2.0 Operator Oriented Description
This chapter describes a typical system in place to disseminate traveler information during a disaster from the vantage point of the ATIS operator, generally a public agency. The operator description includes discussion of the following items:
- Operators and the activities they perform at a high level
- Generalized organizational structure and chain of command
- A general timeline of activities
- Capabilities of a typical ATIS
- Existing structure of information dissemination during a disaster.
2.1 Operators and the Activities they Perform at a High Level
Public agencies most commonly are the operators of an ATIS that is used during disaster events. However, those agencies range greatly in their size, impact on the process and overall level of involvement. They also range across the federal, state, regional and local levels of government.
Transportation Agencies – State DOTs or regional transportation operations control the ATIS assets in a given region. However, even within those organizations, there are multiple subgroups that may have relevant roles. These subgroups typically include TMCs, field/maintenance staff and public affairs staff. The transportation agencies tend to have a dynamic role based on the timeline of the event. These roles can range from an early responder to the event, through supporting the lead agency or incident commander, to managing post-event transportation and possibly the return of an evacuated population.
On-scene Incident Commander via Unified Command Structure – For every event of significance, an Incident Commander assumes the on-scene leadership role to assess the situational status and provide initial direction for assets and often controls the initial release of information to other agencies and to the media. The Incident Commander (typically a high-ranking state police officer or fire chief) works with transportation agencies, when appropriate, to manage traffic and information that impacts the immediate area of the disaster's impact.
State Department of Public Safety (DPS) or State Department of Emergency Management (DEM) – The state DPS or DEM activates an Emergency Operations Center (EOC) for major events or disasters, which is designed to function as the main collection point of information for multiple agencies and decision making. It is this body that typically passes information along to the Joint Information Center (JIC) for message development and dissemination to the public.
Federal Agencies – A large-scale disaster or terrorist event will trigger a response by one or more federal agencies, either within the Department of Homeland Security (DHS), including the Federal Emergency Management Agency (FEMA), or the Department of Justice, which includes the Federal Bureau of Investigation (FBI). These agencies tend to play a coordinating or investigative role after the disaster has taken place, and after local and state agencies' initial response to the event.
Travel Information Services and Media Outlets – Though the media and private sector information providers are not true "users" of the ATIS, they are clearly part of the information dissemination mechanism, and, in some locations, are enveloped more directly in the process. This occurs by having a consistent, known and respected presence at a TMC or EOC. By knowing how the entire process works and knowing the key "users," the private sector is viewed as part of the solution and generally is the most important conduit for distributing information through radio and television reports.
2.2 Generalized Organizational Structure and Chain of Command
During a disaster, the organizational structure and chain of command, and thus the control over what information is disseminated and when, change over time as the needs and conditions of the emergency change. In addition, that same command or control may depend on the specific type of event itself (scale, location, expected duration, etc.), as it depends on the activity itself. This seamless coordination that goes into effect once an emergency has been identified is in fact dormant until necessary.
At the onset of a disaster, or during early detection, most agencies are performing their standard daily duties. For the transportation agency that controls the various ATIS and detection devices, standard information is being provided at this time. Immediately upon detection of an event, the ATIS operator will first determine if there has been any direct impact to the transportation for which it is responsible and will report any critical information to the public, such as roads being impassable in a certain area.
In response to the event, the incident responders will establish an on-scene commander through the unified command structure. At that time, the Incident Commander is in charge of all operations necessary to manage the event. This can include public communications to the media. The ATIS operator is disseminating information based on the Incident Commander's decisions and/or with his guidance. In particular, this may include detours or evacuation/shelter-in-place advice for a specified area. The transportation agency's field staff will also be involved in setting up an official detour, which may involve the use of portable dynamic message signs (DMS).
Upon initial assessment of the event, the EOC and JIC are established as planned and practiced across multiple agencies, which include the state and/or local transportation agencies, as well as public information specialists. During this phase, the ATIS operating agency primarily serves in an advisory capacity as information is tightly controlled via the JIC in conjunction with the EOC and Incident Commander. An issue that has the potential for conflict is local EOC decisions being impacted, or in some cases overruled, by state EOC decisions. State and local authorities need to decide in advance of a disaster which agency takes precedence. Elements that would go into making that distinction include deciding if the people closest to the disaster have a better capacity to make decisions, or if those who are farther away and might see more of "the big picture" should take the lead.
During the recovery phase of the event, which may include assisting evacuees with travel decisions, the ATIS operator will continue to assist the EOC by disseminating various messages regarding the availability of transportation facilities throughout the region, general travel advice, and recommended routes. The ATIS operator will continue to monitor and manage transportation in the remaining area not directly impacted by the event.
2.3 General Timeline of Activities
Operations during a disaster for an ATIS operator can be divided into phases based on a timeline of events and/or which organization is in command:
- Event detection – the detection function is performed by numerous agencies and the general public. Detection can include the DOT staff, who typically report an event to the local 911 center first and then may report it to the ATIS operator, who in turn can report any known impacts on the transportation network they have observed or expect.
- General alert/notification of an event to agency(ies) – in most instances, after an event is detected it must be verified. After verification, all necessary agencies are notified of the event and asked to respond appropriately. For the ATIS operator, this may include posting preliminary information on DMS, website, and other available channels to inform the public and internal staff of an event. In urban settings, ATIS operators may be located in more than one facility, and therefore must recognize the need to communicate with each other so that a consistent message is disseminated between agencies. However, even multiple ATIS operators in one region should be receiving information directly from the JIC.
- Dissemination of information to the public – the information provided to the public can cover many topics given the specific type, its location, time of day, etc. Key information to provide includes but is not limited to the following: whether or not persons need to evacuate an area; if the transportation infrastructure is impacted in any way (is a bridge impassable, are all modes operating?); and if the transportation network is impacted, the public (and other agencies) need to know what other options or detours are available.
- State or local transportation agency support as directed depending on event – during a large-scale event, the ATIS operator, and transportation agencies in general, typically act in a supporting role to the Incident Commander, or EOC, who may solicit input on controlling the event through better traffic management, setting up detours, and using all available tools to provide actionable information to the public.
2.4 Capabilities of an ATIS
Advanced traveler information systems have a variety of dissemination tools available, each meeting a range of needs. A typical ATIS may consist of the following components:
- Website – good for disseminating information to people within the impacted area, those outside of the impacted area, or for informing evacuees of information regarding when and how they should return. Websites are also useful in providing video images to confirm roadway conditions.
- 511 or other call-in telephone systems – best for persons seeking specific information about roadways pre-trip, or during their travel, as conditions and recommendations may be highly dynamic.
- Push technologies – Reverse 911, email, pager and text alerts - these are best for alerting those unaware of a situation and/or those wanting immediate updates without making specific informational queries.
- Private-sector travel information – these services typically collect and disseminate information produced by the public sector, but also have the ability to add privately collected information, which may offer a more comprehensive picture of the event and its impacts. This information is often available across the general media, websites and through push technologies, though there may be an associated fee in some markets.
- Radio and TV media – used as an informational outlet, these media reach the widest group of the population and through multiple channels, whether from home, office or mobile devices.
2.5 Existing System for Disseminating Information
With the above listed ATIS capabilities documented, though not all are available everywhere, the documentation of the existing system or process is developed below.
During the workshop, a baseline model for information dissemination was presented to the group for comment. The information provided by the attendees was collected and added to the original model to create an accurate depiction of a range of existing information dissemination processes. Though generic, Figure 1 shows the relationships across multiple activities required to take place during a disaster to get information out to those who need it.
Figure 1. Information Dissemination Model Developed at Workshop
The information flows depicted in Figure 1 are intended to illustrate the full range of information that is generated and communicated to the public throughout a disaster situation. It should be noted that there are elements of timing and dependency relationships that come into play as a disaster unfolds, as players enter or exit the picture and as information evolves. Moreover, the information flow embodies a continuous feedback loop, which recognizes that the response of the public to the information they receive and the outcome of disaster mitigation. Table 1 further expands upon the aspect of timing according to three disaster stages: early detection and notification, during the event, and recovery. Shown are some of the significant changes in information delivery over the course of the disaster. For example, the earliest stage is marked by uncertainty and incomplete information. As the disaster proceeds, responders become more organized and information to the public coordinated more effectively. Finally, in the recovery stage the urgency has passed but the public, nonetheless, continues to need information about transportation after the disaster.
| Early Detection/Notification | During the Event | Recovery |
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