Information Sharing In Traffic Incident Management. Qian Ouyang

Transcription

1 Information Sharing In Traffic Incident Management Qian Ouyang Qian Ouyang, USC, 3620 S Vermont Ave, Kap229, Los Angeles, CA ; qouyang@usc.edu ABSTRACT: Traffic Incident Management is a good way to relief the largest threats of congestion. It is the cooperation of one or more agencies to replace traffic flow to normal situation after an incident has occurred. The key to manage traffic incident is the coordination between numerous stakeholders. Efficient information exchange is critical to reduce the responding time, and enhance the safety of both motorists and responders. Incident Command System and Unified Code provide responders with standardized operating procedures, and directing command personnel better cooperate with one another. Communication method in TIM practice includes face-to-face, remote voice, electronic text and other media and advanced systems. There are ways to disseminate the information to the public. Also, several ITS technologies can be utilized to improve communication. However, certain barriers exist to effective information exchange, including administrative, operational and technological ones. Lots of future work can be accomplished to promote the efficiency of traffic incident management, including interoperable system, mobile applications, cross training and joint operations, and other technical integration. INTRODUCTION In 2006, the U.S. Department of Transportation (USDOT) defined congestion as one of the single largest threats" to the nation's economic prosperity and way of life. In the USDOT's fiscal Year 2006 to 2011 Strategic Plan, reducing congestion has been identified as one of the Department's key strategic goals. Estimated by National Traffic Incident Management Coalition, for every minute a freeway lane is blocked due to an incident, resulting in travel delay time of 4 minutes.. (NTIMC, 2006) According to the calculation by U.S DOT, nearly 60 percent of traffic congestion delay account to non-recurring incidents (disabled vehicle, weather and special events). Improving traffic incident management is one critical key to reducing congestion. Definition In 2000 Traffic Incident Management Handbook, "Incident" is defined as "any non-recurring event that causes a reduction of roadway capacity or an abnormal increase in demand. Such events include traffic crashes, disabled vehicles, spilled cargo, highway maintenance and reconstruction projects, and special non-emergency events (e.g., ball games, concerts, or any other event that significantly affects roadway operations)." (Farradyne, 2000) However, in the updated TIM handbook in 2011, the important role of TIM is highlighted in national preparedness, which is caused by the events of Sep 11, 2011 and the universal impact of major weather events like Hurricane Katrina in The result is that transportation agencies are recognizing the real role of traffic incident management. TIM is more than just a tool to increase mobility and reduce congestion; their roles in responder and motorist safety and secondary incident prevention are being accepted by public agencies. In 2003, the U.S. Department of Homeland Security (DHS) was charged to develop and administer the National Incident Management System (NIMS), whose goal includes ensuring 1

2 U.S. roadways being available for incident response and emerging and establish TIM programs. It has assigned all incident responders to realize and understand the role of each other, regardless of the size or scope. Goal of TIM Traffic Incident Management (TIM) is the cooperation of one or more agencies to replace traffic flow to normal situation after an incident has occurred. At the center of every TIM Program is the operational activity that occurs at the incident scene to quickly, safely, and efficiently clear the incident and restore traffic flow. The process of incident management consists of four steps: incident detection and verification, response, clearance, and recovery (Ozbay, 1999). Detection is the determination of the occurrence of an incident. Verification is the determination of the type and location of the incident. In this process, the different types of traffic sensors, closedcircuit television (CCTV) and freeway service patrol would contribute a lot. Response is the activation, coordination, and management of appropriate personnel and equipment to clear the incident (Ozbay, 1999). Confirming the incident, assessing what needed to be done and requesting help is the main task to be accomplished during this time. Typically, TMC takes responsibility to coordinate traffic and incident communications among incident responding agencies. Clearance of an incident is the safe and timely removal of the incident and termination of the incident conditions (Ozbay, 1999). The incident commander is in charge of the incident scene, diagnosing the problem and making decisions on what kind of private towing equipment to request. Regular training and meetings among the incident responders help incident commanders take measures to ensure the incident is safely and quickly cleared. The recovery phase is the activities taken after an incident is completely cleared, to restore normal traffic flow conditions and prevent congestion from the added new vehicles and the metropolitan traffic network. Traffic management is the tool to achieve the recovery. Stakeholders TIM manages a broad range of incident types, ranging from the minor roadside debris incidents to major natural or manmade emergencies affecting the roadway network. TIM involves more than just clean up the incident, but also managing the affected traffic flow. As the complexity and scale increased in incidents, so the number and type of responders involved. It requires them to communicate effectively to quickly deal with the incident and protect the safety of the responders and drivers. Table 1 shows the different agencies involved in TIM. (Owens, 2010) INTEROPERATION BETWEEN AGENCIES The vast majority of traffic incidents are always managed at the local level by plenty of agencies. Larger-scale incidents may involve agencies from multiple jurisdictions, and a host of Federal, local, and state response agencies, or even in accordance with the National Incident Management System (NIMS). Once there is cooperation, there is potential for the multiple jurisdictions and agencies to overlap. Meetings and training are key activities of multi-agency TIM teams. Tabletop exercises help incident responders visualize what their roles and the impact of their actions on other responders and the incident scene. TIM teams also use regularly scheduled meetings to 2

3 conduct Critical Incident Reviews on major incidents. By doing this after-action discussion, responders can identify what worked and conclude lessons learn to coordinate better in the future. Overall, in order to maximize the safety and ensure the prevention of the secondary incidents, agencies must manage resources effectively, and technology as well Table 1. TIM Stakeholders Traditional Responder Special/Extreme Circumstance Responders Incident Information Providers Transportation System Providers And Users Law Enforcement Hazardous Materials Contractors Public Safety Communications Traveling Public Fire And Rescue Coroners And Medical Examiners Traffic Media Trucking Industry Emergency Medical Services (EMS) Emergency Management Agencies Traveler Information Services Insurance Industry Towing And Recovery Transportation Agencies Environmental/Natural Resources/Department Of Health (DPH) Transportation Agencies Public Transportation Providers Motorist Organizations INFORMATION EXCHANGE Because the non-recurring congestion causes a reduction in roadway capacity or an abnormal increase in traffic demand, normal operations of the traffic flow are disrupted. To better deal with the incidents, reduce the reaction time, enhance the safety of both motorists and responders, and restore transportation network, coordination between multiple agencies is needed. Developing common terminology, definitions, and usage to facilitate understanding is the first step for agencies to talk to each other. ICS and UC ICS is a standardized, on scene traffic management concept that provides an integrated organizational framework for responding to emergency. Incident responders, particularly law enforcement and fire-rescue personnel, federally adopt incident Command System. (Birenbaum, 2009) Originally, ICS was developed for managing the wildfires. In 1980s, ICS is transitioned into the National Incident Management System to form the basis for integrate existing best practices into a unified, national framework. ICS defines the common terminology between agencies, and operating structure for coordinating response, and differing incident response objectives for every responding agencies throughout the life cycle of an incident. It also outlines roles and responsibilities for incident responders. One person directs all incident-related operational activities and reports back to the Incident Commander. It covers every aspect in traffic incident management process in command, operations, planning, logistics, finance and administration. Unified command (UC) defines the application of ICS when there is more than one agency with incident jurisdiction or when an incident crosses multiple jurisdictions. (Birenbaum, 2009) UC sets common objectives and strategies that allow agencies with incident responsibilities to work together. The objectives include agency assignments, priorities of the incident, communications protocols, agency responsibilities and the information about 3

4 procurement and allocation of resources. Face-to-Face Information Sharing Face-to-Face communications are the most common and effective way to exchange information. If responders can communicate openly and share information and coordinate responses directly, it is better for them to understand and discuss. Face-to-Face communication can also happen ahead the incident and afterward. These information sharing occur both on incident scene and within shared facilities. Remote Voice Information Sharing It is common for incident responders share information using voice communication tools that includes telephones and radios. Incident status information then can be shared among the incident scene, operation centers and public safety facilities. Besides, other situations are also involved to remote voice tools in incident and response procedure. For example, public safety personnel are informed of the incident via 911 or other non-emergency assistance number through cellular telephone, land mobile radio network provides first responders information about the incident. Voice messages connect the incident scene and responders, and build a passageway to achieve a quickly adjust to changing conditions. Responders must use ICS guidelines to communicate to avoid misunderstanding of the transmissions. Wire telephone consists of voice and facsimile transmissions. These are sometimes the only way for information sharing among separately housed response facilities. Some parts of the cellular network use portion of the land-line telephone network. Cellular phones and satellite telephones are used for information exchange between on scene and in-facility incident responders. Besides, for motorists, it is a much safer way to call for assistance by cellular phones when they are in an incident or just passing by, rather than getting off the vehicle and find call boxes. Although there would be chances that motorists mistake the exact location thus reduce the accuracy of the report. Responders can use their personal communication devices, such as personal digital assistants, cell phones, and camera phones. By exchanging numbers prior to an incident, they can use personal devices to communicate for incident. However, it is discouraged to do so. Responders have to share frequencies with private sector, which can be overcrowded or unavailable for lots of reasons. In addition, cell phone is usually unable to provide on-site personnel with ability to reach multiple entities at the same time. Moreover, mobile data terminals that are mounted in response vehicles can be another way to communicate. This is a silent form of communication that can avoid the interfering from shared channel. It allows the sharing of sensitive information on a prioritized basis. (Owens, 2010) Radio is the most effective way for multi-agency communication. When there is no need for interagency response, agencies can have their own internal communication group. When cross-communication is required, frequencies can be shared for interoperability, both at the incident scene and within a dispatch center. Also, a single frequency can be established for all responders at scene to allow responders talk directly to each other. In this process, specialized training and procedures should be taken to ensure the security issues, especially for sensitive information shared with law enforcement agencies. 4

5 Electronic text Information Sharing Text is an automated way to broadly and quickly share incident-related information. It transmits the message among large number of agencies and people using minimal resources. Pagers can sent abbreviate messages and can be more detailed. Computer aided dispatch (CAD) system is common used by law enforcement agencies to transmit sensitive information. Limited access is required to satisfy security requirements. Read-only access allows other responders require and adjust response resources more efficiently. Plus, it makes transportation personnel track incident progress through monitoring CAD system possible. Other Media and Advanced Systems Transportation and public safety agencies can also share incident-related information through other integrated technologies. The functions of surveillance and communication technologies in advanced traffic management system (ATMS) enables response personnel track the incident. Intelligent transportation systems (ITS) provide images and detection data for responding agencies. Sensors monitor the flow and volume of traffic, and identify anomalies in traffic flow. Closed-circuit television cameras along the freeway enable agencies visually verify what is happening on incident scene. Ramp meters provide data from lane and ramp metering to control flow into an incident scene and promote a rapid response of an emergency vehicle to an incident scene. Lane control signals can send advance warning to motorists of an incident in a specific travel lane, or a line within a tunnel. (Owens, 2010) Automatic Vehicle Location (AVL) is a tool for dispatch centers locating the vehicle on incident scene. Automatic Crash Notification (ACN) and Advanced Automatic Crash Notification (AACN) is vehicle-equipped tool. When the car is involved in a collision or the airbag is deployed, it automatically sends an alert to a telematics provider. Even more, AACN can predict the severity of the crash and injuries, and facilitate operators to quickly respond and dispatch appropriate assistance to the incident scene. In these situations, private service providers have to build communication with public service providers for real-time information sharing. INFORMATION DISSEMINATION Information dissemination occurs through traveler information system. This information can be shared with motorists, making them aware of the roadway conditions to decide whether to adjust their travels if there is an incident ahead. In likely manner, this same information is helpful for responders arrive, respond, and leave the incident scene more quickly, thus effectively reduce response time. Internet-based traveler information Transportation agencies supply traffic information to commercial information service providers. Then travelers can search the internet to get traveling information. Information service providers can send information directly to communication devices, or to a designated state, regional, county, city, or other local web site. (Owens, 2010) Motorists can search the routing conditions, making sure that there is no incident on the route before them getting out. 5

6 511 Traveler Information Number 511-call is implemented at the state level. It offers touchtone and/or voice-activated serve for traveler to get traveling information. This information includes travel conditions for specific routes or route segments, transit information and special events, which would impact the traffic. It also decides the estimated travel time for certain segment of a freeway to help travelers decide the route, and mode of travel, or even help make decision about whether to delay travel. Highway Advisory Radio Highway advisory radio is an effective way to alert travelers of incidents within an area. However, it is limited. Traveler must tune to the HAR frequency for information, and then the information can be broadcast to the motorists. Dynamic Message Signs Dynamic message signs (or Variable, Changeable, Electronic) are often located on highly traveled roadway to provide traveler information. Fixed DMS can indicate the incident occurrences ahead, and the advanced ones can help control the traffic by letting vehicle change to a faster moving lane. Portable DMS can alert incident management and construction situations. Whether fixed or portable, DMS is the most effective way to provide information regarding to incident status for traveler on the way. EXAMPLES OF SUCCESSFUL INFORMATION SHARING STRATEGIES CapWIN The Capital Wireless Information Net (CapWIN) is a program that was created by, and continues to operate under the direction of an alliance of law enforcement, fire and rescue, and transportation agencies in Maryland, Virginia, and the District of Columbia to advance data communications across agency, jurisdiction, government, and discipline boundaries. (University of Maryland, 2010) The mission of CapWIN is to enable and promote interoperable data communication, operational data access, incident coordination and situational awareness across jurisdictions and disciplines. Currently, the CapWIN membership includes over 7,000 users who transmit more than 15,000 messages every day. CapWIN mobile data provides the client of information, including interoperable communication, incident coordination tools (a sophisticated GIS/mapping interface), and access to multiple local, state and federal databases, which support public safety, transit, and emergency management agency first response. It also has the ability for file and photo sharing, live field updating, and incident event logging. IEN The Information Exchange Network shares information and control throughout LA County. It intends to improve coordination between member agency traffic control systems, and improve incident response and management activities as well. (LA County Department of Public Works, 2009.) It shares incident and traveler information to member agencies along the I-95 Corridor. 6

7 The unique feature of IEN is that they share second-by-second intersection data and support real-time intersection displays, section displays, and arterial coordination. The TransSuite incident tracking and management system enables users to view, respond to and track the incidents and planned events that occur within their roadway network. As a result, operators can view and maintain detailed information about communications between agencies, and arrivals and departures of on-site responders, which enable responders to adjust their efforts to manage the traffic incident better. CHALLENGES TIM teams are always seeking to promote and achieve coordinated communication and realtime, multi-agency information exchange. However, there are challenges existing when agencies are willing to work with others cooperatively. There are plenty of examples of State or local TIM teams that have experienced success and overcome challenges. Because of location-specific constraints, information-sharing practices in one area may not be successfully adopted by other jurisdiction; formal frameworks for response activities and close working relationships enable the improvement for information sharing. Administrative Challenges Information sharing and exchange can only be accomplished by support of strong administrative and institutional foundations at numerous levels. As sharing the same interest and goal, maximizing the safety of responders and motorists, partner agencies have to sit together to establish formal agreements on structure, funding and standard operating procedures. The detailed responsibilities structures are stated in memoranda of understanding/agreement (MOU/MOA). Besides, how public records laws are related to information regarding traffic incidents must be considered. With the ability of real-time transmission of traffic data and incident response information, agencies have to decide not only which way but also when to publish the information. They have to determine the limitation of information sharing, whether is privileged or non-sensitive. Moreover, how to document the recordings and retention the video images (captured via CCTV) is another problem to be solved. As a result of storage and liability issues, most agencies try hard to avoid video retention. These areas have to be considered by multiple levels. Operational Challenges In the process of traffic incident management, personal relationship is a critical element for responders work together at various levels. Staff can establish effective operational procedures to support incident response activities, and overcome barriers. Trust between stakeholders makes themselves participates more actively, and better understand and use of the information they receive. There may also be inter-agency language barriers. Some professions may not fully understand specialized term in other areas. As a result, clear speech and common set of terms are required. Cross training and joint operations are ways to make responders know one another better. 7

8 Technological Challenges The ability to keep pace with technology is important to traffic incident responders. Although information can be shared through various media, the media are not always interoperable, or costs too much. TIM teams find ways to solve the problem. They can reply on commercial communication services, seek means to build communication linkages and thus share proprietary communications or data systems. FUTURE WORKS Interoperable System The most efficient way to accomplish accurate, real-time information sharing and exchange is to develop interoperable systems that exchange data electronically. Real-time exchange and information communication system requires administrative, operational technical coordination. Funding is the most critical element to the system. Also, the traffic incident management related entities have to establish formal agreements ranging from statements of support and cooperation to commitments of agency funding to achieve TIM goals and objectives. Mobile Application for Motorists As mobile phone playing a more and more important part in our daily life, it is common for motorists searching and receiving traffic related information by cellphone. Lots of apps are using data from public agencies through commercial services. Drivers are able to get incident related information from these apps. There are lots of apps available for motorists to use regarding traffic information. For example, Waze is a community-based traffic and navigation app that provides the users with real-time traffic and route to the designated destination. Waze can upload the real-time traffic and road information automatically when motorists driving around with the app open. And it receives reports for accident, hazards, police and other events from the user. Once there is an incident along the designated route, Waze will alert the occurrence of the incident and reroute to avoid the traffic jam ahead. Another example is Sigalert, which can check the incident image through the cameras along the freeway. Additionally, public agencies can use other ways to share information with public. Electronic text is a way for multi-agency communication. Pages and blasts can be sent to the public as a subscription service, or in conjunction with 511 traveler information services to keep motorists informed of traffic conditions. If necessary, it is possible for them to avoid being part of the incident queue by adjustment on their route, thus reduce the incident s impact and duration. Cross Training and Joint Operations Training and tabletop exercises are effective tool for incident responders to visualize how their specific actions impact other personnel and the incident scene as a whole. During the incident management process, saving time improves the safety of on-scene personnel. As technology developing with a high speed, cross training and joint operations makes personnel keep pace with the development. As a result, the efficient information exchange can be accomplished. 8

9 Technical Integration and Data Exchange As for information exchange in traffic incident management, it is of great consequence to identify how different agencies collet and use data. Collecting data using the uniform way provides convenience for agencies to conduct and exchange information once the integration system is established. There are agreements needed to establish. Concerns about sharing sensitive data need to be considered. Law enforcement agencies are prohibited from sharing sensitive information with other transportation agencies. Therefore, to improve TIM communications without compromising security, effective actions should be implemented to filter out sensitive data. Limited access and qualification requirement can be a way to protect these data. Common data dictionaries can be built. The same information can be collected by different agencies in different format. Common data dictionaries help different systems to identify and match this kind of information. Consistent entries for the same data fields are required. Data may enter differently among agencies and personnel within the same agencies. The inconsistent of data formats creates significant barrier for data exchange. As a result, using automated data entry to minimize human interface and establishing clear data entry procedures to standardize manual data entry are ways to release the problem. Common time stamp is also an important element to make consensus. Because of the various agencies participation and different priorities in TIM, incident management agencies may define the process differently. Some agencies may finish their task while other personnel are still on site. Establishing incident starting and closing time is a better way to measure incident duration. A defined standard is required for information exchange. System incompatibility may exist when there is a large-scale, multi-agency incident. It is of great importance to identify and agree to a particular standard to ensure interoperability among all stakeholders. CONCLUSION As TIM teams are looking for better information sharing methods, they can expect to encounter challenges. Administrative barriers can be solved if various entities can sit together to make agreements and negotiate comprehensive standards. Related policies would be made to achieve the goal. As for operating challenges, cross trainings and joint operations, as well as the tabletop meetings, give ways for responders talk to each other and build trust. Knowing what priorities of other agencies will help responding personnel work more efficiently and avoid duplicating works, thus decrease the total reaction time. It is a good way to keep up with the upgrading technologies as well. Also, as the popular usage of mobile phones, developing more apps for users provide the public with updated traffic incident related information. The core of information sharing in traffic incident management is technology. To improve the efficiency of communicating, technological integration is required. Groups of standards would be built to enable the large-scale incident management. Besides, data dictionaries, 9

10 common time stamp and geographic coordination are useful to promote the ability of responding entities to talk to each other. There is much more we can do to decrease the response time and enhance safety during traffic incident management, we can start it from improve the efficiency of information sharing. By paying more attention on relevant issues regarding to administration, operation and technology, we surely can create a better environment to communicate with each other. ACKNOWLEDGMENTS I would like to express my gratitude to all those who helped me during the writing of this paper. I appreciate the opportunity given by ICTPA. I am particularly indebted to ICTPA Southern California Chapter giving me kind encouragement and useful instructions. REFERENCES 600 Maryland Avenue, SW, Suite 755, Washington, DC Vehicle Information Exchange Needs for Mobility Applications Exchange. FHWA-JPO Research and Innovative Technology Administration, U.S. Department of Transportation Bergstrand, Fredrik, and Landgren, Jonas. Information Sharing Using Live Video in Emergency Response Work. Presented at 6th International ISCRAM Conference, Gothenburg, Sweden, Birenbaum, Ingrid. Information Sharing for Traffic Incident Management. Publication FHWA-HOP Federal Highway Administration, Office of Transportation Operations, Burgess, Lisa, Toppen, Alan, and Harris, Mike. Vision and Operational Concept for Enabling Advanced Traveler Information Systems (EnableATIS).FHWA-JPO Federal Highway Administration, U.S. Department of Transportation Carson, Jodi L. Best Practices In Traffic Incident Management. Publication FHWA-HOP Emergency Transportation Operations Office of Transportation Operations, FHWA, U.S. Department of Transportation, Farradyne, PB. Traffic Incident Management Handbook, Federal Highway Administration, Office of Transportation Operations, LA County Department of Public Works, NTIMC: Benefits of Traffic Incident Management, available online: Owens, Nicholas, and others. Traffic Incident Management Handbook. Publication FHWA- HOP FHWA, U.S. Department of Transportation, Ozbay, Kaan, and Kachroo, Pushkin. Incident Management in Intelligent Transportation Systems, Artech house intelligent transportation systems library.norwood, U.S. Department of Transportation, Strategic Plan Fiscal Years ,, Accessed University of Maryland, Capital Wireless Information Net, Accessed Yohanan, David, Truelson, Shawn, and Duensing, Jeremy. Intergrating Clarus Data with the 511 New Yourk Traveler Information System. FHWA-JPO Office of Operations, Federal Highway Administration, U.S. Department of Transportation Zhang, Hongbing, and Khattak, Asad. What Is the Role of Multiple Secondary Incidents in Traffic Operations. Journal of Transportation Engineering, vol136, 2010, pp