National Academies Press: OpenBook

A Guide to Emergency Quarantine and Isolation Controls of Roads in Rural Areas (2008)

Chapter: Section 5. Traffic Control in Agricultural Emergencies

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Suggested Citation:"Section 5. Traffic Control in Agricultural Emergencies." National Academies of Sciences, Engineering, and Medicine. 2008. A Guide to Emergency Quarantine and Isolation Controls of Roads in Rural Areas. Washington, DC: The National Academies Press. doi: 10.17226/23078.
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Suggested Citation:"Section 5. Traffic Control in Agricultural Emergencies." National Academies of Sciences, Engineering, and Medicine. 2008. A Guide to Emergency Quarantine and Isolation Controls of Roads in Rural Areas. Washington, DC: The National Academies Press. doi: 10.17226/23078.
×
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Suggested Citation:"Section 5. Traffic Control in Agricultural Emergencies." National Academies of Sciences, Engineering, and Medicine. 2008. A Guide to Emergency Quarantine and Isolation Controls of Roads in Rural Areas. Washington, DC: The National Academies Press. doi: 10.17226/23078.
×
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Suggested Citation:"Section 5. Traffic Control in Agricultural Emergencies." National Academies of Sciences, Engineering, and Medicine. 2008. A Guide to Emergency Quarantine and Isolation Controls of Roads in Rural Areas. Washington, DC: The National Academies Press. doi: 10.17226/23078.
×
Page 44
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Suggested Citation:"Section 5. Traffic Control in Agricultural Emergencies." National Academies of Sciences, Engineering, and Medicine. 2008. A Guide to Emergency Quarantine and Isolation Controls of Roads in Rural Areas. Washington, DC: The National Academies Press. doi: 10.17226/23078.
×
Page 45
Page 46
Suggested Citation:"Section 5. Traffic Control in Agricultural Emergencies." National Academies of Sciences, Engineering, and Medicine. 2008. A Guide to Emergency Quarantine and Isolation Controls of Roads in Rural Areas. Washington, DC: The National Academies Press. doi: 10.17226/23078.
×
Page 46
Page 47
Suggested Citation:"Section 5. Traffic Control in Agricultural Emergencies." National Academies of Sciences, Engineering, and Medicine. 2008. A Guide to Emergency Quarantine and Isolation Controls of Roads in Rural Areas. Washington, DC: The National Academies Press. doi: 10.17226/23078.
×
Page 47
Page 48
Suggested Citation:"Section 5. Traffic Control in Agricultural Emergencies." National Academies of Sciences, Engineering, and Medicine. 2008. A Guide to Emergency Quarantine and Isolation Controls of Roads in Rural Areas. Washington, DC: The National Academies Press. doi: 10.17226/23078.
×
Page 48
Page 49
Suggested Citation:"Section 5. Traffic Control in Agricultural Emergencies." National Academies of Sciences, Engineering, and Medicine. 2008. A Guide to Emergency Quarantine and Isolation Controls of Roads in Rural Areas. Washington, DC: The National Academies Press. doi: 10.17226/23078.
×
Page 49
Page 50
Suggested Citation:"Section 5. Traffic Control in Agricultural Emergencies." National Academies of Sciences, Engineering, and Medicine. 2008. A Guide to Emergency Quarantine and Isolation Controls of Roads in Rural Areas. Washington, DC: The National Academies Press. doi: 10.17226/23078.
×
Page 50

Below is the uncorrected machine-read text of this chapter, intended to provide our own search engines and external engines with highly rich, chapter-representative searchable text of each book. Because it is UNCORRECTED material, please consider the following text as a useful but insufficient proxy for the authoritative book pages.

41 Section 5. Traffic Control in Agricultural Emergencies This section presents a taxonomy of policies and procedures that would be used in an agricultural emergency. The taxonomy of policies and procedures was developed to provide a context for the traffic control procedures that were developed for the guide. Traffic control is required by quarantine and is one of the important components of a response plan. All the actions required by quarantine are associated, so it is difficult and unrealistic to address traffic control without addressing the other components of the response. The taxonomy, presented in Table 3, is based on lessons learned from the literature review and from interviews with state and local officials. It represents the research team’s best assessment of how most emergency response plans would operate in an agricultural emergency, including the roles and responsibilities of the many responders to the emergency. For purposes of structuring a guide for quarantine and isolation controls in a rural area, parts of the taxonomy have been defined in specific terms which may or may not agree with procedures found in all state and local agencies. This section addresses the timeline of an agricultural emergency, the considerations for traffic control that are evident based on this timeline, the command structure that would be used in most incidents, and resource lists and emergency management assistance compacts that should be developed during planning for an agricultural emergency. 5.1 Timeline of an Agricultural Emergency Response The taxonomy of policies and procedures is divided into three phases based on our understanding of how an agency would respond to an outbreak of a foreign animal disease (FAD). The first phase is termed the “planning” phase and describes actions to be taken prior to a FAD detection. The second phase covers a short period between when symptoms of a disease are reported to when a complete diagnosis is received from a USDA authorized laboratory. We estimate this period to be 24 to 72 hours long. This time may vary according to the geographical location of the outbreak, but we believe this is a reasonable estimate. During this period of time the LEOPs and SEOPs of affected agencies can be initiated; however, the quarantine boundaries will not encompass a greater area than the immediate infected premises until a diagnosis from a USDA authorized laboratory is received. The third phase covers a longer period, beginning with a positive confirmation of a foreign animal or plant disease and ending when the disease is eradicated. It is assumed that a quarantine (road blocks or stops) beyond the immediate vicinity of the infected premises can only be established in the third phase.

Table 3. Transportation Policy Procedure Taxonomy Phase 1: Planning Prior to Incident Phase 2: Initial Response: Detection to Confirmation Phase 3: Long-term Response: Confirmation to Restoration Personnel Tasks Personnel Tasks Personnel Tasks Responsible Person or Incident Commander County Emergency Manager Initiate planning, preparation and training for the county's response to a FAD. Law Enforcement Provide enforcement for Foreign Animal Disease Diagnostician (FADD) issued quarantine if necessary. Begin to assess required traffic control if test results are positive and a six-mile radius buffer zone is required. Incident Commander Request state or federal resources or assistance if needed. Act as liaison between local, state and federal response. Identify no-access points and controlled-access points. Fire and EMT personnel Become familiar with disinfection procedures for different possible foreign animal diseases. Identify what equipment is needed and where it can be obtained. Land owner where disease is suspected (farmer, producer, grower, etc.) Comply with FADD's instructions regarding animal movement and care and disinfection of vehicles and persons. Stop scheduled deliveries and visits to the premises. Law Enforcement Supervise staffing at traffic stops and road blocks, ensure problems are being addressed and training and guidance are provided as needed. Local producers and producer organizations Implement biosecurity measures. Educate about all producers and livestock in the area (by required or voluntary registration). Encourage voluntary cooperation with quarantines and stop movement orders. FADD (Foreign Animal Disease Diagnostician) or other qualified veterinarian who can act on behalf of the state veterinarian Remain on premises, issue verbal quarantine if necessary, monitor, and control traffic into and out of infected premises. Maintain communication with state veterinarian. Make contact with county and state emergency manager. Direct law enforcement in securing immediate premises. Assist fire department or other responders with disinfection for people and vehicles that must enter and exit the premises. State Department of Agriculture personnel Coordinate care of animals stopped in the county. Study epidemiology of outbreak to determine quarantine area and necessary biosecurity and disinfection measures. Law Enforcement Assess ability to enforce traffic stops. Determine availability and location of additional resources for closing roads or implementing traffic stops (signs, barricades, patrol cars, etc.). Create emergency management assistance compacts with surrounding jurisdictions to provide help with and resources for traffic control efforts. County Emergency Response Team Use county's Local Emergency Operations Plan (LEOP) to begin preparing for an emergency response. Provide support to FADD in basic emergency support function areas as needed. Public Information (PI) Officer should coordinate with PI personnel at the state level to prepare statements for the public if the FAD is confirmed. County Emergency Response Team (and SEMA, FEMA if needed) Implement county's Local Emergency Operations Plan (LEOP) [in conjunction with State Emergency Operations Plan (SEOP) if SEMA is involved] to provide and manage emergency support functions. County engineer and public works Work with sheriff to identify signs, barricades, and other equipment. Help identify local roads with high livestock traffic. Determine roads suitable to serve as detours for truck traffic. State Department of Agriculture personnel and SEMA Prepare for state emergency response if FAD is confirmed. County Engineer and Area DOT Engineer Finalize and implement detour plans according to quarantine area developed by epidemiologists. Public Health Department Ensure health of responders Other Personnel Area engineer and maintenance crew from state DOT Work with law enforcement and county public works to identify signs, barricades, and other equipment. Help identify state routes with high livestock traffic. Develop highway detour plans. Public Health Department Advise on PPE needed according to disease suspected. Public Works and DOT Maintenance Crews Install and maintain barricades and signs at road closures, detours, and traffic stops. 42

43 Table 3. Transportation Policy Procedure Taxonomy (Continued) Phase 1: Planning Prior to Incident Phase 2: Initial Response: Detection to Confirmation Phase 3: Long-term Response: Confirmation to Restoration Personnel Tasks Personnel Tasks Personnel Tasks State Department of Agriculture representatives Provide training and information regarding the state policies and procedures during an FAD outbreak. State and Federal Agencies (DOT, Dept. of Conservation, Highway Patrol, National Guard) Fulfill roles as defined in SEOP. Support local authorities as needed. Public Health Department Prepare information about risk to humans from various FADs. Other Volunteers (firefighters, contractors, off- duty officers or maintenance staff, community groups) Provided additional support and equipment as needed (traffic control, disinfection, care of animals, provide equipment). Authority for Quarantine or Stop Movement State Veterinarian, Governor, Livestock Commissioner or State Department of Agriculture Director Depending on the state, one of these officials may issue quarantines or stop movement orders when a FAD is suspected or detected in his or her state or in other states in the United States. Foreign Animal Disease Diagnostician or other qualified veterinarian States may have varying policies on who has the authority to issue a quarantine on behalf of the state veterinarian, but in all cases, a FADD who has inspected the animals and believes that a FAD is possible or highly likely can issue a quarantine on behalf of the state veterinarian. The quarantine can prohibit the movement of animals and can require disinfection of people who must leave the premises. State Veterinarian, Governor, Livestock Commissioner or State Department of Agriculture Director, Secretary of Agriculture (USDA) States may have varying policies on who is responsible to declare a quarantine or stop movement order, but once a FAD is confirmed, it is likely that livestock movement in the region, and potentially across the county, will be stopped completely. Traffic Control Identify routes of high animal traffic. Locate producers. Estimate livestock moved into, out of, and through the county. Plan detours for major routes and routes that pass through farms or near feedlots, sale barns, slaughterhouses, etc. Restricting movement into and out of infected and surrounding premises. Farm entrances blocked with patrol cars, or other barriers in place. Certain local roads around the premises might be closed using patrol cars, barricades, hay bales or other devices. Epidemiologists will determine size of infected zone and buffer zone (estimated 6- mile radius). All routes in and out should be closed or staffed as a traffic stop and disinfection station. Stops and closures should be to MUTCD standards as resources and time allow.

5.2 Considerations for Traffic Control The Manual on Uniform Traffic Control Devices (MUTCD) specifies the required traffic control devices for a work zone or incidents based on the duration of the work or incident. The duration categories are: • Long-term stationary—work that occupies a location for more than three days • Intermediate-term stationary—work that occupies a location for more than one daylight period and up to three days, or nighttime work lasting more than one hour • Short-term stationary—daytime work that occupies a location for more than one hour within a single daylight period. • Short duration—work that occupies a location for up to one hour • Mobile—work that moves intermittently or continuously Chapter 6I of the MUTCD covers control of traffic in incident management areas and states that the purpose of traffic control at an incident is to move road users reasonably safely and expeditiously past or around the traffic incident, to reduce the likelihood of secondary traffic crashes, and to preclude unnecessary use of the surrounding road system. It also states that for traffic incidents of an emergency nature, temporary traffic control (TTC) devices on hand may be used for the initial response as long as they themselves do not create unnecessary hazards. It also states that if temporary devices such as flares are used, they should be replaced by more permanent devices as soon as possible. The research team’s interpretation of the MUTCD is that traffic control at a quarantine boundary would be categorized as “long-term stationary” and that available materials such as hay bales, old tires, gates, or even vehicles with yellow flashing lights could be used in the early part of a response. However, these minimal traffic control measures should be replaced with more standard traffic control devices as soon as they become available. Also, the traffic control devices should not create unnecessary hazards. For example, vehicles should not be placed across a road where a driver who doesn’t stop has no recourse but to run into the side of the vehicle. Traffic control devices used at night should be lighted or retroreflective. A confirmed foreign animal disease will require an immediate 3- to 6-mile (5- to 10-km) radius quarantine. In a rural county, an estimated 10 to 35 vehicle entry and exit points along the quarantine boundary will have to be barricaded or manned in order to control traffic into and out of the area. The following groups of vehicles will have to be handled: • Agriculture vehicles passing through quarantined area • Agriculture vehicles trying to enter quarantined area to make deliveries/pickups, etc. • Agriculture vehicles trying to exit quarantined area 44

• Any vehicles being used to smuggle livestock or poultry • Nonagricultural vehicles passing through • Nonagricultural vehicles entering or leaving • Emergency vehicles Very few formal quarantine traffic control plans were found in the literature review with the exception of Nebraska’s Traffic Control Monograph. This monograph is included in Section 2.5 and discussed in more detail in Section 6. Almost every response plan indicated that law enforcement would be responsible for enforcing quarantines and movement restrictions, but no information was found concerning the details of how the enforcement would be implemented. Stakeholders outside of the law enforcement community tend to leave traffic control tasks up to local law enforcement. While police officers and sheriff’s deputies have the most experience with law enforcement road blocks and traffic stops, they are not aware of the nature of a quarantine, and they are poorly equipped to handle traffic control on a scale necessitated by a quarantine that covers over 100 mi2 (259 km2) and may last up to two months or longer. While work zone traffic control and law enforcement traffic stop principles can be applied in a quarantine situation, additional planning and training, as well as some creative thinking, will be required to develop methods of controlling and monitoring traffic flow in such a large area with such limited resources. 5.3 Prioritizing Routes In the case of an agricultural emergency, the quarantine boundaries will often be drawn at a 3- or 6-mi (4.8- or 9.6-km) radius from the point of diagnosis. The quarantine boundary may intersect all types of roads, from interstates to local roads. In small counties with small county and municipality law enforcement staffs, officers will not be able to provide enforcement at every entrance or exit point. In order to use available resources as efficiently as possible, routes and road blocks need to be prioritized in order of necessity of enforced traffic control. Possible criteria for prioritizing routes include: • Average Daily Traffic (ADT) • Livestock/Agriculture vehicle ADT • Routes that pass directly through the “Hot Zone” [within 1.5 mi (2.4 km) of infected premises] • Proximity to animal holding areas • Access to detours • Locations for turn around, pull-over, or disinfection stations • Routes where access is critical, such as roads to hospitals 45

A route priority scheme is included in the guide. 5.4 Levels of Traffic Control The levels of traffic control will be determined by the route priority and the available resources of the responding agency. We expect at least three levels of traffic control to be necessary. The three levels of traffic control are: 1. Traffic checkpoint with cleaning and disinfection stations—Manned checkpoints with a station to clean and disinfect vehicles, equipment, and people exiting a quarantine zone. 2. Traffic checkpoint—Checkpoint manned by a law enforcement officer where vehicles are screened for entry to or exit from the quarantined area. 3. Road Closure—Road is barricaded and all traffic is stopped (may be manned or unmanned). We expect that initially most roads will simply be blocked. Some training examples have discussed only two disinfection stations for a 6-mile (10-km) buffer area. Check points would normally be placed where there was a critical need for access, without heavy volumes of agriculture vehicles. As additional human resources become available to help work the traffic stops, more access points can be effectively managed, and fewer roads will be closed. Additionally, air surveillance may be used to monitor traffic through non-designated routes (i.e., across fields or private access routes rather than on public roads), and traffic through road blocks not manned by law enforcement personnel. 5.5 Command Structure The National Incident Management System (NIMS) uses the Incident Command System (ICS) model for organizing roles and responsibilities. All states, counties, and municipalities are required to be NIMS compliant in order to maintain eligibility for preparedness funding from the federal government. The procedures developed in the Guide must fit into the ICS and be NIMS compliant in order to be applicable for county government use. The ICS used in Kansas counties’ foreign animal disease response plans is presented in Figure 1. Traffic control would fall into both the Operations Section and the Planning Section. The example shown here illustrates a Quarantine Branch in the operations section, housing Enforcement, Stop Movement, and Surveillance groups. These groups may or may not make sense for different jurisdictions. The Control Branch deals with diverting, housing, and euthanizing livestock, as well as with disinfection and cleaning. The main focus of this project lies in the Quarantine branch, although consideration must be given to the location of diverted and held livestock when prioritizing and locating roadblocks and traffic stops. Certain traffic control points will also likely double as disinfection points, although, it is likely that personnel more familiar with animal diseases and disinfection will manage the tasks under the control branch. 46

Prioritization of routes for closure, control and/or surveillance, as well as detour planning should be thoroughly considered in the preparedness stages before an incident occurs and should be covered in the Local Emergency Operation Plan for foreign animal diseases or agricultural emergencies. However, because the quarantine boundaries cannot be determined prior to the incident, some additional planning and prioritization will be required. Once the foreign animal disease diagnostician (FADD) has issued the initial quarantine order, a list of prioritized routes specific to the quarantine area and an associated traffic control plan should be developed based on the general prioritization guidelines, uniqueness of biological agents, and availability of resources. The Planning Section also handles equipment, and traffic control will require the acquisition of equipment such as signs for road closures, traffic stops and detours, advanced warning signs and variable message boards, sign posts and installation equipment, barricades and other resources used to block or close roads, vehicles, lighting, and decontamination equipment. Determining the location of road blocks, traffic stops, decontamination stations, detours, livestock holding areas, and agriculture vehicle storage areas requires expertise in law enforcement, traffic operations, public health, animal health, and emergency response. All of these focus areas should be represented in the operations section, since they are also required for quarantine enforcement and disease control. Figure 1. ICS Structure Used in Kansas for FAD Response 47

5.6 Resource List Prior to an incident, a list of local resources should be compiled. The list should include the location and quantity of any type of equipment needed, as well as contact information and instructions for how to obtain the resources from the owner. An example spreadsheet for itemizing traffic control resources is provided in Table 4. A separate sheet can be stored electronically or printed out for each resource owner. These might include local state DOT maintenance facilities, county maintenance facilities, utility companies, highway contractors, and any other local business or agency that keeps signs, vehicles with flashing lights, sign installation equipment, variable message boards, or barricades. When compiling a list of resources, it is important to think out of the box. For example, hay bales may be used to block roads when barricades are not available. It would be important to have information immediately accessible regarding who may be contacted to obtain hay bales. 5.7 Emergency Management Assistance Compacts Because rural counties have such limited man power and resources, Emergency Management Assistant Compacts with the private sector and with surrounding jurisdictions are critical. Planning efforts with neighboring counties are also crucial, since it is likely that any quarantine would cross county boundaries and require a great deal of cooperation between the jurisdictions. It is important to establish compacts between agencies in the planning stages so that when an emergency occurs, means of sharing resources are already in place. 48

Table 4. Example Traffic Control Resource List County: Johnson Date: 7/1/2006 Owner: State DOT, Springfield Item Quantity Maintenance building Signs Contact Stop 20 Name: Jim Jones, Stop Ahead 5 Maintenance Supervisor Road Closed 10 Phone Detour 20 Numbers: Office: 123-456-7890 Arrows 20 Cell: 123-456-0987 US / State highway identifier signs various After 4 pm: 123-456- 7089 road name signs various Sign Posts 50 Address: 111 County Road R. Biohazard Variable Message 2 ITS Message Boards Additional If building doors are locked and maintenance Flashers Information: staff is unavailable, extra Barricades key is located inside door Hay bales of west shed. portable barricades 10 Gates Vehicles Maintenance supervisor officer vehicles keeps all vehicle keys trucks with sign capacity, installation equipment 2 locked after hours. If trucks with towing/hauling capacity 2 needed, call cell or after other vehicles with flashers/rotating lights 2 hours number. Maps State road maps 1 box County road maps Property Maps Land use maps 49

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TRB’s National Cooperative Highway Research Program (NCHRP) Web-Only Document 130 is an annotated bibliography that reviews several state emergency response plans associated with traffic control of rural roads in an agricultural emergency. The material contained in Web-Only Document 130 was used to help produce NCHRP Report 525, Vol. 13: A Guide to Traffic Control of Rural Roads in an Agricultural Emergency, which explores recommended practices and procedures associated with traffic control on local and state roads during agricultural emergencies.

NCHRP Report 525: Surface Transportation Security is a series in which relevant information is assembled into single, concise volumes—each pertaining to a specific security problem and closely related issues. The volumes focus on the concerns that transportation agencies are addressing when developing programs in response to the terrorist attacks of September 11, 2001, and the anthrax attacks that followed. Future volumes of the report will be issued as they are completed.

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