Institute of Town Planners, India Journal 7 - 2, 85 - 97, April - June 2010
Formulation of Traffic Management
Strategies in Disasters
Dr. Anil Minhans
Abstract
A traffic management (TM) strategy is a collection of traffic management measures intended
to act upon a given transport situation (traffic problems, special events or transport
development states). Such strategies should contain mutually supportive measures;
otherwise the desired impact is not obtained and often leads to counter-productive results.
This paper presents TM strategies which could be implemented in special cases of disasters.
These strategies were developed as a part of a research program undertaken by the
author. The required TM measures that form the TM strategies were investigated from
disaster-prone or disaster affected regions of India and Germany. These derived TM strategies
were developed with consideration of their impact on both areas of application- traffic
demand reduction and transport supply augmentation
1.
INTRODUCTION
In this paper the traffic management strategies are formulated for disasters. The
main purpose of the strategies is to fulfill the set disaster traffic management
(DTM) goals and objectives pertaining to transport accessibility and mobility,
transport safety and security, transport economics and transport environment. The
DTM goals and objectives are derived from traffic management problems and issues
especially in cases during disasters. The fulfillment of an individual traffic
management objective may involve multiple strategies with minimum conflicts with
each other. The traffic managers in real-time disaster situations implement action
plans (known as strategies) through the set of established mechanisms, referred
here as traffic management modules. The recognition of the type of traffic
management modules makes the implementation of TM measures easier due to
anticipated acknowledgement of necessary processes and resources.
An individual strategy may involve several traffic management modules for the
implementation of an individual measure. Similarly, different measures form a
single strategy for the fulfillment of a defined objective. While the implementation
of different strategies and measures may involve the same traffic management
modules, the individual TM measure can be influenced to perform differently
depending on the needs of a particular strategy through the available traffic
management modules in the local environment of transport development.
The formulation of a strategy consists of identifying the influence areas of traffic
management which are traffic demand reduction and the transport supply
Dr. Anil Minhans, has done B.Tech from Jamia Millia Islamia, New Delhi; Master of Transport
Planning from SPA, New Delhi, and Doctor of Engineering from Darmstadt University of
Technology, Darmstadt, Germany and presently working as Local Program Manager, Central
Texas College-Europe, Heidelberg, Germany. E-mail: [email protected]
Dr. Anil Minhans
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augmentation. The influence area of traffic demand is mainly focused to avoid,
shift and control traffic through five influence types pertaining:
•
to avoid or reduce unnecessary car-mobility,
•
to increase the vehicle utilization in road transport,
•
to shift the use of individual motorized transport,
•
to improve the spatial distribution of traffic volume, and
•
to improve the temporal distribution of traffic volume.
Similarly, influence area concerning transport supply is mainly focused on improving
the transport supply according to four influence types which are:
•
to improve the transport capacity and supply,
•
to reduce the traffic accidents and its impacts,
•
to improve integration between different activities, and
•
to reduce the disturbances in traffic flow.
The given nine influence types are included to cover the full range of disaster
traffic management goals and objectives. In this paper, the purpose and the functions
of a traffic management strategy are defined by the different influence types in
the influence areas of traffic demand and transport supply. A total of nine disaster
traffic management strategies are formulated to influence both the traffic demand
and transport supply during disasters.
2.
DEFINITIONS AND MEASURES OF CLASSIFICATION
In order to explain traffic management strategies, the following definitions are
considered. A disaster traffic management strategy is a predefined action plan for the implementation of a set of traffic
Fig. 1 Illustration of
management measures to improve a specific disaster transport
relationships of TM Strategy,
situation. Following this definition of DTM strategy, a traffic TM modules and TM measures
management measure is defined as a desired realization of an
action that creates traffic impacts towards the desired
improvement of a defined transport situation. A strategy is
implemented in real-life conditions through the identification
of traffic management modules in the local environment of
study area. A traffic management module is an established
traffic influencing process or mechanism for the
implementation of measures.
Following the above definitions, it is clear that implementation
of TM measures in the local environment would require
processes and mechanisms in place e.g. Incident management,
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land-use zoning, road pricing etc. The TM measures (Fig. 1) are very specific in
character e.g. electronic toll collection or manual toll collection of observing road
pricing. Similarly, TM strategy is an indicative of the type of influence on either
traffic demand or transport supply.
A study is conducted to examine the type of TM measures implemented in disasters
that occurred in Germany and India (Table 1). The city of Dresden suffered floods
in the year 2002 and more than 30,000 people were evacuated. In a tsunami disaster
as a result of 2004 Indian ocean earthquake, Nagapattinam, Tamil Nadu was one of
the severely affected regions of India. These two cities are investigated to
understand the type of TM measures implemented.
A total of 39 measures are classified based on transport modes-public transport,
non-motorized transport, individual motorized transport, multi-modal and intermodal transport, and freight transport. Since the explanation of all 39 measures is
beyond the scope of this paper, the classification of TM measures is explained in
the following:
•
Public transport measures are aimed at patronizing the use of public transport
and its associated services. The implementation of public transport measures
are advocated in urban situations which experience a high use of IMT modes
and a heterogeneous traffic flow conditions;
•
Non-motorized transport measures are aimed at the provision of adequate rightof-way for such non-motorized transport modes as bicycles and pedestrians.
The NMT measures include the provision of adequate facilities and the safe
environment for the operations of both pedestrian and bicycle traffic. Such
measures are implemented to harness the potential of cycling and walking to
limit the use of individual motorized transport modes for short trips;
•
Individual motorized transport measures are aimed at improving the traffic
flow conditions and efficiency of IMT modes. Thus, the IMT measures improve
traffic safety, transport economy and transport environment;
•
Inter-modal transport measures are aimed at the provision and organization of
inter-modal facilities especially the parking and transfer points for the purpose
of promoting the use of high capacity or high occupancy transport modes (PT
and IMT);
•
Multi-modal transport measures are aimed at the improvement of the traffic
flow conditions by the multiple modes by a single application of measure. This
category includes measures such as application of green-wave for all road
transport modes and pre-emption of traffic using traffic signal control; and
•
Freight Transport Measures are mostly aimed at minimizing the conflicts between
FT and other modes. This category also involves the use of available capacities
of FT modes by coordinating different FT operators. In addition, the measures
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Table 1 Traffic Management Measures Classification
S.No. Classification and Title of Measurs
PT
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
NMT
1.
2.
3.
IMT
1.
2.
3.
4.
5.
6.
MIM
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
FR
1.
2.
3.
Invstigated regions
Dresden
Nagapatinam
Public Transport Measures
Economic or Preferential Incentives for Public Transport
X
Public Transport Network Improvements
9
Public Transport Scheduling Improvements
9
Public Transport Accessibility Improvements
9
Personalized Para-transit Services
X
Public Transport Right of Way Prioritisation
9
Disaster Traffic Priority Assignment
9
Disaster Transport Services
9
Public Transport Information Services
9
Public Transport Management Center
9
Inter-state Transport Operations
9
Non-Motorised Transport Measures
Establishment of Footpaths & Facilities
X
Establishment of Bicycle lanes & Facilities
X
Establishment of Automobile restricted zones
9
Individual Motorised Transport Measures
Carpooling and other Ride Sharing Programs
9
Car Rental Services
9
Fuel and Vehicle Taxes
X
Special Traffic Rules Enforcement
9
Vehicle Improvements
9
Automobile Roadway Repair Service
9
Multimodal and Intermodal Transport Measures
Road Network Control (Diversion Routes establishment)
9
Road Network Control(Access and parking Restrictions)
9
Road Section Control (HOV Lanes Establishment)
9
Road Section Control(Speed Management)
9
Park and Ride Facilities
9
Park and Share Facilities
9
Alternate Trip Schedules and Trip substitutions
9
Interoperable and Multi-functionalTransport
X
Multimodal Integrated Time Scheduling/Connection Matching
X
Trip Chaining/Multipurpose Tours
?
HOV Economic or Preferential Incentives
X
Improvement of Junction Control
9
Improvement of Traffic Signal Control
9
Land use ordinances
X
Traffic and Disaster Information Updates
X
Work Zone Coordination and Management Centre
X
Freight Transport Measures
City Logistics System
X
Household Goods Delivery Transportation System
X
Freight Traffic Operations Control
X
Note: 9=Implemented or observed, ? = unkown, X= Partially or not implemented
Dr. Anil Minhans
9
9
9
X
X
X
9
9
X
9
9
X
X
?
X
X
X
X
X
X
9
9
9
X
X
X
X
9
9
?
X
X
X
9
9
9
X
X
X
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that reduce the environmental impacts of freight transport are also covered in
this category.
3.
TRAFFIC MANAGEMENT STRATEGIES
The basis of the formulation of disaster traffic management strategies is the
established disaster traffic management goals and objectives. The establishment
of disaster TM goals and objectives is based on the transport situations in disasters.
The disaster transport situation consists of: (i) traffic and transport problems due
to disaster impacts on transport supply and traffic demand; (ii) the transport
development state of the disaster affected area; and (iii) traffic and transport
operations performance.
Thus, a disaster traffic management strategy involves many individual traffic
management modules for its implementation and success. The TM modules are
aimed at implementing the traffic management measures and fulfilling the purpose
of TM strategies. The TM measures could be influenced through the traffic
management modules based on the requirements of a particular strategy. The
fulfillment of an individual TM objective may involve multiple strategies, modules
and measures that have minimum mutual conflicts between them.
A strategy can influence both the traffic demand and the transport supply. A total
of nine TM strategies are formulated that cover a full range of TM objectives in
disasters. The intended impacts of each TM Strategy on traffic demand and transport
supply with a selection of possible measures are explained in the following sections.
The initial five strategies explained in the later sections are traffic demand reduction
strategies and last four strategies are transport supply augmentation strategies.
3.1
Strategy to avoid or reduce unnecessary car-based mobility
Mobility is indispensably integrated in the today’s society and economic processes.
Mobility is an essential requirement to achieve a standard of living and for an
economic growth. But in exceptional cases like disasters, there is often a need to
trade-off mobility options due to the transport deficit and increased traffic demand.
The unnecessary mobility is a non-urgent mobility which can be replaced or
substituted by providing different transport modes, transport destinations and
transport times and thereby facilitates the needs of urgent mobility. Mobility cannot
be prevented completely and therefore mobility-reduction need not be an aim of
any strategy. This strategy is instead focused on evolving new mechanisms when
mobility is no longer necessary (more favorable land use) and by influencing the
traffic demand to be more effective such as substitution by linking trips, substitution
by technology and substitution by trip modification.
Possible measures of the strategy: Economic or preferential incentives and
disincentives (alternate modes, destinations and times), Trip reduction ordinances
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(compulsory closing of public and private establishments, alternative or flexible
work schedules), Land-use modification ordinances (temporary land-use zoning),
Traffic and disaster information service, City logistics system (freight transport
coordination schemes), Household goods delivery transport system (home shopping
network).
3.2
Strategy to increase the vehicle utilization of transport modes
This strategy increases the vehicle utilization without increasing the traffic volume
on the roads. This strategy addresses the basic problem of the low-occupancy
vehicle usage in motorized transport modes in disasters. Strategy proposes the full
usage of passenger and freight capacity of vehicles and suggests the interoperability
of transport modes in view of high traffic demand and low transport supply.
Possible measures of the strategy: Economic or preferential incentives and
disincentives (alternate modes, destinations and times), Carpooling and other ridesharing programs (car-sharing schemes), Road section control (high occupancy
vehicle lanes), Traffic and disaster information service, City logistics system (freight
transport coordination schemes).
3.3
Strategy to shift the use of individual motorized transport
The reduction of car use as well as shifting the car use to other transport modes is
an important strategy to overcome accidents, reduce pollution and improve the
economy of transport operations. This strategy is used to either shift the use of car
to other motorized propulsion-based transport modes such as trains and buses or
non-motorized-propulsion based transport modes such as walking or cycling. The
application of this strategy does not hinder mobility but its application recommends
restrictions on the selection and use of individual motorized transport modes. The
strategy also proposes the approach of using the inter-modal and multi-modal
transport for the needs of mobility. In this strategy, inadequate road capacity
problems are solved with effective utilization of available capacities of alternative
means of transport.
Possible measures of the strategy: Economic or preferential incentives and
disincentives (alternate modes), Establishment of pedestrian routes and facilities,
Establishment of bicycle routes and facilities, Road network control (automobilerestricted zones), Improvement of inter-modal and parking facilities (park and
ride, park and share), Road section control (HOV lane management), Traffic and
disaster information service (information kiosks).
3.4
Strategy to improve the spatial distribution of traffic volume
This strategy addresses the problem of congestion of road network due to a
disproportionate use of the capacity of the road. A proportionate distribution of
traffic on the network increases the transport capacity while decreasing the traffic
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congestion and related impacts on the affected corridors. This strategy can be
applied to facilitate the priority of disaster-related emergency traffic due to
ambulances, police and fire-brigade vehicles. The principle of vehicle segregation
is used to segregate traffic based on needs of the road capacity for other priority
traffic. Segregation of traffic includes both motorized traffic (vehicle to vehicle
segregation) and non-motorized traffic (vehicle to pedestrian/bicycle segregation).
Traffic management objectives; especially safety and environment objectives, are
fulfilled by the application of this strategy. The spatial distribution of traffic affects
the destination selection as well as the route selection by the road user. Thus, the
selection of alternate routes and alternate destinations should be adequately
compensated by equivalent benefits such as reduction of travel time. However
there exists a problem to attain the collective optimum and individual optimum
simultaneously.
Possible measures of the strategy: Economic or preferential incentives and
disincentives (alternate routes and destinations), Land-use modification ordinances,
Road network control (automobile- restricted zones, access restrictions and modes
segregation), Improvement of signalized traffic control (traffic signal control),
Improvement of non-signalized traffic control, Improvement of inter-modal and
parking facilities (parking management), Traffic and disaster information service
(commercial radio and television, dynamic message signs)
3.5
Strategy to improve the temporal distribution of traffic volume
This strategy addresses the issue related to inefficient temporal distribution of the
traffic volume. High traffic volumes during certain times can lead to deficit of
supply capacity on certain corridors due to concentration of disaster management
activities. In cases where the infrastructure supply capacity is underutilized during
non-peak periods, this strategy influences the time selection of road users to
optimize the use of transport supply in disasters.
Possible measures of the strategy: Economic or preferential incentives and
disincentives (alternative work schedules/flexible work schedules/compulsory
closing of public and private establishments), Land-use modification ordinances,
Freight traffic operations control (freight transport entry time restrictions), Special
traffic rules enforcement (access restrictions), Improvement of signalized traffic
control (traffic gating), Work- zone coordination and management centre (roadway
maintenance management including weather management), Traffic and disaster
information service (commercial radio and television, dynamic message signs)
3.6
Strategy to improve the transport supply capacity
This strategy primarily addresses the improvement of the transport infrastructure
to increase the utilization of available transport infrastructure and operation
capacities. Thus, the strategy includes the operational and administrative measures
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to optimally utilize the transport capacity. The construction of new infrastructure
is ruled out in this strategy except for minor construction, repair and maintenance
of existing infrastructure. The infrastructure is improved for all transport modes
by addition to the vehicle fleet for all transport modes, establishment of routes
for pedestrians and cyclists, development of missing links and the use of existing
non-designed transport spaces for transport purposes.
Possible measures of the strategy: Special disaster transport services (agreements
on transport service operations), Land-use modification ordinances (temporary
land-use zoning) Public transport network improvement (extension and modification
of routes), Public transport scheduling improvement (vehicle rotation plans), Public
transport accessibility improvement (feeder services, pedestrian and bicycle
routes), Public transport capacity improvement (additional wagons), Road network
control, Road section control, Traffic and disaster information service, Work- zone
coordination and management centre.
3.7
Strategy to reduce traffic accidents and their impacts
This strategy addresses the traffic and transport issues related to traffic accidents
which cause multiple disturbances in traffic and reduce the capacity of the transport
infrastructure. Therefore the strategy is intended to reduce both the occurrences
of traffic accidents and the negative impacts of traffic accidents on the traffic
flow.
Possible measures of the strategy: Special traffic rules enforcement (vehicle
improvement), Improvement of signalized traffic control (emergency vehicle
priority) Improvement of non-signalized traffic control (speed control, visibility
enhancement), Traffic and disaster information service (traffic message channel,
disaster training and exercises, traffic education and public awareness), Workzone coordination and management centre (roadway maintenance management
including weather management, information management).
3.8
Strategy to improve integration between traffic-related activities
This strategy adopts a multidisciplinary approach to maximize the efficiency of
existing transport systems. Three main characteristics of this strategy are
acknowledged. The first main characteristic of this strategy is the integration of
modes by synchronizing the travel time tables of various transport modes. The
second important characteristic of this strategy is the change of designated use of
modes for maximizing the vehicle capacity and minimizing the empty fleet
(interoperable transport). The third important characteristic of this strategy is
the integration of various activities to minimize the traffic demand and maximize
the resource utilization. The synergy effects of this coordination are important for
the traffic management. Multi-tasking of activities and modification of roles of
traffic management are some examples of this strategy implementation.
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Possible measures of the strategy: Public transport scheduling improvement
(synchronized travel time tables), Trip reduction ordinances (inter-operable
transport, trip chaining) Work- zone coordination and management centre (manual
traffic control), Disaster traffic management centre (disaster site traffic control,
roadway maintenance), Traffic and disaster information service (pre-trip and enroute information)
3.9
Strategy to reduce the disturbances of traffic flow
This strategy is implemented to reduce the disturbances in traffic flow which
originate from sources other than from construction sites, roadway maintenance
services and accidents. The strategy includes disturbances in the traffic flow which
could be due to prevailing weather conditions during disasters (rain, snow), poor
driving behavior (sudden braking or other technical reasons) and non-incident
related vehicle breakdowns among other similar sources of traffic flow disturbances.
This strategy also reduces the consequences of disturbances on traffic flow.
Possible measures of the strategy: Special traffic rules enforcement (vehicle
improvement, speed limits), Road section control (lane management, speed zoning)
Improvement of signalized traffic control (traffic signal control), Improvement of
non-signalized traffic control (visibility enhancement), Work- zone coordination
and management centre (accident and incident management, roadway maintenance
management), Traffic and disaster information service (In-vehicle traffic
information and route guidance, disaster training and exercises)
4.
CONCLUSIONS
Traffic Management in disasters will continue to gain significance in the future and
will be an important area in order to achieve all the functions of disaster
management concerning transport. The success of traffic management and thereby
disaster management can be achieved if all the influence types of the strategies
are properly addressed and current modules and measures are effective. In cases
where the intended influences are not met, the formulated strategies can provide
framework of innovative attempts for the development of necessary modules and
measures.
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