chapter presents a high-level summaryof managing travel for planned specialevents for all users of this technical reference.It aims to identify the key aspects ofeach step necessary to manage travel for aspecific planned special event and all specialevents in a region.Figure 3-1Event Pedestrian ManagementThis chapter provides a background on thepurpose of managing travel for planned specialevents. It highlights all of the steps necessaryto manage travel for a particularplanned special event and all planned specialevents in a region. Recommended policies,guidelines, procedures, strategies, and resourceapplications that support and facilitateeach step are indicated and organizedthrough the following five phases: programplanning, event operations planning, implementationactivities, day-of-event activities,and post-event activities.INTRODUCTIONThis chapter provides all users with a workingknowledge of the techniques and strategiesthat practitioners may use to successfully:(1) plan for and operate a particularplanned special event or (2) manage allplanned special events in a region. In turn,individual stakeholders gain an understandingof the collective tasks facing multidisciplinaryand inter-jurisdictional planned specialevent stakeholder groups charged withDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE3-1

developing and implementing solutions toacute and system-wide impacts on travelduring a special event.Subsequent chapters of this handbook provideexpanded and in-depth coverage of allpotential tasks and stakeholder activitiesconducted within individual planned specialevent management phases. Chapters 4through 10, which represent the core chaptersof this handbook, contain detailed informationon advance planning, day-ofeventoperation, and post-event evaluationactivities that stakeholders perform and/orconsider in mitigating special event impactson transportation system operations. Chapters11 through 15 describe an advanceplanning and travel management processand considerations specific to a particularcategory of planned special event.A background section describes how transportationoperations vary during a plannedspecial event and identifies advance planningactivities employed to successfullymanage travel for a special event. This sectionidentifies specific stakeholders, coupledwith their typical duties and responsibilities,that may actively participate under differentphases of special event management. It alsoincludes a discussion on the distinct, chronologicalphases of managing travel forplanned special events, including the commonproducts generated in each phase andassociated benefits of carrying out eachphase.A section on categories of planned specialevents identifies special characteristics specificto each event category that impactstransportation system operations.This chapter concludes by summarizingplanning approaches, operational strategies,and technology applications for managingtransportation system operations duringphases of managing travel for planned specialevents. These sections collectively presentall the steps necessary to manage travelfor a particular planned special event in additionto future events in a region.BACKGROUNDIn the past, the media has reported horrendoustraffic congestion that has occurred atseveral major planned special events. In oneinstance, golfers participating in a majorprofessional golf tournament were caught inmajor traffic jams along with event patronsand other motorists. Facing a 2-stroke penaltyor disqualification if they arrived at thefirst tee past their assigned tee time, severalplayers pulled their cars to the side of theroad, carried their golf bags, and walked tothe course. These situations emphasize theneed for this handbook, which presents policies,guidelines, procedures, strategies, andresource applications that assure the successfulmanagement of travel for plannedspecial events.What is Managing Travel forPlanned Special Events?A planned special event creates an increasein travel demand and may require road closuresto stage the event. Planned specialevents generate trips, thus impacting overalltransportation system operations. This includesfreeway operations, arterial and otherstreet operations, transit operations, and pedestrianflow. Unlike roadway constructionactivities or traffic incidents that constraintravel within a single corridor, planned specialevents affect travel in all corridors servingthe event venue.Managing travel for planned special eventsinvolves developing a transportation managementplan that contains operations and3-2

service strategies specific to managing traffic,transit, and travel demand. As shown inFigure 3-2, a transportation managementplan consists of three components:• Traffic management plan• Transit plan• Travel demand management initiativesTraffic Operations Agency /Law EnforcementTraffic operations agencies, transit agencies,law enforcement agencies, and event organizersrepresent key stakeholders in the transportationmanagement plan developmentprocess because of the responsibility theybear in developing, approving, and implementingthe plan. To ensure that the planaddresses the requirements of all those impacted,the event planning team should becomprised of a wide range of stakeholders:• Event operations stakeholders focus onmitigating the safety, mobility, and reliabilityimpacts on transportation operations.• Community interest stakeholders seek tominimize impacts on community qualityof life and maximize potential social andeconomic benefits.• Event support stakeholders serve to supportand execute the transportation managementplan by following proposed initiativesor providing necessary resourcesfor plan deployment.Travel DemandManagementTransit AgencyTransit Plan3OVERVIEWDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGCommunityInterestStakeholdersEventOperationsStakeholdersEvent OrganizerEventSupportStakeholders• High Occupancy Vehicle Incentives• Event Patron Incentives• Bicyclist Accommodation• Local Travel Demand ManagementTrafficManagement Plan• Public Transit ServiceExpansion•Express Bus Service•Charter ServicePOST-EVENT ACTIVITIESImplementationPlan• Site Access and Parking• Pedestrian Access• Traffic Flow• Traffic Control• En-Route Traveler Information• Traffic Surveillance• Traffic Incident Management and SafetyFigure 3-2Transportation Management Plan Components and Event Planning Team InvolvementEVENT PROFILE3-3

Stakeholder Roles andCoordinationThe advance planning and management oftravel for planned special events requires theconsistent involvement and coordination ofstakeholders throughout all phases of theevent. Table 3-1 indicates the responsibilitiesof the three stakeholder groups.• An oversight team involves mid-toupperlevel representatives of transportationagencies and law enforcement. Additionalstakeholders include elected officials,regional organizations, and othergovernment agencies.• The event planning team consists ofmid-level representatives of transportationagencies and law enforcement aswell as the event organizer, media, publicsafety agencies, private industry, andthe public.• A traffic management team includes operationsmanagers and field personnelrepresenting transportation agencies, lawenforcement, the event organizer, media,and private industry.Major annual event or venue task forces existin some jurisdictions that serve the role ofboth an oversight team and event planningteam. The task force may meet year-roundto mitigate lessons learned from past events,then expand to include additional event operationsstakeholders as the next event nears.Figure 3-3 presents common stakeholders,representing various disciplines and jurisdictions,that play an active role in managingtravel for planned special events on a localand/or regional level.The following subsections describe the potentialroles and responsibilities of eachidentified stakeholder in addition to his orher coordination with other planned specialevents stakeholders.STAKEHOLDERGROUPOversightTeamEvent PlanningTeamTrafficManagementTeamTable 3-1Responsibilities of Stakeholder GroupsFUNCTION• Manage all planned special events in a region.• Establish policies, regulations, procedures, and task forces for future application to aspecific planned special event.• Identify infrastructure improvements and evaluate potential new technologyapplications.• Interact with an event planning team, consulting on feasibility study results andevaluating conceptual transportation management plan components.• Conduct event operations planning activities for a specific planned special event.• Perform traffic management plan implementation tasks.• Manage travel on the day-of-event.• Interact with the event planning team during implementation activities.• Debrief the oversight team and event planning team during post-event evaluationactivities.3-4

Law EnforcementState PoliceCounty Police/SheriffLocal PoliceMediaTelevision/Radio/NewspaperTraffic Advisory ServiceTransportation AgenciesState DOTCounty/Local DPWPlanning DepartmentTransit Agencies3Event OrganizerElected OfficialsPrivate IndustryTransportation ConsultantsTraffic Control ContractorsITS VendorsTransportation AgenciesTransportation agencies own and operate thetransportation system serving a planned specialevent. These agencies staff all three ofthe above mentioned stakeholder groups,although actual personnel may vary fromgroup to group. Because of their involvementin every phase of managing travel forplanned special events, transportation agencieshave the unique opportunity to formpartnerships with other stakeholders at differentworking levels. Such partnershipsmay lead to: (1) creation of interagencyagreements at the program planning or oversightlevel, (2) agreement to share closedcircuittelevision (CCTV) video at the eventSpecial EventStakeholdersRegional OrganizationsMetropolitan Planning OrganizationsRegional Operating OrganizationsFigure 3-3Planned Special Event StakeholdersPublic SafetyFire DepartmentEmergency Medical ServicePublicResidentsBusinessesCommunity GroupsGovernment AgenciesOffice on Special EventsEmergency Management Agencyoperations planning or mid-level, and (3)improvement of communications and coordinationat the field level.A state department of transportation (DOT)typically leads advance planning and day-ofeventtraffic management for freeway and/orarterial corridors serving an event venue.This includes operating a traffic managementsystem to monitor, advise, and controltraffic flow on these high-capacity routes. Astate DOT may also facilitate the acquisitionand deployment of portable, advanced technologyequipment providing increased trafficmanagement and monitoring capabilities.EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-5

A local or county department of publicworks (DPW) may include traffic engineersparticipating in program planning, event operationsplanning, and day-of-event trafficmanagement. At the program planninglevel, the agency may initiate infrastructureimprovement projects or establish trafficcontrol guidelines for event permits. Eventoperations planning activities may includedeveloping or reviewing proposed trafficmanagement plans and developing trafficsignal system timing plans to accommodateanticipated fluctuations in traffic demand.The agency has authority to enact temporarytraffic and parking restrictions on streetsadjacent to an event venue. Trafficengineers often serve a supervisory role on atraffic management team. In general,agency officials must monitor and maintaintraffic flow traversing their jurisdiction. Alocal/county DPW assumes an expandedrole in traffic operations planning and managementfor local level planned specialevents. The agency may also utilizeroadway maintenance personnel to deployrequired temporary traffic control devices,repair potholes along a parade route, andperform post-event street sweeping.A planning department may administer apermit program for special events while alocal jurisdiction planning commission mayrule on the transportation component of anevent permit application.The previous section described the role oftransit agencies in managing travel forplanned special events, which may includeservice expansions and achieving cooperativeagreements with private bus companiesto obtain additional equipment and drivers.Law EnforcementLaw enforcement agencies facilitate the safeand efficient flow of traffic during a plannedspecial event through traffic control and enforcement.Agencies contribute to all phasesof planned special events, particularly eventspecificadvance planning and traffic management.Local and county law enforcementhaving a traffic operations bureau maytake responsibility for developing and executinga local street traffic managementplan. Other potential duties of law enforcementinclude approving local street closures,approving an event traffic flow plan, approvingtemporary traffic control deployment,escorting dignitaries to/from the eventvenue, and enforcing the requirements of atraffic operations agency.Event OrganizersEvent organizers initiate the event operationsplanning phase by notifying stakeholders,either through a written request topublic agencies or the submission of anevent permit application, and assembling anevent planning team. The event organizercontinually works to maintain interagencycoordination in order to meet milestones inthe advance planning process and ultimatelygain stakeholder approval of the proposedtransportation management plan. The eventorganizer may hire a private traffic engineeringconsultant to perform an event feasibilitystudy and prepare a traffic managementplan. The event organizer may also fund thedeployment of equipment and personnel resources,including reimbursement of publicagency personnel costs, required to mitigatetraffic safety, mobility, and reliability impactsduring the day-of-event. An eventvenue operator essentially represents anevent organizer. These venue operators maywork together with transportation agencies,law enforcement, and elected officials duringthe program planning phase to developstrategies, including permanent installationof equipment for improved traffic monitor-3-6

ing and control, to better accommodate trafficand transit access to the venue.Elected OfficialsThe media functions to disseminate eventpre-trip travel information, in addition toreal-time traffic and transit information duringthe day-of-event. A media representativemay participate in a meeting of theevent planning team to obtain advance informationon proposed temporary trafficcontrol, transit, and travel demand managementinitiatives. However, the media generallyworks independently of the traffic managementteam on the day-of-event.Private Industry3Elected officials serve the overall communityinterest and often play a significant roleon an oversight team. Local politicians canestablish laws and regulations toward effectingimprovements in planning and managingfuture planned special events. They maycreate a special task force to assist event organizersand local agencies to coordinateevent planning activities. Local district politiciansmay advise an event planning teamon alternatives to minimize quality of lifeimpacts on represented residents and businesses.Public SafetyPublic safety agencies, including a fire departmentand emergency medical service,represent event operations stakeholders thatadvise the event planning team on the provisionof emergency access routes to and fromthe event venue. Public safety agencies, inaddition to law enforcement and an emergencymanagement agency, also work aspart of the event planning team to ensureadequate pedestrian access routes andevacuation destination areas exist to meetemergency management plan requirements.MediaPrivate industry satisfies a wide range ofpublic agency needs from the event operationsplanning phase through the day-ofeventactivities phase. Traffic engineeringconsultants may assume the role of a publicagency traffic engineer and, in turn, developa transportation management plan and manageeither an event planning team, trafficmanagement team, or both. Private trafficcontrol contractors, such as barricade companies,fulfill the duties of a transportationagency maintenance department. IntelligentTransportation Systems equipment vendorscontract with transportation agencies to:• Supply and install on streets serving afixed event venue, permanent equipmentsuch as CCTV cameras, lane controlsignals, dynamic trailblazers, and parkingmanagement systems• Deploy portable traffic management systems,including portable CCTV, portablechangeable message signs (CMSs), portablehighway advisory radio (HAR),portable vehicle detectors, and portabletraffic signals.In some instances, transportation agenciesmay arrange for an equipment demonstration,at no cost to the agency, to evaluate theperformance of a particular technology applicationduring a planned special event.Regional OrganizationsRegional organizations interact with boththe oversight team and an event planningteam regarding major planned special eventsaffecting a regional area. A MetropolitanPlanning Organization (MPO) oversees theplanning and programming of transportationEVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-7

management strategies. For example, theagency may communicate and seek feedbackon temporary travel demand managementstrategies with commuter groups andtrucking companies. A MPO may loan staffto other public agencies in need of personnelto conduct planning and operations activities.The agency may also establish and/orcoordinate temporary task forces chargedwith a particular function, such as eventcommunications. A Regional Operating Organization(ROO) consists of traffic operationsagencies, transit agencies, law enforcement,elected officials, and other operationsagencies focused on the operation andperformance of a regional transportationsystem. A ROO works to ensure interagencycoordination of resources and informationacross jurisdictional boundaries. Itbuilds partnerships and trust among agenciesto improve their productivity and performance,thus creating a more responsive approachto mitigating temporary capacity deficiencies.ROO member agencies may, forexample, share traffic signal timing plans,coordinate planned strategies and resourcesfor managing travel, conduct public outreach,and participate in interagency training.Government AgenciesGovernment agencies, such as a governmentoffice on special events or emergency managementagencies, are non-transportationagencies that generally serve in an oversightcapacity. A government office on specialevents may work in tandem with the eventorganizer to initiate the event operationsplanning phase and coordinate event planningteam stakeholders. Other emergencymanagement and security agencies maymeet with the event planning team to obtainan advance debrief on transportation managementplan specifics.PublicThe public represents individual residents,businesses, and associated communitygroups. Residents and businesses potentiallyimpacted by intense traffic and parkingdemand generated by a planned specialevent may interact with event planning teamstakeholders during a public meeting. Thispermits concerned citizens the opportunityto review and comment on proposed trafficand parking restrictions needed to accommodateevent traffic.Phases of Managing Travel forPlanned Special EventsThe practice of managing travel for plannedspecial events incorporates advance planning,management, and evaluation activitiesencompassing five distinct, chronologicalphases. Figure 3-4 summarizes the fivephases and common products generated bycoordinated stakeholder groups under eachphase. Collectively, these phases facilitatethe successful management of transportationsystem operations during a planned specialevent.Integration of the identified phases, from thepost-event activities phase to the programplanning phase, creates a seamless processallowing for continuous improvement oftransportation system performance from oneevent to the next, especially in regard to recurringevents or events occurring at permanentvenues. This iterative process, wherestakeholders apply successes and lessonslearned from a particular special event tofuture events, supports activities pertainingto managing travel for all planned specialevents in a region. Recognition and integrationof special event management phasesachieves coordination across stakeholdergroups, namely the oversight team, event3-8

PRODUCTSProgramPlanningInstitutionalFrameworksPolicies andRegulationsInfrastructureDeployment3Event OperationsPlanningFeasibilityStudyTrafficManagementPlanTravel DemandManagementOVERVIEWImplementationActivitiesImplementationPlanReview andTestingPersonnelTrainingDay-of-EventActivitiesPost-EventActivitiesFigure 3-4Planned Special Event Management Phases and Associated Productsplanning team, and traffic managementteam.PLANNED SPECIALEVENT CATEGORIESThe first step toward achieving an accurateprediction of event-generated travel demandand potential transportation system capacityconstraints involves gaining an understandingof the event characteristics and howthese characteristics affect transportationoperations. In turn, practitioners can classifythe planned special event in order todraw comparisons between the subject eventand similar historical events to shape travelforecasts and gauge transportation impacts.TrafficManagementParticipantEvaluationTrafficMonitoringPost-EventDebriefingPost-EventReportTable 3-2 lists typical operational characteristicsof a planned special event. Each characteristicrepresents a variable that greatlyinfluences the scope of event operation andits potential impact on the transportationsystem.These event operation characteristics createfive categories of planned special events,indicated in Table 3-3.Discrete/Recurring Event at aPermanent VenueA discrete/recurring event at a permanentvenue occurs on a regular basis at a sitezoned and designed specifically to accom-DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE3-9

modate planned special events. This categoryincludes sporting and concert events atstadiums, arenas, and amphitheaters in urbanand metropolitan areas. Table 3-4 lists keycharacteristics of a discrete/recurring eventat a permanent venue.Table 3-2Event Operation CharacteristicsCHARACTERISTIC• Event time of occurrence• Event time and duration• Event location• Area type• Event market area• Expected attendance• Audience accommodation• Event typeTable 3-3Categories of Planned Special EventsSPECIAL EVENT CATEGORIES• Discrete/recurring event at a permanent venue• Continuous event• Street use event• Regional/multi-venue event• Rural eventTable 3-4Distinguishing Operating Characteristics ofa Discrete/Recurring Event ata Permanent VenueCHARACTERISTIC• Specific starting and predictable ending times• Known venue capacity• Advance ticket sales• Weekday event occurrencesContinuous EventA continuous event includes fairs, festivals,conventions, and air/automobile shows inurban and metropolitan areas. Aside fromconventions and state/county fairs, manycontinuous events take place at a temporaryvenue, a park, or other large open space.These venues host planned special events ona less frequent basis than permanent multiusevenues, and planned special event permittingtypically governs whether a temporaryvenue can adequately handle the transportationimpact of a particular continuousevent. Table 3-5 lists key characteristics ofa continuous event.Table 3-5Distinguishing Operating Characteristicsof a Continuous EventCHARACTERISTIC• Occurrence often over multiple days• Arrival and departure of event patronsthroughout the event day• Typically little or no advance ticket sales• Capacity of venue not always known• Occurrence sometimes at temporary venuesStreet Use EventA street use event occurs on a street requiringtemporary closure. Events classifiedunder this category include parades, streetraces, and motorcycle rallies occurring inrural, urban, and metropolitan areas. Theseevents generally occur in a city or downtowncentral business district; however, raceevents or motorcycle rallies may necessitatetemporary closure of arterial streets or limited-accesshighways. Planned special eventpermitting guidelines and restrictions typically(1) influence event operations characteristics(e.g., location, street use eventroute, time of occurrence, etc.) and (2) governwhether a traffic management plan canmitigate the transportation impact of a particularstreet use event. Table 3-6 lists keycharacteristics of a street use event.Table 3-6Distinguishing Operating Characteristicsof a Street Use EventCHARACTERISTIC• Occurrence on a roadway requiring temporaryclosure• Specific starting and predictable ending times• Capacity of spectator viewing area not known• Spectators not charged or ticketed• Dedicated parking facilities not available3-10

Regional/Multi-Venue EventA regional/multi-venue event refers to multipleplanned special events that occurwithin a region at or near the same time.Individual events may differ by classificationcategory. Example regional/multivenueevents include: (1) occurrence of asingle-theme event requiring multiple venuesto stage the event, (2) occurrence of adowntown parade or festival in the vicinityof a downtown fixed venue also hosting aspecial event, or (3) occurrence of specialevents at two fixed venues in a region at ornear the same time. Concurrent plannedspecial events require consideration as a regional/multi-venueevent if traffic generatedby different, competing special events usethe same traffic flow routes (e.g., freeway/arterialcorridors, local streets) or parkingareas over the same time frame. As aresult, stakeholders involved in planning andmanaging individual special events must, asa group, forecast and mitigate the global impactof concurrent special events on transportationsystem operations. Table 3-7 listskey characteristics of a regional/multi-venueevent.Table 3-7Distinguishing Operating Characteristicsof a Regional/Multi-Venue EventCHARACTERISTIC• Occurrence of events at multiple venues andat or near the same time• Events having a time specific duration, acontinuous duration, or both• Overall capacity generally not known if continuousevents or street use events are involvedRural EventA rural event encompasses any discrete/recurringevent or continuous eventthat occurs in a rural area. Events classifiedunder this category include fairs, festivals,and events at rural amphitheater and racetrackvenues. These events indicate that ruralevents collectively have the event operationcharacteristics of discrete/recurringevents at a permanent venue and continuousevents with one notable exception; ruralevents take place in rural areas. Table 3-8lists key characteristics of a rural event.Table 3-8Distinguishing Operating Characteristicsof a Rural EventCHARACTERISTIC• Rural or rural/tourist area• High attendance events attracting event patronsfrom a regional area• Limited roadway capacity serving an eventvenue• Area lacking regular transit service.• Events having either a time specific durationor continuous durationPROGRAM PLANNINGProgram planning for planned special eventsinvolves activities unrelated to a specificevent. This level of advance planning involvesthe participation and coordination ofstakeholders having an oversight role in additionto agencies directly responsible forevent operations planning. Products of programplanning include establishing new institutionalframeworks, policies, and legislationto monitor, regulate, and evaluate futureplanned special events. Stakeholders utilizeprogram planning initiatives to more efficientlyand effectively complete event operationsplanning, implementation activities,day-of-event activities, and post-event activitiesfor individual, future planned special3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-11

events. In turn, post-event activities (e.g.,participant evaluation, stakeholder debriefingmeeting, evaluation report) performedfor specific special events provide valuableinput for on-going program planning activitiesin a region or jurisdiction.Regional LevelProgram planning for planned special eventson a regional level concerns proactively improvingtravel management for all plannedspecial events in a region. Program planningrequires an institutional framework forgenerating and managing successful programsand initiatives. Some key considerationsinclude:• Role of oversight stakeholders• Policy support• Regional planned special events programStakeholder Roles and CoordinationProgram planning for regional planned specialevents necessitates the involvement andcoordination of stakeholders representingmultiple jurisdictions. At the program planninglevel, the stakeholders include:• Those agencies directly involved inplanning and day-of-event travel managementfor special events. These includelaw enforcement agencies, transportationdepartments, transit providers,and regional organizations.• Others who typically are not involved intransportation management, such as theevent organizers and elected officialsserving an oversight role.• Typically, mid-to-upper level agencyadministrators that collectively form theplanned special events oversight team.The following five-step process represents away of doing business that facilitates regionalcoordination when a planned specialevent occurs:• Step One: Identify the Stakeholders.• Step Two: Identify a Lead Agency.• Step Three: Maintain Communication.• Step Four: Form Subcommittees.• Step Five: Continue Communication.While planned special events may be temporary,and the planning for those events maybring together a group of stakeholders onlyfor that event, ongoing programs and initiativescan be used to address general specialevent needs on a continual basis. An institutionalframework can be created either beforean event takes place or based on theplanning for a specific special event. Thisframework can be used on a continuing basisto allow easier coordination among agenciesfor future events and eliminates theneed to re-establish working relationships,which have already been created.Policy SupportIn most instances, transportation and lawenforcement agencies have no prohibitionsfrom coordinating efforts with other agencies,especially for events expected to havean impact on that agency. However, thereare instances where interagency agreementsare helpful, or even necessary, for multiagencycooperation.While interagency agreements will varybased on state law and the culture of theagencies, there are some common issuesthey can address: (1) areas of responsibilityand (2) funding issues.Legislation provides the legal authority for agovernment agency to take certain actions.In many instances, activities involved inspecial events planning have already beenaddressed by legislation.3-12

Regional Planned Special Events ProgramA regional planned special events programis an ongoing process designed to address aregion’s needs for managing special events.It is not a program put in place to address aspecific special event, although a specificevent may trigger the formation of such aprogram. The scope of such a programshould focus on planned special events ofregional significance. If an event can bewholly managed within and by a singleagency or jurisdiction (e.g., through aplanned special event permit program), thenthere is no need for the regional plan tocome into effect.The program will put in place the frameworkfor handling regional planned specialevents. This would include the template forgroups created to deal with specific specialevents, identification of funding to supportsuch planning, and the identification of infrastructureimprovement needs in the regionto better manage special events.The stakeholders in a regional program suchas this will vary from region to region. Table3-9 lists organizations that should beconsidered part of the program. Leadershipof the program will vary by region, but theagencies most likely to take the lead includestate DOTs, state law enforcement agencies,and MPOs.Local LevelThe development of a formal planned specialevent permit program marks a key programplanning initiative to facilitate stakeholdercoordination, compliance with communityneeds and requirements, and efficientevent operations planning. Backed byguidelines and regulations specified in municipalordinances, the program outlines adefined planning framework and schedulefor event organizers and participating reviewagencies to follow. It represents an agreementbetween participating public agencies(e.g., transportation, law enforcement, publicsafety, etc.) to ensure, through planningactivities or review, that all planned specialevents meet a set of mutually agreed uponrequirements for day-of-event travel management.A municipal permit representsapproval, or agreement between a jurisdictionand event organizer, to operate aplanned special event, and it includes provisionsoutside of travel management.Table 3-9Regional Program StakeholderOrganizationsSTAKEHOLDER ORGANIZATIONS• State Department of Transportation• Metropolitan Planning Organization• State police/patrol• Toll agencies• Mass transit agencies• Municipal governments and police departments• County governments and police departments• Owners of large venues (e.g., arenas, stadiums,universities)Some important considerations and applicationsof planned special event permittinginclude:• Permitting proves particularly effectivefor less frequent continuous events,street use events, and rural events occurringat a temporary venue not having aknown spectator capacity. These eventsplace an emphasis on advance planningand public outreach to mitigate trafficoperations deficiencies and communityimpacts.• Jurisdictions may not require a permitfor special events held at permanentvenues, such as stadiums, arenas, andamphitheaters.• Permitting allows jurisdictions the opportunityto engage the event organizer3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-13

at the beginning of the event operationsplanning phase.• Public stakeholders can size-up the eventoperations characteristics of a proposedevent in order to schedule adequate personneland equipment resources to accommodatethe event. Resources mayinclude traffic control, security, andmaintenance.• From the event organizer’s perspective,a special event permit application andassociated regulations outlines a generalapproach toward successfully managingtravel for the event, facilitates coordinationwith appropriate stakeholders, andgauges resource requirements on theday-of-event.Permit ProcessInitiation of the permit process for a specificplanned special event begins with the submissionof a completed special event permitapplication by the event organizer. Thepermit application represents a formal proposalby the organizer to stage a plannedspecial event. In some cases, particularlythose where the event organizer requests assistancefrom the jurisdiction in locating asuitable venue location or street use eventroute, the event organizer and pertinent publicstakeholders may interact prior to applicationsubmission to review the proposedevent and permit process.Figure 3-5 presents a flowchart summarizingkey event organizer and public agency actionsthroughout the special event permitprocess, from submitting a permit applicationto conducting the proposed event.The special event permit process serves toscope, schedule, and direct event operationsplanning activities for proposed events.This reduces unnecessary delay in facilitatingstakeholder coordination, developingplanning deliverables (e.g., traffic managementplan, etc.), reviewing mitigation strategies,and mobilizing personnel and equipmentresources required to stage a particularplanned special event. Practitioners mayexpand and contract the process in order tobest fit: (1) the area type and involvedstakeholders, (2) the special guidelines andregulations unique to a particular jurisdiction,(3) the operations characteristics of aparticular event, and (4) the purpose of aparticular event, such as community eventsversus commercial, for-profit events involvingevent organizers from the private sector.Application ComponentsThe special event permit application servesto communicate event operations characteristicsto a jurisdiction, thus permitting it toimpose appropriate impact mitigation requirementsand/or advise the event organizerto change event operation parameters. Keyitems include the event purpose that maysignal the need to develop contingency plansin response to possible security threats ordemonstrations. Information regardingevent history and expected attendance assistsin achieving a more predictable eventtravel forecast. The application shouldprompt the event organizer to indicate traveldemand management initiatives, includinguse of carpools and other modes of travel.Supplemental requirements to a specialevent permit application, required of theevent organizer either at the time of initialapplication submission or after jurisdictionreview of the application questionnaire, include:• Event site plan• Traffic flow plan• Traffic control plan• Parking plan• Emergency evacuation plan3-14

ReviseSubmit PermitApplicationReview EventDate and Time3ApprovedReviewEvent RouteApprovedNotify BusTransit ServiceYesStreetUseEvent?NoDistributeApplication toNecessary AgenciesGainInter-jurisdictionalApprovalOVERVIEWConduct MeetingofInvolved AgenciesAppealDecisionDeniedReviewApplicationMaterialConduct MeetingwithEvent OrganizerAdditionalRequirements?NoDeliver PublicPresentationIssue PermitYesCommentsReviseApplicationDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGKEY:Event OrganizerActionPublic AgencyActionDetermine Staffingand EquipmentConfirm PersonnelResourcesNotifyEmergency ServicesInform AffectedProperty OwnersDisseminatePublic AdvertisementSecureParking AreasPOST-EVENT ACTIVITIESConduct Pre-EventWalk-ThroughPrepareImplementation PlanConduct EventPrepareOperations DetailEVENT PROFILEFigure 3-5Planned Special Event Permit Process3-15

• Notice of event for affected propertyowners and residents• Event advertising brochure• Hold harmless agreement• Certificate of insurancePermitting RequirementsJurisdictions maintain the following generalrequirements for planned special events: (1)event restrictions, (2) impact mitigation andtraffic control, (3) legal, and (4) funding. Asindicated in Table 3-10, the municipal codesof jurisdictions across the Nation specify awide range of requirements for managingtravel for planned special events, all ofwhich become incorporated in the specialevent permit process.Table 3-10Municipal Code Provisions on PlannedSpecial EventsPROVISION• Special event definition• Conditions for permit requirement• Permit restrictions• Content of permit application• Permit application submission and reviewdeadline• Notification of city/town officials• Notification of abutting property owners andresidents• Permit approval criteria• Event organizer duties• City/town authority to restrict parking andclose local roads• Hold harmless clause• Insurance requirements• Recovery of expenses• Procedure for appealing a denied permitEVENT OPERATIONSPLANNINGEvent operations planning concerns the advanceplanning and stakeholder coordinationactivities conducted for a specific plannedspecial event. The two main steps of theoperations planning process involves: (1)completing a feasibility study to forecastevent-generated traffic and parking demandand to determine the associated impact ontransportation operations during the eventand (2) developing a traffic managementplan to service event-generated automobile,transit, and pedestrian traffic and to mitigatepredicted impacts to the transportation systemserving the event venue and surroundingarea. Travel demand management representsa key component of the overall advanceplanning process when forecastedtraffic demand levels approach or exceedavailable roadway capacity.Figure 3-6 presents 31 steps in the event operationsplanning process for all plannedspecial events. The flowchart covers developmentand integration of the phase’s threeprimary products: feasibility study, trafficmanagement plan, and travel demand managementinitiatives. It represents a suggestedorder of event operations planningactivities. However, as noted below, theevent planning team can modify activities tocreate a dynamic and more effective planningprocess tailored to the scope of a specificplanned special event:• Based on lessons learned from past specialevents at a particular permanentvenue, stakeholders may program newinfrastructure or adopt new policies (e.g.,parking restrictions) early in the eventoperations planning process.• A jurisdiction planned special eventpermit process and requirements willscope, schedule, and direct event operationsplanning activities for continuousevents and street use events.• The event planning team should repeatprocess steps for individual venue eventscomprising a regional/multi-venue event.3-16

Initiate Feasibility Study26TDM andTransit Service1ModalSplit2Transit Service33EventTraffic Generation27Event PatronIncentives4Traffic Arrival andDeparture Rate5Market AreaAnalysisOVERVIEW11Corridor TrafficFlow Routes17FreewayTraffic Control13AlternateRoutes14EmergencyAccess Routes15Background TrafficAccommodation18StreetTraffic Control6Parking DemandAnalysis7Traffic DemandAnalysis8Roadway CapacityAnalysis12Local TrafficFlow Routes16TransitAccommodation19IntersectionTraffic Control23PedestrianControl9Shuttle BusService10LotAssignment20Vehicle Accessand Circulation21Parking Area Designand Operation22Parking OccupancyMonitoring24DisabledAccessibilityDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGKEY:Traffic PlanningParking PlanningTransit Planning25Analysis andModeling28Traffic IncidentManagement29En-RouteTraveler Information30TrafficSurveillance31Pre-TripTraveler InformationAdvance to Implementation ActivitiesPOST-EVENT ACTIVITIESEVENT PROFILEFigure 3-6Event Operations Planning Process Flowchart3-17

• Links between process steps are twowayas stakeholders evaluate alternativestrategies and/or integrate traffic managementplan components.• The event planning team can developdifferent traffic management plan componentsconcurrently.Initial Planning ActivitiesThis section examines key planning initiativesand special considerations in order tohelp guide the user through the first steps ofthe event operations planning phase. Theevent operations planning phase begins withstakeholders establishing a planning frameworkand schedule. The framework includesforming an event planning team, creatingagreements, identifying performancegoals and objectives, and deciding on mitigationassessment and approval protocol.Special considerations evolve from reviewingthe event operations characteristics of aparticular special event (e.g., risk assessment)in addition to past successes and lessonslearned. These considerations weighheavy on traffic management plan requirements,and stakeholders must address issuesaffecting community residents and businessesthrough public outreach efforts earlyin the planning phase in order to ensureproper mitigation and non-conflict with trafficmanagement plan specifications.Stakeholder Roles and CoordinationThe event planning team handles tasks associatedwith event-specific operations planningand traffic management plan implementation.The event planning team consistsof a diverse group of stakeholders witheither event operations or community interestas their primary concern. An event planningteam forms as a result of either: (1) coordinationamong a traffic operationsagency, law enforcement, and event organizerthat represent the core event planningteam stakeholders or (2) designation by acommittee on special events within a regionaltransportation management organization,such as a traffic incident managementprogram.• The former typically describes eventplanning teams formed in response to localplanned special events affecting fewjurisdictions, such as events occurring inrural or urban areas.• The latter may occur in metropolitan areaswhere planned special events happenfrequently, thus warranting an on-callevent planning team.A regional transportation committee onspecial events features stakeholders thathave achieved interagency coordinationthrough past, cooperative travel managementefforts.• Stakeholder representatives have firsthandknowledge of the roles, resources,and capabilities of each committee participant.• Stakeholders commonly include trafficoperations agencies, law enforcement,transit agencies, event organizers orvenue operators, and the media.• Committees in metropolitan areas maycreate task forces for specific plannedspecial event venues or recurringplanned special events (e.g., annual fairs,fireworks displays, parades, etc.). Thecommittee or task force generally meetsand performs event operations planningtasks on an as-needed basis. The groupmay also convene regularly (e.g.,weekly, monthly, or quarterly) to reviewprogram planning efforts for futureplanned special events.3-18

Risk AssessmentBased on the type and purpose of a plannedspecial event, there exists potential scenarioswhere event patron or non-attendee behaviormay cause overcrowded conditions in thevicinity of an event venue and/or create unplannedroad closures. The event planningteam must assess the nature of a proposedevent and determine the need to incorporatespecial contingency plans in response to potentiallydangerous situations that will interferewith the planned travel management onthe day-of-event.Table 3-11 lists four notable event-orientedrisk scenarios associated with some plannedspecial events.Performance Goals and ObjectivesThe goals of managing travel for plannedspecial events include achieving predictability,ensuring safety, and maximizing efficiency.Table 3-12 states performance objectives,for specific classes of transportationsystem users, applicable to satisfying theoverall goal of operations efficiency andsafety. In meeting these performance objectives,the event planning team must targetthe goal of achieving predictability duringTable 3-11Summary of Event-Oriented Risk ScenariosEVENT-ORIENTED RISKEXAMPLE SCENARIODemonstration or protest • Any event that is political in nature or invokes social concern.• Political conventions and paradesTicketless event patrons • Sold-out sports championship gamescausing overcrowding • Sold-out concerts involving select performersFan celebration • Response to city or school sports team winning a championship.Event patron violence • Motorcycle rally violence between patrons and/or participants.3OVERVIEWDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGTable 3-12Transportation System Operations Performance Objectives for Planned Special EventsUSER CLASSPERFORMANCE OBJECTIVEEvent 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 roaduser• Minimize travel delay on major thoroughfares, freeways and major arterials.• 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.POST-EVENT ACTIVITIESEVENT PROFILE3-19

the event operations planning phase. Table3-13 presents common, easy-to-measuremeasures of effectiveness (MOEs) for assessingthe performance objectives that describetraffic operations. The identifiedMOEs represent day-of-event performanceevaluation data, useful for: (1) making realtimeadjustments to the traffic managementplan on the day-of-event, (2) conducting apost-event evaluation of transportation systemperformance, and (3) referencing duringadvance planning for future event occurrences.Table 3-13Measures of Effectiveness for AssessingPerformance ObjectivesMEASURE OFLOCATIONVenueparking areasEFFECTIVENESS• Occupancy and turnover rate• Arrival and departure servicerate• Time to clear parking lotsIntersections • Vehicle delay• Queue lengthFreewaysandstreets• Travel time and delay• Traffic volume to capacityratio• Traffic speed• Number and location ofcrashes and other incidents• Traffic incident clearancetimePlanning Schedule and DeliverablesFigure 3-7 illustrates a high-level event operationsplanning schedule for an eventplanning stakeholder group. The figure listsadvance planning activities and potentialstakeholder meetings and public hearings ina timeline relative to the planning deliverables.The schedule indicates other stakeholderplanning initiatives, such as the developmentof a specialized transit plan toreduce event traffic demand.The planning schedule provides a generictimeline, recognizing that actual event operationsplanning schedules vary considerably.For instance, some major, rovingplanned special events, such as the U.S. GolfOpen, require an event operations planningphase spanning more than one year.Public OutreachPlanned special events that may impact adjacentneighborhoods and businesses usuallyrequire public involvement to address relatedconcerns. The public represents individualresidents, businesses, and associatedcommunity groups. Public outreach activitiesinitiated early in the event operationsplanning phase can reveal important issuesthat local residents and businesses mayhave. Specific neighborhood impact issuesinclude heavy traffic demand on local streetsand event patron use of available local onstreetparking. Soliciting these concernsthrough public involvement, and addressingthe issues in the planning process, can improverelations and day-of-event operations.The event planning team and public stakeholdersshould identify potential problemsprior to the development of the traffic managementplan. These problems can be identifiedby first understanding the event scopewith consideration given to currentneighborhood traffic and parking restrictions,traffic management plans deployedduring past planned special events, and identifiedproblems experienced during pastevents. With this information, the publicstakeholders can make informed decisionsand provide valuable input to the eventplanning team.3-20

Conduct Public OutreachPerform Situation Analysis andRisk AssessmentDevelop Transit Plan3Submit PermitApplicationDevelop Travel Demand Management InitiativesIssue PermitApprovalProposeEventEstablish Policies and AgreementsPerformFeasibilityStudyDevelopTrafficManagementPlanApproveMitigationAdvance toImplementationActivitiesOVERVIEWEVENT OPERATIONS PLANNING TIMELINEN.T.S.Meeting onEvent Conceptand Review PastLessons LearnedStakeholder Review of Planning ProductsThe event operations planning phase includesintermediate and final review periodsfor the event feasibility study and trafficmanagement plan. Stakeholder review concentrateson the identification and proposedmitigation of event travel impacts. Effectiveand rapid stakeholder review of event operationsplanning products requires: (1) an annotatedplanning timeline, (2) a reviewprocess, and (3) performance standards. Anannotated planning timeline proves effectivefor monitoring team progress. Adopting aformal review process reduces unnecessarydelay in producing event operations planningdeliverables required to stage a plannedspecial event.Policies and AgreementsMeeting onTraffic ManagementPlan RequirementsFigure 3-7Event Operations Planning ScheduleMeeting onTraffic ManagementPlan ReviewHearing withPublic to AssessNeeds60 Days 30 Days 14 DaysMONTHS WEEKS DAYSEventThe establishment of special policies andagreements to support planning and day-ofeventmanagement of planned special eventsfacilitates efficient stakeholder collaborationand defines important event support stakeholderservices that may be incorporatedinto a traffic management plan for a particularplanned special event. These initiativesimprove interagency relationships, clarifydecision-making responsibilities and expectations,and secure on-call services andagency actions. Stakeholders may developpolicies and agreements specific to a particularplanned special event or for allplanned special events in a region. Becauseof the potential significant time to developand approve a particular policy or agreement,stakeholders should establish theseinitiatives early in the event operations planningphase or during the program planningphase.DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE3-21

Table 3-14 summarizes four types of policiesand agreements involving stakeholdersresponsible for event operations planningand/or day-of-event operations.Feasibility StudyThe structure and approach of a plannedspecial event feasibility study resembles aTraffic Impact Study required for planneddevelopments, as illustrated in Figure 3-8.The figure shows the sequential steps inpreparing a feasibility study for a plannedspecial event.Table 3-15 provides an overview of the firstfive feasibility study components. The accuracyof one analysis influences that of another.Achieving predictability, a goal ofmanaging travel for planned special events,represents the focus of a feasibility studyeffort.The feasibility study gauges the impact aproposed event has on traffic and parkingoperations in the vicinity of the venue. Itdetermines if a particular planned specialevent will cause travel problems, where andwhen the problems will occur, and the magnitudeof each identified problem usingvarious MOEs. Initially, the study is conductedwithout roadway capacity improvementsor initiatives to reduce travel demand.Once the feasibility study identifies eventtravel problems, practitioners can take stepsto mitigate transportation system deficiencies.These results define the scope of thetraffic management plan required to successfullymanage travel for a planned specialevent.Travel ForecastTravel forecast analysis involves estimating:(1) modal split, (2) event traffic generation,and (3) traffic arrival rate. Event planningteam stakeholders that typically collaborateon this analysis include a traffic operationsagency, traffic engineering consultant, transitagency, and event organizer.Under the scope of a feasibility study, modalsplit concerns identifying the existing modesof travel event patrons will use to access theevent venue site. Common travel modesinclude personal automobile, public transit,and walking. Public transit refers to scheduledbus transit or commuter rail. Transitagencies may assist in determining a basetransit split, without service incentives orpromotion, for patrons traveling to/from theevent.Table 3-14Summary of Policies and Agreements Applicable to Managing Planned Special EventsITEMEXAMPLE APPLICATIONInteragency agreement • Joint operations policy between stakeholders that establishes a sharedrole 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 reimbursementfor services.Standard street use event routes • Routes established under the program planning phase for recurring streetuse 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.3-22

STEP SIXMITIGATION OF IMPACTSTraffic management plan3STEP FIVEROADWAY CAPACITY ANALYSISSTEP FOURTRAFFIC DEMAND ANALYSISImpact assessmentTrip assignmentOVERVIEWSTEP THREEPARKING DEMAND ANALYSISDirectional distribution(destination)Figure 3-8Feasibility Study Analysis StepsTable 3-15Feasibility Study Analysis SummaryCOMPONENT ANALYSIS RESULT APPLICATIONTravel forecast • Modal split • Number of trips by mode oftravel• Input into parking demandanalysis.• Event traffic generation• Number of vehicle trips bypersonal automobile• Input into traffic demandanalysis.• Traffic arrival rate • Number of trips per unit oftimeMarket areaanalysis• Event trip origin • Geographic location of eventtrip origins and percent split• Input into traffic demandanalysis.Parking demandanalysisTraffic demandanalysisRoadwaycapacityanalysisSTEP TWOMARKET AREA ANALYSISSTEP ONETRAVEL FORECAST• Background parkingoccupancy• Number of non-attendee vehiclesper parking area andunit of time• Event parking demand • Number of event-generatedvehicles per parking area andunit of time• Background trafficflow• Event traffic assignment• Section and point capacityDirectional distribution(origin)Trip generation• Background traffic demandrate, adjusted for eventrequiredroad closures• Event traffic demand rate perassigned route• Identification of capacityconstraints and level of service• Network operations • Identification of bottlenecklocations and saturation flowrates• Input into event parkingoccupancy.• Input into traffic demandanalysis.• Input into roadway capacityanalysis.• Input into traffic managementplan.• Input into travel demandmanagement assessment.DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE3-23

Unlike other traffic generators such ascommercial developments, planned specialevent practitioners typically have advanceknowledge of event attendance and, in turn,can develop traffic generation estimates viavehicle occupancy factors. Table 3-16 outlinesa two-step process for forecastingevent traffic generation. Input data includesa modal split estimate since the traffic generationforecast aims to estimate the numberof event-generated trips by personal automobile.Vehicle occupancy factors canserve as the basis for estimating eventgeneratedtraffic.In order to estimate peak traffic volumesgenerated by an event, practitioners mustestimate the time and scope of peak trafficflow during event ingress and egress. Trafficarrival and departure rate indicates thepeak period (e.g., hour or 15 minute) ofevent-generated traffic. The rate is used todetermine the following key parameters forinput into the traffic demand analysis: (1)peak period time and (2) percent of totalevent-generated traffic within the peak period.Event operation characteristics thatinfluence traffic arrival and departure ratesinclude:• Event time and duration – e.g., specificstart time, abrupt end time, continuousoperation.• Event time of occurrence – e.g.,day/night, weekday/weekend.• Audience accommodation – e.g., reservedseating, general admission.• Event type – e.g., sports/concert,fair/festival, parade/race.Market Area AnalysisA market area analysis identifies the originand destination of trips to and from aplanned special event. The analysis focuseson developing a regional directional distributionof event patron trips to/from an eventsite via personal automobile. The site refersto the collective parking areas serving thevenue. A regional directional distributionspecifies: (1) the freeway and arterial corridorsserving the venue site and (2) the percentsplit and volume of event-generatedautomobile trips traversing each corridor.Table 3-17 summarizes three analysis methodsused to define a planned special eventmarket area.Parking Demand AnalysisA parking demand analysis functions to determinethe amount of required parking forevent patrons in the vicinity of the eventvenue. A parking occupancy study drivesthe overall analysis and determination ofevent parking areas. This study indicates thelevel of parking spaces occupied, relative tolot capacity, at intermittent time intervals. Italso specifies an estimate of peak parkingdemand, a figure particularly useful formanaging continuous events where parkingspace turnover occurs throughout the eventday.Table 3-16Traffic Generation Forecast ProcessCOMPONENTDETAILInput data • Daily attendance • Percent automobile trips • Vehicle occupancy factorMethodStep 1. (Daily Attendance) x (Percent Automobile Trips) = Person Trips Via AutomobileStep 2. (Person Trips) / (Vehicle Occupancy Factor) = Vehicle TripsResult • Number of vehicle trips by personal automobile both to and from the event3-24

Table 3-17Market Area Analysis MethodsMETHODDESCRIPTIONTravel time analysis • Determine population distribution within travel time threshold of event venue.Distance analysis • Determine population distribution within distance radius of event venue.Origin locationanalysis• Determine weighted distribution of known origins by place or zip code.Figure 3-9 presents a parking demand analysisprocess used to determine the adequacyof event venue (on-site) parking and theidentification of appropriate off-site parkingareas. The flowchart denotes an analysisconducted for a one-time interval. Practitionersshould perform an iterative parkingdemand analysis, over hourly time periodsas necessary, if considering parking areascharacterized by high background parkingturnover.Traffic Demand AnalysisA traffic demand analysis determines: (1) alocal area directional distribution and (2) theoverall assignment of event-generated traffic.This analysis references results obtainedthrough the travel forecast, market areaanalysis, and parking demand analysis.The local area directional distribution indicatesfreeway ramps and intersections, includingturning movements, traversed byevent-generated traffic arriving to or departingfrom a planned special event. The regionaldirectional distribution, as determinedin the market area analysis, quantifies thepercentage of event patron trips (e.g., origins)by regional freeway and arterial corridor,and the planned special event parkingareas, as determined in the parking demandanalysis, represent sink nodes or location oftrip destination.Traffic demand analysis includes developingcomposite background and event-generatedtraffic projections for all roadway systemfacilities serving the event venue. Compositetraffic volumes expressed as an hourly(or sub-hourly) rate meet roadway capacityanalysis input requirements. These ratesidentify the peak hour capacity analysis periodsduring event patron arrival and/or departure.Practitioners must adjust backgroundtraffic volumes to account for displacedand diverted traffic due to road closuresrequired to stage the planned specialevent.As a preliminary step to assess the need toperform a detailed roadway capacity analysis,draw a circular screen line (e.g., 0.5 to 1mile radius) around the event venue site.Note each roadway segment intercepted bythe screen line, and estimate the segment’scapacity in each direction of travel. Create achart of hourly composite traffic volumesfor each identified segment, and assess capacitydeficiencies in both directions oftravel.Roadway Capacity AnalysisA roadway capacity analysis uses trafficdemand analysis results to measure the impactof a proposed planned special event onroadway system operations. At the feasibilitystudy level, a roadway capacity analysisreferences existing roadway facility operationsand capacity (e.g., no reverse flow operationor other capacity enhancements).The analysis assumes pedestrian accessmanagement strategies will minimize pedestrian/vehicularconflicts, and parking area3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-25

Identify On-SiteParking Area(s)ParkingAreaStriped?NoUse 150 cars/acre toEstimate Numberof SpacesYesEstimateEvent-GeneratedVehicle TripsInventory GrossNumber ofOn-Site SpacesEstimate Number ofSpaces Needed toStage EventOn-Site ParkingSupply > Demand?YesDONEMeasure On-SiteParking AreaBackground OccupancyNoIdentify Off-SiteParking AreaNoWalkingDistance to VenueAcceptable?NoShuttle ServiceAvailable forEvent?YesYesParkingStriped?NoUse 150 cars/acre toEstimate Numberof SpacesYesInventory GrossNumber ofOff-Site SpacesCompute NetRemaining EventParking DemandMeasure Off-SiteParking AreaBackground OccupancyOff-Site ParkingSupply > RemainingDemand?NoYesDONEFigure 3-9Parking Demand Analysis Process3-26

access points provide sufficient service flowrates through proper design. Regardless ofcapacity analysis outcome, pedestrian accommodationand parking management representkey considerations in a planned specialevent traffic management plan.Roadway capacity analysis involves freewaysegments, freeway junctions such as rampsand weaving areas, street segments, signalizedintersections, and unsignalized intersections.To evaluate these facilities, practitionerscan employ one of two approaches: (1)analyze section and point capacity usingHighway Capacity Manual recommendedmethodologies or (2) analyze networkoperations using a computer trafficsimulation model.Mitigation of ImpactsMitigating anticipated planned special eventimpacts on travel represents the ultimategoal of conducting a feasibility study. Themitigation of congestion and potential safetyimpacts identified through a feasibility studyrequires development of a traffic managementplan and complementing travel demandmanagement strategies. In turn, practitionerscan utilize the tools and techniquesused to determine feasibility study results inorder to evaluate various mitigation strategiesand determine if the selected strategiesadequately mitigate identified transportationsystem deficiencies.Table 3-18 lists numerous tools for mitigatingplanned special event impacts on localroadway and regional transportation systemoperations. In meeting the overall travelmanagement goal of achieving efficiency,these tools target utilizing the excess capacityof the roadway system, parking facilities,and transit.Traffic Management PlanA traffic management plan indicates howtraffic, parking, and pedestrian operationswill be managed on the day-of-event. Theplan contains strategies and tactics for mitigatingtravel impacts identified in a plannedspecial event feasibility study analysis. Italso accommodates planned travel demandmanagement initiatives aimed at improvingtransportation system operations on the dayof-event.The scope of a traffic management plan variesfor each planned special event, even forevents happening in the same jurisdiction orregion. Different strategies and tactics aresuccessful in handling different categories ofplanned special events occurring in metropolitan,urban, and rural areas. A successfultraffic management plan satisfies both the:(1) customer requirements of all transportationsystem users and (2) allotted budget forpersonnel and equipment resources assignedto the day-of-event operation.The key components of a traffic managementplan for planned special events include:• Site access and parking plan• Pedestrian access plan• Traffic flow plan• Traffic control plan• En-route traveler information plan• Traffic surveillance plan• Traffic incident management and safetyplanSpecial ConsiderationsThe event planning team must create aflexible traffic management plan that accommodatesmodifications on the day-ofthe-eventas well as special considerations3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-27

Table 3-18Tools for Mitigating Planned Special Event Impacts on Transportation System OperationsCATEGORYEXAMPLE TOOLSTraffic Control and Capacity ImprovementsFreeway traffic control • Ramp closures or additional capacity• Alternate routes• Ramp meteringStreet traffic control • Lane control• Alternative lane operations• Road closures• On-street parking restrictions• Trailblazer signing• Parking management systemsIntersection traffic control • Access and turn restrictions• Advance signing to improve traffic circulation• Traffic signal timing and coordinationTraffic incident management • Service patrols• Tow truck staging• Advance congestion warning signs• Portable lightingTraffic ManagementTraffic surveillance • Closed circuit television systems• Field observation• Aerial observation• Media reports• Portable traffic management systemsEn-route traveler information • Changeable message signs• Highway advisory radio• Media• Static signing• Destination signingTravel Demand ManagementTransit incentives • Public transit service expansion• Express bus service from park and ride lots• Charter bus serviceHigh occupancy vehicle incentives • Preferred parking• Reduced parking costEvent patron incentives • Pre-event and post-event activitiesBicyclist accommodation • Bicycle routes and available parking/lock-upLocal travel demand management • Background traffic diversion• Truck diversionPre-trip traveler information • Internet• Telephone information systems• Public information campaign• Event and venue transportation guide• Media3-28

that surface prior to the planned specialevent.Table 3-19 lists the various groups that eitherattend or have a direct interest in aplanned special event. Throughout the trafficmanagement plan development process,the event planning team must regularlymonitor and communicate any special considerationsthat arise in conjunction with theneeds of the groups attending the event.Table 3-19Groups Attending a Planned Special EventGROUP• Participants• Spectators• Event sponsor• Dignitaries• Media• Non-ticketed visitors• Street vendorsContingency PlanningContingency planning represents event insurance.While stakeholders may consumeadditional time and resources during advanceplanning for a planned special event,the availability of contingency plans helpsmitigate a potential systemic breakdown ofthe transportation system during an unexpectedevent occurring at or near the sametime as the planned special event. Key stepsin contingency planning include:• Develop a traffic management plan thatis scenario-based.• Consider and plan for a range of possibleunplanned scenarios. Table 3-20 providesa contingency plan checklist forplanned special events.• Determine changes in operation due tounplanned scenarios.Table 3-20Contingency Plan ChecklistCONTINGENCY• Weathero Severe weather outbreako Flooding on event site access routeso Flooding in event parking areaso Parking during wet weather• Security threat• Major traffic incident• Delayed event• Event cancellation• Absence of trained personnel and volunteerson the day-of-event• Equipment breakdown• Demonstration or protest• Unruly spectator behavior• Overcrowding• Event patron violenceSite Access and Parking PlanA site access and parking plan contains operationsstrategies for managing automobile,bus, taxi, and limousine traffic destined toand from the following areas in the vicinityof a planned special event venue: (1) publicparking area, (2) reserved (permit) parkingarea, (3) overflow parking area, and (4)pick-up/drop-off area. The event planningteam must create a flexible plan that containsproactive strategies for responding toreal-time event patron travel patterns drivenby their choice of public parking areas, especiallyif parking fees vary from lot to lot.Traffic destined to the three other site areashas a fixed ingress and egress pattern asspecified in the plan through lot assignmentsand permitted movements.Site access and parking plan developmentinvolves a three-step process: (1) access, (2)process, and (3) park:• Access refers to getting event trafficfrom the adjacent street system to theirdestination, such as a parking area or3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-29

pick-up/drop-off area, during ingress andvice versa during egress. The trafficmanagement team manages the accessoperations component.• Process involves activities necessary to“approve” vehicles for entry into a parkingarea. A fee transaction between aparking area operator and motoristrepresents a common process activity.• Park involves handling vehicles from aprocess point to a parking space. Aparking team and associated volunteersoperate the process and park components.A breakdown in any one of thethree components can result in congestionextending to the adjacent street systemand possibly to freeway and arterialcorridors serving the planned specialevent.In order to facilitate safe and quick spectatorand participant travel to/from the event site,the site access and parking plan should specifytactics that prevent potential congestionon parking area access roads and allow forgood circulation on roadways surroundingthe event site. Table 3-21 indicates site accessand circulation considerations applicableto the development of a site access andparking plan.The objective of designing and operatingparking areas involves providing an accesspoint capacity in excess of the peak rate oftraffic flow that traverses the driveway. Anyplanned special event parking area that requiresa fee or permit for access has a servicefacility in-place to process vehicles enteringthe lot. Therefore, a first-in-first-outqueuing system exists.Queuing happens when the arrival rate exceedsthe service rate. The arrival rate denotesthe number of vehicles traversing asingle parking area access point over someperiod of time. The service rate is the numberof vehicles the service facility can processover some period of time. The magnitudeof this rate depends on the number ofservers (e.g., staff or automated gates) thatcomprise the service facility and server efficiency.A parking area queuing system operatesstochastically. Traffic arrival rateswill vary, and individual transaction timesthat collectively determine the service ratewill also vary. In designing a service facilityfor a planned special event parking area,select a conservative server service time(e.g., the time to serve one vehicle) and determinethe required number of servers thatcan process the maximum anticipated arrivalrate with one server on break.Table 3-21Site Access and Circulation ConsiderationsCONSIDERATIONTACTICParking area ingress • Right turn circulation pattern• Contraflow operation• Shoulder utilization• Lane channelization• Parking area overflow access pointsPick-ups and drop-offs • Use of off-street areas• Designation of pick-up/drop-off areas to avoid conflict with primary trafficingress/egress routes• Storage areaParking area egress • Right turn circulation pattern• Preservation of adjacent street flow• Provision of rapid parking area unloading3-30

Parking operators and volunteers must meetthe following two requirements for parkingvehicles:• Park vehicles at the same rate as thosebeing processed.• Minimize pedestrian/vehicular conflictsinside parking areas.The event planning team should design asite and parking plan to service both the trafficmanagement team and event patrons.Pre-trip traveler information dissemination(via media, websites, mailings, brochures)should include elements of the site and parkingplan. Table 3-22 contains a site andparking plan development checklist.Pedestrian Access PlanA pedestrian access plan provides for thesafe and efficient movement of pedestrianswithin the immediate area of the venue.This includes accommodating pedestriantrips to/from several mode transfer points ina planned special event activity network.These points include site parking areas, transitstations, express/charter bus stations,shuttle bus stations, and pick-up/drop-offareas. Moreover, some event patrons maymake their entire trip, originating from homeor work, on foot. In meeting the managingtravel for planned special events goal of ensuringsafety, the event planning team mustdevelop a plan that: (1) accommodates pedestriansaccessing an event via a networkof safe walking routes and (2) minimizespedestrian/vehicular conflicts.A successfully implemented pedestrian accessplan for planned special events permitsrapid dispersion of pedestrian flow. Althoughhigh pedestrian volumes encompassthe immediate venue area during ingress andegress, the plan effects efficient accessthrough a radial network of pedestrianroutes. It also includes time-sensitivestrategies to minimize overcrowding conditionsat venue gates and mode transferpoints. The plan also considers a continuousshuttle bus service operations detail to handleevent patrons destined to/from satelliteparking areas and transit stations not easilyaccessible by foot.Pedestrian access routes are comprised oftwo components:• A routing component, consisting ofsidewalks or paths between street intersections.• A crossing component, consisting of infrastructureor other vehicle controlmeasure that allows pedestrians to crossa street safely.Planned special event pedestrian managementinvolves the implementation of integratedcontrol tactics to facilitate pedestrianrouting and crossing between a mode transferpoint and the event venue.Two strategies for managing pedestrian flowon walkways during planned special eventsinclude:• Locating access route termini.• Providing additional, temporary pedestrianwalkway capacity.Table 3-23 describes tactics for improvingthe safety and capacity of pedestrian streetcrossings. Use of a temporary pedestrianbridge represents an effective tactic forcrossing wide streets or roadways wheretraffic throughput is emphasized. Temporarystreet closures during event egress allowthe venue to empty faster and permitspedestrians to disperse to a number of adjacentmode transfer points and pedestrian accessroutes. Mid-block crossings not only3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-31

ELEMENTEvent patronparking areasTable 3-22Site and Parking Plan ChecklistPROVISION• Highlight free, pay (state rates), and reserved (permit) 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 tofreeways 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.informationVIP information • Show VIP (e.g., official guest / sponsor) parking areas.• Show credential pick-up location.• Show hospitality areas.Shuttle bus routeand stationsDrop-off / pick-upsitesOther parkingareasDisabled parkingareasOtherconsiderations• Display shuttle route and all stations.• State cost, and emphasize free services.• Show access points and circulation lanes for transit/taxi/limo/shuttle service.• 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.• Show express/charter bus parking area.• Show limousine parking area.• Show media parking area.• Show venue employee parking area.• State specific location (e.g., first row) of disabled-only spaces in general parking areas.• Indicate number of spaces available.• Show aerial map.• 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.3-32

Table 3-23Pedestrian Crossing TacticsTACTICAPPLICATIONTemporary 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.reduce the likelihood of vehicle-pedestriancollisions, but accident severity as well.The pedestrian access plan must accommodatedisabled event patrons arriving via alltravel modes serving a planned specialevent. This involves examining all routesthat a disabled event patron may traverseand, in turn, ensuring the patron has an unimpededpath from mode transfer point tovenue seat. Accessible pedestrian routesmust: (1) maintain a minimum path width,(2) include curb cuts and temporary rampsfor negotiating grade separations, and (3)conform to local Americans with DisabilitiesAct (ADA) regulations. If a particularroute (e.g., from express/charter bus stationor transit station) does not meet accessibilityrequirements, then accessible shuttles mustoperate between affected mode transferpoints and accessible pick-up/drop-off areas.A shuttle bus service should be operatedcontinuously within the venue site area duringevent ingress and egress, with the serviceschedule revolving around event patronarrivals and departures. Common shuttleservice to/from a planned special eventvenue include: (1) satellite parking area service,(2) transit station service, and (3) employeeparking area service. A particularplanned special event may involve multipleprivate and public (e.g., transit agency) shuttleservice operators, all of whom must coordinatewith the event planning team onservice details and station locations. Successfulshuttle bus services positively influencethe travel mode or destination (e.g.,off-site) choice made by persons traveling toand from a planned special event.The end result in shuttle bus service designinvolves determining the required number ofbuses to meet expected ridership levels.Based on event category and associated operationscharacteristics, the number of shuttlebuses needed during event ingress andegress may vary.A temporary shuttle bus station will exist atboth a mode transfer point and at the eventvenue. Station design and operations shouldfacilitate the rapid loading and unloading ofshuttle passengers without impacting adjacenttraffic operations and pedestrianmovement. Because of the high concentrationof pedestrian traffic at the event venueduring ingress and egress, venue station designis critical. On-site shuttle bus stationsshould: (1) facilitate easy shuttle bus access,3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-33

(2) provide a defined passenger waitingarea, (3) promote an orderly queue formation,and (4) shield waiting passengers fromadjacent vehicular and pedestrian traffic.Table 3-24 lists pertinent pedestrian accessplan informational elements of interest toevent patrons and participants. A trafficflow map or traffic control plan, prepared asa traveler information tool, may containcallouts to pedestrian facilities and day-ofeventcontrol tactics.Table 3-24Pedestrian Access Plan ChecklistELEMENT• Show recommended pedestrian accessroutes.• Show pedestrian bridges and tunnels.• Indicate special pedestrian crossing tactics(e.g., street closure or mid-block crossings)• Show shuttle bus route, direction of travel,stop locations, and loading and unloading areas.• Show vertical connections between infrastructurelevels (e.g., stairs, escalator, elevator,ramps).• Show designated pedestrian crossings atstreet use event venues.• Indicate special regulations.• Highlight pedestrian access routes and crossingssuitable for disabled event patrons.Traffic Flow PlanThe preparation of a traffic flow plan representsa required preliminary step to the designof a traffic control plan. The trafficdemand analysis component of a feasibilitystudy indicates the freeway/arterial corridorsand local streets that event patrons will utilizeto access the venue site area. In developinga traffic flow plan, the event planningteam modifies predicted flow routes tomaximize transportation system operatingefficiency on the day-of-event while meetingpublic safety agency needs. In turn, atraffic control plan facilitates traffic flow onrecommended flow routes through serviceenhancingstrategies and tactics that handleforecasted event traffic demand on theseroutes.The advantage of developing a traffic flowplan is two-fold:• Allows the event planning team to influenceand control event patron patterns ofingress and egress.• Provides important advance informationfor event patrons and participantsregarding best access routes to the event.The traffic flow plan must account for twotypes of traffic flow routes: corridor andlocal:• Corridor flow routes include the freewaysand major arterial roadways servingthe planned special event venue.• Local flow routes traverse the street systemadjacent to the event venue and servicea particular parking area or pickup/drop-offpoint.• A target point represents the point ofconnection between corridor and localflow routes, characterized by a freewayinterchange or major arterial intersection.• On the day-of-event, the management ofcorridor flow routes typically involvessurveillance and dissemination of travelerinformation regarding target pointand local flow route operations. Thetraffic management team implementstraffic control initiatives beginning at thetarget point and continuing along the localflow route.Figure 3-10 describes a process for assessingcorridor and/or local traffic flow routes.Traffic control strategies for increasing corridorroute capacity include eliminatingweaving areas or other ramp control tactics.Strategies for local routes include striping3-34

Identify TrafficFlow RouteEstimate ExistingRoute CapacityReevaluateTraffic Flow Routetion describes these strategies and othermitigation alternatives in greater detail.Other considerations involved in the developmentof traffic flow plans include:3NoForecastTrafficDemand >Capacity?YesIdentifyTraffic Control Strategyto Increase CapacityForecastTrafficDemand >Capacity?NoEstimate Changes inBackgroundTraffic DemandConduct Analysis andModeling to EstimateOperational MOEsReview Route withCommunity InterestStakeholdersImpact onTraffic OperationsAcceptable?YesRecommend RouteYesNoReevaluateTraffic ControlStrategiesIdentify Event Trafficor Parking RestrictionsFigure 3-10Traffic Flow Route Assessment Processadditional travel lanes to handle flow in thepredominant direction, restricting turningmovements, and revising traffic signal timingplans. The “Traffic Control Plan” sec-• Emergency access routes• Background traffic accommodation• Transit accommodationEmergency access route planning involvesdesignating street closures or emergencyaccess lanes within the venue site area toconnect to some or all of the following termini:(1) public safety (e.g., fire and emergencymedical service) headquarters, (2) localhospital, (3) freeway or major arterialserving a regional hospital, and (4) locationof staged ambulances and first-aid stationsfor on-site medical treatment.Table 3-25 presents a range of passive (e.g.,traveler information dissemination only) andaggressive (e.g., physical traffic control) tacticsfor accommodating background trafficduring a planned special event.A traffic management plan that prioritizesbus flow to and from the venue site areapositively influences the utility associatedwith transit and other travel choices involvingexpress bus, charter bus, or shuttle bustransport. Transit agencies should operateon scheduled bus transit routes up until thelast possible point to divert around a roadclosure required to stage a planned specialevent. This avoids user confusion andminimizes inconvenience to non-event attendees.Table 3-26 lists tactics for accommodatingscheduled and event-generated bus service.The traffic flow plan serves stakeholdersmanaging the planned special event in additionto event patrons and participants. TheEVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-35

Table 3-25Tactics for Accommodating Background Traffic during Planned Special EventsUSERTACTICBENEFITGROUPRegionalthrough trafficLocal throughtrafficNeighborhoodresidents andbusinesses• Freeway-to-freeway diversionbeginning a significant distanceupstream of an event venue.• Maintains mobility.• Reduces the level of background traffic on corridorflow routes serving the venue.• Arterial-to-arterial diversion • Eliminates non-attendee exposure to venue site area.• Discourages cruising around site area.• Allows public to become familiar with route afterrepeated implementation.• Parking restrictions • Permits resident access to on-street parking spaces.• Permits employee and customer access to publicparking areas.• Traffic control points • Restricts neighborhood area access to residents andbusiness employees.• Signing and alternate routes • Directs customers to businesses and other trafficgenerators.Table 3-26Bus Accommodation TacticsTACTIC• Exclusive bus route• Exclusive/priority bus lane• On-demand communication with TMC orcommand postproduct of strategic route planning involvesinforming event patrons of best accessroutes to and from the planned special event.Stakeholders can communicate preferredroute directions via: (1) event patron ticketmailings, (2) media public information campaigns,and (3) event, venue, or traffic informationwebsites.Table 3-27 contains a traffic flow plan developmentchecklist.Traffic Control PlanFreeways represent corridor flow routesserving event patrons and participants destinedto/from a planned special event fromvarious parts of a region and beyond. Thesecorridor flow routes connect to local, streetlevelflow routes that, in turn, serve eventvenue parking areas. A freeway interchangemarks the point of connection, or targetpoint, between corridor flow routes and localflow routes. Together, the three entitiescomprise the roadway system servicing aplanned special event. The scope of trafficcontrol expands and contracts, proportionallyto system performance, during eventingress and egress.The main objective of freeway managementduring planned special events involvesminimizing freeway mainline congestion.Freeway traffic control tactics implementedin response to local traffic flow or ramp operationdegradation preserve freewaymainline operations. Freeway traffic controland management strategies for planned specialevents include traveler information disseminationand interchange operations.Traveler information disseminated upstreamof freeway interchanges serving an eventvenue effectively: (1) introduces all freewayusers to critical traffic management plancomponents affecting traffic flow in the vicinityof the event venue and (2) facilitatesfreeway lane management as motorists learnof temporary freeway ramp control tactics3-36

ELEMENTEvent patroncorridor flowrouteEvent patronlocal flowrouteTravelerinformationTraffic managementteaminformationOther travelmodes / usergroupsOtherconsiderationsTable 3-27Traffic Flow Plan ChecklistPROVISION• Indicate recommended freeway ramps, by route direction, to/from event venue or specific parkingarea.• 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.• Show connection to corridor flow route.• Indicate local streets that connect to freeway entrance/exit ramps.• Indicate recommended flow route to/from general and reserved parking areas (minimum) or individualparking 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.• Promote use of regional park & ride locations and event satellite parking areas.• 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.• Include contingency maps detailing routes to overflow parking areas.• Provide written directions for diverting corridor flow routes via local street system.• Indicate alternate routes for ingress and egress to same target point.• Show transit routes and state corresponding route number(s).• Show preferred taxi routes.• Indicate bicycle routes.• Indicate pedestrian routes.• Provide information on both ingress and egress flow routes.• 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., freewayexits, 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.3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-37

and/or downstream lane closures that warranta lane-change.Management of freeway interchange operationsfor planned special events involvesmaximizing ramp capacity and preventingfreeway mainline congestion. Table 3-28presents interchange operations tactics forplanned special events.The central traffic control strategy for localflow routes serving a planned special eventinvolves emphasizing throughput. Tacticsthat increase street capacity include a combinationof: (1) on-street parking restrictions,(2) vehicle travel on road shoulders,and (3) alternative lane operations. Streetsconnecting freeway/arterial corridor routesand venue parking areas characteristicallyserve a predominant directional traffic flowduring ingress and the reverse flow duringegress.Alternative lane operations comprise twocategories:• Reversible lane operation• Contraflow operationThe application of alternative lane operationsto streets during a planned specialevent creates an express route between anevent venue and high-capacity freeway/arterialcorridors. Three key elementsin developing an alternative lane operationsplan include lane balance, markings, andenforcement.The management of traffic traversing a localflow route on the day-of-event involvesroute guidance and monitoring of trafficcontrol initiatives.The event planning team should design specialroute marker signs for guiding motoriststo venue parking areas and pick-up/drop-offlocations. Each route marker may consist ofa color-coded letter or symbol. Whenerected along a local flow route, the routemarker assemblies collectively trailblaze aroute to the drivers’ destination of choice.Signs that introduce each route markershould be placed on all freeway and arterialcorridors serving the event venue.The deployment of a portable traffic managementsystem(s) (PTMS) provides a trafficmanagement team with the capability ofmonitoring traffic operations at criticalroadway system locations in addition to disseminatingupdated traveler information atthat location. Critical locations include targetpoints connecting a corridor flow routeand a local flow route or key driver decisionpoints on the street network surrounding anevent venue. Typical PTMS componentsinclude:• Surveillance camera• Changeable message sign• Highway advisory radio• Detection devices• Weather sensor• Flood lights• Power source (e.g., solar)Wireless communication via spread spectrumradio enables the traffic managementteam to view full-motion video from PTMSsurveillance cameras.A proactive approach toward developingstrategies for controlling intersection trafficduring a planned special event aims to:• Increase intersection traffic handling capacity.• Improve the orderly movement of traffic.• Prevent crash occurrences.3-38

TACTICRollingroad blockEntrancerampclosureExit rampclosureEliminationofweavingareaRampmeteringLatedivergeprohibitionAdditionalexit ramplaneEVENTTIMEIngressEgressIngressEgressIngressEgressIngressEgressIngressEgressIngressIngressTable 3-28Interchange Operations Tactics for Planned Special EventsAPPLICATION• Initiate tactic on freeway mainline upstreamof congested interchange ramp(s).• Initiate tactic on freeway mainline upstreamof a congested ramp junction orweaving area.• Use tactic to meter freeway mainline trafficdemand without creating a secondarybottleneck upstream of the congested area.• Initiate tactic on ramps in close proximityto and upstream of interchange target pointfor event traffic.• Divert affected traffic to another downstreamaccess point.• Initiate tactic as necessary to reduce freewaymainline congestion in the vicinity ofclosely spaced entrance ramps.• Close ramp, as needed, to alleviate congestionon a downstream local flow route.• Initiate only if a downstream exit ramp andlocal street system can handle divertedtraffic.• Initiate tactic at freeway interchanges connectinglocal traffic flow routes that havespecial egress traffic control measures ineffect.• Close cloverleaf interchange entranceramp to facilitate unimpeded diverge toaccess adjacent exit ramp.• Close cloverleaf interchange exit ramp andmainline right-lane to facilitate unimpededmerge with mainline.• Meter freeway entrance ramps upstream ofinterchange target point for event traffic.• Meter freeway entrance ramps downstreamof interchange target point for event traffic• Deploy traffic cones along barrier lineextending upstream of exit ramp gore area.• Cone an additional lane on exit rampsserving traffic destined to an event venue.BENEFIT• Alleviates traffic demand at interchange,thus permitting street orramp bottleneck to dissipate.• Reduces level of congestion at theprimary bottleneck location.• Eliminates congestion caused bytraffic merging with heavy freewaymainline traffic.• Reduces freeway mainline congestionor prevents congestion from occurring.• Reduces congestion on local flowroute.• Prevents traffic from accessing localflow routes in the direction of theevent venue that operate in favor ofegress traffic flow.• Eliminates weaving area congestion.• Extends deceleration lane for trafficusing exit ramp.• Eliminates weaving area congestion.• Extends acceleration lane for trafficusing entrance ramp.• Reduces congestion caused by trafficmerging with heavy freewaymainline traffic.• Reduces congestion caused by trafficmerging with heavy freewaymainline traffic.• Reduces congestion at diverge rampjunction caused by motorists attemptingto make a sudden lanechangeto access an exit ramp.• Improves safety.• Provides additional ramp storagecapacity.• Proves particularly effective if twolaneramp traffic does not have tomerge at downstream end of ramp.3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-39

The key to maximizing capacity involvessimplifying traffic movements and minimizingthe number of traffic signal phases.Stakeholders can also reduce the number ofcompeting intersection traffic flow movementsby initiating a planned road closure.Advance signing of permitted intersectionmovements improves the orderly movementof traffic.The significant change in traffic volume andflow patterns at street intersections in thevicinity of a planned special event venueduring event ingress and egress mandates areview of traffic signal timing plans duringthe event operations planning phase. Advancetraffic signal operations planning involvedeveloping event traffic signal timingplans. Traffic signal timing plans shouldexist for a range of contingency scenariosthat prioritize either major street or minorstreet traffic movements. Methods to increasetime for a specific movement include:(1) selecting an existing plan with a longercycle length to increase the normal favoredphase, (2) implementing a custom plan favoringa minor street phase (3) deploying acontingency “flush” plan, consisting of anextra long phase or cycle, to facilitatemovement through a corridor, and (4) increasingtime for a movement through manualtraffic signal system operator control. Intraffic signal system-controlled corridorscarrying high traffic volumes on the day-ofevent,system operators may enact simultaneouscoordination, where all signals withina single corridor turn green at the same time.The event planning team designs traffic controlplans for use by the traffic managementteam and traffic control vendors. Table 3-29contains a traffic control plan developmentchecklist for freeway, street, and intersectionmanagement.En-Route Traveler Information PlanEn-route traveler information can provideevent patrons and other transportation systemusers with current roadway and transitinformation while traveling en-route. Informationis typically provided via devicesdeployed along the side of the roadway, orfrom devices mounted on the dashboard ofthe vehicle. Along the roadway, CMS andHAR messages typically provide informationregarding an upcoming planned specialevent, including current conditions related tothe special event such as traffic congestion,incident and construction locations, weatheradvisories, parking availability, and alternateroutes. In-vehicle and personal mobile devicescan provide a variety of en-route travelerinformation to both the traveler as wellas transportation providers.Static signs can be used for event managementto inform travelers of an upcomingplanned special event, to identify park &ride lots, and to guide motorists to particularlocations. It is not uncommon for agenciesto use static signing in special event managementfor the following purposes:• Notify travelers of a future special event.• Notify travelers of future facilitychanges for the event such as lane closuresor occupancy restrictions.• Identify special alternate routes for theevent.• Guide travelers to parking or park & ridelots.One of the most fundamental technologiesavailable for disseminating traffic-relatedinformation from the roadside is that ofchangeable message signs. CMSs are sometimesreferred to as dynamic message signs3-40

Table 3-29Traffic Control Plan ChecklistELEMENTPROVISIONFreeway control plan • Specify maintenance and protection of traffic per MUTCD guidelines (e.g., locationof 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., parkingareas, 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., locationof 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 correspondingreceiving lane).• State special regulations (e.g., turn prohibition, exclusive bus lane, resident/permitonly 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 egresso Contingency scenarios• Show location of temporary static signs and message.• Indicate location of dynamic blank-out signs.Equipment locationplan• State number of traffic cones, drums, and barricades required at designated locations.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.3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-41

or variable message signs. CMSs are programmabletraffic control devices that canusually display any combination of charactersto present messages to motorists. Thesesigns are either: (1) permanently installedabove or on the side of the roadway, (2)portable devices attached to a trailer, or (3)portable devices mounted directly on a truckand driven to a desired location.Highway advisory radio is an effective toolfor providing timely traffic and travel conditioninformation to the public. It has variousadvantages and disadvantages. Its most importantadvantage is that it can reach moretravelers, or potential travelers, than theother roadside technology, changeable messagesigns. While CMSs reach only thosemotorists at a particular point, and can onlyconvey a short message, HAR has the advantageof being able to communicate withany person in the HAR broadcast range.Furthermore, the amount of information thatcan be conveyed to the user is much greater.Its primary disadvantage is that it is restrictedto low power, and this can lead topoor signal quality (since many outsideforces affect the signal, such as weather)and, therefore, poor listener levels.The public has learned to depend upon themedia to provide them with “almost” realtimetraffic information. Commercial radiohas proven to be a good means of providingtravelers with traffic information both in andout of their vehicles. It is not uncommon forplanned special event stakeholders, includingpublic agencies, to partner with a commercialradio station (or for a commercialradio station to sponsor a special event) toenhance the information dissemination relatedto the event and its transportation conditions.Care should be taken to ensure thatthe information disseminated reflects currenttraffic conditions and is credible.Other technology applications include:• Cellular telephone-based systems• 511• In-vehicle displays• Subscription services• Personal data assistantsAn en-route traveler information plan mustbe developed in concert with the traffic flowplan and traffic control plan. The success ofany traffic management plan depends ondisseminating correct information to motoristsat the right time and location.Detailed plans are necessary that identify thefacilities and resources to be used. For instance,what permanent CMS or HAR are tobe used and what holes exist in the informationdissemination strategy? Where willportable devices be required? Traveler informationplans must include planned messagesets for equipment and technology usedto disseminate en-route traveler information,including static signs, changeable messagesigns, highway advisory radio, and telephoneinformation systems.Traffic Surveillance PlanA traffic surveillance plan can include:• Closed-circuit television systems• Field observation• Aerial observation• Media reportsClosed-circuit television surveillance is avery valuable planned special event managementtool for observing real-time conditionsrelated to special event corridors, alternateroutes, parking and pedestrian conditions,as well as for a verification tool formessages placed on changeable messagesigns.3-42

A common and efficient technique to observethe traffic conditions during a plannedspecial event is to place human observers, ordetectors, in the field, usually at critical locations.Normally, these observers have therole of monitoring conditions and reportingback to a central location for strategic assessment.These human detectors are gatheringrelevant information related to theevent and using established protocol tocommunicate the information back to thecentral processing and coordination facility.It is common to deploy these observerswhere technology is lacking and where theymay perform an additional role in trafficmanagement or traffic incident management(e.g., freeway service patrol operators).Aerial surveillance has long been used tomonitor the operation of the surface transportationnetwork. “Observers” in aircraft(fixed wing or helicopters) fly over freewaysand streets and monitor conditions in realtime,using two-way radios to communicatewith the TMC or with service patrols on thefreeway. This approach can be relativelyexpensive when one considers the expenseof leasing or operating an aircraft, althoughit does have the benefit of being able tocover a large area.The media needs to be a partner in theplanned special event management and operationseffort. Agreements must be in placethat define their role within the plan, as wellas what information needs to be communicated,both prior to and during the event.Traffic Incident Management and SafetyPlanThe occurrence of a planned special eventthat increases or disrupts the normal flow oftraffic places a premium on the optimal useof existing facilities. A traffic incident andsafety plan specifies crash prevention tacticsand traffic incident quick clearance initiatives,some of which denote special provisionsenacted just for the day-of-event.These traffic incident management techniquespreserve two goals of managingtravel for planned special events: (1) ensuringsafety and (2) maximizing efficiency.Crash prevention tactics focus on improvingdriver awareness of surroundings and driverbehavior. Table 3-30 lists crash preventiontactics applicable to planned special events.Table 3-30Crash Prevention TacticsTACTIC• Portable lighting• Congestion warning sign• Public information safety campaign• EnforcementPortable lighting devices enhance driver understandingof traffic control and traffic flowpatterns at night. Congestion warning signs,placed upstream of known roadway bottlenecklocations, alert drivers of demandinducedcongestion on the day-of-event. Apublic information safety campaign strivesto change motorists’ behavior when travelingto and from a planned special event byemphasizing event traffic control and regulations,pedestrian safety, and vehicle operation.Enforcement aims at preventing driversfrom executing illegal and dangerousmovements in an effort to bypass congestionand/or day-of-event traffic control.Service patrols can play a key role in trafficincident management for planned specialevents. The service has great versatility, andpatrol operators can satisfy a wide range oftraffic management team needs. For example,operators can assist in establishing dayof-eventtraffic control, performing trafficsurveillance, providing timely traffic condi-3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-43

tion reports from various remote locations,and rapidly clearing traffic incidents.A quick clearance practice consists of laws,policies, procedures, and infrastructureaimed at effecting the safe and timely removalof a traffic incident. Service patrols,as previously described, represent a quickclearance infrastructure component. Rapidclearance of traffic incidents during plannedspecial event ingress and egress avoids significantimpact to corridor and local trafficflow routes in addition to routes used by participantsand VIPs.The following quick clearance initiativesbenefit traffic incident management in highvolumecorridors, characteristic of plannedspecial events: (1) vehicle/cargo removallaws and policies, (2) stakeholder openroads policy, and (3) public-private towingcontracts.Travel Demand Management andTraveler InformationTravel demand management represents akey component of the overall advance planningprocess when forecasted traffic demandlevels approach or exceed available road capacity.TDM strategies may be warrantedfor planned special events occurring duringpeak travel times, continuous events locatedin downtown areas, street use events of longduration, regional/multi-venue events, andspecial events in rural areas having limitedtransportation system capacity. The goal isto optimize event patron and non-attendeetravel through incentives aimed at consolidatingperson trips and altering user travelpatterns and habits, while minimizing anypenalties to the user.The goal of transit operators involve designinga special event service and related incentivesto not only improve the travel choiceutility associated with using transit, but alsoto exceed the utility (e.g., travel time, parkingfees, comfort, etc.) associated with travelingvia personal automobile. Successfultransit services collectively may result in asignificant change in event patron modalsplit without impacting service to nonattendeeusers.The availability of pre-trip travel information,consisting of essential event operationsand real-time traffic information, proves effectivein assisting event patron evaluationof potential travel options, trip departuretimes, and travel routes to the event venue.Similarly, other road users, seeking tominimize event-related impacts to their trip,value this information.TDM, transit, and pre-trip traveler informationinitiatives complement one another andwork to reduce traffic on the roadway networkin the vicinity of the event. These initiativesare not infrastructure improvementsto increase capacity, but rather are methodsthat decrease vehicular traffic by providingevent patrons with various travel choices aswell as providing information that may leadto a reduction in traffic volumes.Demand Management StrategiesSuccessful TDM strategies, developed toreduce the amount of event patron traffic,encourage carpooling and the use of alternatetravel modes. TDM strategies may alsoinfluence the travel patterns of non-attendeeroad users by encouraging a trip time shift ora change in travel mode. The resulting reductionin traffic demand reduces traveltimes for both event patrons and nonattendeeroad users.Table 3-31 contains a summary of traveldemand management strategies.3-44

Table 3-31Travel Demand Management Strategies3EVENT PROFILEPOST-EVENT ACTIVITIESDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-45

Transit ServiceModifications to existing transit service for aspecial event represent TDM strategies. Thefocus of the public transit agency is to increaseridership during the event by increasingthe attractiveness of the service that itprovides. In many locations and for manytypes of special events, additional ridershipto and from special event sites can providesubstantial additional revenue for the transitsystem at little additional cost. Also, transitsystem use may relieve traffic congestionaround the venue.Table 3-32 contains a summary of transitservice strategies.Pre-Trip Traveler InformationVarious traveler information techniques areused to disseminate information to the public,including both event patrons and nonattendeeroad users, so they can be betterinformed when planning their trip to aplanned special event, or around an event.Table 3-33 lists techniques used to providepre-trip information to the traveling public.The primary function of pre-trip informationinvolves assisting drivers with decisions regardingroute planning, travel mode, and thetime of day to travel. Accurate pre-triptravel information will provide benefits toall transportation system users in the form oftime and cost savings.Pertinent information that event patrons maywant before beginning their trip include:• Best driving route to the venue fromspecific origins (e.g., cities or freeways)• Best public transit route• Parking area locations and parking fees,access to disabled parking spaces, andtimes that the parking areas open beforethe event• Recommended event ingress and egressroutes, particularly if different for arrivalsand departuresSTRATEGYPublic transitserviceexpansionExpress busserviceCharterserviceTransitservicemarketingTable 3-32Transit Service StrategiesTECHNIQUES• Maximize use of public transit.o Existing service with additional vehicle hourso Modifying existing service by creating a route deviation with a stop near the eventvenueo Implementation of an express service to establish a special purpose route to and fromthe event site• Discourage event patrons from driving their vehicles to the event site due to expected siteparking deficiencies and anticipated roadway congestion.o Using express bus service between a park and ride facility or remote parking lot andevent venueo Using park and ride lots that best intercept spectator traffic as it approaches the eventsite.• Use a contract service to provide transportation directly to the event site from outlying areas(e.g., other neighborhoods and cities).• Consider both charter bus operations as well as charter rail service.• Establish a comprehensive transit marketing program.o Informing the public of the availability of public transit service to/from the eventvenueo Convincing the public to use the service3-46

Table 3-33Pre-Trip Traveler InformationDissemination TechniquesTECHNIQUE• Internet• Telephone information systems• Public information campaign• Event and venue transportation guide• Kiosks• Television• Newspapers• Changeable massage signs• Highway advisory radio• Up-to-the-minute roadway information(e.g., current traffic conditions andweather conditions)• Estimated travel time by different travelmodes• Event information such as times andschedules• Recommended speed/safety advisories• Scheduled roadway construction andmaintenance lane closures• On-street parking restrictions during theevent• Heavy vehicle restrictions• Expected delays leaving the eventIMPLEMENTATIONACTIVITIESImplementation activities mark a transitionphase between event operations planningand day-of-event activities. Therefore, thephase involves both the event planning teamand traffic management team. This phaseincludes activities key to the success of anyplanned special event, including implementationplan development, stakeholder reviewand testing exercises, and personnel resourcemanagement and training. The underlyingobjectives of these activities are to: (1) improvethe efficiency of traffic managementplan deployment and (2) increase trafficmanagement team preparedness. In turn,this creates a more responsive traffic managementteam and fluid team operation, thustranslating to better transportation systemperformance on the day-of-event.Implementation PlanAn implementation plan details the actionsrequired to put a traffic management planinto effect on the day-of-event. Its purposeis to: (1) define personnel assignments thatindicate the roles and responsibilities of individualtraffic management team personnelon the day-of-event, (2) describe a scenariobased,operations game plan at the management-level,and (3) communicate instructionsand organize personnel at the fieldlevel.It is intended for use by individualtraffic management team personnel at thecommand post and in the field. While thetraffic management plan indicates how traffic,parking, and pedestrian operations willbe managed, the implementation plan describesthe what, when, and where in termsof personnel and equipment resource deploymentneeded to execute traffic managementplan provisions.Table 3-34 presents an implementation planchecklist. All planned actions, even if notexplicitly noted in the table, must includewhat, when, and where instructions. Formulti-day or multi-venue events, traffic controlstrategies and resource deployment canbe organized through matrices for easy reference.Review and TestingReview and testing allows the traffic managementteam to identify potential limitationsof the traffic management plan prior tothe day-of-event. With stakeholder agenciesrepresenting various jurisdictions and disciplines,review and testing promotes trafficmanagement team coordination and in-3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-47

ELEMENTCommand postoperationOperationstimelineOperationsmanagementContactinformationCommunicationsTrafficmanagementteamorganizationEquipment andinfrastructuremanagementTable 3-34Implementation Plan ChecklistACTION• Indicate agencies staffing the command post in addition to the name and schedule ofagency representatives.• Specify equipment needs and times of delivery and set-up.o Computers, networking, temporary phone and modem lines, televisions and radios,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.• 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 activitiesduring 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 ofportable 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.• Specify contingency plans – indicate available plans and associated equipment/personnelresource 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.o Home phone, work phone, cell phone, pager number, fax number, e-mail address,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.• Indicate guidelines and restrictions regarding use of various radio channels or talkgroups(e.g., field-to-field communications, field-to-command post communications, non-eventcommunications).• State agency duties, responsibilities (e.g., traffic control, traffic signal operation, travelerinformation device operation, etc.), and jurisdiction.• Specify highest-ranking agency representative on the day-of-event in addition to midlevel(e.g., zone) managers.• 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 personnelassignments.• Indicate schedule and location (zone) assignment of available equipment maintenancecrews on the day-of-event.• 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 deviceson the day-of-event.3-48

ELEMENTEquipment andinfrastructuremanagement(cont’d)Locationspecifictrafficand pedestriancontrolPost-eventevaluationTable 3-34 (cont’d)Implementation Plan ChecklistACTION• Indicate protocol and personnel charged with implementing different traffic signal timingplans as needed on the day-of-event.• Indicate protocol and personnel charged with monitoring traffic surveillance equipment(e.g., CCTV).• List available maintenance personnel and equipment resources.• Indicate agency personnel (e.g., number of staff or individual name, rank, and unit/radioassignment), report date and time.• Specify schedule and route of roving service patrols.• State protocol and personnel assignments for maintaining unobstructed emergency accessroutes.• Specify task instructions, including traffic and pedestrian flow restrictions and permittedmovements (e.g., special allowances for local traffic, buses, etc.).• Summarize the location and time (close/reopen) of planned full/partial road closures encompassinga 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 permitsand event passes.• Describe components of post-event field personnel debriefing.o Time of heavy traffic and pedestrian flowo Qualitative assessment of traffic and pedestrian operations at location.o Recommendations to improve traffic and/or pedestrian flow at locationcreases stakeholder familiarity of the duties,responsibilities, and capabilities of otherstakeholders.While a traffic management plan can covermany contingencies, it cannot cover all possibilities.Review and testing can allow participantsto see how they handle variousscenarios and how varying elements can affectthe plan. The testing of the plan shouldbe considered part of the overall trainingthat is needed for traffic management teampersonnel to become familiar with the planand their role in it.Stakeholder Simulation ExercisesThe simulation exercise can test importantelements such as: (1) interagency communications,(2) deployment of personnel andequipment, and (3) information gatheringand dissemination. While stakeholders mayconduct the exercise at the venue where theplanned special event will occur, much ofthe plan will involve permanent TMCs ortemporary command posts which are in operationbefore, during, and after the event.Therefore it is important that all of the responsibleagencies and TMCs, which mayhave a role to play during the actual event,be involved with the simulation exercise.Exercises can take on two different forms:• A tabletop exercise• A full-scale simulationThe purpose of both types of exercises is to:(1) test the written assumptions in the trafficmanagement plan and (2) see what must bechanged and how the plan can be improved.No matter how thorough a traffic managementplan may be, it can not account for allcontingencies. The plan assumes participantswill follow the steps laid-out, but individualsmake mistakes and equipment may3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-49

fail. Both the tabletop and full-scale simulationallow the participants to see how theyreact to those unexpected events.In both a tabletop exercise and a full-scalesimulation, participants receive and use thewritten traffic management plan and implementationplan as the basis for their actions.Table 3-35 lists elements of a typical exercise.Table 3-35Elements of a Stakeholder SimulationExerciseELEMENT• Identify the stakeholders who will participatein the exercise.• Distribute copies of the traffic managementplan and implementation plan to participants.• Develop a script for the exercise, includingsurprise elements, which may not be addressedin the traffic management plan.• Provide a timeline for the exercise to play-out(the exercise will probably take place in anaccelerated timeframe compared to a real-lifeevent).• Identify reviewers who will watch the exerciseand take notes.• Provide time to review the exercise.• Modify the plan based on what was learnedduring the exercise.Equipment TestingA wide variety of equipment may be used tomanage travel during a planned specialevent. This includes communicationsequipment and equipment in the field, whichsupports the traffic management plan andhelps the traffic management team managethe event. Equipment that may need to betested includes:• Center to center communications• Center to field communications• Changeable message signs, both fixedand portable• Highway advisory radio• CCTVWhile testing is no guarantee that equipmentwill work as expected, it is useful in identifyingunknown problems and potential problemsbefore the event.PersonnelTraffic management plan implementation onthe day-of-event involves personnel dutiesranging from trivial tasks to responsibilitiescritical to the safety and mobility of transportationsystem users. A traffic managementteam comprised of supervisors andfield staff having experience in assigned dutiesand responsibilities represents a key tosuccessfully managing travel for plannedspecial events. Experienced personnelshould exist at all levels in the traffic managementteam hierarchy: interagency command,agency command, and field operations.However, supplementing experiencedpersonnel with temporary staff and volunteerson the day-of-event also provides advantagesthat (1) reduce personnel cost aspublic agency personnel likely require overtimewages on the day-of-event, (2) permitpublic agencies to adequately meet otherdaily staffing requirements, and (3) provideexpanded control over transportation operationsand greater convenience to event patrons.In some cases, the amount of personnel requiredto implement traffic managementplan strategies (e.g., traffic/pedestrian control,parking, surveillance) on the day-ofevent,coupled with implementation planassignments such as equipment delivery andinstallation, may exceed the staffing capabilitiesof agencies and contractors involvedin managing travel for a planned specialevent. As a result, the recruitment and trainingof temporary staff and volunteers becomesparamount to the success of day-ofeventoperations.3-50

Volunteer RecruitmentPrior to initiating volunteer recruiting efforts,event planning team and/or trafficmanagement team stakeholders must determinethe number of volunteers needed. Thisrepresents a function of the number of potentialvolunteer work assignments andnumber of available volunteer supervisors.An alternative approach to recruiting aftertraffic management plan development involves:(1) soliciting the public, throughevent advertisements, for volunteers early inthe event operations planning phase and (2)developing a volunteer contact list for laterreference as conditions warrant.Because different special event work assignmentspeak varying levels of interestamong volunteers, stakeholders should recruitadditional volunteers for certain lowinterestassignments. This avoids a potentialshortfall relative to volunteers not showingup for work on the day-of-event.Training ActivitiesTraining for volunteers and temporary staffensure these personnel: (1) understand thetraffic management plan component governingtheir assignment, (2) disseminate accurateinformation to event patrons and supervisors,and (3) understand traffic managementteam operations protocol. Traininginvolves the distribution of reference material,pre-event seminars, or both.Table 3-36 lists general volunteer trainingactivities. Since most volunteers do not possessrelevant experience in managing transportationand parking operations, trainingactivities should address all of the potentialdecision-making scenarios that volunteersmay encounter in addition to day-of-eventcommunications.Table 3-36General Volunteer Training ActivitiesACTION• Discuss traffic management team chain ofcommand.• Summarize job training and required duties.• Schedule review.• Present examples of typical and contingencyscenarios 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 andevent passes.• Discuss strategies for accommodating personswith disabilities (e.g., review disabled accessibleroutes and site facilities).• Review security guidelines.• Review guidelines for interacting with themedia.• Indicate transportation information and alternativesfor volunteer access to event venuesite.DAY-OF-EVENTACTIVITIESDay-of-event activities focus on the dailyimplementation of the traffic managementplan in addition to traffic monitoring. Thetraffic management team represents a distinctstakeholder group charged with executingthe traffic management plan and modifyingthe plan as warranted by real-time conditionson the day-of-event. Team organizationincludes agency representatives stationedat a central command post, at secondarycommand posts, at a permanent TMC,and at strategic locations in the field for trafficcontrol and observation. The trafficmanagement team generally functions undera formal management process, namely theIncident Command System, to ensure successfultraffic management plan deploymentand minimal impact to transportation systemusers. Traffic monitoring provides trafficand incident management support in addi-3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-51

tion to performance evaluation data. Timelydeployment of contingency plans developedduring the event operations planning phasedepends on the accurate collection andcommunication of real-time traffic data betweentraffic management team members.Traffic Management TeamThe traffic management team includes notonly many of those stakeholders that havebeen involved during the event operationsplanning phase, but all those who may beinvolved for the first time on the day of theevent. Table 3-37 lists typical stakeholdersinvolved in day-of-event activities.Table 3-37Traffic Management Team StakeholdersSTAKEHOLDER• Traffic operations agency• Transit agency• Law enforcement• Public safety• Event organizer• Transportation consultants• Traffic control contractors• Emergency management agencyStakeholder Roles and CoordinationA planned special event represents a sourceof non-recurring congestion where, similarto a traffic incident, stakeholders must adopta formal management process to ensure successfultraffic management plan deploymentand minimal impact to transportation systemusers. The Incident Command System canbe used to handle traffic management duringplanned special events. The ICS organizesand coordinates multi-agency response to anincident by establishing responsibilities andlines of authority. An Incident Commanderhas overall responsibility for managing theplanned special event.Command PostThe ICS will most likely be used in a multiagencycommand post. The command postwill probably be at or near the venue wherethe planned special event takes place. Dependingupon the size of the event, secondarycommand posts may exist. These secondarycommand posts may take on specificareas of responsibility, such as law enforcementor traffic control.In some instances, a permanent TMC mayserve as the primary command post. Theadvantage of using the TMC is that many ofthe communications resources and otherneeded tools are already in place.Advantages of a single command post include:(1) key agencies are represented in asingle location and (2) communicationsamong agencies are simplified.An advantage of secondary command postsis that event management can be more easilyswitched if a problem develops at the primarycommand post.Resource PlanningThe plan developed for the resources neededfor the event represent the collected bestopinion on what is needed. Resource planninginvolves the following two parts: (1)determining the scope and amount of resourcesthat will be used on the day-of-eventand (2) identifying resources in advance incase the traffic management team needsmore resources than planned to implementthe traffic management plan.The most important resource that stakeholdersmust plan for involve personnel resources.Planning considerations include:3-52

• What type and quantity of skilled personnelare needed?• Where should personnel be deployed?• What responsibilities will individual personnelhave?Managing TrafficWhile the traffic management plan and supportingimplementation plan notes howstakeholders expect to manage traffic, theactual management of traffic on the day-ofeventmay differ from what the plan callsfor. Traffic incidents, changing weatherconditions, and other unexpected events canall cause the traffic management plan to bemodestly modified or completely changed.After safety, successfully managing trafficrepresents the reason why stakeholders developedthe traffic management plan in thefirst place and that goal must remain paramount.As part of the traffic management plan, variousscenarios can be addressed from bestcase to worst case, together with likelyvariations. Having different scenarios andresponse plans specified in the traffic managementplan will help managers morequickly respond to changes. Again, notevery variation can be noted, but experiencedstaff can modify what the traffic managementplan calls for.Evaluation ActivitiesAlthough many hours have been spent creatingthe traffic management plan, the planshould remain flexible with the ability tomodify and enhance it with necessarychanges based on real-time traffic conditions.Updates can continue through thecourse of the planned special event, accountingfor new situations and unexpectedevents. Evaluation of the plan is an ongoingactivity during the event, and participantsshould contribute their insights as they witnessthe event unfolding. The traffic managementteam must be open to modificationsof what had been agreed to during the eventoperations planning and implementation activitiesphases.Table 3-38 indicates key traffic managementplan evaluation activities on the day-ofevent.Table 3-38Traffic Management Plan EvaluationActivitiesACTION• Establish briefing schedule and location(e.g., command post).• Identify ranking representative of each stakeholderagency participating in briefings.• Conduct day-of-event briefing.o Situation statuso Objectives and prioritieso Current organizationo Personnel and equipment resource assignmentso Communicationso Concerns and related issueso Recommended changes• Achieve consensus on recommendedchanges.CommunicationIn most areas of the country, interoperablecommunications, in which all agencies areable to communicate on a common radiofrequency, is not yet a reality. That beingthe case, it is necessary for a communicationstructure and protocol to be established. Asshown in Table 3-39, the structure shouldinclude the noted primary considerations.Whatever frequency is used, it is importantthat all those who must use it be able to accessthe channel and that coverage includeall areas where operations will take place.3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-53

Table 3-39Communications Structure PrimaryConsiderationsCONSIDERATION• What radio channels or frequencies will beused.• Who will use these channels.• Will a common lexicon be used for communications.Another important part of the protocol involvesusing common language on a multiagencyfrequency. An increasing number ofagencies are now using clear language protocolson their radio frequencies, and thesestandards should be followed if multipleagencies have to communicate with one another.Clear language simply says thatcommonly understood words and phrasesare used instead of codes.Interagency CommunicationTo minimize confusion and extraneous informationbeing shared among agencies, thequestion of who will use which frequenciesshould be decided during the planning process.Stakeholders should understand: (1)how they can reach other traffic managementteam members during the event, (2)which channels they will be found on, and(3) what information should be shared.Since many of the stakeholders comprisingthe traffic management team may not be accustomedto interagency coordination, theyshould understand the importance of sharinginformation with their interagency partners.Information not shared with others who areaffected could lead to difficulties managingtraffic and cause mistrust among participatingstakeholders.EquipmentThe participating agencies may normallyoperate on a wide variety of systems. VHF,UHF, and 800 MHz trunked systems areamong those in common use, and agenciescannot normally communicate from one systemto another. Before the right equipmentcan be identified, it is important for thestakeholders to understand what they wantthe communications system to do. Is it simplya means to share information, or doesreal-time coordination have to take place?Who has to operate on the channel? Wherewill they be located? Once these questionsare answered, it becomes possible to identifythe appropriate equipment to use for theevent.Interacting with the MediaThe media may find that the usual meansthey use to get traffic information are unavailableduring the planned special event.Due to security concerns, airspace near thesite may be off limits. This makes the mediamore dependent upon the agencies to providethem with updates.Unless a proactive decision is made otherwise,most agencies would not want the mediato call the command post for updates.Calls to and from the TMC may be the bestway to get information to the media. Whereverthe media are directed to call, it is importantthat the person handling those callshas the most up-to-date, accurate informationavailable. For the media to trust thissource, they must believe that this is the bestplace to get information. Since most mediawant to verify information on their own,agencies should be prepared for the media toseek out other sources. The media may alsoacquire information via cell phones fromevent patrons driving to the planned specialevent, and the media will want to verify theinformation the public provides with thetransportation agencies. If trust is lost be-3-54

tween the media and the agencies, the agenciesmay lose control of the flow of information.Traveler Information DisseminationTraveler information will have two importantaudiences during the event: (1) thosewho plan to attend and (2) those who wantto avoid the delays the event may cause. Inboth cases, traveler information tools can beused to effectively disseminate information.On the day-of-event, it must be clear whowill update traveler information devices andhow timely and accurate information willget to the officials responsible for providingthe updates. These individuals must be partof the communication chain. Assigning adedicated person to handle the updateswould be ideal. Conflicting priorities couldresult in out-of-date information being disseminatedif one person is asked to handletoo many tasks.Traffic MonitoringAgencies responsible for managing plannedspecial events require numerous types ofinformation on the current conditions of thesystem to support delivery of effective servicefor the planned special event. This requiredinformation varies widely dependingon: (1) the service being provided, (2) howoften it needs to be collected, and (3) howaccurate it needs to be.In a traffic management system, the trafficmonitoring component, or surveillancecomponent, is the process in which data iscollected in the field. This data is used tosupply information about conditions in thefield to other system components includingpersonnel located in the field on the day-ofevent.The information collected through the monitoringeffort is valuable for post-eventactivities. After the event, the informationgathered and/or observed can be used as partof the program or event evaluation. Thedata collected provides: (1) input into estimatingthe benefits of the traffic managementplan and operation and (2) input intoplanning for future planned special events.Performance Evaluation DataPerformance measures provide the basis foridentifying the location and severity of problems(such as congestion and delay), and forevaluating the effectiveness of the implementedplanned special event managementstrategies. In essence, performance measuresare used to measure how the transportationsystem, and therefore the traffic managementplan, performs with respect to theadopted goals and objectives, both for ongoingmanagement and operations of the specialevent and the evaluation of future options.In managing travel for planned specialevents, a direct relationship exists betweenthe performance measures selected and thedata needed in the performance measurementprocess. The data and informationused in decision-making must be of highquality because the remedies have to be performedimmediately. They must originatefrom reliable, consistent sources and meetthe needs of the decision makers. Moreover,the decision makers must have confidence inthe information, or it will not be used.POST-EVENTACTIVITIESPost-event activities range from informaldebriefings between agencies comprising thetraffic management team to the development3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-55

of a detailed evaluation report. Qualitativeevaluation techniques include individual debriefingsof traffic management team members,patron surveys, and public surveys.Quantitative evaluation techniques includeperforming an operational cost analysis andanalyzing performance evaluation data collectedduring the traffic monitoring process.Evaluation results, identifying needs andsuccesses, represent valuable input towardplanning for future planned special eventsand creates an iterative process.Evaluation FrameworkThe first steps in the evaluation of the trafficmanagement plan implemented for theplanned special event take place during theevent operations planning phase. Knowingahead of time that a post-event evaluationwill occur allows participants to make provisionsfor the review. In particular, thismeans collecting data during the event,which can be used as part of the reviewprocess. At a minimum, this would includedata indicating how the system performedand a log of what took place during theevent.Measures of EffectivenessMeasures of effectiveness represent quantitativemeasures that give some insight intohow effectively a unit is performing. MOEsare measures of activity that, while not reflectingperformance directly, show workloadand trends. To evaluate how well thetraffic management plan worked, some formof measurement is necessary. In addition totelling stakeholders how effective their planwas, the measurements provide transportationprofessionals the means to demonstrateto others, including the media and electedofficials, how well the plan may haveworked.There are two areas of effectiveness thatshould be measured, internal and external.Table 3-40 indicates examples of internalmeasures. Table 3-41 presents a list of externalmeasures.Table 3-40Internal Measures of EffectivenessMEASURE• Number of messages displayed on changeablemessage signs• Number of messages broadcast on highwayadvisory radio• Number of traffic incidents handled• Number of messages transmitted betweenstakeholders• Number of traffic signal timing changes• Number of times a ramp(s) was closed andtime/duration of closure(s)Table 3-41External Measures of EffectivenessMEASURE• Volume of traffic on major routes• Volume of traffic on alternate routes• Volume of traffic entering and exiting the siteand parking areas• Hours of delay• Number of event patrons and participants utilizingtransit to and from the event• Travel times• Modal split• Average vehicle occupancyApplication to Future EventsWhether the event is a one-time only happeningor an annual occurrence, what hasbeen learned through the evaluation can contributetoward proactively improving travelmanagement for all planned special eventsoccurring in a region.To be beneficial for future planned specialevents, the results of the evaluation shouldbe documented and made accessible. In thecase of a one-time only event, the evaluationmay show both general and specific insights,which can be used for other future planned3-56

special events. These could include areassuch as traveler information, interagencycommunications, and the planning processitself.For recurring events, a file providing thecumulative benefit of lessons learned willhelp sharpen the traffic management plandeveloped for each new occurrence. It isalso important to remember that with recurringevents, slight changes in circumstanceswill require modifications to the plan.Participant EvaluationParticipant evaluation includes: (1) stakeholderdebriefing, (2) patron survey, and (3)public survey.Stakeholder DebriefingAt the conclusion of the planned specialevent, a debriefing session should be held.The stakeholder debriefing is an opportunityto bring together those involved and impactedby the planned special event. In it,these individuals, and the groups they represent,can compare what the plan called forand what actually took place. They can alsoexamine areas the plan may not have addressedbut turned out to be issues in hindsight.All of those who were involved increating the traffic management plan, aswell as key people who played a role duringthe event itself, should be present for thissession. This includes stakeholders formingthe event planning team and traffic managementteam. Table 3-42 lists elements ofa stakeholder debriefing.Patron SurveyAlthough the goal is to keep traffic movingon all of the transportation facilities, the patronsare the ultimate customers of everyoneinvolved in the traffic management of theplanned special event. It is largely for theirbenefit the traffic management plan was createdin the first place, and they are the oneslikely to suffer the greatest consequences ifthe plan does not work. Therefore, theviewpoint of event patrons is needed if acredible evaluation of the plan is to be done.Table 3-42Elements of a Stakeholder DebriefingELEMENT• Introductions of individuals and the roles theyplayed (if not obvious)• Explanation that the debriefing is not designedto find blame for anything which may havegone wrong, but to identify areas of improvementfor future planned special events• Distribution of a chronology of the specialevent, preferably one which melds individualagencies’ own chronologies• Review of the timeline of events• Discussion of other areas of concern• Next steps to incorporate lessons learnedSample questions for possible inclusion in apatron survey include:• Were you aware of any special travelinformation before the event?• Did you find information provided enrouteto the event (e.g., via signs, radio)helpful?• Did you experience any unexpectedproblems approaching the venue?• Do you have any suggestions or othercomments you wish to offer?Public SurveyThe public survey takes in a wider audiencethan the patrons. This includes those whomay have been impacted by the plannedspecial event even though they did not attendthe event. Since this is a larger andmore diverse group of stakeholders, it maybe more difficult to identify and surveythem.3EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW3-57

Sample questions for possible inclusion inpublic survey include:• Were you aware of the event before ittook place?• If you were aware of the event beforehand,would you have altered your plansbased on that information?• Did you change your plans or scheduleas a result of the event?• How would you evaluate the effectivenessof traffic management efforts forthis event (poor, good, excellent)?• Do you have any additional comments orsuggestions based on your experience?Post-Event DebriefingA post-event debriefing should be held toreview what took place. The purpose of thedebriefing is to: (1) examine what tookplace, (2) compare it to what was expectedto happen, (3) identify what worked well,and (4) determine areas of improvement forfuture planned special events.It is important to remember that the posteventdebriefing is not designed to be a timeto blame individuals or agencies for whattook place during the event.Table 3-43 lists the broad topic areas thatshould be covered in the post-event debriefing.Table 3-43Post-Event Debriefing MeetingAgenda TopicsTOPIC AREA• Purpose of meeting• The planning process• Interagency communications• Traffic management in and around the venue• Traffic management outside of the event site• Traveler information, including media• Lessons learnedThe purpose of the post-event debriefing isnot to just identify what could have beendone better but to note what was successful.The successes and lessons learned must bechronicled so that those stakeholders whoare responsible for planning the nextplanned special event will be able to tap thewisdom of those who have done this before.Post-Event ReportTable 3-44 presents an outline of a typicalpost-event report.Table 3-44Outline of Post-Event ReportREPORT ORGANIZATION• Outline report topics.• Document products of the event operationsplanning phase.• Identify key successes.• Present lessons learned.• Identify improvements for future events.• Configure to serve as a working document forfuture special event planning.• Review chronologically what took place.• Summarize both positive and negative aspects.• Include all stakeholder viewpoints.OPERATIONAL COST ANALYSIS• Examine operational costs.• Include staffing, overtime, and equipment foreach involved agency.• Identify potential cost savings.o Reallocation of personnelo Division of responsibilitieso Use of technology• Include total staffing, overtime, and equipmentfor all agencies.QUALITATIVE EVALUATION• Include survey of stakeholders.• Include survey of event patrons.• Include survey of public.QUANTITATIVE EVALUATION• Provide numerical picture of the event.o Costso Hours savedo Traffic incidents handledo Passengers carried on various modes.• Present cost/benefit analysis.3-58

Since the process of handling the plannedspecial event follows a timeline, the easiestway to organize the report may involve reviewingwhat took place chronologically.An alternative method of organizing the reportconcerns dividing it by subject areassuch as traffic management, traveler information,command center operation, andcommunications.The report should summarize both positiveand negative aspects. Remember, this is notdesigned to be a public relations piece topromote the handling of the planned specialevent but a working document to assist futurespecial event planning.3OVERVIEWDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGEVENT PROFILEPOST-EVENT ACTIVITIES3-59

THIS PAGE LEFT BLANK3-60

CHAPTER FOURREGIONAL AND LOCALCOORDINATION4OVERVIEWFigure 4-1Closed-Circuit Television Camera on a Stadium Access RoadDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPURPOSEThis chapter covers the first of five phasesof managing travel for planned specialevents. Program planning for planned specialevents involves activities unrelated to aspecific event. This level of advance planninginvolves the participation and coordinationof stakeholders having an oversight rolein addition to agencies directly responsiblefor event operations planning. Products ofprogram planning include establishing newinstitutional frameworks, policies, and legislationto monitor, regulate, and evaluate futureplanned special events. Stakeholdersutilize program planning initiatives to moreefficiently and effectively complete eventoperations planning, implementation activities,day-of-event activities, and post-eventactivities for individual, future planned specialevents. In turn, post-event activities(e.g., participant evaluation, stakeholder debriefingmeeting, evaluation report) performedfor specific special events providevaluable input for on-going program planningactivities in a region or jurisdiction.This chapter presents key elements of programplanning on a regional level and locallevel that facilitate improved planning andmanagement of travel for future plannedspecial events affecting multiple jurisdic-POST-EVENT ACTIVITIESEVENT PROFILE4-1

tions or a single municipality, respectively.It also describes strategic infrastructuresupport considerations for improved trafficmanagement and dissemination of travelerinformation. The occurrence of major orrecurring planned special events often serveas a platform for stakeholders to assess newservices and infrastructure proposed for asingle or series of special events in the contextof supporting: (1) all special plannedspecial events in a region and (2) day-to-daytransportation system operations.INTRODUCTIONThis chapter presents program planning activitiesconducted for future planned specialevents. These activities include the development,by oversight team stakeholders, ofpolicies, programs, and regulations that collectivelycomprise a special event programfor managing all planned special events in aregion. Program planning for regionalplanned special events requires an institutionalframework for generating and managingsuccessful programs and initiatives.Some key topics and initiatives addressed inthis section include:• Role of oversight stakeholders, including(1) how their involvement is coordinated,(2) what are the programs and initiativesthat facilitate the planning andoperation of planned special events, and(3) how special events planning is integratedwith other ongoing transportationprograms.• Support necessary from a policy perspective.On a policy level, interagencyagreements permit those involved towork together. At times, legislation maybe needed to allow agencies to go beyondtheir current activities into areasnot currently permitted legally.• Regional planned special events programs.In many instances, the impact ofplanned special events will extend beyondthe jurisdiction of a single agency.In this section, the key elements of regionalplanned special events programswill be identified, the scope and benefitsof such programs will be noted, andstakeholder organization will be explained.Also covered in this section ishow such programs are developed, andjust as important, sustained. Servicesand initiatives that go into regionalplanned special events management willbe explained and the institutional issues,likely to be encountered, will be noted.• Government agency permitting andregulation framework. The permittingprocess can identify many of the basicelements of the special event such as itstiming, location and expected number ofevent patrons. Through a carefully constructedpermitting process, transportationand public safety agencies canachieve a better sense of what resourcesthese stakeholders need to handle theevent. This section will provide anoverview of the permit process, what theprocess includes, the components of adetailed application, and the associatedrequirements including recovery of publicstakeholder expenses.• Infrastructure support. Technology canbe used for a variety of purposes, includingcommunication among stakeholdersand to the public in addition to transportationsystem management and monitoringduring events. Paying for these activitiesis covered in the subsection onfunding sources.REGIONAL LEVELInstitutional FrameworkStakeholder Roles and Coordination4-2

Program planning for regional planned specialevents concerns proactively improvingtravel management for all planned specialevents in a region. This necessitates the involvementand coordination of stakeholdersrepresenting multiple jurisdictions. At theprogram planning level, the stakeholdersinclude:• Those agencies directly involved inplanning and day-of-event travel managementfor special events. These includelaw enforcement agencies, transportationdepartments, transit providers,and regional organizations.• Others who typically are not involved intransportation management, such as theevent organizers and elected officialsserving an oversight role.• Typically, mid-to-upper level agencyadministrators that collectively form theplanned special events oversight team.The FHWA publication, Regional TransportationOperations Collaboration and Coordination,addresses how regional coordinationcan take place during incidents andemergencies. (1) While unplanned events arenot specifically targeted in the publication,the same basic elements can be applied toplanned special events. Figure 4-2 indicatesfive major elements of a framework for regionalcollaboration and coordination. Thebalance of this section notes how each of theelements fits into regional coordination forplanned special events. The five-step processdescribed below is not instituted whenan incident or emergency takes place, but isa way of doing business that facilitates regionalcoordination when an event occurs.Step One: Identify the Stakeholders. Whichagencies and organizations will have a rolein managing events? Which agencies havean oversight role? Depending on the location,there may be multiple states or severalmetropolitan planning organizations (MPOs)that have an oversight role.Figure 4-2Major Elements of a Framework forRegional Collaboration and Coordination (1)As these questions are answered, a wideningcircle of stakeholders will be identified. Asthey are listed, their roles and responsibilitieswill be noted. Since not all stakeholderswill have the same level of participation,their involvement in the planning processcan also be assessed.Step Two: Identify a Lead Agency. While acollaborative process is ideal in dealing witha planned special event, there is still a needto identify a lead agency that will have overallresponsibility for the group’s work. Inmany instances, no one agency will have aclear leadership role for program planning.A possible way to pick a leader without offendingother lead agencies is to use cochairsrepresenting different disciplines orgeographic areas. Leadership can also rotateto assure that all key players have an opportunityfor a leadership role.While the lead agency oversees the entireprocess, it can delegate elements of the plan4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-3

events and annual fairs, or major events suchas the Olympic Games or the Super Bowl,less prominent events may not gain noticeuntil just before the event. Having a programin place to identify special events requiringplanning well in advance is beneficial.This initiative could take severalforms. One example is regularly scheduledmeetings where upcoming events are notedand discussed among regional agencies.Identification of potential problems wouldalert all involved to the event and allowagencies to decide if multi-agency planningneeds to take place. Such meetings could beheld specifically for this purpose, or theycould be incorporated as part of gatheringsheld for other purposes.The process of regional coordination andcollaboration leads to the products of coordination.These products include a regionalconcept of operations, baseline performancedata, current performance information, andoperating plans and procedures that informregional entities (public and private sector)about how the regional transportation systemmust operate over time (includingplanned improvements).Integration with Other Transportation ProgramsPlanned special events are just one exampleof transportation activities requiring multiagencycoordination. Special events planningcould be held in conjunction with othermulti-agency efforts such as constructioncoordination, incident management planning,and wireless communications coordination.These activities bring together most,if not all, of the key regional transportationand public safety agencies and, in turn, allowthem to discuss special events whilethey are already together. By expanding theagenda of such meetings to include initialspecial events planning, agencies are givenone more reason to attend. Also, meetingfatigue is limited by not having stakeholdersattend separate meetings focused only onspecial events.For some smaller special events, these regularlyscheduled meetings may be sufficientto alert affected stakeholders and to do aminimal amount of planning. For largerspecial events, requiring more detailedpreparation and coordination, separate meetingsshould be considered. This will allowspecialists to participate where necessaryand will allow the original meeting to notlose its focus on a wider agenda. The regularlyscheduled meetings can also be a placewhere updates of the more detailed plan arepresented.Policy SupportInteragency AgreementsIn most instances, transportation and lawenforcement agencies have no prohibitionsfrom coordinating efforts with other agencies,especially for events expected to havean impact on that agency. However, thereare instances where interagency agreementsare helpful, or even necessary, for multiagencycooperation.While interagency agreements will varybased on state law and the culture of theagencies, there are some common issuesthey can address.One issue would be areas of responsibility.State police, state DOT and toll agenciescould each be given broad areas of responsibilitythrough an interagency agreement. Byspelling out these responsibilities ahead oftime, turf issues can be minimized and thesame ground does not have to be coveredeach time the agencies gather to plan a specialevent.4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-5

Funding issues can also be addressed in interagencyagreements. If it is known aheadof time who will be paying for various aspectsof the effort, confusion will be reducedand participation encouraged. In some instances,the agreements could specify that anon-public agency, such as the event organizer,is responsible for paying for certainparts of the planning and coordination effort.LegislationLegislation provides the legal authority for agovernment agency to take certain actions.In many instances, activities involved inspecial events planning have already beenaddressed by legislation. Examples includelaw enforcement responsibilities for the statepatrol on an interstate highway leading tothe event venue or the state department oftransportation being responsible for operationof a transportation management center(TMC) in the area of the event. However,there may be special circumstances not addressedin current legislation.Examples where special legislation may beneeded could include permitting agencies tooperate outside their current jurisdiction ortaking on activities they have not been givenspecific authority to undertake.Some important considerations in establishinglegislation during the program planningphase include:• Since creating and passing legislation isnormally a lengthy process, it is importantthat these needs are identified earlyso the process can be completed beforethe new law is needed.• In many instances, a request for legislationhas to go through many steps withinan agency before it is even presented tolawmakers. At a minimum, agencycounsel and executive managementneeds to be involved. Since these individualstypically would not be involvedin special events planning where theseneeds are first identified, it is also importantthat procedures be in place to beginthe legislative process.• Most agencies already have proceduresin place to bring legislative needs to theattention of lawmakers, but it is importantthat those who first identify theseneeds know what those procedures areand how to get the process started.Regional Planned Special EventsProgramKey ElementsA regional planned special events programis an ongoing process designed to address aregion’s needs for managing special events.It is not a program put in place to address aspecific special event, although a specificevent may trigger the formation of such aprogram.The program involves those agencies thathave a role in managing planned specialevents as well as those agencies that may bein an oversight or funding role.The program will put in place the frameworkfor handling regional planned specialevents including:• A template for groups created to dealwith specific special events.• Identification of funding to support suchplanning.• Identification of infrastructure improvementneeds in the region to better managespecial events.All of these elements used to implement aregional special events program can be con-4-6

sidered the resources. These resources willvary depending on what is available in theregion and to the participants.Scope and BenefitsThe scope of such a program should focuson planned special events of regional significance.If an event can be wholly managedwithin and by a single agency or jurisdiction(e.g., through a planned special eventpermit program), then there is no need forthe regional plan to come into effect.However, those events that reach beyond asingle agency or jurisdiction would be addressedby this program. Regional eventsmay vary in size. For example, a paradethrough two towns would have limited regionalimpact and might require only minimalcoordination, but a mega-event, such asthe Olympics, would involve multiple regionsand a large number of agencies.Key benefits of a regional planned specialevent program include:• The primary benefit to the creation andmaintenance of such a program is that itestablishes a mechanism for agencies towork together before they are forced towork together as the result of an impendingevent.• By early identification of funding opportunities,agencies can address monetaryneeds prior to the event. Therefore,when an event is proposed, stakeholderscan focus on planning and not be concernedwith funding the planning.• Another benefit is that by early identificationof infrastructure improvements,there is a higher likelihood that the improvementscan be put in place beforethey are needed. Noting what improvementsare needed just before the eventmay mean they will not be availablegiven the lead time needed to make theimprovements.• Legislative and policy needs will also beidentified through this program. As withinfrastructure improvements, this will allowthese needs to be addressed prior totheir being required.• An intangible benefit accruing from aregional planned special events programis the development of relationships thatwill extend to other operational areas.• Better communication and cooperation islikely and will help in areas such as incidentmanagement and construction coordination.It is important that performance measures beplanned: (1) to note the performance benefitsof the regional planned special eventsprogram and (2) to demonstrate the differencesit has made to mobility and coordinationwithin the region. Since the goals andobjectives of the program are part of a collaborativeprocess, what is measured shouldalso be agreed to by the participants.Stakeholder OrganizationThe stakeholders in a regional program suchas this will vary from region to region. Table4-1 lists organizations that should beconsidered part of the program. Leadershipof the program will vary by region, but theagencies most likely to take the lead includestate DOTs, state law enforcement agencies,and MPOs.Program Development and SustainmentPerhaps the hardest step in the developmentof the program is the first step, creation ofthe program. A champion of the idea, whois willing to go through the difficulties inestablishing the program, is very helpful.This person can reach out to those people inleadership positions who will support the4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-7

program and assign people within their organizationto work on its creation. Thechampion will also shepherd the programthrough the red tape, agency mazes, and obstaclesany significant new idea is sure toface.Table 4-1Regional Program StakeholderOrganizationsSTAKEHOLDER ORGANIZATIONS• State Department of Transportation• Metropolitan Planning Organization• State police/patrol• Toll agencies• Mass transit agencies• Municipal governments and police departments• County governments and police departments• Owners of large venues (e.g., arenas, stadiums,universities)Ideally, agencies should assign peoplewithin their organization who support theconcept and who can speak on behalf oftheir agency when decisions need to bemade. These people should have a strongcommitment to the program and be willingto attend meetings and take follow-up actionsidentified at these meetings.Potential funding agencies should be a partof the program from the start. They canprovide guidance on where funding is availableand the steps that need to be taken toobtain it. By being involved at the beginning,the representative from the fundingagency can guide the group in what theymust do and help avoid situations whereearly decisions have to be adjusted to meetneeds that are later identified.The sustainment of the program will be due,in part, to the support of those who participate.Open lines of communication shouldkeep all stakeholders and interested observersinformed of what is being done as wellas problems that may be encountered. Whatis needed is not someone who only sees thegood, but someone who can make a realisticassessment of where the challenges lie andhow to overcome them.While what is described in this section involvesvarying levels of involvement, a regionjust starting to initiate program planningfor regional planned special eventsshould not be intimidated by what may berequired before they take their first steps.As a starting point, even before high-levelsupport is obtained or funding is identified,first steps can be taken on an informal basisamong operations level staff to share informationand to use resources which are alreadyavailable, such as highway advisoryradio (HAR), changeable message signs(CMSs), and interagency communicationschannels. Often it is these first, informalsteps that demonstrate the value of regionalcoordination and lead to more formal support.Services and InitiativesThe customers for this group are the eventplanning team and traffic management teamcharged with making planned special eventsrun smoothly from a transportation perspective.The services they provide should bedesigned to make special event operationsrun well. While the regional planned specialevents program stakeholder group will identifyearly action steps and other needs, it isimportant that they seek the input of operationspersonnel as they define the servicesthey will provide.The very creation of the group provides animportant service: (1) a forum for informationto be shared and (2) needs to be identified.Other services the program will provideare those noted earlier:4-8

• Identification of funding sources.• Funding of the program itself.• Identification of needed infrastructureimprovements.By handling these issues, the program willallow operations staff to focus on specificplans and leave some of these other concernsto the group.Institutional IssuesA regional planned special events programwill face some of the same institutional issuesfaced by other multi-agency programs.To assure the success of the program, thefollowing two institutional issues should behandled at the start of the process:• Control and leadership issues.• Need for buy-in from participating agencies.The program needs to be flexible enough todeal with changing conditions. The structureestablished may not always be the idealone for every event. Agencies should becomfortable dealing with the ambiguity thatcomes with new situations and be able toadjust to the situation presented.The flexibility also affects budgeting. Whileexpenditures need to be allocated, a reallocationwill likely be needed at times to addressnew concerns and needs.While a core group will participate in runningthe program, it may be necessary fromtime to time to bring in new organizations.The program should anticipate expansion sothat it does not become an issue and can easilybe integrated. While institutional issuesamong participating agencies may be a problemat the start, there exists danger of theprogram itself becoming an institution andpresenting its own set of issues.Many institutional issues can best be handledby those who participate in the regionalplanned special events program. The relationshipsestablished by committee memberscan be extremely helpful in overcoming encounteredproblems. As personal relationshipsdevelop among the members, institutionalbarriers become less significant andeasier to deal with.A regional committee on planned specialevents should not see their task as a onetimeeffort. Even without a specific eventon the horizon, the group should work tomaintain the relationships developed andadjust the planning process so that it remainsfresh. This could be encouraged throughregular meetings in which the group looks atupcoming special events that might requireregional coordination or by expanding therole of the group so they can address othertransportation management issues inbetweenspecial events. This could includeareas such as roadway construction coordinationand incident management planning.Some regions have even used groups such asthis to provide better regional coordinationfor non-events such as road weather managementor recreational traffic management(e.g., reach the beach, etc.).While many of the issues addressed in thissection look at planning for special eventson both a short-term and medium-term basis,agencies also should consider long-termplanning (10-20 years) on how they wish tohandle special events. This long-term planningcan address areas such as: (1) majorinfrastructure improvements, (2) creation ofnew organizations that may be needed, or(3) long-term financial and legislative needsto address these improvements. While operationslevel people can help identify theseneeds, the development of long-term plansalso will require the involvement of plannersand executive staff, along with legislators4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-9

and their staffs. An MPO can also be expectedto play a major role in meeting theselong-term needs since they will approveFederal funding and will be able to viewthese needs in the context of all transportationneeds for the region.Relationship to FHWA TrafficIncident ManagementSelf-Assessment GuideThe FHWA maintains a Traffic IncidentManagement (TIM) Self-Assessment Guideintended for use by state and regional TIMprogram managers to assess their achievementof a successful multi-agency programto manage traffic incidents effectively andsafely. (2) Managers may also utilize the toolto evaluate gaps and needs in existing multiagencyregional and statewide efforts tomitigate congestion and safety impactscaused by traffic incidents. The TIM Self-Assessment tool consists of a series of questionsdesigned to allow those with trafficincident management responsibilities to ratetheir performance, by assigning a scoreranging from 0 (no progress) to 4 (outstandingefforts), in specific organizationaland procedural categories.Planned special events often represent a majorelement of a traffic incident managementor freeway management and operations program.Such programs may spawn a committeeon planned special events for the purposeof managing all planned special events inthe program’s region. The TIM Self-Assessment tool contains a TIM administrativeteam assessment question on plannedspecial events. Question 4.1.2.5 states: Doesthe assessed TIM program conduct planningfor “special events” including sportingevents/concerts/conventions, etc.? This toolalso includes several assessment questionsapplicable to measuring a program’s progressregarding the advance planning andmanagement of travel for planned specialevents.Table 4-2 lists pertinent assessment questionscategorized by the five defined phasesof managing travel for planned specialevents. This technical reference providesguidance on the topics identified in the assessmentquestions from the perspective ofplanned special event planning, operations,and evaluation.LOCAL LEVELOverview of Planned Special EventPermittingThe development of a formal planned specialevent permit program marks a key programplanning initiative to facilitate stakeholdercoordination, compliance with communityneeds and requirements, and efficientevent operations planning. Backed byguidelines and regulations specified in municipalordinances, the program outlines adefined planning framework and schedulefor event organizers and participating reviewagencies to follow. It represents an agreementbetween participating public agencies(e.g., transportation, law enforcement, publicsafety, etc.) to ensure, through planningactivities or review, that all planned specialevents meet a set of mutually agreed uponrequirements for day-of-event travel management.A municipal permit representsapproval, or agreement between a jurisdictionand event organizer, to operate aplanned special event, and it includes provisionsoutside of travel management. LarimerCounty, WY defines the purpose of aplanned special event permit as follows:4-10

PHASEProgramPlanningEventOperationsPlanningImplementationActivitiesDay-of-EventActivitiesPost-EventActivitiesTable 4-2Traffic Incident Management Program Assessment Questions Relative toManaging Planned Special EventsASSESSMENT QUESTIONDoes your program:• Have formal interagency agreements on operational and administrative procedures andpolicies?• Have multi-agency, multi-year strategic plans detailing specific programmatic activitiesto be accomplished with appropriate budget and personnel needs identified?• Have field-level input into the strategic plans ensuring that the plans will be workable bythose 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 measureprogram 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?• Have response equipment pre-staged for timely response?• Utilize traffic control procedures in compliance with the MUTCD?• 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?Does your program:• Conduct training through simulation or “in-field” exercises?• Train all responders in traffic control procedures?Does your program:• Utilize traffic control procedures for the end of the traffic queue?• Utilize the Incident Command System?• Have a two-way interagency voice communications system allowing for directcommunications 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:• Conduct post-incident debriefings?• Conduct periodic review of whether or not progress is being made to achieve performancetargets?The purpose of the special event permit is toinsure that any changes, restrictions, or adaptations,resulting from such an event aremanaged in a safe, prudent, and legal mannerin order to protect the health, safety,welfare, and convenience of the travelingpublic and citizens of Larimer County.Special event permits apply to a single jurisdiction,and numerous cities and counties,encompassing metropolitan, urban, and/or4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-11

ural areas, across the Nation maintain aspecial event permit program. In contrast, astate DOT permit targets the satisfactorymaintenance and protection of traffic onstate highways necessitating partial or fullclosure due to a proposed street use event.In most cases, state DOTs encourage eventorganizers to use county roads or localstreets whenever possible.Some important considerations and applicationsof planned special event permittinginclude:• Permitting proves particularly effectivefor less frequent continuous events,street use events, and rural events occurringat a temporary venue not having aknown spectator capacity. These eventsplace an emphasis on advance planningand public outreach to mitigate trafficoperations deficiencies and communityimpacts.• Jurisdictions may not require a permitfor special events held at permanentvenues, such as stadiums, arenas, andamphitheaters.• Permitting allows jurisdictions the opportunityto engage the event organizerat the beginning of the event operationsphase.• Public stakeholders can size-up the eventoperations characteristics of a proposedevent in order to schedule adequate personneland equipment resources to accommodatethe event. Resources mayinclude traffic control, security, andmaintenance.• From the event organizer’s perspective,a special event permit application andassociated regulations outlines a generalapproach toward successfully managingtravel for the event, facilitates coordinationwith appropriate stakeholders, andgauges resource requirements on theday-of-event.The balance of this section on permittingwill describe special event application components,review processes, guidelines, andregulations specific to managing travel for aplanned special event. The section will includenumerous references to special eventpermitting in city and county jurisdictions.Permit ProcessInitiation of the permit process for a specificplanned special event begins with the submissionof a completed special event permitapplication by the event organizer. Thepermit application represents a formal proposalby the organizer to stage a plannedspecial event. In some cases, particularlythose where the event organizer requests assistancefrom the jurisdiction in locating asuitable venue location or street use eventroute, the event organizer and pertinent publicstakeholders may interact prior to applicationsubmission to review the proposedevent and permit process.Table 4-3 lists public stakeholders that mayadminister special event permit applicationsand issue permits. In small and mediumsizedlocales, law enforcement, transportationdepartment, or city/town manager’s officecommonly processes a special event applicationfor review internally and by otheragencies in the jurisdiction. Some metropolitanjurisdictions have an office of specialevents that serves in a similar capacity. Alocal district partnership may assume a leadrole in the permit process for events proposedin commercial areas. Jurisdictionsissue an event permit based either on:• A single official, such as a police chief,fire chief, director of public works, orelected official, rendering a final decisionbased on reviewer(s) input.• A multi-agency application approvalwhere each agency signs off on the4-12

permit when the event organizer meetsspecific agency prerequisites.Table 4-3Stakeholders Governing Permit ApplicationsAPPLICATION ADMINISTRATION• Local law enforcement• Local transportation department• Fire department• City/town manager’s office• City/town clerk• Community development department• Office of special events• Local district partnership• Public works department• Parks and recreation department• Bureau of licenses• Office of finance• Risk management officePERMIT APPROVAL• Police chief• Fire chief• Transportation department director• Director of public works• Multi-agency approval (e.g., public works,law enforcement, and city manager).• City manager• Community development director• Street and sidewalk use coordinator of thebureau of licenses• Local district partnership• City/town council• County board of commissioners• Local planning commissionFigure 4-3 presents a flowchart summarizingkey event organizer and public agency actionsthroughout the special event permitprocess, from submitting a permit applicationto conducting the proposed event.Agencies administering a permit applicationmay assign a staff person, representing thejurisdiction’s event coordinator, who willassist the event organizer throughout thepermit process. Table 4-4 indicates permitapplication submission deadlines for severalcities and counties. Application deadlinessignificantly influence the scope of activitiesperformed during the permit process. Toeffect a comprehensive permit applicationreview, including stakeholder meetings andpublic outreach, jurisdictions should mandatepermit application deadlines at least 60days prior to a large-scale planned specialevent. A shorter deadline is warranted whenjurisdictions, for example Wichita, KS (30day deadline), require event organizers toarrange all details with individual involvedagencies prior to submitting a permit applicationfor approval.The special event permit process serves toscope, schedule, and direct event operationsplanning activities for proposed events.This reduces unnecessary delay in facilitatingstakeholder coordination, developingplanning deliverables (e.g., traffic managementplan, etc.), reviewing mitigation strategies,and mobilizing personnel and equipmentresources required to stage a particularplanned special event. Practitioners mayexpand and contract the process in order tobest fit: (1) the area type and involvedstakeholders, (2) the special guidelines andregulations unique to a particular jurisdiction,(3) the operations characteristics of aparticular event, and (4) the purpose of aparticular event, such as community eventsversus commercial, for-profit events involvingevent organizers from the private sector.Chapter 2 of this handbook, under a sectionon “Impact Level,” summarizes exampledecision criteria and thresholds used to determinethe need to initiate a special eventpermit process in addition to event permitrequirements.As indicated in Figure 4-3, jurisdictionsshould conduct a preliminary review of theproposed special event date and time in additionto, if a street use event, the proposedparade or race route. Table 4-5 shows selectjurisdiction regulations prohibiting the issuanceof a permit for a special event occurringat a certain time and/or location. Aside4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-13

ReviseSubmit PermitApplicationReview EventDate and TimeApprovedReviewEvent RouteApprovedNotify BusTransit ServiceYesStreetUseEvent?NoDistributeApplication toNecessary AgenciesGainInter-jurisdictionalApprovalConduct MeetingofInvolved AgenciesReviewApplicationMaterialConduct MeetingwithEvent OrganizerAdditionalRequirements?YesReviseApplicationNoDeliver PublicPresentationCommentsAppealDecisionDeniedIssue PermitDetermine Staffingand EquipmentConfirm PersonnelResourcesSecureParking AreasKEY:Event OrganizerActionPublic AgencyActionNotifyEmergency ServicesInform AffectedProperty OwnersDisseminatePublic AdvertisementConduct Pre-EventWalk-ThroughPrepareImplementation PlanPrepareOperations DetailConduct EventFigure 4-3Planned Special Event Permit Process4-14

Table 4-4Planned Special Event Permit ApplicationSubmission DeadlineSUBMISSIONLOCATIONDEADLINEPRIOR TO EVENTMinneapolis, MN5 days for parade;60 days for raceLas Vegas, NV14 daysStamford, CT14 daysFort Collins, CO20 days minimum;1 year maximumJackson, CA20 daysClarksville, TN30 daysCoos Bay, OR30 daysHot Springs, AR30 daysLancaster, PA30 daysWest Des Moines, IA 30 daysWichita, KS30 daysCity and County ofHonolulu, HI40 days minimum;9 months maximumBowling Green, KY45 daysReno, NV45 days minimum;1 year maximumLarimer County, WY40 days;50 days for road closureLouisville, KY60 daysCity and County ofDenver, CO60 daysKane County, IL60 daysMenlo Park, CA60 daysMiami Beach, FL60 daysMilwaukee, WI60 daysYpsilanti, MI60 daysMontgomery County,MD2 monthsVirginia Beach, VA 60-90 daysRedmond, WA90 daysEvanston, IL90 daysAurora, IL120 daysfrom regulations designed to avoid conflictswith commuter traffic, the possibility ofstaging multiple events concurrently maycause significant travel impacts and logisticsproblems. Law enforcement, traffic engineering,and fire department agencies mayconduct a preliminary review of a proposedevent route and grant approval contingent onrequired traffic control measures. This stepshould occur prior to distributing a street useevent application to all necessary agencieswith preliminary approval rendered at least30 days prior to the event. To expedite thisstep, San Luis Obispo, CA, for example,maintains two standard parade routes.The special event permit application reviewphase involves all agencies within a jurisdictionhaving authority on an entity impactedby the proposed event, and certain agenciesmay require event organizers to meet prerequisitesand/or obtain supplemental permits.Transportation approvals includestreet occupancy permits, parking variances,and requests for traffic control services.Some key stakeholder considerations duringthe permit application review phase include:• Involved agencies may conduct a meetingto coordinate their review and eventplanning considerations.• For large-scale events, jurisdictions andassociated review agencies may meetwith the event organizer to discuss additionalrequirements and contingencies.• Agencies should complete review of aspecial event permit application withinabout two weeks of receipt to allow theevent organizer sufficient time to revisethe application (e.g., site plan, parkingplan, traffic control plan, etc.).• To ensure full mitigation of potentiallocal traffic and community impacts, jurisdictions,such as Miami Beach, FLand San Diego, CA (see Appendix A)for example, may require event organizersto present the proposed special eventmanagement plan to neighborhood andbusiness associations and the generalpublic for review and recommendation.• The event organizer should deliver thepublic presentation early in the permitprocess, at least 30 days prior to the4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-15

LOCATIONCity andCounty ofHonolulu, HILouisville,KYMiamiBeach, FLMinneapolis,MNEVENTCATEGORYStreet useeventTable 4-5Planned Special Event Permit RestrictionsRESTRICTION• No parade or activity permitted between the hours of 5:30 a.m. to 8:30 a.m.and 3:30 p.m. and 6:00 p.m., Monday through Friday, except holidays.• In the Central Business District, a parade or activity permitted only onweekends and holidays or after 6:00 p.m. on weekdays.• No parade or activity permitted to use or travel the entire distance on HotelStreet, from Richards Street to North King Street.• Only one parade or activity permitted on any given day on any street.All events • Permit holders shall open the event venue to patrons at least one hourprior to the event.All events • No special event permitted if it interferes with a previously scheduledactivity or repair work scheduled for a site.• No event permitted if it interferes with any other scheduled event. TheCity Manager may take into account simultaneously occurring events inthe region or other factors that would impact the city’s capability to hostan event before approving an event.• No permit issued for more than four consecutive days or fivenon-consecutive days during the course of a calendar year.Street useevent• No permit granted for a parade/race to be conducted within the downtownarea between the hours of 7:00 a.m. and 9:00 a.m. or 4:00 p.m. and 6:00p.m. on any day which is not Saturday, Sunday, or a legal holiday.• No permit granted for bicycle racing, foot racing, race walking, wheelchairracing, rollerblading, marathons, and jogging events unless the activity is totake 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 incorporatedinto application revisions.Jurisdictions typically issue a special eventpermit approximately 7 to 15 days prior tothe event. The lead time allows the eventorganizer and other stakeholders to carry outnecessary tasks under the implementationactivities phase. These tasks include determiningresource requirements and preparingan operations plan. Certain jurisdictionsmay handle, by regulation, day-of-eventtraffic control, while other jurisdictions designatepartial or all responsibility to theevent organizer. Stakeholders representingthe event traffic management team shouldconsider conducting a pre-event walkthrough,done a few days before the event topermit modifications, to review the final siteplan and traffic management plan.Table 4-6 provides a snapshot of select jurisdictionsand criteria referenced by officialswhen rendering a final decision on aspecial event permit application. Due to thechanging dynamics of planned special eventoperations, jurisdictions, particularly in metropolitanareas, may issue a special eventpermit only days in advance of the eventdate.Table 4-7 presents a list of common eventorganizer tasks performed during the specialevent permit process coupled with exampledeadlines. A common prerequisite to obtaininga local jurisdiction event permit involvesthe event organizer securing permitsfrom all jurisdictions controlling roadwaysslated for temporary full/partial closure.This represents a program planning initiativefor managing all planned special events in a4-16

LOCATIONAnaheim, CAMenlo Park,CAMinneapolis,MNRedmond,WAReno, NVWest DesMoines, IATable 4-6Planned Special Event Permit Application Decision CriteriaEVENTCATEGORYAPPROVAL CRITERIAStreet 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 orpedestrian traffic; construction/maintenance on the streets involved in theAll specialeventsStreet useeventAll specialeventsAll specialeventsAll specialeventsproposed parade route.• Day(s) of the week; time of day; number of days.• Venue distance from nearest legal residential use.• Number of people involved.• History of complaints.• Conduct of the parade/race does not substantially interrupt the safe andorderly movement of other traffic contiguous to its route or will interferewith street maintenance or other legally permitted events.• Concentration of persons, animals, and vehicles at assembly pointsof the parade/race will not unduly interfere with proper fire and policeprotection of, or ambulance service to, areas contiguous to such assemblyareas.• Conduct of such parade/race will not interfere with the movement offirefighting equipment en-route to a fire.• Parade/race is scheduled to move from its point of origin and to its pointof termination expeditiously and without unreasonable delays en-route.• Event does not disrupt traffic beyond a practical solution.• Event does not interfere with access to fire stations and fire hydrants.• Event does not cause undue hardship to surrounding businesses andresidents.• Event does not require the diversion of so many public employees thatservice is denied to other local residents.• Event will not conflict with established on-going events.• Event will not create a substantial interruption of public transportationor other traffic; conflict with development in the right-of-way; closemajor streets during peak commuter hours.• Event will not cause a diversion of such a great number of policeemployees that police protection of the remainder of the city is injeopardy.• Event will not create undue interference with emergency vehicles.• Availability of sufficient traffic controllers, crowd monitors, safetyequipment, or insurance coverage.• Route of the event.• 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 transitvehicles, movement of authorized emergency vehicles, and schedules ofvarious construction projects.• Participant provisions including parking and dispersal routes.4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-17

Table 4-7Event Organizer Special RequirementsTASK DEADLINE SPECIFICATIONSGain interjurisdictionalapproval• 30 days before• Secure appropriate approval if temporarily closing roadways underevent. 1 the control of another jurisdiction.Notify transitservice• 1 month before event. 2 • Communicate street closure specifics for bus re-routing.Deliver publicpresentation • 30 days before event. 1 • Present special event management plan to appropriate neighborhoodassociations or local planning board for review and recommendation.ConfirmpersonnelresourcesSecure parkingareasNotify emergencyservicesInform affectedproperty ownersDisseminatepublicadvertisementPrepareimplementationplanPrepareoperations detailHire on-sitecoordinator• 21 days before event. 3 • Use private staff to patrol private parking lots (not responsibility of• Obtain written confirmation from stakeholders that sufficient trafficmanagement team personnel resources will be available on the dayof-event.on-duty law enforcement officers).• Off-duty law enforcement officers must be hired to provideVIP/dignitary escorts and to staff traffic control posts.--• Obtain written confirmation to use private parking lots (schools,churches, businesses).• 14 days before event. 3 • Inform fire departments and emergency medical service of the exactlocation, date, and time of planned road closures.• 30 days before event. 4• 14 days before event. 5 • Distribute an approved road closure notice to all property ownersadjacent to a planned road closure.• 10 days before event (14days for review). 3 • Notify property owners, residents, and businesses within 300 feet ofthe event venue.• Minimum 2 days before• Distribute parking passes and/or escort passes issued by governingevent and 7 days maximum.6 jurisdiction.• 2 days before event. 7 and parking restrictions, and a map of the street use event route.• 15 days before event. 2• Publicize the special event through the media, including newspapers,radio and/or television stations.• 7 days before event. 3 • Identify the event date and time, contact information, any traffic• Require review of announcement by public stakeholders.• 7 days before event. 3 • Summarize traffic management plan specifics.• Require plan for review by public stakeholders.• Complete before event.Day-of-eventactivities --Post-eventactivities--• Indicate traffic management team personnel assignments and dayof-eventoperations activities.• Specify radio or cellular interface between agencies comprising thetraffic management team.• Hire a public employee as an overall on-site coordinator, havingdecision-making authority, whose responsibility will be to ensurethat all services are provided, the event runs smoothly, and all governingregulations and ordinances are complied with.• Install temporary signs and traffic control devices.• Maintain an approved copy of the permit application during theentire special event.• Remove temporary signs and traffic control devices.• 2 hours after eventclose. 8• File post-event report.• Participate in post-event debriefing with public agencies, affected• 30 days after event forreport. 9 citizens, and other involved stakeholders to address issues thatarose during the event.2 Louisville, KY mandate.4 San Luis Obispo, CA mandate6 Minneapolis, MN mandate.8 Larimer County, WY and Kane County, IL mandate.Notes: 1 Miami Beach, FL mandate.3 Larimer County, WY mandate.5 Reno, NV and San Diego, CA mandate.7 Pitken County, CO mandate.9 U.S. Bureau of Land Management mandate.4-18

egion. Appendix A contains WashingtonState DOT guidelines for street use eventsconducted on state highways. (3) Key eventorganizer actions typically performed uponreceipt of an approved special event permitinclude:• Notifying emergency service agencies oftemporary road closures and access restrictions.• Informing property owners and residents,located in the immediate vicinityof the event venue, of traffic and parkingrestrictions.• Disseminating travel and parking informationto community residents, representingpotential event patrons, via mediaadvertisements.Application ComponentsAPPLICATIONCOMPONENTEvent sponsor/organizerPrimary contactand coordinatorEvent name/type of eventEvent date andtimeTable 4-8 summarizes the various items thatappear, in a questionnaire format, on a specialevent permit application. The applicationserves to communicate event operationscharacteristics to a jurisdiction, thus permittingit to impose appropriate impact mitigationrequirements and/or advise the eventorganizer to change event operation parameters.Key items include the event purposethat may signal the need to develop contingencyplans in response to possible securitythreats or demonstrations. Information regardingevent history and expected attendanceassists in achieving a more predictableevent travel forecast. The applicationshould prompt the event organizer to indicatetravel demand management initiatives,including use of carpools and other modesof travel. Appendix A contains a samplespecial event permit application from VirginiaBeach, VA.Table 4-8Planned Special Event Permit Application ComponentsSPECIFICATIONS• Organization, corporation, community group, etc. sponsoring event in addition toprofessional firm/agency contracted to produce the event.• Decision-making authority and continuously available through the day-of-event activitiesphase.• Mailing address, e-mail address, phone (day/night/cell/radio frequency), and fax.• Location on day-of-event.• Name used to advertise event.• Event date(s).• Hours of operation on each event day.• 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 purpose • Description of event.• Indication whether event differs from previous years.• Indication if event is political in nature.4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-19

Table 4-8 (cont’d.)Planned Special Event Permit Application ComponentsAPPLICATIONCOMPONENTSPECIFICATIONSEvent 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.ExpectedattendanceEventpreparationAudienceaccommodationStreet use eventroute• Attendance per day.• 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).• Set up and tear down (date and time)• Description of required activities.• Admission charge.• Parking charge.• Route to be traveled or occupied.• 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 andparking• Available emergency vehicle access.• 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.4-20

Table 4-8 (cont’d.)Planned Special Event Permit Application ComponentsAPPLICATIONCOMPONENTSPECIFICATIONSPersonnel • 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 notificationandadvertisementDismantling andclean-up• Notification of other involved jurisdictions and whether a permit has been obtained.• Use of media to advertise event (radio, television, print, Internet).• Use of a process to notify affected property owners and residents.• Restoration of roadway right-of-way and other public property.• Clean-up start and end times.4OVERVIEWTable 4-9 lists supplemental requirements toa special event permit application, requiredof the event organizer either at the time ofinitial application submission or after jurisdictionreview of the application questionnaire.Traffic flow plans that specify a streetuse event route should identify any: (1) hinderingof access by authorized emergencyvehicles, (2) conflict with bus transit routes,and (3) interference with non-event attendeeaccess to hospitals, airports, transit stations,businesses, churches, and other public buildings.Traffic control plans should address indetail the service and protection of eventpatron traffic, the accommodation of emergencyvehicles and background traffic, andthe necessary traffic control equipment andpersonnel resources. The event site plan andparking plan must provide accessible parkingand routes to the event venue. As anexample, Table 4-10 shows Miami Beach,FL special event parking and site planguidelines for compliance with the Americanswith Disabilities Act.Jurisdictions require event organizers to signa hold harmless agreement and post a certificateof insurance, typically $1 million,before issuing a special event permit. AppendixA contains a sample hold harmlessagreement from Evanston, IL.Permitting RequirementsJurisdictions maintain the following generalrequirements for planned special events: (1)event restrictions, (2) impact mitigation andtraffic control, (3) legal, and (4) funding. Asindicated in Table 4-11, the municipal codesof jurisdictions across the Nation specify awide range of requirements for managingtravel for planned special events, all ofwhich become incorporated in the specialevent permit process. The previous sectionshighlighted several requirements and associatedexamples under the first three citedcategories. With regard to traffic control,Appendix A contains a Hot Springs, ARchecklist of traffic control requirements forstreet use events using a particular citystreet. This checklist serves as a trafficmanagement and operations plan for recurringstreet use events on the cited street, thuspermitting traffic management team membersto become proficient at efficiently managingtraffic for events on the designatedroute. Appendix A also contains a detailedtraffic control resource checklist, completewith equipment specifications, used inMontgomery County, MD and special eventdirectional sign regulations maintained inMarco Island, FL.DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE4-21

Table 4-9Planned Special Event Permit Application Supplemental RequirementsAPPLICATIONCOMPONENTSPECIFICATIONSEvent site plan • Identify access points/gates, traffic circulation, lighting, and sign locations.• Show location of fencing, barriers, and/or barricades including temporary fencingthat 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 trafficcone locations.• Conform to Manual on Uniform Traffic Control Devices specifications.• Allow for a continuous, through traffic lane, typically 20 feet wide, on closed roadsfor 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 intersectionsespecially) at all intersections requiring traffic control.• Provide volunteers to monitor barricades at all intersections not requiring trafficcontrol 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 tothe 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 processingprocedures.Emergency evacuation • Evacuation routes.planNotice of event foraffected propertyowners and residentsEvent advertisingbrochure• Present event concept.• Indicate travel impacts in addition to planned parking and traffic restrictions.• Distribute to residents, businesses, schools, places of worship, and other affectedentities.• Provide event operations information (e.g., times, dates, ticket information).• Indicate travel information (e.g., directions, parking, travel incentives).4-22

Table 4-9 (cont’d.)Planned Special Event Permit Application Supplemental RequirementsAPPLICATIONSPECIFICATIONSCOMPONENTHold harmlessagreementCertificate ofInsurance• Specify that event organizer agrees to defend, indemnify, and hold a municipality,including its officers and employees, harmless from any liability or claim caused bythe event organizer failing to fulfill all obligations.• Require event organizer to obtain and name the governing municipality and its employeesas insured.• Name transportation agencies as insured.• Ranges from $500,000 to $1,000,000.4OVERVIEWTable 4-10Guidelines for Compliance with theAmericans with Disabilities Act (4)REQUIREMENT• All on-site accessible pedestrian routes fromaccessible parking to the event must beequipped with curb cuts or temporary ramps.All ramps must meet applicable codes.• Additional disabled parking must be providedand staffed. A disabled parking area must bedesignated and located near to the main entranceand accessible to pedestrian routes.Necessary signs must be provided to indicatethis parking area. An accessible shuttle maybe used for remote parking areas.• All Americans with Disabilities Act considerationsmust be identified on the site plan.Section 12200 of the California VehicleCode defines a special event monitor as aperson who has completed a traffic controlprogram approved by the California HighwayPatrol. Use of special event monitorsreduces demand on law enforcement staffneeded for security detail and highway patrol.Jurisdictions in California require thesetrained monitors, when the day-of-eventtraining program is available, during permittedspecial events. For instance, the Countyof San Diego, CA specifies the followingtraffic control requirements during plannedspecial events:Table 4-11Municipal Code Provisions on PlannedSpecial EventsPROVISION• Special event definition• Conditions for permit requirement• Permit restrictions• Content of permit application• Permit application submission and reviewdeadline• Notification of city/town officials• Notification of abutting property owners andresidents• Permit approval criteria• Event organizer duties• City/town authority to restrict parking andclose local roads• Hold harmless clause• Insurance requirements• Recovery of expenses• Procedure for appealing a denied permitDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE4-23

• Traffic control is to be provided at variouslocations, such as, narrow roadsegments, intersections, and starting orending points.• Only properly trained or certificatedpersonnel (by a training program approvedby the Commissioner of the CaliforniaHighway Patrol) are to handle thetraffic control responsibilities.• Traffic controllers shall wear orangevests and utilize a "Stop/Slow" paddle.• Advance warning signs shall be placed,well in advance of any personnel and theevent, to alert oncoming vehicles of thesupplemental traffic control and theevent.• Traffic controllers will avoid delays orback up of traffic onto primary Countyroadways such that "grid-lock" does nothappen; waits of more than two minutesare excessive and will not be allowed.• Adjacent driveways to neighboring businessesand residences will not beblocked.FundingPublic agencies recover costs incurred inproviding services during the event operationsplanning phase and resources on theday-of-event through event organizer feesand other funding mechanisms. Table 4-12lists special event permit application fees fora select number of jurisdictions across thecountry. Table 4-13 describes five differentapproaches used by jurisdictions to obtaincost reimbursement for staff and equipmentrental.After an August 2002 Grateful Dead concertattracted 35,000 spectators at an amphitheaterin rural Walworth County, WI, and eventstakeholders prepared to turn away thousandsof expected ticketless spectators,county officials passed an innovative ordinance,Recovery of Expenses Incurred forProviding Extraordinary Governmental Services.Appendix A contains a copy of thecited ordinance, Section 10-28 of the WalworthCounty Code.The social and economic benefits yielded byplanned special events, in addition to thepurpose of select events, result in jurisdictionsperiodically waiving cost reimbursementrequirements even for privately sponsoredspecial events. Table 4-14 lists criteriathat planned special events in Louisville,KY must meet for City provision of freeservices for event operation and management.INFRASTRUCTURESUPPORTTechnology ApplicationsWhile the most critical aspect of managingtravel for planned special events is the coordinationof the many stakeholders involved,technology lends an assisting hand to theeffort. Technology is fast becoming a mainstayin every aspect of transportation, fromroad maintenance and snow removal to incidentmanagement and emergency evacuation.Special event management is no differentin this regard. The variety of technologiesand their application serve to assistmanagers in both informing travelers of anupcoming event as well as monitoring andmanaging the event in real-time.Most technology applications, as they relateto travel management, fall under the categoryof Intelligent Transportation Systems(ITS). ITS is comprised of a number oftechnologies, including information processing,communications, control, and electronics.These technologies are comprised oftools that can be deployed permanently foruses other than planned special events or4-24

Table 4-12Planned Special Event Permit Application FeesLOCATION PERMIT FEE LOCATION PERMIT FEEAnaheim, CA $25 Palm Beach Gardens, FL $50 per event dayFort Collins, CO $25 Ypsilanti, MI $50-$100Lancaster, PA $25 Charlotte County, FL $87Larimer County, WY $25 Virginia Beach, VA $75-$150Louisville, KY $25 Branson, MO $100Marysville, WA $25 Clarksville, TN $100Stamford, CT $25 West Des Moines, IA $100West Palm Beach, FL $25 West Sacramento, CA $125Minneapolis, MN$25 parade;$100 + $0.50/participantfor raceMiami Beach, FL$250 application fee;$250 permit feeLincoln, NE $45 Mount Pleasant, TX $250Kane County, IL $50 Pitken County, CO $275Marco Island, FL $50Table 4-13Planned Special Event Funding MechanismsFUNDING MECHANISMCOMMENTS/EXAMPLESEvent organizer pays a depositwith permit applicationsubmission.• Applies to events necessitating road closure. Deposit is reimbursed if allroad closure requirements are fully complied with ($500 – LarimerCounty, WY)• Requires $2,500 refundable security deposit no later than 30 days inadvance (Miami Beach, FL).• Requires a $1,000 security deposit, returned if the transportationdepartment determines the roadways are in good or better condition thanbefore the event took place (Kane County, IL).• Requires a $25 deposit on each city owned traffic control device usedPublic agency sends post-eventinvoice to the event organizerfor resources used.Event organizer pays forestimated, required publicagency resources before event.A charge on each ticket sold isset to recover expenses incurredfor providing extraordinarygovernmental services.Event organizer posts aperformance bond.during an event (Golden, CO).• Allows event organizer to be charged for law enforcement, traffic engineering,and public works services.• Requires four-hour minimum charge for each public employee engagedby the event organizer (Miami Beach, FL).• Requires event organizer pre-payment or bond posting before issuing anevent permit (Anaheim, CA).• Requires event organizer to submit payment for services and equipment twoweeks before the event (Miami Beach, FL).• Requires event organizer to pay for parking meter rentals ($10 per meter/dayfor Miami Beach, FL; 50% of the standard fees in Denver, CO) andrental of public parking lots (Ypsilanti, MI requires 20% gross revenuesharing) as applicable.• Establishes Ordinance No. 232-11/02 (Walworth County, WI).• Covers post-event street cleaning and/or damages to roadway infrastructure.4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-25

Table 4-14Louisville, KY Criteria for Providing FreeServices for a Special Event (28)CRITERIA• Ability of the City to provide all or part ofrequested support services.• Extent to which the event is economically,socially, and culturally beneficial to the community.• Intended use by the sponsoring organizationof any revenue over and above expenditures.• Impact of the event (positive or negative) onnormal commercial activities.• Extent to which the event contributes towardthe promotion of tourism.deployed temporarily during the specialevent only. Table 4-15 discusses these technologiesand implementation alternatives inmore detail. Joining these technologies toour transportation system will save lives,save time, and save money. (6) In its infancy,ITS addressed incident management, butover time, it has become an application ofmanagement strategies to improve mobilityin everyday responsibilities of transportationmanagers of various modes. Mobility maybe defined as ability and knowledge to travelfrom one location to another using a multimodalapproach. ITS not only benefits thetransportation managers, but other serviceproviders such as emergency service providers(e.g., police, fire, ambulance) and supportproviders such as towing services. Inshort, ITS has become a significant enablerfor operating and managing the transportationnetwork. ITS is a tool for transportationmanagers, and as such, it augments themany non-technical activities to plan andmanage an event.At one time, ITS was characterized as technologylooking for a problem. Over theyears, transportation managers realized theneed to first identify needs and problems,and then associated solutions, usually technological,to those needs. As such, ITS applicationsare grouped into services they canprovide, or more simply as functions. In therealm of managing planned special events,there are a number of functional areas thattechnology can support. The following sectionsdescribe these functional areas ingreater detail.Traffic ManagementTraffic management is the most commonfunction associated with special event planningand management. It includes the realtimedetection, surveillance, and managementof traffic conditions. In a typical eventmanagement scenario, managers and operatorswould monitor traffic, pedestrian, andparking conditions in real-time using varioustechnologies, and modify control strategiessuch as modifying traffic signal and rampmeter timing, transit priority, opening gatesfor high occupancy vehicle (HOV) lane access,to name just a few. This function alsoforms the basis for collecting much of theinformation communicated to travelers.There are a number of specific managementstrategies that encompass traffic management:• Arterial traffic management differsconsiderably from that of the freeway.While the basics are similar – detect orsurvey, verify, respond and inform – thestrategies and tools are not. As a rule,streets do not have any available capacitycompared to the using of a freewayshoulder, for instance. Parking can beremoved, but there is an economic andsocial price to pay to remove parking.Two-way streets can be made to operatein one direction, but this, too, can comeat significant cost.Successful arterial traffic managementresults from utilizing every bit of roadwaycapacity and adapting to changingtraffic conditions. Typically, streets are4-26

Table 4-15Planned Special Event Technology ApplicationsITEM FUNCTIONS DEPLOYMENT APPLICATION BENEFITDetectorsClosed-CircuitTelevision(CCTV)TransportationManagementCenter (TMC)TrafficManagementTrafficManagementTraffic andTransportationManagementPermanent – infield.Portable – ontrailers for temporarydeployment.Permanent – infield.Portable – ontrailers or permanentstructuresfor temporarydeployment.Permanent.Portable – in mobiletrailer or van.Virtual – a singleperson connectedto the centralsystems from anyremote location.• Provides the managers at theTransportation ManagementCenter (TMC) with reliable,real-time information on conditionsin the field.• Collects various data, but themost common are vehicular ortravel speed, volume and occupancy.• Includes inductance loop detectorsand infrared or ultrasonicdetectors placed in, over, or besidethe highway.• Uses portable detection systemsinstalled on trailers that allowfor locating the technology anywherein the event area thatmanagers want to survey.• Consists of one of the oldest andmost reliable methods of surveyingthe network in real-time.• Uses cameras installed in thefield to monitor conditions inreal time.• Allows systems to be locatedtemporarily for the event usingtrailer-mounted rigs.• Whether permanent or portable,provides managers at the TMCwith real-time video of conditionson the highway, allowingthem to adapt their plans accordingly.• Serves as the nerve center wherethe event managers from variousdisciplines, transportation andother, work together to ensureclose coordination.• Often includes a “situationroom” where the event managerswork, all the time being in contactwith the control room.• Utilizes many technologicaltools at the TMC including: (1)map displays showing real-timetraffic and transit conditions, (2)video display walls, (3) changeablemessage sign, (4) closedcircuittelevision control systems,(5) telephone and radiocommunications to communi-• Provides a status ofreal-time traffic conditionson the highwayto managers sothey may adapt theirplans as conditionswarrant.• Provides managersinstant informationon the status of thehighway, transit station,or pedestrianmall to managers toallow them to reactquickly to issues,thereby minimizingimpacts to users.• Provides a singlelocation where allthe managers of theagencies involvedwith the specialevent can work faceto-faceand be ableto communicate withtheir respective operatorsand field personnel.4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-27

ITEM FUNCTIONS DEPLOYMENT APPLICATION BENEFITcate with their field liaisons, and(6) incident management andtraffic signal control systems.• In most cases, consists of a governmentagency facility, but insome specialized cases, such asat stadium venues, the venue itselfmay house this coordinationcenter.MobileTelephonePersonalDigitalAssistantsInternetChangeableMessage SignTrafficManagementTravelerInformationTravelerInformationTrafficManagementTravelerInformationAdvertisingTravelerInformationPortable. • Provides common form ofcommunication between eventmanagers and field personnel.• Provides real-time traffic conditionsto managers (i.e., manualdetection) and permits receipt ofreal-time traffic conditions informationthrough a paging serviceor by dialing into a telephoneinformation system (seebelow).Portable. • Sends real-time traffic conditionsto pagers registered to receivethe traveler information.• Allows two-way pagers (e.g.,Blackberry) to be used byfield personnel to report problemsor by travelers to do thesame.Permanent.Accessible fromany location withconnectivity.Permanent – infield.• Permits dissemination of informationregarding new trafficpatterns, restrictions, etc. (alongwith other information regardingthe event) well in advance of thedate(s) of the event.• Provides real-time informationregarding the travel conditionsalong the affected routes, incidentsthat are impacting trafficflow, and available parking.• Aims to reach travelers beforethey commence their trip.• Informs travelers (en-route)prior to the upcoming event of• Allows managers tostay in communicationwith their fieldpersonnel at all timesvia cell phone.• As a traveler informationdevice,transmits informationon real-timeconditions to digitaltelephones equippedto receive text messages.• There is a large potentialmarket forthis form of travelerinformation.• Requires timelinesssince 3 rd party InformationServiceProviders (ISPs) areused.• Has a large potentialmarket for this technologyfor travelerinformation.• Requires timelinesssince 3 rd party ISPsare used.• Reaches large audienceof pre-trip travelers.• Offers subscriptione-mail service to notifytraveler of analert on their preferredroutes.• As a rule, providesfree service with thesubscription to anISP.• Reduces congestionby informing motor-4-28

ITEM FUNCTIONS DEPLOYMENT APPLICATION BENEFITAdvertising Portable – ontrailers for temporaryits expected impact, infrastructurechanges (e.g. road or lanesclosures, parking restrictions).ists in advance of theevent so they mayalter their routes ordeploy-• Provides real-time traveler in-mode choices.ment.formation during the event (e.g.,roadway conditions, incidents,parking availability).• Informs en-routetravelers of potentialproblems such as fullHighwayAdvisoryRadioTelephoneInformationSystemTraffic SignalSystemTravelerInformationTravelerInformationTrafficManagementTrafficManagementPermanent – infield.Portable – ontrailers for temporarydeployment.Permanent – callcenter remains ata fixed location.Permanent –Closed LoopSignal Systems.Permanent –Centrally controlledtrafficsignal systems.Permanent –Centrallycontrolled adaptivesignal systems.• Similar to CMS, informs enroutemotorists of an impendingproblem ahead.• Typically uses warning signs toinform motorists that an importantmessage is being broadcast.• Allows messages to be controlledfrom a remote location,such as a TMC.• Technologically, consists of alow-power (e.g., 10-watt) transmitterlocated near the roadside.• Provides a phone-in service toprovide real-time traffic conditioninformation to en-route andpre-trip travelers.• Stores real-time conditions in adatabase. Callers, with the helpof computerized telephony, arerouted to a recording of, or a liveoperator stating real-time conditionson the segment of highwayrequested by the caller.• As a national 511 initiative,serves as both a traveler informationand traffic managementtool, in that it provides currenttraffic conditions to callers aswell as allows callers to reportincidents on the network.• Signal systems are commonlyinstalled along arterial streets tooptimize traffic flow and minimizedelay.• Closed Loop Signal Systems andCentrally controlled signal systemsallow system operators todownload and implement specialsignal timing plans for specialevent management. These planswill optimize traffic operationsduring event ingress and egress.• Adaptive traffic signal systems,due to a high level of detectorizationand sophisticated systemparking areas.• When applied correctly,provides significantbenefit toen-route motoristswho must be advisedof a traffic incidentor congestion ahead.• Serves as a very usefultool in providingcurrent traffic conditionsto travelers.• Often can be an expensiveundertaking.• Has generated anumber of successstories during the511 program’s shortlife.• Increases the efficiencyof the streetnetwork and reducesthe delay on the network.4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-29

ITEM FUNCTIONS DEPLOYMENT APPLICATION BENEFITprogramming, will adjust toevent-generated traffic flowsand optimize traffic operationsduring event ingress and egress.With adaptive signal systems,the engineering of event timingplans is largely accommodatedby the system. However, adaptivesystems are considerablymore expensive to install thaneither Closed Loop or centrallycontrolled systems.ParkingInformationSystemsCommercialRadio orTelevisionStationsTrafficManagementTravelerInformationPermanent. • Outfits parking lots and garageswith detection and surveillancetechnology to determine theavailable number of spaces.• Collects information via detectionand surveillance technologythat is then processed by algorithmsin computer systems, andcan determine what space isavailable, using actual countsand predictive algorithms. Theparking status is then conveyedto signs at the entrance or to anadvanced traffic managementsystem to be placed on CMSs orbroadcast on HAR or commercialradio.• At arenas or stadiums, alertsmotorists not to exit from afreeway to a parking lot if it isfull, and directs them to availableparking locations.Permanent.Accessible fromany location withconnectivity.• Broadcasts traffic reports on aregular basis, typically duringpeak traffic periods or periods ofspecial events. The informationis received from aerial spottersor advanced traffic managementsystems.• Reduces the circlingpattern of vehicles ina downtown area byinforming motoristsof the unavailabilityof parking spaces.• If broadcasted in atimely manner,reaches the mosttravelers and providesthem with informationto changetheir route or modeto ensure the mostefficient network forprevailing conditions.managed by traffic signal systems, andone of the most beneficial signal strategiesfor planned special events is the useof modified timing plans to optimizetraffic operations during event ingressand egress. Several strategies, havingvarious levels of complexity, exist formanaging traffic signal systems on arterialhighways. The best strategies availablefor special event management in-4-30

clude: (1) remote modification of thesystem, (2) individual signal timing inresponse to changing conditions, and (3)highly sophisticated adaptive controlsystems, which, due to a higher level ofdata acquisition and system programming,automatically adapt to changingtraffic flows. Closed Loop Signal Systems,which are relatively inexpensiveand are becoming widely used, offer ameans of implementing planned systemtiming plans designed for a particularspecial event. Individual signals andsystem timing can be monitored andmodified remotely from a transportationmanagement center or any other locationequipped with a personal computer andmodem.The more sophisticated centrally controlledtraffic signals have a fixed communicationsystem between the trafficsignals and a control center. The trafficsignals and signal systems under controlare constantly monitored. These systemsgenerally have a higher level of programmingsophistication then the ClosedLoop Systems. Planned special eventmanagement is accommodated in muchthe same way as with Closed Loop Systems,with special timing plans beingdownloaded into the system in responseto event conditions. The timing plansare configured in advance, but as withClosed Loop Signal Systems, can bemodified from a transportation managementcenter in response to changes in thefield.Adaptive control systems represent themost sophisticated traffic signal systems.These systems require considerablymore detector input and communicationability. Adaptive control systems relyon intricate software packages to producean ever-evolving signal timingplan. These systems have the capabilityto continuously adapt to changing trafficpatterns, thus optimizing traffic flow.With adaptive traffic signal systems itwould not be necessary to downloadspecial signal timing plans in order tomanage a special event. The adaptivetraffic signal systems would automaticallyadapt to changes in traffic causedby additional event-generated traffic.• Ramp management represents a freewaystrategy that controls the amount oftraffic entering and exiting a freeway inorder to maintain or increase its efficiency.It is typically provided by meansof metering or closing ramps. The theorybehind metering is that the rate atwhich vehicles enter a freeway is controlled,reducing turbulence at rampjunctions where most congestion occurs.This, in effect, improves the efficiencyof the mainline freeway, thus reducing avehicle’s overall trip time. Ramp closureis rarely used as a long-term solution,but can be implemented when thecapacity of an entrance or exit ramp isexceeded and the resulting queues jeopardizesafety.• Lane use management is a process usedto maximize benefits and use of existingpavement, and improve the safety andefficiency of freeway operations. Laneuse management is typically exercisedthrough use of signs (static and dynamic),temporary traffic control devices,economic incentives and disincentives,and law enforcement. Lane usemanagement includes designating certainlanes for the use by a particular classof vehicles (e.g., buses, carpools), theuse of shoulders as a traveled lane duringpeak periods, contra-flow lanes, reversiblelane control, and lane use control.Lane use control uses dynamic4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-31

signing to indicate whether a lane isopen (green arrow pointing down over alane), closed (red “X” over a lane), or isclosed ahead (a diagonally cocked colorarrow over the lane). (7)• Incident management represents anoperational approach used on both freewaysand arterials that employs all of theavailable resources, including humanand technological, to identify, manage,and clear incidents from a freeway in aquick and effective manner. In thetransportation management center, operatorsutilize networks of closed-circuittelevision cameras, vehicle detectionsensors, incoming 911 or 511 reports,incoming media reports, and mobile reports(from service patrols, police, maintenancepersonnel, and motorists) tomonitor, verify, and determine the scopeof incidents to quickly dispatch the appropriateemergency response personneland equipment. This saves valuabletime when treating the injured andminimizes the effects incidents have ontraffic conditions. After field personnelarrive at the incident scene, TMC operatorscontinue to monitor the incident andconditions surrounding the incident toinform travelers of traffic conditions. (7)• Parking management facilitates improvedand sustained mobility - movingtraffic through a location quickly, withlittle delay, and only once. Parkingmanagement supports effective mobilityby managing parking facilities. In thisdiscipline, systems monitor and surveythe available capacity of parking facilities,both surface lots and garages, andcommunicate the availability or nonavailabilityof spaces to motorists. Indoing so, motorists do not congest thehighway network by traveling fromparking location to parking location inhopes of finding an available space.Traveler InformationTo ensure the successful management of aspecial event, it is vital to communicate withtravelers to inform them of anticipated (future)and current conditions on the network:• One goal is to provide the conditionsinformation to en-route travelers so theymay alter their route or mode, and topre-trip travelers so they may alter theirtrip planning. Information that can beprovided includes current traffic conditions,congestion, lane or turn restrictions,HOV restrictions, alternate routes,parking availability, and road closuresand the relevant time periods.• A second goal is to inform the public ofthe event well enough in advance to allowintended travelers, whether event attendeesor not, to change their travelhabits prior to the event.Various means and technologies are used todisseminate information to the public. Informationis provided to:• Pre-trip travelers via websites, mediabroadcasts, and mobile communicationdevices (e.g., personal digital assistants,pagers, and cell phones).• En-route travelers via roadside devicessuch as changeable message signs andhighway advisory radio, and in-vehiclevia commercial radio.• Both pre-trip travelers and en-route travelersthrough mobile phones, webenabledwireless phones, pagers and personaldigital assistants (PDA).In support of these functions, there are manytechnologies in the realm of ITS that havebeen incorporated for special event man-4-32

agement. Not all of these are a single technologicaldevice, nor are all of the parts providedby the managing agency alone.Funding SourcesCurrent funding practice typically favorsbuilding new or rehabilitating existingtransportation facilities over operational improvements,such as freeway managementsystems. A key reason is that agencies donot consider operations as a distinct lineitem in their budget. Freeway managementsystems require both capital and maintenancefunding. This topic has been underdiscussion for several years, and few agencieshave been willing to attempt new approaches.(7)Involvement by the freeway practitioner infunding processes and decisions cannot beover-emphasized. As noted in the MillenniumPaper prepared by the TransportationResearch Board Freeway Operations Committee,“If funding for deployment of freewaymanagement systems and programs,and their ongoing operations and expansion,is not budgeted and the necessary resourcesallocated, the freeway investments will deteriorateand eventually become useless.” (8)Funding for ITS initiatives always has beena challenge and is tied in closely with howwell we sell the concept of freeway operationsand management. Because of tightercontrols on money and a never-ending list ofways to spend it, there will continue to bechallenges in the search for new sources offunding to continue expanding the existinginfrastructure. Such new concepts as partnershipsbetween the private and public sectors,outsourced design/build/operate contractsfor transportation infrastructure projects,and user-pay scenarios will bringabout new opportunities for funding. Expandingadvertising, sponsorship, and"adopt-a-highway" plans to include trafficmanagement will present options for fundingoperations. Partnerships to sell or sharedata and video signals will continue to providenew opportunities. (8)The authority for transportation decisionmakingis dispersed among several levels, or“tiers”, of government, and often betweenseveral agencies with each governmentallevel. The concept of special event managementneeds to be considered and supportedat each of the different tiers notedbelow: (9)• The national tier involves the authorizinglegislation that establishes and providesdirection, priorities, and resourcesfor the federal regulations, policies, programs,and research that is initiated orimplemented.• The regional/statewide tier involves theappropriate strategic transportation planning,programming, and coordination effortsthat include a longer-range time horizon(10 –20 years). Statewide and regionaltransportation planning is thestructured process followed by states,metropolitan planning organizations,municipalities, and operating agencies todesign both short and long-term transportationplans. Products are projectoriented,typically providing the Statewideand Regional (Constrained) LongRange Plan (LRP), Statewide TransportationImprovement Program (STIP), regionalTransportation Improvement Program(TIP), and Unified Planning WorkProgram (UPWP). While the process hashistorically focused on capital projects, itis now recognized that the statewide/regionaltransportation planningprocess must take management and operationsof the transportation network,and the ITS – based systems that support4EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW4-33

operations, into consideration. This isparticularly true given that ITS appearsto be losing its special funding statusthat it enjoyed in ISTEA and TEA-21.The current trend to “mainstream” ITS(and operations) into the traditional decision-makingprocess of transportationplanning means that operations and ITSdeployments will be increasingly fundedthrough regular sources and comparedwith traditional transportation components,such as road widening and newconstruction. There is consequently aneed to strengthen the ties between managementand operations, ITS, and thetransportation planning process.• The agency tier is where the infrastructurecomprising the surface transportationnetwork (e.g., freeways, bridges,tunnels, streets, rail lines, rolling stock,traffic control/management devices) istypically owned. This level develops amulti-year program and budget that definesresources and commitments for athree to 10 year time frame, with updatesevery year or two. It is at this tier wherepriorities, budgets, and allocation of resourcesare established. From the perspectiveof freeway management andoperations, it is at the agency levelwhere the planning, design and implementationactivities for the freewaymanagement program (i.e. special event)take place. It is important that the processto develop the ITS – based strategicplan (or any such focused plan or project)support the overall transportationplanning process; not compete with it.Moreover, the end products of these “focused”processes can and should be usedto feed information back into the overalltransportation planning process.REFERENCES1. “Regional Transportation OperationsCollaboration and Coordination,”Federal Highway Administration,Washington, D.C., 2002 [Online].Available:http://www.itsdocs.fhwa.dot.gov//JPODOCS/REPTS_TE//13686.html.[2003, August 12].2. “Traffic Incident Management SelfAssessment Guide,” Federal HighwayAdministration, Washington,D.C., 2002 [Online]. Available:http://ops.fhwa.dot.gov/Travel/IncidentMgmt/timsa.htm. [2003, August12].3. Traffic Manual, Washington StateDepartment of Transportation,Olympia, Washington, March 2002,182 pp.4. Special Events Permit Requirementsand Guidelines, City of MiamiBeach Office of Arts, Culture, & Entertainment,Miami Beach, Florida,n.d., 19 pp.5. Festivals & Events: Policies & Procedures,City of Louisville, Louisville,Kentucky, September 1999, 49pp.6. ITS America website, www.itsa.org.7. Federal Highway Administration,“Freeway Management and Operations:State–of –the–Practice WhitePaper”, January, 2003.8. “Freeway Operations in 2000 andBeyond”, Members and Friends ofthe TRB Committee on Freeway Operations.4-34

9. Descriptions of tiers from materialfound in, “Integrated Surface TransportationSystems: The Role ofTransportation Management Centers”;Obenberger, J. and Kraft, W.;October 2001.4EVENT PROFILEOVERVIEWPOST-EVENT ACTIVITIESDAY-OF-EVENT ACTIVITIES ADVANCE PLANNING4-35

THIS PAGE LEFT BLANK4-36

CHAPTER FIVEEVENT OPERATIONS PLANNING5OVERVIEWPURPOSEThis chapter presents advance planning andstakeholder coordination activities conductedfor a specific planned special event.It represents the first of three successivechapters on the event operations planningphase. The primary, interrelated products ofthe event operations planning phase include:(1) feasibility study, (2) traffic managementplan, and (3) travel demand managementinitiatives. This chapter describes initialplanning activities, summarizes feasibilitystudy analysis steps specific to a plannedspecial event, and highlights external factorsFigure 5-1Event Planning Team Meetingaffecting the scope of event impact on transportationsystem operations.Practitioners can use this chapter as a toolto: (1) establish an event operations planningframework for guiding stakeholder activitiesthroughout the phase, (2) assist in decidingwhether to grant or deny preliminary approvalto schedule a proposed planned specialevent based on predicted transportationsystem impacts and (3) determine traffic andparking demand, roadway capacity deficiencies,and unplanned scenarios that definethat scope of traffic management plan required(Chapter 6) in addition to the need fordeveloping travel demand management initiatives(Chapter 7).DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE5-1

INTRODUCTIONThis chapter helps practitioners to hit theground running on advance planning for aspecific planned special event. Compared toChapters 6 and 7 which detail strategies andtactics for mitigating the impact of plannedspecial events on transportation system operations,this chapter emphasizes, with supportingexample case studies, the importanceof facilitating a planning structure, stakeholdercoordination, and comprehensiveevent assessment in generating event planningphase products that completely and accuratelyguide operations activities on theday-of-event.A section on initial planning activities describesinput data requirements for analyzingthe event impact and discusses scenarioslinked to particular events that may requirethe development of a contingency plan(s).The section lists transportation system performanceobjectives, and associated facilityspecificmeasures of effectiveness (MOEs),that satisfy the customer service requirementsof event patrons and other road userclasses. It presents an event operationsplanning schedule and lists various productsof the event operations planning phase. Thesection concludes by examining situationsnecessitating public involvement, summarizingthe feasibility study and traffic managementplan review process, and identifyingsuccessful policies and agreements for managingand operating a planned special event.The event feasibility study section presentstravel forecast process strategies and considerationsfor estimating modal split, eventgeneratedtraffic demand, and vehicle occupancyfactors. It reviews techniques foridentifying a market area and directional distributionof event-generated traffic. Thesection reviews methodologies for identifyingand evaluating the sufficiency of availablevenue parking supply based on eventparking demand and existing conditions. Itspecifies traffic demand analysis and roadwaycapacity analysis strategies, includingthe application of various traffic modelingand capacity analysis tools. To provide alead-in to the following two chapters onevent operations planning, the section describesa toolbox of mitigation strategies foradjusting event traffic generation levels aswell as increasing transportation system capacity.This chapter concludes with an examinationof external factors that may create considerableimpact on transportation system operationsif ignored. A feasibility study may notaccount for issues such as available resources,weather, concurrent road constructionactivities, and concurrent planned specialevents. These factors must be accountedfor early in the advance planningprocess as well as in traffic managementplans prepared for a planned special event.For example, given a particular recurringevent, event patrons and non-attendee transportationsystem users may realize satisfactorysystem operations during one event occurrence,then experience an unacceptablelevel of service during the next event occurrence.Such incidents occur when stakeholdersdo not account for various externalfactors, through scenario-based responseplans, early in the event traffic managementplan development process.INITIAL PLANNINGACTIVITIESOverviewThis section examines key planning initiativesand special considerations in order tohelp guide the user through the first steps ofthe event operations planning phase. Theevent operations planning phase begins withstakeholders establishing a planning frame-5-2

work and schedule. The framework includesforming an event planning team, creatingagreements, identifying performancegoals and objectives, and deciding on mitigationassessment and approval protocol.Special considerations evolve from reviewingthe event operations characteristics of aparticular special event (e.g., risk assessment)in addition to past successes and lessonslearned. These considerations weighheavy on traffic management plan requirements,and stakeholders must address issuesaffecting community residents and businessesthrough public outreach efforts earlyin the planning phase in order to ensureproper mitigation and non-conflict with trafficmanagement plan specifications.Stakeholder Roles andCoordinationThe event planning team handles tasks associatedwith event-specific operations planningand traffic management planimplementation. Table 5-1 lists the primaryresponsibilities of the event planning teamunder the event operations planning phase.The event planning team consists of a diversegroup of stakeholders with either eventoperations or community interest as theirprimary concern. The success of the eventplanning team depends on achieving strongcoordination among participating teamstakeholders.Table 5-1Event Planning Team ResponsibilitiesDuring the Event Operations Planning PhaseRESPONSIBILITY• Perform feasibility study.• Develop traffic management plan.• Evaluate travel demand management initiatives.Event Planning Team EstablishmentAn event planning team forms as a result ofeither: (1) coordination among traffic operationsagencies, transit agencies, law enforcementagencies, and event organizersthat represent the core event planning teamstakeholders or (2) designation by a committeeon special events within a regional transportationmanagement organization, such asa traffic incident management program.• The former typically describes eventplanning teams formed in response to localplanned special events affecting fewjurisdictions, such as events occurring inrural or urban areas.• The latter may occur in metropolitan areaswhere planned special events happenfrequently, thus warranting an on-callevent planning team.A regional transportation committee onspecial events features stakeholders thathave achieved interagency coordinationthrough past, cooperative travel managementefforts.• Stakeholder representatives have firsthandknowledge of the roles, resources,and capabilities of each committee participant.• Stakeholders commonly include trafficoperations agencies, law enforcement,transit agencies, event organizers orvenue operators, and the media.• Committees in metropolitan areas maycreate task forces for specific plannedspecial event venues or recurringplanned special events (e.g., annual fairs,fireworks displays, parades, etc.). Thecommittee or task force generally meetsand performs event operations planningtasks on an as-needed basis. The groupmay also convene regularly (e.g.,weekly, monthly, or quarterly) to review5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-3

program planning efforts for futureplanned special events.Prior to initiating the event operations planningprocess, the core event planning teamshould adopt a mission, or purpose, and solicitbuy-in from public agency stakeholders,the community, and other event supportstakeholders. In identifying pertinent jurisdictions,the event planning team may considercontacting stakeholders within a certaindistance (e.g., five miles) of the eventvenue. The event planning team can obtainbuy-in from community interest stakeholdersmore easily when a core group ofstakeholders already exists, including publicagencies. Elected officials and the publiccan serve as advocates for the event planningteam; therefore, participation fromthese stakeholders should occur early in theevent operations planning phase.Table 5-2 indicates the typical function ofeach participating stakeholder in generatingthe primary products of the event operationsplanning phase. A list of stakeholders isreferenced to the three products produced:(1) feasibility study, (2) traffic managementplan, and (3) travel demand management.Stakeholders contribute data, communicateneeds, and/or furnish resources. Often, certainagencies promote initiatives developedby the event planning team, such as traveldemand management strategies.STAKEHOLDERTable 5-2Stakeholder Participation in Event Operations PlanningPRODUCTS OF THE EVENT PLANNING TEAMFEASIBILITYSTUDYTRAFFICMANAGEMENTPLANTRAVEL DEMAND MAN-AGEMENTINPUT DEVELOP REVIEW INPUT DEVELOP REVIEW INPUT DEVELOP REVIEW PROMOTETraffic OperationsAgency• • • • • • • • • •Law Enforcement • • •Event Organizer • • • • •Fire and EMS • • •Elected Official • • • • •Transit Agency • • • • • •Public • • • • •Private TransportationConsultant• • • • •Private TrafficControl Contractor•Media•Office on SpecialEvents• •EmergencyManagement Agency• •RegionalOrganization• • • • • •5-4

Interagency CoordinationIn establishing an event planning team, thecore stakeholders must develop a workingtrust with each other. This trust resultswhen stakeholders realize that a plannedspecial event necessitates the same relationshipscultivated in daily traffic and incidentmanagement.A joint operations policy or other memorandaof understanding strengthens the cooperativebond among core stakeholders.These agreements identify common goalsand responsibilities of the partnering agencies.Consensus among stakeholders builds interagencycoordination and an understandingof each agency’s responsibility. Key elementsto consider include:• Participating stakeholders must recognizethat the motivations of individualagencies may differ from the event planningteam’s concerns as a result of theirday-to-day responsibilities.• Although the event planning team doesnot have authority over individual stakeholders,the planning team must realizethat possible conflicts may exist betweenthe team’s objectives and a stakeholder’sprimary responsibility. Understandingthis is key to overcoming such a problem;yet, the team can foster a cooperativespirit among stakeholders by emphasizingthat participants own a part ofthe event planning team’s commongoals. In turn, team goals and objectivescreate incentives for individual stakeholders.• Stakeholders must remain focused on thegoals and objectives of the event planningteam in order to effectively supportand contribute in the event operationsplanning process. This includes concentratingon tasks that can be successfullyaccomplished collectively.Common barriers to the event planningteam’s progress include resource constraintsand jurisdictional barriers.• Resource or funding constraints surfacewhen stakeholders assign a lower priorityto the planned special event. In satisfyingindividual and team goals, stakeholdersmay have to make temporaryproject and program sacrifices, in termsof personnel and equipment reassignment,to provide adequate benefits to theevent operations planning effort.• Jurisdictional barriers arise when two ormore stakeholders are unclear on theirduties and responsibilities. Do not allowparticipating agencies to feel left out. Atthe time of buy-in, the event planningteam must indicate which stakeholdersare required on an as-needed basis. Theteam must have the ability to communicateeffectively with stakeholders havinga peripheral involvement in the overallplanning effort.Risk AssessmentBased on the type and purpose of a plannedspecial event, there exists potential scenarioswhere event patron or non-attendee behaviormay cause overcrowded conditions in thevicinity of an event venue and/or create unplannedroad closures. The event planningteam must assess the nature of a proposedevent and determine the need to incorporatespecial contingency plans in response to potentiallydangerous situations that will interferewith the planned travel management onthe day-of-event.Table 5-3 lists four notable event-orientedrisk scenarios associated with some plannedspecial events. This section further5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-5

Table 5-3Summary of Event-Oriented Risk ScenariosEVENT-ORIENTED RISKEXAMPLE SCENARIODemonstration or protest • Any event that is political in nature or invokes social concern.• Political conventions and paradesTicketless event patrons • Sold-out sports championship gamescausing overcrowding • Sold-out concerts involving select performersFan 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 examplecase studies that illustrate resultingimpacts on advance planning and/or day-ofeventoperations. Chapter 6 provides detailedguidance on contingency planning inaddition to the development of specificstrategies (e.g., alternate route plans) neededto effectively respond to certain unplannedscenarios.Demonstration or ProtestCertain political or socially controversialplanned special events may provoke a demonstrationor protest. Those attending thedemonstration represent non-attendees, andthe event planning team often has little or noadvance information regarding the demonstration’sspecific location and time of occurrence.The event planning team shouldobtain access to relevant law enforcementintelligence reports regarding potential demonstrationsto develop an effective travelmanagement contingency plan. The threatof an unplanned road closure should promptthe event planning team to consider developingan alternate route contingency plan detailingthe personnel and equipment resourcesnecessary to effect an immediatediversion of traffic.Appendix B contains a contingency diversionrouting plan prepared in response to thepotential for demonstrations during the 2000Republican National Convention in Philadelphia,PA.OvercrowdingThe occurrence of sports championshipgames or major concerts at venues having adefined sell-out capacity may attract ticketlessevent patrons not accounted for in eventtravel forecasts and impact mitigationstrategies. Events such as the Super Bowl orNational Collegiate Athletic Association(NCAA) Final Four cause an increase inarea visitors beyond the actual event participantsand patrons. Sold-out music festivalsmay attract persons wanting to tailgate invenue parking areas despite not having aticket.For instance, event planners originally anticipated200,000 people to attend a two-dayGrateful Dead reunion concert at a 35,000seat amphitheater in rural East Troy, WI,located approximately 30 miles southeast ofMilwaukee. The Walworth County HighwayCommittee initially denied the eventorganizer a permit to hold the two concerts.After the event organizer unveiled a comprehensivesecurity and traffic managementplan that included using advance checkpointsto turn away any vehicle that containeda ticketless occupant, county executivesoverturned their decision and issued apermit. (1) Appendix B contains a list of restrictionsimposed by the event organizerand event planning team to prevent ticketlessevent patrons from gaining access to thevenue parking areas.5-6

Fan CelebrationAnother severe impact risk associated withsports championship games involves fancelebrations that occur when a city sportsteam wins a championship at home. In thiscase, the traffic management team chargedwith managing travel during event egressmust also mitigate traffic impacts caused bynon-attendees converging on the venue siteand unruly fans disrupting traffic and pedestrianflow.For instance, the Detroit Red Wings won the2002 Stanley Cup in Detroit. Operatingfrom past experience, the Michigan StatePolice began closing portions of Interstate75 and the Lodge Freeway (State Route 10)leading to downtown Detroit and the eventvenue. This contingency plan went into effectat the start of the final period of playwith Detroit leading the championshipclinching game. (2) Contingency plan detailswere even posted in advance on Red Wings’fan websites. Located approximately 16miles north of the event venue, Royal Oakpolice and city officials maintained road closurecontingency plans to accommodate thethousands of fans that went to the popularclubs and bars to celebrate the home teamwin. (3)Event Patron ViolenceAn outbreak of violence among event patronswarrants special security precautionsto contain and capture potential suspects.Law enforcement may initiate a road closureas a first response to discourage people fromentering and leaving the region where theviolence took place.During the 2002 Laughlin, NV River Runmotorcycle rally, attended by tens of thousandsof motorcycle enthusiasts, a multiplehomicide occurred after a clash between rivalmotorcycle gangs. In an effort to capturethe homicide suspects, Nevada officialsclosed all highways and arterials servingLaughlin, including Nevada State Route 163at the Nevada/Arizona border as shown inFigure 5-2. Trucks traveling U.S. 93, aNorth American Free Trade Agreement(NAFTA) designated trucking corridor,traverse State Route 163 because of prohibitionson crossing the Hoover Dam. Law enforcementmaintained the road closures for afew hours. (4) A possible traffic managementcontingency plan prepared in advance of thedescribed security incident would specify aregional alternate route plan coupled withregional traveler information.Figure 5-2Nevada State Route 168 Closure DuringMotorcycle Rally (Photo courtesy of theLaughlin Free Press)Performance Goals and ObjectivesThe goals of managing travel for plannedspecial events include achieving predictability,ensuring safety, and maximizing efficiency.Table 5-4 states performance objectives,for the previously defined classes oftransportation system users, applicable tosatisfying the overall goal of operations efficiencyand safety. In meeting these performanceobjectives, the event planningteam must target the goal of achieving predictabilityduring the event operations planningphase. Table 5-5 presents common,easy-to-measure measures of effectivenessfor assessing the performance5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-7

Table 5-4Transportation System Operations Performance Objectives for Planned Special EventsUSER CLASSPERFORMANCE OBJECTIVEEvent 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 roaduser• Minimize travel delay on major thoroughfares, freeways and major arterials.• 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.The event planning team should considerfield studies to quantify existing MOEs atkey roadways and intersections to calibratecapacity analysis software and computersimulation models applied during trafficmanagement plan development. The identifiedMOEs represent day-of-event performanceevaluation data, useful for: (1) makingreal-time adjustments to the traffic managementplan on the day-of-event, (2) conductinga post-event evaluation of transportationsystem performance, and (3) referencingduring advance planning for future eventoccurrences.NCHRP Synthesis 311, Performance Measuresof Operational Effectiveness for HighwaySegments and Systems, reports on thestate-of-the-practice of using performancemeasures for the monitoring and operationalmanagement of highway segments and systems.(5) It assesses the relative strengths andweaknesses of various performance measures.Based on a survey of current agencypractice, the synthesis reports that performancemeasures associated with planned specialevent management are similar to trafficand incident management, but may also includeperformance measures related toclearance times (e.g., time for vehicles toclear a venue site area) and parking managementmeasures.Table 5-5Measures of Effectiveness for AssessingPerformance ObjectivesMEASURE OFLOCATIONVenueparking areasEFFECTIVENESS• Occupancy and turnover rate• Arrival and departure servicerate• Time to clear parking lotsIntersections • Vehicle delay• Queue lengthFreewaysandstreets• Travel time and delay• Traffic volume to capacityratio• Traffic speed• Number and location ofcrashes and other incidents• Traffic incident clearance timePlanning Schedule and DeliverablesTwo deliverables, produced by the eventplanning team during the event operationsplanning phase, include the feasibility studyand the traffic management plan, designedto mitigate impacts identified in the feasibilitystudy. Travel demand managementrepresents a key component of the overall5-8

process when forecasted traffic demand levelsapproach or exceed available roadwaycapacity.Conduct Public OutreachPerform Situation Analysis andRisk AssessmentSubmit PermitApplicationEstablish Policies and AgreementsThe previous chapter outlined a detailedspecial event permit process and identifiedadvance planning deadlines applicable to theevent organizer. In turn, Figure 5-3 illustratesa high-level event operations planningschedule for an event planning stakeholdergroup. The figure lists advance planningactivities and potential stakeholder meetingsand public hearings in a timeline relative tothe planning deliverables. The schedule indicatesother stakeholder planning initiatives,such as the development of a specializedtransit plan to reduce event traffic demand.The event planning team should:• Obtain a completed special event permitapplication and commence work on theevent feasibility study no later than 60days prior to the event.• Start developing the event traffic managementplan and obtain all initial publicinput and recommendations no later than30 days before the event.• Set aside the final 14 days prior to theevent for implementation activities inaddition to event information dissemination.Develop Transit PlanDevelop Travel Demand Management InitiativesApproveMitigationIssue PermitApproval5OVERVIEWDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGProposeEventEVENT OPERATIONS PLANNING TIMELINEMeeting onEvent Conceptand Review PastLessons LearnedPerformFeasibilityStudyMeeting onTraffic ManagementPlan RequirementsDevelopTrafficManagementPlanMeeting onTraffic ManagementPlan ReviewAdvance toImplementationActivitiesPOST-EVENT ACTIVITIESN.T.S.Hearing withPublic to AssessNeeds60 Days 30 Days 14 DaysMONTHS WEEKS DAYSFigure 5-3Event Operations Planning ScheduleEventEVENT PROFILE5-9

The planning schedule provides a generictimeline, recognizing that actual event operationsplanning schedules vary considerably.For instance, some major, rovingplanned special events, such as the U.S. GolfOpen, require an event operations planningphase spanning more than one year.Public OutreachPlanned special events that may impact adjacentneighborhoods and businesses usuallyrequire public involvement to address relatedconcerns. The public represents individualresidents, businesses, and associatedcommunity groups. Public outreach activitiesinitiated early in the event operationsplanning phase can reveal important issuesthat local residents and businesses mayhave. Soliciting these concerns throughpublic involvement, and addressing the issuesin the planning process, can improverelations and day-of-event operations.Street use events or other planned specialevents that take place at venues located adjacentto residential and/or commercial districtsmay significantly impact non-attendeemobility and community quality of life.Specific neighborhood impact issues includeheavy traffic demand on local streets andevent patron use of available local on-streetparking. These issues arise because, insome instances, event patrons may find onstreetparking in residential neighborhoodsand business districts affords more convenientingress and egress. In addition, illegalparking fines may not exceed, or significantlyexceed, the fee charged at designatedvenue parking areas.Initiation of public outreach efforts includesstakeholders, such as a traffic operationsagency or law enforcement, holding initialand regular meetings with communitygroups and local elected officials. At thesemeetings, the event planning team shouldpresent the scope of the event in enough detailto solicit quality input and buy-in frompublic stakeholders. Concerns revealed inthis process should be addressed, and feasiblesolutions presented, so that the publicstakeholders feel assured that impacts willbe mitigated to their satisfaction.The event planning team and public stakeholdersshould identify potential problemsprior to the development of the traffic managementplan. These problems can be identifiedby first understanding the event scopewith consideration given to currentneighborhood traffic and parking restrictions,traffic management plans deployedduring past planned special events, and identifiedproblems experienced during pastevents. With this information, the publicstakeholders can make informed decisionsand provide valuable input to the eventplanning team.Example Case StudiesInnovative strategies developed by the citiesof Seattle and Chicago to minimizeneighborhood traffic and parking impactsduring discrete/recurring events at a permanentvenue are highlighted in three casestudies summarized below. It should berecognized that an event planning team canimplement these strategies on a temporarybasis for less frequent continuous events andstreet use events.Case Study One: University of Washington.Due to the construction of a new footballstadium, the Seattle Seahawks moved theirscheduled 2000 and 2001 home games to theUniversity of Washington’s Husky Stadium.Recognizing the Seahawks represented a5-10

new and different stadium user with uniquecharacteristics, the City of Seattle requireddevelopment of a Seahawk Football TransportationManagement Program. (6)Key strategies included:• The City of Seattle DOT, Seahawks organization,University of Washington,neighboring residents, and other City ofSeattle officials conducted formal meetingsprior to and during the Seahawksfootball season to listen to communityconcerns, report on operations, developplan modifications, and review performancegoal achievement.• A hotline was established for local residentsto voice concerns and to communicateday-of-event observations.• Stakeholders responded by developingcarpool parking pricing incentives andestablishing new restricted parkingzones (RPZ) in residential neighborhoodsadjacent to Husky Stadium.• The number of parking enforcement officersassigned to patrol the RPZs on theday-of-event increased from 6 to 13, andthe Seattle Municipal Court approved anRPZ violation fine increase from $28 to$44 (although a $71 fine was initiallyproposed).• Table 5-6 notes specific performancegoals established by the event planningteam to evaluate roadway system performanceobjectives for the 2000 SeattleSeahawks football season.Case Study Two: Safeco Field in Seattle,WA. Safeco Field, home to baseball’s SeattleMariners, was constructed in 1999 andborders three neighborhoods. Recognizingthe residential and business needs of theseneighborhoods, the City of Seattle developedan Inaugural Season TransportationManagement Program (TMP) for events atthe stadium venue. (7)Key strategies included:• Participating stakeholders set the followingTMP goal: The primary goal, firstand foremost, is reducing the number ofvehicles, drive-alone and otherwise, associatedwith game attendance, therebydeflecting the traffic and parking impactsfrom the adjacent destinationneighborhoods and the regional transportationsystem as a whole. The goals,which are stepped according to the kindsof and anticipated attendance, are expressedin vehicles per thousand attendees.• The Mariners organization, City staff,and the public formed the event planningteam charged with developing the TMP.Table 5-6Seahawk Football Transportation Management Program Goals and Objectives (6)GOALTravel reductionTravel timeDuration of post-gametrafficMEASURENo more than 195cars/1000 attendeesWithin 5% of Husky gametravel timesEqual to or less than afterHusky gamesMEASURED PER-FORMANCEGOAL MET?182 cars/1000 attendees Yes-0.1% to 4.7% differentthan for Husky gamesYes35 minutes less Yes5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-11

• The stakeholders focused on meetingnumerous performance-based trafficdemand mitigation requirements, varyingby type of event and attendance levels,set by the Seattle City Council uponissuing a stadium master use permit.• First year operation performance goalsfor Mariner’s baseball games rangedfrom 330 (sell-out) to 345 vehicles per1000 attendees. The permit specifiedthird year operation and beyond performancegoals ranging from 275 (sellout)to 325 vehicles per 1000 attendees.• A top priority for the TMP concerneddeflecting special event parking impactson the surrounding neighborhoods to theSeattle Central Business District.• Table 5-7 lists specific measures consideredby City officials to minimize onstreetparking by event patrons in adjacentneighborhoods.Case Study Three: U.S. Cellular Field inChicago, IL. The City of Chicago DOTmaintains a Resident Parking Permit Programto preserve legal on-street parking forresidents of neighborhoods surrounding U.S.Cellular Field during all Chicago White Soxbaseball games. (8)Key elements of the Resident Parking PermitProgram include:• For residents living within the programarea, the City issues one resident parkingpermit per registered vehicle in additionto one guest permit per resident.Table 5-7Measures Considered in Developing a Neighborhood Parking Management Planfor 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 baseballseason, for instance).• Impose time limits on parking after 6 p.m. with signs (rather than extend meter hours, place 2 hour limits onmetered 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.5-12

• The City also makes available guestparking permits for area businesses andchurches to allow customers and congregationmembers to park in legal onstreetparking spaces and gain access tooff-street business/church parking withinthe program area.• Figure 5-4 shows a sign enforcing theResident Parking Permit Program.• The City has a similar permit program inplace for neighborhoods surroundingWrigley Field, home to baseball’s ChicagoCubs.Figure 5-4Chicago Resident Permit Parking ProgramEnforcementStakeholder Review of PlanningProductsThe previous chapter summarized variouscriteria for planned special event permit approval.However, as indicated in Figure 5-3,the event operations planning phase includesintermediate and final review periods for theevent feasibility study and traffic managementplan.Stakeholder review concentrates on theidentification and proposed mitigation ofevent travel impacts. Effective and rapidstakeholder review of event operations planningproducts requires: (1) an annotatedplanning timeline, (2) a review process, and(3) performance standards.Annotated Planning TimelineIn cases where an event planning team collectivelydevelops a feasibility study, trafficmanagement plan, and associated mitigationstrategies, an annotated planning timelineproves effective for monitoring team progress.The Wisconsin DOT found such a tool usefulfor tracking specific traffic managementplanning and infrastructure deployment activitiesrequired to prepare for the openingof Miller Park in Milwaukee. The agencymaintained a responsibility matrix listingeach action item, the stakeholder responsible,the due date, and the present deploymentstatus. An event planning team shouldestablish an annotated planning timelineearly in the event operations planning phaseand use the tool to guide subsequent teammeeting agendas as stakeholders developevent impact mitigation strategies and tactics.Review ProcessAdopting a formal review process reducesunnecessary delay in producing event operationsplanning deliverables required to stagea planned special event. Key aspects to beconsidered include:• The review process should feature theoversight team monitoring and reviewingplans developed by the event planningteam.• The oversight team typically consists ofmid-to-upper level representatives of5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-13

transportation agencies and law enforcementin addition to elected officialsand ranking officials of other publicagencies.• A regional organization may assume theduties of an oversight team.• Under a formal review process, an eventplanning team may seek oversight teamapproval of a feasibility study scope orconceptual traffic management planprior to commencing work on the finaldeliverable. Both stakeholder groups interactagain to review feasibility studyresults and final traffic management operationsplans.• Some jurisdictions have a championcharged with resolving institutional andoperations issues affecting travel managementfor planned special events.These champions have the position tomitigate issues hampering the event operationsplanning process. Therefore,they should administer the review process.• Jurisdictions should have an alternateofficial ready to replace the currentchampion should that person resign frompresent duty.Performance StandardsThis chapter included a review of varioustransportation system operations performanceobjectives and associated measures ofeffectiveness that stakeholders may use tomonitor system performance on the day-ofeventand, in turn, evaluate travel managementefforts. During the event operationsplanning phase, stakeholders must set andagree to performance standards used to assesstraffic impact mitigation proposals.These performance standards typically representlevel of service (LOS) measures applicableto freeway and street segments,freeway junctions, and roadway intersections.Stakeholders assigned to developmitigation strategies or review planned specialevent impacts on traffic should referencejurisdiction Traffic Impact Studyguidelines defining accepted LOS thresholds.The LOS thresholds likely vary byroadway classification. In urban and metropolitanareas, jurisdictions may deem anLOS D, describing high-density stable flow,acceptable for freeways, arterials, and majorintersections. Similarly, an LOS C, describingstable flow, may represent the allowablethreshold for local streets and intersections.Small urban and rural areas may have morestringent requirements. Jurisdictions mayrelax their performance standards and allowLOS E operation, describing unstablecapacity flow, on major roadway facilitiesfor infrequent planned special events.Policies and AgreementsThe establishment of special policies andagreements to support planning and day-ofeventmanagement of planned special eventsfacilitates efficient stakeholder collaborationand defines important event support stakeholderservices that may be incorporatedinto a traffic management plan for a particularplanned special event. These initiativesimprove interagency relationships, clarifydecision-making responsibilities and expectations,and secure on-call services andagency actions. For instance, a particularpolicy or agreement may intuitively supporta contingency response plan to mitigate unanticipatedcongestion delay on the day-ofevent.Stakeholders may develop policiesand agreements specific to a particularplanned special event or for all planned specialevents in a region. Because of the potentialsignificant time to develop and approvea particular policy or agreement,stakeholders should establish these initiativesearly in the event operations planningphase or during the program planning phase.5-14

Table 5-8 summarizes four types of policiesand agreements involving stakeholders responsiblefor event operations planningand/or day-of-event operations.Interagency AgreementInteragency agreements include a joint operationspolicy, memorandum ofunderstanding, or mutual-aid agreementbetween two or more stakeholders. Table 5-9 lists components of interagencyagreements. Appendix C contains anIllinois and Washington State joint operationspolicy, between state DOT and statepolice, that covers special event planning.(9,10) Stakeholders may also strike aninteragency agreement, during the eventoperations planning phase, applicable to aspecific planned special event.Standard Street Use Event RoutesThe development and use of standard streetuse event routes reduces the level and complexityof event operations planning tasksand overall planning time. In establishingsuch standard routes for parades and/orstreet races, stakeholders simplify planningtasks, thus creating a more efficient eventoperations planning process. The routesspecify appropriate event starting and endingpoints coupled with staging areas forparticipant assembly and disbanding.Use of a standard street use event route offersthe following advantages:• Allows reuse of traffic management andoperations plans, with minor modificationsas necessary.• Realizes a cost savings for stakeholders.• Allows for the development of standardsigns, specific to the event route and associatedalternate routes for backgroundtraffic, that may be reused for futurestreet use events.• Allows event patrons and non-attendeeroad users to become familiar with trafficpatterns during recurring street useevents, thus minimizing potential trafficproblems on the day-of-event.Toll Facility Congestion PolicySuspension of toll collections on turnpikesand other toll facilities during periods ofheavy congestion represents a new policyconcept aimed at reducing congestion andthe occurrence of traffic incidents at toll plazas.A toll facility congestion policy representsa congestion mitigation strategy applicableto planned special events. Both WestVirginia and Maryland have experience withthis policy:Table 5-8Summary of Policies and Agreements Applicable to Managing Planned Special EventsITEMEXAMPLE APPLICATIONInteragency agreement • Joint operations policy between stakeholders that establishes a shared roleregarding 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 reimbursementfor services.Standard street use event routes • Routes established under the program planning phase for recurring streetuse 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.5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-15

Table 5-9Components of Interagency AgreementsCOMPONENT• Advance planning duties and responsibilities• Day-of-event duties and responsibilities• Organization• Resource sharing• Funding reimbursement mechanisms• A West Virginia Turnpike policy, enactedin December 2002, allows Turnpikeofficials to open toll plazas for 15minutes any time vehicle queues extendat least three miles upstream of theplaza. After the 15-minute period ends,officials can determine whether thequeue dispersed or if another 15-minuteperiod is required. Under normal operations,Turnpike officials estimate that avehicle joining a three-mile queue takesapproximately 15 minutes to passthrough a toll plaza. Officials noted 15minor crashes occurred on the Sundayafter Thanksgiving in 2002, the Turnpike’sbusiest day of the year. (11)• State legislators in Maryland debated aproposed bill in 2003 to create a similarpolicy for the Chesapeake BayBridge. (12) The bill specifies suspendingtolls if a traffic queue extends more thanfive miles upstream of the toll plaza andis moving at less than 30 miles per hour.The increasing deployment of electronictolling may obviate the need for thesestrategies in the future.Public-Private Towing AgreementPrivate towing companies perform a specificfunctional activity in traffic incident management,that is, removal of disabled orwrecked vehicles, spilled cargo, and debrisfrom an incident site. Law enforcement andtraffic operations agencies alike have recognizedthe indispensable role private towingcompanies have in effecting incident removaland restoring the affected road sectionback to normal operation. Public agenciescommonly enter into agreements withone or more commercial towing companiesto secure on-call traffic incident clearanceservices, or at a minimum, the agenciesmaintain a contact list of local private towingcompanies.Traffic incident management represents akey consideration in event operations planning.Event planning team stakeholdersmay establish event-specific public-privatetowing agreements to secure on-site towingand recovery services. For instance, theCity of Cincinnati has established, under theCity rules and regulations for police rotationwreckers, a special event tow category. (13)The City defines a special event tow as“when tow operator remains with police officerfor a specified period of time towing ormoving vehicles as need arises.” The Cityregulation specifies a special event tow rateof $20.00 per tow or $35.00 per hour,whichever is greater.FEASIBILITY STUDYOverviewThe structure and approach of a plannedspecial event feasibility study resembles aTraffic Impact Study required for planneddevelopments, as illustrated in Figure 5-5.The figure shows the sequential steps inpreparing a feasibility study for a plannedspecial event.Table 5-10 provides an overview of the firstfive feasibility study components. The accuracyof one analysis influences that of another.Achieving predictability, a goal ofmanaging travel for planned special events,represents the focus of a feasibility studyeffort.5-16

STEP SIXMITIGATION OF IMPACTSTraffic management plan5STEP FIVEROADWAY CAPACITY ANALYSISSTEP FOURTRAFFIC DEMAND ANALYSISImpact assessmentTrip assignmentOVERVIEWSTEP THREEPARKING DEMAND ANALYSISDirectional distribution(destination)Figure 5-5Feasibility Study Analysis StepsTable 5-10Feasibility Study Analysis SummaryCOMPONENT ANALYSIS RESULT APPLICATIONTravel forecast • Modal split • Number of trips by mode oftravel• Input into parking demandanalysis.• Event traffic generation• Number of vehicle trips bypersonal automobile• Input into traffic demandanalysis.• Traffic arrival rate • Number of trips per unit oftimeMarket areaanalysis• Event trip origin • Geographic location of eventtrip origins and percent split• Input into traffic demandanalysis.Parking demandanalysisTraffic demandanalysisRoadway capacityanalysisSTEP TWOMARKET AREA ANALYSISSTEP ONETRAVEL FORECAST• Background parkingoccupancy• Number of non-attendee vehiclesper parking area andunit of time• Event parking demand • Number of event-generatedvehicles per parking area andunit of time• Background trafficflow• Event traffic assignment• Section and point capacityDirectional distribution(origin)Trip generation• Background traffic demandrate, adjusted for eventrequiredroad closures• Event traffic demand rate perassigned route• Identification of capacityconstraints and level of service• Network operations • Identification of bottlenecklocations and saturation flowrates• Input into event parkingoccupancy.• Input into traffic demandanalysis.• Input into roadway capacityanalysis.• Input into traffic managementplan.• Input into travel demandmanagement assessment.DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE5-17

The feasibility study gauges the impact aproposed event has on traffic and parkingoperations in the vicinity of the venue. Itdetermines if a particular planned specialevent will cause travel problems, where andwhen the problems will occur, and the magnitudeof each identified problem usingvarious MOEs. Initially, the study is conductedwithout roadway capacity improvementsor initiatives to reduce travel demand.Once the feasibility study identifies eventtravel problems, practitioners can take stepsto mitigate transportation system deficiencies.These results define the scope of thetraffic management plan required to successfullymanage travel for a planned specialevent.Data RequirementsFeasibility study input data requirementsreflect measures of the three core factorsthat determine the impact of the event:travel demand, road/site capacity, and eventoperation. Table 5-11 summarizes varioustypes of input data to consider in a feasibilitystudy. This includes transportation systeminfrastructure, background traffic, andarea data and information. With the assistanceof other event planning team stakeholdersmost data types are accessible.Travel demand data is used to develop theevent travel forecast and to determine theevent area of impact. Background trafficdata describes the scope of available roadwayand parking capacity for event patrontraffic. Information regarding the venuearea assists in identifying possible event patrontrip origins. For example, a venue locatedin a downtown area may attract a significantnumber of patrons arriving fromwork, thus possibly reducing the number oftransit or vehicular trips generated. Eventshaving a regional or greater scope may involvea significant number of patrons stayingat area hotels. To increase travel forecastaccuracy and meet the goal of achievingpredictability, practitioners should researchappropriate historical data.The identification and quantification of siteand transportation system capacity involvesperforming a full inventory of the transportationsystem infrastructure serving theevent venue. This includes obtaining dataon roadway geometrics and associated regulations(e.g., speed limits and travel restrictions).An inventory of freeway facilitiesshould include the capacity of such freewaycomponents as ramp junctions and weavingsections. In addition, street traffic controldevices and signal timing plans must beidentified and saturation flow rates determined.Event operation characteristics impact bothtravel demand and available capacity. Theknowledge of certain event logistics, combinedwith available historical data, can helppredict the rate of event patron arrivals anddepartures over time. Practitioners, in tandemwith the event organizer, must alsoidentify the scope of road closures and parkingarea needed just to stage the event (e.g.,parade/race route, hospitality areas, etc.).This does not include the roadway capacityand parking needed to accommodate eventpatron traffic.Travel ForecastTravel forecast analysis involves estimating:(1) modal split, (2) event traffic generation,and (3) traffic arrival rate. Event planningteam stakeholders that typically collaborateon this analysis include a traffic operationsagency, traffic engineering consultant, transitagency, and event organizer. The eventorganizer supplies key input data regardingevent operation. The transit agency assists5-18

Table 5-11Feasibility Study Data RequirementsFACTOR INPUT DATA DESCRIPTIONTravelDemandRoad/SiteCapacityEventOperation• Event patrontraffic• Backgroundtraffic• Daily attendance• Event patron demographics (e.g., advance/season ticket holder place ofresidence or zip code)• Admission (general/reserved seating and free/cost)• Venue attendance capacity• Acceptable walking times (e.g., to determine available parking areas andpercent walking trips)• Hourly traffic volumes• 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 volumesevents) • Parking demand (e.g., parking demand rate)• Vehicle occupancy• Hourly/sub-hourly event patron arrival and departure distribution• Modal spilt• Patron survey (e.g., demographics and travel)• Roadwayfacilities• Parkingavailability• Transit availability• Event logistics• Existing, areawide roadway networko Freeway and arterial corridorso 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• Location and capacity of site access points• 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• Number and location of transit stations serving venue (e.g., public transportation– 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)• Venue location• 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 forevent participants, hospitality tents, etc.)5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-19

in estimating modal split. The traffic operationsagency or traffic engineering consultantperforms the analysis, and either stakeholdermay research historical traffic andparking data or maintain a data archive relatedto operations for similar planned specialevents.Modal SplitUnder the scope of a feasibility study, modalsplit concerns identifying the existing modesof travel event patrons will use to access theevent venue site. Common travel modesinclude personal automobile, public transit,and walking. Public transit refers to scheduledbus transit or commuter rail. Transitagencies may assist in determining a basetransit split, without service incentives orpromotion, for patrons traveling to/from theevent.Illustrated in Figure 5-6, some patrons of the1986 and 1995 U.S. Golf Open in ruralSouthampton, NY found the Long IslandRail Road commuter rail service an efficientand convenient mode of travel to/from ShinnecockHills Country Club. To assure considerationof appropriate roadway mitigation,transportation operations planners analyzeda range of modal split percentages inthe feasibility study to account for variousscenarios. Commuter rail or other peoplemover systems exist in several metropolitanareas across the Nation and usually provideregular service to city stadium and arenavenues. Transit availability includes scheduledexpress and charter bus service operatingfrom other cities, suburban park and ridelots, and city neighborhoods.Table 5-12 lists surveyed modal splits fordiscrete/recurring events at a permanentvenue in San Francisco, New York, and SanDiego. The baseball stadium venues in SanFrancisco and New York, located within ametropolitan area, have excellent scheduledtransit service, including commuter rail.Stadiums located in suburban areas, such asQualcomm Stadium in San Diego, and ruralareas generally have a high percentage ofautomobile trips.Travel time, travel convenience, parking accessibilityand cost weighs significantly onan event patron’s decision to drive or utilizean alternate mode of travel. This likelyrepresents another contributor to the hightransit split in the San Francisco example,where Pacific Bell Park resides adjacent tothe downtown area. Other modes of travelinclude bicycle and taxi.Figure 5-6Commuter Rail Modal SplitWalking trips deserve consideration in modalsplit estimates for planned special eventsoccurring at downtown venues. Practitionersmust consider the proximity of5-20

Table 5-12Example Modal Split for Discrete/Recurring Events at a Permanent VenueMODE OF TRAVELEVENT ATTENDANCEAUTO TRANSIT WALKING OTHERSan Francisco Giants38,000 – 41,000weekday baseball game –August 2000 (14) (capacity 41,000)48% 41% 8% 3%San Francisco Giants38,000 – 41,000weeknight baseball game –August 2000 (14) (capacity 41,000)50% 37% 7% 6%San Francisco Giants38,000 – 41,000weekend baseball game –August 2000 (14) (capacity 41,000)58% 34% 5% 4%New York Mets weeknight18,000baseball game –June 1997 (15) (capacity 56,500)59% 41% -- --San Diego Padres weekdaybaseball game – April/May Unknown 85% 12% -- 3%1998 (16)San Diego Padresweeknight baseball game – Unknown 95% 5% -- --April/May 1998 (16)San Diego Padres weekendevening baseball game –April/May 1998 (16) Unknown 85% 12% -- 3%employment centers, residential developments,and hotels to a planned special eventvenue before dismissing walking as a viabletravel mode. Venues located on universitycampuses typically draw a measurable percentageof walking trips. Surveys for collegefootball games have reported as manyas 10 to 25 percent of event patrons arrivingby foot. (17)Practitioners can best obtain measured dataon planned special event modal split throughconducting a survey of event patrons. AppendixD contains an Internet-based eventpatron evaluation survey for those attendingthe 2003 Fair Saint Louis festival. In additionto querying event patrons on mode oftravel, obtaining origin location information(e.g., zip code) assists event planning teamstakeholders configure transit schedules orexpress and charter bus services for futuresimilar events.Event Traffic GenerationUnlike other traffic generators such ascommercial developments, planned specialevent practitioners typically have advanceknowledge of event attendance and, in turn,can develop traffic generation estimates viavehicle occupancy factors. On the otherhand, traffic generation rates, based on eventtraffic volume or parking occupancy data,may not be appropriate for transfer and applicationfrom one special event to another.Too many variables exist with regard toevent category, event logistics, event popularity,weather, and parking characteristics.Event operations and other external variablesaffect any application of historical datato future events.Table 5-13 outlines a two-step process forforecasting event traffic generation. Inputdata includes a modal split estimate since5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-21

Table 5-13Traffic Generation Forecast ProcessCOMPONENTDETAILInput data • Daily attendance • Percent automobile trips • Vehicle occupancy factorMethodStep 1. (Daily Attendance) x (Percent Automobile Trips) = Person Trips Via AutomobileStep 2. (Person Trips) / (Vehicle Occupancy Factor) = Vehicle TripsResult • Number of vehicle trips by personal automobile both to and from the eventthe traffic generation forecast aims to estimatethe number of event-generated trips bypersonal automobile. In the absence of adaily attendance estimate, practitioners canuse percentage of venue capacity as a base.However, many continuous events or streetuse events do not have a pre-specified venuecapacity. Continuous events, such as fairsand festivals, often run for two or moredays. Attendance generally fluctuatesgreatly from day to day, with Saturday operationsyielding the highest daily attendance.A study of two-day (Saturday/Sunday)festivals in West Virginia indicated58 percent of the total festival atten-In order to estimate peak traffic volumesgenerated by an event, practitioners mustestimate the time and scope of peak trafficflow during event ingress and egress. Trafficarrival and departure rate indicates thepeak period (e.g., hour or 15 minute) ofevent-generated traffic. The rate is used todetermine the following key parameters forinput into the traffic demand analysis: (1)peak period time and (2) percent of totalevent-generated traffic within the peak period.Event operation characteristics thatinfluence traffic arrival and departure ratesinclude:Traffic Arrival and Departure Ratedance was on Saturday. (18) The same studynoted the following total event attendancedistribution for three-day festivals: 20 percenton Friday, 50 percent on Saturday, and30 percent on Sunday. It should be recognizedthat daily attendance reflects scheduledheadline entertainment or other mainfestival events.Vehicle occupancy factors can serve as thebasis for estimating event-generated traffic.Table 5-14 lists average vehicle occupancyfactors for select discrete/recurring events ata permanent venue and continuous events.A discrete/recurring event at a permanentvenue that occurs on the weekend will likelyhave a higher vehicle occupancy factor dueto families and groups of tailgaters. A vehicleoccupancy factor of 2.5 persons per vehiclerepresents a common assumption,however for forecasting purposes, practitionersshould consider a range of factors from2.2 to 2.8 depending on local conditions. (15)• Event time and duration – e.g., specificstart time, abrupt end time, continuousoperation.• Event time of occurrence – e.g.,day/night, weekday/weekend.• Audience accommodation – e.g., reservedseating, general admission.• Event type – e.g., sports/concert,fair/festival, parade/race.This section focuses on estimating the trafficarrival rate. The temporal share of eventpatron arrivals vary considerably by eventtype and requires prediction by practitioners.Traffic arriving to an event can potentiallycause greater impacts to background trafficmobility than event departure traffic. This isattributed to arrival traffic typically travelingfrom high-capacity roadway facilities (e.g.,freeways and arterials) to low-capacity facilities(e.g., venue access roads). Roadway5-22

Table 5-14Example Planned Special Event Vehicle Occupancy FactorsEVENT ATTENDANCE AVERAGE VEHICLE OCCUPANCYDiscrete/Recurring Event at a Permanent VenueSan Francisco Giants baseball games –38,000 – 41,000August 2000 (14) (capacity 41,000)2.8 persons per automobileAnaheim Angels weeknight baseball game –18,197July 1997 (15) (capacity 37,000)2.6 persons per automobileCleveland Indians Saturday baseball game –43,070July 1997 (15) (capacity 43,368)2.64 persons per automobileNew York Mets weeknight baseball game –18,000June 1997 (15) (capacity 56,500)2.31 persons per automobileSan Diego Padres weekday baseball game –April/May 1998 (16) Unknown 2.3 persons per automobileSan Diego Padres weeknight baseball game– April/May 1998 (16) Unknown 2.5 persons per automobileSan Diego Padres weekend eveningbaseball game – April/May 1998 (16) Unknown 3.0-3.1 persons per automobileDenver Broncos football games –1998/2001 (19) 76,000Continuous Event1997 Stonewall Jackson Heritage Arts &45,000 to 50,000Crafts Jubilee - West Virginia (18) (four-day total)1997 West Virginia Honey Festival (18) 6,000(two-day total)1997 West Virginia Wine & Jazz3,500Festival (18) (two-day total)22 nd Mountain Heritage Arts & Crafts Festival– West Virginia (18) (three-day25,000total)congestion that occurs during event ingressmay create queue spillbacks to freeways andmajor streets, thus impacting backgroundtraffic.Drivers departing an event venue site generallyhave little or no choice of exit routes.Roadway capacity constraints include freewayentrance ramps and turning movementsto arterials and other major collector roadways.Departing traffic queues are usuallyconstrained to the venue access roadway andspillback into the parking areas. Figure 5-7shows traffic operations, following a footballgame at Qualcomm Stadium in SanDiego, CA, at: (1) a freeway entrance ramp,(2) a venue access road upstream of a freeway,and (3) an on-site venue parking area.3.0 persons per automobile on-site;2.3 persons per automobile off-site2.46 persons per automobile2.15 persons per automobile2.42 persons per automobile2.30 persons per automobileFigure 5-7Event Patron Departure from a Discrete/RecurringEvent at a Permanent Venue5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-23

Table 5-15 indicates traffic arrival rates andtime of peak arrival for select discrete/recurringevents at a permanent venueand continuous events. Time of arrival dependson audience accommodation (e.g.,general admission or reserved seating)and/or the nature of pre-event activities.Such activities include tailgating or practices.Figure 5-8 illustrates NASCAR preracepreparations that attract a significantnumber of event patrons well before theevent start.As illustrated in Table 5-15, the traffic arrivalrate for sporting games and concertspeaks within one hour of the event start.Due to high traffic arrival concentration,practitioners may consider estimating a peak15-minute traffic arrival rate and associatedpeak hour factor for roadway capacityanalysis. With regard to continuous events,peak traffic arrival rate generally occursimmediately prior to the event start. Sinceevent patrons do not place a high priority onmeeting a continuous event start time, theconcentration of continuous event arrivals isrelatively low compared to other event categories.The peak level of event-generatedtraffic demand may occur during the middleof a continuous event operating period whenboth event arrival and departure traffic traversethe roadway system as patrons comeand go from the event.Practitioners may use event patron travelsurveys in addition to historical eventgeneratedtraffic volume and/or parking occupancycounts to estimate the traffic arrivalrate and peak time of occurrence. It shouldbe noted that weather conditions, particularlyfor continuous events and street useevents, may significantly skew data. Thus,practitioners must exercise great care whendeveloping future event estimates from historicaldata.Table 5-15Example Planned Special Event Traffic Arrival Rate CharacteristicsEVENT SITE PEAK TRAFFICEVENTATTENDANCESTART OPEN FLOW OCCURRENCEDiscrete/Recurring Event at a Permanent Venue2001 NASCAR Kansas 400 (20) 100,000+ 12:00 P.M. 6:00 A.M. 8:00 A.M.2+ hours 1 hour before first pitchAnaheim Angels weeknight18,197baseball game – July 1997 (15) Evening before first (82% of arrivals – 29%(capacity 37,000)pitch peak 15 minutes)Cleveland Indians Saturdaybaseball game – July 1997 (15) 43,070(capacity 43,368)New York Mets weeknightbaseball game – June 1997 (15) 18,000(capacity 56,500)AfternoonEveningContinuous Event2+ hoursbefore firstpitch2+ hoursbefore firstpitchLouisiana World Exposition inNew Orleans – weekday August1984 (21) 35,700 10:00 A.M. --Louisiana World Exposition inNew Orleans – Saturday in August Unknown 10:00 A.M. --1984 (21)1 hour before first pitch(67% of arrivals – 19%peak 15 minutes)1 hour before first pitch(62% of arrivals – 16%peak 15 minutes)31% of event patrons arrivedby 11:00 A.M.29% of event patrons arrivedby 11:00 A.M.5-24

not offer advance ticket sales typically requirea market analysis based on travel timeor distance and referencing area populationdistribution.5Figure 5-8Pre-Event ActivityMarket Area AnalysisA market area analysis identifies the originand destination of trips to and from aplanned special event. The analysis focuseson developing a regional directional distributionof event patron trips to/from an eventsite via personal automobile. The site refersto the collective parking areas serving thevenue. A regional directional distributionspecifies: (1) the freeway and arterial corridorsserving the venue site and (2) the percentsplit and volume of event-generatedautomobile trips traversing each corridor.Appendix E contains a regional directionaldistribution prepared for the NASCAR Kansas400 race. (20)Table 5-16 summarizes three analysis methodsused to define a planned special eventmarket area.Travel Time and Distance AnalysisPractitioners can apply a travel time analysisor distance analysis to estimate the marketarea for any planned special event. Continuousevents or street use events that doFigure 5-9 illustrates an example travel timeanalysis for a downtown Chicago lakefrontfireworks display. A geographic informationsystem or other mapping software toolcan create travel time zones, as shown in thefigure, based on user-defined thresholds.Multiple travel time zones allow users toperform a weighted analysis of populationdistribution. Practitioners should categorizearea population within each travel time zoneby zip code or, for a 15 minute threshold orless, by census tract. Most geographic informationsystems and computer mappingtools generate spreadsheets identifying allspatial population categories within eachtravel time zone. Using the spreadsheet,practitioners can assign a freeway or arterialcorridor, serving the event venue site, toeach defined population category. Thepopulation distribution among roadway systemcorridors constitutes the regional directionaldistribution for the planned specialevent. Practitioners can also incorporateCensus socioeconomic data into an analysisas necessary.The described travel time analysis methodologyapplies to a distance analysis as well.Instead of travel time thresholds, users definedistance thresholds. Practitionersshould exercise care in developing a plannedspecial event market area by travel time orabsolute distance to the event venue site:• In the case of continuous events orstreet use events, the market areamust incorporate only the communityor region the event is staged for.EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-25

Table 5-16Market Area Analysis MethodsMETHODDESCRIPTIONTravel 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 seasonticket holder place of residence (e.g.,place or zip code) or place of trip origin obtainedthrough a past/similar event travelsurvey. An event economic impact studyalso indicates the cities or regions patronswill arrive from. A discrete/recurring eventat a permanent venue requires ticket sales,and event organizers initiate ticket salesweeks and even months in advance of theevent. But, event organizers or ticket salescompanies may consider customer informationconfidential or proprietary.Figure 5-9Example Travel Time Analysis• Discrete/recurring events at a permanentvenue, such as professional/major collegesporting events or major concerts,warrant an expanded market area.• A travel time or distance analysis forthese events should not reflect a sensitivityto travel time or distance at thecity/suburb level. In other words, anevent patron located in a city suburbtypically does not factor travel time intoa decision to attend a professional or majorcollege sporting event at a downtownvenue.Origin Location AnalysisAn origin location analysis represents themost accurate method for developing anevent-specific regional directional distribution.This analysis utilizes a statisticallysignificant database of event patron travelAn event patron travel survey (see AppendixD) proves effective in determining the exactorigin of a patron trip to a planned specialevent. For instance, weekday events mayattract a significant percentage of non-homebasedtrips as event patrons arrive fromwork. A survey of patrons attending weeknightbaseball games at Pacific Bell Park inSan Francisco indicates 28 percent of patronscome from work. (14) An event patrontravel survey captures this critical information.Event patron departures from the eventvenue site typically involve home as a destination.Practitioners performing an origin locationanalysis determine a geographical distributionof event patron origins. In turn, thisdistribution defines the freeway and arterialcorridors that event patrons will use to accessthe event venue site in addition to atraffic distribution. An origin locationanalysis applies to all planned specialevents.5-26

Parking Demand AnalysisA parking demand analysis functions to determinethe amount of required parking forevent patrons in the vicinity of the eventvenue. A parking occupancy study drivesthe overall analysis and determination ofevent parking areas. This study indicates thelevel of parking spaces occupied, relative tolot capacity, at intermittent time intervals. Italso specifies an estimate of peak parkingdemand, a figure particularly useful formanaging continuous events where parkingspace turnover occurs throughout the eventday.Figure 5-10 presents a parking demandanalysis process used to determine the adequacyof event venue (on-site) parking andthe identification of appropriate off-siteparking areas. The flowchart denotes ananalysis conducted for a one-time interval.Practitioners should perform an iterativeparking demand analysis, over hourly timeperiods as necessary, if considering parkingareas characterized by high backgroundparking turnover.Examination of on-site parking areas mustaccount for spaces lost to the event sponsors,bus staging, limousine and taxi staging, mediaparking, event employee parking, andevent participant parking. Net parking supplyincorporates event staging needs and anybackground traffic that can legally use theparking area during event hours of operation.In order to conceptually measure parkingsupply within a non-striped area, assume150 cars per acre as a rule of thumb. (22) Thetravel forecast analysis yields an estimate ofparking demand by quantifying the anticipatednumber of event-generated automobiletrips. Aside from continuous events, practitionersshould perform a parking demandanalysis that accounts for maximum eventgeneratedparking demand.In evaluating parking supply versus demand,consider as a rule of thumb that 90 to 95percent lot occupancy represents a full parkingarea. (23) This especially applies underscenarios where event patrons must selfpark.When a parking area reaches a nearcapacityoccupancy level, drivers experiencedifficulty locating an empty parking spaceand must circulate through the lot again orseek another parking area. Continuousevents and street use events often utilizeself-park areas.Overflow parking areas comprise both onstreetparking and public/private off-streetparking areas, located off-site but in the immediatevicinity of the event venue. Figure5-11 shows a designated off-street parkingarea, as noted by a light post banner, for theSummerfest music festival in downtownMilwaukee, WI. Identification of off-siteparking areas depends on walking distanceto the event venue. For example, a 15-minute walking time threshold allows considerationof off-street parking areas within3,600 feet of an event venue, assuming apedestrian walking speed of 4 feet per second.Parking areas located further from thevenue would require a continuous shuttleservice.Table 5-17 shows a parking occupancy summaryfor a regional/multi-venue event indowntown Denver, CO. The spreadsheetformat conveniently organizes and presentsoccupancy estimates by time of day and dayof week. A parking demand analysis for aregional/multi-venue event presents specialchallenges. Practitioners must determine thehourly parking requirements for each facilityseparately. Parking areas in this case functionunder shared parking operation, servicingvariable demand rates from differentplanned special events over the course of aday.5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-27

Identify On-SiteParking Area(s)ParkingAreaStriped?NoUse 150 cars/acre toEstimate Numberof SpacesYesEstimateEvent-GeneratedVehicle TripsInventory GrossNumber ofOn-Site SpacesEstimate Number ofSpaces Needed toStage EventOn-Site ParkingSupply > Demand?YesDONEMeasure On-SiteParking AreaBackground OccupancyNoIdentify Off-SiteParking AreaNoWalkingDistance to VenueAcceptable?NoShuttle ServiceAvailable forEvent?YesYesParkingStriped?NoUse 150 cars/acre toEstimate Numberof SpacesYesInventory GrossNumber ofOff-Site SpacesCompute NetRemaining EventParking DemandMeasure Off-SiteParking AreaBackground OccupancyOff-Site ParkingSupply > RemainingDemand?NoYesDONEFigure 5-10Parking Demand Analysis Process5-28

Figure 5-11Designated Event Off-Site Parking AreaTable 5-17Example Event Parking OccupancySummary (23)Traffic Demand AnalysisA traffic demand analysis determines: (1) alocal area directional distribution and (2) theoverall assignment of event-generated traffic.This analysis references results obtainedthrough the travel forecast, market areaanalysis, and parking demand analysis.The local area directional distribution indicatesfreeway ramps and intersections, includingturning movements, traversed byevent-generated traffic arriving to or departingfrom a planned special event. The regionaldirectional distribution, as determinedin the market area analysis, quantifies thepercentage of event patron trips (e.g., origins)by regional freeway and arterial corridor,and the planned special event parkingareas, as determined in the parking demandanalysis, represent sink nodes or location oftrip destination. Traffic assignment includesevent-generated automobile traffic, expressbuses, charter buses, limousines, and othervehicles transporting event patrons, participants,and event employees. Practitionersperforming traffic demand analyses shouldpossess a personal knowledge of the roadwaysystem surrounding an event venue inaddition to existing traffic conditions.A parking demand analysis assesses eventparking sufficiency. The analysis does notdefine local traffic patterns to/from individualparking areas. Practitioners, instead,must gauge the utility associated with driverschoosing individual parking areas. Thekey components comprising this utility includedriving time, parking cost, and walkingtime. (24) The attractiveness of each lotvaries by freeway or arterial corridor servingthe event site, yet event patrons will accept amoderate increase in overall driving/walkingtime in exchange for a substantial parkingcost savings. The event planning team andtraffic management team must recognizesuch driver behavior and formulate the appropriatetraffic flow routes and developtraffic management strategies to manage siteaccess and circulation effectively. Figure 5-12 illustrates one strategy, instituting onstreetparking restrictions on the day-ofevent.Pre-trip and en-route traveler informationalso influences driver choice regardingparking selection.5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-29

oad segment capacity analysis conducted aspart of a feasibility study for a regional/multi-venueevent in Denver, CO.Figure 5-12Local Area Planned Special Event ParkingRestrictionTraffic demand analysis includes developingcomposite background and event-generatedtraffic projections for all roadway systemfacilities serving the event venue. Compositetraffic volumes expressed as an hourly(or sub-hourly) rate meet roadway capacityanalysis input requirements. These ratesidentify the peak hour capacity analysis periodsduring event patron arrival and/or departure.Practitioners must adjust backgroundtraffic volumes to account for displacedand diverted traffic due to road closuresrequired to stage the planned specialevent. These road closures alter traffic patternsto/from commercial trip generators,residential areas, and places of worship.Displaced background traffic assignmentinvolves identifying the shortest path alternateroute that has excess capacity.As a preliminary step to assess the need toperform a detailed roadway capacity analysis,draw a circular screen line (e.g., 0.5 to 1mile radius) around the event venue site.Note each roadway segment intercepted bythe screen line, and estimate the segment’scapacity in each direction of travel. Create achart of hourly composite traffic volumesfor each identified segment, and assess capacitydeficiencies in both directions oftravel. Figure 5-13 shows a preliminaryFigure 5-13Example Preliminary Road SegmentCapacity Analysis (23)Roadway Capacity AnalysisA roadway capacity analysis uses trafficdemand analysis results to measure the impactof a proposed planned special event onroadway system operations. At the feasibilitystudy level, a roadway capacity analysisreferences existing roadway facility operationsand capacity (e.g., no reverse flow operationor other capacity enhancements).The analysis assumes pedestrian accessmanagement strategies will minimize pedestrian/vehicularconflicts, and parking areaaccess points provide sufficient service flowrates through proper design. Regardless ofcapacity analysis outcome, pedestrian accommodationand parking management representkey considerations in a planned specialevent traffic management plan.Roadway capacity analysis involves freewaysegments, freeway junctions such as rampsand weaving areas, street segments, signalizedintersections, and unsignalized intersections.To evaluate these facilities, practitionerscan employ one of two approaches: (1)analyze section and point capacity or (2)analyze network operations.5-30

• The first approach pertains to applyingHighway Capacity Manual (HCM) recommendedcapacity analysis methodologiesto discrete locations in the studyarea. Practitioners determine roadwaysections, freeway junctions, or intersectionsfor analysis, then apply an appropriateHCM methodology to identifymovement capacity constraints andmeasure operations level of service.• The latter approach concerns utilizing acomputer traffic simulation model toidentify bottleneck locations, or hotspots, and associated saturation flowrates. Practitioners scope the size anddetail of the simulation model network,and the model works to reveal operationaldeficiencies.Computer traffic simulation models provideseamless analysis of traffic operations acrossa network of roadway segments and intersections.This proves particularly useful inanalyzing a corridor of closely spaced trafficsignals where signal coordination and vehiclespillback from adjacent intersectionssharply impact traffic operations. Numerousmacroscopic and microscopic simulationmodels exist, including the CORSIM microscopiccomputer traffic simulation modeldeveloped and supported by FHWA. COR-SIM can interface component freeway(FRESIM) and arterial (NETSIM) simulationmodels. For example, it has the capabilityof showing a freeway entrance rampbottleneck and the resulting queue spillbackon adjacent streets (or vice versa). Asshown in Figure 5-14, CORSIM also affordspractitioners and event planning team stakeholdersthe opportunity to view an animationof simulated traffic operations.Figure 5-14CORSIM Simulation AnimationMitigation of ImpactsMitigating anticipated planned special eventimpacts on travel represents the ultimategoal of conducting a feasibility study. Themitigation of congestion and potential safetyimpacts identified through a feasibility studyrequires development of a traffic managementplan and complementing travel demandmanagement strategies. In turn, practitionerscan utilize the tools and techniquesused to determine feasibility study results inorder to evaluate various mitigation strategiesand determine if the selected strategiesadequately mitigate identified transportationsystem deficiencies.Table 5-18 lists numerous tools for mitigatingplanned special event impacts on localroadway and regional transportation systemoperations. In meeting the overall travelmanagement goal of achieving efficiency,these tools target utilizing the excess capacityof the roadway system, parking facilities,and transit. Through travel demand management,event planning team stakeholdersdevelop attractive incentives and use innovativecommunication mechanisms to influenceevent patron decision-making and, ultimately,traffic demand. Chapters 6 and 75EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-31

Table 5-18Tools for Mitigating Planned Special Event Impacts on Transportation System OperationsCATEGORYEXAMPLE TOOLSTraffic Control and Capacity ImprovementsFreeway traffic control • Ramp closures or additional capacity• Alternate routes• Ramp meteringStreet traffic control • Lane control• Alternative lane operations• Road closures• On-street parking restrictions• Trailblazer signing• Parking management systemsIntersection traffic control • Access and turn restrictions• Advance signing to improve traffic circulation• Traffic signal timing and coordinationTraffic incident management • Service patrols• Tow truck staging• Advance congestion warning signs• Portable lightingTraffic ManagementTraffic surveillance • Closed-circuit television systems• Field observation• Aerial observation• Media reports• Portable traffic management systemsEn-route traveler information • Changeable message signs• Highway advisory radio• Media• Static signing• Destination signingTravel Demand ManagementTransit incentives • Public transit service expansion• Express bus service from park and ride lots• Charter bus serviceHigh occupancy vehicle incentives • Preferred parking• Reduced parking costEvent patron incentives • Pre-event and post-event activitiesBicyclist accommodation • Bicycle routes and available parking/lock-upLocal travel demand management • Background traffic diversion• Truck diversionPre-trip traveler information • Internet• Telephone information systems• Public information campaign• Event and venue transportation guide• Media5-32

detail impact mitigation strategies and tactics.EXTERNAL FACTORSAFFECTING SCOPE OFEVENT IMPACTOverviewThis chapter summarizes event operationsplanning and impact analysis activities thataddress the core factors affecting plannedspecial event severity. That is, travel demand,road/site capacity, and event operation.A number of secondary factors warrantconsideration in the event operations phase,including:• Available resources• Weather• Concurrent roadway construction• Concurrent planned special eventsThese factors can greatly influence the levelof impact a planned special event has ontransportation system operations. By gainingan understanding of the special challengesthat these external factors present, theevent planning team can develop appropriatecontingency response plans, using the toolsand strategies presented in Chapters 6 and 7,to mitigate infrequent but high-impact scenarios.An assessment of the level of impact that anexternal factor has on travel during a particularplanned special event involves theconsideration of the following components:• Duration – temporal impact (e.g., whendoes the external factor impact operationsand for how long?).• Extent – spatial impact or scope of areaaffected (e.g., does the external factorimpact a particular corridor or theentire region?)• Intensity – volume of impact (e.g., howsevere is the impact?)Practitioners should express the impact of anexternal factor in terms of how it affectstravel demand, road/site capacity, and personnel/equipmentresource quantities. Feasibilitystudy input data can reflect adjustmentsmade due to certain anticipated externalfactors, or practitioners can rerun parkingand roadway capacity analyses to accountfor a new unexpected factor (e.g., occurrenceof emergency road construction).In turn, revised results may warrant adjustmentsto the event traffic management plan.Available ResourcesAvailable resources refer to the quantity andexperience of personnel and equipmentavailable to plan and conduct day-of-eventtravel management operations. Besides thesize of a planned special event, the level ofrequired resources depend on time/place ofoccurrence, other planned special events,and equipment status.A special factor that may place significantstrain on available resources involves theoccurrence of planned special events at avenue under reconstruction. Shown in Figure5-15, venue reconstruction places additionaldemand on the amount of traffic managementteam personnel and equipment resourcesneeded to manage events hosted bythe venue during its reconstruction. Stakeholderresponse to on-site parking restrictionsinclude redevelopment of traffic managementplans to accommodate parking demand,pedestrian access, and traffic flow inthe immediate vicinity of the venue.5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-33

will bypass arriving at the venue early totailgate, thus concentrating patron arrivals.Concurrent Road Construction andPlanned Special EventsFigure 5-15Stadium ReconstructionFigure 5-16 presents a site and pedestrianaccommodation plan for 2002 Green BayPackers games during Lambeau Field renovation.Appendix F contains contingencyparking and pedestrian accommodationplans for event patrons traveling to LambeauField.WeatherWeather conditions affect travel demand,road/site capacity, or both. For example, inwinter, snow banks in permanent venueparking areas reduce the number of on-siteparking spaces required for an event sellout.Rain can create significant problemsfor unpaved parking areas and access roads.A one-day rain event totaling approximately0.70 inches during the 2002 U.S. Golf Openforced the traffic management team to closeall unpaved parking areas adjacent to thegolf course. Figure 5-17 displays a trafficadvisory service television announcementissued to indicate contingency parking arrangementsthat used paved lots.With regard to travel demand, weather conditionshave a significant impact on attendance(e.g., increased attendance or reducedattendance) and/or the rate of arrivals anddepartures at some special events. For instance,event patrons will attend an event ata domed stadium on a rainy day, but patronsThe occurrence of planned events, includingroad construction and other planned specialevents, create a range of impacts affectingdifferent traffic management plan components.On a regional level, the characteristics(e.g., increased traffic demand,road/lane closures) of concurrent plannedevents reduce available capacity in roadwaycorridors serving a particular planned specialevent, thus affecting traffic flow patterns.Local impacts include reduced parkingsupply, in the event of other areaplanned special events, and restricted trafficcirculation.The identification of concurrent plannedevents requires interagency communicationat the local, county, and state level. Figure5-18 illustrates an example of a local departmentof public works (DPW) inventory,accessible through the DPW website, of activelocal road construction and otherplanned special events within the jurisdiction.Key considerations include:• With regard to planning for a specificplanned special event, the event planningteam should identify road constructionactivities in all jurisdictions within a certaintravel time or distance radius,equivalent to the event market area, ofthe event venue. Appendix G contains alocal stakeholder outreach letter prepared by the Wisconsin DOT to identifylocal road construction in the vicinity ofMiller Park and scheduled during the2002 All-Star baseball game.5-34

5OVERVIEWFigure 5-16Site and Pedestrian Accommodation Plan for Stadium ReconstructionDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGFigure 5-17Contingency Parking Plan for Weather• The event planning team must also interactwith area venue operators and determinea timeline of planned specialevents in the region, particularly thoseaffecting the transportation system servingthe subject planned special event.• Recognizing the regional impacts (e.g.,county and multi-county) of majorplanned special events, the event planningteam should obtain information, includingattendance estimates, on plannedspecial events occurring in other metropolitanareas and areas with large venueswithin a certain radius (e.g., 50 or 100miles). Highway corridors traversingone jurisdiction can realize a significantPOST-EVENT ACTIVITIESEVENT PROFILE5-35

Figure 5-18Internet Summary of Road Construction andPlanned Special Events (Graphic courtesy ofthe City of Milwaukee DPW.)increase in background traffic duringtypical off-peak periods as a result oftraffic generated by major events occurringin other jurisdictions.External Factor Monitoring andAssessmentThe event planning team should maintain,and continually update, a spreadsheet matrixor map of inter-jurisdictional roadway constructionand planned special events occurringover some defined period of time. Forexample, Appendix G contains a WisconsinDOT summary of local and state road constructioncoupled with major planned specialevents occurring in the Milwaukee metropolitanarea over Summer 2002. Identificationof concurrent planned events allowsstakeholders to merge transportation planningand operations efforts and consider revisingroad construction schedules.On a broader scale, a regional committee onplanned special events monitors plannedevents across a metropolitan area throughregular meetings with traffic operationsagencies, law enforcement, community officials,event organizers, and other agencies.The committee facilitates communicationand coordination between specific eventplanning and operation task forces to ensureoptimal application of personnel and equipmentresources. The Traffic Incident ManagementEnhancement (TIME) program insoutheastern Wisconsin maintains such acommittee. As highlighted in Chapter 2, theTIME special event committee proposeddevelopment of a traffic management planningtool designed to evaluate the severitylevel of any planned special event proposedin the greater Milwaukee metropolitan area.Table 5-19 lists specific external factors, andassociated criteria, accounted for in the draftplanning tool.REFERENCES1. Held, T., “Dead Family Reunion inEast Troy Is a Go,” Milwaukee Journal-Sentinel,June 28, 2002.2. Schmitt, B., “State Troopers CloseRoads into Downtown Detroit,” DetroitFree Press, June 13, 2002.3. Laitner, B., “Royal Oak Preparing toHandle Crowds of Red Wings Fans,”Detroit Free Press, June 13, 2002.4. “Hundreds questioned in Nevada CasinoDeaths,” CNN.com, April 28,2002.5. Shaw, T., Performance Measures ofOperational Effectiveness for HighwaySegments and Systems, NCHRPSynthesis 311, Transportation ResearchBoard, National ResearchCouncil, Washington D.C., 2003, 59pp.5-36

Table 5-19External Factors Considered in the Wisconsin TIME ProgramSpecial Event Planning Tool (25)INCREASING EVENT IMPACTQUESTIONWhat is the effect of construction on traffic?Is there a construction project on any of the corridorsleading to or away from the special event venue?Are there any lane closures?What effect does the event scheduling have on traffic?Is the event scheduled to begin or end during a peakperiod?Is there more than one event beginning or ending at thesame time?What are the weather conditions?Is there a forecast for severe weather before, during, orafter the special event that might affect traffic?Are all human resources available?Is the event scheduled to begin and end during normalworking hours?Are key individuals available if needed?Is all equipment available?Are all facilities available?Is communication equipment working?Is all traffic control equipment available?6. Markley, D.D., N.L. Conrad, andG.S. Rutherford, “Serving the Universityof Washington’s Husky Stadium,”Preprint No. 00113, Preparedfor the 2001 ITE Annual Meetingand Exhibit, Institute of TransportationEngineers, Chicago, Illinois,August 19--22, 2002.7. Rankin, E.A., “A Home Run or Outin Left Field? Transportation Managementfor the New Seattle Mariner’sBaseball Park,” Prepared forthe ITE 1998 Annual Meeting andExhibit, Institute of TransportationEngineers, Toronto, Ontario, Canada,1998.8. “2003 U.S. Cellular Field ResidentPermit Parking Program”, ChicagoDepartment of Transportation, Chicago,Illinois, [Online]. Available:Not applicableSomeimpactSomeimpactCRITERIAModerateimpactModerateimpactClear Mild ModerateConsiderableimpactConsiderableimpactNot applicableSeveresummerSevereimpactSevereimpactSeverewinterYes Most Some Few NoneYes Most Some Little Nonehttp://www.ci.chi.il.us/Transportation/Sox/. [2003, April 25].9. Joint Operational Policy Statement,Illinois Department of Transportationand Illinois State Police, February1999.10. A Joint Operations Policy Statement,Washington State Patrol and WashingtonState Department ofTransportation, Washington,February 2002.11. Wrenn, D., “Turnpike Letting DriversGo Free in Heavy Traffic,”Charleston Daily Mail, December 4,2002.12. Townsend, E., “Freshman DelegateWants Bridge Tolls Stopped inBackups,” The Star Democrat, February10, 2003.5EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW5-37

13. “Wrecker and Towing Rules andRegulations for Police RotationWreckers,” City of Cincinnati MunicipalCode Section 869.21.14. Robbins, G., A. Felder, and W.E.Hurrell, “San Francisco’s NewDowntown Ballpark: A Home Runfor Public Transit,” Preprint No.00111, Prepared for the 2001 ITEAnnual Meeting and Exhibit, Instituteof Transportation Engineers,Chicago, Il., August 19--22, 2001.15. Grava, S. and F. Nangle, “Get Me tothe Ball Game on Time – AccessTime Patterns at Baseball Stadia,”Preprint No. 00395, Prepared for the2000 Annual Meeting of the TransportationResearch Board, NationalResearch Council, Washington,D.C., January 9--13, 2000.16. Peterson, M., D.M. Marum, and A.Moran, “Mode of Access for theNew Downtown San Diego Ballpark,”Prepared for the ITE 2000Annual Meeting and Exhibit, Instituteof Transportation Engineers, SanDiego, Ca., 2000.17. Traffic Considerations for SpecialEvents, Institute of TransportationEngineers, Washington, D.C., 1976,44 pp.18. Montag, D.A., Trip GenerationRates and Characteristics forTheme-Oriented Fairs and Festivals,West Virginia University, Morgantown,West Virginia, May 1998.County of Denver by Turner/HNTB,June 2002.20. Volz, M.A. and B.J. Nicholson,“Kansas Speedway Event ManagementUsing ITS,” n.d.21. Womble, J.E., “A Transportation andTourism Profile of Visitors to the1984 Louisiana World Exposition inNew Orleans,” ITE Journal, Vol. 55,No. 4, April 1985, pp. 49--53.22. Boggs, R., “Challenges in SupportingPlanned Special Events in YourCommunity,” Presented at the Instituteof Transportation Engineers2003 Technical Conference and ExhibitProgram,” Fort Lauderdale,Florida, March 23—26, 2003.23. Shell Grand Prix of Denver – Parkingand Traffic Management Plan,Prepared for the Grand Prix of Denverby URS Corporation, August2002, 33 pp.24. Sattayhatewa, P. and R.L. Smith,“Development of Parking ChoiceModels for Special Events,” Presentedat the 82 nd Annual Meeting ofthe Transportation Research Board,Washington, D.C., January 12-16,2003.25. Silverson, S., Wisconsin Departmentof Transportation – District 2, PersonalCommunication, February 18,2003.19. Parking and Traffic ManagementPlans for Investco Field at MileHigh, Prepared for the City and5-38

CHAPTER SIXTRAFFIC MANAGEMENT PLAN6OVERVIEWPURPOSEThis chapter details the components of thetraffic management plan, which representsthe main product of the event operationsplanning phase. A traffic management planindicates how traffic, parking, and pedestrianoperations will be managed on the dayof-event.The plan contains strategies andtactics for mitigating travel impacts identifiedin a planned special event feasibilitystudy analysis (Chapter 5). It also accommodatestravel demand management initiativesaimed at improving transportation systemoperations on the day-of-event.Figure 6-1Temporary Reversible Lane OperationThis chapter provides data, guidelines, procedures,and checklists, supported by numerousexample applications, to assist practitionersin developing a traffic managementplan. A comprehensive plan consists of asite access and parking plan, pedestrian accessplan, traffic flow plan, traffic controlplan, en-route traveler information plan,traffic surveillance plan, and traffic incidentmanagement and safety plan. Sections onplan components and analysis and modelingfurther guide practitioners by presenting afundamental background on traffic managementplan development and evaluation.The organization of this chapter allows practitionersto conveniently extract informationon developing a particular traffic managementplan component. At the same time,this chapter guides the user in integrating thecomponents into an overall plan.DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE6-1

INTRODUCTIONAfter identifying traffic operations deficienciesin the planned special event feasibilitystudy, the next step for the event planningteam is to develop a traffic managementplan that details traffic, parking, and pedestrianmanagement techniques to mitigate anyand all anticipated problems on the day-ofevent.The challenge to stakeholders involvesnot only developing a strategy tomitigate a potential congestion or safety hotspot, but also ensuring each tactic does notdefeat the objectives of another.A breakdown (e.g., pedestrian flow) occurringat the venue, parking areas, site accessroads, transit system, local street system, orregional corridors serving the event canyield a potential snowball effect on otherintegrated components of the transportationsystem. A proactive traffic managementplan for planned special events prohibits individualtransportation system componentsfrom impeding one another. It represents aflexible plan that can adapt to and optimizeproposed transit service changes and traveldemand management initiatives.The scope of a traffic management plan variesfor each planned special event, even forevents happening in the same jurisdiction orregion. Different strategies and tactics aresuccessful in handling different categories ofplanned special events occurring in metropolitan,urban, and rural areas. A successfultraffic management plan satisfies both the:(1) customer requirements of all transportationsystem users and (2) allotted budget forpersonnel and equipment resources assignedto the day-of-event operation. From a programplanning perspective, the deploymentof automated systems at a particular venueimproves travel management for all futureplanned special events at the venue. Similarly,a portable system obtained for use duringa particular planned special event maybe used by practitioners to manage futureplanned special events in a region.PLAN COMPONENTSOverviewManaging travel for planned special eventsinvolves developing a transportation managementplan that contains operations andservice strategies specific to managing traffic,transit, and travel demand. A transportationmanagement plan consists of three keycomponents:• Traffic management plan• Transit plan• Travel demand management initiativesA transportation management plan representsan extension of the feasibility study,referencing study input data and analysisconclusions, then expanding the analysis toinclude mitigation strategies and tactics.These strategies create a physical change intravel pattern flow, and tactics describeavailable tools or management approachesto meet the associated strategy.The feasibility study results influence thescope of the transit plan and other traveldemand management initiatives by identifyingtraffic capacity deficiencies and community(e.g., residential and commercialbusiness) impacts. Transit agencies maywork off-line to develop a transit plan detailingschedules and necessary equipment andpersonnel resources. The transit plan mayspecify one of more categories of transit operationthat include:• Existing service plus additional vehiclehours (e.g., more frequent service or expandedhours of operation)• Existing service plus route deviation(e.g., includes new stop at transit station(s)near venue)6-2

• Express service (e.g., new route andschedule)• Charter service (e.g., contract service)Numerous factors affect the category andextent of service provided. Public transitagencies must consider service boundariesand Federal Transit Administration regulations,particularly with regard to charter service.Profitability and resource availability,particularly if the planned special event occursduring a commute or high-recreationaltraffic period, governs decision-making aswell. A traffic management plan incorporatesthe transit plan by accommodatingproposed services and/or mitigating servicedeficiencies. It also promotes special traveldemand management strategies, such as designatingparking in preferred locations forhigh occupancy vehicles only.A traffic management plan includes operationsstrategies for managing eventgeneratedand background traffic within thelocal and regional area impacted. The planalso specifies techniques to facilitate siteaccess, parking, and pedestrian access. Table6-1 lists objectives of a planned specialevent traffic management plan. Pedestrianaccommodation involves handling pedestriansarriving to a planned special event venuevia all available modes of travel. To ensurethe dissemination of credible traveler information,the event planning team should includemedia representatives and partnershipsdeveloped if necessary. The traffic managementplan should include mechanismsfor dissemination of accurate and up-to-dateinformation. The plan should state expectedtransportation conditions, categorized bymode of travel (e.g., expected travel time bycar, transit, express/charter service, etc.),with congestion mitigation measures. Safetyprovisions include prevention of secondarytraffic incidents, reduced driver confusion,and reduced vehicular and pedestrian conflicts.Table 6-1Traffic Management Plan ObjectivesOBJECTIVE• Facilitate safe and quick travel to/from theevent site for spectators and participants.• Utilize excess transportation system capacity.• Maximize efficiency of parking operationsand internal circulation.• Accommodate pedestrians.• Automate traffic control tasks.• Disseminate useful and credible traveler information.• Maximize safety.• Minimize impact on affected residents andbusinesses.As shown in Table 6-2, the key componentsof a traffic management plan for plannedspecial events include:• Site access and parking plan• Pedestrian access plan• Traffic flow plan• Traffic control plan• En-route traveler information plan• Traffic surveillance plan• Traffic incident management and safetyplanNot all plan components represent a distinctformal plan but warrant consideration, eitherindividually or in concert with another component.For instance, a traffic incident management(TIM) plan may reference an existingTIM manual for a region but includenew operations details (e.g., freeway servicepatrol routes and quick clearance strategies)specific to the planned special event.The event planning team in-charge of developingthe traffic management plan alsoshould consider the number and operatingcharacteristics of traffic management teamcommand centers to be used on the day-ofevent.Figure 6-2 shows three commandcenter arrangements for traffic managementteam operations on the day-of-event. Stake-6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-3

Table 6-2Traffic Management Plan ComponentsCOMPONENT CONSIDERATION COMPONENT CONSIDERATIONSite Access andParking PlanTraffic FlowPlanEn-routeTravelerInformation PlanTraffic IncidentManagement andSafety Plan• Lot assignment• Vehicle access and circulationo Parking area ingresso Pick-ups and drop-offso Parking area egress• Parking area design and operationo Process componento Park component• Parking occupancy monitoring• Parking regulations• Traveler information• Route planningo Corridor traffic flow routeo Local traffic flow route• Alternate routes• Emergency access routes• Background traffic accommodation• Transit accommodation• Static signing• Changeable message signs• Highway advisory radio• Media• Other technology applications• Crash preventiono Signingo Public information safetycampaign• Service patrols• Traffic incident quick clearanceinitiativesPedestrianAccess PlanTraffic ControlPlanTrafficSurveillancePlan• Pedestrian controlo Pedestrian routingo Pedestrian crossing• Disabled accessibility• Shuttle bus serviceo Service designo Station designo Managemento Cost• Freeway traffic controlo Traveler informationo Interchange operations• Street traffic controlo Alternative lane operationso Route marker signingo Monitoring• Intersection traffic controlo Turning movement lane balanceo Traffic signal operations• Closed-circuit television systems• Field observation• Aerial observation• Media reportsholders may utilize one to all command centertypes during the day-of-event. The tacticalapproach presented in the traffic managementplan depends on what commandcenters are planned. A transportation managementcenter (TMC) allows for the automationof several traffic surveillance andcontrol tasks. Agencies dispatching a mobilecommand post on the day-of-event maytake responsibility of developing a trafficmanagement plan for the road system segmentwithin their jurisdiction. In turn, theagency: (1) coordinates critical elements ofthe plan (e.g., freeway to street connections)with other pertinent stakeholders duringevent planning team meetings, (2) formallydistributes the plan during the implementationactivities phase, and (3) staffs a supervisorat an interagency command post on theday-of-event. Therefore, for a singleplanned special event, the traffic managementplan may include one plan developedby an interagency event planning team or aseries of plans specific to each affected6-4

6DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEWFigure 6-2Traffic Management Team Command Centers on the Day-of-Eventjurisdiction or each transportation systemcomponent (e.g., freeways, streets and intersections,and venue site).Development Process andIntegrationThe following principles steer the trafficmanagement plan development process: (1)provide a satisfactory level of service to alltransportation system users, and (2) achievebalanced transportation system operations.Figure 6-3 illustrates the fundamental relationshipsin transportation system operationsthat drive the consideration and evaluationof mitigation measures throughout this process.Characteristics of demand include volume,route of travel, and mode of travel.Transportation system characteristics include:• Existing infrastructure (e.g., number oftravel lanes, parallel roadways, etc.)• Operational policies and regulations(e.g., scheduled transit service, trafficsignal control, etc.)• Monetary costs (e.g., parking fees, tolls,etc.)POST-EVENT ACTIVITIESEVENT PROFILE6-5

TRANSPORTATIONSYSTEM3Flow pattern also influences the transportationsystem (relationship #3), causing plannersto implement capacity improvements orchanges in transportation system operations.Simple changes include establishing temporaryregulations or revising monetarycharges (recouped from event organizers) toinfluence travel choice utility. Other infrastructureand operations mitigation measuresrequired to manage travel for a planned specialevent are developed by the event planningteam and specified in the traffic managementplan. Such measures, when analyzedor implemented, cause a flow patternchange.DEMANDFigure 6-3Fundamental Relationships inTransportation System OperationsIn Chapter 5, the feasibility study evaluatedthe flow pattern created by the transportationsystem and demand (relationship #1). Thetraffic management plan development processbegins with an assessment of this flowpattern. First, practitioners should recognizethat flow pattern influences travel choiceand, therefore, demand (relationship #2) aslong as other attractive (e.g., higher utility)travel alternatives exist. For instance, a feasibilitystudy may identify a roadway capacitydeficiency, but an effective traveler informationplan can alleviate the deficiencyby informing transportation system users ofother, underutilized travel alternatives (e.g.,alternate routes or modes). This effortachieves balanced transportation system operationsby equalizing the utility of all availabletravel choices and may succeed in providinga satisfactory level of service for allsystem users.12FLOWPATTERNThe most cost-effective and preferred set ofstrategies for planned special event travelmanagement utilizes the existing transportationsystem infrastructure and services. Thisrepresents the recommended initial focus ofthe event planning team; Achieve balancedtransportation system operations, thenevaluate system level of service.Planned Special Event Activity NetworksFigure 6-4 outlines the various activity networksthat may serve a planned specialevent venue. Each activity network describesthe inter-modal movements andtransfer points from origin to venue destination.Integration of the traffic managementplan components involves meeting the servicerequirements of these activity networks.For example:• A pedestrian access plan must accommodatepedestrian trips connecting variousmodes of travel.• A courtesy shuttle bus operation mayservice both public transit stations andsatellite parking areas within the venuesite area.• Traveler information plans must accountfor all activity networks.• Impacts to non-attendee transportationsystem users occur on the regional level,and activity network components withinthe site area level impact local residentsand businesses near the venue.For smaller planned special events, the eventplanning team may target one activity network,such as improving automobile accessto designated parking areas or improvingpublic transit usage. For larger events, theteam must coordinate and achieve seamlessoperation among several activity networks.6-6

VENUEPickup /Drop-offWalkSITE AREAREGIONTaxi / Limo / Charter BusExpressBusExpress BusStationExpress BusStationAutoORIGINAutoParkingAreaWalkAuto/WalkShuttle BusStationTransitStationShuttleBusREGION SITE AREA VENUETransitShuttleBusShuttle BusStationWalkTransitStationWalk6OVERVIEW= Mode TransferWalkSpecial ConsiderationsThe event planning team must create aflexible traffic management plan that accommodatesmodifications on the day-ofthe-eventas well as special considerationsthat surface prior to the planned specialevent.Table 6-3 lists the various groups that eitherattend or have a direct interest in a plannedspecial event. Throughout the traffic managementplan development process, theevent planning team must regularly monitorand communicate any special considerationsthat arise in conjunction with the needs ofthe groups attending the event.Table 6-3Groups Attending a Planned Special EventGROUP• Participants• Spectators• Event sponsor• Dignitaries• Media• Non-ticketed visitors• Street vendorsWalkFigure 6-4Planned Special Event Activity NetworksDignitariesEnsuring the security of dignitaries travelingto and from an event venue requires addedtraffic control measures and constant surveillancewhile a motorcade is in motion.This includes the implementation of a rollingroadblock as the motorcade traverses aplanned route in addition to the use of aerialsurveillance for monitoring motorcade progressand downstream traffic conditions. Infact, the transport of dignitaries represents aplanned special event in itself, regardless oftravel purpose. Dignitaries may not announcea visit until the last minute, well afterthe event planning team finalizes theevent traffic management plan. Also, nonsecuritypersonnel, including transportationagency officials, may not receive informationon the actual dignitary arrival time ormotorcade travel route until a short time beforethe motorcade commences travel. Inturn, the event planning team must maintainspecial provisions within the traffic managementplan, such as alternate road closuresbased on motorcade route, to allow amotorcade unimpeded access to its destination.DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE6-7

Event ParticipantsEvent participants not only require securetransport, but maintaining their travel itineraryis of critical importance. In particular,regional/multi-venue events may requireevent participant transport while ingress/egressoperations take place at adjacentplanned special event venues. Here,stakeholders may elect to outfit vehiclesused to transport participants with an AutomaticVehicle Location (AVL) system. Thetraffic management team can continuallymonitor the exact location of vehicles transportingparticipants and other VIPs from aTMC or command post and implement specialtraffic control (e.g., change traffic signalsto a green indication) as needed.MediaMedia often arrives to a planned specialevent well before spectators and marks oneof the last groups to depart the event. However,media crews may conduct broadcastsoutside the event venue. Coverage of astreet use event involves special accommodationsas well. The event planning teamshould coordinate with media groups onwhere: (1) media trucks will park, (2) cameraspositioned, and (3) cables run.Street VendorsUnder normal day-to-day traffic operations,side friction generally refers to the frequencyof parking maneuvers and transitstops occurring in and out of travel lanes.Street vendor activities during planned specialevents, shown for example in Figure 6-5, impede traffic flow as event patrons slowor stop to conduct transactions (e.g., buyevent tickets or merchandise). Motoristsafety becomes a concern when street vendorstraverse the right-of-way of freewaysand arterial roads. Elements of a traffic incidentmanagement and safety plan shouldinclude tactics for eliminating illegal streetvendor activities.Figure 6-5Street Vendor ActivityContingency PlanningContingency planning represents event insurance.While stakeholders may consumeadditional time and resources during advanceplanning for a planned special event,the availability of contingency plans helpsmitigate a potential systemic breakdown ofthe transportation system during an unexpectedevent occurring at or near the sametime as the planned special event. Key stepsin contingency planning include:• Develop a traffic management plan thatis scenario-based. This concept appliesto various plan components as well as topertinent tactics. Each developed planshould include response actions for differentunplanned scenarios. Plans andtactics may consider identical and differentscenarios. A response action underone plan may warrant implementation ofa contingency response described in anotherplan. For example, heavy rainsthat force the closure of a parking areatriggers traveler information messagechanges to an alternate planned set.• Consider and plan for a range of possibleunplanned scenarios. Table 6-4 providesa contingency plan checklist for planned6-8

special events. This checklist includesthe risk scenarios presented in the previouschapter. An emergency managementagency may maintain a separateemergency response plan that, if put intoeffect, supercedes the traffic managementplan. Yet, the emergency managementagency and other public safetyagencies work as part of the event planningteam to ensure adequate emergencyaccess routes, pedestrian access routes,and evacuation destination areas exist tomeet emergency management plan requirements.Table 6-4Contingency Plan ChecklistCONTINGENCY• Weathero Severe weather outbreako Flooding on event site access routeso Flooding in event parking areaso Parking during wet weather• Security threat• Major traffic incident• Delayed event• Event cancellation• Absence of trained personnel and volunteerson the day-of-event• Equipment breakdown• Demonstration or protest• Unruly spectator behavior• Overcrowding• Event patron violence• Determine changes in operation due tounplanned scenarios. Aside fromevacuation, the occurrence of a majortraffic incident or security threat createsa multi-faceted problem for a trafficmanagement team. This includes potentialreallocation of personnel, from fieldcrews to supervisors who must managethe unexpected event, and equipment resources.In addition, intra- and interagencyradio communications may becomedeficient in servicing the unplannedevent and planned special eventif agencies failed to assign a dedicatedchannel for planned special event onlycommunications.Consider the level of response to a securitythreat, involving a suspicious truck stoppedon a freeway, that occurred during the 2002Winter Olympics: (1)Early in the Games, a semi-trailer truck wasstopped on the I-15 freeway, just south ofdowntown Salt Lake City. Because the truckdid not have the legally required markingsand other reasons, the Utah Highway Patrol(UHP) considered the situation to be a potentialsafety threat. Additional lawenforcementresources were summoned tothe scene. During the entire time, the staffin transportation management center Room230 (regional transportation managementstakeholders) monitored the situationclosely, viewing it with a nearby CCTVcamera as well as monitoring radio reportsfrom the UHP officers at the scene. Afteralmost an hour passed without a resolution,staff in Room 125 (senior Utah DOT trafficengineers) began preparing to invoke thecontingency plan for closing the freeway inboth directions. This Action Set would havediverted all freeway traffic to parallel arterials,with the appropriate traffic managementactions (new signal timing on the surfacestreets, changeable message sign messageson the freeway), plus travelerinformation actions (issuing aCommuterLink Alert, media bulletin, etc.).Fortunately, it was soon determined that thecargo in the truck was benign and the“issue” was closed in Room 230.ANALYSIS ANDMODELINGOverviewNo planned special event transportationmanagement plan, not even for a repeated6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-9

special event, can be prepared and executedwithout detailed planning and without modificationsas the event unfolds. To be successful,the event planning team has to anticipate,and therefore plan for, all the possiblescenarios that will challenge the transportationnetwork and the mobility of theplan.A special event transportation and implementationplan includes elements such aspersonnel assignments, communicationsfrom various sources, communications betweenmultiple agencies, and guidelines foraccessing and utilizing remote equipment.All of these elements are used in variousmanners depending upon the existing conditions,and the plan should be flexible to allowmodification throughout the event. Inessence, a special event plan is a plan formultiple contingencies and multiple scenarios.Many tools and techniques are available toanalyze and assess the plans. Most are scenario-basedand use techniques to simulatethe event to ensure that the proper resourcesand communication protocols are in placeand are efficient. These techniques addressthe many contingencies, and as such, numerousplans are developed prior to theevent and implemented during the event, asthey are needed.It is important to note that the assessmentand development of plans do not end whenthe event ends. At the conclusion of theevent, stakeholders comprising the eventplanning team and traffic management teammust evaluate the plan in order to improvethe plan as well as to utilize the lessonslearned in future traffic management applications.Further, this evaluation process isnot restricted to post-event, but instead canand should be conducted throughout theevent, and modifications to the plan madeon-the-fly.Analysis TechniquesPlanners historically have used simple planningtechniques as well as high-tech computer-assistedtechniques to plan and managefor planned special events. These planningtechniques take many forms, rangingfrom traditional incident management processesand traffic engineering processes tocomputer modeling of scenarios.Three primary ingredients for successfulevent management are: (1) proper resources,both human and non-human, (2) a goodcommunications plan (implementation plan),and (3) a firm understanding of the transportationsystem’s capabilities and, moreimportantly, its limitations. The best andmost proven techniques for event operationsplanning are to model and test the scenariosusing any and all contingencies.Tabletop ExercisesTabletop exercises bring all of the stakeholderstogether. During these exercises,scenarios are posed and escalated. Thesescenarios typically do not require modelednetwork information, as their primary purposeis to test the stakeholders as to howthey would react and to fine tune the responsibilitiesof each stakeholder and the communicationsprotocol between the stakeholders.Many scenarios that can cause disruptionsto the event transportation areplayed out, and any loopholes in the operationsplanning are obvious to the participants.This type of exercise is supported bymore detailed analyses, usually in the formof computer simulation.Computer Traffic SimulationIn large-scale event planning, it is beneficialto understand the impact that the event willhave on the existing roadway system.Where this network is complex and multiple6-10

alternatives may exist, each will need to beevaluated. The common approach to thisfunction is to apply tools to model the network.Capacity and LOS analyses are usefultools for gauging the expected operatingconditions along roadway segments and fordetermining the “order-of-magnitude”changes that will result from major changesin traffic flow (e.g., as caused by a plannedspecial event) and roadway improvements(e.g., widening, bottleneck improvements).However, improvements provided by transportationmanagement strategies and systemsare typically not reflected in such procedures.Moreover, information on performancemeasures (e.g., vehicle delays,fuel consumption, emissions) is not providedby capacity analysis techniques. It maytherefore be worthwhile to utilize computertraffic simulation models, which can examinethe manner the roadway network performsunder various sets of simulated conditions.As implied by the name, traffic simulationmodels examine the manner in which theroadway network performs under varioussets of “simulated” conditions. They providean excellent means of estimatingchanges in roadway performance metrics(e.g., average speeds, travel time, delays,emissions) resulting from increased traffic,roadway restrictions, traffic managementstrategies and improvements.Traffic simulation models can be dividedinto the following two general classes:• Macroscopic models are based on deterministicrelationships between roadwayand intersection characteristics andtraffic flow. Examples include TRAN-SYT-7F, FREQ, and the TRAF suite ofmodels.• Microscopic models simulate the movementof individual vehicles through thenetwork being modeled. Examples includeINTEGRATION, Paramics, Synchro/SimTraffic,and the TSIS suite ofmodels.Some simulation models are designed foranalysis of individual intersections or specifictypes of facilities, while others are designedfor network-level analysis. Modelscapable of network-level analysis includeTRANSYT-7F, Synchro/SimTraffic, INTE-GRATION, and Paramics. The TSIS (TrafficSoftware Integrated System) set of modelsincludes NETSIM for network analysis,FRESIM for freeway analysis, and COR-SIM, which is an integrated package of thenetwork and freeway models. The TRAFset of models includes NETFLO for networkanalysis, FREFLO for freeway analysis, andan integrated package (CORFLO) of thenetwork and freeway models. FREQ simulatescorridor traffic operations includingone freeway and one parallel arterial.The individual models vary in their capabilities,limitations, and ease of use (a discussionof which is beyond the scope of thisHandbook). A significant amount of effortgenerally is required to learn to use trafficsimulation models, including setting up theappropriate inputs and parameters. A significantamount of effort may also be requiredto obtain traffic and network data toconduct the analysis and to calibrate themodel to local conditions. Data requirementsare proportional to the extent of thenetwork being modeled. The required datacan include characteristics of each link (e.g.,length, number of lanes, auxiliary / HOVlanes, ramps, grade, speed limits, lanewidths, pavement condition), link trafficflow information (e.g., entering / exitingvolumes, ramp volumes, travel times, percentheavy vehicles and buses, lane changingcharacteristics) and other types of informationsuch as detector locations, incidentcharacteristics (e.g., effect of lane blockageon capacity), and ramp metering operations.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-11

Simulation models generally require a nontrivialanalysis effort. Moreover, anymodel-specific limitations should be takeninto consideration when interpreting theoutputs of simulation. Sensitivity analysesare important to developing an understandingof: (1) how reasonable the simulationestimates are and (2) how much confidencethe analyst should place in them.SITE ACCESS ANDPARKING PLANOverviewChapter 5 detailed steps for conducting aparking demand analysis, including guidelinesfor evaluating the scope of parkingarea required to serve event patrons. In turn,a site access and parking plan contains operationsstrategies for managing automobile,bus, taxi, and limousine traffic destined toand from the following areas in the vicinityof a planned special event venue: (1) publicparking area, (2) reserved (permit) parkingarea, (3) overflow parking area, and (4)pick-up/drop-off area. The event planningteam must create a flexible plan that containsproactive strategies for responding toreal-time event patron travel patterns drivenby their choice of public parking areas, especiallyif parking fees vary from lot to lot.Traffic destined to the three other site areashas a fixed ingress and egress pattern asspecified in the plan through lot assignmentsand permitted movements.The site access and parking plan must fitseamlessly into other components of thetraffic management plan. This includes thepedestrian access plan, traffic flow plan, andtraffic control plan. For instance, the pedestrianaccess plan must accommodate pedestriansarriving to/from each parking area orpick-up/drop-off point while still achievinga manageable dispersion of pedestrian traffic.Parking area access and site circulationarrangements must correlate with street trafficcontrol schemes.Site access and parking plan developmentinvolves a three-step process: (1) access, (2)process, and (3) park:• Access refers to getting event trafficfrom the adjacent street system to theirdestination, such as a parking area orpick-up/drop-off area, during ingress andvice versa during egress. The trafficmanagement team manages the accessoperations component.• Process involves activities necessary to“approve” vehicles for entry into a parkingarea. A fee transaction between aparking area operator and motoristrepresents a common process activity.• Park involves handling vehicles from aprocess point to a parking space. Aparking team and associated volunteersoperate the process and park components.A breakdown in any one of thethree components can result in congestionextending to the adjacent street systemand possibly to freeway and arterialcorridors serving the planned specialevent.Parking Policies and TacticsGeneral ConsiderationsTable 6-5 presents three general considerationsregarding proactive parking managementfor planned special events.Table 6-5General Parking ManagementConsiderationsCONSIDERATION• Lot assignment• Traveler information• Contingency plans6-12

Lot AssignmentThe objectives of lot assignment include:• Efficiently distribute the flow of traffic.• Minimize the superimposition of trafficflow on a single access road section.• Separate pedestrian, automobile, andbus/taxi/limo traffic.• Accommodate group needs.Table 6-6 lists the factors that influence thisplanning process. Key considerations forsome of these factors include:• Parking areas designated for disabled,reserved, and valet parking require onsitespaces with easy access to the eventvenue. However, the location of theselots must afford users the opportunity toegress immediately after the event withoutintersecting extreme levels of pedestriantraffic.• Some planned special events draw a significantlevel of event patrons travelingin a recreational vehicle. These patronstypically arrive well before the eventstart, if not one day prior to the event,and tailgate after the event. As a result,a recreational vehicle parking areashould exist adjacent to streets segmentsthat the traffic management team maytemporally close after the event to safelyaccommodate pedestrian traffic. Thisconsideration also applies to the selectionof media and participant parking areas.These groups arrive before and departafter the majority of event patronsand require parking near the venue, especiallymedia who have to transportheavy equipment.• For major special events, employeesshould park at a remote off-site lot withshuttle bus service.• The section on site access and circulationwill discuss taxi and limo operations.• In evaluating parking areas for heavyvehicles (e.g., buses and recreational vehicles),the event planning team mustverify that vehicles can execute all requiredturning movements during ingressand egress.• If the use of any parking area requires alease or third-party agreement (e.g., useof a commercial lot), then planners musthave the agreement signed well beforethe day-of-event.Table 6-6Factors Influencing Lot AssignmentFACTOR• On-site parking location• Off-site parking location• Disabled parking• Reserved (VIP/permit) parking• Participant parking• Valet parking• Media parking• Employee parking• Bus parking• Recreational vehicle parking• Taxi/limo stagingTraveler InformationDissemination of traveler information onsite access and parking utilizes several toolsand approaches, including pre-trip and enroute:• As part of pre-trip information dissemination,the event planning team shouldprepare a site and parking plan forstakeholder use and for distribution toevent patrons via advertisements as wellas the event or venue website. The eventoperator should include directions tospecific parking areas with pre-eventticket and parking pass distribution.• En-route information disseminationtechniques begin with any combinationof static signs, portable changeable messagesigns (CMS), and highway advisoryradio (HAR) positioned on freeway andarterial corridors serving the event. Fig-6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-13

ure 6-6 shows a freeway CMS, operatedby the Maryland State Highway Administrationwith real-time sign status postedon the Coordinated Highways ActionResponse Team (CHART) website, displayingaccess information for differentparking areas.• As part of developing the site access andparking plan, the event planning teamshould prepare a signing plan andCMS/HAR message sets.o Default messages provide directionsto assigned parking areas.o Stakeholders should maintain alternatemessage sets to divert trafficaway from full lots to overflow parkingareas.o Implementation of alternate messagesets places a premium on interagencycommunications.• On the day-of-event, the command postmust process real-time information receivedfrom parking area operators andobservers and, in turn, immediatelycommunicate recommended changes toall agencies managing traveler informationdevices as the situation dictates.• The signing plan indicates a network oftrailblazer and guide signs from a freewayor arterial access point to variousparking areas.o Top priority involves guiding eventpatrons and participants destined toreserved parking areas. Unlike mostevent patrons who will eventuallyaccept any public parking area, travelerspossessing a permit will circulatethrough the street system adjacentto the event venue until they encountertheir designated parkingarea.o Figure 6-7 shows a temporary guidesign for event parking permit holders.Figure 6-6Freeway CMS Displaying ParkingInformation (Graphic courtesy of the MarylandState Highway Administration.)Figure 6-7Guide Sign for Reserved Parking Areas• Traveler information considerations duringevent egress include the provision ofparking area identification landmarks,and guide signs to major freeway/arterialroutes at parking area exit points and adjacentaccess roadways.o In the absence of parking staff, theguide signs assist motorists unfamiliarwith the area in making criticalturns to access known freewaysand/or arterials when departing theevent venue site.o Missed turns result in additional circulationthrough the site area andimpacts street network operationsduring egress.• Standard parking area identificationlandmarks at permanent venues includefixing a parking section banner to lightposts or naming different levels of a6-14

parking garage. The lack of such permanentidentification landmarks at unpavedparking areas can create significantpedestrian/vehicular conflicts, notto mention added delay for the event patron,as pedestrians scan the parking areafor their vehicle.o Figure 6-8 shows an innovative parkingarea identification technique appliedto unpaved parking areas,which represented a golf course, atthe Rose Bowl. The technique involvedattaching a numbered balloonto portable lighting trailers stationedat various unpaved parking areas.Some balloons were visible from insidethe stadium.Figure 6-8Temporary Parking Area IdentificationLandmarkContingency PlansContingency planning involves the developmentof traveler information message setsto divert and guide event ingress traffic tooverflow parking areas:• If unpaved parking areas are used, thetraffic management team should have acontingency plan when wet weather preventsthe use of unpaved lots. This includesusing other paved areas, particularlylots serving an inactive land use orone adversely affected by wet weathersuch as a park, and/or allowing on-streetparking.Technology ApplicationsTechnology utilized for day-to-day trafficmanagement can greatly enhance parkingmanagement and efficiency of operation atpermanent venues that serve numerousplanned special events. In particular, use oftechnology can improve operator monitoringof parking areas and facilitate accurate, upto-datedissemination of traveler information.Advanced Parking Management SystemA basic advanced parking management systemallows operators, stationed at a transportationmanagement center, to monitor parkingareas and control traveler informationdevices used to disseminate parking information.Key considerations include:• Advanced systems include electronicdetection equipment that transmits realtimetraffic volume counts and speeds tothe TMC.• The system surveillance and monitoringsystem incorporates pan-tilt closedcircuittelevision (CCTV) cameras forviewing parking areas and adjacent accessroads.• Traveler information devices include aCMS and HAR network coupled withstrategically positioned blank-out signsthat communicate parking area status information(e.g., lot full) to motorists.• With real-time access to CCTV, TMCtraffic signal system operators can implementtiming modifications on demand.• Operators at the TMC can integrate theadvanced parking management systeminto the greater Advanced Traveler InformationSystem for the region (e.g.,6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-15

automated information transmission toother agencies, websites, and kiosks).Advanced Parking Information SystemThe deployment of advanced parking informationsystems have successfully occurredat some airports and metropolitan areasacross the Nation. This system automaticallydisseminates accurate, up-to-date informationregarding parking facility occupancystatus to motorists upstream of thefacility, coupled with routing directions toopen facilities. From the perspective ofplanned special events, the system wouldfunction well for an event venue served byseveral parking facilities, such as one locatedin a downtown area. Electronic signscontrolled by the system inform motorists ofopen parking facilities as soon as they exitthe freeway system.An advanced parking information systemgenerally consists of the following fourcomponents: (1) vehicle detectors, (2) aparking control center, (3) information displays,and (4) a telecommunications network.Automated detection methods includeinductive loop, ultrasonic, infrared, microwave,and machine vision, although studieshave shown infrared detection functions bestfor advanced parking information systems.The parking control center receives and synthesizesdata collected by detectors, and thecenter transmits messages pertaining toparking facility occupancy to informationdisplays for motorists’ use. Operators at theparking control center can override the systemduring planned special events or unusualcircumstances. Information displaysinclude a combination of static and dynamicsigns disseminating parking availability informationand directions to open facilities.The system can incorporate other travelerinformation devices, such as HAR, theInternet, telephones, commercial television,and in-vehicle navigation. (2)The Minnesota DOT, Federal Highway Administration(FHWA), City of Saint PaulDepartment of Planning and Economic Development,City of Saint Paul Department ofPublic Works, and one private partner conducteda one-year Saint Paul AdvancedParking Information System OperationalTest for planned special events in the area. (3)The stakeholders performed the test in theCivic Center/Rice Park area of downtownSaint Paul, and the test consisted of the following:• Determination of parking stall occupancyby participating parking operatorsduring planned special events in downtownSaint Paul and instantaneoustransmission of available parking to theSaint Paul Traffic Control Center (TCC).• Instantaneous transmission of informationon available parking by the SaintPaul TCC to electronic message signs.• Wireless, automated parking advisorysigns placed at appropriate locations todisplay the number of stalls available atparking garages or lots with direction arrowsto the garages or lots.Table 6-7 summarizes some key findingsyielded by the operational test.Vehicle Access and CirculationIn order to facilitate safe and quick spectatorand participant travel to/from the event site,the site access and parking plan should specifytactics that prevent potential congestionon parking area access roads and allow forgood circulation on roadways surroundingthe event site. Table 6-8 indicates site accessand circulation considerations applicableto the development of a site access andparking plan. The three considerations of:(1) parking area ingress, (2) pick-ups anddrop-offs, and (3) parking area egress arediscussed in the following subsections.6-16

Table 6-7Key Findings from Saint Paul AdvancedParking Information System OperationalTest (3)FINDING• Advanced Parking is perceived beneficial tothe participating parking operators and the cityof Saint Paul.• Most motorists responding to a mail-backsurvey thought the system has value.• There were some improvements on the surfacetransportation system, but the improvementscould not be attributed directly to AdvancedParking.• Advanced Parking signs with full matrix displayshave sufficient capabilities to supportother traffic functions in downtown SaintPaul; Advanced Parking counter signs alonedo not have sufficient capabilities.• There were no institutional, legal, or otherprivate sector issues, which had a significanteffect on the operational test.• Advanced Parking is transferable to other citieswithout significant modification.The reader should review:• Select street and intersection control tactics(e.g., alternative lane operations,turning movement lane balance, trafficsignal operations) described in the “TrafficControl Plan” section of this chapterwarrant review for possible mitigation ofsite circulation deficiencies.• Traffic flow plan, traffic control plan,and parking area design provisions thatimpact the scope of mitigation requiredto provide adequate site access and circulation.Parking Area IngressDuring event ingress operation, several factorsinfluence the operation of access roadsconnecting the adjacent street system andparking areas:• While the physical characteristics of theadjacent street system and associatedtraffic control may meter traffic flowdestined to access roadways, the roadslikely do not have sufficient capacity toservice incoming traffic. As a result, theevent planning team should designatecontraflow (e.g., one-way) operation onthe access road segment connecting amajor feeder intersection and the relevantparking area. An advantage of implementingaccess road contraflow operationconcerns the capability of handlingtwo or more conflicting movementsfrom a feeder intersection withproper channelization. In turn, the designof parking area access points shouldensure accommodation of vehicles in alltravel lanes.Table 6-8Site Access and Circulation ConsiderationsCONSIDERATIONTACTICParking area ingress • Right turn circulation pattern• Contraflow operation• Shoulder utilization• Lane channelization• Parking area overflow access pointsPick-ups and drop-offs • Use of off-street areas• Designation of pick-up/drop-off areas to avoid conflict with primary trafficingress/egress routes• Storage areaParking area egress • Right turn circulation pattern• Preservation of adjacent street flow• Provision of rapid parking area unloading6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-17

• Shown in Figure 6-9, shoulder utilizationrepresents another strategy to gain additionalaccess road capacity. As indicatedin the figure, the temporary right shoulderlane services through traffic, and theinside lane provides direct access to aparking area.Figure 6-9Shoulder Utilization• Figure 6-10 shows an example of lanechannelization implemented on an accessroad serving venue parking areas.This control technique eliminates unnecessarylane changing, which reducesroadway capacity, in the vicinity ofparking area access points. Advancesigning can inform motorists on whichlane to use.Figure 6-10Lane Channelization• The use of multiple access points to thesame parking area provides an opportunitywhere vehicles traversing the leftlane must enter the first access point andvehicles traversing the right lane has accessto remaining downstream accesspoints (e.g., left lane becomes exclusivelane to the next downstream accesspoint).• A breakdown in either parking areaprocess or park operations creates congestionon the access roadway servingthe parking area. This is not a “lot full”situation but, instead, a situation characterizedby excessive service time to conductparking fee transactions or to parkvehicles. If parking operators do notmitigate the breakdown quickly, congestionon the access road propagates to theadjacent street system. The use of overflowaccess points and on-call operators/volunteerscan effectively limit andeven reduce congestion until parkingarea operations return to normal.Pick-ups and Drop-offsTable 6-9 lists guidelines for designatingpick-up and drop-off areas. Some considerationsinclude:Table 6-9Guidelines for Designating Pick-up andDrop-off AreasGUIDELINE• Utilize off-street areas for private vehicles,taxis, limousines, and buses.• Select areas that do not require vehicles tointersect heavy traffic flow to/from parkingareas or pedestrian access routes.• Designate separate areas for different vehicleclasses.• Ensure adequate space exists within the offstreetarea to accommodate vehicle storageand turnaround.• A site vehicle circulation rule of thumbinvolves implementing a right turn pat-6-18

tern of ingress and egress to achievemaximum street system capacity. Thequandary with pick-ups and drop-offsconcerns accommodating two-way vehicletravel, departing traffic during eventingress and arriving traffic during eventegress.o First, recognize these motorists willencounter resistance only in exitingthe immediate site area during ingressand vice versa during egress.They likely will travel in the oppositedirection of peak flow on freewayand arterial corridors serving theevent venue.o Second, vehicles may have to turnaroundafter a pick-up/drop-off.• The utilization of off-street parking areasfor taxi and limousine event serviceeliminates taxi/limo cruising at the endof a planned special event. For example,limousine drivers would have to meettheir customers after the event and escortthem back to the parked limousine. Thisstrategy has proven successful at reducingpedestrian/limousine conflicts at intersectionsnear the Staples Center inLos Angeles, CA. (4)• For private vehicles, an off-street lotprovides a convenient meeting location.• Pick-up and drop-off area capacityrepresents another key concern that practitionersmust address.• A queuing system, discussed in the nextsection on parking area design and operation,can describe the operation ofpick-up/drop-off areas for taxis anddrop-off areas for private automobiles,limousines, and buses.• In the case of pick-ups involving privateautomobiles, limousines, and buses, theevent planning team must designate anoff-site parking area of sufficient capacity,as determined through a parking demandanalysis, to stage vehicles operatedby drivers intending to pick-up a specificevent patron(s). In an effort to avoidconflict with heavy egress traffic, or as aclient courtesy, drivers typically arrive ata designated pick-up area before the endof the event.• Practitioners can estimate and comparethe service rate (vehicles per hour) of alllanes comprising a particular pickup/drop-offarea to the peak arrival rateof traffic using the area. The serviceflow rate for one lane equals one hourdivided by the time to process (i.e., servicetime) one vehicle pickingup/dropping-offevent patrons. If an averagepick-up/drop-off service time istwo minutes, then the service rate of onelane equals 30 vehicles per hour (60minutes divided by 2 minutes per vehicle).o Personnel assigned to monitor pickup/drop-offarea operation on theday-of-event can enforce a particularservice time or length of time a particularvehicle can stay in the pickup/drop-offarea.• Note that a pick-up/drop-off area queuingsystem operates stochastically. Trafficarrival rates will vary, and individualservice times that collectively determinethe service rate will also vary.• To handle a potential overflow situationat a pick-up/drop-off area, prohibit parkingon the access road adjacent to thepick-up/drop-off area, and cone (whennecessary) a vehicle stacking lane alongthe access road shoulder.Parking Area EgressTwo basic strategies surround parking areaegress operations. These contrasting strategiesinclude: (1) preserving adjacent streetflow and (2) effecting rapid parking areaunloading. Several important considerationsinclude:• Regardless of strategy, planners shouldlocate parking area access points as far6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-19

away as possible from major intersectionsso that vehicles can exit immediatelyfrom the parking areas without disruptingthe flow of traffic on the adjacentaccess road.• When the adjacent street represents acollector or arterial roadway, the trafficmanagement team generally seeks topreserve flow. This is accomplished eitherby manual or automated means. Amanual operations approach involvestraffic management team personnelmonitoring parking exit points. Crewspermit a maximum volume of traffic toexit the parking areas while still maintaininga smooth traffic flow on the adjacentroadway network. If traffic beginsto queue downstream of an exitpoint, personnel would communicate viaradio and movement out of the relevantparking areas stopped until mainlinecongestion dissipates.o This strategy worked successfullyduring two major rural events, the1986 and 1995 U.S. Golf Open atShinnecock Hills Golf Course inSouthampton, New York. (5)o Instead of manually controlling traffic,traffic management team personnelcould operate portable trafficsignals placed at parking area accesspoints.o If access points have a permanenttraffic signal, operators can simplyimplement new timing plans in favorof either egress strategy.• To effect rapid parking area unloading,consider providing multiple accesspoints for each parking area.o For planning purposes, practitionersmay either assume an access pointcapacity of 900 vehicles per hour perlane (e.g., 4 second headway betweenvehicles) or use computer trafficsimulation software to gain amore precise estimate based on localconditions.o An alternate approach involves temporarilystriping additional exitlanes, for a nominal distance (e.g.,1000+ feet) plus taper, on the adjacentaccess road to allow for multiplelanes of traffic out of the parkingarea. Figure 6-11 illustrates thisstrategy, implemented for a countyfair in rural Dutchess County, NewYork. This approach works wellwhen the parking area access point iscentrally located and accommodatestraffic from opposite ends of theparking area.Figure 6-11Access Road Traffic Pattern During EventEgress (6)Parking Area Design andOperationParking area operations consist of two distinctcomponents: process and park. A significantbreakdown in either componentwill, in turn, cause congestion to occur andpropagate on the access road serving theparking area. The objective of designingand operating parking areas involves providingan access point capacity in excess of thepeak rate of traffic flow that traverses thedriveway.Process Component6-20

Any planned special event parking area thatrequires a fee or permit for access has a servicefacility in-place to process vehicles enteringthe lot. Therefore, a first-in-first-outqueuing system exists. Figure 6-12 providesa schematic of this system. The queuingsystem is bounded by the service facility(e.g., parking area gate) and the queue storagearea. Figure 6-13 illustrates a queuingsystem at the entrance of a venue parkingarea. From a parking area operations perspective,queuing system characteristics include:ArrivalatSystem( λ = Arrival Rate )Queue( µ = Service Rate )ServersService FacilityBoundaries of Queuing SystemFigure 6-12Queuing System SchematicDeparturefromSystemFigure 6-13Permanent Venue Gate and Queue StorageLanes• The arrival rate, λ, denotes the numberof vehicles traversing a single parkingarea access point over some period oftime.• The maximum arrival rate represents thelesser of: (1) access point capacity or (2)adjacent access road capacity.• The service rate, µ, is the number of vehiclesthe service facility can processover some period of time. The magnitudeof this rate depends on the numberof servers (e.g., staff or automated gates)that comprise the service facility andserver efficiency.• Queuing happens when the arrival rateexceeds the service rate. For example, ifthe maximum arrival rate is 600 vehiclesper hour and four parking area gates areopen, then each server or staff personmust process 150 vehicles per hour, or 1vehicle in 24 seconds (e.g., the servicetime), in order to prevent vehicle queuesfrom forming. Motorists will locateopen servers, but the event planningteam should utilize the queuing systemconcept, and consider predicted arrivalrates, when staffing parking area accesspoints.• A parking area queuing system operatesstochastically. Traffic arrival rates willvary, and individual transaction timesthat collectively determine the servicerate will also vary.• In designing a service facility for aplanned special event parking area, selecta conservative server service time(e.g., the time to serve one vehicle) anddetermine the required number of serversthat can process the maximum anticipatedarrival rate with one server onbreak.• Service time may increase if law enforcementconducts random checks ofvehicles entering a parking area.• To avoid the occurrence of long servicetimes, designate a turnout area adjacentto the gates for vehicles subject to a detailedsecurity check.Table 6-10 indicates three vehicle processingtactics.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-21

Table 6-10Vehicle Processing Tactics at Parking AreaTACTIC• Manual transaction• Permit display• Automated transactionManual TransactionManual transaction refers to cash transactionsmade between a driver and humanserver. This tactic involves the longest andmost variable service times, as servers haveto periodically make change and even answerquestions.Manual transaction operation at parking areasclosely resembles the operation of manual(cash) lanes at toll facilities. In bothcases, signs inform drivers of the fee in advanceof the service facility, and serversconduct cash-only transactions. Numerouspublications on toll facility evaluation reportthe capacity of a manual toll lane rangesfrom 300 to 400 vehicles per hour. Thisequates to a service time of between 9 to 12seconds per vehicle. Practitioners may assumea service time in the stated range,where 12 seconds per vehicle denotes a conservativeservice time, for individual servershandling cash transactions at a planned specialevent parking area.Permit DisplayThe use of permits for planned special eventparking has become increasingly common.Originally, permanent venue or recurringevent season ticket holders received or purchaseda parking permit as part of their seasonticket package. Internet commerce hasspurred venues and event organizers to sellreserved parking spaces in advance to eventpatrons. Typical offers involve obtaining aguaranteed parking space near the venue andmain gate.Advance parking sales provide a two-foldadvantage from a parking operations perspective.First, event patrons will have advanceinformation on exactly where to parkat the event venue, and repeat customers willbecome familiar with the fastest route to theparking area. Second, the tactic eliminatescash transactions at reserved parking areason the day-of-event, substantially reducingservice time. In fact, a service facility is unnecessaryif parking operators post propersignage and conduct a vehicle check for violatorsbetween event ingress and egress.The operation of a permit-only parking areamirrors that of a free parking area. In determiningthe capacity of individual accesslanes to a free or permit-only parking area,practitioners may assume a 4 second headwaybetween vehicles (or 900 vehicles perhour per lane capacity). This represents thecapacity assumption made by officials, duringthe planning process, for free parkingareas used by spectators of the 2002 WinterOlympics. (7) In order to account for roadwaygeometrics or special turning maneuvers,practitioners can determine the capacityof access lanes using computer trafficsimulation software.Automated TransactionAn automated transaction involves deploymentof an electronic fee collection system,suitable for permanent venues hosting numerousevents. Similar in operation to anelectronic toll collection system, the systemwould require event patrons to have a transponderin their vehicle. Implementation of asmall-scale system could involve distributingtransponders to season ticket holders.Park ComponentParking operators and volunteers must meetthe following two requirements for parkingvehicles:6-22

• Park vehicles at the same rate as thosebeing processed.• Minimize pedestrian/vehicular conflictsinside parking areas.When multiple servers process vehicles, operatorsshould consider creating multiplevehicle streams from the service facility and,in turn, parking vehicles in different sectionsof the parking area. Each stream must maintainan adequate speed or congestion willoccur within the parking area and spillbackto the service facility. Prior to the event,parking operators should survey the parkingarea and note any features that may slowvehicles traversing a parking area. Such featuresinclude ditches, sand, and humps.Figure 6-14 shows an excellent example ofminimizing pedestrian/vehicular conflictsinside a parking area. Simply ensure thatevery vehicle entering a parking area parksas close to the adjacent pedestrian accessroute, leading to the venue or shuttle busstation, as possible. Erect pedestrian walkwaysigns and instruct volunteers to tellevent patrons where to walk as soon as patronsexit their vehicle.Figure 6-14Minimizing Pedestrian/Vehicular Conflictsin Parking AreasParking Occupancy MonitoringOn the day-of-event, traffic patterns andparking area loading patterns may vary fromevent planning team predictions. As a result,some parking areas, particularly nonreservedlots, may load faster than other lots.The event planning team and traffic managementteam must, in advance of the event,develop a detail for monitoring parking areaoccupancy levels for the ingress period. Thefocus of this task involves making a “lotfull” decision at a time when all vehiclesbetween the parking area access point andtraveler information devices directing motoriststo the parking area (e.g., the pipeline)can still park at the subject lot. As soon asteam personnel make a “lot full” call, TMCor command post operators change the messageset communicated by traveler informationdevices in order to direct motorists to analternate lot. The traveler information device(s)forming the upstream boundary ofthe pipeline must be located upstream of theaccess road serving an alternate parkingarea. In some cases, a parking area pipelinemay extend to a freeway or arterial corridorserving the event venue.Two methods for making a “lot full” decisionin the field include: (1) vehicle count atparking area access points and (2) visual inspection.Both methods require field personnelto have an estimate of the pipelinecapacity during load-in. That is, the definedpipeline length (account for multiple travellanes) divided by average vehicle spacing.Consider that up until the parking areareaches capacity, vehicles traversing thepipeline will be moving. Therefore, averagevehicle spacing equals vehicle length plusthe space allotted by drivers between vehicles.Average vehicle spacing ranges from30 feet (conservative) to 40 feet.The vehicle count method involves conductinga manual or machine count at the downstreampipeline end beginning at the start ofparking area load-in. This count representsthe number of vehicles that have entered theparking lot. The following equation definesa “lot full” decision:6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-23

(Capacity of parking area) – (Vehicle count)– (Pipeline capacity) = 0 (Lot full)The visual inspection method involves thetraffic management team or parking operatorsmaking a “lot full” decision based oncomparing a visual estimate of availableparking spaces to the pipeline capacity. Theparking area access point(s) must denote thedownstream pipeline terminus. Team personnelcan obtain an estimate of availableparking spaces on the ground, from an overheadvantage point, or from aerial observation.This method is not as precise as thevehicle count method, but the visual inspectionmethod: (1) requires less personnel resourcesand (2) can be implemented in thelatter stages of load-in, as necessary to assessconditions.Table 6-11 summarizes the parking occupancymonitoring plan used during the 2002Winter Olympics.Table 6-112002 Winter Olympics Parking OccupancyMonitoring Plan (1)STEP• The observers at each lot reported hourly tothe TMC command post on the percent of lotcapacity in use.• The status of all lots was tracked by the TMCcommand post.• As any lot approached capacity, a backup lotwas identified by the TMC command post.• For each lot and backup lot, the upstreamCMS locations were identified.• Diversion messages were posted by the TMCat those CMS locations.• Approaching motorists saw the CMS instructionsand diverted to the new lot.Parking RegulationsPlanned special events require law enforcementand other stakeholders to considervarious on-street and off-street parking regulations.On-street parking regulations involveday-of-event parking restrictions, asillustrated in Figure 6-15, to: (1) preserveparking for nearby residents and businessesand (2) increase capacity on critical accessroutes serving the planned special event.Table 6-12 lists some considerations for developingoff-street parking regulations.Figure 6-15Parking Restriction SignsTable 6-12Off-street Parking RegulationConsiderationsCONSIDERATION• Parking area opening and closing time• Parking on grass adjacent to paved areas• Parking on islands, medians, and berms• Parking on the access road shoulder• Private parking area regulations regarding theobstruction of traffic flow• Obstruction of pedestrian access routes (e.g.,sidewalks)• Tailgating:o Occupy one parking space onlyo Saving of parking spaceso Blocking of aislesPractitioners should assess the use of privateland (residential or business) for event patronparking. Owners entice arriving eventpatrons to use private parking areas by offeringa reduced fee relative to event parkingareas, or drivers recognize the convenienceof the lot location with respect to accessing afreeway or arterial corridor needed to exitthe area during egress. Problems may occurparticularly during event egress when a continuousstream of traffic exiting a private6-24

lot(s) conflicts with heavy adjacent streettraffic attempting to exit the local area surroundingthe event site. Congestion on theadjacent street creates congestion thatpropagates upstream and toward the eventsite area. Solutions to mitigate the potentialimpact of private parking areas on adjacentstreet traffic flow during event ingress andegress include: (1) requiring owners of privateland to obtain a permit to offer parkingfor a fee during a planned special event and(2) staffing traffic control officers at privatedriveways during egress to meter trafficflow out of the private parking area.Three keys to successfully implementing aparking regulation include enforcement, advertising,and signing. Enforcement involvesboth ticketing and towing. Towtrucks assigned to the planned special eventvenue site can facilitate immediate removalof illegally parked vehicles. Prior to theevent, the event planning team could designatean on-site area to serve as a repositoryfor towed vehicles. Event patrons could accessthe area on foot and then would have topay a towing charge to retrieve their vehicle.The event planning team should inform affectedlocal residents and businesses ofparking restrictions via direct contact ormailing. To better meet community needs,stakeholders can setup a telephone hotlineduring the planned special event to field anycomplaints. This tactic assists law enforcementin identifying areas requiring greaterenforcement. For multi-day events, law enforcementcan base second-day enforcementpatrols on first-day public comments.Plan SpecificationsThe event planning team should design asite and parking plan to service both the trafficmanagement team and event patrons.Pre-trip traveler information dissemination(via media, websites, mailings, brochures)should include elements of the site and parkingplan. Table 6-13 contains a site andparking plan development checklist. AppendixH contains example site and parkingmaps prepared for permanent venues.Event patrons primarily focus on informationspecifying time of operation, location,and cost. These elements define the utilityassociated with choosing a particular parkingarea or electing to drive to the event sitealtogether. As shown in Figure 6-16, thedistribution of an annotated aerial map benefitsevent patrons unfamiliar with the immediatevenue area. Figure 6-17 shows adowntown arena parking map that displaysparking fees for various off-site parking areaswithin sufficient walking distance fromthe venue. Table 6-14 lists considerationsfor posting any planned special event planon an Internet website.PEDESTRIAN ACCESSPLANOverviewA pedestrian access plan provides for thesafe and efficient movement of pedestrianswithin the immediate area of the venue.This includes accommodating pedestriantrips to/from several mode transfer points ina planned special event activity network.These points, shown for example in Figure6-18, include site parking areas, transit stations,express/charter bus stations, shuttlebus stations, and pick-up/drop-off areas.Moreover, some event patrons may maketheir entire trip, originating from home orwork, on foot. In meeting the managingtravel for planned special events goal of ensuringsafety, the event planning team mustdevelop a plan that: (1) accommodates pedestriansaccessing an event via a networkof safe walking routes and (2) minimizespedestrian/vehicular conflicts.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-25

ELEMENTEvent patronparking areasTable 6-13Site and Parking Plan ChecklistPROVISION• Highlight free, pay (state rates), and reserved (permit) 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 tofreeways 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.)• Indicate gate names as shown on event patron tickets.Gate accessinformationVIP information • Show VIP (e.g., official guest / sponsor) parking areas.• Show credential pick-up location.• Show hospitality areas.Shuttle bus routeand stationsDrop-off / pickupsitesOther parkingareasDisabled parkingareasOtherconsiderations• Display shuttle route and all stations.• State cost, and emphasize free services.• Show access points and circulation lanes for transit/taxi/limo/shuttle service.• 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.• Show express/charter bus parking area.• Show limousine parking area.• Show media parking area.• Show venue employee parking area.• State specific location (e.g., first row) of disabled-only spaces in general parking areas.• Indicate number of spaces available.• Show aerial map.• 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.6-26

Figure 6-16Annotated Aerial Map of Venue Site (Photocourtesy of the Pepsi Center.)Figure 6-17Downtown Area Venue Parking Map(Graphic courtesy of the Conseco Fieldhouse)Table 6-14Considerations for Posting Plans on anInternet WebsiteCONSIDERATION• Recognize detailed plans and maps may bedifficult to read, especially when compressedfor easy downloading.• Create an interactive plan to better presentdetailed information contained in the plan.• Allow users to access information on specificentities via hyperlinks embedded in the plan.• Provide a black and white version of plans forevent patrons to download and print.• Provide text directions to support plans.• Provide maps and directions based on point oforigin (e.g., city or roadway).Figure 6-18Mode Transfer PointAs with planned special event travel demand,peak event-generated pedestrian demandrates vary by event category:• A discrete/recurring event at a permanentvenue is characterized by high peakpedestrian arrival and departure rates.Maximum pedestrian demand occurs afterthe end of a discrete event, and thehigh demand level meters pedestrianflow to event parking areas and transit/shuttlestations, thus metering vehicledepartures from the venue area.• High attendance at continuous eventsand street use events yields high pedes-6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-27

trian traffic traversing the adjacent streetsystem for a sustained period of time.Existing pedestrian facilities, namely sidewalksand crosswalks as illustrated in Figure6-19, can not adequately accommodate pedestriantraffic in the vicinity of a plannedspecial event venue during ingress or egress.If stakeholders fail to implement proper pedestriancontrol measures, then pedestrianswill risk exposure to moving traffic andtraverse travel lanes, causing traffic congestion,under heavy flow conditions. Also, thepopularity of planned special event transitservice requires advance consideration ofmoving pedestrians between an event venueand nearby transit stations.Figure 6-19At-Grade Pedestrian Crossings Adjacent to aVenue GateA successfully implemented pedestrian accessplan for planned special events permitsrapid dispersion of pedestrian flow. Althoughhigh pedestrian volumes encompassthe immediate venue area during ingress andegress, the plan effects efficient accessthrough a radial network of pedestrianroutes. It also includes time-sensitivestrategies to minimize overcrowding conditionsat venue gates and mode transferpoints. The plan also considers a continuousshuttle bus service operations detail to handleevent patrons destined to/from satelliteparking areas and transit stations not easilyaccessible by foot.Pedestrian ControlPedestrian access routes are comprised oftwo components:• A routing component, consisting ofsidewalks or paths between street intersections.• A crossing component, consisting of infrastructureor other vehicle controlmeasure that allows pedestrians to crossa street safely.Planned special event pedestrian managementinvolves the implementation of integratedcontrol tactics to facilitate pedestrianrouting and crossing between a mode transferpoint and the event venue. Key considerationsinclude:• Pedestrian access route capacity representsthe smallest of its routing andcrossing component capacities.• In a radial network, where pedestrianvolume is highest at the center or venue,the event planning team should designpedestrian access routes to provide increasinglygreater capacity from sitearea to venue.• Another important planning and operationsconsideration involves preventingthe intersection of pedestrian accessroutes. This results in overcrowding atthe intersection point and compromisespedestrian safety, particularly if twostreams of pedestrians intersect at astreet crossing.• Practitioners should design each accessroute to exclusively serve a venue gateand implement control tactics to preventroutes from converging until reachingthe event venue.• Associated tactics include erecting pedestriancrossing barriers, as shown inFigure 6-20, at street intersections anddeploying roving law enforcement pa-6-28

trols for pedestrian protection andcrowd control.Pedestrian RoutingTwo strategies for managing pedestrian flowon walkways during planned special eventsinclude:6Figure 6-20Pedestrian Crossing Barrier• Use of bicycle, equestrian, or all-terrainvehicle patrols allow officers to convenientlyaccess and travel on streets, pedestrianaccess routes, and parking areas.• A traffic operations agency can assistlaw enforcement in maintaining orderlypedestrian flow through the site area byusing CCTV to monitor pedestriantravel and operations at critical crossingpoints. Shown in Figure 6-21, stakeholdersmanaging travel for majorevents at the Daytona InternationalSpeedway successfully used portableCCTV cameras to monitor the pedestrianegress flow rate from the venue inaddition to operations at several nearbystreet crossings.• Locating access route termini.• Providing additional, temporary pedestrianwalkway capacity.Key design aspects to consider include:• The event planning team and parkingarea operators should avoid having a pedestrianaccess route and parking areaaccess point intersect.• Vehicle turning movements in and out ofaccess driveways impact pedestriansafety and flow, and the implementationof special traffic control measures reducesvehicle arrival rate to parking areasand may create congestion on parkingarea access roads. Instead, stakeholdersshould provide an uninterruptedpedestrian walkway, connecting a pedestrianaccess route to parking areas, andstation volunteers inside parking areas toprevent pedestrian/vehicular conflicts.• To effect pedestrian dispersion in theimmediate area of the venue, locate temporarytransit stations a sufficient distanceaway from venues while still affordingevent patrons a convenient walkingdistance. As a result, potential stationovercrowding during event egressdoes not impede pedestrians from accessingroutes leading to other modetransfer points. This tactic also benefitstransit users as traffic management teampersonnel can better manage stationqueues by cordoning loading/unloadingareas and closing street curb lanes tofurnish additional queuing area notavailable adjacent to the venue.EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEWFigure 6-21Pedestrian Traffic Monitoring Via CCTVObtaining additional pedestrian walkwaycapacity involves increasing walkway width.6-29

Tactics for achieving increased width include:(1) removing movable sidewalk obstacles,such as news racks and benches and(2) closing the adjacent street curb lane forpedestrian traffic. Key considerations include:• Consider implementing the latter tacticbetween the event venue and accesspoints to parking areas and pickup/drop-offareas, but terminate the laneat street intersections if turning trafficcan traverse the pedestrian-designatedcurb lane.• Use barricades and drums, coupled withlaw enforcement patrol, separate trafficand pedestrian flow.• To satisfy both public safety agency andpedestrian accommodation needs, considerclosing street segments adjacent toan event venue. For example, as shownin Figure 6-22, a closed street can functionas a pedestrian access route andemergency access route.Figure 6-22Pedestrian Access Route and EmergencyAccess Route (8)Pedestrian CrossingTable 6-15 describes tactics for improvingthe safety and capacity of pedestrian streetcrossings.Table 6-15Pedestrian Crossing TacticsTACTICAPPLICATIONTemporary 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.6-30

Use of a temporary pedestrian bridge representsan effective tactic for crossing widestreets or roadways where traffic throughputis emphasized. Advantages include safetyand minimal traffic management team staffingrequirements. Disadvantages includecost and the lack of access for disabled persons.Figure 6-23 shows a temporary, prefabricatedpedestrian bridge that was successfullydeployed during the 1995 U.S.Golf Open as a pedestrian crossing, over anarterial roadway and the Long Island RailRoad, between the event venue and twomode transfer points (transit station and VIPparking area).Figure 6-23Temporary Pedestrian BridgeTemporary street closures during eventegress allow the venue to empty faster andpermits pedestrians to disperse to a numberof adjacent mode transfer points and pedestrianaccess routes. Recognize that heavypedestrian flow on street crosswalks nearvenue gates significantly reduces trafficturning movement capacity. Therefore, totalstreet closure mainly impacts cross streetthrough traffic flow, traffic that can be divertedaway from the immediate venue area.The traffic management team reopens thestreet when traffic signal phasing can accommodateremaining pedestrian demand.As shown in Figure 6-24, law enforcementmay close a road segment(s) adjacent to themain gate of a continuous event to alleviatethe need to staff multiple at-grade crossingsas patrons arrive and depart throughout theevent day.Figure 6-24Road Closure Adjacent to Event VenueFigure 6-25 shows a staffed, mid-block pedestriancrossing. Mid-block crossings notonly reduce the likelihood of vehiclepedestriancollisions, but accident severityas well. As with all staffed crossings, trafficmanagement team supervisors should establishthe relative priority of competing pedestrianand traffic movements and communicatethat priority to officers controlling suchcrossings.AnalysisFigure 6-25Staffed Mid-block CrossingPractitioners should analyze the level of serviceof major pedestrian access routes andcrossings, first and foremost to ensure anticipatedpedestrian demand levels do notexceed available capacity at any time duringevent ingress and egress. Overcrowding onpedestrian facilities compromises the safetyof pedestrians and may interfere with adjacentstreet traffic flow.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-31

The Highway Capacity Manual (HCM) includesprocedures for computing capacityand level of service for various types of pedestrianroutes and crossings, summarized inTable 6-16. (9) With regard to capacity, aLevel of Service E indicates design volumesapproach the limit of facility capacity. TheHCM also discusses characteristics of pedestrianflow and various performancemeasures.Table 6-16Pedestrian Facilities Covered in theHighway Capacity ManualFACILITY TYPE• Walkways and sidewalks• Pedestrian queuing areas (e.g., transit/shuttlestations and street crossing areas)• Pedestrian crosswalks at signalized and unsignalizedintersections• Pedestrian facilities along urban streets (e.g.,extended pedestrian facilities with both interruptedand uninterrupted flows)gates. This does not apply for temporaryvenues or locations of street use events.Disabled parking spaces at municipal andprivate parking areas serving continuousevents and street use events may be locatedtoo far a distance from venue gates or eventviewing areas. Each individual specialevent parking area includes a minimumnumber of disabled parking spaces to meetADA regulations, thus rendering an ondemand,accessible shuttle operation fromthe lot impractical. As a result, the eventplanning team should sign and staff oneparking area, nearest to venue gates or primeevent viewing areas, for disabled parking.Figure 6-26 shows an access point to a municipallot designated a disabled parkingarea for a downtown planned special eventat a temporary venue.Disabled AccessibilityThe pedestrian access plan must accommodatedisabled event patrons arriving via alltravel modes serving a planned specialevent. This involves examining all routesthat a disabled event patron may traverseand, in turn, ensuring the patron has an unimpededpath from mode transfer point tovenue seat. Accessible pedestrian routesmust: (1) maintain a minimum path width,(2) include curb cuts and temporary rampsfor negotiating grade separations, and (3)conform to local Americans with DisabilitiesAct (ADA) regulations. If a particularroute (e.g., from express/charter bus stationor transit station) does not meet accessibilityrequirements, then accessible shuttles mustoperate between affected mode transferpoints and accessible pick-up/drop-off areas.Permanent venue parking areas have designatedaccessible parking and pick-up/dropoffareas that provide disabled event patronswith unobstructed access to event venueFigure 6-26Special Event Disabled Parking Area AccessPointShuttle Bus ServiceA shuttle bus service should be operatedcontinuously within the venue site area duringevent ingress and egress, with the serviceschedule revolving around event patronarrivals and departures. Common shuttleservice to/from a planned special eventvenue include: (1) satellite parking area service,(2) transit station service, and (3) employeeparking area service. A particularplanned special event may involve multipleprivate and public (e.g., transit agency) shuttleservice operators, all of whom must co-6-32

ordinate with the event planning team onservice details and station locations.The shuttle bus service planning processshould incorporate the considerations listedin Table 6-17. These considerations impactthe overall travel choice utility associatedwith the activity network supported by ashuttle bus service. Its design and operationon the day-of-event must satisfy a range ofuser needs, summarized in Table 6-18.These needs pertain to service and stationprovisions. Successful shuttle bus servicespositively influence the travel mode or destination(e.g., off-site) choice made by personstraveling to and from a planned specialevent. As illustrated by the event websitepromotion displayed in Figure 6-27, anevent public information campaign mayspotlight shuttle bus operations to promotealternate travel options, such as transit use orparking at a satellite parking area.Table 6-17Considerations in Shuttle Bus Operations (10)CONSIDERATION• Travel time• Directness• Avoidance of traffic problem areas• Separation of shuttle buses from event traffic• Boarding locations• Ability to load/unload passengers simultaneouslyon several buses• Pedestrian routing• Neighborhood impactsTable 6-18Shuttle Bus Service User Needs (11)NEED• Have less than a 5-minute wait time.• Have a short or moving embarking queue.• Have an on-time arrival.• Be free of confusion.• Be protected from weather conditions.• Have less than a quarter-mile walk to/from theshuttle station.Figure 6-27Shuttle Bus Service Promotion (Graphiccourtesy of The Ohio State University.)Service DesignThe end result in shuttle bus service designinvolves determining the required number ofbuses to meet expected ridership levels.Based on event category and associated operationscharacteristics, the number of shuttlebuses needed during event ingress andegress may vary. Discrete, recurring eventsat a permanent venue demand maximumservice at the end of the event.Primary service design inputs include eventpatron arrival and minimum service headway(e.g., time between bus arrivals). Toestimate the magnitude and rate of arrival,consult parking demand analysis and travelforecast results applicable to the mode transferpoint(s) (e.g., parking area or transit station)to be serviced by the shuttle bus. Utilizevehicle occupancy figures referenced inthe event feasibility study to convert vehicle-tripsto person-trips in order to developshuttle ridership estimates. The shuttle busservice will serve approximately the samenumber of persons during egress operationas it does during ingress operation. As previouslynoted, demand rates likely may vary.On the day-of-event, service operatorsshould utilize ingress passenger counts toreevaluate service needs before the plannedspecial event ends.Minimum service headway represents afunction of route service time. The followingequation defines route service time:Route service time = (Round-trip traveltime) + (Number of shuttle bus stations on6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-33

oute) * (Average passenger loading time atone station + Average passenger unloadingtime at one station + Average dwell time atone station)Travel time estimates must reflect day-ofeventoperations and may vary depending ontransit accommodation strategies containedin the event traffic control plan. The followingequation defines minimum serviceheadway:Minimum service headway = (Route servicetime) / (Number of shuttle buses operatingon a specific route at any given time)The following steps describe how to determinethe required capacity to successfullyoperate a shuttle bus service on a particularroute:• First, design the shuttle bus fleet sizebased on the criteria of providing aminimum service headway less than themaximum desired user wait time. Usingthe above equation for minimum serviceheadway: (1) substitute the maximumdesired user wait time for minimum serviceheadway, (2) insert the route servicetime, and (3) solve for the number ofshuttle buses required on the route,rounding up to account for the user waittime criteria. Note that the serviceheadway between successive shuttlebuses may be greater than the minimumservice headway if the fleet of buses assignedto a particular route are not perfectlystaggered to yield equal headwaysbetween buses.• Second, compare the event patron rate ofarrival to the rate of available shuttle busseats per unit of time. To accommodatepedestrian flow during peak periods ofingress and egress, practitioners shouldconsider a sub-hourly analysis (e.g.,peak 15 or 30 minutes) using the highestanticipated event patron arrival rates.For analysis purposes, arrival rate refersto the rate of pedestrians arriving to ashuttle bus station at a parkingarea/transit station and at a venue duringevent ingress and egress operations, respectively.Practitioners should increasethe number of shuttle buses serving aparticular route, as necessary based onanalysis results, to meet peak event patronarrival rates and avoid overcrowdingat shuttle bus stations.• Third, account for dwell time and eventpatron demand at all shuttle bus stationsserviced by a particular shuttle route.Station DesignA temporary shuttle bus station will exist atboth a mode transfer point and at the eventvenue. Station design and operations shouldfacilitate the rapid loading and unloading ofshuttle passengers without impacting adjacenttraffic operations and pedestrianmovement. Because of the high concentrationof pedestrian traffic at the event venueduring ingress and egress, venue station designis critical. On-site shuttle bus stationsshould: (1) facilitate easy shuttle bus access,(2) provide a defined passenger waitingarea, (3) promote an orderly queue formation,and (4) shield waiting passengers fromadjacent vehicular and pedestrian traffic.Figure 6-28 shows an on-site shuttle bus stationlocated adjacent to a roadway designatedexclusively for bus use during a ruralplanned special event. Table 6-19 summarizeskey considerations that surround shuttlebus station design.6-34

ManagementFigure 6-28On-Site Shuttle Bus StationShuttle bus service operators should haveaccess to pertinent traffic management teamradio communication channels and/or considerstationing a supervisor in the eventcommand post. Station volunteers canmonitor passenger queuing and loading/unloadingtimes. Bus operators canmonitor passenger volume and communicatebus travel time and location. The servicesupervisor, in turn, directs service responseto schedule delays, bus breakdowns, stationovercrowding, and traffic incidents blockingservice routes.Table 6-19Considerations in Shuttle Bus Station DesignCONSIDERATION TACTIC BENEFITLocation at venue • Designate an exclusive curbside bus lane on a road segmentadjacent to the venue.• Locate station adjacent to bus lane but away from venuegates.• Design bus loading areas and turnarounds by using appropriatebus turning templates.• Layout bus turnarounds in the field and use the selectedbus size for a test drive to assure U-turns can be accommodatedwithout requiring the bus to back-up.Pedestrianmanagement• Connect stations to planned pedestrian access routes.• Enclose passenger waiting area with temporary barriers(e.g., snow fencing or barricades)Shuttle loading • Designate sections within passenger waiting area thatcorrespond to different shuttle bus destinations (if any).• Erect signs disseminating information on fare structure,ticket purchasing, and important regulations.• Deploy volunteers to answer questions and assist passengersin shuttle embarking and disembarking.• Create ability to load/unload several buses simultaneously.• Avoids pedestriansusing shuttle fromcrossing streets.• Assures safe andefficient design forbus movements.• Improves passengersafety.• Minimizes conflictwith other pedestriantraffic.• Reduces shuttleloading time.• Eliminates passengerconfusion.Passenger comfort • Provide shelter over station (e.g., tent). • Creates a landmarkfor identifying thestation.• Keeps passengersprotected fromweather conditions.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-35

Shuttle bus operation contingency plansshould include alternate shuttle routes in theevent of a traffic incident occurrence. Thealternate route should traverse a completelydifferent set of streets than the preferredroute. Service operators should maintain anoperations and route detail for any parkingareas denoted as an alternate (e.g., for overflowor weather reasons) to the primary lotserved by the service. Other applicable contingencyinformation includes temporaryservice locations for bus maintenance andfueling.CostThe operation of a shuttle bus service likelywill realize greater efficiency for discreteevents compared to continuous events suchas fairs and festivals. Funding is obtainedthrough satellite parking area fees, corporatesponsorship, or general event revenues. Insome cases, parking is free, and the shuttleservice charges a nominal fare to passengers.This arrangement may cause delaysduring passenger embarking, particularly ifthe bus operator must collect fares. Shuttleusers likely will resist any fare charged forshuttle bus service from a transit station.Therefore, a fare-based shuttle service couldsignificantly impact the utility that event patronsassign to transit when consideringplanned special event travel options.Plan SpecificationsTable 6-20 lists pertinent pedestrian accessplan informational elements of interest toevent patrons and participants. A trafficflow map or traffic control plan, prepared asa traveler information tool, may containcallouts to pedestrian facilities and day-ofeventcontrol tactics. Traffic managementteam personnel will require an implementationplan tailored to each pedestrian managementinitiative.Table 6-20Pedestrian Access Plan ChecklistELEMENT• Show recommended pedestrian access routes.• Show pedestrian bridges and tunnels.• Indicate special pedestrian crossing tactics(e.g., street closure or mid-block crossings)• Show shuttle bus route, direction of travel,stop locations, and loading and unloading areas.• Show vertical connections between infrastructurelevels (e.g., stairs, escalator, elevator,ramps).• Show designated pedestrian crossings at streetuse event venues.• Indicate special regulations.• Highlight pedestrian access routes and crossingssuitable for disabled event patrons.TRAFFIC FLOW PLANOverviewThe preparation of a traffic flow plan representsa required preliminary step to the designof a traffic control plan. The trafficdemand analysis component of a feasibilitystudy indicates the freeway/arterial corridorsand local streets that event patrons will utilizeto access the venue site area. In developinga traffic flow plan, the event planningteam modifies predicted flow routes tomaximize transportation system operatingefficiency on the day-of-event while meetingpublic safety agency needs. In turn, atraffic control plan facilitates traffic flow onrecommended flow routes through serviceenhancingstrategies and tactics that handleforecasted event traffic demand on theseroutes.The advantage of developing a traffic flowplan is two-fold:• Allows the event planning team to influenceand control event patron patterns ofingress and egress. This improves transportationsystem operations and reduces6-36

the impact to neighborhoods surroundingthe event venue.• Provides important advance informationfor event patrons and participantsregarding best access routes to the event.These directions provide event patrons,particularly those not familiar with theregion, an increased level of comfortwhen traveling on the day-of-event.Event patrons also recognize that thetraffic management team will sign, staff,and prioritize flow on designated routes.Non-attendee transportation system usersbenefit by gaining advance notice ofevent-designated traffic and transitroutes.Information RequirementsTable 6-21 lists various sources of data andinformation that drive the traffic flow plandevelopment process. Key points thatshould be considered include:Table 6-21Traffic Flow Plan Information SourcesSOURCE• Market area analysiso Regional directional distribution• Traffic demand analysiso Local directional distributiono Day-of-event traffic demand• Site access and parking plano Parking area assignment• Road closures required for event stagingo Street use event• Public safety agency requirementso Emergency access routes• Transit agency requirementso Scheduled and event service• A traffic flow plan should accommodatebackground traffic flow in addition totransit service, which will be promotedas an event patron travel alternative.• Recommended traffic flow routes shouldnot traverse or intersect emergency accessroutes, if possible.• Event mandated road closures refer, inparticular, to street use event parade andrace routes. If not already designated,the event planning team should first determinethe street use route.o Table 6-22 provides a general checklistfor evaluating the impact of closingone or more adjoining streetsegments, while Figure 6-29 shows aparade staging area.o Typical staging areas include offstreetparking areas and cross streetsadjacent to the parade route.o Upon reviewing the street closurechecklist, the event planning teamshould consult with community intereststakeholders and public safetyagencies in order to identify all concernsand solicit input.Another key information component concernsthe identification of roadway capacitydeficiencies or bottleneck locations. Thisincludes freeway weaving areas, freewayramp junctions, freeway/street lane-drops,and intersection traffic control. Bottlenecklocations yield a constant rate of flow (e.g.,saturation rate), and appropriate traffic controlstrategies can temporarily alleviate thebottleneck on the day-of-event by increasingsaturation flow rate. Consult the feasibilitystudy roadway capacity analysis results orconduct new analyses to evaluate operationson traffic flow routes not previously considered.In addition, practitioners should considerdriving, and creating a video/photo log,of proposed traffic flow routes, emergencyaccess routes, and transit routes. This activityassists in verifying computer analysisresults and facilitating off-site event planningteam evaluation of recommendedroutes.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-37

Table 6-22Road Closure Impact Checklist (12)ELEMENTPROVISIONOne-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 accessParade staging area • Provide sufficient area for parade staging.Coincidence with • Does not conflict with existing roadway construction activities.roadway constructionProximity to majortraffic generators• Has no adverse impact on nearby major traffic generator (e.g., shopping center,entertainment venue, etc.).Presence of alternateroutes for local access• Has available alternate 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 devicesFigure 6-29Parade Staging AreaStrategic Route PlanningThe traffic flow plan must account for twotypes of traffic flow routes: corridor andlocal:• Corridor flow routes include the freewaysand major arterial roadways servingthe planned special event venue.• Local flow routes traverse the street systemadjacent to the event venue and servicea particular parking area or pickup/drop-offpoint.• A target point represents the point ofconnection between corridor and localflow routes, characterized by a freewayinterchange or major arterial intersection.o In the driver’s mindset, reaching atarget point during event ingress signalsentrance into the local area surroundingthe event site. At thispoint, the driver anticipates receivinginformation and directions on eventparking and pick-up/drop-off areas.o During event egress, the driver’s objectiveinvolves reaching the nearesttarget point (e.g., freeway interchange)in order to access a familiarcorridor flow route leading towardhome or some other destination.6-38

• On the day-of-event, the management ofcorridor flow routes typically involvessurveillance and dissemination of travelerinformation regarding target pointand local flow route operations. Thetraffic management team implementstraffic control initiatives beginning at thetarget point and continuing along the localflow route.o Figure 6-30 displays a traffic flowplan that indicates, for reference byevent patrons, various target pointsfor access to individual venue parkingareas.Figure 6-30Corridor Target Points (Graphic courtesy ofDover Motorsports, Inc.)Table 6-23 indicates general considerationsfor developing traffic flow routes. Figure 6-31 shows one corridor flow route spawning,via two target points, three local flow routesdestined to the same venue access point.The figure demonstrates how a traffic flowplan works to assure that traffic demand onthe existing street system adjacent to anevent venue does not exceed capacity on theday-of-event if signed and staffed appropriately.Table 6-23Traffic Flow Route DevelopmentConsiderationsCONSIDERATION• Focus on ingress and egress operations separately.• Avoid left-turn movements across trafficflow.• Divert traffic flow routes from critical locations(e.g., other flow routes) that could createcongestion.• Develop multiple local flow routes, connectedto one corridor flow route, as necessaryto achieve optimum traffic distributionon the roadway system.• Assign local flow routes to contingencyoverflow parking areas identified in the siteaccess and parking plan.Figure 6-31Multiple Local Traffic Flow Routes(Graphic courtesy of the City of San Diego.)6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-39

Figure 6-32 describes a process for assessingcorridor and/or local traffic flow routes.Traffic control strategies for increasing corridorroute capacity include eliminatingweaving areas or other ramp control tactics.Strategies for local routes include stripingadditional travel lanes to handle flow in thepredominant direction, restricting turningmovements, and revising traffic signal timingplans. The “Traffic Control Plan” sectionof this chapter describes these strategiesand other mitigation alternatives in greaterdetail.Aside from parking contingencies and theoccurrence of severe congestion on the dayof-event,practitioners should maintain andpromote the same flow routes identified inthe traffic flow plan. These routes are generallypre-signed and communicated toevent patrons and participants prior to theevent. Measures of effectiveness for evaluatingthe performance of designated trafficflow routes, in additional to correspondingtraffic control strategies, include: (1) time toregain free-flow operations and (2) time toclear parking areas.NoIdentify TrafficFlow RouteEstimate ExistingRoute CapacityForecastTrafficDemand >Capacity?YesIdentifyTraffic Control Strategyto Increase CapacityForecastTrafficDemand >Capacity?NoEstimate Changes inBackgroundTraffic DemandConduct Analysis andModeling to EstimateOperational MOEsYesReevaluateTraffic Flow RouteReevaluateTraffic ControlStrategiesAlternate RoutesThe deployment of an alternate route planmarks a key traffic management strategy forminimizing the effect of non-recurring congestion,caused by a traffic incident orevent-generated traffic demand, on trafficflow. It serves to reduce demand at a trafficincident site or bottleneck through the diversionof traffic from the mainline to parallelfreeways, arterials, and streets. As part oftraffic incident management efforts, somejurisdictions may maintain alternate routeplans for freeway and arterial segments traversinga region.Review Route withCommunity InterestStakeholdersImpact onTraffic OperationsAcceptable?YesRecommend RouteNoIdentify Event Trafficor Parking RestrictionsFigure 6-32Traffic Flow Route Assessment Process6-40

An alternate route plan represents a contingencyplan that stakeholders should considerdeveloping for corridors serving a plannedspecial event venue, where high-speedcrashes or cargo spills may block travellanes for a long duration. In other instances,an alternate route plan becomes a criticalcomponent of the overall event traffic managementplan when roadway or bridge constructionactivities limit the capacity ofmainline corridor flow routes. Transportationsystem operators should also promotetravel choice alternatives, such as usingother travel modes, as an option to drivingalternate routes.The process of developing alternate routeplans and procedures for plan deploymentrequires a group endeavor involving all affectedagencies, most of which likely comprisethe event planning team and/or trafficmanagement team. Table 6-24 lists the stepsrequired in developing an alternate routeplan. Practitioners should consult NCHRPSynthesis 279, Roadway Incident DiversionPractices, for state-of-the-practice informationabout the development and deploymentof alternate route plans. (13) Table 6-25 highlightsnumerous considerations in alternateroute plan development, all of which are addressedin the cited synthesis report.Table 6-24Alternate Route Plan Development ProcessSTEP• Identify mainline bottleneck or problem locations.• Evaluate proposed alternate routes.• Determine appropriate criteria for plan deployment.• Achieve participating agency agreement onroles and responsibilities.• Identify equipment and personnel resourcesrequired to deploy an alternate route plan.• Establish guidelines for plan evaluation andupdating.The effectiveness of deploying an alternateroute plan revolves around the accommodationof diverted traffic along the alternateroute. It is essential that the diverted trafficencounter an equal or higher level of serviceon the alternate route compared with that onthe mainline. As shown in Figure 6-33, alternateroute plan deployment, particularlyplans developed specifically for a plannedspecial event, typically requires significantlaw enforcement resources for alternateroute traffic management and operationssurveillance. Technology applications formanaging traffic on an alternate route, andreducing field personnel requirements, includethe installation of dynamic route guidancesigns controllable from a transportationoperations center. Figure 6-34 shows a dynamictrailblazer sign. During the programplanning phase, stakeholders managing recurringplanned special events at permanentvenues should evaluate the need for installingthese devices along commonly used alternateroutes serving the event venue.Emergency Access RoutesEmergency access route planning involvesdesignating street closures within the venuesite area to connect the some or all of thefollowing termini: (1) public safety (e.g.,fire and emergency medical service) headquarters,(2) local hospital, (3) freeway ormajor arterial serving a regional hospital,and (4) location of staged ambulances andfirst-aid stations for on-site medical treatment.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-41

ITEMTable 6-25Alternate Route Plan Development ConsiderationsCONSIDERATIONAlternate Route Selection• Stakeholder Roles and Coordination• Advance planning stakeholders and stakeholders involved in alternateroute deployment• Interagency agreements for advance planning and/or operations• Types of Alternate Routes• Freeway, street, and toll facility• Secondary alternate routes• Inventory Potential AlternateRoutes• Access, capacity, vehicle restrictions, traffic control, backgroundtraffic, pavement conditions, road geometrics, percentage of heavyvehicles, transit accommodation, and available surveillance• Considerations in rural, urban, and metropolitan areas• Alternate Route Evaluation• Capacity analysis and modeling• Traffic signal timing optimization• Alternate Route Selection Criteria • Road user and community impacts• Alternate Route Plan MapAlternate Route Plan Development• Incident location limits, direction of routed traffic, ramp/street closures,traffic control resources, alternate route distance and capacity,alternate route regulations and restrictions, and emergency servicestations• Traffic Control Requirements • Traffic control officers, temporary signs, and barricades• Criteria for Alternate Route PlanDeployment• Incident duration, number of lanes blocked, time of day, etc.• Deployment Operations Plan• Motorist Information Resources• Traffic Management on AlternateRoute• Checklist for field supervisor and communications center supervisorRoad User Accommodation• Pre-trip and en-route• Message sets• Planned media release• Permanent trailblazers• Technology applications6-42

Figure 6-33Background Traffic DiversionFigure 6-34Dynamic Route Guidance Sign (Photo courtesyof the Minnesota DOT.)For large-scale planned special events,emergency access routes remain closed to allnon-emergency vehicles. Traffic controlofficers staff each intersection along theroute and permit side street traffic to crossthe route when conditions permit. Forsmaller-scale special events, the emergencyaccess route denotes a local flow route foremergency vehicles that may be utilized bygeneral traffic under non-emergency conditions.Under an emergency scenario, lawenforcement officers may escort emergencyvehicles, using a rolling roadblock, via thedesignated access route. Emergency accessroutes should not traverse or intersect eventpatron traffic flow routes to/from the eventvenue and associated parking areas.stage a planned special event allows unimpededemergency vehicle access throughoutthe entire local street network impacted bythe event. This particularly applies to streetuse event routes. Typical specifications foran emergency access lane involve delineatinga 20 foot wide, paved curb lane withinthe existing roadbed (e.g., shoulder plustraveled-way).Background TrafficAccommodationThe composition of background traffic, ornon-attendee motorists, traversing streetsand highways in the vicinity of a plannedspecial event venue include the followingcategories:• Regional through traffico Includes truckers and intra- or interstate travelers represent regionalthrough traffic.• Local through traffico Includes commuters and area residents,some of whom may simplycruise local streets adjacent to theevent.• Neighborhood residents and businesseso Includes residents living in the immediatevicinity of the event venuethat may incur impacts attributed tohigh traffic demand and temporarytraffic control strategies.o Includes nearby businesses requiringaccommodation for both employeesand patrons.Table 6-26 presents a range of passive (e.g.,traveler information dissemination only) andaggressive (e.g., physical traffic control) tacticsfor accommodating background trafficduring a planned special event.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEWThe provision of emergency access lanesalong streets slated for closure in order to6-43

Table 6-26Tactics for Accommodating Background Traffic during Planned Special EventsUSER GROUP TACTIC BENEFITRegionalthrough trafficLocal throughtrafficNeighborhoodresidents andbusinesses• Freeway-to-freeway diversionbeginning a significant distanceupstream of an eventvenue.• Maintains mobility.• Reduces the level of background traffic on corridorflow routes serving the venue.• Arterial-to-arterial diversion • Eliminates non-attendee exposure to venue sitearea.• Discourages cruising around site area.• Allows public to become familiar with route afterrepeated implementation.• Parking restrictions • Permits resident access to on-street parking spaces.• Permits employee and customer access to publicparking areas.• Traffic control points • Restricts neighborhood area access to residents andbusiness employees.• Signing and alternate routes • Directs customers to businesses and other trafficgenerators.Freeway-to-Freeway DiversionTransportation management system operatorscan implement freeway-to-freeway diversionthrough control of permanentchangeable message signs and highway advisoryradio.Parking RestrictionsParking restrictions accomplish the task ofpreventing event-generated traffic from deviatingfrom local event traffic flow routesand traversing neighborhood residential andcommercial areas.causing undue congestion and blockingneighborhood access and circulation patterns.If this represents a potential concernduring advance planning, then locate eventparking areas a sufficient distance awayfrom affected neighborhood areas and createtraffic control points to prevent eventgeneratedtraffic from penetrating these areas.Residents and business employeeswould receive a pass allowing them accessthrough the traffic control points.Traffic Control PointsRoad closures may impact customer accessto businesses and other traffic generators.Figure 6-35 shows a sign diverting trafficdestined to a major traffic generator locatedadjacent to a planned special event temporaryvenue.Large-scale events may generate sufficienttraffic demand to saturate the entire localstreet system adjacent to the event venue,Figure 6-35Accommodation of Traffic Destined toMajor Generators6-44

Arterial-to-Arterial DiversionArterial-to-arterial diversion applies toplanned special events occurring in citydowntown or commercial areas, where arterialsand local streets adjacent to the eventvenue serve a significant volume of backgroundtraffic. In turn, the addition ofevent-generated traffic causes congestionand impacts commercial businesses (e.g.,restaurants, hotels, retail stores). This tacticinvolves: (1) restricting commercial streetaccess to businesses employees, customers,emergency vehicles, taxis, and transit busesand (2) deploying an alternate route to directbackground through traffic and eventgeneratedtraffic around the restricted street.Planned special event stakeholders in Atlanta,Georgia developed such an alternateroute, entitled the “Blue Loop” to divert trafficaway from restricted Peachtree Streetduring special events in downtown Atlanta.(14) Stakeholders prepared the planduring the program planning phase in responseto lessons learned from past plannedspecial events that occur in the Atlantadowntown area and generate significantautomobile traffic. They hope the term“Blue Loop” becomes an alert that city residentswill recognize and understand that thealternate route is in effect. Traffic monitoringrepresents a key to Blue Loop operation,and the route deployment detail specifiesseveral release points for diverting BlueLoop traffic to adjacent highways.Street use events involving a parade or roadrace permit the traffic management team toreopen certain roadway sections after eventparticipants pass, even if the event has notcompleted. Background traffic accommodationincludes disseminating specialized travelerinformation, summarized in Table 6-27,prior to the event. The information providesnon-attendee transportation system users atimeframe, relative to the parade/race paceand field length, that certain route sectionswill be closed. Otherwise, travelers maymistakenly assume that the entire street useevent route will remain closed for the durationof the parade or road race.Table 6-27Pre-Trip Traveler Information for Street UseEventsITEM• Indicate the entire parade or race route coupledwith participant staging and disbandingareas.• Estimate, based on the event pace and lengthof the field, and specify times each roadwaysegment and intersection will be closed andreopened.• State other traffic and parking restrictions inthe vicinity of the event course.• Organize information for easy reference usingmaps and reference numbers (for intersectionsand roadway segments).Transit AccommodationA traffic management plan that prioritizesbus flow to and from the venue site areapositively influences the utility associatedwith transit and other travel choices involvingexpress bus, charter bus, or shuttle bustransport. Transit agencies should operateon scheduled bus transit routes up until thelast possible point to divert around a roadclosure required to stage a planned specialevent. This avoids user confusion andminimizes inconvenience to non-event attendees.Table 6-28 lists tactics for accommodatingscheduled and event-generated bus service.Table 6-28Bus Accommodation TacticsTACTIC• Exclusive bus route• Exclusive/priority bus lane• On-demand communication with TMC orcommand post6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-45

Exclusive Bus RouteExclusive bus routes that cause a negligibleimpact to background traffic and adjacentneighborhoods represent the recommendedbus accommodation tactic. Advantages ofexclusive bus routes include: (1) use of thesame route during ingress and egress, (2)increased mobility and travel time reliability,and (3) better venue station accommodationsfor riders as temporary stations mayexist adjacent to bus routes, thus avoidingconflicts with event vehicle and pedestriantraffic.Depending on roadway network layout, aspecial event traffic flow plan may featurean exclusive bus route from corridor targetpoints and satellite parking areas direct todesignated pick-up/drop-off areas adjacentto the venue. Other bus routes may only divertbuses around known bottleneck locations.Figure 6-36 shows an exclusive busroute implemented for a major rural plannedspecial event. An exclusive bus route mustaccommodate minimum overpass height requirements,vehicle weight requirements,and vehicle turning radii.An exclusive bus lane represents a travellane for bus traffic only. Temporary applicationsinclude converting an existing roadwayshoulder or travel lane for bus use duringa planned special event. Table 6-29summarizes drawbacks associated with thetemporary operation of an exclusive buslane. A bus priority lane is used by bothbuses and general traffic between intersections.However, at intersection approachessuch as that shown in Figure 6-37, regulationslimit general traffic to a turningmovement, while buses can continue straightthrough the intersection and “jump” adjacentthrough-lane queues.Table 6-29Exclusive Bus Lane LimitationsLIMITATION• Lane may obstruct access to mid-block driveways.• Mid-block turning movements may createqueues in adjacent through travel lanes.• Congestion may occur upstream of the lanestart, especially if the lane utilizes an existingtravel lane.• Shoulder lane use may eliminate area foremergency stops.• Manned intersection control may be requiredto allow buses and cars to turn in front of theother.• Maintenance of signs and lane delineators arenecessary.• Special enforcement requirements are needed.Figure 6-36Exclusive Bus RouteExclusive/Priority Bus LaneFigure 6-37Bus Priority LaneOn-Demand CommunicationOn-demand communication with a commandcenter represents another bus accom-6-46

modation tactic that the traffic managementteam may employ in conjunction with otherpreviously discussed tactics. Bus operationssupervisors or other traffic managementteam personnel, stationed at the TMC orevent command post, monitor roadway surveillancesources (e.g., CCTV and field observers)in order to identify areas of congestionbefore a bus encounters it. When supervisorsverify a traffic bottleneck affectinga bus route, they immediately notify bus operatorsand work to divert buses around thecongested area.Plan SpecificationsThe traffic flow plan serves stakeholdersmanaging the planned special event in additionto event patrons and participants. Theproduct of strategic route planning involvesinforming event patrons of best accessroutes to and from the planned special event.Stakeholders can communicate preferredroute directions via: (1) event patron ticketmailings, (2) media public information campaigns,and (3) event, venue, or traffic informationwebsites.Table 6-30 contains a traffic flow plan developmentchecklist.Appendix I contains example traffic flowmaps prepared for various planned specialevents. (15)Traffic flow plans should emphasize availableexpress, charter, and shuttle bus servicesfrom regional park and ride lots and/orsatellite parking areas. Driving directionsshould be accompanied by useful travel tipsthat coincide with the day-of-event operationof recommended traffic flow routes.Travel tips include accessing en-route travelerinformation and adhering to traffic controltactics.TRAFFIC CONTROLPLANOverviewFreeways represent corridor flow routesserving event patrons and participants destinedto/from a planned special event fromvarious parts of a region and beyond. Thesecorridor flow routes connect to local, streetlevelflow routes that, in turn, serve eventvenue parking areas. A freeway interchangemarks the point of connection, or targetpoint, between corridor flow routes and localflow routes. Together, the three entitiescomprise the roadway system servicing aplanned special event. The scope of trafficcontrol expands and contracts, proportionallyto system performance, during eventingress and egress.The keys to successful transportation systemmanagement, including traffic and transit,during planned special events include:• Real-time surveillance• Open communications• Planned response• Rapid implementationPlanned response requires a detailed trafficcontrol plan that facilitates a proactive trafficmanagement team response to systemdeficiencies and unexpected events. Theother keys depend on technology applications,such as remote surveillance and automatedcontrol of traveler information andtraffic control devices, in addition to interjurisdictionalcoordination and collaboration.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-47

ELEMENTEvent patroncorridor flowrouteEvent patronlocal flowrouteTravelerinformationTrafficmanagementteaminformationOther travelmodes / usergroupsOtherconsiderationsTable 6-30Traffic Flow Plan ChecklistPROVISION• Indicate recommended freeway ramps, by route direction, to/from event venue or specific parkingarea.• 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.• Show connection to corridor flow route.• Indicate local streets that connect to freeway entrance/exit ramps.• Indicate recommended flow route to/from general and reserved parking areas (minimum) or individualparking 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.• Promote use of regional park & ride locations and event satellite parking areas.• 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.• Include contingency maps detailing routes to overflow parking areas.• Provide written directions for diverting corridor flow routes via local street system.• Indicate alternate routes for ingress and egress to same target point.• Show transit routes and state corresponding route number(s).• Show preferred taxi routes.• Indicate bicycle routes.• Indicate pedestrian routes.• Provide information on both ingress and egress flow routes.• 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., freewayexits, 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.6-48

Transportation system management typicallyinvolves state DOT operating freewaysand county/local agencies operating streetsand intersections along local flow routes.Planned special events place a premium oninformation sharing (e.g., CCTV feeds, trafficconditions, traffic incidents, etc.) betweenthese agencies, through local/regionalTMC operators and/or agency supervisors atthe event command post. This information,and subsequent traffic management teamcollaboration, drives stakeholder selectionand implementation of traffic control techniques.Freeway Traffic ControlThe main objective of freeway managementduring planned special events involvesminimizing freeway mainline congestion.Freeway traffic control tactics implementedin response to local traffic flow or ramp operationdegradation preserve freewaymainline operations. Freeway traffic controland management strategies for planned specialevents include traveler information disseminationand interchange operations.Traveler InformationTraveler information disseminated upstreamof freeway interchanges serving an eventvenue effectively: (1) introduces all freewayusers to critical traffic management plancomponents affecting traffic flow in the vicinityof the event venue and (2) facilitatesfreeway lane management as motorists learnof temporary freeway ramp control tacticsand/or downstream lane closures that warranta lane-change. Under lane management,freeway operators strive to reduce turbulenceat ramp junctions, weaving areas,and lane drops by alerting motorists to makenecessary mainline lane-changes as soon aspossible. This also reduces the level of uncertaintyand potential indecision by driversdestined to the planned special event.Common freeway operator methods of disseminatingen-route traveler information tofreeway users include use of:• Changeable message signs• Highway advisory radio• Telephone information systems (e.g.,511 service)The event planning team should developCMS and HAR message sets specific toplanned traffic management and control,during event ingress and egress, on the dayof-event.Supplemental planned messagesets should exist for all special event contingencyscenarios considered. The trafficmanagement team can reference messageboilerplates for other unexpected eventssuch as traffic incidents. If stakeholdersutilize 511 for planned special event travelmanagement, then the event planning teamshould establish protocol for updating 511recordings. This may involve coordinatingwith an agency office (e.g., state DOT headquarters)outside the region where theplanned special event takes place. Theoverall advance planning effort improvestraveler information accuracy and timelinesson the day-of-event.En-route traveler information consists eitherof pre-event or day-of-event information.Prior to the event, permanent and portableCMSs located on freeways serving aplanned special event can indicate that anupcoming planned special event may affectcorridor travel or cite planned freeway rampclosures. In addition, CMS message setscan advise motorists to tune to an HAR frequencyfor a message containing additional,detailed information. Table 6-31 lists someHAR pre-event message considerations.These roadside traveler information device6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-49

messages should appear a few days beforethe event, including one weekday to informcommuters that use periodically the freewaycorridor on weekends. This strategy alsoinforms visiting event patrons that arrive tothe host city prior to the day-of-event.Table 6-31Highway Advisory Radio Pre-EventMessage ConsiderationsCONSIDERATION• Planned special event(s) date, time, and location• Road closure(s) location• Road closure(s) date and time• Access to event parking areas• Traffic and parking restrictions• Alternate routes and modes of travelTable 6-32 indicates some day-of-eventmessage considerations.Table 6-32Highway Advisory Radio Day-of-EventMessage ConsiderationsCONSIDERATION• Directions to local traffic flow routes servingtraffic destined to a venue• Road closure details• Event traffic and parking restrictionsTable 6-33 provides a range of CMS messagetemplates for planned special events.To obtain specific and detailed guidance onthe operation of and/or message design forlarge permanent CMSs or portable CMSs,practitioners should consult the FHWA reportGuidelines for Changeable MessageSign Messages. (16) For example, Figure 6-38shows a message displayed on a portableCMS positioned upstream of a freeway interchangeserving event patron traffic.Day-of-event HAR messages include directionson accessing local flow routes to avenue, road closure details, and event trafficand parking restrictions. Activation of HARsign beacons should occur on the day-ofeventonly. By taking into considerationtravel speed and HAR signal range, formatHAR messages so that motorists can listento each message at least twice. Ensure portableHAR coverage areas do not overlapwith adjacent HAR signals.Table 6-33Changeable Message Sign MessageTemplateMESSAGE SET DISPLAYSingle Phase – All Freeway Users• First line: traffic problem• Second line: problem location• Third line: recommended actionSingle Phase – Specific User Group• First/second line: user group (e.g., event patrons)• Second/third line: recommended actionTwo Phases – Specific User Group• First phase: user group• First/second phase: recommended action• Second phase: additional information sources(e.g., HAR)Figure 6-38Portable Changeable Message Sign (Photocourtesy of the Wisconsin DOT.)Interchange OperationsManagement of freeway interchange operationsfor planned special events involvesmaximizing ramp capacity and preventingfreeway mainline congestion. Interchangeramps adjoining a freeway and modified localevent traffic flow route may represent asystem bottleneck if operators fail to im-6-50

prove interchange capacity and operatingefficiency. Traffic flow breakdowns canoccur on ramps, at weaving areas, or at rampjunctions. Proactive interchange traffic controlfocuses on minimizing freeway mainlinecongestion and, during event egress, congestionspillback to local flow routes and adjoiningevent parking areas.Table 6-34 presents interchange operationstactics for planned special events. Tacticssuch as ramp closures and rolling roadblocksrepresent short-term congestion mitigationmeasures deployed by the traffic managementteam on an as-needed basis. Othercontrol tactics, such as the temporary eliminationof a freeway weaving area shown inFigure 6-39, comprise the base traffic controlplan for the planned special event andoperate for a sustained period of time. Lawenforcement officers can temporarily closeramps using their cruisers. However, othertechniques that reduce valuable personnelrequirements include using Type 3 barricadesand traffic cones for longer closures.Figure 6-40 shows an example of reinforcinga barrier line, by deploying traffic conescoupled with pedestal-mounted signing, toprohibit late diverges from a freewaymainline. Freeway operators may developnew ramp metering plans based on forecastedtraffic volumes and the location ofcontrolling bottlenecks identified throughanalysis and modeling.Freeway and interchange operations managementduring planned special events demandsreal-time surveillance and controlcapabilities. Outside of a permanent TMC,wireless and Internet connections allow thetraffic management team remote access toCCTV in addition to CMS and HAR devices.As shown in Figure 6-41, freewayoperators stationed at an event commandpost can view CCTV video at critical locationsand, in turn, change CMS messages viaa laptop computer or HAR messagesthrough a cellular telephone call.Street Traffic ControlThe central traffic control strategy for localflow routes serving a planned special eventinvolves emphasizing throughput. Tacticsthat increase street capacity include a combinationof: (1) on-street parking restrictions,(2) vehicle travel on road shoulders,and (3) alternative lane operations. Streetsconnecting freeway/arterial corridor routesand venue parking areas characteristicallyserve a predominant directional traffic flowduring ingress and the reverse flow duringegress.The following section examines alternativelane operation techniques for handling highvolumeflow in one direction.Alternative Lane OperationsAlternative lane operations comprise twocategories:• Reversible lane operation• Contraflow operationReversible lane operation involves using oneor more travel or auxiliary (e.g., two-wayleft turn lane) lanes for travel in the oppositedirection. The street or highway operates astwo-way; however, additional travel lanesserve traffic in the predominant direction offlow.Contraflow operation involves converting aroadway corridor from two-way to one-wayoperation only.Major metropolitan areas, such as Washington,D.C., use daily reversible lane (see Figure6-42) and contraflow (see Figure 6-43)operation to efficiently handle commutertraffic to/from the downtown area.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-51

TACTICRollingroad blockEntrancerampclosureExit rampclosureEliminationofweavingareaRampmeteringLatedivergeprohibitionAdditionalexit ramplaneTable 6-34Interchange Operations Tactics for Planned Special EventsEVENTTIMEAPPLICATIONBENEFIT• Initiate tactic on freeway mainline • Alleviates traffic demand at interchange,Ingress upstream of congested interchangethus permitting street orramp(s).ramp bottleneck to dissipate.EgressIngressEgressIngressEgressIngressEgressIngressEgressIngressIngress• Initiate tactic on freeway mainlineupstream of a congested ramp junctionor weaving area.• Use tactic to meter freeway mainlinetraffic demand without creating a secondarybottleneck upstream of the congestedarea.• Initiate tactic on ramps in close proximityto and upstream of interchangetarget point for event traffic.• Divert affected traffic to anotherdownstream access point.• Initiate tactic as necessary to reducefreeway mainline congestion in the vicinityof closely-spaced entranceramps.• Close ramp, as needed, to alleviatecongestion on a downstream local flowroute.• Initiate only if a downstream exit rampand local street system can handle divertedtraffic.• Initiate tactic at freeway interchangesconnecting local traffic flow routesthat have special egress traffic controlmeasures in effect.• Close cloverleaf interchange entranceramp to facilitate unimpeded divergeto access adjacent exit ramp.• Close cloverleaf interchange exit rampand mainline right-lane to facilitate unimpededmerge with mainline.• Meter freeway entrance ramps upstreamof interchange target point forevent traffic.• Meter freeway entrance ramps downstreamof interchange target point forevent traffic• Deploy traffic cones along barrier lineextending upstream of exit ramp gorearea.• Cone an additional lane on exit rampsserving traffic destined to an eventvenue.• Reduces level of congestion at theprimary bottleneck location.• Eliminates congestion caused bytraffic merging with heavy freewaymainline traffic.• Reduces freeway mainline congestionor prevents congestion from occurring.• Reduces congestion on local flowroute.• Prevents traffic from accessing localflow routes in the direction of theevent venue that operate in favor ofegress traffic flow.• Eliminates weaving area congestion.• Extends deceleration lane for trafficusing exit ramp.• Eliminates weaving area congestion.• Extends acceleration lane for trafficusing entrance ramp.• Reduces congestion caused by trafficmerging with heavy freewaymainline traffic.• Reduces congestion caused by trafficmerging with heavy freewaymainline traffic.• Reduces congestion at diverge rampjunction caused by motorists attemptingto make a sudden lane-change toaccess an exit ramp.• Improves safety.• Provides additional ramp storagecapacity.• Proves particularly effective if twolaneramp traffic does not have tomerge at downstream end of ramp.6-52

6OVERVIEWFigure 6-39Temporary Elimination of FreewayWeaving AreaFigure 6-41Remote Traffic Surveillance and ManagementDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESFigure 6-40Prohibition of Late Freeway DivergeFigure 6-42Daily Reversible Lane OperationEVENT PROFILE6-53

Table 6-35 lists disadvantages of alternatelane operations on divided highways.Figure 6-43Daily Contraflow OperationThe application of alternative lane operationsto streets during a planned specialevent creates an express route between anevent venue and high-capacity freeway/arterialcorridors. For instance, Figure6-44 shows contraflow operation used duringevent traffic egress to facilitate rapidclearance of venue parking areas. An alternativelane operation for freeways involvesdesignating an “express lane(s)” for throughtraffic. Median crossovers at section terminipermit access to designated reversible lanes.In order to avoid congestion at the downstreammerge point, right-lane traffic divertsupstream of the merge via an exit ramp toanother freeway or arterial. Though rare,stakeholders may consider alternative laneoperations for freeways or other dividedhighways in rural areas only.Figure 6-44Contraflow Operation during Event TrafficEgressTable 6-35Disadvantages of Divided HighwayAlternative Lane Operations (17)CONSIDERATION• Signs, pavement markings, and safety featureswill not necessarily be visible to drivers travelingin the opposite direction.• Safety appurtenances such as guide rail transitions,crash attenuators, and post support baseshave not been designed to provide adequateprotection at hazardous locations from the oppositedirection of travel.• Outbound contraflow operation prohibits inboundemergency vehicle access.• Drivers will likely find operation confusing.• Nighttime operation is difficult to manage.• Cost to plan, design, and deploy operation isextensive.Three key elements in developing an alternativelane operations plan include lane balance,markings, and enforcement. Key considerationsregarding lane balance include:• The success of any plan stems fromachieving lane balance at the downstreamterminus of a reversible lane orcontraflow section. The number of lanesexiting an alternative lane section shouldnot exceed the number of available receivinglanes at the end of the section.Otherwise, congestion will occur as a resultof traffic merging at the section end.• An alternative lane street section eitherterminates at a freeway interchange orstreet intersection.• To effect lane balance, each lane in thealternative lane section must have adedicated receiving lane. As a result, selecttravel lanes may become an exclusiveturning lane at the end of the section.• Temporary signing must inform motoristsof lane destinations and restrictions6-54

efore they enter an alternative lane section.The following represent common methodsof designating reversible lanes:• Lane control signals• Roadside signing• Physical markings such as traffic conesand movable barriersFigure 6-45 illustrates the use of lane controlsignals for temporary reversible lane operationin a roadway construction zone. Thesesignals assist motorists in gaining a clearunderstanding of the scope of reversible laneoperation in effect. Similar lane control signalapplications apply to planned specialevents as well.Figure 6-45Temporary Reversible Lane Operation withLane Control SignalsReversible lanes require additional enforcement,particularly at section termini. Lawenforcement should monitor section operationand ensure drivers maintain a relativesafe operating speed. This applies evenwhen the alternative lane section operatescongestion-free. If traffic cones delineatetravel lanes, then high-speed traffic maystrike cones or cause them to blow over.Management and MonitoringThe management of traffic traversing a localflow route on the day-of-event involvesroute guidance and monitoring of trafficcontrol initiatives.Aside from equipment quantity limitations,local street right-of-way and the presence oflateral obstructions may limit the placementof portable CMS at regular intervals along alocal flow route to guide drivers. Instead,the event planning team should design specialroute marker signs for guiding motoriststo venue parking areas and pick-up/drop-offlocations. Each route marker may consist ofa color-coded letter or symbol. Figure 6-46shows an example route marker sign for aparticular special event parking area. Whenerected along a local flow route, the routemarker assemblies collectively trailblaze aroute to the drivers’ destination of choice.As illustrated in Figure 6-47, signs that introduceeach route marker should be placedon all freeway and arterial corridors servingthe event venue. The event planning teammust design and place all route marker assembliesin accordance with standards containedin the Manual on Uniform TrafficControl Devices. Sign fonts must be legibleat free-flow travel speeds.Figure 6-46Route Marker Sign6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-55

Figure 6-47Introduction of Route Marker Sign SymbolsThe street network surrounding a plannedspecial event venue likely encompasses multiplejurisdictions. In turn, multiple trafficoperations and/or law enforcement agencies,representing the local, county, and statelevel, may participate in street operationscontrol and management on the day-ofevent.The event planning team and trafficmanagement team must ensure the trafficcontrol strategies outlined in agency-specificplans complement one another, includingcontingency actions.Some larger cities have installed permanentCCTV cameras for monitoring and managinghigh-traffic arterial operations. Figure6-48 shows the Daytona Beach, FL TMCthat has access to CCTV video for selectstreets traversing the city. In areas not coveredby land-based CCTV, the traffic managementteam may alternatively utilize aerialsurveillance to monitor street operations.The use of law enforcement aircraft allowson-demand surveillance of street corridors.If a TMC and/or event command post cannot access video from the aircraft, then theaircraft should carry personnel involved inpreparing the traffic management plan.Such personnel can best assess plan effectivenessand transportation system operationat potential problem areas identified duringadvance planning.The deployment of a portable traffic managementsystem(s) (PTMS) provides a trafficmanagement team with the capability ofmonitoring traffic operations at criticalroadway system locations in addition to disseminatingupdated traveler information atthat location. Critical locations include targetpoints connecting a corridor flow routeand a local flow route or key driver decisionpoints on the street network surrounding anevent venue. Figure 6-49 shows a PTMSdeployment. Table 6-36 lists typical PTMScomponents. Wireless communication viaspread spectrum radio enables the trafficmanagement team to view full-motion videofrom PTMS surveillance cameras.Figure 6-48Daytona Beach (FL) TransportationManagement Center (Photo courtesy of theFlorida DOT.)Figure 6-49Portable Traffic Management System (15)6-56

Table 6-36Portable Traffic Management SystemComponentsCOMPONENT• Surveillance camera• Changeable message sign• Highway advisory radio• Detection devices• Weather sensor• Flood lights• Power source (e.g., solar)Figure 6-51 presents an example, based onan intersection serving a Daytona InternationalSpeedway parking area, of achievingintersection turning movement lane balance.The plan shows three competing trafficflows that, with proper channelization applied,have unimpeded access to one receivingstreet segment. Given four receivinglanes, the channelization limited the numberof approach lanes to four. When planning touse traffic cones or other channelizing devicesfor intersection traffic control, markoutdevice locations prior to the event forfast and accurate placement on the day-ofevent.CCTV6OVERVIEWIntersection Traffic ControlA proactive approach toward developingstrategies for controlling intersection trafficduring a planned special event aims to:• Increase intersection traffic handling capacity.• Improve the orderly movement of traffic.• Prevent crash occurrences.The key to maximizing capacity involvessimplifying traffic movements and minimizingthe number of traffic signal phases. Atypical 4-leg intersection has 32 conflictpoints. After prohibiting all left-turnmovements and cross-street through movements,the same intersection has just 4 conflictpoints. As shown in Figure 6-50, lanechannelization limits competing intersectiontraffic flow which, in turn, facilitates continualflow into a parking area access road orother road segment (e.g., alternative lanesection).Figure 6-50Elimination of Competing IntersectionTraffic FlowFigure 6-51Turning Movement Lane Balance (18)Stakeholders can also reduce the number ofcompeting intersection traffic flow movementsby initiating a planned road closure.Figure 6-52 illustrates this tactic, where lawenforcement blocked a venue ingress routeto facilitate event traffic egress through anintersection.Advance signing of permitted intersectionmovements improves the orderly movementof traffic. This particularly applies to casesDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE6-57

when intersection operation on the day-ofeventdeviates significantly from daily operations.Figure 6-53 shows a high-visibilitysign erected over an intersection approachcontained in a planned egress route. Advancesign posting allows neighboring residentsand local motorists to become familiarwith planned day-of-event traffic control.speed of vehicles entering and departing theintersection, thus reducing rubbernecking.Figure 6-54Positive Traffic ControlFigure 6-52Road Block of Ingress Route to FacilitateEgressIntersection traffic control changes fromevent ingress to egress operations. With regardto some street use events, particularlythose involving a long event route and/orslow event pace, intersection traffic controlcomplements a system of staged road closuresalong the event route. Law enforcementescorts the head and tail of the paradeor street race. Traffic management teampersonnel deploy intersection traffic controla certain time (e.g., 15-30 minutes) beforethe head arrives and restores permitted intersectionmovements after the event tailclears.Traffic Signal OperationsFigure 6-53Intersection Advance SigningTraffic control officers have a large role inmaximizing intersection operating efficiency.By using positive traffic control, asillustrated in Figure 6-54, officers guide motoriststhrough an intersection. This minimizesheadway between vehicles and reducesstops due to driver confusion, particularlyat the downstream end of a reversiblelane section. The officer commands adriver’s attention and works to control theThe significant change in traffic volume andflow patterns at street intersections in thevicinity of a planned special event venueduring event ingress and egress mandates areview of traffic signal timing plans duringthe event operations planning phase. Exceptin isolated cases, traffic control officersshould not manually control traffic signalson the day-of-event. Field decisions are difficultto make, and a manually controlledsignal does not operate on a plan or in coordinationwith adjacent signals.6-58

Advance traffic signal operations planninginvolve developing event traffic signal timingplans. Traffic signal timing plans shouldexist for a range of contingency scenariosthat prioritize either major street or minorstreet traffic movements. Methods to increasetime for a specific movement include:(1) selecting an existing plan with a longercycle length to increase the normal favoredphase, (2) implementing a custom plan favoringa minor street phase (3) deploying acontingency “flush” plan, consisting of anextra long phase or cycle, to facilitatemovement through a corridor, and (4) increasingtime for a movement through manualtraffic signal system operator control. Intraffic signal system-controlled corridorscarrying high traffic volumes on the day-ofevent,system operators may enact simultaneouscoordination, where all signals withina single corridor turn green at the same time.A successful traffic signal system managementapproach for planned special eventsinvolves providing a traffic signal systemoperator with access to real-time CCTVvideo of intersection operations. Appendix Jcontains sample protocol for the operation ofa centralized traffic signal system, supplementedwith permanent CCTV coverage atmajor intersections, in Anaheim, CA duringa permanent venue event. (19) If a real-timecommunication link to traffic signal controllersexist, then agencies can elect to mount aportable CCTV camera on a traffic signalpole, as shown in Figure 6-55, or otherstructure for day-of-event monitoring of intersectionoperations. Real-time monitoringensures rapid implementation of appropriatetiming plans and permits operator manualcontrol as needed.The traffic management team should includea traffic signal technician, available on theday-of-event for emergency maintenance.Also, the technician could facilitate timingplan downloads in the field, required for isolatedsignals or in the event that communicationswith a control center fail. The availabilityof a roving technician proves effectivefor making quick changes to traffic signaloperations to meet user needs on theday-of-event. Prior to a planned specialevent, a technician should inspect trafficsignals at critical locations, and operatorsshould test traffic signal system control capabilitiesfrom the control center.Figure 6-55Portable CCTV Camera Mounted on TrafficSignal Pole (6)Plan SpecificationsThe event planning team designs traffic controlplans for use by the traffic managementteam and traffic control contractors. Table6-37 contains a traffic control plan developmentchecklist for freeway, street, andintersection management. Appendix K containsexample traffic control plans and mapsprepared for various planned specialevents. (18,20) Because equipment demandvaries on the day-of-event, traffic controlplans should indicate equipment storage arealocations and inventory remaining equipmentavailable.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-59

Table 6-37Traffic Control Plan ChecklistELEMENTPROVISIONFreeway control plan • Specify maintenance and protection of traffic per MUTCD guidelines (e.g., locationof 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., parkingareas, 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 controlplan• Specify maintenance and protection of traffic per MUTCD guidelines (e.g., locationof 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 correspondingreceiving lane).• State special regulations (e.g., turn prohibition, exclusive bus lane, resident/permitonly 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 egresso Contingency scenarios• Show location of temporary static signs and message.• Indicate location of dynamic blank-out signs.Equipment locationplan• State number of traffic cones, drums, and barricades required at designated locations.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.6-60

EN-ROUTE TRAVELERINFORMATION PLANOverviewThe dissemination of traveler informationfor a planned special event is an integral partof operating and managing the transportationnetwork. The following three issuesmust be considered in developing and maintainingthe event plan:• Stakeholders – The information needsof travelers extend well beyond anagency’s infrastructure and include otherjurisdictions’ highway facilities, transitfacilities, airports, etc. The private sectorshould also be an active partner in thetraveler information process and must beincluded as a stakeholder.• Evaluation – Care should be taken notto overestimate the benefits achieved bythe implementation of information disseminationcomponents in the plan.Specifically, it is important to recognizethat travel patterns are quite dynamicand that some drivers will divert naturallywhen they encounter congestionregardless of whether or not they receiveinformation beforehand about that congestion.A Washington, D.C. AdvancedTraveler Information Systems (ATIS)study revealed:o If ATIS deployments are evaluatedpurely on time-savings, the benefitsof ATIS will likely be grossly underestimated.o ATIS users value improved travel reliability.The value of improved ontimereliability is not easily nor directlymonetized, but it is clear thatmany types of travelers can benefitfrom ATIS.o Improved reliability and predictabilityof travel are also likely good surrogatesfor reduced driver stress.From this common sense perspective,it is clear that the benefit of improvedtravel reliability and predictabilityfrom ATIS will outweighwhatever small return is generatedfrom the monetization of aggregatetravel time reductions.• Performance Measures – In order toassess the extent to which the trafficmanagement plan efforts within aremeeting goals and objectives, a set ofperformance criteria and measures-ofeffectivenesspertaining to these effortsmust be identified. Relative to coordinationand information dissemination, performancecriteria have three different,yet interrelated, dimensions that are ofinterest:o Information credibility – An informationdissemination tool must becredible to travelers if it is to be utilizedand have an impact upon trafficoperations. The following criteriadefine how credibility is established:(1) the information must be accurate,(2) the information must be timely,and (3) the information must be relevantto its intended audience.o Market penetration – Marketpenetration refers to the percentageof the potential audience reached bythe information dissemination efforts.Performance criteria regardingmarket penetration may be appropriatefor evaluating certain systemgoals and technologies, particularlythose emerging as part of ATIS. It isexpected that some technologies,such as in-vehicle dynamic routeguidance, will require only limitedmarket penetration in order toachieve operational benefits. Other6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-61

operational benefits. Other technologies,such as information kiosks inmajor traffic generators, may requireagencies to strive for as great a marketpenetration as possible in order todistribute the information to a wideraudience and possibly attract privatesector advertising and sponsorship.o Traveler response – Ultimately, thepurpose of providing information totravelers is to effect some change intraveler behavior that will cause animprovement in safety or operations.Thus, performance measures are alsoneeded to determine the extent towhich information dissemination accomplishesthis purpose. Changes intraveler mode, departure time, androute (if appropriate) are appropriatefor evaluating the effectiveness ofreal-time, travel-related information.However, it may be very difficultand expensive to obtain actual datafor these measures. Traveler opinionsabout the effectiveness of the informationbeing provided can be anotherimportant evaluation measure.o It is important to recognize that becauseof the complex travel patternsof travelers at any point in the roadway,it may not be possible to adequatelymeasure the overall effectsof many types of information or disseminationmodes upon traffic volumes,speeds, or delays. The day-todayvariances in travel patternsthemselves may mask the effects ofany information disseminated duringa specific event such as an incident,particularly if the information is intendedfor a very specific audience(such as vehicles within a trafficstream destined for a specific downstreamexit).Information NeedsEn-route traveler information can provideevent patrons and other transportation systemusers with current roadway and transitinformation while traveling en-route. Informationis typically provided via devicesdeployed along the side of the roadway, orfrom devices mounted on the dashboard ofthe vehicle. Along the roadway, changeablemessage signs and highway advisoryradio messages typically provide informationregarding an upcoming planned specialevent, including current conditions related tothe special event such as traffic congestion,incident and construction locations, weatheradvisories, parking availability, and alternateroutes. In-vehicle and personal mobile devicescan provide a variety of en-route travelerinformation to both the traveler as wellas transportation providers. Sophisticatedroute guidance systems can assist motoristsin route planning as well as providing timelydirections via a computer synthesized voice.Static SigningStatic signs can be used for event managementto inform travelers of an upcomingplanned special event, to identify park &ride lots, and to guide motorists to particularlocations. It is not uncommon for agenciesto use static signing in special event managementfor the following purposes:• Notify travelers of a future special event.• Notify travelers of future facilitychanges for the event such as lane closuresor occupancy restrictions.• Identify special alternate routes for theevent.• Guide travelers to parking or park & ridelots.Transportation incident responders utilizestatic signing in day-to-day operations totrailblaze motorists along an alternate route6-62

or venue access route. These are temporarysigns, mounted on fold-away supports, alongthe shoulder of the roadway or at exit goresto direct motorists to alternate routes as amatter of typical traffic management or inresponse to an incident and redirecting oftraffic.Changeable Message SignsOne of the most fundamental technologiesavailable for disseminating traffic-relatedinformation from the roadside is that ofchangeable message signs. CMSs are sometimesreferred to as dynamic message signsor variable message signs. CMSs are programmabletraffic control devices that canusually display any combination of charactersto present messages to motorists. Thesesigns are either: (1) permanently installedabove or on the side of the roadway, (2)portable devices attached to a trailer, or (3)portable devices mounted directly on a truckand driven to a desired location. PortableCMSs are much smaller than permanentCMSs and are oftentimes used in specialevent situations, highway work zones, whenmajor crashes or natural disasters occur, andemergency situations.When installed, CMSs become a part of thetotal motorist information system. Thus theinformation presented on CMSs and theplacement of the signs must be consistentand compatible with static signs. Highwaysigns – both static and dynamic – must projecta message so that the driver can:1. Detect the sign,2. Read and understand the sign,3. Make appropriate decisions based on theinformation gained from the sign, and4. If necessary, initiate a control response,and complete the required maneuver.CMSs perform a critical role in special eventmanagement. Such signs can furnish motoristswith real-time information that advisesthem of a problem and in some cases, a suggestedcourse of action. CMSs are also usedto improve motorist safety and reduce trafficcongestion and delay during events. CMSscan be used to manage traffic by displayingthe following types of messages:• Early warning messages give motoristsadvance notice of slow traffic and queuingahead and are effective in reducingsecondary crashes. When used in freewaywork zones, early warning messagesalso give notice of new detours,changes in alternate routes, changes inlane patterns, special speed controlmeasures, etc.• Advisory messages provide motoristswith useful information about a specificproblem along their route. This informationallows motorists to change theirspeed or path in advance of the problemarea, or may encourage them to voluntarilytake an alternate route to their destination.• Alternate route messages influence motoriststo travel to their chosen destinationby using different routes than originallyintended. The alternate route isone designated by the transportationagency. In cases when the freeway isphysically closed as a result of construction,crash, or natural disaster, the motoristsare notified that an alternate routemust be used.The most critical locations for installingpermanent CMSs are in advance of interchangesor highways where drivers have theopportunity to take some action in responseto messages displayed on CMSs. In manyspecial event cases, permanent CMSs arealready strategically located to advise eventpatrons of special conditions and non-eventmotorists of alternate bypass routes. Figure6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-63

6-56 shows a permanent CMS over an arteriallocated adjacent to a stadium venue andserving venue parking areas.to a central management point, making thema very attractive and flexible tool.Portable signs are usually located at the sideof the road and do not sit as high as an overheadsign, which can impair drivers visibility.Most are 3-line, 8 or 9-character signs,and although most have the capability ofdisplaying multiple phases, they tend to beused with simple short messages to allowdrivers to read and comprehend the message.Highway Advisory RadioFigure 6-56Permanent CMS Over Stadium Access RoadA CMS should not compete with existingroadway signs. In general, a CMS should bepermanently installed at the following locations:• Upstream from major decision points(e.g., exit ramps, freeway-to-freeway interchanges,or intersection of majorroutes that will allow drivers to take analternate route)• Upstream of bottlenecks, high-accidentareas, and/or major special event facilities(e.g., stadiums, convention centers)• Where regional information concerningweather conditions such as snow, ice,fog, wind, or dust is essentialPortable CMSThe use of trailer-mounted CMSs providesan agency with a great deal of flexibility.The signs, which are typically much smallerthan permanent, over-the-road CMSs, areused most commonly for temporary applications.As such, portable CMSs are verysuitable for special event management.They are usually diesel- or solar-poweredand use wireless (cellular) communicationsAlthough not as widely used as changeablemessage signs, highway advisory radio isanother means of providing highway userswith information in their vehicles. Traditionally,information is relayed to highwayusers through the AM radio receiver in theirvehicles. Upstream of the HAR signal, usersare instructed to tune their vehicle radios toa specific frequency via roadside or overheadsigns. Usually, the information is relayedto the users by a prerecorded message,although live messages can also be broadcast.Highway advisory radio is an effective toolfor providing timely traffic and travel conditioninformation to the public. It has variousadvantages and disadvantages. Its most importantadvantage is that it can reach moretravelers, or potential travelers, than theother roadside technology, changeable messagesigns. While CMSs reach only thosemotorists at a particular point, and can onlyconvey a short message, HAR has the advantageof being able to communicate withany person in the HAR broadcast range.Furthermore, the amount of information thatcan be conveyed to the user is much greater.Its primary disadvantage is that it is restrictedto low power, and this can lead topoor signal quality (since many outside6-64

forces affect the signal, such as weather)and, therefore, poor listener levels.HAR can be broadcast in two ways: Point orWide-Area coverage.HAR is an element of the Federal CommunicationCommission’s (FCC) Traveler InformationSystems (TIS) designation. Theyare permitted under strict FCC guidelinesand regulations associated with technologyand operations. They are licensed as a secondaryuser, which means simply that theycannot interfere with a primary user, i.e., acommercial broadcast station. As a secondaryuser, HAR broadcasts are restricted insignal strength, a level that limits theirtransmission range to no more than three orfour miles from the transmitter. A numberof technologies are available for HARtransmission, using both AM and FM bands.Typically, HAR has been implemented using10-watt AM transmitters. This is because,beginning in 1977, it was the onlytechnology permitted by the FCC for travelerinformation. As such, this technologyimplementation has also proven to be themost effective. Other means involve verylowpower AM transmission, where multipletransmitters are spaced closely together toform a large area of coverage. This application,however, has not proven very successful.As late as 2000, the FCC ruled to allowthe use of low-power FM transmission forTIS. This technology has limited applicationto-date.Urban areas typically present a unique set ofchallenges to HAR application, which canhinder downtown event management. Tallbuildings present an obstacle to uniformtransmission since the FCC restricts antennaheight to approximately fifty (50) feet.High-power electric lines can incur noise onthe transmission that negatively impactsbroadcast quality.Deployment Strategies• In Point broadcast, a single transmitter isused to broadcast over a given area.This is typically used at diversion pointsin advance of areas of recurring congestionto notify motorists of queues andcongestion. This type of implementationis popular with travelers because the informationis specific to them. This is themost common application for HAR, andit typically utilizes 10-Watt transmitters.It is the simplest to manage in terms ofequipment to maintain.• Wide Area Broadcast transmits a signalto a larger coverage area using multiplesynchronized transmitters. This is an effectivestrategy when a single message isapplicable to a large coverage area andthe coverage area is sufficiently large fora motorist to hear the longer messagelength. The fact that a long single message,that is pertinent to specific travelersfor only a part of the message, is indeeda disadvantage. Studies haveshown that travelers want brief, specificinformation, pertinent to their locationand situation. They are not likely to listenfor long periods of time until their informationis broadcast. Technically,synchronization is difficult to accomplishbetween transmitters because boththe time and repeated voice signal mustbe in sync.Both of these applications are practical andviable for planned special event management.Portable and Mobile SystemsPortable systems permanently installed ontrailers and mobile systems installed on serviceor maintenance vehicles can be of valuein providing timely dissemination of infor-6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-65

mation to motorists during short-term deviationsfrom normal highway conditions, ormore specifically, during planned specialevents. These systems can be solar powered,generator powered, or battery powered.Portable and/or mobile systems could be setup at decision points where a route guidancesystem directs motorists to an alternateroute. This will increase motorist comfortlevel by reinforcing their confidence thatthey are following the alternate route instructionscorrectly.HAR signs, indicating the frequency atwhich traffic information is available, aretypically installed throughout each zone.These signs usually include flashing beaconsthat are activated only when a message ofsome predetermined level of importance isbeing broadcast and a legend reading (orsimilar) “TRAFFIC ALERT WHENFLASHING.” This technique permits thesystem to continuously broadcast “default”messages in each zone during noncongestionperiods, while alerting the motoristto an urgent/emergency message by turningon the flashing beacons. Thus the systemprevents motorists from tuning to theHAR frequency only to hear the defaultmessage time and time again, situations thatcould negatively impact system credibility.Changeable message signs can also be usedto alert the motorist to the broadcast of amessage of the utmost importance. Thesesigns can be controlled through phone lines,or with cellular or paging technology, andcan be solar powered with battery back up.They offer a great deal of flexibility, by allowingonly the pertinent signs to be activated.For instance, while two signs (one ineach direction) may be associated with aparticular transmitter, only one would beactivated for a downstream incident, therebyeliminating any loss in credibility due toproviding a message that is not applicable toone of the directions of travel.MediaThe public has learned to depend upon themedia to provide them with “almost” realtimetraffic information. Commercial radiohas proven to be a good means of providingtravelers with traffic information both in andout of their vehicles. Traffic and roadwaycondition reports have become standardprogramming items on many commercialradio stations. Commercial radio has thebest potential of reaching the greatest numberof commuters, since most of them haveradios in the vehicles they drive to and fromwork. It is not uncommon for planned specialevent stakeholders, including publicagencies, to partner with a commercial radiostation (or for a commercial radio station tosponsor a special event) to enhance the informationdissemination related to the eventand its transportation conditions. Careshould be taken to ensure that the informationdisseminated reflects current trafficconditions and is credible.Other Technology ApplicationsOther technology applications include:• Cellular telephone-based systems• 511• In-vehicle displays• Subscription services• Personal data assistantsTelephone Based Traveler InformationAn in-vehicle communication technologythat has seen dramatic growth in the pastfew years is cellular telephones, which givesthe motorist the ability to call special “hotline”systems for traffic information fromwithin their vehicle. Originally, these systemsallowed motorists and transit users tocall for information to assist in pre-trip decisionsfrom their homes. Information can6-66

now be accessed en-route via cellular telephone,and decisions can be made whetherto alter travel routes. The creation of call-insystems has been a popular traffic impactmitigation strategy for many major urbanfreeway reconstruction projects in recentyears.This type of in-vehicle communication hasthe advantage over HAR of giving the motoristsome control over the type and amountof information he/she wants to obtainthrough the touch-tone menus. In addition,it is also possible to generate two-waycommunication between the motorist andthe information source.Recommendations for establishing cellulartelephone-based systems include the following:• The call must be toll-free to users.• The telephone number must be easy toremember and dial.• The information must be concise.• If a menu system is used, a long and tediousmenu selection process should beavoided.• A sufficient number of telephone linesshould be provided to prevent the majorityof users from receiving a busy signal.• If a system is going to be used to gatherinformation from users, there must be amethod of ensuring the accuracy of theincoming information.• “Official” use of tipster informationshould include procedures for verifyingthat information.• If incident information is to be received,a human operator is recommended sothat secondary questions can be asked toclarify confusing or unclear reports.As with HAR systems, this technology alsorequires action by the motorist to access information.There are also significant operatingcosts associated with this technology, asany calls made using cellular telephonesmust be paid for by either the motorist, or apublic agency, or else absorbed by the corporationproviding cellular telephone communicationcapabilities in the region. Finally,there is some concern that cellulartelephone usage while driving may degrademotorist attention and operating capabilities.Manufacturers have developed “hands-free”telephones that allow motorists to listen andtalk without holding the telephone receiver,although the need to push the telephone buttonsto go through a menu of informationoperations can defeat the “safety” purposebehind hands-free devices.Many metropolitan areas established cellular“hotlines” for motorists to call in and reporttraffic incident information to the highwayagency. Examples included #77 and *SP.However, the establishment of the 511 nationaltraveler information number is envisionedto replace these already establishednumbers.511Understanding the importance of consistencyand simplicity in providing telephonebasedtraveler information, in 1999, the U.S.Department of Transportation (USDOT) petitionedthe FCC to designate a nationwidethree-digit telephone number for travelerinformation. This petition was formallysupported by 17 state DOTs, 32 transit operators,and 23 Metropolitan Planning Organizationsand local agencies. On July 21,2000 the FCC designated 511 as the nationaltraveler information number.Simply put, 511 represents an abbreviatedthree-digit dialing code that is a short cut toa ten-digit telephone number for obtainingtraveler information from a telephone. Inpetitioning the FCC, USDOT had to demonstratethe need and benefits for such a number.To that end, the USDOT identified thefollowing: (21)6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-67

Further benefits are realized. 511 puts a“face” on ITS and transportation operations,while increasing attention on the potentialfor traveler information services.With 511, transportation agencies can offereasier access to information via telephone,and have the same number work in multipleplaces. It is not uncommon for traveler informationnumbers to change across jurisdictionalboundaries, creating confusionamong motorists.In-Vehicle DisplaysA video display terminal (VDT) mounted inthe dashboard is another form for communicatingwith motorists in their vehicles. Thisis primarily a private sector industry, whichhas not been used widely for informationdistribution. These systems can be used toprovide motorists with route guidance andnavigational information in one of two differentformats. One approach is to presentthe driver navigation and route guidance informationin the form of maps or equivalentdisplays. With these systems, a global pictureof the traffic network can be provided.Recommended routes can be highlighted onthe video map display as well. In anotherapproach, simple symbolic signals (e.g., arrows,text instructions, or a combination ofboth) guide the driver along a recommendedroute. Some prototype systems use a varietyof displays depending upon whether or notthe vehicle is in motion, the functions selected,and level of informational and navigationaldisplays available.In-vehicle VDTs offer a number of advantagesover available technologies in providinginformation to motorists while driving.These include the following:• Travel information is more readily accessibleto the driver (providing continuousaccess to current position, routing,and navigational information).• Computer-generated navigational mapsand displays are logical extensions oftraditional forms of providing driverswith route guidance and navigation information.Information can be displayed in text, graphics,or both and tailored to the needs and desiresof each motorist. There are also limitationsto in-vehicle VDTs. These include thefollowing:• Drivers have to take their eyes off theroadway in order to receive the information.• In-vehicle VDTs present the driver withcomplex maps and diagrams that maycreate a potential to overload the driverwith too much information.• VDTs may also add to the visual clutteralready inside the vehicle.As technology continues to improve, theHead-Up Display (HUD) has become anotheralternative to in-vehicle VDTs for presentingvisual navigational and route guidanceinformation to motorists. Althoughoriginally developed for the aviation industry,several automobile manufacturers arebeginning to develop HUDs for presentingvehicle status and navigational informationto drivers.A wide variety of options for displaying informationmay be available using HUDs.Through both icons and alphanumeric text,navigation and route guidance informationmay be projected directly into the driver’sfield of view. This is expected to reduce theneed for visual scanning between two informationsources (the inside instrumentpanel and the outside environment) and theassociated visual accommodation time.6-68

Subscription ServicesA number of private providers supply travelerinformation services on-demand as asubscription. Most notably, General Motors’(GM) OnStar is a 24 hours a day, 7days a week motorist assistance system installedin the vehicle. It provides a widerange of services to the driver, includingconcierge service, telephone service, remoteunlocking of the car, and notification of airbagdeployment just to name a few.Another feature OnStar provides is routeguidance to motorists. Here, the motoristinitiates a call from a button installed in thecar, is connected to a live Onstar operator,and proceeds to ask for directions. The operatorknows the vehicle’s location throughOnStar’s automated vehicle location systemand provides directions for the fastest route.OnStar currently uses a third-party wirelessanalog network and is moving to a digitaltechnology, which will allow the service tobe expanded to handheld devices as well.Presently, 53 current (2003) vehicle modelsare offered with OnStar, and GM intends toexpand to 60 models by the end of 2003.Routing assistance is the most utilized service,and OnStar reports that it handles morethan 220,000 routing calls per month. (22)Personal Data AssistantsPersonal Data Assistants (PDAs) are thenext higher level of sophistication in bothoff and on-roadway information disseminationtechnology. PDAs are computer productsthat have enough power to support applicationssuch as time management andhandwriting recognition. By adding radiofrequency (RF) communications technology,PDAs allow users to interact directly withtravel information systems. This interactionallows users to obtain route planning assistance,traffic information broadcasts, andother pertinent information. Through keypadentry, the user can log on to the informationsystem, request pertinent information,and then log off. PDAs offer the userincreased communication and informationtransmission/receiving power over alphanumericpagers.Plan SpecificationsAn en-route traveler information plan mustbe developed in concert with the traffic flowplan and traffic control plan. The success ofany traffic management plan depends ondisseminating correct information to motoristsat the right time and location.Items to be included in this plan include:• Names of contact person(s) for each involvedpartner• Protocols and methods to be utilized tocoordinate• Definition of each partner’s responsibilitiesregarding control and informationexchangeDetailed plans are necessary that identify thefacilities and resources to be used. For instance,what permanent CMS or HAR are tobe used and what holes exist in the informationdissemination strategy? Where willportable devices be required? Traveler informationplans must include planned messagesets for equipment and technology usedto disseminate en-route traveler information,including static signs, changeable messagesigns, highway advisory radio, and telephoneinformation systems.As in the desktop exercise and modelinganalyses, various scenarios must be examined,and as a result, specific tactical strategieswill be developed. Of particular importancein planned special event managementis the creation of information messages forthe various devices available to the manager.This includes changeable message sign messages,highway advisory radio messages,6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-69

Internet and PDA messages. Each of thesemust be developed for various scenarios,including contingency ramp closures, fullparking lots, and emergency situations. Thetraveler information plan may also specifyprotocol for disseminating traveler informationvia the media.TRAFFICSURVEILLANCE PLANA traffic surveillance plan can include:• Closed-circuit television systems• Field observation• Aerial observation• Media reportsClosed-Circuit Television SystemsClosed-circuit television systems have beenused for many years to provide visual surveillanceof the highway network. Controlcenters typically use CCTV systems for thefollowing purposes:• Detection and verification of incidents• Monitoring traffic conditions• Monitoring incident clearance• Verifying message displays on changeablemessage signsFor fixed location CCTV systems, videocameras are permanently mounted either onexisting structures along the roadway or onspecially installed camera poles. This typeof system consists of various components,including the following:• Video camera unit• Mounting structure (existing or installed)• Controller cabinet housing the controlequipment• Communication system connecting camerato control center• Video monitors and camera controls locatedin control centerCCTV systems allow operations personnelto visually monitor sections of roadway andto react directly to the actual conditions onthe roadway. Since operators can lose interestif required to constantly view CCTVmonitors, and may fail to notice incidentsimmediately after they occur, current systemsare being designed to automaticallyposition cameras at suspected incident locations(as signaled by incident detection algorithms)and to alert the operator.Portable CCTV SystemsPortable CCTV systems can serve severalpurposes including the following:• Short-term traffic monitoring in areaswith non-recurring congestion (e.g., corridorserving a planned special eventvenue, work zone, critical incident, detours,etc.)• Traffic monitoring at special traffic generatorsfor planned special events• Traffic monitoring along evacuationroutes• Determination of optimum camera locationfor fixed location CCTV systemsPortable CCTV systems are typicallymounted in a light truck or van or on atrailer. Components of a portable systeminclude the following:• Camera with pan-tilt-zoom capability• Telescopic boom• Television monitor• Video recorder• Camera control unit for controlling pan,tilt, and zoom functions• Generator for powering equipment; orbattery power with solar charging• Air compressor for operating telescopicboom6-70

• Wireless communications (It should benoted that during planned special events,cellular capacity is strained, and as such,there is a risk of failing communicationsto portable surveillance systems withcellular communications.)Figure 6-57 shows a portable CCTV camera,mounted on an overhead sign structure, usedfor freeway surveillance during a plannedspecial event.Figure 6-57Portable CCTV Camera for FreewaySurveillanceTemporary CCTV camera installation requiresconsideration of video image transmission,and limited communications optionsmay exist. Telephone lines and cellularchannels facilitate the transmission ofcompressed or slow scan video. The transmissionof real-time motion video requiresinfrastructure such as fiber optic cable,coaxial cable, or wireless (e.g., spread spectrumradio).Closed-circuit television surveillance is avery valuable planned special event managementtool for observing real-time conditionsrelated to special event corridors, alternateroutes, parking and pedestrian conditions,as well as for a verification tool formessages placed on changeable messagesigns.Field ObservationA common and efficient technique to observethe traffic conditions during a plannedspecial event is to place human observers, ordetectors, in the field, usually at critical locations.Normally, these observers have therole of monitoring conditions and reportingback to a central location for strategic assessment.These human detectors are gatheringrelevant information related to theevent and using established protocol tocommunicate the information back to thecentral processing and coordination facility.It is common to deploy these observerswhere technology is lacking and where theymay perform an additional role in trafficmanagement or traffic incident management(e.g., freeway service patrol operators). Forinstance, an observer may be placed at acritical pedestrian location, where besidesreporting back to central command on thestatus of the location, the observer mayserve the role of a traffic engineer by adjustingthe signal timing to better accommodatethe pedestrian volumes.Aerial ObservationAerial surveillance has long been used tomonitor the operation of the surface transportationnetwork. “Observers” in aircraft(fixed wing or helicopters) fly over freewaysand streets and monitor conditions in realtime,using two-way radios to communicatewith the TMC or with service patrols on thefreeway. This approach can be relativelyexpensive when one considers the expenseof leasing or operating an aircraft, althoughit does have the benefit of being able tocover a large area.An emerging trend is the use of remote sensingvia unmanned aerial vehicles, similar toairborne platforms/drones used by the military,and satellites. Information gathered6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-71

from satellite, aircraft, and unmanned aerialvehicles can be used to estimate arterial andfreeway traffic characteristics over long timescales and large geographic areas, includingthose where data were previously unavailable.The spatial coverage provided fromair- and satellite-based sensors can potentiallysupport the development of new metricsthat better represent highway utilizationand congestion.Media ReportsAs discussed earlier, the media needs to be apartner in the planned special event managementand operations effort. Agreementsmust be in place that define their role withinthe plan, as well as what information needsto be communicated, both prior to and duringthe event.The primary disadvantage of using the mediarelates to the accuracy of the information.Traffic reports often are transmittedonly when normal scheduling permits. Thismay cause considerable time delays betweenwhen a condition changes and when the mediareports it. Often, many problems go unreportedor are cleared by the time they arereported on the radio and television. Theaccuracy of the information provided bycommercial radio, for instance, is a functionof the time between the broadcaster’s lastcommunication with the incident reportingsource and the number of incidents that haveoccurred and/or have been cleared duringthat time.Some transportation agencies have madesubstantial efforts to improve coordinationand cooperation between themselves and themedia traffic reporters. For example, someagencies allow private traffic advisory servicesto place personnel in the TMC to obtaininformation on traffic conditions andexpected agency responses in an accurateand timely manner.TRAFFIC INCIDENTMANAGEMENT ANDSAFETY PLANOverviewThe occurrence of a planned special eventthat increases or disrupts the normal flow oftraffic places a premium on the optimal useof existing facilities. A traffic incident andsafety plan specifies crash prevention tacticsand traffic incident quick clearance initiatives,some of which denote special provisionsenacted just for the day-of-event.These traffic incident management techniquespreserve two goals of managingtravel for planned special events: (1) ensuringsafety and (2) maximizing efficiency. Inthe event of a major traffic incident thatblocks travel lanes for a prolonged duration,the traffic management team should refer toresponse procedures and guidelines containedin an established traffic incident managementmanual for the region.Crash Prevention TacticsCrash prevention tactics focus on improvingdriver awareness of surroundings and driverbehavior. Table 6-38 lists crash preventiontactics applicable to planned special events.Table 6-38Crash Prevention TacticsTACTIC• Portable lighting• Congestion warning sign• Public information safety campaign• EnforcementPortable LightingPortable lighting devices enhance driver understandingof traffic control and traffic flowpatterns at night. As shown in Figure 6-58,the devices prove particularly useful at rural,6-72

unlit freeway interchanges or arterial targetpoints that handle high-volume turningmovements during event ingress and egress.Portable lighting makes traffic control officersmore visible to approaching drivers,and in the vicinity of the event venue, thedevices can spotlight pedestrian/vehicularconflict areas.control and regulations, pedestrian safety,and vehicle operation. For example, theLouisiana DOT launched a $94,000 publicinformation campaign in 2002 to reduce thenumber of crashes caused by drivers followingtoo closely. (23) The campaign targetedspectators attending Louisiana State Universityfootball games through advertisementson radio stations carrying the games and advertisementsin game-day football programs.The advertisements specified driver tips onhow to avoid tailgating.6OVERVIEWFigure 6-58Portable Lighting (Photo courtesy of theWisconsin DOT.)Congestion Warning SignsCongestion warning signs, placed upstreamof known roadway bottleneck locations,alert drivers of demand-induced congestionon the day-of-event. The tactic aims to preventrear-end crashes as a result of driversencountering unexpected congestion.Stakeholders should strongly consider deployingcongestion warning signs alongevent ingress and egress routes containingsignificant geometric curves. In order tocontrol message display and preserve itscredibility, consider deploying portablechangeable message signs or static signs thathinge open, as shown in Figure 6-59.Public Information Safety CampaignA public information safety campaignstrives to change motorists’ behavior whentraveling to and from a planned specialevent. Campaigns emphasize event trafficEnforcementFigure 6-59Congestion Warning SignEnforcement aims at preventing driversfrom executing illegal and dangerousmovements in an effort to bypass congestionand/or day-of-event traffic control. For instance,drivers attempting to access a freewaymay travel past a congested entranceramp serving egress traffic, make an illegalU-turn, and traverse an uncongested freewayentrance ramp from the opposite direction.The behavior of one motorist provokes othermotorists to execute the same maneuver.Service PatrolsService patrols function to typically satisfythe incident detection, verification, response,and removal components of incident managementin the event of a minor incident,DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE6-73

such as a vehicle disablement or propertydamage-onlycrash. Patrol operators striveto identify and remove debris or hazards impedingtraffic flow, and they aid in the fastremoval of immobilized or wrecked passengercars blocking one or more travel lanes.Service patrol programs create a sense ofsecurity for motorists in addition to improvingpublic relations for the service’s sponsor.Other examples of motorist assists thatare typically offered free of charge includesupplying fuel, changing flat tires, providinga jump-start, and calling private towingcompanies.Service patrols can play a key role in trafficincident management for planned specialevents. The service has great versatility, andpatrol operators can satisfy a wide range oftraffic management team needs. For example,operators can assist in establishing dayof-eventtraffic control, performing trafficsurveillance, and providing timely trafficcondition reports from various remote locations.As shown in Figure 6-60, service patrolscarry equipment to support traffic managementat incident sites and congestion locations.Table 6-39 indicates considerations in preparinga service patrol operations plan for aplanned special event. To avoid havingdrivers abandon disabled vehicles or riskexposure to adjacent traffic flow, stakeholdersshould alert roadway users of servicepatrol operation on the day-of-event viaroadside traveler information devices. Figure6-61 shows a special event HAR messagedisseminating safety tips to drivers andpromoting service patrol operation.Figure 6-60Service Patrol Vehicle (Graphic courtesy ofthe Minnesota DOT.)Table 6-39Service Patrol Operations ConsiderationsCONSIDERATION• Number of service patrols deployed• Time of operation• Patrol routes and/or staging location• Storage of towed vehicles• Operator communication with TMC or eventcommand centerFigure 6-61Highway Advisory Radio Traveler SafetyMessage (24)6-74

Traffic Incident Quick ClearanceInitiativesagencies. Chapter 5 discusses contract towingservice for planned special events.Quick clearance is the practice of rapidlyand safely removing temporary obstructionsfrom the roadway. (25) Quick clearance practicesincrease the safety of traffic incidentresponders and victims by minimizing theirexposure to adjacent passing traffic. A reducedprobability of secondary incidentsaccompanies decreased congestion levelsresulting from fast removal of lane-blockingobstructions.A quick clearance practice consists of laws,policies, procedures, and infrastructureaimed at effecting the safe and timely removalof a traffic incident. Service patrols,as previously described, represent a quickclearance infrastructure component. Rapidclearance of traffic incidents during plannedspecial event ingress and egress avoids significantimpact to corridor and local trafficflow routes in addition to routes used by participantsand VIPs.The following quick clearance initiativesbenefit traffic incident management in highvolumecorridors, characteristic of plannedspecial events: (1) vehicle/cargo removallaws and policies, (2) stakeholder openroads policy, and (3) public-private towingcontracts. Vehicle removal laws requiredrivers to immediately move vehicles obstructingtravel lanes. Also, agencies haveauthority to aggressively clear vehicles andspilled cargo without incurring unnecessarydelay. Similar policies establish no stoppingzones in highly traveled locations. An interagencyopen roads policy informs traffic incidentresponders of the urgent need to rapidlyremove disabled or wrecked vehicles,spilled cargo, and debris that obstruct thenormal flow of traffic, and the policy disseminateskey guidelines to ensure a cooperativeincident removal effort betweenPractitioners should consult NCHRP Synthesis318, Safe and Quick Clearance ofTraffic Incidents, for state-of-the-practiceinformation about laws, policies, procedures,infrastructure, and technologies associatedwith developing a quick clearancepractice and increasing the efficiency of trafficincident removal operations. (25)Quick clearance represented the overarchingtheme within the Utah DOT traffic incidentmanagement plan for the 2002 WinterOlympics. Table 6-40 summarizes somenotable quick clearance strategies containedin the event traffic incident managementplan. The table also states statistics and performancemeasures that conclude the UtahDOT, together with its partner law enforcementand transportation agencies, developedand deployed a successful quick clearancepractice for the Olympics.Table 6-40Traffic Incident Quick Clearance for the2002 Winter Olympics (26)STRATEGY• Staging of heavy-duty tow trucks throughoutOlympic venue routes between 5:00 AM and 1:00PM (ingress).• Carrying of kits by incident responders to towevery type of bus used to transport people.• Use of photogrammetry by law enforcement duringincident investigations.• Deployment of heavy service patrol coverage toreduce the number of abandoned vehicles andlessen security concerns.EVALUATION STATISTIC• 29 vehicles were removed from incident scenes onthe athlete routes to facilitate traffic flow.• 12 fatality or critical crashes were investigated bylaw enforcement using photogrammetry in underone hour, and in one case, police shot an incidentscene with evidence markers within 30 minutes.• A serious injury crash was cleared in 23 minutesbecause of excellent teamwork.• Incident Management Team crews spent an averageof 70 minutes at each crash scene during theGames, down from an average of 115 minutes priorto the Games.• 2,306 motorists were assisted during the 17 days ofthe Games.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-75

REFERENCES1. Glazer, L.J. and R. Cruz, IntelligentTransportation Systems at the 2002Salt Lake City Winter OlympicGames: Event Study – Traffic Managementand Traveler Information,Utah Department of Transportation,Salt Lake City, Utah, April 2003,160 pp.2. Burdette, D., “An Evaluation of AdvancedParking Information Systemsat Airports,” Prepared for the 2001Annual Meeting of the TransportationResearch Board, National ResearchCouncil, Washington, D.C.,January 7—11, 2001.3. Advanced Parking Information SystemEvaluation Report, MinnesotaDepartment of Transportation, St.Paul, Mn., 2000, 52 pp.4. Gibson, P.A. and A.D. Rifkin, “AnIntegrated Event Parking and CirculationManagement Plan for the StaplesCenter and the Los AngelesConvention Center,” Prepared for theITE 2000 Annual Meeting and Exhibit,Institute of Transportation Engineers,Nashville, Tn., 2000.5. Dunn, Jr., W.M., “Traffic Managementfor 1995 U.S. Open,” PreprintNo. 00131, Prepared for the ITE2001 Annual Meeting and Exhibit,Institute of Transportation Engineers,Chicago, Il., August 19--22, 2001.6. The Dutchess County Fair TrafficPlan, New York State Department ofTransportation, Presentation at the2002 ITS New York Meeting, SaratogaSprings, Ny., June 5--7, 2002,24 pp.7. McBride, J., Utah Department ofTransportation, Personal Communication,July 14, 2003.8. Kelman, L., “World Youth Day 2002– Transportation Planning and Operations,”Presented at the 82 nd AnnualMeeting of the TransportationResearch Board, Washington, D.C.,January 12—16, 2003.9. Highway Capacity Manual,Transportation Research Board,National Research Council,Washington, D.C., 2000.10. Shell Grand Prix of Denver – Parkingand Traffic Management Plan,Prepared for the Grand Prix of Denverby URS Corporation, August2002, 33 pp.11. Coffel, B. and F. Wambalaba, Tri-Met SETS Program, Tri-CountyMetropolitan Transportation Districtof Oregon, Portland, Oregon, 1995.12. Traffic Management for SpecialEvents, Version 6, New South WalesRoads and Traffic Authority, Australia,February 2002, 82 pp.13. Dunn, W.M., R.A. Reiss, and S.P.Latoski, Roadway Incident DiversionPractices, NCHRP Synthesis 279,Transportation Research Board, NationalResearch Council, Washington,D.C., 1999, 84 pp.14. Suggs, E., “Festival to Test NewTraffic Plan,” Atlanta Journal-Constitution, April 8, 2003.15. Volz, M.A. and B.J. Nicholson,“Kansas Speedway Event ManagementUsing ITS,” n.d.6-76

16. Dudek, C.L., Guidelines forChangeable Message Sign Messages,Federal Highway Administration,Washington, D.C., September 2002(Draft), 256 pp.17. Wolshon, B., “’One-Way-Out’: ContraflowFreeway Operation for HurricaneEvacuation,” Natural HazardsReview, Vol. 2, No. 3, August 2001,pp. 105--112.18. Daytona Beach Traffic EngineeringSpeed Weeks 2002, City of DaytonaBeach Public Works, 2002.19. Anaheim Special Event Manual, Cityof Anaheim Department of PublicWorks (Draft), Anaheim, Ca., 2002,40 pp.20. Transport Management Plan: NewSouth Wales Bush Fire Parade, Version1, New South Wales Roads andTraffic Authority, Australia, February2002.21. Schuman, R. and E. Sherer, “511‘101’,” 511 Deployment Conference,Scottsdale, Arizona, March2002.22. “Inside ITS,” Volume 13, No. 7,April 1, 2003, p. 3.23. Anderson, A., “Program Will Try toPut the Brakes on Tailgating,” TheTimes-Picayune, September, 5, 2002.24. Derby Day Plan, Traffic Responseand Incident Management Assistingthe River Cities, May 2002.25. Dunn, W.M. and S.P. Latoski, Safeand Quick Clearance of Traffic Incidents,NCHRP Synthesis 318,Transportation Research Board, NationalResearch Council, Washington,D.C., 2003, 143 pp.26. National Conference on Traffic IncidentManagement: A Road Map tothe Future, March 11-13, 2002: Proceedings,American Association ofState Highway and TransportationOfficials, Washington, D.C., 2002.6EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW6-77

THIS PAGE LEFT BLANK6-78

CHAPTER SEVENTRAVEL DEMAND MANAGEMENTAND TRAVELER INFORMATION7OVERVIEWFigure 7-1Planned Special Event Express Bus Service from Park and Ride LotDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPURPOSEThis third chapter on event operations planningreviews strategies for: (1) mitigatingthe travel demand impacts of planned specialevents and (2) ensuring the transportationsystem operates as efficiently as possibleon the day-of-event. Successful strategiesare presented in three sections that influencetravel choice utility; travel demandmanagement, transit service, and pre-triptraveler information. These initiatives enhancetransportation system operations andimprove customer service for all users byutilizing all available system resources andexcess capacity. The identification and successfulpromotion of travel demand managementinitiatives can reduce traffic demandand, in turn, improve system efficiencyand travel time reliability.INTRODUCTIONTravel Demand Management (TDM) representsa key component of the overall advanceplanning process when forecastedtraffic demand levels approach or exceedavailable road capacity. TDM strategiesmay be warranted for planned special eventsoccurring during peak travel times, continuousevents located in downtown areas, streetuse events of long duration, regional/multivenueevents, and special events in rural areashaving limited transportation system capacity.The goal is to optimize event patronPOST-EVENT ACTIVITIESEVENT PROFILE7-1

and non-attendee travel through incentivesaimed at consolidating person trips andaltering user travel patterns and habits, whileminimizing any penalties to the user.Transit service for a particular planned specialevent includes: (1) public transit serviceexpansion or modification, (2) express busesfrom area neighborhoods or park and ridelots, and (3) charter bus service from othercities and counties. These services, thoughconfigured to net operators a profit, representa travel demand management initiative.The goal of transit operators involve designinga special event service and related incentivesto not only improve the travel choiceutility associated with using transit, but alsoto exceed the utility (e.g., travel time, parkingfees, comfort, etc.) associated with travelingvia personal automobile. Successfultransit services collectively may result in asignificant change in event patron modalsplit without impacting service to nonattendeeusers.The availability of pre-trip travel information,consisting of essential event operationsand real-time traffic information, proves effectivein assisting event patron evaluationof potential travel options, trip departuretimes, and travel routes to the event venue.Similarly, other road users, seeking tominimize event-related impacts to their trip,value this information.TDM, transit, and pre-trip traveler informationinitiatives complement one another andwork to reduce traffic on the roadway networkin the vicinity of the event. These initiativesare not infrastructure improvementsto increase capacity, but rather are methodsthat decrease vehicular traffic by providingevent patrons with various travel choices aswell as providing information that may leadto a reduction in traffic volumes. Some ofthese strategies are implemented by: (1) thepublic agency involved with the specialevent, (2) the event planners themselves, and(3) a combination of both groups.TRAVEL DEMANDMANAGEMENTOverviewTDM strategies are used to maximize theefficiency of the transportation system, thusreducing the volume of traffic on the roadwayand minimizing the peak demand ratesthat cause congestion. They do not representinfrastructure improvements to increasecapacity, but rather are methods that causetraffic demand reduction by encouragingother travel mode choices, particularly forevent patrons. As shown in Table 7-1, TDMtechniques for planned special events involvetwo distinct groups.USERGROUPEvent patrons • Traveling to theevent itselfNon-attendeeroad usersTable 7-1Travel Demand Management GoalsTRIP PURPOSETDM GOAL• Traveling for reasonsother thanthe event itself• Encourage the use of travel modes other than personal automobile.• Encourage a shift in arrival and departure times to reduce peaktraffic volumes.• Increase vehicle occupancy.• Divert non-attendee travelers around the impacted area.• Alter non-attendee time of travel to avoid conflict with eventpeak ingress and egress times.7-2

Demand Management StrategiesSuccessful TDM strategies, developed toreduce the amount of event patron traffic,encourage the use of alternate travel modes.Essentially, a successful, integrated plan includes,for example, providing convenientalternates to driving an automobile to theevent site and encouraging the use of thesealternate travel modes. This includes increasesin scheduled public transit service.In addition, express bus service can also beprovided from park and ride lots to the eventsite as well as charter buses traveling to theevent site from outlying areas. TDM strategiesare also used to influence the travel patternsof non-attendee road users by encouraginga trip time shift or a change in travelmode. The resulting reduction in traffic demandreduces travel times for both eventpatrons and non-attendee road users. TDMalso reduces delay, increases levels ofsafety, decreases motorist stress levels, reducesfuel consumption, and decreases certainvehicle emissions.Table 7-2 contains a summary of travel demandmanagement strategies.High Occupancy Vehicle IncentivesThe ultimate goal of any high occupancyvehicle (HOV) strategy is to increase thenumber of persons traveling in each vehicle.One option to reduce the amount of vehicleson the roadway is to encourage HOV use.In some areas, limited-access highways includeHOV lanes to increase the attractivenessand efficiency of carpooling and vanpooling.Many of these HOV lanes are intendedto assist commuters on a daily basisand, as such, the hours of the HOV may belimited to weekday commuting hours. In thecase of a major planned special event, considerationshould be given to continuing theHOV restrictions on these lanes to laterweekday hours, or even into weekend hours,in order to encourage event patrons to carpool.Incentives can be provided to encourage twoor more persons per vehicle. Figure 7-2 illustratesone such example. The SuffolkCounty Fair and a radio station (WALK) inNew York offered a promotion of $40 percarload on certain days. This price includedparking, fair admission, and unlimited ridesfor everyone in the vehicle. In this manner,it was not economically feasible to travelalone, but rather to travel with as many peopleas possible in one vehicle.Another strategy to encourage HOV’s involvesoffering special privileges at theevent site. Special parking lots can be restrictedto HOV only, and these lots may belocated nearer to the venue in order to encouragecarpools. Lower parking rates furtherincrease the attractiveness of this initiative.Private parking lot operators can bepersuaded to offer special HOV pricing inexchange for promotion in special event advertisements.As demonstrated by Figure 7-3, this information needs to be relayed to thepublic so that they know the advantages ofcarpooling to the event site.One successful implementation of HOV incentivestook place at Husky Stadium on thecampus of the University of Washington inSeattle for football games. (1) The TransportationManagement Plan (TMP) included aparking pricing system to provide financialincentives for carpooling. During the 2000football season, parking on campus cost $7for vehicles with three or more persons and$10 for vehicles with less than three persons.Operators charged $17 for parking a recreationalvehicle and $20 for buses, regardlessof the number of people in the vehicle. Inaddition to the cost incentives, a marketingplan was also developed to encourage carpooling.Messages such as “carpools save7EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW7-3

Table 7-2Travel Demand Management Strategies7-4

Figure 7-2High Occupancy Vehicle Incentivetime and money and are a lot more fun thangoing alone” were incorporated into theHusky football transportation guide.In addition to the plan implemented for Universityof Washington football games, asimilar plan was implemented for SeattleSeahawks football games during the 2000-2001 season when stadium constructionforced the Seahawks to use Husky Stadiumfor home games. The public informationcampaign for Seahawks football included asummary of available parking in the vicinityof the stadium. Since the Seahawks wereplaying in a temporary stadium, fans had tobe oriented to: (1) new traffic flow routes toaccess the stadium and (2) new event parkinglocations and costs. A public informationcampaign outlined Husky Stadiumparking limitations, including only 9,000 oncampusspaces being provided as comparedto the 11,000 free on-street parking spacesand 35,000 off-street parking spaces aroundthe Seahawks original stadium. Carpoolparking pricing incentives were establishedsimilar to those used for University ofWashington football games. At the beginningof the season, game day parking was$15 for carpools with three or more personsper vehicle and $20 for vehicles with lessthan three persons. Stakeholders reducedthe carpool parking fee in mid-season to $10in an effort to increase higher vehicle occupancy.In addition to venue operators offering HOVprivileges at venue parking areas, privateparking operators in the site area can also beencouraged to offer special incentives toevent patrons. For example, if private lotoperators offer a special HOV discount, thenthe event advertisements can mention thatparticular private lot by name and location.The “free advertising” may help private operatorsbalance discounts given for HOVparking.Thus, three high occupancy vehicle incentivetechniques include:• Consider continuing HOV restrictions onHOV lanes to later weekday hours, oreven into weekend hours, in order to encourageevent patrons to carpool.• Reduce parking fees for vehicles withmore than two people.• Provide free advertising for private lotsto balance discounts given for HOVparking.7EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEWFigure 7-3High Occupancy Vehicle Parking Incentive (Graphic courtesy of the Seattle Center.)7-5

Event Patron IncentivesStakeholders managing discrete/recurringevents at a permanent venue that generatehigh peak arrival and departure rates canencourage event patrons to arrive early orleave late in order to reduce the peak trafficdemand.Sporting events and concerts fall into thiscategory given that, when the game or showends, the majority of event patrons leave thevenue at one time. This departure patternscenario can be offset using several strategies:• For instance, event organizers or venueoperators can offer special incentives forspectators to stay after the event, such asspecial programming on the stadiumvideo screens or post-event fireworks.• Restaurants and pubs located in or nearthe event venue can remain open andmay even offer special price savingswith a ticket stub.• Some sporting events and other types ofevents may feature live music aftergames in order to encourage spectatorsto remain at the venue.• One incentive for parents to remainlonger at sporting events with their childrenis a “meet the mascot” type of promotion.• Venues in downtown areas can also provideextended parking, at no additionalcost, for event patrons who wish to remainin the area and go to downtownrestaurants or shops. Instead of parkinglots having to be vacated a certain timeafter the event, extended parking hoursallow event patrons to linger in the surroundingdowntown area. These incentiveshelp to spread out the flow of departingtraffic and lessen the peak trafficdemand on the roadway network. Thisconcept also benefits businesses in thevicinity of the event venue.Incentives that can be used to attract patronsto events earlier than usual include:• Registration in free drawings and conteststhat occur before the event to attractspectators to the event site.• Venue restaurants can open early andoffer special incentives to attract spectatorsbefore the event.• Tailgating may also be encouraged toattract event patrons to venue parkingareas hours before the actual start of theevent.• Organizers of sporting events can encouragespectators to arrive early andwatch teams warm-up before the game.Venues that do not have pre- or post-eventactivities can solicit suggestions from thepublic through mailings or via the venuewebsite. For example, when season ticketapplications or tickets to the event aremailed, an accompanying survey can askevent patrons which type of pre- or postgameactivities they would be more likely totake advantage of. Similar types of questionscan also be presented on an event orvenue website, as illustrated in Figure 7-4.As a result, the pre- or post-game events willcater to the persons who actually attend theevent, thus increasing the number of spectatorsattending staged activities. For recurringevents, stakeholders can survey the patronsin the venue or distribute suggestioncards when patrons enter or exit the venue.One example of implementing successfulevent patron incentives involves the SanJose, CA “America Festival”. The websitefor this event alerted spectators that theyneed to plan ahead for the event’s hallmark4 th of July fireworks display since the parkvenue reached capacity early the year be-7-6

fore. The website suggested that event patronsarrive early and see one of the manybands that performed at the festival in additionto sampling the food and drinks available.In this manner, the arrival patterns tothe event become spread out over a longertime period. Instead of all spectators showingup at one time, the arrival patterns areinfluenced by the music that the event patronwould like to listen to. In addition, theavailability of food and drinks at the festivalalso helps to spread out the arrival patterns.These incentives reduce congestion by reducingthe peak arrival rate of event patrons.Collectively, the incentives convert a discreteevent (fireworks display) into a continuousevent (festival).Figure 7-4Venue Website Survey on Event Patron Incentives(Graphic Courtesy of ConsecoFieldhouse.)In addition to the recommendations for arrivingevent patrons, the website also suggestedthat spectators remain after the fireworksfor another concert. Figure 7-5 displaysthe slogan posted on the event website.In this manner, stakeholders assumed thatsome event patrons would leave immediatelyafter the fireworks display and somewould stay to listen to the music. This reducesthe peak departure demand on thetransportation system. The post-fireworksconcert entertained spectators as they waitedfor traffic congestion to dissipate. In turn,event patrons did not feel that they were just“sitting around and waiting” for congestionto dissipate.Figure 7-5Event Patron Incentive (Graphic courtesy ofEHC & FILCO.)Bicyclist AccommodationAnother alternate form of transportation thatcan be used to access the event is a bicycle,especially in downtown areas. Special accommodationsneed to be provided for eventpatrons that wish to arrive by bicycle.Safety is a concern for all bicyclists, andproper bicycle paths need to be provided.These paths can consist of existing bikelanes and trails that are augmented withtemporary paths leading to the event site.The provision of bicycle paths maximizessafety for the bicyclists and keeps them offroadways that experience higher traffic volumesdue to the event.Security represents a major concern of bicyclists.Figure 7-6 shows a bicycle parkingarea for a planned special event. In order toencourage bicycle travel, bicycle parkingareas may be staffed (e.g., valet service) to7EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW7-7

prevent bicycle theft. In addition, if the bicycleparking area is located close to the entranceof the venue, it may encourage eventpatrons to use their bicycles in order to accessthe event easier. Public transit operatorsmay also provide accommodations forbicycles during events, such as bicycle rackson the front of transit buses that allow spectatorsto access mass transit while carrying abicycle.Figure 7-6Bicycle Parking AreaLocal Travel Demand ManagementTDM strategies that reduce the amount ofbackground, non-attendee traffic consist of:• Increasing the use of transit (e.g. transitpromotion).• Encouraging use of carpools.• Shifting of work hours.• Shifting of commercial truck travelroutes and delivery/travel times.For non-attendee road users, a successfulTDM plan encourages alternate travelchoices, such as avoiding travel during timesof event ingress/egress or travel near theevent venue, that ultimately increase mobilityand travel time reliability for these userscompared to their default travel choice. Thisincludes personal and business travel in additionto commercial truck travel.Businesses can help minimize traffic demandduring peak commuting hours throughimplementing TDM strategies such as:• Telecommuting• Flexible hours• Modified delivery schedulesCarpooling should also be encouraged bymajor employers and through public informationcampaigns. In order to assist thebusiness community in the implementationof TDM, information detailing recommendedstrategies and how to implementthem should be distributed.The event planning team should inform thelocal community as to the magnitude of theplanned special event through a series ofpress releases and public service announcements.Alternate routes to and around theevent can also be published in daily newspapers,discussed on local television or radionews, and communicated by public and privatetraveler information services.In the special case of events that occur infrequently,businesses located in the immediatevicinity of a venue (e.g., hosting aMonday Night Football game) may allowemployees to leave early on event dates.This initiative causes an increase in parkingsupply for event patrons. A public informationcampaign can be used to notify businessesof the possible problems that couldoccur and how these problems can be alleviatedby clearing, for example, a downtownarea prior to a certain time.Successful local travel demand managementtechniques, instituted by local businesses,were utilized during the 2002 Winter Olympicsin Salt Lake City, Utah. (2) These strategieseffected a change in residents’ travelpatterns during the event. A post-event telephonesurvey indicated that about one-fifthof residents changed their travel patterns7-8

during the games. The predominant changeinvolved employers revising normal workschedules during the event and allowing earlierwork hours or flexible schedules.TRANSIT SERVICEOverview7In order to reduce commercial truck traffic,stakeholders should contact pertinent truckingcompanies and advise them of times thattruckers should avoid traversing freewayand arterial corridors serving the eventvenue. Trucking companies should attemptto reduce the number of truck trips made andshift some of their remaining truck trips tonighttime hours. Special mailings can besent to long haul trucking companies in orderto inform them of an upcoming plannedspecial event and affected road corridors. Inaddition, fliers can be distributed to truckdrivers at major points of entry to the region,disseminating information on the days andtimes of the event, high impact locations,and special traffic patterns. During theevent, e-mails containing traffic advisoriescan be sent to trucking companies so thatthey can, in turn, get the word out to truckersvia citizens-band radio and through theirelectronic distribution lists. Portablechangeable message signs (CMS) and highwayadvisory radio (HAR) can also beplaced at major ports of entry to alert truckdrivers. (2)Some components of a successful freightmanagement plan include requiring trucks tohave permits to enter certain areas between aset time frame. In this way only trucks thatneed to be in the area will be present duringpeak traffic times. In addition, deliveryhours can be restricted to overnight to completelyavoid conflict with event traffic.Long-haul trucking can be discouraged fromcertain roadways in the event area by providingdirections on the roadway that diverttrucks around the area surrounding an eventvenue.Modifications to existing transit service for aspecial event represent TDM strategies. Thefocus of the public transit agency is to increaseridership during the event by increasingthe attractiveness of the service that itprovides. In many locations and for manytypes of special events, additional ridershipto and from special event sites can providesubstantial additional revenue for the transitsystem at little additional cost. Also, transitsystem use may relieve traffic congestionaround the venue.Table 7-3 contains a summary of transit servicestrategies.Public Transit Service ExpansionIn order to maximize the use of public transit,options need to be convenient (e.g.,faster travel time and satisfactory comfortlevel) for event patrons without impactingnon-attendee transit users.Three possible approaches to using publictransit during special events includes:• Existing service with additional vehiclehours. In general, this represents an extensionof the existing service and is inaddition to the regularly scheduled transitservice. The extension of existingservice may include: (1) expanded hoursof operation or (2) increased frequencyof system service on a particular route inorder to serve a planned special event.• Modifying existing service by creating aroute deviation. A deviation involvesadding a new transit stop near the eventvenue to the existing route. In addition,a deviation of the regular route may berequired due to road or travel lane closuresneeded to stage the planned specialEVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW7-9

event. Because of these deviations, station-to-stationtravel times may change.• Implementation of an express service toestablish a special purpose route to andfrom the event. This service, includingbus and commuter rail, usually requiresriders to pay a fare, although event sponsorsmay reimburse the service cost orinclude the cost in the ticket price. Theexpress service will involve an entirelynew route and new schedule of servicethat accommodates the operational characteristicsof the event served. Expressbus routes may originate, for example,from regional park and ride lots or regionalcommercial centers with availableparking. Express bus operations are discussedin more depth in the “ExpressBus Service” section.The Portland, Oregon area has a special Tri-Met SETS (Special Events Transit Service)Program that handles all requests for modificationsto existing transit service due to aplanned special event. (3) Requests for allspecial services are evaluated based on thefollowing criteria as outlined in Tri-Met’sService Standards:• Serving the Public Interest - Certaincommunity events require the movementof large groups of people during certainhours of the day. These are events thatwould otherwise seriously restrict trafficmovements unless public transit took anexpanded role. Historically, these eventsare annual events, although some onetimeevents may also be considered. Thedecision to provide the service is basedon an evaluation of available resourcesand the need for the service.• Cost Effectiveness - The special servicerequested must be evaluated based onboth operations and system cost and onthe availability of operators and equipment.STRATEGYPublictransitserviceexpansionExpress busserviceCharterserviceTransitServicemarketingTable 7-3Transit Service StrategiesTECHNIQUES• Maximize use of public transit.o Existing service with additional vehicle hourso Modifying existing service by creating a route deviation with a stop near the eventvenueo Implementation of an express service to establish a special purpose route to and fromthe event site• Discourage event patrons from driving their vehicles to the event site due to expected siteparking deficiencies and anticipated roadway congestion.o Using express bus service between a park and ride facility or remote parking lot andevent venueo Using park and ride lots that best intercept spectator traffic as it approaches the eventsite.• Use a contract service to provide transportation directly to the event site from outlying areas(e.g., other neighborhoods and cities).• Consider both charter bus operations as well as charter rail service.• Establish a comprehensive transit marketing program.o Informing the public of the availability of public transit service to/from the eventvenueo Convincing the public to use the service7-10

• Patronage Potential - The special servicemust be evaluated on its potentialridership.• Service That Could Be Provided By Others- Consideration is given as towhether or not the service can be providedby others, which includes charterbus operations, taxis, carpools, vanpools,and other dial-up services. Included inthese considerations are the possibilitythat larger buses may be needed basedon cost, geographic limitations, and potentialmarket penetration.• Partnership Building - Tri-Met’s goalsinclude partnership building in thecommunity. This helps to enhance Tri-Met’s role as a community partner andas a facilitator of mobility.In areas where service overlaps involve twoor more agencies, inter-agency coordinationis very critical especially on issues of fares,transfers, and scheduled service hours. Onepitfall to avoid, especially for non-regularriders, is forcing riders to use several differentfare instruments. In other words, transfersmay not be allowed unless the riderpays a new fare. This obstacle should beeliminated through inter-agency coordination.Express Bus ServiceStakeholders managing travel for a particularevent may discourage event patrons fromdriving their private vehicles to the eventsite due to expected site parking deficienciesand anticipated roadway congestion. Thesespectators would likely utilize an expressbus service, originating from a permanentpark and ride facility or other vacant parkingarea (e.g., regional mall overflow parkingarea), if the service provides a higher levelof service to event patrons compared to thedrive-alone option. An express bus wouldfurnish direct service to the event venue. Inorder for an express bus service to operatesuccessfully, the express bus stations (e.g.,park and ride areas) must be strategicallylocated to intercept spectator traffic as it approachesthe event. In determining appropriateexpress bus station locations, theevent planning team should review the resultsof a feasibility study market areaanalysis.Six successful examples of express bus serviceinclude:• A successful public transit and expressbus campaign was utilized during the2002 Winter Olympics in Salt Lake City,Utah. (2) During the event, over 2.5 millionpassenger trips were recorded on theSalt Lake City public transit system foran average of about 150,000 per day.TRAX (Salt Lake City’s light rail system)carried two-thirds of the passengersand park and ride express buses carriedthe remaining third.• Another successful implementation ofexpress bus service involves footballgames at Husky Stadium on the campusof the University of Washington in Seattle.(1) Football game attendees were encouragedto take public transportation tothe stadium. All football ticket holderswere able to ride King County Metrobuses for free to the stadium via specialservice routes from park and ride lots inthe region. Event parking revenues subsidizedthe cost of the express bus service.• In addition to the plan implemented forUniversity of Washington footballgames, a similar plan was implementedfor Seattle Seahawks football games duringthe 2000-2001 season, when theSeahawks were forced to use Husky Stadiumfor home games. The Seahawks7EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW7-11

developed a comprehensive public informationand promotion campaign. Thecampaign, entitled “Tackle Traffic,” includeda full range of television, radio,and print media promotions. Fans wereadvised of the free fare transit servicethrough the campaign. The campaignalso informed event patrons that thetransit service provided faster traveltimes than driving to the game due to thepriority routes and loading locations assignedto buses before and after thegame.• The Regional Transportation District ofDenver, Colorado provides an expressbus service for Denver Broncos footballgames known as BroncosRide. Thisservice provides transportation from 30free park and ride lots in the surroundingarea. A fee of $6 roundtrip is charged toeach event patron for the bus service orspectators can also purchase a seasonpass. In addition, after the game, the expressbus stations exist directly outsideof the stadium.• Milwaukee, Wisconsin hosts the annual,multi-day Summerfest music festivalwhere special express bus service, providedby the Milwaukee County TransitSystem and other private companies, operatesthroughout the event. The expressservice utilizes existing park and ride facilitiesin the area. Certain buses areprovided free of charge, while service onother express routes cost $5 for a roundtripticket with tickets available only atthe point of origin.• The Downtown Shuttle Service also operatesin the Milwaukee downtown area.A list of parking lots and structures locatednear the shuttle route is disseminatedon the event website. These parkingfacilities offer a special parking rateof $5 or less when event patrons enterafter 5 P.M. on weekdays and all weekend.The Downtown Shuttle Serviceprovides 5 to 10 minute headways duringthe event and stops at designated stationsalong the route serving the event.The cost of this service is $2 roundtrip.Charter ServiceCharter service represents a contract servicethat provides transportation directly to theevent venue from outlying areas (e.g., otherneighborhoods and cities). Users often canpurchase tickets in advance and generally inconjunction with the event ticket. This servicecan include both charter bus operationsas well as charter rail operations. The charterservice configuration usually involvesproviding direct service to the event venue.However, service may also connect to anexisting transit station or park and ride lot(e.g., express bus transfer).Advantages of charter operations include:• Provides the opportunity for residents ofoutlying areas to use mass transportation.This represents the main focus ofcharter service.• Allows people who would not normallyhave access to public transportation for aparticular event to use the service.• Results in a reduction in traffic in thevicinity of an event site as well as onmajor corridor flow routes serving thesite.• May include free parking in the outlyingarea to help promote the service.• Allows operators to offer special seasonpasses at a discount rate to attract ridersfor recurring events (e.g., footballgames).One key aspect of charter bus service concernsthe need to provide emergency transportationfor riders should the need arise.For example, charter service travel times7-12

may exceed an hour. Patrons who use thecharter service must remain in the area ofthe event until the completion since, typically,only one bus or train is utilized for theevent. Therefore, if a patron needs to returnhome as a result of an emergency, a “guaranteedride home” service needs to be providedas part of the charter service. Thisrepresents one of the factors against charterservice and, therefore, the availability of anemergency ride home policy will likely attractmore users.One example of a successful charter serviceinvolves the Rochester-Genessee (NY) RegionalTransportation Authority (RTS). TheRTS runs a charter bus operation from theRochester area to Buffalo Bills’ games. Thefirst pick-up is at the RTS headquarters andoccurs 4 ½ hours before the kick off. Threemore stops exist, 4 hours, 3 ½ hours, and 2hours and 45 minutes before the game. Afterthe last stop, a direct trip is taken to thestadium facility with the bus arriving onehour before kickoff. The charter bus departsfor the Rochester area 45 minutes after thecompletion of the game. RTS operates asimilar charter bus operation for SyracuseOrangemen football and basketball games,including the first stop a full 4 hours beforethe event start.Public transit agencies may provide charterservice, but only under special circumstances.In cases where the Federal TransitAdministration (FTA) subsidizes a particulartransit agency and that agency wants to provideany charter service using FTA fundedequipment or facilities, then the transitagency must first determine if any local privatebus companies can and will elect toprovide the desired charter service. If a privateoperator exists, FTA regulations prohibittransit agencies from establishing acharter service with FTA funded equipmentor facilities. Public transit agencies mustsubmit a charter service request to the FTAat least 90 days prior to the first day onwhich the transit agency wants to providecharter service. Specifics of this FTA regulationare contained in 49 CFR Part 604,“Charter Service” which went in effect onMay 13, 1987.Transit Service MarketingIn order for public transit to be effective, thegeneral public must be made aware of thebenefits of using the transit system. Thiscan be accomplished through a comprehensivetransit marketing program. This programserves to: (1) inform the public of theavailability of public transit service to/froma special event venue (2) convince the publicto use the service. Stakeholders can developvarious marketing techniques to accomplishone or both of these tasks.San Francisco Giants ProgramOne successful implementation of a transitmarketing program involved the San FranciscoGiants baseball team in coordinationwith the regional Metropolitan TransportationCommission (MTC), Bay Area transitoperators, and the San Francisco Departmentof Parking and Traffic. These stakeholderscollectively developed and implemented acomprehensive transit marketing campaignprior to the opening of the new Pac BellPark in San Francisco.The goal of the program involved attractingpatrons to transit in large numbers. Thename of the campaign was “Your TicketHome,” and it was funded by the Giants, theMTC, and a number of corporate sponsors.Each corporate sponsor’s logo was printedon materials associated with the campaign.The transit marketing program targeted firsttimetransit riders. Since the Bay Area hasan extensive public transportation system,the main focus of the campaign was to educatethe traveling public. Key elements ofthe transit marketing campaign included:7EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW7-13

• Transit Information Guide – A pocketsizedfoldout information guide was developedand widely distributed to Giantsfans, including all season ticket holders.• Transit Information Hotline – A toll-freenumber was developed to provide livetransit planning assistance for patrons.• Transit Tickets by Mail – Giants seasonticket holders were provided the opportunityto purchase transit tickets in advancethrough the mail.• Transit Incentive Program – Giants fansthat purchased transit tickets in advancewere rewarded with points toward theGiant’s fan appreciation program.• Transit Advertising – An advertisingcampaign was developed using the“Your Ticket Home” logo and was featuredon Bay Area trains and buses andin the ballpark. The use of public transportationwas also heavily promoted onGiant’s radio and television broadcastsas well as on the scoreboard inside thepark.• Transit Ambassador Program – The Giantsand the various transit agenciesworked together to provide “transit ambassadors.”These ambassadors helpedto answer questions and guide new ridersthrough transfers and fare collectionprocedures at various stations. Theseambassadors wore brightly colored uniformsthat were easy to recognize.The Giants, the MTC and the San FranciscoDepartment of Parking and Traffic alsoworked together to effectively publicizeavailable transit services through local mediaincluding newspapers, television, andradio. In addition, press releases were issuedand interviews were scheduled on televisionand radio to further promote the transitprogram.PRE-TRIP TRAVELERINFORMATIONInformation NeedsVarious traveler information techniques areused to disseminate information to the public,including both event patrons and nonattendeeroad users, so they can be betterinformed when planning their trip to aplanned special event, or around an event.Table 7-4 lists techniques used to providepre-trip information to the traveling public.Table 7-4Pre-Trip Traveler Information DisseminationTechniquesTECHNIQUE• Internet• Telephone information systems• Public information campaign• Event and venue transportation guide• Kiosks• Television• Newspapers• Changeable message signs• Highway advisory radioThe primary function of pre-trip informationinvolves assisting drivers with decisions regardingroute planning, travel mode, and thetime of day to travel. Accurate pre-triptravel information will provide benefits toall transportation system users in the form oftime and cost savings.Pertinent information that event patrons maywant before beginning their trip include:• Best driving route to the venue fromspecific origins (e.g., cities or freeways)• Best public transit route• Parking area locations and parking fees,access to disabled parking spaces, andtimes that the parking areas open beforethe event7-14

• Recommended event ingress and egressroutes, particularly if different for arrivalsand departures• Up-to-the-minute roadway information(e.g., current traffic conditions andweather conditions)• Estimated travel time by different travelmodes• Event information such as times andschedules• Recommended speed/safety advisories• Scheduled roadway construction andmaintenance lane closures• On-street parking restrictions during theevent• Heavy vehicle restrictions• Expected delays leaving the eventThis information may help event patronsbetter gauge the utility associated withavailable travel choices and, in turn, assesswhat transportation mode and route they willbe taking to the event. Pre-trip traveler informationalso helps event patrons budgetsufficient time in accessing the event venue.Non-transportation information that may bepertinent to an event patron’s travel plan includessecurity procedures. This encompassesitems allowed to be brought into theparking area or the venue itself, includingpets. This information is important since itmay impact the amount of time it takes spectatorsto get into a parking area or venue.Other information includes what vendors areavailable on-site, since event patrons mayhave the option of eating before or after thespecial event. This will impact the time theevent patron designates for venue arrival. Inaddition, a seating chart and gate locationsmay assist the spectator in selecting whichparking area to use.Non-attendee road users also desire informationon event specifics, but this informationis directed more to possible road/lane closuresor changes in normal traffic patterns.The main issues for the non-attendee roaduser becomes, “How will the event generatedtraffic impact my daily driving routine?”The most relevant information is upto-the-minutetraffic reports in the area ofthe venue, used by non-attendee road usersto determine if their travel route needs adjusting.Information on travel lane closuresis also important to determine if extra timeneeds to be budgeted or an alternate routetaken.All of this pre-trip information helps transportationsystem users plan their best routeto and from the event or around the event.The event patrons will have the informationthey need to arrive on time for the event;moreover, the information will prepare themfor what may lie ahead in their trip. Thenon-attendee road users are also made awareof what to expect as a result of a plannedspecial event. If residents and businesses inthe area surrounding a venue incur significantimpacts, then it may be more difficult,in the future, to obtain special event permitsin the area.In order to improve public understanding,cooperation, and acceptance of the plannedspecial event, stakeholders should considerthe following actions:• Develop public information programs toencourage early travel to the eventand/or spectator use of alternative routesor transit.• Develop public information programs toencourage non-attendee road users toconsider transit, ridesharing, and alternativework hours.• Develop agreements with trucking agenciesto avoid peak period travel and deliveries.7EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW7-15

InternetInternet websites have several key points ofinterest when they are used to disseminatetraveler information:• Provide global information distributionsince geography is not a limiting factor.• Facilitate interactivity by allowing usersto control information display. Userscan find information about what they areinterested in and may also find informationthey did not know was available.• Can target a specific subject area andconcentrate on this area with links toother related sites.• Provide detailed information that is noteasily conveyed by telephone.• Provide flexibility since revisions andupdates can be made in a fraction of thetime and cost of re-printing material(e.g., brochures).• Identify conditions affecting service,thus answering the question: “Why arethere delays on this section of roadwayat this time?”• Use graphics capabilities. Users understandcomplicated subject matter betterwhen presented with graphics. Thisconcept holds true with driving directionsand transit maps, for example. It iseasier to digest the information via amap rather than read a table of times anddestinations. In addition, the graphicscan be printed and used at a later date ifneeded.• Promote existence and use of telephoneinformation systems (e.g., 511 service).Public Agency WebsitesAs illustrated in Figure 7-7, a typical publicagency website includes up-to-the-minuteinformation for the traveling public both beforethe event and on the day-of-event. Informationprovided on these websites includestraffic conditions, such as road segmentspeeds or traffic incident locations. Inaddition, websites can include in-depth detailsregarding traffic incident characteristicsby allowing the user to click on icons for amore detailed explanation. As an example,if a certain icon shows a traffic incident, theuser can click on that icon and see a moredetailed explanation of the traffic incidentitself.Figure 7-7Traffic Information Dissemination Via aPublic Agency Website (Graphic courtesyof the Chicago DOT.)Public agency websites also provide informationon roadway closures, locations ofroadway construction sites, and details ofplanned special events impacting transportationsystem operations. Again, the user canobtain more detailed information for eachlocation by clicking on a certain area withinthe website. A typical public agency websitemay provide weather information alongwith information on pavement conditions.Public agency websites may disseminateclosed-circuit television (CCTV) cameraimages. By clicking on CCTV locationicons, a snapshot picture of the latest CCTVimage is shown on the website. In addition,locations of CMS and their current messagecan also be shown. Public agency websites,or private traffic advisory services, may alsoallow users to subscribe to an alert systemthat allows them to receive e-mails if a trafficincident, roadway construction, or7-16

planned special event impacts operations ona user-defined route.One successful implementation of a websitefor disseminating pre-trip traveler informationwas the Utah DOT’s CommuterLinkWebsite (CLW) used during the 2002 WinterOlympics in Salt Lake City, Utah. (2) TheCLW represented the most highly accessedtraveler information element during theOlympics. It included typical public agencyinformation on traffic conditions includingspeeds and incidents. It also disseminatedinformation on roadway closures, currentroadway construction, weather conditions,and pavement conditions. In addition to thetypical public agency information, the CLWprovided Olympics travel information.In order to assess the usefulness of the CLWduring the Olympics, a survey was conductedof both residents and visitors to theSalt Lake City area. The results of the visitorsurvey showed that 41 percent of visitorsheard of the CLW and 34 percent of visitorsstated they used the CLW. The results ofthe resident survey indicated that 70 percentof residents heard of the CLW while 21 percentused it. Both visitors and residents indicatedthat they used the CLW to obtain:• Traffic information• Road conditions• Olympics information (e.g., travel optionsand event operations information)• Weather informationEvent or Venue WebsiteA typical planned special event or venuewebsite includes event start times and directionsto the event. The website can alsoprovide information on parking area locations,fees, alternate routes, or incentives touse different modes of transportation. Avenue website represents one of the besttechniques to reach the people attending theevent. Successful websites also provide informationon the availability of public transportationand route maps for all publictransportation alternatives. Venue ingressand egress routes can be specified on a websiteto provide valuable advance informationto the traveling public. Appendix L containsexamples of public agency and eventspecificwebsites.Telephone Information SystemsAnother method to disseminate pre-triptraveler information to the public is by theuse of telephone information systems (e.g.,511 service). This system consists of anautomated voice recognition system and/or amenu that can be accessed by using a touchtonephone, and the system provides up-tothe-minutetraveler information. The systemincludes information on traffic conditions,public transit information, and road conditions.The system can also provide eventrelatedinformation such as times, location,and event descriptions. Parking informationcan also be provided, such as parking locationsand parking lot status information.The system can furnish updated informationon event travel alternatives throughout theevent. Stakeholders should coordinate withtelephone information system operators(e.g., state DOT) to ensure that informationpertaining to a specific planned event is includedin the system and updated regularly.Marketing a 511 service for a planned specialevent includes the following considerations:• Deployment of roadside signs on travelroutes to the event venue and placed inadvance of the event dates.• Promotion through the media.• Establishment of partnerships between511 service operators and all venue operatorsin a region.7EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW7-17

• Use of television commercials and radioadvertisements.• Use of an event transportation guide forinformation on the service.In addition to disseminating information viathe Internet during the 2002 Winter Olympics,the Utah DOT also operated a 511telephone information system. Figure 7-8shows the 511 service structure establishedby the Utah DOT. On a typical day duringthe Olympics, the 511 service received1,923 calls. (2) Callers to the 511 service accessedthe following main menus within thesystem:• Traffic menu• Transit menu• Olympics menu• Road conditions menuBoth residents and visitors were surveyed inregard to an evaluation of the telephone informationsystem. The results of the surveyshowed that 25 percent of visitors heard ofthe 511 service and 17 percent used it. Thesurvey results reported 44 percent of residentsheard of the 511 service; however,only 4 percent of residents used it.The 511 service is normally run by a regionalor statewide public agency, and theservice is not intended solely for plannedspecial events. A telephone informationsystem is also used on a daily basis bycommuters and other travelers in the area toobtain information on daily traffic conditions.However, one way that planned specialevent stakeholders can promote use ofthe existing service is to advertise it on theevent website. This was done on the Bristol(TN) Motor Speedway’s website. On thefirst page of directions to the venue, an advertisement,shown in Figure 7-9, wasplaced for the area’s 511 service. As a result,the event website alerted event patronsof a means to obtain accurate, up-to-datetraveler information before commencingtheir trip to the event venue or while enroute.Figure 7-8Telephone Information System Menu Structure (2)7-18

planned special event and related travel options.7Figure 7-9Promotion of 511 Service on Event Website(Graphic courtesy of Bristol Motor Speedway.)Public Information CampaignA public information campaign is simply anoutreach initiative designed to disseminate amessage(s) to a general audience and to garnerpublic response to the message subject.Key considerations include:• In order for a public information campaignto be successful, stakeholders mustinitiate the campaign well in advance ofa special event.• Information disseminated through thecampaign needs to reach both event patronsand non-attendee road users.• Maps showing event site and location ofparking areas, as well as any associatedroadway closures and/or special trafficpatterns, can be placed in local newspapers.In addition, this information canbe broadcast on local radio and televisionnewscasts throughout the day.• Special media briefings can be held inadvance of the event so that the mediahas ample time to inform the public ofthe upcoming activities. Stakeholderscan provide the media with maps andwritten information.As shown in Figure 7-10, television advertisementscan broadcast telephone numbersto call for additional information about aFigure 7-10Public Information Campaign PromotionThe Wisconsin DOT and its stakeholderpartners provide several information packagesfor events held throughout the state.One such event was the 2002 Major LeagueBaseball All-Star game held at Miller Parkin Milwaukee. The DOT provided a detailedbrochure for event patrons going tothe baseball game, informing them of roadconstruction and potential difficulties (e.g.,delays) in accessing the ballpark. The brochurethen specified, in detail, alternateroutes that motorists could take to avoid themost congested areas. The brochure alsodirected event patrons to the DOT websitefor further information concerning any topiccovered.The Wisconsin DOT also produced a brochureentitled “Get Down Downtown” forthe Milwaukee area. This brochure includedmaps of the area that specified all on-goingroadway construction projects. It also providedinformation on available public transitsystem service and parking area locations.Suggestions, such as “carpool with friendsand coworkers,” were made to reduce trafficdemand in the downtown area, particularlywhen planned special events occur. TheEVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW7-19

ochure listed summer travel tips in additionto guidance (e.g., websites) on where toget more information about any particulartopic. In this manner, the brochure providedan abundance of information while notoverburdening the reader. Instead of thereader having to look through an entireguide, subject areas were listed coupled withstatements on how to obtain additional information.Figure 7-11 presents the summertravel tips communicated by the brochure.Event and Venue TransportationGuideAnother strategy that can be used to distributepre-trip traveler information is throughan event-specific or venue transportationguide. These guides are normally distributedto event patrons when they receive theirtickets for an event, or the guides can bedownloaded from an event or venue website.Local hotels can also maintain copies of thetransportation guide.Typical items that may be included in atransportation guide that comprise usefulpre-trip traveler information include:• Schedule of events• Driving directions• Area map• Inbound and outbound traffic flowroutes• Parking areas• Area transportation optionsTransportation guides can illustrate thebenefits of carpooling. Parking facilitieswithin a downtown area can be shown, andthe guide can emphasize those parking facilitiesthat offer HOV pricing. Local accessstreets can be identified with a request not touse those streets while driving to and fromthe event unless the driver intends to patronizelocal businesses either before or after theevent.Figure 7-11Public Information Campaign Brochure7-20

Appendix M contains an example of a venuetransportation guide prepared for Ford Fieldin Detroit, Michigan.The Nazareth Speedway in Nazareth, Pennsylvaniaproduces an informative venueguide each year that provides in-depth informationabout the raceway itself as well astravel options to the venue site. AppendixM contains the transportation section of theguide prepared for this venue. This guidecan be downloaded from the venue’s website.The opening sections of the guide providea venue overview and list importanttravel tips, including the use of recommendedroutes and the possibility of incurringdelay due to both traffic congestion andsecurity issues. Since ingress and egresstraffic patterns differ, both sets of directionsare communicated in the venue guide. Afacility map shows available amenities aswell as parking area locations (includingdisabled parking). In addition, the guideincludes a grandstand map and states parkingarea opening times in addition to parkingrules and regulations.Other Technology ApplicationsOther technology applications include:• Kiosks• Television• Roadside traveler information devicesKiosksKiosks are used extensively to provide multi-modaltransportation information to thetraveling public, such as:• Area maps• Route guidance information• Real-time travel condition information(e.g., speeds, traffic incidents, etc.)• Planned special event information• Road construction and road closure information• Public transit information• Weather information.Successful kiosk implementations includeinformation that can be displayed on a colorcodedmap and/or printed. This informationcan include such items as turn-by-turn routeplanning. The ideal location for a kiosk is inhigh pedestrian traffic areas, such as hotels,tourist attractions, businesses, schools anduniversities, military bases, shopping malls,rest areas, hospitals, and amusement parks.The kiosk concept is used extensively in theSan Antonio, Texas area which operates 4outdoor and 36 indoor interactive travelerinformation kiosks. (4) Before deployment ofthe kiosks in San Antonio, a focus groupwas established that randomly selected peoplein the area to try the kiosk software.This allowed designers to evaluate differenttypes of presentation layouts and informationand to base designs on user feedback.The design process proved successful in creatingdemand for the kiosks in the San Antonioarea.TelevisionA successful pre-trip information strategyincludes the use of local media outlets todisseminate information to the travelingpublic. During planned special events, televisionstations may show actual footage obtainedfrom CCTV cameras along roadwaysin order to communicate real-time trafficinformation. These CCTV camera linksoriginate from a transportation managementcenter (TMC), and the TMC can preventmedia access to certain cameras for securityor privacy reasons. In addition, a successfulinformation campaign includes the releaseof regular e-mail or voice recording updatesto various media outlets by TMC operators.The local media outlets, especially radio and7EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW7-21

television, use this information to alert motoristsof traffic incidents, alternate routes,and general traffic information.Television can be used to disseminate pretriptraveler information by way of regularbroadcast updates or a dedicated cable televisionchannel. A dedicated channel allowstravelers to turn on the television and view atraffic report with little delay. As shown inFigure 7-12, maps can be provided thatshow icons with traffic incident locationsand color coded road segments that indicatecurrent travel speeds. Television traffic reportscan broadcast planned special eventtravel information as well as road closures,construction, detours, weather conditions,transit, and current traffic conditions.HAR can disseminate more detailed informationabout transportation alternates andparking access for the event. The servicecan promote alternate modes of travel suchas light rail, bus, or bicycle. In addition, informationon shuttle buses for the event canbe included in HAR message sets.REFERENCES1. Markley, D.D., N.L. Conrad, andG.S. Rutherford, “Serving the Universityof Washington’s Husky Stadium,”Preprint No. 00113, Preparedfor the 2001 ITE Annual Meetingand Exhibit, Institute of TransportationEngineers, Chicago, Il., August19--22, 2002.2. Glazer, L.J. and R. Cruz, IntelligentTransportation Systems at the 2002Salt Lake City Winter OlympicGames: Event Study – Traffic Managementand Traveler Information,Utah Department of Transportation,Salt Lake City, Utah, April 2003,160 pp.Figure 7-12Television Travel ReportRoadside Traveler Information DevicesRoadside traveler information devices, suchas CMS and HAR, can be used in the daysand weeks prior to an event to alert commutersand local residents of possible specialtraffic patterns and closures due to a futureplanned special event. Device messagescan be specific in terms of the exactdays and times of the anticipated travel impactsand roadway modifications. Messagebroadcast should commence at least oneweek prior to the planned special event.3. Coffel, B. and F. Wambalaba, Tri-Met SETS Program, Tri-CountyMetropolitan Transportation Districtof Oregon, Portland, Oregon, 1995.4. Miller, K.T. and L.J. Dignazio, “TheSan Antonio Model Deployment InitiativeExperience: LessonsLearned,” Preprint No. 00840, Preparedfor the 1999 Annual Meetingof the Transportation ResearchBoard, National Research Council,Washington, D.C., January 11--15,1999.7-22

CHAPTER EIGHTIMPLEMENTATION ACTIVITIES8OVERVIEWPURPOSEThis chapter describes the third phase ofmanaging travel for planned special events.Implementation activities mark a transitionphase between event operations planningand day-of-event activities. Therefore, thephase involves both the event planning teamand traffic management team. This phaseincludes activities key to the success of anyplanned special event, including implementationplan development, stakeholder reviewand testing, and personnel resource management.Figure 8-1Personnel Monitoring of Arterial Ramp ClosureThe underlying objectives of the chapter materialare to: (1) improve the efficiency oftraffic management plan deployment and (2)increase traffic management team preparedness.In turn, this creates a more responsivetraffic management team and fluid team operation,thus translating to better transportationsystem performance on the day-ofevent.INTRODUCTIONThe operational success of a planned specialevent traffic management plan rests on trafficmanagement team members having firsthandknowledge of pertinent plan strategiesand tactics. Although most stakeholderagencies comprising the traffic managementteam participated in developing the trafficmanagement plan, the actual stakeholderrepresentatives may be different. Middleand senior level personnel partaking in eventoperations planning initiatives may assume aDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE8-1

traffic management team supervisory position,while agency field-level personnel mayimplement traffic management plan specificationsand details. An implementation planinstructs field-level personnel, some ofwhom have little or no direct experience inmanaging travel for planned special events,on the what, when, and where aspects oftheir assignment in relation to traffic managementplan requirements. On a management-level,an implementation plan specifiesan action plan for activating, changing, anddeactivating various traffic managementplan provisions.Review and testing allows the traffic managementteam to identify potential limitationsof the traffic management plan prior tothe day-of-event. With stakeholder agenciesrepresenting various jurisdictions and disciplines,review and testing promotes trafficmanagement team coordination and increasesstakeholder familiarity of the duties,responsibilities, and capabilities of otherstakeholders. Activities range from tabletopexercises that examine how different agenciesreact to various scenarios to “hands-on”applications that can involve a full simulationor deploying a traffic management planfor smaller planned special events as a test.In developing the traffic management plan,stakeholders design transportation controland management strategies to satisfactorilymitigate the impacts of event-generatedtravel demand. The level of response requiredto implement planned mitigationmeasures may place significant strain onagency and contractor personnel availableon the day-of-event. The recruitment oftemporary staff and volunteers expands trafficmanagement team capabilities and elevatesits operations efficiency. Practitionerscan capitalize on the benefits of having additionalpersonnel resources by recognizingvolunteer limitations and applying proventraining methods.IMPLEMENTATIONPLANOverviewAn implementation plan details the actionsrequired to put a traffic management planinto effect on the day-of-event. Its purposeis to: (1) define personnel assignments thatindicate the roles and responsibilities of individualtraffic management team personnelon the day-of-event, (2) describe a scenariobased,operations game plan at the management-level,and (3) communicate instructionsand organize personnel at the fieldlevel.It is intended for use by individualtraffic management team personnel at thecommand post and in the field. While thetraffic management plan indicates how traffic,parking, and pedestrian operations willbe managed, the implementation plan describesthe what, when, and where in termsof personnel and equipment resource deploymentneeded to execute traffic managementplan provisions. Traffic managementplan revisions made on the day-ofeventmandate corresponding implementationplan modifications. Field personnelmay lack familiarity with a traffic managementplan developed by mid-level and senior-levelagency representatives, and an implementationplan ensures a coordinated andconsistent traffic management team effortand prevents field personnel from having tomake independent decisions. Table 8-1 listsgeneral field-level operations guidelines.Table 8-1General Field-Level Operations GuidelinesACTION• Follow assignment detail, unless revised by a supervisor(via command post).• Review traffic control at adjacent locations.• Review event permits and passes to minimize confusionand traffic flow disruption.• Maintain radio communication with pertinent supervisorsand/or command post.• Expect temporary changes in operations detail.8-2

The implementation plan communicatestraffic management plan specifics using aquick reference format. The plan rangesfrom a memorandum to a detailed manualdepending on event size and scope of plancoverage. Figure 8-2 shows two examplesof implementation plans prepared for a specificplanned special event. Individualstakeholders may develop a plan for thefreeway/arterial corridor(s) or street networksunder their jurisdiction. A large-scaleimplementation plan, such as an event manual,is organized by: (1) traffic managementplan component (e.g., signing plan, intersectioncontrol plan, etc.), (2) zones correlatingto supervisor assignments, or (3) agency jurisdiction.Figure 8-2Planned Special Event Implementation PlansTraffic management team supervisorsshould develop an implementation plan priorto any review and testing exercises to permitrevisions and allow the participants an opportunityto become familiar with the detailsof their assigned job. The key to plan development,and day-of-event operations, involvesassigning the right personnel, authority,and responsibility to effect optimal trafficmanagement plan deployment. Complextasks require skilled personnel with satisfactoryexperience. The implementation planshould empower traffic management teamsupervisors at every level: event commandpost, agency command post, and field locations.This allows lower-level staff to resolvecertain problems without having tocontact the command post, thus reducing theburden on command post personnel. Whilereview and testing exercises may not involveall traffic management team personnel, supervisorsshould conduct an implementationplan review with field staff prior to the eventor during day-of-event roll call.Plan SpecificationsAn implementation plan describes functionalactivities, as specified in the traffic managementplan, by location and/or resource/infrastructuretype. Locations includefreeway and street segments, freewayramps, intersections, mid-block locations,and parking area access points. Specific resourcesand infrastructure include roadwaytraveler information devices, static signs,traffic control equipment, and traffic signalsand associated timing plans.The overall implementation plan organizationcreates numerous action plans for specifictraffic management personnel or smallpersonnel groups. Location-specific detailstypically specify traffic and/or pedestriancontrol duties and responsibilities. With regardto equipment deployment, the implementationplan contains protocol for delivery,installation, monitoring, and takedown.Stakeholders design the implementation planto match specific personnel experienced inoperating certain equipment and infrastructure.Table 8-2 presents an implementation planchecklist. Appendix N contains exampleimplementation plans prepared for specificplanned special events. All planned actions,even if not explicitly noted in the table, mustinclude what, when, and where instructions.For multi-day or multi-venue events, trafficcontrol strategies and resource deploymentcan be organized through matrices for easy8EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW8-3

ELEMENTCommand postoperationOperationstimelineOperationsmanagementContactinformationCommunicationsTrafficmanagementteamorganizationEquipment andinfrastructuremanagementTable 8-2Implementation Plan ChecklistACTION• Indicate agencies staffing the command post in addition to the name and schedule ofagency representatives.• Specify equipment needs and times of delivery and set-up.o Computers, networking, temporary phone and modem lines, televisions and radios,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.• 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 activitiesduring 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 ofportable 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.• Specify contingency plans – indicate available plans and associated equipment/personnelresource 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.o Home phone, work phone, cell phone, pager number, fax number, e-mail address,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.• Indicate guidelines and restrictions regarding use of various radio channels or talkgroups(e.g., field-to-field communications, field-to-command post communications, non-eventcommunications).• State agency duties, responsibilities (e.g., traffic control, traffic signal operation, travelerinformation device operation, etc.), and jurisdiction.• Specify highest-ranking agency representative on the day-of-event in addition to midlevel(e.g., zone) managers.• 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 personnelassignments.• Indicate schedule and location (zone) assignment of available equipment maintenancecrews on the day-of-event.• 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 deviceson the day-of-event.• Indicate protocol and personnel charged with implementing different traffic signal timingplans as-needed on the day-of-event.8-4

ELEMENTLocationspecifictrafficand pedestriancontrolPost-eventevaluationACTION• Indicate protocol and personnel charged with monitoring traffic surveillance equipment(e.g., CCTV).• List available maintenance personnel and equipment resources.• Indicate agency personnel (e.g., number of staff or individual name, rank, and unit/radioassignment), report date and time.• Specify schedule and route of roving service patrols.• State protocol and personnel assignments for maintaining unobstructed emergency accessroutes.• Specify task instructions, including traffic and pedestrian flow restrictions and permittedmovements (e.g., special allowances for local traffic, buses, etc.).• Summarize the location and time (close/reopen) of planned full/partial road closures encompassinga 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 permitsand event passes.• Describe components of post-event field personnel debriefing.o Time of heavy traffic and pedestrian flowo Qualitative assessment of traffic and pedestrian operations at location.o Recommendations to improve traffic and/or pedestrian flow at locationreference. Traffic management team supervisorsshould maintain a full version of theevent traffic management plan, includingcontingency response plans, at the commandpost.In an effort to best prepare traffic managementteam personnel, particularly team supervisors,for day-of-event operations, theplan can include a qualitative evaluationsummary of transportation system operationsfor a previous, similar planned specialevent. This allows team members to familiarizethemselves with past operations andlessons learned. The plan may highlightnew provisions and changes for the subjectevent aimed at mitigating past lessonslearned.REVIEW AND TESTINGPurpose8-5While all of the steps discussed up to thispoint are important, the best traffic managementplans may fail if they are not reviewedand tested prior to their implementation.The event operations planning process,by its very nature, is based on assumptionsand expectations. Those event planningteam members who helped draw-up the planmay have a thorough knowledge of theiragencies’ experience and capabilities, butthere are probably many traffic managementteam members and volunteer personnel whohad little or no role in developing the plan,yet have the responsibility of implementingit and managing travel on the day-of-event.While a traffic management plan can covermany contingencies, it cannot cover all possibilities.Review and testing can allow participantsto see how they handle variousscenarios and how varying elements can affectthe plan. The testing of the plan shouldbe considered part of the overall trainingthat is needed for traffic management teampersonnel to become familiar with the planand their role in it.This section covers what should be done inthe days leading up to plan deployment, includingsimulation exercises and equipmenttesting which will help assure that what isplanned is what actually happens.8EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW

Stakeholder Simulation ExercisesA plan is just a plan until it is implemented.Simulation exercises allow that plan to begiven life and allow stakeholders to see howit might work in the real world of theplanned special event.The simulation exercise can test importantelements such as: (1) interagency communications,(2) deployment of personnel andequipment, and (3) information gatheringand dissemination. While stakeholders mayconduct the exercise at the venue where theplanned special event will occur, much ofthe plan will involve permanent transportationmanagement centers (TMC) or temporarycommand posts which are in operationbefore, during, and after the event. Thereforeit is important that all of the responsibleagencies and TMCs, which may have a roleto play during the actual event, be involvedwith the simulation exercise.Communications should be tested not justfrom a technical standpoint but also to makesure what is being communicated is understood.The simulation provides an opportunityto make certain this part of the planworks as expected.Exercises can take on two different forms:• A tabletop exercise• A full-scale simulationThe purpose of both types of exercises is to:(1) test the written assumptions in the trafficmanagement plan and (2) see what must bechanged and how the plan can be improved.No matter how thorough a traffic managementplan may be, it can not account for allcontingencies. The plan assumes participantswill follow the steps laid-out, but individualsmake mistakes and equipment mayfail. Both the tabletop and full-scale simulationallow the participants to see how theyreact to those unexpected events.8-6Without the benefit of testing the trafficmanagement plan, discrepancies may not berealized until the actual implementation ofthe plan. During simulation exercises, mistakescan be discovered while there is stilltime to make modifications and before anynegative consequences are realized.In both a tabletop exercise and a full-scalesimulation, participants receive and use thewritten traffic management plan and implementationplan as the basis for their actions.Table 8-3 lists elements of a typical exercise.Table 8-3Elements of a Stakeholder SimulationExerciseELEMENT• Identify the stakeholders who will participatein the exercise.• Distribute copies of the traffic managementplan and implementation plan to participants.• Develop a script for the exercise, includingsurprise elements that may not be addressed inthe traffic management plan.• Provide a timeline for the exercise to play-out(the exercise will probably take place in anaccelerated timeframe compared to a real-lifeevent).• Identify reviewers who will watch the exerciseand take notes.• Provide time to review the exercise.• Modify the plan based on what was learnedduring the exercise.The goal of the testing is not to be mistakefree,but to identify potential problems.Therefore, when the actual event takes placeerrors, may be minimized and the event canrun smoothly.For both tabletop and full-scale simulationsto be effective, they should test as manyparts of the traffic management plan as possibleusing scenarios that are as realistic aspossible. Since participants can not be expectedto remember all that takes place duringthe exercise, it is critical that observ-

ers be used to: (1) watch what happens, (2)take notes on what is seen and heard, and (3)recount observations during the reviewprocess. Participant input is also crucial inthe review process. They can note difficultiesexperienced during the exercise thatmight not be obvious to observers. Reviewersshould debrief participants as soon aspossible after the exercise so participants donot forget what they experienced. Theseparticipant observations should also be includedin a more extensive review of the exercise.Individuals who do not represent day-ofeventtraffic management team personnel orevent stakeholders can be very useful inmoderating the review process since they donot bring real or perceived bias into theprocess.Finally, all of the observations and insightsare useless unless there exists some opportunityto incorporate recommended changesinto the traffic management plan.Tabletop ExerciseAt its most basic level, a tabletop exercisecan simulate what actions will be taken usingonly a limited number of people. Thetabletop exercise may be held within theconfines of a room, but there is still an opportunityfor representatives of allparticipating stakeholders to take part. Thetabletop exercise can be run by a handful ofpeople who regularly manage travel forother planned special events occurring intheir region and, therefore, know howstakeholders deal with other events. Theparticipants take on roles such as the TMCoperator or field personnel and state whatactions they would take based on a scenarioas it is presented and as it evolves.One shortcoming of the tabletop is that notall of the participants, especially the frontlinepersonnel, will take part in the exercise.8-7This could mean that those who are playingthe role of a traffic management team membermight handle events differently thanthose who actually would take the actions onthe day-of-event, or that actions might differif there were interaction with other participants.It also means that the insights, questionsand suggestions of these operationalpersonnel are lost. One way this can be addressed,in part, is to have several tabletopexercises, which review portions of the planwith smaller groups. Having multiple tabletopexercises better accommodates theschedule of designated traffic managementteam personnel. These exercises can focuson that portion of the plan, which in turn,involves these individuals.A tabletop may also miss outside influencesthat would be dealt with during an actualplanned special event. For example, a TMCoperator may be handling other activitiesduring a special event such as an incidentnot associated with the event.It should be noted that a tabletop exercisecould be held prior to a more detailed exercise,which involves a greater number ofpeople. In fact, a tabletop may identifyproblems which can be corrected prior to amore detailed exercise and allow a bettersimulation of what takes place.Full-Scale SimulationA full-scale simulation involves a largernumber of people and takes place at variouslocations. During the exercise, actual communicationtakes place between participantsincluding those at the planned special eventsite, TMCs, and in the field.While the simulation tests elements of thetraffic management plan, there is also benefitto throwing in a few curveballs to seehow participants handle the unexpected.While a TMC, for example, may bring inadditional staff to handle the added work-8EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW

load of the planned special event, there is apossibility of a major unexpected incidenttaking place at the same time as the event.In this instance, it may be impossible to followall elements of the traffic managementplan, and participants can be tested on howthey identify priorities and decide what portionsof the plan to follow or discard.While a simulation will bring weaknesses tolight, it is important that all those affectedbecome aware of those weaknesses andwork together on how to modify the plan,prior to the day-of-event, to minimize theweak spots.An important part of the simulation is thereview that follows. All those who participatedin the simulation now have an opportunityto: (1) go over the simulation step-bystep,(2) compare it to the traffic managementplan which was developed, and (3)modify the plan as appropriate. There areseveral reasons why it is important that allparticipants have an opportunity to critiquethe simulation. First, a problem may only beobserved by one individual, yet that problemcould affect the entire operation. Secondly,if the plan is modified, it needs to be discussedby all those who are affected. In thesame way it is important for all pertinentstakeholders to have a role in developing thetraffic management plan, it is important alsofor everyone to be aware of necessary planchanges and to note how those changes mayimpact their agency’s operation on the dayof-event.Equipment TestingA wide variety of equipment may be used tomanage travel during a planned specialevent. This includes communicationsequipment and equipment in the field, whichsupports the traffic management plan andhelps the traffic management team managethe event. Equipment that may need to betested includes:8-8• Center to center communications• Center to field communications• Changeable message signs (CMS), bothfixed and portable• Highway advisory radio (HAR)• Closed-circuit televisionWhile testing is no guarantee that equipmentwill work as expected, it is useful in identifyingunknown problems and potential problemsbefore the event. For example, if anevent is taking place in a remote area, communicationto field devices may be hinderedby weak or nonexistent signals.Stakeholders should consider testing forthese types of problems as far in advance ofthe event as possible so that alternatives canbe identified and developed. Other types oftesting, such as the functioning of fieldequipment, should take place just prior tothe event to make sure it will be workingduring the event.During a planned special event, communicationswill often be routed from the commandpost at the planned special event site throughthe TMC, if present, to field personnel andothers responsible for implementing variouselements. Since the venue is at a locationwhere transportation management activitiesmay not normally take place, it is especiallyimportant that communication linkages betweenthe venue and the TMCs work well.If radio communications are required, theseshould be tested on all frequencies expectedto be used. If wired communications areinstalled, then they should also be tested.Back-up communication channels shouldalso be tested in the event primary channelsdevelop problems. For instance, cellularphone systems might be overloaded duringan event that draws a large number of people,especially if a problem occurs duringthe event, which causes many event patronsto use their mobile phones.

Communication from the TMC to variousfield staff must also be tested. Again, someof these field personnel may be in locationsnot normally used during day-to-day activities,and this testing will verify communicationcan take place from the TMC to all fieldpositions.There are other pieces of equipment that arealso important and these should be tested.For example, motorist information toolssuch as CMS and HAR may be used totransmit important information both to (1)those attending the event and (2) those whoare traveling through the area and whostakeholders want to steer clear of the event.In many instances, portable CMS may bedeployed. Communications from the TMCto the signs must be tested to make certainthere are no problems updating the signs.Again, keep in mind that portable signs mayuse the same cellular phone frequencies thatevent patrons use and, as a result, communicationsthat work during a simulation maynot be as reliable during the actual event.As with other elements of the traffic managementplan, contingencies should be developed.If wireless communications areunavailable, what alternates are available?Can field personnel be deployed to manuallyadjust equipment? Do these individualspossess sufficient qualifications needed tooperate the equipment? There are a host ofquestions that should be considered andtested.PERSONNELOverviewTraffic management plan implementation onthe day-of-event involves personnel dutiesranging from trivial tasks to responsibilitiescritical to the safety and mobility of transportationsystem users. A traffic managementteam comprised of supervisors and8-9field staff having experience in assigned dutiesand responsibilities represents a key tosuccessfully managing travel for plannedspecial events. Experienced personnelshould exist at all levels in the traffic managementteam hierarchy: interagency command,agency command, and field operations.However, supplementing experiencedpersonnel with temporary staff and volunteerson the day-of-event also provides advantagesthat (1) reduce personnel cost aspublic agency personnel likely require overtimewages on the day-of-event, (2) permitpublic agencies to adequately meet otherdaily staffing requirements, and (3) provideexpanded control over transportation operationsand greater convenience to event patrons.In some cases, the amount of personnel requiredto implement traffic managementplan strategies (e.g., traffic/pedestrian control,parking, surveillance) on the day-ofevent,coupled with implementation planassignments such as equipment delivery andinstallation, may exceed the staffing capabilitiesof agencies and contractors involvedin managing travel for a planned specialevent. As a result, the recruitment and trainingof temporary staff and volunteers becomesparamount to the success of day-ofeventoperations. The effectiveness and ultimatesuccess of a traffic management plandepends on the level of personnel (andequipment) resources available to implementthe plan. A determination to use and trainvolunteers, or additional volunteers, mayoccur as late as after the completion ofstakeholder simulation exercises and afterstakeholders make final revisions to the trafficmanagement plan and implementationplan.Table 8-4 lists common personnel resourcerequirements on the day-of-event. The tableindicates volunteers are better suited fornon-essential activities, primarily because ofexperience and reliability concerns. Yet,8EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW

these activities contribute toward improvedtraffic and pedestrian flow within the venuesite area. For instance, the deployment offield observers allows for data and informationto be collected, processed, and transmittedin real-time to traffic management supervisors.Volunteers can facilitate improvedoperations at mode transfer points,such as shuttle bus stations and pickup/drop-offareas. Public agency stakeholdersdo not have the resources or budgetto assign paid staff for every activity supportingtraffic management plan implementation.These stakeholders, coupled withprivate contractor support, can instead workto supervise teams of volunteers chargedwith traffic and pedestrian managementsupport tasks.This section focuses on tasks associated withthe use of volunteer personnel in managingtravel for planned special events. As emphasizedin this and previous chapters,stakeholders have the responsibility of assigningstaff experienced in handling challengingtasks that comprise a particular traffic,pedestrian, or parking managementstrategy. While some experienced personnelmay not have worked a planned specialevent in the past, they have performed thesame or similar task(s) on regular basis as aresult of day-to-day responsibilities or responseto other events (e.g., traffic incidentsand roadway construction activities). Forinstance, the actions involved in programminga CMS or HAR during a planned specialevent does not change from its use inother situations. The stakeholder simulationexercises described in the previous sectionrepresent training for experienced personnelon managing travel for a particular plannedspecial event. In contrast to experiencedpersonnel, many volunteers have no pastexperience in managing travel for plannedspecial events, nor do they have experiencein tasks associated with traffic and pedestriancontrol and parking operations.ACTIVITYEvent transportationservicesActive traffic andpedestrian controlPassive traffic controlParking operationsOperations monitoringCrowd controlEvent patron assistanceTable 8-4Day-of-Event Personnel Resource RequirementsEXAMPLE TASKSRECOMMENDEDPERSONNEL• Operate shuttle bus. Experienced personnel• Manage competing traffic and pedestrian flow. Experienced personnel• Monitor barricades and other traffic control devices.• Guide traffic or pedestrian flow (e.g., pull-through).• Guide vehicles through parking area access point.• Process vehicles at parking area gate.• Park vehicles.• Monitor parking area occupancy levels.• Observe traffic and pedestrian operations.• Collect performance evaluation data.• Prevent overcrowding and vehicular/pedestrian conflicts.• Disseminate directions at mode transfer points.• Provide support at shuttle bus stations.VolunteersExperienced personneland volunteersExperienced personneland volunteersExperienced personnelVolunteers8-10

Volunteer RecruitmentPrior to initiating volunteer recruiting efforts,event planning team and/or trafficmanagement team stakeholders must determinethe number of volunteers needed. Thisrepresents a function of the number of potentialvolunteer work assignments andnumber of available volunteer supervisors.An alternative approach to recruiting aftertraffic management plan development involves:(1) soliciting the public, throughevent advertisements, for volunteers early inthe event operations planning phase and (2)developing a volunteer contact list for laterreference as conditions warrant. The listmay also indicate the type of work task(s)favored by each volunteer. Event organizersor traffic management team supervisorsshould obtain written confirmation fromstakeholders that personnel resourcespledged during the event operations planningphase will be available on the day-ofevent.A key consideration in supervising volunteers,or any personnel, involves maintaininggood span of control. Incident CommandSystem guidelines suggest keeping the spanof control between three and seven personsreporting to a supervisor with one supervisorper five subordinates as a rule of thumb. (1)A supervisor should represent an agency orcontractor involved in planning and managinga particular planned special event. Thesupervisor should also have full knowledgeof the duties and responsibilities of eachsubordinate, and supervisors may train theparticular volunteer group that they havebeen assigned to lead on the day-of-event.Volunteer recruiting and associated trainingactivities result in volunteers knowing theirrespective work assignment prior to the dayof-event.Because different special eventwork assignments peak varying levels ofinterest among volunteers, stakeholdersshould recruit additional volunteers for certainlow-interest assignments. For example,most volunteers do not like parking assignments;therefore, overkill in volunteers stationedat parking areas represents a goodtactic. (2) This avoids a potential shortfallrelative to volunteers not showing up forwork on the day-of-event.Various perks can improve and speed-up thevolunteer recruiting process. Stakeholdersshould consider providing volunteers with(1) free public transportation to and from theevent venue site and (2) free food and beverageswhile on shift. Table 8-5 summarizesother rewards for volunteer service.Table 8-5Example Rewards for Volunteer ServiceREWARD• Free admission to the special event• Tickets to a future venue event• Permission to keep work uniform• Recognition gift or dinner• Drawings for substantial prizesTraining ActivitiesTraining for volunteers and temporary staffensure these personnel: (1) understand thetraffic management plan component governingtheir assignment, (2) disseminate accurateinformation to event patrons and supervisors,and (3) understand traffic managementteam operations protocol. Traininginvolves the distribution of reference material,pre-event seminars, or both. Referencematerial should detail specific duties and listvolunteer report time, roll call location, shiftduration, and supervisor assignment. A dayof-eventchecklist would assist volunteers inidentifying and remembering items (e.g.,proper clothing, sunscreen, sunglasses, referenceguide, etc.) to bring for their shift.Volunteers also would benefit from carryingan event transportation and parking guide or8EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW8-11

fact sheet for quick reference when assistingevent patrons. Such reference guides containinformation on key traffic managementplan provisions, particularly those that contrastnormal transportation system operationsin the vicinity of the event venue.Table 8-6 lists general volunteer trainingactivities. Since most volunteers do not possessrelevant experience in managing transportationand parking operations, trainingactivities should address all of the potentialdecision-making scenarios that volunteersmay encounter in addition to day-of-eventcommunications.Table 8-6General Volunteer Training ActivitiesACTION• Discuss traffic management team chain ofcommand.• Summarize job training and required duties.• Schedule review.• Present examples of typical and contingencyscenarios 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 andevent passes.• Discuss strategies for accommodating personswith disabilities (e.g., review disabled accessibleroutes and site facilities).• Review security guidelines.• Review guidelines for interacting with themedia.• Indicate transportation information and alternativesfor volunteer access to event venuesite.verbal instruction, including sample conversations,on radio protocol that includes: (1)how to make and receive a call, (2) commonradio terminology, (3) making priority oremergency calls, and (4) conditions warrantinga priority call. Volunteers also shouldknow how to use all radio functions.REFERENCES1. Incident Command System, NationalTraining Curriculum – OrganizationalOverview, Module 3 I-200,National Wildfire CoordinatingGroup, October 1994.2. U.S. Olympic Festival 1989 AfterAction Report: Transportation,Planning, Coordination and Operations,BRW, Inc., Oklahoma City,Ok., October 1989, 35 pp.The traffic management team may supplysome volunteer staff with a handheld, twowayradio for volunteer-to-volunteer andvolunteer-to-supervisor communication.Compared to cell phone use, two-way radiosallow all pertinent personnel, includingthose at the command post, to hear one message.Volunteers should receive written and8-12

CHAPTER NINEDAY-OF-EVENT ACTIVITIES9OVERVIEWFigure 9-1Traffic Management Team Day-of-Event InteractionDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPURPOSEThe purpose of this chapter is to discuss theactual implementation and operation of thetraffic management plan during the day-ofevent.This constitutes the fourth phase ofmanaging travel for planned special events.The chapter covers several areas, includingsections on the traffic management team,communications, and traffic monitoring.This information allows the transportationmanagement center (TMC) staff and trafficmanagement team members to gain an understandingof how the Incident CommandSystem (ICS) can be used for managingtravel during planned special events andprovide guidance on setting up a communicationsframework for planned specialevents transportation management.INTRODUCTIONDuring the advance planning process, countlessmeetings were attended, numeroushours were spent developing and reworkingthe traffic management plan, and every contingencywas considered. Now, the day ishere and it is time to implement and operatethe plan.This chapter looks at what happens on theday(s) of the event. Not only do the requirementsof the traffic management planhave to be considered, but also it is essentialPOST-EVENT ACTIVITIESEVENT PROFILE9-1

to monitor what can be a very fluid situationto see how the plan is working and then determinewhat needs to be adjusted based onreal-time traffic conditions.Always expect the unexpected and be readyto handle that unplanned situation. Assessthe adequacy of the established communicationsstructure and determine if it is possibleto deploy what is needed in a timely manner.While there is no way to be certain until ithappens, this chapter provides tools that willhelp practitioners deal with and manage allthat might happen on the day-of-event.Table 9-1 lists the key day-of-event activities.Table 9-1Day-of-Event ActivitiesACTION• Implement a management process for the trafficmanagement team.• Designate a multi-agency command post.• Conduct a traffic management plan evaluation(s)during the day-of-event.• Establish protocol for traffic management teamofficials to consider and implement changes tothe traffic management plan to accommodatereal-time traffic conditions.• Establish interagency communication protocol.• Review communication equipment compatibility.• Use the media to communicate with event patronsand other transportation users.• Perform traffic monitoring on the day-of-event.TRAFFICMANAGEMENT TEAMStakeholder Roles andCoordinationThe traffic management team includes notonly many of those stakeholders that havebeen involved during the event operationsplanning phase, but all those who may beinvolved for the first time on the day of theevent. This includes other event supportstakeholders, other stakeholder representatives,and volunteer personnel. Table 9-2lists typical stakeholders involved in day-ofeventactivities.Table 9-2Traffic Management Team StakeholdersSTAKEHOLDER• Traffic operations agency• Transit agency• Law enforcement• Public safety• Event organizer• Transportation consultants• Traffic control contractors• Emergency management agencyA planned special event represents a sourceof non-recurring congestion where, similarto a traffic incident, stakeholders must adopta formal management process to ensure successfultraffic management plan deploymentand minimal impact to transportation systemusers. The Incident Command System canbe used to handle traffic management duringplanned special events. The ICS organizesand coordinates multi-agency response to anincident by establishing responsibilities andlines of authority. An Incident Commanderhas overall responsibility for managing theplanned special event. Depending upon thesize of the event a number of individualswill report to the Incident Commander. Akey to the ICS is that the reporting relationshipsbe kept to a manageable size. If thenumber of people reporting to a single individualgrows too large, another layer ofcommand should be added.Unified Command represents an ICS managementprocess that functions to coordinateinter-jurisdictional and multi-disciplinary9-2

stakeholders comprising the traffic managementteam without sacrificing agencyauthority, responsibility, or accountability.Figure 9-2 displays an example of a UnifiedCommand organization for managing travelfor planned special events. The UnifiedCommand hierarchy includes the IncidentCommander serving to coordinate and managethe activities performed by stakeholdersclassified under the following organizationalelements: branches, groups, and units. Abranch agency manages a specific operationalfunction. For example, a law enforcementagency is responsible for trafficcontrol and pedestrian accommodation.Group agencies manage and execute specificfunctional activities. Units execute specificfunctional activities. For instance, a privatetowing company is responsible for removingillegally parked or disabled vehicles.Per Unified Command protocol, if an unexpectedevent happens during the plannedspecial event, a transfer of command mayoccur. The decision to effect a transfer ofcommand depends on the qualifications andexperience of all on-site branch agency supervisorsrelative to that of the acting IncidentCommander. For example, if a severeweather event took place during a plannedspecial event, an emergency managementagency official may assume the role of IncidentCommander.An advantage of using the ICS during aplanned special event is that it clarifies howdecisions are made if the traffic managementplan requires adjustment. Unexpectedevents may necessitate adjusting the plan tomeet changing circumstances. In this instance,there may not be the luxury of meetingwith all stakeholders to develop a consensuson how to modify the plan. The IncidentCommander should have the authorityto make those adjustments that areneeded.Incident Commander9OVERVIEWDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGBranchesPublicSafetyLocalPoliceStatePoliceDepartment ofTransportationInformation OfficerTransitAgencyEventOrganizerEmergencyManagementAgencyPOST-EVENT ACTIVITIESGroupsUnitsPrivateTowingCompanyTransportationManagementCenterFreewayServicePatrolTrafficControlVendorTransportationConsultant(traffic/parking)VolunteerCrewEVENT PROFILEFigure 9-2Unified Command Organization for Planned Special Events9-3

Team ManagementTypically for a planned special event, a representativeof a law enforcement agency willtake on the role of Incident Commander.Representatives of various agencies will, inturn, report to the Incident Commander.Among those working under the IncidentCommander will be one or more transportationrepresentatives. A lead person shouldbe identified for each agency responsible forpart of the traffic management plan. Amongthose who may be a part of the transportationteam are representatives from the statedepartment of transportation, local trafficagencies, toll agencies and transit agencies.Depending upon what is worked out in theevent operations planning phase, all of theseindividuals may be represented by a singleIncident Commander (e.g., transportationcommander) or by individuals representingeach of their respective agencies.Command PostThe ICS will most likely be used in a multiagencycommand post. Figure 9-3 shows acommand post established at a freeway restarea for a major rural planned special eventin Wisconsin. This will probably be at ornear the venue where the planned specialevent takes place. Again, depending uponthe size of the event, secondary commandposts may exist. These secondary commandposts may take on specific areas of responsibility,such as law enforcement or trafficcontrol. Regardless of where the commandpost is located, or if it is located in multiplelocations, the same principles of incidentcommand will apply. An Incident Commanderwill still have overall responsibilityfor managing the event. What may differ, ifthere are secondary command posts, is howcommunications are handled to and from theIncident Commander.In some instances, a permanent TMC mayserve as the primary command post. Theadvantage of using the TMC is that many ofthe communications resources and otherneeded tools are already in place. If theTMC is used, the ICS should still be employedif multiple agencies comprise thetraffic management team. This operationwould likely differ from typical activities inthe TMC, given the presence of multipleoutside agency representatives. In the eventFigure 9-3Planned Special Event Command Post (Photo courtesy of the Wisconsin DOT.)9-4

operations planning phase, the ICS would beused to identify who is the Incident Commanderat the TMC and how activities arecoordinated within the TMC during theevent.Advantages of a single command post include:(1) key agencies are represented in asingle location and (2) communicationsamong agencies are simplified.An advantage of secondary command postsis that event management can be more easilyswitched if a problem develops at the primarycommand post.Resource PlanningThe plan developed for the resources neededfor the event represent the collected bestopinion on what is needed. Resource planninginvolves the following two parts: (1)determining the scope and amount of resourcesthat will be used on the day-of-eventand (2) identifying resources in advance incase the traffic management team needsmore resources than planned to implementthe traffic management plan.The most important resource that stakeholdersmust plan for involve personnel resources.Planning considerations include:• What type and quantity of skilled personnelare needed?• Where should personnel be deployed?• What responsibilities will individual personnelhave?Most day-of-event field personnel will workin areas different from their normal, day-todaywork location. Relief for personnel maybe more difficult to obtain because ofagency constraints, and relief assignmentshould be part of personnel planning. Fieldpersonnel may require frequent breaks indifficult weather conditions, and trafficmanagement team officials may have to substituteback-up staff if planned relief is notavailable.The operation of planned special events onthe day-of-event includes three phases: ingress,the event itself, and egress. Resourcesneed to be available for all three phases withemphasis on ingress and egress. The trafficmanagement team will likely need fewerpersonnel for traffic management during theevent, and part of the planning should includewhat level of staffing is needed duringthis period. Depending on the length of theevent, a second shift may report to handleegress. If a first (ingress) and second(egress) shift exists, traffic managementteam officials can stagger work times (e.g.,first shift individual reporting later and leavinglater or second shift individual reportingearly and leaving early) to maintain sufficientpersonnel on-site during the event.Another consideration concerns how quicklystaff and other resources can be deployedincase the event ends sooner than expected,thus causing early departures.Managing TrafficWhile the traffic management plan and supportingimplementation plan notes howstakeholders expect to manage traffic, theactual management of traffic on the day-ofeventmay differ from what the plan callsfor. Traffic incidents, changing weatherconditions, and other unexpected events canall cause the traffic management plan to bemodestly modified or completely changed.After safety, successfully managing trafficrepresents the reason why stakeholders developedthe traffic management plan in thefirst place and that goal must remain paramount.9EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW9-5

For this reason, it is important that involvedstakeholders understand that the traffic managementplan provides guidance but is notan ironclad law that must be followed regardlessof what takes place on the day-ofevent.As part of the traffic management plan, variousscenarios can be addressed from bestcase to worst case, together with likelyvariations. Having different scenarios andresponse plans specified in the traffic managementplan will help managers morequickly respond to changes. Again, notevery variation can be noted, but experiencedstaff can modify what the traffic managementplan calls for.When done well, managing traffic is doneon a proactive basis, anticipating what willhappen next and reacting before problemscascade. Like an orchestra conductor, thetraffic managers are calling on differentelements to play as the event proceeds. Atraffic queue in one area will require adjustmentsto signal timing on primary andalternate routes. Traffic incidents not onlyrequire response to the site of the incidentbut the activation of appropriate messageson roadside traveler information devices.As a general rule, drivers tend to be moreunderstanding about a congestion delay ifthey are informed of what is taking placeand are assured steps are being taken tomitigate the problem.To properly manage traffic, the managersneed timely and accurate information. Staffin the field must understand the importanceof the information they provide, and staff atthe command center must help the managersunderstand the information coming in, suchas pointing out what is most important. Toomuch information without some interpretationis almost as worthless as too little information.Other staff should be on hand to assist withother activities taking place in the commandcenter. This includes handling VIPs, disseminatinginformation to the media, andaddressing routine items such as equipmentproblems.Evaluation ActivitiesAlthough many hours have been spent creatingthe traffic management plan, the planshould remain flexible with the ability tomodify and enhance it with necessarychanges based on real-time traffic conditions.Updates can continue through thecourse of the planned special event, accountingfor new situations and unexpectedevents. Evaluation of the plan is an ongoingactivity during the event, and participantsshould contribute their insights as they witnessthe event unfolding. The traffic managementteam must be open to modificationsof what had been agreed to during the eventoperations planning and implementation activitiesphases.Table 9-3 indicates key traffic managementplan evaluation activities on the day-ofevent.There are several different ways to accomplishthis evaluation and revision process:• Some modifications will be minor in natureand will not require significant discussion.For example, moving a trafficpost may be a simple change that improvesthe flow of traffic. The IncidentCommander may have authority to makesuch a change.9-6

Table 9-3Traffic Management PlanEvaluation ActivitiesACTION• Establish briefing schedule and location (e.g.,command post).• Identify ranking representative of each stakeholderagency participating in briefings.• Conduct day-of-event briefing.o Situation statuso Objectives and prioritieso Current organizationo Personnel and equipment resource assignmentso Communicationso Concerns and related issueso Recommended changes• Achieve consensus on recommended changes.• A more significant change, such as theroute of buses to the venue site, involvesa greater number of agencies and individuals.These changes need to be discussedbefore being implemented tomake certain everyone affected is awareof the change so that any concerns withthe proposed change are addressed andovercome.• If the suggested change is urgent, aquick discussion among the agencies involvedmay suffice.• If it is not urgent, the modification canbe discussed during a regularly scheduledmeeting of the stakeholder representatives.How and if these meetings are scheduledcan vary depending upon the dynamics ofthe planned special event:• If the event is small in scale and only afew agencies are involved, there may beno need for scheduled meetings. Revisionscan be easily discussed among participantsat the command post.• On the other hand, large events involvingmany stakeholders would requiremeetings to discuss: (1) what has takenplace, (2) what lies ahead, and (3) whatchanges are recommended.If scheduled meetings are planned, the nextquestion is when to hold these meetings:• If the event stretches over several dayswith a clear end time each day, it is logicalto conduct a meeting at the end ofeach day’s activities. At this point, theparticipants will not be distracted bymanaging the event, and they will havethe benefit of their experience that day todecide what should be revised.• If the event is longer, perhaps even runningaround-the-clock, regular meetingscan be scheduled during expected lulls inactivity. These meetings may be specificallyscheduled in anticipation of keyactivities, such as the egress of event patrons.• For events where a shift change isneeded in the command center, a meetingof the crew, or crew supervisor, goingoff-duty may be helpful so they canrecommend changes to those relievingthem.Many of the same procedures used duringthe creation of the plan can be used to makerevisions during the event. Those involveddiscuss the changes, call for input fromthose directly affected, and agree on whatwill be done. It is important that anychanges be communicated to all involved.Major problems can develop if one group isoperating under old assumptions. In manycases, having a computer and printer availablewill make updates easier to share. Ifthe plan is in a notebook or manual form, therevised section can just take the place of theold section. Participants should note on therevised plan that it represents an update andwhen that revision was made. This makes it9EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW9-7

easier to track changes and make certaineveryone is operating with the same information.COMMUNICATIONStructure and ProtocolIn most areas of the country, interoperablecommunications, in which all agencies areable to communicate on a common radiofrequency, is not yet a reality. That beingthe case, it is necessary for a communicationstructure and protocol to be established. Asshown in Table 9-4, the structure should includethe noted primary considerations.Table 9-4Communications StructurePrimary ConsiderationsCONSIDERATION• What radio channels or frequencies will beused.• Who will use these channels.• Will a common lexicon be used for communications.Whatever frequency is used, it is importantthat all those who must use it be able to accessthe channel and that coverage includeall areas where operations will take place.In some cases, operating on a common frequencymay require the distribution of radiosto some of the stakeholders. In someinstances, agencies have used cellularphones with a push-to-talk feature to providea common channel during an event. Someagencies may already have these handsetsand use them for day-to-day operations.One or more special talk channels can beestablished for use during the planned specialevent to allow only traffic managementteam members to be on the air. Table 9-5lists the advantages of using this type of system.Table 9-5Advantages of Operating on aCommon FrequencyADVANTAGE• Most of the infrastructure is provided by aprivate company.• Coverage can be achieved over a wider areathan some individual agencies enjoy.• Agencies’ normal channels are freed forregular operations.• Other frequencies are not jammed with transmissionsrelated to the planned special event.Another important part of the protocol involvesusing common language on a multiagencyfrequency. Many agencies use verbalshorthand in the form of codes whentransmitting. These codes work well whenused by those who know them, but whenother stakeholders are involved, the codescan be a source of confusion and miscommunication.An increasing number of agenciesare now using clear language protocolson their radio frequencies, and these standardsshould be followed if multiple agencieshave to communicate with one another.Clear language simply says that commonlyunderstood words and phrases are used insteadof codes. For instance, instead of callingan accident a Signal 11, the crash shouldbe called an accident on the radio.Interagency CommunicationSince multiple stakeholders are involved, itis critical that they be able to communicatewith one another on the day-of-event:• The most basic, and least desirable, formof interagency communication involvesmessages being relayed indirectly fromone agency to another. An examplecould include a police officer in the fieldwishing to coordinate a road closurewith the DOT. The officer radios the in-9-8

formation to a dispatcher who, in turn,calls the dispatcher at the DOT. TheDOT dispatcher then radios the crew inthe field. Coordination might take severalmessages being sent back and forththrough this chain. This form of communicationdelays the sharing of informationand is subject to miscommunication.• As noted in the previous section, operatingon a common channel with clearlanguage greatly improves interagencycommunication. Depending upon thesize of the planned special event, morethan one channel may be used. For example,one channel could be deemed asthe primary channel, which is used by allparticipants for the sharing of critical information.Another channel may bededicated to transportation concerns.To minimize confusion and extraneous informationbeing shared among agencies, thequestion of who will use which frequenciesshould be decided during the planning process.Stakeholders should understand: (1)how they can reach other traffic managementteam members during the event, (2)which channels they will be found on, and(3) what information should be shared.Since many of the stakeholders comprisingthe traffic management team may not be accustomedto interagency coordination, theyshould understand the importance of sharinginformation with their interagency partners.Information not shared with others who areaffected could lead to difficulties managingtraffic and cause mistrust among participatingstakeholders.EquipmentThe participating agencies may normallyoperate on a wide variety of systems. VHF,UHF, and 800 MHz trunked systems areamong those in common use, and agenciescannot normally communicate from one systemto another. Before the right equipmentcan be identified, it is important for thestakeholders to understand what they wantthe communications system to do. Is it simplya means to share information, or doesreal-time coordination have to take place?Who has to operate on the channel? Wherewill they be located? Once these questionsare answered, it becomes possible to identifythe appropriate equipment to use for theevent.Table 9-6 lists several levels of communicationthat must also be studied. First, there iscommunication within the venue. In thisrelatively small area, a radio system thatprovides coverage just in the area of thevenue may be sufficient. Hand-held unitsmay be given to personnel who have to coordinateat the site. Communications maytake place between individuals or betweenfield staff and the command post.Table 9-6Levels of CommunicationCOMMUNICATION LEVEL• Within the venue• Between individual stakeholders• Between field staff and command post• Between command post and TMCsAnother level of communication would bebetween the command post and the TMCs.Here it may be more difficult to identify thebest equipment to use. The TMCs may begeographically distant from each other andthe command post. Because the centers areinside buildings, and often on lower floors,radios without an external antenna may notbe able to reach all the participating stakeholders.In order to depend upon thesecommunication channels, it is important thatthey be tested before the event. If no radio9EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW9-9

communication is practical, a hardwire connectionmay be needed. In some TMCs andcommand centers, phone jacks are installedto allow dedicated phones to be deployed forevents.A trunked radio system provides what isneeded for interagency communication duringa planned special event. Other agencies,which also operate on a trunked system, maybe able to modify their units to operate on acommon frequency. A trunked system alsoallows a dedicated channel to be set asidefor the event. Those agencies without theproper equipment can be loaned radios,which allow them to operate on the commonchannel.Interacting with the MediaThe media is an important part of theplanned special event. If the event involvesa lot of people, it also is a news story and themedia will want to cover it like any otherstory. The media can also be an importantpart of traffic management plan implementation.Table 9-7 indicates how the media canbe used to communicate with event patronsand other transportation system users.Table 9-7Use of MediaBEFORE EVENT• Identify preferred routes.• Identify approved parking areas.• Identify transit alternatives.• Identify locations where event patrons canobtain travel information on the day-of-event.DURING EVENT• Warn people ahead of time about the routesthey should take.• Advise of available options.• Alert drivers about problems, delays, andblockages.• Suggest actions travelers should take.Communication with the media should startbefore the event. If there is pre-event advicethat stakeholders wish to disseminate, thenthe media can be a conduit to the public.During the event, the media can be used toprovide real-time updates about transportationsystem delays and blockages. Again,advice on how to avoid the delays can beprovided.Most agencies already have some forms ofcommunication in place with the media.However, these may not be the best way tocommunicate during the planned specialevent. For example, many agencies workwith traffic reporting services during periodsof recurring congestion. The planned specialevent may be taking place on a weekendor holiday when the traffic reporting serviceis not in service. Alternate means to getreal-time information to broadcasters maybe needed.The media may also find that the usualmeans they use to get traffic information areunavailable during the planned specialevent. Due to security concerns, airspacenear the site may be off limits. This makesthe media more dependent upon the agenciesto provide them with updates.Unless a proactive decision is made otherwise,most agencies would not want the mediato call the command post for updates.Calls to and from the TMC may be the bestway to get information to the media. Whereverthe media are directed to call, it is importantthat the person handling those callshas the most up-to-date, accurate informationavailable. For the media to trust thissource, they must believe that this is the bestplace to get information. Since most mediawant to verify information on their own,agencies should be prepared for the media to9-10

seek out other sources. The media may alsoacquire information via cell phones fromevent patrons driving to the planned specialevent, and the media will want to verify theinformation the public provides with thetransportation agencies. If trust is lost betweenthe media and the agencies, the agenciesmay lose control of the flow of information.Traveler InformationDisseminationTraveler information will have two importantaudiences during the event: (1) thosewho plan to attend and (2) those who wantto avoid the delays the event may cause. Inboth cases, traveler information tools can beused to effectively disseminate information.Table 9-8 presents various pre-trip and enroutetraveler information disseminationmethods.Table 9-8Traveler InformationDissemination MethodsMETHOD• Newspapers and printed material• Radio and television• Internet (e.g., websites and e-mail)• Changeable message signs• Highway advisory radio• Telephone information systems (e.g., 511)The dissemination of traveler informationbegins before the event with warnings ofwhat may occur, preferred routes to the siteand around it, and where drivers can get updateson the day-of-event. Different toolslend themselves to particular uses. Newspapersand other printed material, for example,lend themselves to graphic information suchas maps. The Internet represents a powerfulmedium for disseminating pre-trip travelinformation to event patrons and othertransportation system users. Figure 9-4shows a Seattle Department of Transportationweb page detailing specific plannedspecial event traffic impacts and multimodaltravel options.Figure 9-4Internet Traveler Information (Graphiccourtesy of the Seattle DOT.)Changeable message signs function best toraise awareness of a potential problem whileroad users are en-route, and highway advisoryradio is somewhere in the middle, beingable to provide more detail than signs, butless than printed material. The planned specialevent is likely to require the deploymentof portable changeable message signs becausea greater concentration of informationis needed and because the event may be takingplace in a location where permanent devicesare not in place. Portable highway advisoryradio stations may also be consideredto reach motorists.In planning for the event, stakeholders mustconsider: (1) which devices will be used, (2)approved messages that can be displayed,9EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW9-11

and (3) how to disseminate the informationto event patrons and other transportationsystem users.The growth of 511 services represents anotherimportant avenue to disseminate information.As 511 becomes more wellknown and more widespread, travelers aremore likely to think about dialing 511 beforethey go or while they are en-route to get thelatest information. Even where 511 is notyet in use, other recorded telephone servicescan be used.No one system will reach all of the peoplethat stakeholders wish to alert. In fact, evenif all systems are used, operators will notreach every transportation system user. But,by using a variety of tools, the traffic managementteam will be able to reach a criticalmass of people so that delays will be minimizedand the customer requirements of allusers satisfied.On the day-of-event, it must be clear whowill update traveler information devices andhow timely and accurate information willget to the officials responsible for providingthe updates. These individuals must be partof the communication chain. Again, assigninga dedicated person to handle the updateswould be ideal. Conflicting priorities couldresult in out-of-date information being disseminatedif one person is asked to handletoo many tasks.TRAFFIC MONITORINGTraffic monitoring represents an importantday-of-event activity, serving to providetraffic and incident management support inaddition to performance evaluation data.Timely deployment of contingency plansdeveloped during the event operations planningphase depends on the accurate collectionand communication of real-time trafficdata between traffic management teammembers. This section describes how trafficmonitoring activities support real-time trafficmanagement and control decisions duringthe day-of-event.PurposeAgencies responsible for managing plannedspecial events require numerous types ofinformation on the current conditions of thesystem to support delivery of effective servicefor the planned special event. This requiredinformation varies widely dependingon: (1) the service being provided, (2) howoften it needs to be collected, and (3) howaccurate it needs to be (e.g., for traffic controland traveler information purposes, simplyknowing whether pavement is wet/icy ornot may suffice; for purposes of managingsnow and ice control activities, more detailedinformation is required).Information is crucial for successful operationsof the transportation network. Asnoted in an FHWA TEA-21 reauthorizationproposal: “Operating the highway system toachieve security, safety, and reliability objectivesrequires an ability to know what ishappening on the system. Real-time informationon highway system performance andweather conditions / events is vital to assisthighway professionals in managing theavailable capacity, responding to disruptionsto capacity (including emergencies, evacuations,and security threats), and to systemusers in planning the timing, mode, androute for their trips.” In essence, the manybenefits of the various planned special eventmanagement strategies cannot be fully realizedunless practitioners are aware of thereal time conditions on the highway network.9-12

Traffic Management SupportIn a traffic management system, the trafficmonitoring component, or surveillancecomponent, is the process in which data iscollected in the field. This data is used tosupply information about conditions in thefield to other system components includingpersonnel located in the field on the day-ofevent.Surveillance provides the informationneeded to perform the functions identifiedin Table 9-9.Table 9-9Use of Surveillance InformationFUNCTION• Measure traffic and environmental conditionsin real-time.• Make control decisions.• Disseminate traveler information.• Monitor and evaluate system and plan performance.Surveillance is not limited to collecting andmonitoring traffic condition informationalone, nor in some instances are they automatedin nature. Surveillance is applied toweather and pavement conditions to provideoperators and maintenance staff more informationto support their traffic and transitmanagement responsibilities. These systemsalso are being used to manage snow removal,icy roadway treatment, to detect limitedsight distance problems caused by fogor smoke, and to detect high water levelsalong roadways. While much traffic surveillance(detection) is accomplished via automatedmeans, manual detection, most notablyvia in-field personnel on cell phones ortwo-way radios and cell-phone calls frommotorists, is a viable and reliable strategyfor planned special event management. Inmany instances of planned special eventmanagement, the surveillance must be microscopicrather than macroscopic, i.e., aparticular point or location must be monitoredrather than an area or region, and thisstrategy of manual detection is the mostcost-effective and efficient.Various technologies that exist for collectingthis information are described in Table 9-10.Table 9-10Data Collection MethodsMETHOD• In-roadway and over-roadway sensors formeasuring traffic flow parameters• Vehicle probes for collecting data on traveltimes and origin-destination information• Closed circuit television (CCTV) systems forviewing real time video images of the roadway• Road weather information systems (RWIS)for gathering information on pavement andweather conditions• Traffic signal and system detectors to measurecongestion on streets• Parking management systems to monitoravailable capacity in parking garages or lots• Manual methodsDetection and surveillance, whether highlytechnical and automated or simple and manual,is the cornerstone of traffic monitoring.Traffic management strategies and IntelligentTransportation Systems (ITS) technologiescan assist in reducing congestion,improving safety, and enhancing mobility.However, without the capability to know thecurrent operating conditions, coupled withthe cooperation and coordination amongpersonnel in the responsible agencies, thepotential benefits of these strategies andtechnology systems may not be realized. Tothat end, it is not a simple matter to quantifybenefits from detection and surveillancealone, but instead to understand the benefitsrealized from traffic management strategiesand ITS technologies that rely on detectionand surveillance. Some benefits of particularimportance are noted in Table 9-11.9EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW9-13

Table 9-11Benefits of Detection and SurveillanceBENEFIT• Reduction in delay and congestion related toearly detection and verification of incidents.• Reduction in secondary accidents as a resultof early incident detection.• Reduction in capital (e.g., salt) and recurring(e.g., plow crews) costs associated with snowand ice removal with the use of RemoteWeather Information Sensor technology.• Improved traveler information.The information collected through the monitoringeffort is valuable for post-event activities.After the event, the informationgathered and/or observed can be used as partof the program or event evaluation. Thedata collected provides: (1) input into estimatingthe benefits of the traffic managementplan and operation and (2) input intoplanning for future planned special events.An example of some statistics or measuresthat can be obtained from traffic monitoringon the day-of-event, and can commonly beused to evaluate the effectiveness of theevent traffic management plan and operationincludes:• Reduction in delay• Change in mode• Increase in transit ridership• Reduction of travel time• Increase in travel speed• Reduction in loaded cycle lengths at signalizedintersectionsIn summary, most of the benefits realizedduring planned special events results insome way from the real-time informationprovided by traffic monitoring.Performance Evaluation DataPerformance measures provide the basis foridentifying the location and severity of problems(such as congestion and delay), and forevaluating the effectiveness of the implementedplanned special event managementstrategies. Table 9-12 indicates uses of thismonitoring information. In essence, performancemeasures are used to measure howthe transportation system, and therefore thetraffic management plan, performs with respectto the adopted goals and objectives,both for ongoing management and operationsof the special event and the evaluationof future options.Table 9-12Traffic Monitoring Information UsesUSE• Track changes in system performance duringthe event.• Identify locations or corridors with poor performance.• Identify potential causes and associated remedies(i.e., contingency plans).• Identify specific areas that require improvement/enhancementsfor future events.• Provide information to decision-makers andthe public.• Provide input to post-event evaluation.Most measures for planned special eventmanagement are congestion-based and aremeasures that can be quickly and efficientlyassessed. Table 9-13 indicates key performanceevaluation measures. Certainly othernon-transportation measures are important tosuccessful planned special event management;however, these are neither accuratenor timely enough to allow for day-of-eventmanagement.9-14

Table 9-13Performance Evaluation MeasuresMEASURE• Parking occupancy and turnover rate• Arrival and departure service rate at parkingarea access points• Time to clear parking lots• Vehicle delay at intersections• Queue length• Travel time and delay on freeways andstreets• Traffic volume to capacity ratio• Traffic speed• Number and location of crashes and otherincidents• Traffic incident clearance timeTable 9-14 lists some of the reasons thatagencies have instituted performance measuresand the associated monitoring andevaluation processes.Table 9-14Reasons for Traffic Monitoring andEvaluationREASON• Provide better information about the transportationsystem to the public and decision makers(in part due, no doubt, to a greater expectationfor accountability of all governmentagencies).• Improve management access to relevant performancedata.• Improve agency efficiency and effectiveness,particularly where demands on the transportationagency have increased while available resourceshave become more limited.In managing travel for planned specialevents, a direct relationship exists betweenthe performance measures selected and thedata needed in the performance measurementprocess. The data and informationused in decision-making must be of highquality because the remedies have to be performedimmediately. They must originatefrom reliable, consistent sources and meetthe needs of the decision makers. Moreover,the decision makers must have confidence inthe information, or it will not be used.The most common data problems are acquiringthe required information in the exactform desired, and in ascertaining the qualityof the data. The ‘‘garbage in, garbage out’’concept applies to the data used in a performancemeasurement system. If the datagathered are highly uncertain, then the conclusionsdrawn by converting those data intoperformance measures also will be highlyuncertain and will have reduced value to interestedstakeholders. For this reason, greatcare needs to be taken in data collection. Inreality, however, some things either cannotbe measured accurately or cannot be measuredaccurately at an acceptable cost and inan acceptable timeframe. Transportationagencies need to consider the uncertaintyintroduced by inaccurate data when takingaction based on their system of performancemeasures, especially in planned specialevent management, where the modificationshave immediate, and possibly disastrous,results.9EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW9-15

THIS PAGE LEFT BLANK9-16

CHAPTER TENPOST-EVENT ACTIVITIES10OVERVIEWFigure 10-1Field Observation of Traffic Management Plan ImplementationDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPURPOSEThis chapter covers the fifth and final phase,post-event activities, of managing travel forplanned special events. It identifies pertinentactivities that should be included in theevaluation of local and regional traffic operationsfor planned special events. Thischapter presents an evaluation frameworkthat describes advance planning considerationsand the importance of evaluation inmanaging travel for planned special events,particularly the integration of data and findingsinto future planning activities for allplanned special events in a region. Thischapter also examines the three primaryproducts of the post-event activities phase:participant evaluation, post-event debriefing,and post-event report.INTRODUCTIONThe last event patron has left the venue site,the command post is closed, and traffic hasonce again returned to normal. The trafficmanagement team is finally finished withthis planned special event…well, not really.Now comes the final phase of managingtravel for planned special events, where participatingstakeholders and volunteers canlook back on what took place and evaluatewhat happened. While post-event evaluationmay mark the final stakeholder activityfor this special event, it should be consid-POST-EVENT ACTIVITIESEVENT PROFILE10-1

ered as the first step in planning for the nextplanned special event. The program planningphase utilizes lessons learned andevaluation results from one planned specialevent to develop products, such as policiesand regulations and permanent infrastructuredeployment, for improving travel managementfor all planned special events occurringin a region.No matter how thorough the traffic managementplan, chances are excellent not everythinghappened as expected. Maybe it wasan oversight or an unexpected glitch. Perhapssome elements worked better than expected,and it turns out that all the resourcesallocated were not needed. Whatever thecase, the evaluation phase is where the planshould be compared with what actually happenedand appropriate decisions be made asto what to do differently the next time. Evenif the same planned special event was handleddozens of times previously, there areadjustments that can be made based on themost recent experience.counter on an exit lane serving a parkingarea at a fair. Figure 10-3 shows a trafficmanagement team member maintaining alog of freeway service patrol motorist assistsduring the day-of-event. Data collectionactivities also include surveying of eventpatrons and the public to get their perspectiveon how well elements of the trafficmanagement plan worked.Figure 10-2Electronic Vehicle Counter Installation (1)EVALUATIONFRAMEWORKOverviewThe first steps in the evaluation of the trafficmanagement plan implemented for theplanned special event take place during theevent operations planning phase. Knowingahead of time that a post-event evaluationwill occur allows participants to make provisionsfor the review. In particular, thismeans collecting data during the event,which can be used as part of the review process.At a minimum, this would includedata indicating how the system performedand a log of what took place during theevent. For example, Figure 10-2 showstechnicians installing an electronic vehicleFigure 10-3Maintenance of Freeway Service PatrolAssist LogTable 10-1 summarizes key post-event activities.10-2

Table 10-1Key Post-Event ActivitiesACTION• Review measures of effectiveness identified inevent operations planning phase.• Compile agency measures of effectiveness.• Compile performance evaluation data.• Conduct stakeholder participant debriefing.• Conduct event patron survey.• Conduct public survey.• Conduct a post-event debriefing meeting.• Prepare a post-event report.Measures of EffectivenessMeasures of effectiveness (MOEs) representquantitative measures that give some insightinto how effectively a unit is performing.MOEs are measures of activity that, whilenot reflecting performance directly, showworkload and trends. To evaluate how wellthe traffic management plan worked, someform of measurement is necessary. In additionto telling stakeholders how effectivetheir plan was, the measurements providetransportation professionals the means todemonstrate to others, including the mediaand elected officials, how well the plan mayhave worked.There are two areas of effectiveness thatshould be measured, internal and external:• Internal measures are actions taken bythe traffic management team that maynot be apparent to the public. For example,while the public would note a trafficincident being cleared, they would notbe aware of the total number of trafficincidents handled.• Examples of internal data, which can bemeasured, are indicated in Table 10-2.• Internal measures are beneficial tostakeholders in helping them evaluatetraffic management team activity.Table 10-2Internal Measures of EffectivenessMEASURE• Number of messages displayed on changeablemessage signs• Number of messages broadcast on highwayadvisory radio• Number of traffic incidents handled• Number of messages transmitted betweenstakeholders• Number of traffic signal timing changes• Number of times a ramp(s) was closed andtime/duration of closure(s)• External measures are readily identifiableby the public during a planned specialevent. The volume of traffic onprimary and alternate routes representtwo examples.• External measures are clearly experiencedby most spectators attending aspecial event and are factors most likelyto be noted by the public.• External measures are likely to beviewed as more important by those outsidethe traffic management team, suchas transportation system users and communityinterest stakeholders.• Table 10-3 presents a list of externalmeasures.Table 10-3External Measures of EffectivenessMEASURE• Volume of traffic on major routes• Volume of traffic on alternate routes• Volume of traffic entering and exiting the siteand parking areas• Hours of delay• Number of event patrons and participants utilizingtransit to and from the event• Travel times• Modal split• Average vehicle occupancy10EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW10-3

• Stakeholders may measure hours of delayby predefining what is consideredcongestion and noting how long the congestionlasts.• While external measures provide hardstatistics to demonstrate the plan’s effectiveness,softer measures may also bebeneficial. A survey of attendees mayshow how effective they perceived thetraffic management plan. Their level ofsatisfaction with ease of access, qualityof traveler information, and other activitiescan provide insights into how theusers of the system view the effectivenessof the plan that was implemented.Before deciding what to measure, it is importantto decide how to evaluate the trafficmanagement plan and the performance ofthe traffic management team. This decisionmay be driven, in part, by difficulties experiencedduring previous planned specialevents, political considerations, or a need todemonstrate the value of particular toolsused during the event.Integration with Program PlanningProcessThe evaluation must be more than an afterthoughtto gain the maximum benefit fromit. As part of the program planning process,the evaluation should be considered from theinitiation of the process through its conclusion.If the evaluation is being done for thefirst time, those who are putting the plan togetherhave to look at the goals and then designthe evaluation to measure whether thegoals have been met.If previous evaluations have been done,even if they were done for another event, theresults of those evaluations should be examinedbefore the traffic management plan isdesigned. In the case of an unrelated event,there may be some lessons learned thatcould be applied to this new event. If this isa recurring event, previous evaluationswould have more specific insights that canbe applied.Since evaluation will be taking placethroughout the planning process and duringthe event itself, it is important that theevaluation steps, goals and objectives be establishedduring the program planning phaseor early in the event operations planningphase for a specific planned special event.Finally, as the event concludes, it is also importantthat a mechanism be created to takewhat is learned in the evaluation of a specificplanned special event and put it in aform that allows the evaluation results to beapplied to future events.Application to Future EventsWhether the event is a one-time only happeningor an annual occurrence, what hasbeen learned through the evaluation can contributetoward proactively improving travelmanagement for all planned special eventsoccurring in a region.To be beneficial for future planned specialevents, the results of the evaluation shouldbe documented and made accessible. In thecase of a one-time only event, the evaluationmay show both general and specific insights,which can be used for other future plannedspecial events. These could include areassuch as traveler information, interagencycommunications, and the planning processitself.For recurring events, a file providing thecumulative benefit of lessons learned willhelp sharpen the traffic management plandeveloped for each new occurrence. It isalso important to remember that with recur-10-4

ing events, slight changes in circumstanceswill require modifications to the plan.PARTICIPANTEVALUATIONStakeholder DebriefingAt the conclusion of the planned specialevent, a debriefing session should be held.The stakeholder debriefing is an opportunityto bring together those involved and impactedby the planned special event. In it,these individuals, and the groups they represent,can compare what the plan called forand what actually took place. They can alsoexamine areas the plan may not have addressedbut turned out to be issues in hindsight.All of those who were involved increating the traffic management plan, aswell as key people who played a role duringthe event itself, should be present for thissession. This includes stakeholders formingthe event planning team and traffic managementteam. Table 10-4 lists elements ofa stakeholder debriefing.Table 10-4Elements of a Stakeholder DebriefingELEMENT• Introductions of individuals and the roles theyplayed (if not obvious)• Explanation that the debriefing is not designedto find blame for anything which may havegone wrong, but to identify areas of improvementfor future planned special events• Distribution of a chronology of the specialevent, preferably one which melds individualagencies’ own chronologies• Review of the timeline of events• Discussion of other areas of concern• Next steps to incorporate lessons learnedStakeholders include anyone who had a roleor was affected by the planned special event.This certainly includes the transportationand public safety professionals who developedthe plan and were involved in its execution.However, other stakeholders alsohave a strong interest, even if they had nopart in creating the plan. For example, businessesthat may have been affected by thespecial event, due to closed roadways limitingaccess, are stakeholders with a strongfinancial stake in the event.The debriefing process should involve thosedirectly involved in traffic and parking managementduring the event. This includestraffic management team members stationedat the command post, at the transportationmanagement centers (TMC), and in thefield. While they may not be present at thedebriefing session, the viewpoints of otherstakeholders should also be considered duringthe debriefing process. Figure 10-4highlights Indiana State Police debriefingprotocol for officers in-charge (OIC) of trafficcontrol during the Brickyard 400 autorace.The debriefing should not be viewed as a“finger-pointing” or “blame” session. If it isperceived that way, stakeholders will tendnot to be frank about any of their own shortcomingsand will more likely focus on defendingthemselves. To ensure involvementof all relevant stakeholders and to encouragetheir candid comments, it should be madeclear that the debriefing session is not a timeto blame anyone for something which mayhave gone wrong during the event.A log or chronology of what took place duringthe event should be used to guide thediscussion. Ideally, this log will incorporatethe activities of all stakeholders so theevents can be seen in the light of other actionsthat took place on the day-of-event.This log may be kept by a representative atthe command post or at the TMC. If a masterlog is not kept, individual agencies canshare their own chronologies before the10EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW10-5

Figure 10-4Indiana State Police Debriefing Protocol for Brickyard 400 (2)meeting and these can then be merged into asingle document. During the event, end-ofdayreview meeting notes should be examinedto focus on actual situations and modificationsthat were incorporated into theplan.The evaluation will compare the plan withwhat actually took place. Actions, whetherconsidered good or bad, that deviated fromthe plan should be noted. It is not enough tosimply note what was different than expected,but why it differed from the plan.Stakeholders should also be candid aboutwhat they would do differently based ontheir experience during the event.If the planned special event is a recurringone, lessons learned should be documentedso that when a traffic management plan isdeveloped for the next event occurrence, theplan addresses past lessons learned. Even ifthe event represents a one-time activity, thelessons learned should still be documented.Many of the lessons may have applicationfor the next planned special event and can beused in developing traffic management plansfor similar planned special events or futureevents occurring at the same venue.Patron SurveyAlthough the goal is to keep traffic movingon all of the transportation facilities, the patronsare the ultimate customers of everyoneinvolved in the traffic management of theplanned special event. It is largely for theirbenefit the traffic management plan was createdin the first place, and they are the oneslikely to suffer the greatest consequences ifthe plan does not work. Therefore, theviewpoint of event patrons is needed if acredible evaluation of the plan is to be done.It is impossible to question everyone whoattended the event, but a survey of attendeeswill give insight into the patrons’ opinions.Unless measuring statistics for use in futureevent travel forecasting, it is not necessarythat a scientific survey be done either. Whatis important is that a cross-section of patronsbe surveyed in order to identify commonthreads. For example, if a significant numberof patrons say traveler information was10-6

inaccurate, it will become clear that aspectof the plan needs to be reexamined.As shown in Table 10-5, the patron surveycan take several forms. Appendix D containsan Internet-based event patron evaluationsurvey for those attending the 2003 FairSaint Louis festival. The patron surveyprobably will not be able to identify problemsin great detail, but combined with recordkeeping by the participating stakeholders,the survey should be able to focuson where problems occurred.Table 10-5Types of Event Patron SurveysTYPE• Comment cards event patrons can fill-out• Surveyors who question attendees• Solicited and unsolicited e-mailed commentsThe survey should be brief in order to encouragea response. Yes or no type questionsare easily answered. Sample questionsfor possible inclusion in a patron survey include:• Were you aware of any special travelinformation before the event?• Did you find information provided enrouteto the event (e.g., via signs, radio)helpful?• Did you experience any unexpectedproblems approaching the venue?• Do you have any suggestions or othercomments you wish to offer?Public SurveyThe public survey takes in a wider audiencethan the patrons. This includes those whomay have been impacted by the plannedspecial event even though they did not attendthe event. Since this is a larger andmore diverse group of stakeholders, it maybe more difficult to identify and surveythem.Methods for reaching the public include surveysin rest areas along alternate routes andapproach routes to the event, solicitationsvia websites, and comments provided byphone and mail. Surveys may be mailed tohomeowners and businesses in the area affectedby the special event to solicit theiropinions. Sample questions for possible inclusionin public survey include:• Were you aware of the event before ittook place?• If you were aware of the event beforehand,would you have altered your plansbased on that information?• Did you change your plans or scheduleas a result of the event?• How would you evaluate the effectivenessof traffic management efforts forthis event (poor, good, excellent)?• Do you have any additional comments orsuggestions based on your experience?An effort must be made to collate all commentsfrom widespread locations to be certainall input is considered. Specific outreachmay be made to members of the publicwho were directly impacted by the event.Businesses, residents, and transit riders are afew of those who may have experienced impactscaused by the planned special event.Since these individuals can be found at easilyidentifiable locations, or perhaps activelyparticipated in the review and comment ofthe traffic management plan during the eventoperations phase, it is easier to survey thesestakeholders.POST-EVENTDEBRIEFING10EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW10-7

A post-event debriefing should be held toreview what took place. The purpose of thedebriefing is to: (1) examine what tookplace, (2) compare it to what was expectedto happen, (3) identify what worked well,and (4) determine areas of improvement forfuture planned special events.Meeting OrganizationIdeally, the post-event debriefing should beplanned during the event operations planningphase and before the event takes place.If that does not happen, the debriefingshould still be held, but it may be more difficultto get full participation by all involvedstakeholders.The meeting should be scheduled at least afew days after the event, giving traffic managementteam members some time to absorbwhat took place during the event and an opportunityto put it into perspective. However,the meeting should not be delayed toolong after the event so memories of whattook place remain fresh.The place and timing of the meeting shouldbe such that maximum attendance is realized.Considerations should include: (1) therotating schedules of those who may attend,(2) ease of access to the meeting location,and (3) potential conflicts with other events.If there were significant interagency conflictsduring the planning of the event, orduring the event itself, a neutral location andmoderator may improve dialogue during themeeting.If these types of conflicts were not a problem,consideration should be given to havingone of the traffic management team supervisorsor incident commander lead the meeting.Whatever the case, the moderatorshould be skilled in involving all the participantsand in digging into responses to get tothe root of any stated problems.If the traffic management plan included atransportation management center, theremay also be some advantages to holding themeeting at the TMC. Figure 10-5 shows ameeting room located inside a TMC. Asindicted in the figure, there may be additionalresources in the TMC which can beused, and having it available visually canhelp participants better understand whattook place during the planned special event.Meeting AgendaFigure 10-5TMC Meeting RoomIt is important to remember that the posteventdebriefing is not designed to be a timeto blame individuals or agencies for whattook place during the event. This should bereflected in the agenda developed for themeeting. It should clearly state the intendedpurpose of the meeting. This will help keepmeeting attendees focused and provideadded assurance that the meeting is designedto identify successes and lessons learned.Stakeholders can agree on a general outlinefor the debriefing even before the event.This helps assure the debriefing covers top-10-8

ics of interest to all participants and not designedto be biased against any stakeholder.Further details of the agenda can be filled inafter the event and when problems requiringcloser examination can be identified. Again,it would be beneficial if all participants hadinput into revising the agenda to make certainall concerns are addressed.Table 10-6 lists the broad topic areas thatshould be covered in the post-event debriefing.Table 10-6Post-Event Debriefing MeetingAgenda TopicsTOPIC AREA• Purpose of meeting• The planning process• Interagency communications• Traffic management in and around the venue• Traffic management outside of the event site• Traveler information, including media• Lessons learnedIdentification of Key Successes andLessons LearnedThe purpose of the post-event debriefing isnot to just identify what could have beendone better but to note what was successful.As has been the case from the start of theevent operations planning process throughthe event itself, multiple viewpoints arehelpful as stakeholders identify key successesand lessons learned. Depending uponperspective, one element of the plan may beviewed as a success by one party and seen asan area needing improvement by another.Identifying these areas can be accomplishedas each stakeholder individually reviews itsactions leading up to and going through theevent and as the stakeholders, as a group,review what took place.It is helpful if participants are asked to identify,before the post-event debriefing, whatthey see as key successes and lessonslearned. It may also prove beneficial ifthese notes are shared among the participantsbefore the meeting to help facilitatediscussion.While identifying these points are very useful,it has little value unless there is someway to identify how to apply what is learnedto the next planned special event. No oneindividual should be expected to serve aseither the group’s or their agency’s corporatememory. The successes and lessonslearned must be chronicled so that thosestakeholders who are responsible for planningthe next planned special event will beable to tap the wisdom of those who havedone this before.As an example, the following represents anexcerpt, regarding traffic management andoperations during Daytona Beach, FL RaceWeek (e.g., Daytona 500) and Bike Week,from the minutes of a regular, bi-monthlyVolusia County (FL) Freeway IncidentManagement Team meeting: (3)• Race Week was February 14 th to February17 th . Traffic was very heavy eachday of the races. Friday the 15 th hadproblems in Ormond Beach. There wasan unexpected large outbound towardsOrmond Beach. Saturday, FloridaHighway Patrol, Ormond Beach PD,Daytona Beach PD, Volusia CountyTraffic Engineering, FDOT and DaytonaBeach Traffic Engineering met to discusstraffic patterns and staffing for OrmondBeach so Friday’s problems wouldnot happen during the outbound of theDaytona 500 Race. Sunday’s traffic wasextremely heavy for the inbound. Thefree parking lot entrance on Williamsonwill need to be larger for next year. The10EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW10-9

traffic trying to enter this parking lotcould not enter fast enough so, this areabecame grid locked. This area was gridlocked from northbound Williamson toBeville, eastbound and westbound onBeville at Williamson further than theview of the traffic cameras. Capt. Duncanenforced a rolling roadblock on I-4to stop traffic from entering this area.This gave traffic time to get into theparking lot. Video was collected of thenew Pedestrian Overpass. This overpasswas successfully used by thousands ofrace fans.• Bike Week was March 1 st to March 10 th .Port Orange reported problems at NovaRoad and Dunlawton. Mr. Lester statedthey went out to this location to see ifanything could be done with the trafficsignal to alleviate the traffic congestion.Unfortunately, the signal was at itsmaximum timing and nothing could bechanged.POST-EVENT REPORTTable 10-7 presents an outline of a typicalpost-event report.Report OrganizationA report that reviews the planned specialevent is necessary to document what waslearned. By clearly outlining the material inthe report, it becomes easier to identify thekey successes and lessons learned. It alsomakes it easier to go back to the report andlook at particular aspects of the traffic managementplan implemented when planningthe next planned special event.Since the process of handling the plannedspecial event follows a timeline, the easiestway to organize the report may involve reviewingwhat took place chronologically.An alternative method of organizing the reportconcerns dividing it by subject areassuch as traffic management, traveler information,command center operation, andcommunications. Since some areas overlap,there should be references in the report toother sections, which may have applicationin multiple areas.Table 10-7Outline of Post-Event ReportREPORT ORGANIZATION• Outline report topics.• Document products of the event operationsplanning phase.• Identify key successes.• Present lessons learned.• Identify improvements for future events.• Configure to serve as a working document forfuture special event planning.• Review chronologically what took place.• Summarize both positive and negative aspects.• Include all stakeholder viewpoints.OPERATIONAL COST ANALYSIS• Examine operational costs.• Include staffing, overtime, and equipment foreach involved agency.• Identify potential cost savings.o Reallocation of personnelo Division of responsibilitieso Use of technology• Include total staffing, overtime, and equipmentfor all agencies.QUALITATIVE EVALUATION• Include survey of stakeholders.• Include survey of event patrons.• Include survey of public.QUANTITATIVE EVALUATION• Provide numerical picture of the event.o Costso Hours savedo Traffic incidents handledo Passengers carried on various modes.• Present cost/benefit analysis.The report should summarize both positiveand negative aspects. Remember, this is notdesigned to be a public relations piece topromote the handling of the planned specialevent but a working document to assist futurespecial event planning. If differing per-10-10

spectives are noted during the debriefingprocess and there is not consensus on how toaddress a particular situation, all stakeholderviewpoints should be documented.Table 10-8 lists the elements that should beincluded in a post-event report. As with thepost-event debriefing, the post-event reportshould not blame individuals or organizationsfor anything that did not go well. Thereport should provide a factual recounting ofthe special event, including planning theevent itself and what took place during thepost-event debriefing. If opinions are notedin the report, then the opinions should besegregated from the factual information andnoted as opinions.Table 10-8Elements of a Post-Event ReportELEMENT• A copy of the original traffic managementplan• A combined chronology of the event, incorporatingactions by all participants• List of recommended improvements• Statistical information (e.g., number of trafficincidents, number of CMS and HAR messages).• Survey results• General comments by participantsOperational Cost AnalysisPart of the evaluation process is to look atthe operational costs of managing theplanned special event. Expenses such asstaffing, equipment and overtime should benoted by the agency incurring the expense.This information should be broken downinto categories that allow others to understandthe costs and the specific efforts associatedwith the expenditures.In the same way, operational decisions canbe reviewed to identify areas that can be improved.Operational costs can also be reviewedwith areas of potential cost savingidentified. In some cases, these expensesmay be in areas where the reallocation ofpersonnel would result in reduced expensesor improved operations. In other areas, theuse of technology may result in savings.While individual stakeholders are responsiblefor gathering information on their owncosts, there is also benefit in merging thefigures of all agencies to have a better pictureof total expenses for personnel andequipment. This may also provide opportunitiesto see how dividing responsibilities indifferent ways could result in cost savings.Among the costs that should be analyzed areovertime expenses, costs of deployingequipment, equipment rental costs, additionalcommunications expenses, and expensesfor public information efforts.Qualitative EvaluationThe qualitative evaluation, while based onsofter measures such as opinion andperspective, still provides a very valuablemeasure of the success in handling theplanned special event. This is especiallytrue when measuring patron and publicviews on the event. Quantitative measuresmay be easier to manage, but qualitativejudgments may help determine the successof the plan. Even if the numbers show theplan was a success, if the qualitative evaluationshows significant dissatisfaction, it willbe difficult to view the event in a positivelight.The qualitative evaluation is based on anumber of factors, including the survey ofthe public and event patrons. Also importantis the qualitative evaluation provided bythose stakeholders who managed the event.If they view the exercise as a failure, it willbe difficult to get them to fully commit tosubsequent efforts for future planned special10EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW10-11

events. Table 10-9 summarizes key topicsof a qualitative evaluation.Table 10-9Key Topics of a Qualitative EvaluationTOPIC• Quality of pre-event information• Quality of day-of-event information• Direction provided to the event and at thevenue• Traffic management at the site• Egress from the venueQuantitative Evaluation1. The Dutchess County Fair TrafficPlan, New York State Department ofTransportation, Presentation at the2002 ITS New York Meeting, SaratogaSprings, Ny., June 5--7, 2002,24 pp.2. Indiana State Police 2002 BrickyardRace Detail, Indiana State Police,2002.3. “Minutes of the Volusia CountyFreeway Incident ManagementTeam,” Volusia County Freeway IncidentManagement Team, March13, 2002.The quantitative evaluation provides a numericalpicture of the event. Figures such ascosts, hours saved, incidents handled, andpassengers carried provide a view which canbe compared with similar events and providea metric to judge how well the traffic managementplan worked. As the saying goes,what gets measured gets done. If that is thecase, then involved stakeholders shouldidentify, before the event, what they wish tomeasure. While computer programs allowany number of items to be tabulated andmeasured, a good understanding before theevent will facilitate the measurement of thekey areas identified.The quantitative evaluation is very usefulwhen conducting a cost/benefit analysis ofactivities for the planned special event.Knowing where the most benefit was realizedfor the costs incurred can help in theplanning process to see if resources shouldbe reallocated for the next event.REFERENCES10-12

CHAPTER ELEVENDISCRETE/RECURRING EVENT AT APERMANENT VENUE11OVERVIEWFigure 11-1Discrete/Recurring Event at a Permanent Venue: Qualcomm Stadium in San Diego, CADAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPURPOSEIn order to assist the user in planning for aparticular planned special event, this chapterdescribes an advance planning and travelmanagement process and considerationsspecific to a discrete/recurring event at apermanent venue. It summarizes recommendedpolicies, guidelines, procedures, andresource applications that were previouslydiscussed in the first ten chapters of thistechnical reference. This chapter presentsthese guidelines and procedures in tables,flowcharts, and checklists that can be followedto help guide the user through all thestages of a planned special event of thiscategory for a particular locale. AlthoughChapter 3 presents all the steps necessary tomanage travel for a planned special event,this chapter provides a roadmap to helpguide the user through all five phases ofmanaging travel for planned special events,identifying issues, analysis, and productsapplicable to discrete/recurring events at apermanent venue. To further guide readers,this chapter specifies references to data, specialconsiderations, and best practices forthis event category.POST-EVENT ACTIVITIESEVENT PROFILE11-1

INTRODUCTIONIn order to guide the user, this chapter addressesfour key topics, corresponding tofive phases of managing travel for plannedspecial events, including: (1) event operationsplanning, (2) implementation and dayof-eventactivities, (3) post-event activities,and (4) program planning. In planning forall planned special events in a region, thefinal section on program planning highlightsissues to consider that evolve from and/orpertain to discrete/recurring events at a permanentvenue. By following each one of thesteps and procedures, the user will haveidentified and covered all the significant aspectsthat are necessary to result in successfulmanagement of travel for a planned specialevent with characteristics specific to adiscrete/recurring event at a permanentvenue.A discrete/recurring event at a permanentvenue occurs on a regular basis at a sitezoned and designed specifically to accommodateplanned special events. Table 11-1indicates different types of planned specialevents classified as a discrete/recurringevent at a permanent venue. This categoryincludes events that occur in urban and metropolitanareas, and the rural event categoryincludes discrete/recurring events at a permanentvenue that take place in rural areas.Table 11-2 lists key characteristics of a discrete/recurringevent at a permanent venue.Table 11-1Types of Discrete/Recurring Events at aPermanent VenueEVENT TYPE• Sporting and concert events at stadiums andarenas• Concert events at amphitheatersTable 11-2Distinguishing Operating Characteristics ofa Discrete/Recurring Event at a PermanentVenueCHARACTERISTIC• Specific starting and predictable ending times• Known venue capacity• Advance ticket sales• Weekday event occurrencesSpecial ConsiderationsIn light of the characteristics of a discrete/recurringevent at a permanent venue,special considerations when planning suchan event include:• Permanent venues located in urban areasusually have exclusive off-street parkingto accommodate capacity events, andgood access exists between venue parkingareas and freeway/arterial corridortraffic flow routes serving the venue.• In metropolitan areas, permanent venuesoften feature high-capacity connections(e.g., transit) to the transportation systemserving the region.• Parking areas at many permanent venuesexist immediately adjacent to the venue,creating a more self-contained site trafficcirculation and pedestrian access environmentsimilar to other major, permanenttraffic generators (e.g., airports andregional shopping centers).• These events generate high peak arrivalrates because of event patrons’: (1) urgencyto arrive at the venue by a specificstart time and (2) possession of a reservedseat ticket that does not requireearly arrival.• Special events that have general admissionseating or permit tailgating havelower, yet pronounced, peak arrivalrates.• Discrete/recurring events at a permanentvenue end abruptly, thus creating high11-2

peak pedestrian and traffic departurerates.• The travel demand rate profile, overtime, represents a distinguishing characteristicthat warrants special considerationduring advanced planning and dayof-eventtravel management.• Event characteristics, such as knownvenue capacity and advance ticket sales,afford practitioners the opportunity toperform travel demand forecasts withgreater precision and accuracy.• Discrete/recurring events at a permanentvenue allow the collection of transferablehistorical data that improves predictabilityin feasibility study traffic andparking analyses for future events held ata particular venue.• Experience gained from each plannedspecial event can be used to further improvethe identification and mitigation ofroadway capacity deficiencies.• Weekday events place a high priority onprediction and stakeholder preparationbecause of potential impacts on commutertraffic and transit operations.EVENT OPERATIONSPLANNINGThe level of stakeholder effort required underthe event operations planning phase for adiscrete/recurring event at a permanentvenue depends on whether a venue trafficmanagement plan already exists. The eventplanning team focuses either on developinga new plan or modifying an existing trafficmanagement plan designed and implementedfor past events at the subject venue.In the latter case, the event planning teamshould conduct a review of past, pertinentfeasibility studies for each proposed event.This will help to identify special transportationcharacteristics of each event and identifysimilarities to previously held events.Attendance, time of occurrence, previouslessons learned, and other special circumstancesshould be considered during this review.Figure 11-2 presents 31 steps in the eventoperations planning process for all plannedspecial events. The flowchart covers developmentand integration of the phase’s threeprimary products: feasibility study, trafficmanagement plan, and travel demand managementinitiatives. Table 11-3 complementsthe flowchart by providing step-bystepguidance on issues and recommendedanalyses for a discrete/recurring event at apermanent venue. The table also presentsreference information contained in thishandbook that is specific to discrete/recurringevents at a permanent venue.While all of the major handbook topics underevent operations planning apply to a discrete/recurringevent at a permanent venue,Table 11-3 indicates data, planning considerations,and agency example applications(e.g., via narratives or photos) within thecontext of this event category. In turn, practitionerscan use example applications presentedfor a discrete/recurring event at apermanent venue to manage travel for othercategories of planned special events.It is important for the user to note that theplanning process described herein applies toa single special event occurrence only. Feasibilitystudy results and traffic managementplan specifications vary for: (1) recurringevents of the same type (e.g., all homegames for a specific sports team) and (2)capacity events of different types held at thesame venue (e.g., a sold-out sporting eventversus sold-out concert at the same stadium).In the former case, practitionersshould conduct an iterative event operationsplanning process in order to develop traffic11EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW11-3

Initiate Feasibility Study26TDM andTransit Service1ModalSplit2Transit Service3EventTraffic Generation27Event PatronIncentives4Traffic Arrival andDeparture Rate5Market AreaAnalysis6Parking DemandAnalysis9Shuttle BusService7Traffic DemandAnalysis10LotAssignment11Corridor TrafficFlow Routes13AlternateRoutes14EmergencyAccess Routes8Roadway CapacityAnalysis12Local TrafficFlow Routes20Vehicle Accessand Circulation21Parking Area Designand Operation15Background TrafficAccommodation16TransitAccommodation22Parking OccupancyMonitoring17FreewayTraffic Control18StreetTraffic Control19IntersectionTraffic Control23PedestrianControl24DisabledAccessibility25Analysis andModeling28Traffic IncidentManagementKEY:Traffic PlanningParking PlanningTransit Planning29En-RouteTraveler Information30TrafficSurveillance31Pre-TripTraveler InformationAdvance to Implementation ActivitiesFigure 11-2Event Operations Planning Process Flowchart11-4

STEPNO. PAGE1 5-202 7-93 5-214 5-225 5-25Table 11-3Event Operations Planning StepsDiscrete/Recurring Event at a Permanent VenueEVENT-SPECIFIC ISSUESEVENT-SPECIFIC REFERENCE INFORMATIONTOPICPAGE• Potential high level of express/charter bus • Data: Percentage of walking trips for oncampuscollege football games.service for sporting events.5-21• Review of historical transit data. • Data: Example modal split for various permanentvenues; Table 5-12.5-21• Impact of weekday events on non-attendee • Example: Express bus services. 7-11transit users. • Example: Charter bus service. 7-13• Variation in vehicle occupancy by event type, • Data: Vehicle occupancy factor; Table 5-14.event day/time, and venue location.5-23• Change in peak arrival rate by event type and • Data: Traffic arrival rate characteristics; Tableday/time.5-15.5-24• Special consideration: Traffic operationsduring event patron departure.5-23• Use of origin location analysis.• Data: Estimate of non-home based trips for a• Larger market area for major concert anddowntown venue.5-26sporting events.• Special consideration: Recommended market• Attraction of non-home based trips for weekdayarea analysis methodology and considerations.5-26events. • Example: Appendix E – Regional directionaldistribution.5-256 5-27 • Very low turnover during event.7 5-298 5-30 • Analysis of peak arrival and departure periods.• Design of service to expand and contract (e.g.,9 6-32number of buses operating) based on event patronarrival/departure rates throughout the dayof-event.10 6-13• Significant media parking requirement formajor sporting events.11 6-3812 6-3813 6-4014 6-4115 6-4316 6-4517 6-4918 6-5119 6-57• Key consideration for downtown venues andvenues adjacent to residential and business areas.• Special consideration: Shuttle bus servicedesign.• Special consideration: Shuttle bus servicecost.6-336-36• Example: Plan showing target points; Figure6-396-30.• Example: Appendix I – Traffic flow maps. 6-47• Example: Plan showing multiple local traffic6-39flow routes; Figure 6-31.• Example: Appendix I – Traffic flow maps. 6-47• Example: Temporary elimination of freewayweaving area; Figure 6-39.• Example: Prohibition of late freeway diverge;Figure 6-40.• Example: Remote traffic surveillance andmanagement; Figure 6-41.• Example: Appendix K – Traffic control plansand maps.• Example: Contraflow operation during eventtraffic egress; Figure 6-44.• Example: Appendix K – Traffic control plansand maps.• Example: Elimination of competing intersectiontraffic flow; Figure 6-50.• Example: Achieving intersection turningmovement lane balance; Figure 6-51.• Example: Roadblock of ingress route to facilitateegress; Figure 6-52.• Example: Intersection advance signing; Figure6-53.6-536-536-536-596-546-596-576-576-586-5811EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW11-5

STEPNO. PAGE20 6-1621 6-2022 6-2323 6-2824 6-3225 6-9267-2 to7-14EVENT-SPECIFIC ISSUES• Vehicle cruising after event to pick-up eventpatrons.EVENT-SPECIFIC REFERENCE INFORMATIONTOPICPAGE• Example: Appendix J – Operation of centralizedtraffic signal system.6-59• Example: Appendix K – Traffic control plansand maps.6-59• Example: En-route information disseminationon site access and parking; Figure 6-6.6-14• Example: Temporary parking area identificationlandmark; Figure 6-8.6-15• Example: Implementation of lane channelizationon a parking area access road; Figure 6- 6-1810.• Example: Strategy for eliminating taxi/limocruising at the end of an event.6-19• 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 gateand queue storage lanes; Figure 6-13.• Pedestrian overcrowding near venue.• Analysis of peak ingress and egress travelperiods.• High applicability of HOV incentives andexpress/charter bus service to this event category.• Special consideration: Pedestrian arrival anddeparture rates.• Example: Pedestrian traffic monitoring viaclosed-circuit television; Figure 6-21.• Example: High occupancy vehicle incentives;Figure 7-3.6-216-276-297-3,7-5• Example: Transit service marketing. 7-1327 7-6• Particularly applicable to managing event • Special consideration: Recommended eventarrival and departure rate.patron incentives.7-6• Example: Survey on event patron incentives;Figure 7-4.7-7• Example: Public information safety campaign. 6-7328 6-72 • Example: Highway advisory radio travelersafety message; Figure 6-61.6-7429 6-61• Example: Permanent changeable message signover stadium access road; Figure 6-56.6-6430 6-70• Dissemination of traveler information through • Example: Appendix L – Public agency andevent and venue websites.event-specific websites.7-17• Dissemination of transportation guide with • Example: Telephone information systems;advance ticket mailings.Figure 7-9.7-1931 7-14• Example: Public information campaign. 7-19• Example: Appendix M - Venue transportationguides.7-21• Example: Television travel report; Figure 7-12.7-22management plans for a range of futureevent scenarios, varying by characteristicssuch as attendance and time of occurrence.Example scenarios include expected highattendanceevents because of special promotionsor circumstances and weeknight footballgames versus traditional weekendgames. In the latter case, different eventtypes have dissimilar event operation characteristicssuch as market area, audience accommodation,and time of occurrence.Available transportation services and stakeholderresources may vary from one capacityevent to another. For instance, an exclu-11-6

sive express bus service between area parkand-ridelots and a stadium may operate forSunday football games but not for a concertat the same facility because of resource constraints.• Traffic management plan components inChapter 6 that provide an overview ofvarious principles driving plan developmentin addition to a contingency planchecklist.11The flowchart in Figure 11-2 represents asuggested order of event operations planningactivities. However, as noted below, theevent planning team can modify activities tocreate a dynamic and more effective planningprocess tailored to the scope of a specificplanned special event:• Based on lessons learned from past specialevents at a particular permanentvenue, stakeholders may program newinfrastructure or adopt new policies (e.g.,parking restrictions) early in the eventoperations planning process.• Links between process steps are twowayas stakeholders evaluate alternativestrategies and/or integrate traffic managementplan components.• The event planning team can developdifferent traffic management plan componentsconcurrently.The event operations planning process referencesinformation and concepts contained inthe advance planning section of this handbook,and it directs the user to recommendedguidelines, procedures, strategies, and resourceapplications for managing travel for aspecific planned special event. When followingthe process, practitioners should review:• Important advance planning considerationsand external factors, summarized inChapter 5, that influence planning activities.For instance, under risk assessment,scenarios relating to fan celebrationsand excessive overcrowding maywarrant consideration if planning for amajor sporting or concert event.IMPLEMENTATION ANDDAY-OF-EVENTACTIVITIESThe traffic management team that managestravel for a discrete/recurring event at apermanent venue usually has familiaritywith traffic patterns and potential flowbreakdown points in the vicinity of the site,primarily based on their past experience onpreviously held special events at the samevenue. Hence, stakeholder development ofimplementation plan details focus on transportationoperation successes and lessonslearned for previous, similar events at thesubject venue. Special events regularly occurat stadium, arena, and amphitheater venues.Involved traffic operations and law enforcementpersonnel, for instance, maintaina level of preparedness akin to that of trafficincident responders.Table 11-4 presents a checklist ofimplementation and day-of-event activitiesfor stakeholders to consider regarding anydiscrete/recurring event at a permanentvenue. As indicated in the table, the eventplanning team must determine, based onvarious event operations characteristics(e.g., event type, event location, event timeof occurrence, attendance, market area, etc.)and other external factors, what unique setof activities apply in handling a specificspecial event. The table facilitates fastaccess to handbook sections providingdetailed guidance, including recommendedstrategies, protocol, and resourceapplications, required by users to plan andexecute these activities.EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW11-7

Table 11-4Checklist of Implementation and Day-of-Event Activities for Discrete/Recurring Events at aPermanent VenueHANDBOOKAPPLIESACTIONPAGE8-2 • 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.9-6• Establish protocol for traffic management team officials to consider andimplement changes to the traffic management plan to accommodate realtimetraffic 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 transportationusers.9-12 • Perform traffic monitoring on the day-of-event.Some distinguishing considerations of thisevent category during the day-of-event activitiesphase include:• Because of the numerous planned specialevents held annually at a permanentvenue, stakeholders typically have a setlocation for an on-site command post.For larger venues in metropolitan areas,the command post may reside inside thevenue, contain permanently installedequipment (e.g., computer and communicationconnections, video monitors,etc.), and function as a satellite transportationmanagement center.• Interagency communication structureand protocol is generally well establishedand understood by all participatingpersonnel.• Traffic advisory services often monitorspecial events at permanent venues anddisseminate traveler information accordingly,and the media provides significantcoverage of major sporting events thatusually includes traveler information andtransportation system operations monitoring.The traffic management teammay interact with these information providerson the day-of-event.• The collection and evaluation of transportationsystem performance dataproves valuable in guiding decisionmakingfor future discrete/recurringevents at a permanent venue. Stakeholderscan archive raw data for use infuture feasibility studies, and variousevaluation measures can identify specificareas that require improvement for future,similar events at the subject venue.The traffic management team must exercisegreat care in collecting performanceevaluation data in order to ensure dataquality and consistency.11-8

POST-EVENTACTIVITIESSince a discrete/recurring event at a permanentvenue has the benefit of numerousevents having been held at the site, it is usuallynot necessary to conduct all post-eventactivities normally required for other eventcategories. Table 11-5 presents a checklistof post-event activities applicable to anydiscrete/recurring event at a permanentvenue. Certain special events of this category(e.g., new event type at venue, statewide/nationalmarket area, etc.) that presenta challenging and potentially recurringtravel management scenario for stakeholderswarrant most, if not all, activities listed inthe table. The post-event activities sectionof this handbook provides detailed informationon common techniques, special considerations,and recommended protocol thatfacilitate the activities listed in Table 11-5.Some distinguishing considerations of thisevent category during the post-event activitiesphase include:• Post-event debriefings represent a commonand recommended stakeholder activityregarding discrete/recurring eventsat a permanent venue.o On a regional level, such meetingsmay coincide with a regular trafficincident management team meeting.o With major discrete/recurring events(e.g., capacity or near-capacity) oftenregularly occurring at permanentvenues, the event planning team andtraffic management team may use apost-event debriefing as a basis toupdate a traffic management planand travel demand management initiativesfor future planned specialevents at the venue.Table 11-5Checklist of Post-Event Activities for Discrete/Recurring Events at a Permanent VenueHANDBOOKAPPLIESACTIONPAGE10-2 • Review measures of effectiveness identified in event operations planningphase.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.11EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW11-9

• Public surveys warrant strong considerationfor special events under this categoryas event performance evaluationdata fails to assess all community impacts.o Though not necessary for everyevent occurrence, stakeholders mayconduct a public survey: (1) after thefirst of a series of recurring specialevents (e.g., sports season), (2) afterreceiving negative feedback throughcommunity interest stakeholders, or(3) after a specified period of time(e.g., annually or every few years)for all events held at a particularpermanent venue.o Survey results alert special eventstakeholders of impacts to affectedresidents and businesses, in additionto non-attendee transportation systemusers, that may continue to occurwith each successive major specialevent at a particular permanentvenue. As a result, stakeholders candevelop and implement appropriatestrategies (e.g., enforcement, etc.) tomitigate the identified impact(s) forfuture planned special events. Trafficmanagement team efforts alsowould include monitoring knowncommunity impacts on the futureday-of-event followed by a posteventevaluation.PROGRAM PLANNINGProgram planning activities involve the developmentof policies, programs, and initiativesthat facilitate improved planning andmanagement of travel for future plannedspecial events. Program planning activitiesfor all planned special events in a regionhave a high level of applicability to discrete/recurringevents at a permanent venue.Stakeholders that have a consistent role inmanaging travel for planned special eventsat a particular permanent venue can addressrecurring needs and improve the planningprocess for future events through variousregional planned special event program initiatives.Table 11-6 summarizes program planningactivities for discrete/recurring events at apermanent venue.Some distinguishing considerations of thisevent category during the program planningphase include:• The fixed location of major planned specialevent venues allows for the easyidentification of stakeholder representativesinvolved in regular planning andday-of-event travel management for specialevents at these venues. Under a regionalplanned special events programframework, these representatives collaborateas a task force, working to: (1)strengthen interagency coordination forfuture special events, (2) identify needsrelative to minimizing community impactsand improving transportation systemoperations during venue events.The latter involves proposing new policies,regulations, and infrastructure deploymentsto support future eventspecifictraffic management plans andtravel demand management initiatives.• Permanent infrastructure deploymentsprove cost-effective at permanent venueshosting numerous planned special eventsor multiple major events in a calendaryear. As indicated in Table 11-6, infrastructuredeployment also includes newtransportation services designed to increasetransportation system capacityduring a planned special event. For instance,a transit agency may design and11-10

market an express bus service for an entiresports season.• The occurrence of major discrete/recurringevents at a permanentvenue (e.g., roving sports championshipevents, auto races, other capacity events,etc.) often serve as a platform for stakeholdersto assess new services and infrastructureproposed for a single, majorspecial event in the context of supporting:(1) all special planned special eventsin a region and (2) day-to-day transportationsystem operations. The foreknowledgeof planned special events allowstakeholders to work with transportationagency administrators in order toincorporate pertinent planned specialevents initiatives in agency budgetsand/or transportation improvement programs.11OVERVIEWTable 11-6Program Planning Activities for Discrete/Recurring Events at a Permanent VenuePRODUCTTOPICPAGENO.Institutionalframeworks• Creation of a regional transportation committee on planned special events(e.g., oversight team).2-154-25-3• Creation of a transportation operations task force for a specific permanent5-3Policies andregulationsInfrastructuredeploymentvenue.• Development of a joint operations policy. 5-15• Traffic and parking restrictions. 5-10• Public-private towing agreements. 5-16• Public information safety campaign. 6-73• High occupancy vehicle incentives. 7-3• Advanced parking management system. 6-15• 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. 6-327-117-12• Telephone information systems. 7-17• Kiosks. 7-21DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE11-11

THIS PAGE LEFT BLANK11-12

CHAPTER TWELVECONTINUOUS EVENT12OVERVIEWFigure 12-1Continuous Event: Summerfest Music Festival in Milwaukee, WI(Photo courtesy of the Wisconsin DOT.)DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPURPOSEIn order to assist the user in planning for aparticular planned special event, this chapterdescribes an advance planning and travelmanagement process and considerationsspecific to a continuous event. It summarizesrecommended policies, guidelines,procedures, and resource applications thatwere previously discussed in the first tenchapters of this technical reference. Thischapter presents these guidelines and proceduresin tables, flowcharts, and checkliststhat can be followed to help guide the userthrough all the stages of a planned specialevent of this category for a particular locale.Although Chapter 3 presents all the stepsnecessary to manage travel for a plannedspecial event, this chapter provides a roadmapto help guide the user through all fivephases of managing travel for planned specialevents, identifying issues, analysis, andproducts applicable to continuous events.To further guide readers, this chapter specifiesreferences to data, special considerations,and best practices relating to this eventcategory.INTRODUCTIONIn order to guide the user, this chapter addressesfour key topics, corresponding tofive phases of managing travel for plannedspecial events, including: (1) event opera-POST-EVENT ACTIVITIESEVENT PROFILE12-1

tions planning, (2) implementation and dayof-eventactivities, (3) post-event activities,and (4) program planning. The final sectionon program planning highlights issues toconsider, that evolve from and/or pertain tocontinuous events, in planning for allplanned special events within a region orjurisdiction. By following each one of thesteps and procedures, the user will haveidentified and covered all the significant aspectsthat are necessary to result in successfulmanagement of travel for a planned specialevent with characteristics specific to acontinuous event.Table 12-1 indicates different types ofplanned special events classified as a continuousevent. This category includes eventsthat occur in urban and metropolitan areas,and the rural event category includes continuousevents that take place in rural areas.Aside from conventions and state/countyfairs, many continuous events take place at atemporary venue, a park, or other large openspace. These venues host planned specialevents on a less frequent basis than permanentmulti-use venues, and planned specialevent permitting typically governs whether atemporary venue can adequately handle thetransportation impact of a particular continuousevent. Table 12-2 lists key characteristicsof a continuous event.Table 12-1Types of Continuous EventsEVENT TYPE• Fairs• Festivals• Conventions and expos• Air and automobile showsTable 12-2Distinguishing Operating Characteristics ofa Continuous EventCHARACTERISTIC• Occurrence often over multiple days• Arrival and departure of event patronsthroughout the event day• Typically little or no advance ticket sales• Capacity of venue not always known• Occurrence sometimes at temporary venuesSpecial ConsiderationsIn light of the characteristics of a continuousevent, special considerations when planningsuch an event include:• Daily attendance, a key input in thetravel forecast analysis process, is oftendifficult to estimate, and day-of-eventweather conditions may significantly affectit.• The traffic generation characteristics andmarket area of different continuousevents may vary considerably, thus limitingthe transfer of historical data betweennon-identical special events.• Most events do not have an attendancecapacity or defined “sell-out.”• Venues may have limited access to transitstations and adjacent high-capacityarterial roadways and freeways.• High attendance events in downtownareas require extensive planning forparking and travel demand management.• Major continuous events typically generatetrips from a multi-county region.• Potential weather impacts require theconsideration of a wide range of contingencyplans relative to site access, parking,pedestrian access, traffic control,and traffic incident management.• Continuous events held at temporaryvenues may significantly impact nearbyneighborhood residents and businesses.12-2

EVENT OPERATIONSPLANNINGBecause of the contrasting characteristics ofdifferent continuous events and the respectivevenues hosting these events, the eventplanning team should develop (1) a feasibilitystudy, (2) a traffic management plan, and(3) travel demand management initiatives(as necessary) in the event operations planningphase. The stakeholder composition ofan event planning team varies by event, assome continuous events represent communityor not-for-profit events while others involvecommercial dealings. Recurring continuousevents, such as an annual fair or airshow, permit stakeholders to reference apast feasibility study and traffic managementplan, coupled with operations successesand lessons learned, when conductingadvance planning activities for a futureevent. However, due to the significant timebetween recurring continuous events, theevent planning team must anticipate (1)changes in the operations characteristics of afuture event, (2) modifications to the transportationsystem serving the event, and (3)changes in the community (e.g., land use,socioeconomic, regulations, etc.).Figure 12-2 presents 31 steps in the eventoperations planning process for all plannedspecial events. The flowchart covers developmentand integration of the phase’saforementioned three products. Table 12-3complements the flowchart by providingstep-by-step guidance on issues and recommendedanalyses for a continuous event.The table also presents reference informationcontained in this handbook that is specificto continuous events. While all of themajor handbook topics under event operationsplanning apply to a continuous event,Table 12-3 indicates data, planning considerations,and agency example applications(e.g., via narratives or photos) within thecontext of this event category. In turn, practitionerscan use example applications presentedfor a continuous event to managetravel for other categories of planned specialevents.The flowchart in Figure 12-2 represents asuggested order of event operations planningactivities. However, as noted below, theevent planning team can modify activities tocreate a dynamic and more effective planningprocess tailored to the scope of a specificplanned special event:• A jurisdiction planned special eventpermit process and requirements willscope, schedule, and direct event operationsplanning activities for continuousevents.• Links between process steps are twowayas stakeholders evaluate alternativestrategies and/or integrate traffic managementplan components.• The event planning team can developdifferent traffic management plan componentsconcurrently.The event operations planning process referencesinformation and concepts contained inthe advance planning section of this handbook,and it directs the user to recommendedguidelines, procedures, strategies, and resourceapplications for managing travel for aspecific planned special event. When followingthe process, practitioners should review:• Advance planning and travel managementprocess and considerations providedin Chapter 11, as appropriate, forcontinuous events that occur at a permanentvenue (e.g., stadium, arena, amphitheater,and convention center).12EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW12-3

Initiate Feasibility Study26TDM andTransit Service1ModalSplit2Transit Service3EventTraffic Generation27Event PatronIncentives4Traffic Arrival andDeparture Rate5Market AreaAnalysis6Parking DemandAnalysis9Shuttle BusService7Traffic DemandAnalysis10LotAssignment11Corridor TrafficFlow Routes13AlternateRoutes14EmergencyAccess Routes15Background TrafficAccommodation8Roadway CapacityAnalysis12Local TrafficFlow Routes16TransitAccommodation20Vehicle Accessand Circulation21Parking Area Designand Operation22Parking OccupancyMonitoring17FreewayTraffic Control18StreetTraffic Control19IntersectionTraffic Control23PedestrianControl24DisabledAccessibility25Analysis andModeling28Traffic IncidentManagementKEY:Traffic PlanningParking PlanningTransit Planning29En-RouteTraveler Information30TrafficSurveillance31Pre-TripTraveler InformationAdvance to Implementation ActivitiesFigure 12-2Event Operations Planning Process Flowchart12-4

NO.STEPPAGE1 5-202 7-93 5-214 5-225 5-25Table 12-3Event Operations Planning StepsContinuous EventEVENT-SPECIFIC ISSUES• Potential financial incentive for transit serviceto provide express/charter service.• Variation in daily attendance on each day of amulti-day event.• Impact of weather on attendance (if open-airvenue).• Peak rates may increase if event features headlineentertainment.• Impact of weather on time of arrival and/ordeparture (if open-air venue).• Use of travel time or distance analysis if noadvance ticket sales.• Market area includes the community or regionthe event is staged for.EVENT-SPECIFIC REFERENCE INFORMATIONTOPICPAGE• Example: Appendix D – Internet-based eventpatron evaluation survey.5-21• Data: Daily attendance split for multi-daycontinuous events.5-22• Data: Vehicle occupancy factor; Table 5-14. 5-23• Special consideration: Estimating daily attendance.5-22• Data: Traffic arrival rate characteristics; Table5-15.5-24• Special consideration: Using historical data toestimate traffic arrival rate.5-24• Special consideration: Recommended marketarea analysis methodology.5-25• Special consideration: Market area analysis. 5-256 5-27• Special consideration: Parking demand analysis.• Continuous turnover during event.5-27• Use of off-site parking areas. • Example: Designated event off-site parkingarea; Figure 5-11.5-297 5-29• Analysis of conditions prior to, during, andafter event.8 5-30• Possible composite traffic volume peak duringthe event.• Design of service to operate throughout the9 6-32event.• Special consideration: Shuttle bus service• Increased round-trip travel time if loadingcost.6-36occurs both at parking areas and at venue.10 6-13 • Secure of lease or agreement for off-site lots.11 6-3812 6-38• Consideration of ingress and egress operationsduring the event.13 6-4014 6-4115 6-43• Example: Accommodation of traffic destinedto major generators; Figure 6-35.6-4416 6-4517 6-4918 6-5119 6-5720 6-16 • Two-way traffic during event.21 6-20 • Potential use of unpaved parking areas.22 6-23• Variation of parking occupancy during theevent.• Special consideration: Pedestrian traffic. 6-27• Example: Pedestrian access route and emergencyaccess route; Figure 6-22.6-3023 6-28 • Two-way pedestrian traffic during event. • Example: Road closure adjacent to eventvenue; Figure 6-24.6-31• Example: Staffed mid-block pedestrian crossing;Figure 6-25.6-3124 6-32 • Strong consideration for temporary venues.• Special consideration: Disabled parkingspaces.6-32• Example: Special event disabled parking areaaccess point; Figure 6-26.6-3212EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW12-5

STEPNO. PAGE25 6-9EVENT-SPECIFIC ISSUES• Analysis of peak period during event as wellas peak ingress and egress.• Consideration of detailed analysis (e.g., tabletopexercises) for temporary venues.EVENT-SPECIFIC REFERENCE INFORMATIONTOPICPAGE267-2 to7-1427 7-628 6-7229 6-6130 6-70• High applicability of HOV incentives, bicyclistaccommodation, public transit incentives, Figure 7-2.• Example: High occupancy vehicle incentive;7-5and express/charter bus service to this event • Example: Bicycle parking area; Figure 7-6. 7-8category. • Example: Express bus service. 7-12• Emphasis on portable roadside traveler informationdevices for temporary venues.• Emphasis on portable closed-circuit television,field observation, and/or aerial observation fortemporary venues.31 7-14 • Key step for infrequent events.• Example: Traffic information disseminationvia public agency website; Figure 7-7.• Example: Appendix L - Event-specific website.7-167-17• Important advance planning considerationsand external factors, summarized inChapter 5, that influence planning activities.For instance, effective and rapidstakeholder review of event operationsplanning products requires: (1) an annotatedplanning timeline, (2) a reviewprocess, and (3) performance standards.• Traffic management plan components inChapter 6 that provide an overview ofvarious principles driving plan developmentin addition to a contingency planchecklist.IMPLEMENTATION ANDDAY-OF-EVENTACTIVITIESImplementation activities represent anessential phase in advance planning for continuousevents. The traffic managementteam involves new interagency relationships,and it requires an event-specific implementationplan to communicate specificsof the new traffic management plan preparedby the event planning team. Because particularcontinuous event types occur infrequently,stakeholder simulation exercisesprove valuable in assisting traffic managementteam personnel understand the rolesand responsibilities of participating stakeholdersin addition to the actions taken onthe day-of-event. Equipment testing marksanother key consideration. These intensivestakeholder activities reflect the typical unfamiliaritywith managing travel for a continuousevent coupled with the fact thattransportation management activities, on theorder required for a planned special event,may not regularly take place in the vicinityof the event venue.Table 12-4 presents a checklist ofimplementation and day-of-event activitiesfor stakeholders to consider regarding anycontinuous event. As indicated in the table,the event planning team must determine,based on various event operationscharacteristics (e.g., event type, eventlocation, event time of occurrence,attendance, market area, etc.) and otherexternal factors, what unique set of activitiesapply in handling a specific special event.The table facilitates fast access to handbook12-6

Table 12-4Checklist of Implementation and Day-of-Event Activities for Continuous EventsHANDBOOKAPPLIESACTIONPAGE8-2 • 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.9-6• Establish protocol for traffic management team officials to consider and implementchanges to the traffic management plan to accommodate real-timetraffic 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 transportationusers.9-12 • Perform traffic monitoring on the day-of-event.sections providing detailed guidance, includingrecommended strategies, protocol, andresource applications, required by users toplan and execute these activities.Some distinguishing considerations of thisevent category during the day-of-event activitiesphase include:• The scope and duration of continuousevents, especially those that occur overmultiple days, demand a significant levelof personnel resources. Supplementingtraffic management team personnel withtemporary staff and volunteers may representa necessary action to meet dailystaffing requirements. However, manyvolunteers have no past experience intasks associated with traffic and pedestriancontrol and parking operations. Asa result, volunteer training becomesparamount to the success of day-of-eventoperations. Chapter 8 contains checklistsand relevant considerations for assessingpersonnel resource needs and usingvolunteers on the day-of-event. Thechapter also specifies volunteer trainingactivities and summarizes basic functionsrequired of all volunteers.• The traffic management team likely includesstakeholder representatives involvedin managing travel for a particularcontinuous event type for the firsttime. To ensure successful traffic managementplan deployment, the trafficmanagement team must adopt a formalmanagement process and establish an interagencycommunication structure andprotocol to support day-of-event operations.• Other essential team management considerationsinvolve (1) the designation ofan Incident Commander for the plannedspecial event and (2) the set up of a temporary,multi-agency command post ator near the event venue.12EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW12-7

• Traffic management team officialsshould anticipate enacting modificationsto the traffic management plan throughoutthe duration of the continuous event.• Surveillance information and performanceevaluation data define transportationoperation conditions and, thus, influencedecision-making at a day-ofeventbriefing.• Multi-day continuous events should include:(1) a traffic management teammeeting at the end of each day’s activitiesto review the traffic managementplan and team performance and/or (2) atraffic management team meeting beforethe start of the next event day.• The collection and evaluation of transportationsystem performance dataproves valuable in guiding decisionmakingnot only on the day-of-event butalso for recurring continuous events.Stakeholders can archive raw data foruse in future feasibility studies, andvarious evaluation measures can identifyspecific areas that require improvementfor future, similar events at the subjectvenue.• The traffic management team must exercisegreat care in collecting performanceevaluation data in order to ensure dataquality and consistency.POST-EVENTACTIVITIESAll of the primary products of this phase(e.g., participant evaluation, post-event debriefing,and post-event report) have a highlevel of applicability to continuous events.Given the infrequent occurrence of continuousevents coupled with the scarcity oftravel forecast data, post-event activity resultsrepresent a key resource in planning forfuture continuous events in a region.Table 12-5 presents a checklist of post-eventactivities for continuous events. The posteventactivities section of this handbookprovides detailed information on commontechniques, special considerations, and recommendedprotocol that facilitate the activitieslisted in the table.HANDBOOKPAGETable 12-5Checklist of Post-Event Activities for Continuous EventsACTION10-2 • Review measures of effectiveness identified in event operations planningphase.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.APPLIES12-8

Some distinguishing considerations of thisevent category during the post-event activitiesphase include:• In regard to participant evaluation, continuousevent patron travel surveys yieldimportant information and statistics thatcan assist practitioners in (1) improvingthe accuracy of future continuous eventtravel forecasts and (2) developing traveldemand management incentives (e.g.,public transit incentives and express/charterbus services) for similarevents.• Periodic public surveys warrant considerationfor special events under thiscategory as event performance evaluationdata fails to assess all communityimpacts. Survey results alert specialevent stakeholders of impacts to affectedresidents and businesses, in addition tonon-attendee transportation system users,that may continue to occur with eachsuccessive special event at a particularvenue location. As a result, stakeholderscan develop and implement appropriatestrategies (e.g., enforcement, etc.) tomitigate the identified impact(s) for futureplanned special events.• Post-event debriefings represent a commonand recommended stakeholder activityfor continuous events.o On a regional level, such meetingsmay coincide with a regular trafficincident management team meeting.o A key aspect of a post-event debriefingfor continuous events involvespreparing detailed meeting minutesthat include the identification of keysuccesses and lessons learned.o Considering the potential significanttime between similar event types,stakeholders must chronicle participantsurvey results and debriefingmeetings so that those stakeholderscharged with managing travel for futurecontinuous events can tap thewisdom of past participants.• The occurrence of a major, recurringcontinuous event warrants developmentof a post-event report. In turn, the reportcan serve as a working document to assistin advance planning for the next(year’s) event.• A post-event report for a recurring continuousevent should include an operationalcost analysis to assist stakeholdersin identifying potential cost-saving resourcedeployment strategies for the nextevent occurrence.PROGRAM PLANNINGProgram planning activities involve the developmentof policies, programs, and initiativesthat facilitate improved planning andmanagement of travel for future plannedspecial events.Program planning for continuous events includeactivities, as summarized in Table 12-6, on both a regional and local level.Some distinguishing considerations of thisevent category during the program planningphase include:• A regional transportation committee onplanned special events considers theplanning and resource requirements ofcontinuous events in connection withmanaging all planned special events in aregion. A primary committee focus concernsfacilitating interagency coordinationand collaboration. For instance, atask force may exist for a specific largescale,recurring continuous event thatworks throughout the year to integratepast event successes and lessons learnedinto future event planning.12EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW12-9

Table 12-6Program Planning Activities for Continuous EventsPRODUCTTOPICPAGENO.Institutionalframeworks• Creation of a regional transportation committee on planned special events (e.g.,oversight team).2-154-25-3• Development of a formal planned special event permit program. 4-10• Creation of a transportation operations task force for a recurring continuousevent.5-3• Development of a joint operations policy. 5-15Policies and • Traffic and parking restrictions. 5-10regulations • Public-private towing agreements. 5-16Infrastructure • Planned alternate route for diverting background traffic around a venue. 6-40deployment • Portable traffic management system. 6-56• Express, charter or shuttle bus service. 6-327-117-12• Telephone information systems. 7-17• Public information campaign. 7-19• Two or more stakeholders, representingmultiple jurisdictions and/or disciplines,may establish a joint operations policyfor managing travel for all planned specialevents in a region.• Because continuous events occur infrequentlyand occasionally at temporaryvenues, an infrastructure needs assessmenton the program planning levelshould focus on equipment and technologyapplications transferable to managingall planned special events in a regionand/or day-to-day transportation systemoperations.• A planned special event permit programproves particularly effective for continuousevents that, because of such characteristicsas event attendance and eventlocation, may (1) conflict with municipalor state guidelines and regulations and(2) impact transportation operations andthe community. The program specifies apermit process, coupled with supportingrestrictions and requirements, that allowsstakeholders to plan and assess all typesof continuous events within a commonframework. A section on program planningfor local planned special events inChapter 4 provides complete and indepthcoverage on developing a permitprogram applicable to continuous events.• Funding represents a key public agencyconsideration for continuous events inthe program planning phase.o Commercial events may involveevent organizers and participantsfrom outside the community hostingthe event.o Prior to initiating event operationsplanning activities for a specific continuousevent, stakeholders shouldestablish a funding mechanism forrecovering costs incurred in providingservices during the event operationsplanning phase and resourceson the day-of-event.o Funding often represents a requirementof a comprehensive plannedspecial event permit program.12-10

CHAPTER THIRTEENSTREET USE EVENT13OVERVIEWPURPOSEFigure 13-1Street Use Event: New York City Cycling ChampionshipIn order to assist the user in planning for aparticular planned special event, this chapterdescribes an advance planning and travelmanagement process and considerationsspecific to a street use event. It summarizesrecommended policies, guidelines, procedures,and resource applications that werepreviously discussed in the first ten chaptersof this technical reference. This chapter presentsthese guidelines and procedures in tables,flowcharts, and checklists that can befollowed to help guide the user through allthe stages of a planned special event of thiscategory for a particular locale. AlthoughChapter 3 presents all the steps necessary tomanage travel for a planned special event,this chapter provides a roadmap to helpguide the user through all five phases ofmanaging travel for planned special events,identifying issues, analysis, and productsapplicable to street use events. To furtherguide readers, this chapter specifies referencesto special considerations and bestpractices relating to this event category.INTRODUCTIONIn order to guide the user, this chapter addressesfour key topics, corresponding tofive phases of managing travel for plannedspecial events, including: (1) event operationsplanning, (2) implementation and dayof-eventactivities, (3) post-event activities,and (4) program planning. In planning forDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE13-1

all planned special events in a region, thefinal section on program planning highlightsissues to consider that evolve from and/orpertain to street use events. By followingeach one of the steps and procedures, theuser will have identified and covered all thesignificant aspects that are necessary to resultin successful management of travel for aplanned special event with characteristicsspecific to a street use event.A street use event occurs on a street requiringtemporary closure. Table 13-1 indicatesdifferent types of planned special eventsclassified as a street use event. This categoryincludes events that occur in rural, urban,and metropolitan areas. Street useevents generally occur in a city or downtowncentral business district; however, raceevents, motorcycle rallies, and dignitary motorcadesmay necessitate temporary closureof arterial streets or, to accommodate a motorcade,limited-access highways. Plannedspecial event permitting guidelines and restrictionstypically (1) influence event operationscharacteristics (e.g., location, streetuse event route, time of occurrence, etc.) and(2) govern whether a traffic managementplan can mitigate the transportation impactof a particular street use event. Table 13-2lists key characteristics of a street use event.Table 13-1Types of Street Use EventsEVENT TYPE• Parades• Marathons• Bicycle races• Grand Prix auto races• Motorcycle rallies• Dignitary motorcadesTable 13-2Distinguishing Operating Characteristics ofa Street Use EventCHARACTERISTIC• Occurrence on a roadway requiring temporaryclosure• Specific starting and predictable ending times• Capacity of spectator viewing area not known• Spectators not charged or ticketed• Dedicated parking facilities not availableSpecial ConsiderationsIn light of the characteristics of a street useevent, special considerations when planningsuch an event include:• Daily attendance, a key input in thetravel forecast analysis process, is oftendifficult to estimate, and day-of-eventweather conditions significantly affect it.• The entire parade or race route representsthe event venue.• Parking areas and traffic flow routesserve an expanded site area.• Race events or motorcycle rallies oftenrequire the temporary closure of roadwaysover a significant distance.• Spectator viewing areas may have limitedaccess to transit stations and adjacenthigh-capacity arterial roadways andfreeways.• High attendance events in downtownareas require extensive planning forparking and travel demand management.• Major street use events typically generatetrips from a multi-county region.• These events impact parking and accessrequired by nearby neighborhood residentsand businesses.• Temporary road closures, required tostage the event, impact background trafficand transit flow in addition to emergencyvehicle access and other local services.13-2

EVENT OPERATIONSPLANNINGSince street use events take place on theroadway system and different event typeshave contrasting characteristics (e.g., paradesversus road races), the event planningteam should develop: (1) a feasibility study,(2) a traffic management plan, and (3) traveldemand management initiatives (as necessary)in the event operations planning phase.The stakeholder composition of an eventplanning team varies by event, as most paradesrepresent community events whileroad races and motorcycle rallies may involvecommercial dealings. In regard to acommunity-sponsored special event, transportationand/or law enforcement agenciesusually bear the responsibility of developingall of the necessary event planning phaseproducts. These stakeholders guide theplanning process for commercial street useevents as well. Jurisdictions may mandatethat private event organizers use a standardroute and adhere to numerous guidelines andregulations (e.g., see the street use eventchecklist contained in Appendix A) developedby public agencies, in the programplanning phase, as part of a greater permitprogram for all planned special events.Recurring street use events, such as an annualholiday parade, allow stakeholders toreference a past feasibility study and trafficmanagement plan, coupled with operationssuccesses and lessons learned, when conductingadvance planning activities for a futureevent. However, due to the significanttime between recurring street use events, theevent planning team must anticipate (1)changes in the operations characteristics of afuture event, (2) modifications to the transportationsystem serving the event, and (3)changes in the community (e.g., land use,socioeconomic, regulations, etc.).Figure 13-2 presents 31 steps in the eventoperations planning process for all plannedspecial events. The flowchart covers developmentand integration of the phase’saforementioned three products. Table 13-3complements the flowchart by providingstep-by-step guidance on issues and recommendedanalyses for a street use event. Thetable also presents reference informationcontained in this handbook that is specific tostreet use events. While all of the majorhandbook topics under event operationsplanning apply to a street use event, Table13-3 indicates planning considerations andagency example applications (e.g., via narrativesor photos) within the context of thisevent category. In turn, practitioners canuse example applications presented for astreet use event to manage travel for othercategories of planned special events.The flowchart in Figure 13-2 represents asuggested order of event operations planningactivities. However, as noted below, theevent planning team can modify activities tocreate a dynamic and more effective planningprocess tailored to the scope of a specificplanned special event:• A jurisdiction planned special eventpermit process and requirements willscope, schedule, and direct event operationsplanning activities for street useevents.• The event planning team should plan anevent route, spectator traffic flow routes,and background traffic accommodationstrategies early in the event operationsplanning phase, referencing guidelinesand tactics for developing a traffic flowplan (Steps 11 through 16).• Links between process steps are twowayas stakeholders evaluate alternativestrategies and/or integrate traffic managementplan components.13EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW13-3

Initiate Feasibility Study26TDM andTransit Service1ModalSplit2Transit Service3EventTraffic Generation27Event PatronIncentives4Traffic Arrival andDeparture Rate5Market AreaAnalysis6Parking DemandAnalysis9Shuttle BusService7Traffic DemandAnalysis10LotAssignment11Corridor TrafficFlow Routes13AlternateRoutes14EmergencyAccess Routes15Background TrafficAccommodation8Roadway CapacityAnalysis12Local TrafficFlow Routes16TransitAccommodation20Vehicle Accessand Circulation21Parking Area Designand Operation22Parking OccupancyMonitoring17FreewayTraffic Control18StreetTraffic Control19IntersectionTraffic Control23PedestrianControl24DisabledAccessibility25Analysis andModeling28Traffic IncidentManagementKEY:Traffic PlanningParking PlanningTransit Planning29En-RouteTraveler Information30TrafficSurveillance31Pre-TripTraveler InformationAdvance to Implementation ActivitiesFigure 13-2Event Operations Planning Process Flowchart13-4

STEPNO. PAGE1 5-202 7-93 5-214 5-225 5-256 5-277 5-298 5-309 6-3210 6-1311 6-3812 6-3813 6-4014 6-41Table 13-3Event Operations Planning StepsStreet Use EventEVENT-SPECIFIC ISSUESEVENT-SPECIFIC REFERENCE INFORMATIONTOPICPAGE• Impact of weather on attendance.• 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 todeparture.estimate traffic arrival rate.5-24• Use of travel time or distance analysis. • Special consideration: Recommended market• Market area includes the community or region area analysis methodology.5-25the event is staged for. • Special consideration: Market area analysis. 5-25• Low turnover during event.• Exclusive use of off-site parking areas.• Self-parking.• Requirement of road closures to stage theevent.• Utility (e.g., attractiveness) of individual parkingareas vary.• Use of computer traffic simulation model tomeasure the full impact of road closures onoperations across a network of streets.• Design of service to expand and contract (e.g.,number of buses operating) based on event patronarrival/departure rates throughout the dayof-event.• Consideration for road closures required tostage the event.• Ambulances or first-aid stations staged atvarious locations for a street race.15 6-43 • Key consideration for this event category.16 6-4517 6-4918 6-5119 6-5720 6-1621 6-2022 6-2323 6-28• Circulation problems due to lack of dedicatedparking facilities.• Consideration only for privately operatedparking areas.• Coordination with private parking area operators.• High volume of pedestrian traffic and continuouscirculation around the venue perimeter.24 6-32 • Strong consideration for this event category.25 6-9• Consideration of detailed analysis (e.g., tabletopexercises) and modeling.• Special consideration: Parking demand analysis.• Special consideration: Road closure impactchecklist; Table 6-22• Special consideration: Parade staging area;Figure 6-29• Special consideration: Personnel resources foralternate route plan deployment; Figure 6-33.• Special consideration: Emergency accesslanes.• Special consideration: Pre-trip traveler information;Table 6-27.• Example: Appendix K – Street control planand equipment location plan.• Example: Appendix K – Street control planand equipment location plan.• Special consideration: Intersection trafficcontrol along the event route.• Example: Appendix K – Street control planand equipment location plan.5-276-386-386-436-436-456-596-596-586-59• Special consideration: Pedestrian traffic. 6-27• Special consideration: Disabled parkingspaces.6-3213EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW13-5

STEPNO. PAGE267-2 to7-1427 7-6EVENT-SPECIFIC ISSUES• High applicability of bicyclist accommodation,public transit incentives, and event/charter busservice to this event category.• Applicability of local travel demand managementto downtown events.• Particularly applicable to managing eventdeparture rate.28 6-7229 6-61• Emphasis on portable closed-circuit television,field observation, and/or aerial observation.30 6-7031 7-14 • Key step for infrequent events.EVENT-SPECIFIC REFERENCE INFORMATIONTOPICPAGE• The event planning team can developdifferent traffic management plan componentsconcurrently.The event operations planning process referencesinformation and concepts contained inthe advance planning section of this handbook,and it directs the user to recommendedguidelines, procedures, strategies, and resourceapplications for managing travel for aspecific planned special event. When followingthe process, practitioners should review:• Important advance planning considerationsand external factors, summarized inChapter 5, that influence planning activities.For instance, effective and rapidstakeholder review of event operationsplanning products requires: (1) an annotatedplanning timeline, (2) a reviewprocess, and (3) performance standards.Under risk assessment, scenarios relatingto unplanned demonstrations or eventpatron violence may warrant considerationfor a particular special event if lawenforcement intelligence reports indicatesuch potential.• Section on “Special Considerations” inChapter 6 with regard to controlling trafficduring a dignitary motorcade.• Traffic management plan components inChapter 6 that provide an overview ofvarious principles driving plan developmentin addition to a contingency planchecklist.IMPLEMENTATION ANDDAY-OF-EVENTACTIVITIESImplementation activities represent anessential phase in advance planning forstreet use events. The traffic managementteam may involve new interagencyrelationships, and it requires an eventspecificimplementation plan tocommunicate specifics of the new trafficmanagement plan prepared by the eventplanning team. Because particular street useevent types occur infrequently, stakeholdersimulation exercises prove valuable inassisting traffic management team personnelunderstand the roles and responsibilities ofparticipating stakeholders in addition to theactions taken on the day-of-event.Equipment testing marks another key considerationas day-of-event operations at andin the vicinity of the event site usually dependon portable equipment for traffic control,surveillance, and dissemination of enroutetraveler information. These intensivestakeholder activities reflect the typical unfamiliaritywith managing travel for a streetuse event coupled with the fact that transportationmanagement activities, on the orderrequired for a planned special event,13-6

may not regularly take place in the vicinityof the event site.Table 13-4 presents a checklist of implementationand day-of-event activities forstakeholders to consider regarding any streetuse event. As indicated in the table, theevent planning team must determine, basedon various event operations characteristics(e.g., event type, event location, event timeof occurrence, attendance, market area, etc.)and other external factors, what unique setof activities apply in handling a specificspecial event. The table facilitates fast accessto handbook sections providing detailedguidance, including recommended strategies,protocol, and resource applications,required by users to plan and execute theseactivities.Some distinguishing considerations of thisevent category during the day-of-event activitiesphase include:• Street use events demand the use of experiencedpersonnel in the field on theday-of-event. Law enforcement officersor other personnel properly trained intraffic control should (1) direct traffic atintersections adjacent to closed streetsand (2) control pedestrian crossing locations.• Supplementing traffic management teampersonnel with temporary staff and volunteersmay represent a necessary actionto meet staffing requirements. Competentadult volunteers can monitor barricadeplacement and minor intersection/drivewayapproaches. Many volunteershave no past experience in tasks associatedwith traffic and pedestrian controland parking operations. As a result,volunteer training becomes paramount tothe success of day-of-event operations.Chapter 8 contains checklists and relevantconsiderations for assessing personnelresource needs and using volunteerson the day-of-event. The chapteralso specifies volunteer training activitiesand summarizes basic functions requiredof all volunteers.Table 13-4Checklist of Implementation and Day-of-Event Activities for Street Use EventsHANDBOOKAPPLIESACTIONPAGE8-2 • 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.9-6• Establish protocol for traffic management team officials to consider and implementchanges to the traffic management plan to accommodate real-timetraffic 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 transportationusers.9-12 • Perform traffic monitoring on the day-of-event.13EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW13-7

• The traffic management team likely includesstakeholder representatives involvedin managing travel for a particularstreet use event type for the first time.To ensure successful traffic managementplan deployment, the traffic managementteam must adopt a formal managementprocess and establish an interagencycommunication structure and protocol tosupport day-of-event operations.• Other essential team management considerationsinvolve (1) the designation ofan Incident Commander for the plannedspecial event and (2) the set up of a temporary,multi-agency command post ator near the event site.• Traffic management team officialsshould anticipate enacting modificationsto the traffic management plan duringthe street use event.• Surveillance information and performanceevaluation data define transportationoperation conditions and, thus, influencedecision-making at a day-ofeventbriefing.• Due to the challenge of estimating eventgeneratedtraffic in the event feasibilitystudy, day-of-event briefings should occurat frequent intervals during event ingressoperations. Moreover, trafficmanagement team officials should conductan expanded briefing prior to theend of the event in order to reassess thetraffic management and implementationplan for egress operations, taking intoconsideration traffic and pedestrian demandobserved during ingress in additionto traffic and transit operations onalternate routes.• The collection and evaluation of transportationsystem performance dataproves valuable in guiding decisionmakingnot only on the day-of-event butalso for recurring street use events (e.g.,annual parades or street races). Stakeholderscan archive raw data for use infuture feasibility studies, and variousevaluation measures can identify specificareas that require improvement for future,similar events using the same route.• The traffic management team must exercisegreat care in collecting performanceevaluation data in order to ensure dataquality and consistency.POST-EVENTACTIVITIESAll of the primary products of this phase,particularly participant evaluations and posteventdebriefings, apply to evaluating transportationoperations for street use events.Given the infrequent occurrence of street useevents coupled with the scarcity of travelforecast data, post-event activity results representa key resource in planning for futurestreet use events in a region.Table 13-5 presents a checklist of post-eventactivities for street use events. The posteventactivities section of this handbookprovides detailed information on commontechniques, special considerations, and recommendedprotocol that facilitate the activitieslisted in the table.Some distinguishing considerations of thisevent category during the post-event activitiesphase include:• In regard to participant evaluation, streetuse event patron travel surveys yield importantinformation and statistics thatcan assist practitioners in (1) improvingthe accuracy of future street use eventtravel forecasts and (2) developing traveldemand management incentives (e.g.,public transit incentives and express/charterbus services) for similarevents.13-8

HANDBOOKPAGETable 13-5Checklist of Post-Event Activities for Street Use EventsACTION10-2 • Review measures of effectiveness identified in event operations planningphase.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.• Periodic public surveys warrant considerationfor special events under thiscategory as event performance evaluationdata fails to assess all communityimpacts. Survey results alert specialevent stakeholders of impacts to affectedresidents and businesses, in addition tonon-attendee transportation system users,that may continue to occur with eachsuccessive special event on a particularroute. As a result, stakeholders can developand implement appropriate strategies(e.g., create/revise a standard streetuse event route, revise alternate routeplans, etc.) and regulations to mitigatethe identified impact(s) for futureplanned special events.• Post-event debriefings represent a commonand recommended stakeholder activityfor street use events.o On a regional level, such meetingsmay coincide with a regular trafficincident management team meeting.o A key aspect of a post-event debriefingfor street use events involvespreparing detailed meeting minutesthat include the identification of keysuccesses and lessons learned. Inturn, findings may refine specialevent permit program provisions forfuture street use events.APPLIESo Considering the potential significanttime between similar event types,stakeholders must chronicle participantsurvey results and debriefingmeetings so that those stakeholderscharged with managing travel for futurestreet use events can tap thewisdom of past participants.• The occurrence of a major, recurringstreet use event warrants development orupdate of a post-event report. In turn,the report can serve as a working documentto assist in advance planning forthe next (year’s) event.• A post-event report for a recurring streetuse event should include an operationalcost analysis to assist stakeholders inidentifying potential cost-saving resourcedeployment strategies for the nextevent occurrence.PROGRAM PLANNINGProgram planning activities involve the developmentof policies, programs, and initiativesthat facilitate improved planning andmanagement of travel for future plannedspecial events.13EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW13-9

Program planning for street use events includeactivities, as summarized in Table 13-6, on both a regional and local level.Some distinguishing considerations of thisevent category during the program planningphase include:• A regional transportation committee onplanned special events considers theplanning and resource requirements ofstreet use events in connection withmanaging all planned special events in aregion. A primary committee focus concernsfacilitating interagency coordinationand collaboration. For instance, atask force may exist for a specific largescale,recurring street use event thatworks throughout the year to integratepast event successes and lessons learnedinto future event planning.• Two or more stakeholders, representingmultiple jurisdictions and/or disciplines,may establish a joint operations policyfor managing travel for all planned specialevents in a region.• Stakeholders may develop a standardroute for all street use events of a certaintype (e.g., parades, street races, etc.) thatoccur within a region or jurisdiction inorder to create a more efficient event operationsplanning process for futurestreet use events.• Because street use events occur infrequentlyand on the roadway system, aninfrastructure needs assessment on theprogram planning level should focus onequipment and technology applicationstransferable to managing all plannedspecial events in a region and/or day-todaytransportation system operations.PRODUCTInstitutionalframeworksPolicies andregulationsInfrastructuredeploymentTable 13-6Program Planning Activities for Street Use EventsTOPICPAGENO.• Creation of a regional transportation committee on planned special events (e.g., 2-15oversight team).4-25-3• 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• Traffic and parking restrictions. 5-10• Standard street use event routes. 5-15• Public-private towing agreements. 5-16• Planned alternate route for diverting background traffic around a venue. 6-40• Portable traffic management system. 6-56• Express, charter or shuttle bus service. 6-327-117-12• Telephone information systems. 7-17• Public information campaign. 7-1913-10

• A planned special event permit programproves particularly effective for streetuse events that, because of such characteristicsas event attendance, event timeof occurrence, and event location (e.g.,route), may (1) conflict with municipalor state guidelines and regulations and(2) impact transportation operations andthe community. The program specifies apermit process, coupled with supportingrestrictions and requirements, that allowsstakeholders to plan and assess all typesof street use events within a commonframework. For instance, stakeholderreview of a proposed event route representsone step in the permit process inaddition to a key decision criteria forrendering permit application approval.A section on program planning for localplanned special events in Chapter 4 providescomplete and in-depth coverage ondeveloping a permit program applicableto street use events.• Funding represents a key public agencyconsideration for street use events in theprogram planning phase.o Commercial events may involveevent organizers and participantsfrom outside the community hostingthe event.o Prior to initiating event operationsplanning activities for a specificstreet use event, stakeholders shouldestablish a funding mechanism forrecovering costs incurred in providingservices during the event operationsplanning phase and resources(e.g., namely personnel for trafficcontrol) on the day-of-event.o Funding often represents a requirementof a comprehensive plannedspecial event permit program.13EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW13-11

THIS PAGE LEFT BLANK13-12

CHAPTER FOURTEENREGIONAL/MULTI-VENUE EVENT14OVERVIEWFigure 14-1Regional/Multi-Venue Event: Bradley Center, U.S. Cellular Arena,and Midwest Airlines Center (convention center) Adjacent to 4 th Street in Milwaukee, WIDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPURPOSEIn order to assist the user in planning for aparticular planned special event, this chapterdescribes an advance planning and travelmanagement process and considerationsspecific to a regional/multi-venue event. Itsummarizes recommended policies, guidelines,procedures, and resource applicationsthat were previously discussed in the firstten chapters of this technical reference. Thischapter presents these guidelines and proceduresin tables, flowcharts, and checkliststhat can be followed to help guide the userthrough all the stages of a planned specialevent of this category for a particular locale.Although Chapter 3 presents all the stepsnecessary to manage travel for a plannedspecial event, this chapter provides a roadmapto help guide the user through all fivephases of managing travel for planned specialevents, identifying issues, analysis, andproducts applicable to regional/multi-venueevents. To further guide readers, this chapterspecifies references to special considerationsand best practices relating to this eventcategory.INTRODUCTIONIn order to guide the user, this chapter addressesfour key topics, corresponding tofive phases of managing travel for plannedspecial events, including: (1) event opera-POST-EVENT ACTIVITIESEVENT PROFILE14-1

tions planning, (2) implementation and dayof-eventactivities, (3) post-event activities,and (4) program planning. In planning forall planned special events in a region, thefinal section on program planning highlightsissues to consider that evolve from and/orpertain to regional/multi-venue events. Byfollowing each one of the steps and procedures,the user will have identified and coveredall the significant aspects that are necessaryto result in successful management oftravel for a planned special event with characteristicsspecific to a regional/multi-venueevent.A regional/multi-venue event refers to multipleplanned special events that occurwithin a region at or near the same time.Individual events may differ by classificationcategory. Table 14-1 indicates differenttypes of planned special events classified asa regional/multi-venue event. Concurrentplanned special events require considerationas a regional/multi-venue event if trafficgenerated by different, competing specialevents use the same traffic flow routes (e.g.,freeway/arterial corridors, local streets) orparking areas over the same time frame. Asa result, stakeholders involved in planningand managing individual special eventsmust, as a group, forecast and mitigate theglobal impact of concurrent special eventson transportation system operations. Table14-2 lists key characteristics of a regional/multi-venueevent.Table 14-1Types of Regional/Multi-Venue EventsEVENT TYPE• Occurrence of a single-theme event requiringmultiple venues to stage the event• Occurrence of a downtown parade or festivalin the vicinity of a downtown fixed venue alsohosting a special event• Occurrence of special events at two fixedvenues in a region at or near the same timeTable 14-2Distinguishing Operating Characteristics ofa Regional/Multi-Venue EventCHARACTERISTIC• Occurrence of events at multiple venues andat or near the same time• Events having a time specific duration, a continuousduration, or both• Overall capacity generally not known if continuousevents or street use events are involvedSpecial ConsiderationsIn light of the characteristics of a regional/multi-venueevent, special considerationswhen planning such an event include:• Traffic flow routes to/from differentevents may use the same road segments,and predominant traffic demand occursin the same or opposite directions.• Traffic flow routes that serve differentspecial event venues may intersect.• Overflow parking areas typically reservedfor a recurring special event orpermanent venue may be required to accommodatedemand from nearby concurrentevents.• Ingress and egress operations for concurrentevents may occur at the same time.• Event patrons and participants maytravel from one planned special event toanother.• Traffic control and traveler informationfor different special events can confuseevent patrons.EVENT OPERATIONSPLANNINGPlanned regional/multi-venue events include,for example, multi-day sportinggames (e.g., Olympic style) that requiremultiple venues to stage various events andmajor fireworks displays in areas offering14-2

several vantage points (e.g., parks, etc.)spread out over a large area. Other regional/multi-venueevents evolve as a resultof individual planned special events slated tooccur within a region at or near the sametime. These events involve any combinationof discrete/recurring events at a permanentvenue, continuous events, and street useevents. As a result, the collective regional/multi-venueevent often represents aone-time occurrence, particularly if one ormore individual events involve a sporting orconcert event. Concurrent events may spanone day or multiple days.The scope and infrequent occurrence of aregional/multi-venue event generally requiresthe event planning team(s) to develop:(1) a feasibility study, (2) a trafficmanagement plan, and (3) travel demandmanagement initiatives (as necessary) in theevent operations planning phase. The overallevent operations planning approach for aregional/multi-venue event remains the samefor all event types. That is, the event planningteam should first develop preliminaryevent operations products on a venue-byvenuebasis and then combine and evaluatevenue-specific findings and recommendedmitigation actions for the regional/multivenueevent. The latter step helps to determine:(1) additional transportation systemcapacity constraints not identified in individualevent/venue analyses, (2) potentialconflicts in event/venue traffic managementplan provisions, and (3) additional mitigationmeasures designed to improve transportationoperations for the overall regional/multi-venueevent.A regional/multi-venue event places an emphasison interagency coordination and collaboration.Each venue event may involve adistinct group of planning and operationsstakeholders if individual events within aregion do not relate to each other. Eventoperations planning for a regional/multivenueevent requires input and participationby all involved stakeholder groups. Publicagency stakeholders responsible for theplanning or approval of individual venueevents should facilitate interaction betweenevent planning teams and ensure mitigationof transportation and community impactsfrom the composite regional/multi-venueevent.Figure 14-2 presents 31 steps in the eventoperations planning process for all plannedspecial events. The flowchart covers developmentand integration of the phase’saforementioned three products. Table 14-3complements the flowchart by providingstep-by-step guidance on issues and recommendedanalyses for a regional/multi-venueevent. The table also presents reference informationcontained in this handbook that isspecific to regional/multi-venue events.While all of the major handbook topics underevent operations planning apply to a regional/multi-venueevent, Table 14-3 indicatesplanning considerations and agencyexample applications (e.g., via narratives orfigures) within the context of this eventcategory. In turn, practitioners can use exampleapplications presented for a regional/multi-venueevent to manage travelfor other categories of planned specialevents.The flowchart in Figure 14-2 represents asuggested order of event operations planningactivities. However, as noted below, theevent planning team can modify activities tocreate a dynamic and more effective planningprocess tailored to the scope of a specificplanned special event:14EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW14-3

Initiate Feasibility Study26TDM andTransit Service1ModalSplit2Transit Service3EventTraffic Generation27Event PatronIncentives4Traffic Arrival andDeparture Rate5Market AreaAnalysis6Parking DemandAnalysis9Shuttle BusService7Traffic DemandAnalysis10LotAssignment11Corridor TrafficFlow Routes13AlternateRoutes14EmergencyAccess Routes15Background TrafficAccommodation8Roadway CapacityAnalysis12Local TrafficFlow Routes16TransitAccommodation20Vehicle Accessand Circulation21Parking Area Designand Operation22Parking OccupancyMonitoring17FreewayTraffic Control18StreetTraffic Control19IntersectionTraffic Control23PedestrianControl24DisabledAccessibility25Analysis andModeling28Traffic IncidentManagementKEY:Traffic PlanningParking PlanningTransit Planning29En-RouteTraveler Information30TrafficSurveillance31Pre-TripTraveler InformationAdvance to Implementation ActivitiesFigure 14-2Event Operations Planning Process Flowchart14-4

Table 14-3Event Operations Planning StepsRegional/Multi-Venue EventSTEPEVENT-SPECIFIC REFERENCE INFORMATIONEVENT-SPECIFIC ISSUESNO. PAGETOPICPAGE1 5-20 • Performance of step for each individual event.2 7-9• Potential financial incentive for transit serviceto expand service or provide express/charterservice.3 5-21 • Performance of step for each individual event.4 5-22 • Performance of step for each individual event.5 5-25 • Performance of step for each individual event.6 5-27• Special consideration: Parking demand analysis.5-27• Variable demand rates from different events.• Special consideration: Shared parking operation.• Staggering of event times creates continuous5-27turnover over the course of the day-of-event.• Example: Parking occupancy summary; Table5-295-17.7 5-29 • Performance of step for each individual event.• Example: Preliminary road segment capacityanalysis; Figure 5-13.5-308 5-30 • Analysis of multiple time periods.• Design of service specific to individual parkingareas or events.9 6-32• Establish service, as necessary, to accommodatesatellite parking areas (e.g., event patronand employee parking), transit stations, andevent participants (e.g., to/from area hotels).10 6-13• Conflict concerning multiple events using onelot.11 6-3812 6-38• Multiple events using the same traffic flowroute.13 6-4014 6-41 • Evaluation of needs for each individual event.15 6-43• Key consideration if road closures are requiredto stage an event(s).16 6-4517 6-4918 6-5119 6-5720 6-16• Circulation conflicts caused by multiple eventsin the same area.21 6-2022 6-23• Circulation conflicts caused by multiple events • Example: Parking occupancy monitoring plan;in the same area.Table 6-11.6-2423 6-28• Consideration of pedestrian access routes thatconnect different venues.24 6-3225 6-9• Consideration of detailed analysis (e.g., tabletopexercises) and modeling.26• Example: Local travel demand management7-2 to • High applicability of all travel demand managementinitiatives to this event category.7-8techniques.7-14• Example: Express bus service. 7-1127 7-6 • Performance of step for each individual event. • Example: Event patron incentives; Figure 7-5. 7-728 6-72• Key consideration for freeway corridors within • Example: Traffic incident quick clearancea region.strategies; Table 6-40.6-7529 6-6130 6-7031 7-14 • Key step for infrequent events.• Example: Dissemination of pre-trip travelerinformation via the Internet.7-17• Example: Use of 511 service for a plannedspecial event.7-1814EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW14-5

• The event planning team should repeatprocess steps, as indicated in Table 14-3,for individual venue events comprisingthe regional/multi-venue event.• Final planning products should accountfor the overall impact of the regional/multi-venueevent.• Links between process steps are twowayas stakeholders evaluate alternativestrategies and/or integrate traffic managementplan components.• The event planning team can developdifferent traffic management plan componentsconcurrently.The event operations planning process referencesinformation and concepts contained inthe advance planning section of this handbook,and it directs the user to recommendedguidelines, procedures, strategies, and resourceapplications for managing travel for aspecific planned special event. When followingthe process, practitioners should review:• Advance planning and travel managementprocess and considerations providedin Chapters 11 through 13, as appropriate,for individual venue eventscomprising the regional/multi-venueevent.• Important advance planning considerationsand external factors, summarized inChapter 5, that influence planning activities.• Section on “Special Considerations” inChapter 6 with regard to transportingdignitaries and event participants.• Traffic management plan components inChapter 6 that provide an overview ofvarious principles driving plan developmentin addition to a contingency planchecklist.IMPLEMENTATION ANDDAY-OF-EVENTACTIVITIESImplementation activities represent an essentialphase in advance planning for regional/multi-venueevents. Depending onevent type, one traffic management teammay handle day-of-event operations for multiplevenues (e.g., sporting games) or a singlevenue. Nonetheless, implementationplans for individual event venues must correlatein terms of traffic control strategiesdeployed and resources used. Such specificationscan be organized through matricesfor easy reference.Because regional/multi-venue events occurinfrequently, stakeholder simulation exercisesprove valuable in assisting traffic managementteam supervisors and field personnelunderstand the roles and responsibilitiesof participating stakeholders in addition tothe operations game plan and actions for individualvenue events. Tabletop exercisesallow traffic management team officials toreview the impact of certain event-specificaction plans on other concurrent events. Afull-scale simulation proves advantageousby providing venue managers and transportationoperators, stationed at various commandposts (e.g., on-site and at the transportationmanagement center), with the opportunityto test the communications infrastructureused on the day-of-event. These intensivestakeholder activities reflect the typicalunfamiliarity with managing travel for a regional/multi-venueevent coupled with thefact that transportation management activitiesusually performed for a particular, recurringspecial event may require modificationto accommodate nearby concurrentplanned special events.14-6

Table 14-4 presents a checklist ofimplementation and day-of-event activitiesfor stakeholders to consider regarding anyregional/multi-venue event. The event planningteam must determine, based on variousevent operations characteristics (e.g., eventtype, event location, event time of occurrence,attendance, market area, etc.) andother external factors, what unique set ofactivities apply in handling all venue eventscomprising a regional/multi-venue specialevent. In turn, stakeholders should reviewthe special considerations and recommendedactivities presented in Chapters 11 through13 for pertinent individual special events.The table facilitates fast access to handbooksections providing detailed guidance, includingrecommended strategies, protocol, andresource applications, required by users toplan and execute these activities.Some distinguishing considerations of thisevent category during the day-of-event activitiesphase include:• The scope of regional/multi-venueevents demand a significant level of personnelresources. Supplementing trafficmanagement team personnel with temporarystaff and volunteers may representa necessary action to meet staffingrequirements for all concurrent specialevents. Many volunteers have no pastexperience in tasks associated with trafficand pedestrian control and parkingoperations. As a result, volunteer trainingbecomes paramount to the success ofday-of-event operations. Chapter 8 containschecklists and relevant considerationsfor assessing personnel resourceneeds and using volunteers on the dayof-event.The chapter also specifies volunteertraining activities and summarizesbasic functions required of all volunteers.Table 14-4Checklist of Implementation and Day-of-Event Activities for Regional/Multi-Venue EventsHANDBOOKAPPLIESACTIONPAGE8-2 • 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.9-6• Establish protocol for traffic management team officials to consider andimplement changes to the traffic management plan to accommodate realtimetraffic 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 transportationusers.9-12 • Perform traffic monitoring on the day-of-event.14EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW14-7

• Multi-venue events may strain availablestakeholder resources needed to managetravel in the vicinity of a particular eventvenue; therefore, traffic managementteam officials should reconfirm theavailability of necessary traffic controland communications equipment prior tothe day-of-event.• To ensure successful traffic managementplan deployment and coordination acrossall venue locations, the traffic managementteam(s) must establish an interagencycommunication structure andprotocol to support regional/multi-venueevent operations on the day-of-event.• Other essential team management considerationsinvolve the set up of a commandpost, most likely at a regionaltransportation management center, formonitoring and managing all venueevents.• Traffic management team officialsshould anticipate enacting modificationsto the traffic management plan(s) duringthe regional/multi-venue event.• Surveillance information and performanceevaluation data define transportationoperation conditions and, thus, influencedecision-making at a day-ofeventbriefing.• Day-of-event briefings should occur atkey breakpoints, such as at the end ofingress/egress operations for a particularvenue event, during a regional/multivenueevent. This allows traffic managementteam officials to reassess thetraffic management and implementationplan for all concurrent events and makerevisions as necessary.POST-EVENTACTIVITIESTable 14-5 presents a checklist of post-eventactivities for regional/multi-venue events.The post-event activities section of thishandbook provides detailed information oncommon techniques, special considerations,and recommended protocol that facilitate theactivities listed in the table.Some distinguishing considerations of thisevent category during the post-event activitiesphase include:HANDBOOKPAGETable 14-5Checklist of Post-Event Activities for Regional/Multi-Venue EventsACTION10-2 • Review measures of effectiveness identified in event operations planningphase.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.APPLIES14-8

• With regard to regional/multi-venueevents consisting of individual nonrelatedvenue events occurring at or nearthe same time, stakeholders may conductpost-event activities specific to individualevents.• Practitioners should reference the posteventactivities guidelines and considerationscontained in Chapters 11 through13, as appropriate, for individual venueevents comprising the regional/multivenueevent.• Post-event debriefings represent a commonand recommended stakeholder activityfor all regional/multi-venue events.o On a regional level, such meetingsmay coincide with a regular trafficincident management team meeting.o The meeting agenda should includediscussion topics on the planningprocess, interagency communication,and coordination of travel managementactivities among individualvenue events on the day-of-event.o A key aspect of a post-event debriefingfor regional/multi-venue eventsinvolves preparing detailed meetingminutes that include the identificationof key successes and lessonslearned.o Considering the potential significanttime between regional/multi-venueevents, stakeholders must chronicledebriefing meetings so that thosestakeholders charged with managingtravel for future events can tap thewisdom of past participants.• The occurrence of a major, single-themeregional/multi-venue event warrants participantevaluations and the developmentof a post-event report. Given the infrequentoccurrence of this event type,post-event activity results represent akey resource in planning for the nextevent occurrence either in the host regionor another locale (e.g., for rovingregional/multi-venue events).PROGRAM PLANNINGProgram planning activities involve the developmentof policies, programs, and initiativesthat facilitate improved planning andmanagement of travel for future plannedspecial events.Program planning for regional/multi-venueevents include activities, as summarized inTable 14-6, aimed at facilitating interagencycoordination both during the event operationsplanning phase and on the day-of-eventwhen concurrent venue events take place.Practitioners should reference programplanning activities contained in Chapters 11through 13, as appropriate, for individualvenue events comprising the regional/multivenueevent. These handbook chapters alsodescribe and recommend various considerationsconcerning policies, regulations, andinfrastructure deployment potentially applicableto recurring, single-theme regional/multi-venueevents.Some distinguishing considerations of thisevent category during the program planningphase include:• A regional transportation committee onplanned special events considers theplanning and resource requirements ofregional/multi-venue events in connectionwith managing all planned specialevents in a region. A primary committeefocus concerns facilitating interagencycoordination and collaboration. For instance,the committee may form a taskforce if stakeholders expect that multiple14EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW14-9

PRODUCTInstitutionalframeworksTable 14-6Program Planning Activities for Regional/Multi-Venue EventsTOPIC• Creation of a regional transportation committee on planned special events (e.g.,oversight team).PAGENO.2-154-25-3• 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. 5-15venue events will impact the same trafficflow routes and/or parking areas over thesame time frame, thus requiring planningand operation as a regional/multi-venueevent.• Two or more stakeholders, representingmultiple jurisdictions and/or disciplines,may establish a joint operations policy toensure a cooperative effort in managingtravel for all planned special events in aregion.• Stakeholders may develop a mutual-aidagreement to facilitate resource sharingand/or reimbursement for services in orderto handle future planned specialevents, particularly events under thiscategory.• A planned special event permit programproves particularly effective for regional/multi-venueevents that, becauseof such characteristics as event attendance,event times of occurrence, andevent locations may (1) conflict withmunicipal or state guidelines and regulationsand (2) impact transportation operationsand the community. For instance,permit regulations may restrictthe approval of a particular planned specialevent if it conflicts with anotherplanned special event. A section on programplanning for local planned specialevents in Chapter 4 provides completeand in-depth coverage on developing apermit program applicable to regional/multi-venueevents and otherplanned special event categories, notablycontinuous events and street use events.• Funding represents a key public agencyconsideration for regional/multi-venueevents in the program planning phase.o Commercial events may involveevent organizers and participantsfrom outside the community hostingthe event.o Prior to initiating event operationsplanning activities for a specific regional/multi-venueevent, stakeholdersshould establish a fundingmechanism for recovering costs incurredin providing services duringthe event operations planning phaseand resources on the day-of-event.o Funding often represents a requirementof a comprehensive plannedspecial event permit program.14-10

CHAPTER FIFTEENRURAL EVENT15OVERVIEWPURPOSEFigure 15-1Rural Event: U.S. Open Championship in Southampton, NYIn order to assist the user in planning for aparticular planned special event, this chapterdescribes an advance planning and travelmanagement process and considerationsspecific to a rural event. It summarizes recommendedpolicies, guidelines, procedures,and resource applications that were previouslydiscussed in the first ten chapters ofthis technical reference. This chapter presentsthese guidelines and procedures in tables,flowcharts, and checklists that can befollowed to help guide the user through allthe stages of a planned special event of thiscategory for a particular locale. AlthoughChapter 3 presents all the steps necessary tomanage travel for a planned special event,this chapter provides a roadmap to helpguide the user through all five phases ofmanaging travel for planned special events,identifying issues, analysis, and productsapplicable to rural events. To further guidereaders, this chapter specifies references tobest practices relating to this event category.INTRODUCTIONIn order to guide the user, this chapter addressesfour key topics, corresponding tofive phases of managing travel for plannedspecial events, including: (1) event operationsplanning, (2) implementation and dayof-eventactivities, (3) post-event activities,DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGPOST-EVENT ACTIVITIESEVENT PROFILE15-1

and (4) program planning. In planning forall planned special events in a region, thefinal section on program planning highlightsissues to consider that evolve from and/orpertain to rural events. By following eachone of the steps and procedures, the userwill have identified and covered all the significantaspects that are necessary to resultin successful management of travel for aplanned special event with characteristicsspecific to a rural event.A rural event encompasses any discrete/recurringevent or continuous eventthat occurs in a rural area. Table 15-1 indicatesdifferent types of planned specialevents classified as a rural event. Ruralevents collectively have the event operationcharacteristics of discrete/recurring events ata permanent venue and continuous eventswith one notable exception; rural events takeplace in rural areas. Table 15-2 lists keycharacteristics of a rural event.Table 15-1Types of Rural EventsEVENT TYPE• Fairs and festivals in rural areas• Events at a rural amphitheater• Events at a rural race track venue• Professional golf tournaments in rural areasTable 15-2Distinguishing Operating Characteristics ofa Rural EventCHARACTERISTIC• Rural or rural/tourist area• High attendance events attracting event patronsfrom a regional area• Limited roadway capacity serving an eventvenue• Area lacking regular transit service• Events having either a time specific durationor continuous durationSpecial ConsiderationsIn light of the characteristics of a ruralevent, special considerations when planningsuch an event include:• Need for stakeholders to assume newand/or expanded roles.• Need to work closely with all affectedstakeholders in order: (1) to gain theirhelp in identifying concerns and (2) tointroduce them to mitigation measuresthat they may be unfamiliar with due tothe rural nature of the area.• Need to work closely with involvedstakeholders so that a trust relationship isestablished, thus lessening sensitive feelingsof an outsider coming in and imposinginitiatives that could overlook thesignificance of local issues.• Existence of limited road capacity to accessthe event venue and potentially limitedparking capacity at the venue.• Existence of fewer alternate routes toaccommodate event and backgroundtraffic.• Lack of regular transit service and hotelsnear the venue.• Existence of limited or no permanentinfrastructure for monitoring and managingtraffic.• Generation of trips from a multi-countyregion.EVENT OPERATIONSPLANNINGThe scope and infrequent/one-time occurrenceof a high-attendance rural event, coupledwith the typical limited capacity oftransportation systems in rural areas, requiresthe event planning team to develop:(1) a feasibility study, (2) a traffic managementplan, and (3) travel demand managementinitiatives (as necessary) in the eventoperations planning phase. The stakeholdercomposition of an event planning team var-15-2

ies by event, as some rural events representcommunity or not-for-profit events whileothers involve commercial dealings. In regardto a community-sponsored specialevent, transportation and/or law enforcementagencies usually bear the responsibility ofdeveloping all of the necessary event planningphase products. Recurring rural events,such as an annual festival or auto race, permitstakeholders to reference a past feasibilitystudy and traffic management plan, coupledwith operations successes and lessonslearned, when conducting advance planningactivities for a future event. However, dueto the significant time between recurring ruralevents, the event planning team must anticipate(1) changes in the operations characteristicsof a future event, (2) modificationsto the transportation system serving theevent, and (3) changes in the community(e.g., land use, socioeconomic, regulations,etc.).Figure 15-2 presents 31 steps in the eventoperations planning process for all plannedspecial events. The flowchart covers developmentand integration of the phase’saforementioned three products. Table 15-3complements the flowchart by providingstep-by-step guidance on issues and recommendedanalyses for a rural event. The tablealso presents reference information containedin this handbook that is specific torural events. While all of the major handbooktopics under event operations planningapply to a rural event, Table 15-3 indicatesagency example applications (e.g., via narrativesor photos) within the context of thisevent category. In turn, practitioners canuse example applications presented for a ruralevent to manage travel for other categoriesof planned special events.The flowchart in Figure 15-2 represents asuggested order of event operations planningactivities. However, as noted below, theevent planning team can modify activities tocreate a dynamic and more effective planningprocess tailored to the scope of a specificplanned special event:• A jurisdiction planned special eventpermit process and requirements willscope, schedule, and direct event operationsplanning activities for rural events,particularly continuous events occurringin rural areas.• Based on lessons learned from past specialevents at a particular permanentvenue, stakeholders may program newinfrastructure or adopt new policies (e.g.,parking restrictions) early in the eventoperations planning process.• Links between process steps are twowayas stakeholders evaluate alternativestrategies and/or integrate traffic managementplan components.• The event planning team can developdifferent traffic management plan componentsconcurrently.The event operations planning process referencesinformation and concepts contained inthe advance planning section of this handbook,and it directs the user to recommendedguidelines, procedures, strategies, and resourceapplications for managing travel for aspecific planned special event. When followingthe process, practitioners should review:• Advance planning and travel managementprocess and considerations providedin Chapters 11 and 12 dependingon the type of rural event.• Important advance planning considerationsand external factors, summarized inChapter 5, that influence planning activities.For instance, effective and rapidstakeholder review of event operationsplanning products requires: (1) an15EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW15-3

Initiate Feasibility Study26TDM andTransit Service1ModalSplit3EventTraffic Generation2Transit Service27Event PatronIncentives4Traffic Arrival andDeparture Rate5Market AreaAnalysis6Parking DemandAnalysis9Shuttle BusService7Traffic DemandAnalysis10LotAssignment11Corridor TrafficFlow Routes13AlternateRoutes14EmergencyAccess Routes15Background TrafficAccommodation8Roadway CapacityAnalysis12Local TrafficFlow Routes16TransitAccommodation20Vehicle Accessand Circulation21Parking Area Designand Operation22Parking OccupancyMonitoring17FreewayTraffic Control18StreetTraffic Control19IntersectionTraffic Control23PedestrianControl24DisabledAccessibility25Analysis andModeling28Traffic IncidentManagementKEY:Traffic PlanningParking PlanningTransit Planning29En-RouteTraveler Information30TrafficSurveillance31Pre-TripTraveler InformationAdvance to Implementation ActivitiesFigure 15-2Event Operations Planning Process Flowchart15-4

STEPNO. PAGETable 15-3Event Operations Planning StepsRural EventEVENT-SPECIFIC ISSUES1 5-20 • Consideration of 100% automobile trips.EVENT-SPECIFIC REFERENCE INFORMATIONTOPICPAGE• Example: Commuter rail service as alternativemode of travel; Figure 5-6.5-20• Public transit not existing or serving area2 7-9surrounding the venue location.• Influence of seasonal population on attendance.3 5-214 5-22• 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 accessto event venue and parking areas.8 5-30• Example: On-site shuttle bus station; Figure 6-9 6-326-3528.• Low capacity local traffic flow routes serving10 6-13multiple parking areas.11 6-3812 6-3813 6-4014 6-41• Impact of high attendance events on backgroundtraffic flow.15 6-4316 6-45 • Example: Exclusive bus route; Figure 6-36. 6-46• Special consideration: Alternative lane operationsfor freeways.6-54• Example: Portable changeable message sign;17 6-496-50Figure 6-38.• Example: Appendix K – Equipment location6-59plan.• Example: Temporary reversible lane operation;Figure 6-1.6-118 6-51• Example: Appendix K – Equipment location6-59plan.• Example: Positive traffic control; Figure 6-54. 6-586-59•19Example: Route marker signs; Figures 6-466-576-55 and• Example: Appendix K – Equipment locationand 6-47.6-56plan.20 6-16• Presence of few roadways providing access tovenues and adjacent parking areas.• Consideration of strategies to increase thecapacity of site access roads and parking areaaccess points.• Potential for event patrons to park illegally onsite access road shoulders.21 6-20 • Likely use of unpaved parking areas.22 6-23• Likely lack of sufficient existing pedestrian23 6-28facilities within area surrounding the eventsite.• Emphasis on pedestrian safety.24 6-32 • Strong consideration for temporary venues.• Consideration of detailed analysis (e.g., tabletop25 6-9exercises) and modeling for high atten-dance events.• Example: Roadway shoulder utilization; Figure6-9.• Example: Strategy for effecting parking areaegress.• Example: Striping additional exit lanes onparking area access roads for egress; Figure 6-11.• Example: Minimizing pedestrian/vehicularconflicts in parking areas; Figure 6-14.• Example: Temporary pedestrian bridge; Figure6-23.6-186-206-206-236-3115EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW15-5

STEPNO. PAGE267-2 to7-1427 7-628 6-7229 6-6130 6-7031 7-14EVENT-SPECIFIC ISSUES• High applicability of high occupancy vehicleincentives, local travel demand management,and charter bus service to this event category.• Roadway network serving the event likely notlighted.• Consideration of quick clearance initiatives toavoid breakdown of critical traffic flow routes.• Emphasis on portable roadside traveler informationdevices.• Emphasis on portable closed-circuit television,field observation, and/or aerial observation.• Communication to a regional audience.• Event patrons likely unfamiliar with roadwaysand the transportation system serving theevent.EVENT-SPECIFIC REFERENCE INFORMATIONTOPICPAGE• Example: Portable lighting; Figure 6-58. 6-73• Example: Congestion warning sign; Figure 6-59.6-73annotated planning timeline, (2) a reviewprocess, and (3) performance standards.Under risk assessment, scenarios relatingto excessive overcrowding may warrantconsideration if planning for a sportingor concert event.• Traffic management plan components inChapter 6 that provide an overview ofvarious principles driving plan developmentin addition to a contingency planchecklist.IMPLEMENTATION ANDDAY-OF-EVENTACTIVITIESImplementation activities represent anessential phase in advance planning for ruralevents. The traffic management team mayinvolve new interagency relationships, and itrequires an event-specific implementationplan to communicate specifics of the newtraffic management plan prepared by theevent planning team. Stakeholder developmentof implementation plan details for anevent at a permanent venue focuses ontransportation operation successes and lessonslearned for previous, similar events atthe subject venue.Because particular rural event types occurinfrequently, stakeholder simulation exercisesprove valuable in assisting traffic managementteam personnel understand theroles and responsibilities of participatingstakeholders in addition to the actions takenon the day-of-event. Exercises must involvefield staff, some of whom represent personnelobtained temporarily from other regionsfor the purpose of increasing local stakeholder(e.g., state police, etc.) staff for anevent. Temporary staff, although possiblyexperienced in traffic control, usually do nothave familiarity with the local transportationsystem or roadways in the vicinity of thevenue site. Equipment testing marks anotherkey consideration as day-of-event operationsat and in the vicinity of the eventsite usually depend on portable equipmentfor traffic control, surveillance, and disseminationof en-route traveler information.These intensive stakeholder activities reflectthe typical unfamiliarity with managingtravel for a rural event coupled with the factthat transportation management activities,on the order required for a planned specialevent, may not regularly take place in thevicinity of the event site.Table 15-4 presents a checklist of implementationand day-of-event activities for15-6

Table 15-4Checklist of Implementation and Day-of-Event Activities for Rural EventsHANDBOOKPAGEACTION8-2 • 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.• Establish protocol for traffic management team officials to consider and implement9-6changes to the traffic management plan to accommodate real-timetraffic 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 transportationusers.9-12 • Perform traffic monitoring on the day-of-event.stakeholders to consider regarding any ruralevent. As indicated in the table, the eventplanning team must determine, based onvarious event operations characteristics(e.g., event type, event location, event timeof occurrence, attendance, market area, etc.)and other external factors, what unique setof activities apply in handling a specificspecial event. In addition, stakeholdersshould review the special considerations andrecommended activities presented in Chapters11 and 12 for discrete/recurring eventsat a permanent venue and continuous events,respectively, as appropriate based on thetype of rural event. The table facilitates fastaccess to handbook sections providing detailedguidance, including recommendedstrategies, protocol, and resource applications,required by users to plan and executethese activities.Some distinguishing considerations of thisevent category during the day-of-event activitiesphase include:APPLIES• The scope of high-attendance ruralevents demand personnel resources thatmay exceed the level of available stafffrom local event stakeholders. Supplementingtraffic management team personnelwith temporary staff and volunteersmay represent a necessary action tomeet staffing requirements for rural specialevents. Many volunteers have nopast experience in tasks associated withtraffic and pedestrian control and parkingoperations. As a result, volunteertraining becomes paramount to the successof day-of-event operations. Chapter8 contains checklists and relevant considerationsfor assessing personnel resourceneeds and using volunteers on theday-of-event. The chapter also specifiesvolunteer training activities and summarizesbasic functions required of all volunteers.• The traffic management team likely includesstakeholder representatives involvedin managing travel for a particularrural event type for the first time. To15EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW15-7

ensure successful traffic managementplan deployment, the traffic managementteam must adopt a formal managementprocess and establish an interagencycommunication structure and protocol tosupport day-of-event operations.• Other essential team management considerationsinvolve (1) the designation ofan Incident Commander for the plannedspecial event and (2) the set up of a temporary,multi-agency command post ator near the event venue.• Traffic management team officialsshould anticipate enacting modificationsto the traffic management plan duringthe rural event.• Surveillance information and performanceevaluation data define transportationoperation conditions and, thus, influencedecision-making at a day-ofeventbriefing. Given the typical lack oftransportation management centers in ruralareas, transportation system operatorsusually monitor system operations fromthe event command post using portableequipment (e.g., laptop computers, devicesusing radio/cellular/spread spectrumradio communication, etc.).• The collection and evaluation of transportationsystem performance dataproves valuable in guiding decisionmakingnot only on the day-of-event butalso for recurring rural events. Stakeholderscan archive raw data for use infuture feasibility studies, and variousevaluation measures can identify specificareas that require improvement for future,similar events.• The traffic management team must exercisegreat care in collecting performanceevaluation data in order to ensure dataquality and consistency.POST-EVENTACTIVITIESAll of the primary products of this phase(e.g., participant evaluation, post-event debriefing,and post-event report) have a highlevel of applicability to rural events. Giventhe infrequent occurrence of rural eventscoupled with the scarcity of travel forecastdata, post-event activity results represent akey resource in planning for future ruralevents in a region.Table 15-5 presents a checklist of post-eventactivities for rural events. The post-eventactivities section of this handbook providesdetailed information on common techniques,special considerations, and recommendedprotocol that facilitate the activities listed inthe table.Table 15-5Checklist of Post-Event Activities for Rural EventsHANDBOOKPAGEACTION10-2 • 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.APPLIES15-8

Some distinguishing considerations of thisevent category during the post-event activitiesphase include:• Practitioners should reference the posteventactivities guidelines and considerationscontained in Chapters 11 and 12, asappropriate, based on the type of ruralevent.• In regard to participant evaluation, ruralevent patron travel surveys yield importantinformation and statistics that canassist practitioners in (1) improving theaccuracy of future rural event travelforecasts and (2) developing travel demandmanagement incentives (e.g., express/charterbus services, event patronincentives) for the market area served byrural events.• Periodic public surveys warrant considerationfor special events under thiscategory as event performance evaluationdata fails to assess all communityimpacts. Survey results alert specialevent stakeholders of impacts to affectedresidents and businesses, in addition tonon-attendee transportation system users,that may continue to occur with eachsuccessive special event at a particularvenue location. As a result, stakeholderscan develop and implement appropriatestrategies (e.g., enforcement, etc.) andregulations to mitigate the identified impact(s)for future planned special events.• Post-event debriefings represent a commonand recommended stakeholder activityfor all rural events.o Written comments should be obtainedfrom temporary, borrowedstaff used on the day-of-event if staffcan not participate in a debriefingmeeting.o A key aspect of a post-eventdebriefing for rural events involvespreparing detailed meeting minutesthat include the identification of keysuccesses and lessons learned.o Considering the potential significanttime between rural events, stakeholdersmust chronicle participantsurvey results and debriefing meetingsso that those stakeholderscharged with managing travel for futurerural events can tap the wisdomof past participants.• The occurrence of a major, recurring ruralevent warrants development of apost-event report. In turn, the report canserve as a working document to assist inadvance planning for the next (year’s)event.• A post-event report for a recurring ruralevent should include an operational costanalysis to assist stakeholders in identifyingpotential cost-saving resource deploymentstrategies for the next eventoccurrence.PROGRAM PLANNINGProgram planning activities involve the developmentof policies, programs, and initiativesthat facilitate improved planning andmanagement of travel for future plannedspecial events.Program planning for rural events includeactivities, as summarized in Table 15-6, onboth a regional and local level. Practitionersshould reference program planning activitiescontained in Chapters 11 and 12, as appropriate,depending on the type of rural event.Some distinguishing considerations of thisevent category during the program planningphase include:15EVENT PROFILE POST-EVENT ACTIVITIES DAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGOVERVIEW15-9

PRODUCTInstitutionalframeworksPolicies andregulationsInfrastructuredeploymentTable 15-6Program Planning Activities for Rural EventsTOPICPAGENO.• Development of a formal planned special event permit program. 4-10• Creation of a transportation operations task force for a recurring rural event orspecific permanent venue.5-3• Development of a joint operations policy. 5-15• Development of a mutual-aid agreement to facilitate resource sharing. 5-15• Traffic and parking restrictions. 5-10• Public-private towing agreements. 5-16• Public information safety campaign. 6-73• High occupancy vehicle incentives. 7-3• Planned alternate route for diverting background traffic around a venue. 6-40• Portable traffic management system. 6-56• Express, charter, or shuttle bus service. 6-327-117-12• Telephone information systems. 7-17• The fixed location of planned specialevent venues (e.g., fairgrounds, amphitheaters,golf courses, and race tracks) inrural areas allow for the easy identificationof stakeholder representatives involvedin planning and day-of-eventtravel management for high-attendancespecial events at these venues. Theserepresentatives may collaborate yearroundas an inter-jurisdictional, multidisciplinetask force, working to: (1)strengthen interagency coordination forfuture special events, (2) identify needsrelative to minimizing community impactsand improving transportation systemoperations during venue events.The latter involves proposing new policies,regulations, and infrastructure deploymentsto support future eventspecifictraffic management plans andtravel demand management initiatives.• A planned special event permit programproves particularly effective for ruralevents that, because of such characteristicsas event attendance and event location,may (1) conflict with municipal orstate guidelines and regulations and (2)impact transportation operations and thecommunity. The program specifies apermit process, coupled with supportingrestrictions and requirements, that allowstakeholders to plan and assess all typesof rural events within a common framework.A section on program planningfor local planned special events in Chapter4 provides complete and in-depthcoverage on developing a permit programapplicable to rural events.• Two or more stakeholders, representingmultiple jurisdictions and/or disciplines,may establish a joint operations policyfor managing travel for all planned specialevents in a region.• Stakeholders may develop a mutual-aidagreement to facilitate resource sharing(e.g., personnel or equipment) and/or reimbursementfor services in order tohandle future planned special events.• Because rural events usually occur infrequentlyand occasionally at temporaryvenues, an infrastructure needs assessmenton the program planning level15-10

should focus on equipment and technologyapplications transferable to managingall planned special events in a regionand/or day-to-day transportation systemoperations.• Funding represents a key public agencyconsideration for rural events in the programplanning phase.o Commercial events may involveevent organizers and participantsfrom outside the community hostingthe event.o Prior to initiating event operationsplanning activities for a specific ruralevent, stakeholders should establisha funding mechanism for recoveringcosts incurred in providing servicesduring the event operations planningphase and resources on the day-ofevent.o Funding often represents a requirementof a comprehensive plannedspecial event permit program.15OVERVIEWDAY-OF-EVENT ACTIVITIES ADVANCE PLANNINGEVENT PROFILEPOST-EVENT ACTIVITIES15-11

THIS PAGE LEFT BLANK15-12

APPENDIX ASAMPLE SPECIAL EVENT PERMITREGULATIONS, APPLICATIONS, AND AGREEMENTSSAN DIEGO, CA: SPECIAL EVENT REGULATIONS ON MITIGATING PUBLIC IMPACTSA-1

WASHINGTON STATE DOT: STATE HIGHWAY USE DURING STREET USE EVENTSA-2

VIRGINIA BEACH, VA: PERMIT APPLICATIONA-3

A-4

A-5

A-6

EVANSTON, IL: SPECIAL EVENT HOLD HARMLESS AGREEMENTA-7

HOT SPRINGS, AR: STREET USE EVENT CHECKLISTA-8

MONTGOMERY COUNTY, MD: SPECIAL EVENT TRAFFIC CONTROL REGULATIONSA-9

A-10

A-11

MARCO ISLAND, FL: SPECIAL EVENT DIRECTIONAL SIGN REGULATIONSWALWORTH COUNTY, WI: COUNTY CODE SECTION 10-28RECOVERY OF EXPENSES INCURRED FOR PROVIDING EXTRAORDINARYGOVERNMENTAL SERVICESA-12

APPENDIX BEVENT-ORIENTED RISK SCENARIO CONTINGENCY PLANSNEW JERSEY DOT CONTINGENCY ALTERNATE ROUTE PLAN FOR THE2000 REPUBLICAN NATIONAL CONVENTIONB-1

ALPINE VALLEY MUSIC THEATRE (WI) TRAVEL DEMAND MANAGEMENTSTRATEGY FOR THE GRATEFUL DEAD – TERRAPIN STATION MUSIC FESTIVALYOUR 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 anticipatedconcerts in our legendary history, Terrapin Station August 3 and 4. As preparation for this incredibleevent continues, we at Alpine would like to answer some very important questions from the fans. A great deal ofthis 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 withouta ticket. You’ve seen letters from the band, you’ve heard announcements on the radio, and, if you were at one ofnumerous concerts around the country in the last two weeks, you were personally handed a flyer reiterating thatmessage.Given that very clear message from the band not to come to Alpine without a ticket, we have worked hard to findto 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 ticketsbefore you leave for the theatre! The checkpoints will begin as you exit the interstate or approach the facility onthe county road system. The right front seat passenger should have all the tickets and be ready to show them atvarious checkpoints on the way to the parking lot. Upon reaching the parking lot, the car will be stopped and thetickets will be validated. At this point any vehicle that does not have a ticket for each person in the car will berefused 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 willbe treated courteously and respectfully. However, a large staff of Alpine Valley employees backed up by thecounty 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 allowedindividuals to get out and become pedestrians. When such a vehicle reaches the final checkpoint, it will be turnedaway 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 willbe 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 thebus or limo has entered, a staff member will come to the vehicle and validate each ticket. If you are on a bus orin a limo, please hold onto your individual tickets. Anyone not having a valid ticket for that performance will berequired to stay in the vehicle. If the vehicle has numerous people in it without tickets, the entire bus includingfans with tickets may be refused entry to the property. Please make sure that everyone has there ticket prior togetting 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. Arethese shows happening?The band has announced, on a conditional basis, a tour for this fall. They have also stated very clearly that thesedates will only play if all goes well at Alpine Valley. Basically, if Terrapin Station at Alpine Valley goes well, thenThe Other Ones will be able to take their magic around the country once again, bringing music and happiness tothousands of people. If it doesn’t, they won’t. Simple as that.B-2

APPENDIX CINTERAGENCY AGREEMENTS FOR SPECIAL EVENT PLANNINGILLINOIS DOT AND ILLINOIS STATE POLICEJOINT OPERATIONAL POLICY STATEMENT ON TRAFFIC SYSTEMS MANAGEMENTC-1

WASHINGTON STATE PATROL AND WASHINGTON STATE DOTJOINT OPERATIONS POLICY STATEMENT ON EVENT PLANNINGC-2

APPENDIX D2003 FAIR SAINT LOUIS EVENT PATRON SURVEYSource: www.fairstl.orgD-1

APPENDIX EREGIONAL DIRECTIONAL DISTRIBUTION FOR 2001 NASCAR KANSAS 400Source: Reference 20 (Chapter 5)E-1

APPENDIX FPARKING AND PEDESTRIAN ACCOMMODATION PLANSLAMBEAU FIELD RECONSTRUCTIONSource: www.packers.comF-1

F-2

APPENDIX GWISCONSIN DOT ORGANIZATION AND DISSEMINATION OFINTER-JURISDICTIONAL ROAD CONSTRUCTION ANDPLANNED SPECIAL EVENT INFORMATIONG-1

G-2

G-3

APPENDIX HEXAMPLE SITE AND PARKING MAPSLAS VEGAS MOTOR SPEEDWAYSource: www.lvms.comH-1

BRISTOL (TN) MOTOR SPEEDWAYSource: www.bristolmotorspeedway.comH-2

JACKSONVILLE (FL) JAGUARS NFL FOOTBALL GAMESSource: www.jaguars.comH-3

PALACE OF AUBURN HILLS (MI)PARKING EGRESS MAPSource: www.palacenet.comH-4

APPENDIX IEXAMPLE TRAFFIC FLOW MAPSNASCAR KANSAS 400Source: Reference 15 (Chapter 6)I-1

TALLADEGA (AL) SUPERSPEEDWAYNote: “Hot Tip” indicates route not usually congested during event ingress.Source: www.talladegasuperspeedway.comI-2

STAPLES CENTER – LOS ANGELES, CASource: www.staplescenter.comI-3

NASCAR DAYTONA 500Source: www.daytona500.comI-4

HOMESTEAD MIAMI (FL) SPEEDWAYSource: www.homesteadmiamispeedway.comI-5

MICHIGAN INTERNATIONAL SPEEDWAYSource: www.mispeedway.comI-6

TEXAS MOTOR SPEEDWAYSource: www.texasmotorspeedway.comI-7

MARTINSVILLE (VA) SPEEDWAYSource: www.martinsvillespeedway.comI-8

APPENDIX JEXAMPLE PROTOCOL FOR PLANNED SPECIAL EVENTTRAFFIC SIGNAL SYSTEM OPERATIONSANAHEIM, CASource: Reference 19 (Chapter 6)J-1

APPENDIX KEXAMPLE TRAFFIC CONTROL PLANSSTREET CONTROL PLANSANTA CLARITA (CA) 4 TH OF JULY PARADESource: www.scvleon.com/parade/K-1

INTERSECTION CONTROL PLANDAYTONA (FL) SPEEDWEEKSSource: Reference 18 (Chapter 6)K-2

FREEWAY SIGNING PLANNASCAR BRICKYARD 400 – SPEEDWAY, INSource: Indiana DOTK-3

EQUIPMENT LOCATION PLANALPINE VALLEY (WI) CONCERT EVENTSource: Wisconsin DOTK-4

EQUIPMENT LOCATION PLANSYDNEY, AUSTRALIA PARADE233554822625333Number of barricadesRoad closurePartial road closureClosure locationContingency closure locationContingency road closure412Darling HarbourSource: Reference 20 (Chapter 6)HICKSON ROADTOWNS PLERSKINE28262672SUSSEX STREETARGYLE STMARGARET 30422662KENT2631KINGMARKET2301STREETSTCLARENCE STREET2311LOWER FORT STGROSVENORYORK STREETBATHURST26130612812712651GEORGE262HARRINGTON RDPITT2256232BRIDGEST301 241STREET3002290HUNTERSTREETPARKSTREETLIVERPOOL STGOULBURN STMartin PlacePitt St MallSTREET235233STREETCASTLEREAGH2432682248ELIZABETHCircular QuayALFRED STSTREET23222282 253LOFTUS STSTREET269STNSW Bush FireParade8 February 20021 3YOUNG STBENT STSTREETJAMESParkHydeSTMACQUARIEPHILLIP STWENTWORTH AVESTREETSTRD315COLLEGE STREETHOSPITAL ROADOXFORD STRoyal BotanicGardens83333222434674226NK-5

APPENDIX LPUBLIC AGENCY AND EVENT-SPECIFIC WEBSITESDAYTONA BEACH (FL) POLICE DEPARTMENTL-1

Source: www.ci.daytona-beach.fl.us/police/special_events_safety_security.htmL-2

CITY OF CHICAGO DEPARTMENT OF TRANSPORTATIONSource: www.ci.chi.il.us/Transportation/L-3

SEATTLE CENTERSEATTLE, WASource: www.seattlecenter.comL-4

ENTERTAINMENT AND SPORTS ARENARALEIGH, NCSource: www.esa-today.comL-5

RICHMOND INTERNATIONAL RACEWAYRICHMOND, VASource: www.rir.comL-6

DTE ENERGY MUSIC THEATRECLARKSTON, MISource: www.palacenet.comL-7

PNC PARKPITTSBURGH, PASource: pirates.mlb.comL-8

APPENDIX MVENUE TRANSPORTATION GUIDESNAZARETH SPEEDWAYNAZARETH, PAM-1

M-2

Source: www.nazarethspeedway.comM-3

FORD FIELDDETROIT, MIM-4

Source: www.fordfield.comM-5

APPENDIX NSAMPLE IMPLEMENTATION PLANSINDIANA STATE POLICE2002 BRICKYARD 400 - TABLE OF CONTENTSSource: Indiana State PoliceN-1

INDIANA DOT2002 BRICKYARD 400N-2

N-3

Source: Indiana Department of TransportationN-4

N-5

Federal Highway AdministrationU.S. Department of Transportation400 Seventh Street, S.W. (HOTM)Washington, D.C. 20590Toll-Free “Help Line” 866-367-7487www.ops.fhwa.dot.govPublication No. FHWA-OP-04-010EDL Document No. 13883NHI Training Course No. 133099Managing Travel for Planned Special EventsPublication No.: FHWA-NHI-03-120N-6