Army Emergency Management Program - Federation of American ...

demographics and historical data, especially when the Army Installation does not have past historical data on
evacuation and mass care operations.
(1) Planning estimates. Specific populations, such as expeditionary units, are more likely to self-organize and
execute evacuation orders than noncohesive areas, such a large housing areas or hotel facilities. In addition, some areas
change dramatically in terms of population from working hours to nonworking hours, such as industrial facilities,
headquarters facilities, and many AMC installations, which will dramatically change the traffic management issues and
the need for additional transportation support.
(2) Shadow evacuations. Per NUREG/CR–6864, Volume 1, shadow evacuations are defined as spontaneous evacuations
by persons residing outside of an officially declared evacuation zone. These shadow evacuations may impact
transportation availability, evacuation route management, and the need for emergency logistics support, including
provision of water and fuel supplies, to evacuees delayed in heavy traffic. All of these factors impact the evacuation
clearance time estimates directed in this chapter.
(3) Infrastructure impacts. Transportation and information technology infrastructure needs to be considered in all
aspects of evacuation management. Identification of bridges, ferries, tunnels, buses, animal trailers, and aviation
transportation systems as key resources is critical to the successful execution of evacuation orders. For example, high
winds in advance of tropical cyclone landfall may exclude buses and towed trailers 36 or more hours in advance of
landfall, which will require a change in evacuation clearance times and may alter the original evacuation decision
timeline. This is also true regarding flooding, earthquakes, tsunamis, tornados, and volcanoes in addition to a host of
other natural, technological, and terrorism hazards. See the DOT/FHA report for additional information on transportation
considerations.
(4) Hazard correlation. Per NUREG/CR–6864, an analysis of the most significant evacuations from 1990 through
2003 shows that evacuations in preparation for or in response to tropical cyclones (hurricanes and tropical storms)
accounts for only 13 percent of the total. Technological hazards account for 35 percent, wildfires account for 23
percent, and other natural hazards account for 24 percent of the evacuations. In this context, the term “malevolent acts”
covers all terrorism and criminal incidents and accounts for approximately 6 percent of the total evacuations (with
some overlap with technological hazards). This information is relevant in that technological hazards, earthquakes,
tornadoes, and many wildfires have little to no warning time before impact and the lack of advanced warning
dramatically changes the way that evacuation management is executed for these hazards. Reliance on self-coordinated
evacuation days prior to landfall of a tropical cyclone with focus solely on populations requiring transportation
assistance, with special needs, or with animal needs is easy in comparison with a no-notice, immediate evacuation of
all or some of the protected populace for a technological hazard or earthquake. As identified in NUREG/CR–6864,
Volume 1, the greatest capability to manage all-hazards evacuation needs regardless of cause is based upon (1) building
a resilient community through the Ready Army Community Preparedness Campaign, (2) developing and exercising an
installation EM plan with an evacuation management annex, and (3) organizing, training, equipping, and exercising a
task-organized evacuation management team.
g. Emergency planning and interagency coordination. Procedures shall be maintained within the installation EM
plan in the basic plan with Support Annexes developed as necessary to detail tactics, techniques, and procedures for
execution and with additional details identified in the HSAs, as necessary. Evacuation management procedures within
the installation AT plan, installation fire and emergency services plan(s), or other planning documents shall reference
the installation EM plan on all matters related to evacuation. All procedures shall be coordinated in writing with local
civil jurisdictions and receiving remote safe havens. The evacuation planning process includes identifying the available
transportation networks and the capabilities and limitations of each of these transportation methods, especially the
carrying-capacity of proposed evacuation routes and existing or potential traffic bottlenecks or blockages caused either
by traffic congestion or natural occurrences such as rising flood waters or high winds. It is important to keep in mind
that destructive weather and seismic events may limit or completely eliminate some transportation methods, especially
bridges, ferries, tunnels, and mass transit systems. Evacuation planning must incorporate:
Ready Army Community Preparedness training and associated products.
Mass warning and notification system procedures for warning personnel within 10 minutes of incident notification
(immediate evacuation) or issue of the evacuation order.
Personnel accountability procedures per DODI 3001.02.
Route management procedures, to include the use of pre-event signs and signals and procedure for establishing
“reverse-laning” or “contraflow” movement (turning all lanes on both sides of the road to travel in the same direction
away from the hazard area) for increased traffic capacity.
Procedures and resources for the removal of debris and disabled vehicles from the evacuation routes.
Procedures and resources for the provision of fuel, water, and emergency supplies to evacuees along established
evacuation routes, if the situation warrants such actions.
Procedures for supporting and managing medical special needs populations (Category 2SN).
Procedures for providing transportation assistance to populations without access to transportation (Category 2TR).
Procedures for managing animal needs (Category 2AN).
Procedures for non-English-speaking personnel and the visually and hearing impaired.
DA PAM 525–27 20 September 2012
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