Integrating Business Processes to Improve Travel Time Reliability (2011)

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C H A P T E R 6 Case Study: Weather ManagementAccording to the FHWA, weather is the second most common cause of nonrecurring congestion, accounting for approxi- mately 15% of all congestion in the United States (1). Strategies for road weather management include focusing on improv- ing safety and traveler information, which can reduce the num- ber of weather-related crashes, and providing advance notice to travelers so that they can delay their trips or use alternate routes if possible. These strategies can improve reliability by reducing incidents that can block roadways and reducing the number of vehicles on the road that may be affected by severe weather. This section presents a case study that examines the process that the Nevada DOT (NDOT) has developed and implemented for notifying freight travelers of freeway condi- tions on I-80 during hazardous winter weather. California and Nevada: I-80 Winter State Line Closures Heavy freight traffic heading westbound on I-80 toward the Nevada/California state line needs advance warning about closures at Donner Summit, which frequently occur during hazardous winter storms. This segment of I-80 has an eleva- tion of 7,000 ft. Extreme winter snowstorms are a significant hazard to freight and passenger vehicles on this segment, and Caltrans will often close I-80 to westbound traffic if weather conditions warrant. Although closures of the state line and closure notifications are initiated through Caltrans, if notifi- cations are not made early enough to allow freight and other traffic time to find suitable and safe parking or change their route, the impacts on NDOT roadway facilities and local streets in Nevada cities and towns can be significant. Freight parking on I-80 during winter weather events causes several problems not only to the freight drivers who are trying to maintain their schedules but also to NDOT’s winter plowing operations; moreover, it restricts lane usage by emergency vehicles and creates hazardous driving conditions for passen- ger vehicles.55The need to notify westbound travelers (particularly freight) on I-80 of potential hazards and road closures has been the impetus for NDOT to develop important internal processes that involve two NDOT districts, state law enforcement, media, local agencies (including cities and law enforcement), and key freight stakeholders. The notification process has been expanded further east to include Utah and Wyoming; this pro- vides westbound freight travelers with advance notification of closures and parking restrictions to allow them to make alter- nate route choices well in before of the closure. NDOT has established policies and processes to notify traf- fic (with a particular emphasis on freight) heading west on I-80 that the state line and pass are closed. These notifications are strategically issued to allow for traffic to divert in advance. ITS infrastructure, including DMS, flashing beacons, and high- way advisory radio, has been placed along the I-80 corridor to notify motorists in advance of an alternate route. To prepare for this case study, interviews were conducted with Denise Inda, PE, PTOE, Mike Fuess, PE, PTOE, and John Talbott from NDOT. Inda is the assistant chief operations engineer of NDOT Maintenance and Operations. Fuess is the District 2 traffic engineer, and Talbott is in the District 2 Road Operations Center. District 2 has its headquarters in Sparks, Nevada, and covers the northwestern part of the state, includ- ing Reno and Carson City. Description This case study describes the processes that NDOT and other agencies have developed and implemented to address freight traffic issues on I-80 during hazardous winter weather condi- tions. Nevada DOT Districts 2 and 3 and Nevada DOT Head- quarters staff provided input to this description. Managing traffic on I-80 during winter conditions has also been the impetus for NDOT to install traveler information infrastructure (including DMS, warning beacons, and high- way advisory radio) in advance of key decision points to allow

56travelers to choose an alternate route. Freight drivers can either decide to find allowable parking at suitable off-highway facilities further east on I-80 or use alternate routes to reach their westbound destinations. Truck traffic can receive these alerts and notifications several ways: NDOT DMS and highway advisory radio, DOT flashing beacons (warning that state line is closed), 511 and NDOT’s traveler information web page, commercial broadcast media, and truck stop announcements and notices. Operational processes (at NDOT) link back to closure stages identified during the multiagency coordination meetings. What NDOT needs to do, from an operations perspective, is then integrated into their established operational processes. Background of Agency NDOT is divided into three operational districts that cover the entire state. District 1 focuses primarily on southern Nevada (including the Las Vegas metropolitan area); Districts 2 and 3 are situated in the northern part of the state. Interstate 80 tra- verses in an east-west direction across northern Nevada through both District 2 (Reno/Sparks) and District 3 (Elko), and each district has operations and maintenance responsibil- ity for this significant interstate corridor. NDOT has implemented Road Operations Centers (ROC) in both districts along this interstate corridor. Key functions of these centers include monitoring road weather information sensors and CCTV cameras at key locations; initiating traveler information and notifications through DMS, highway advi- sory radio, Nevada’s 511 phone and web traveler information tools; coordinating with other agencies (including state law enforcement, counties, emergency responders, and neighbor- ing states); and coordinating with NDOT district mainte- nance. The operations centers in Districts 2 and 3 are near the I-80 corridor. The functional capabilities at each of these cen- ters have been specifically designed to monitor and respond to incidents and emergencies along the I-80 corridor. Staffs at these district centers routinely coordinate with one another to support more effective corridor-wide strategies. Capabilities have been designed in each center so that they can serve as backup for those in other centers. Coordination for I-80 operations and, in particular, for incident management or winter weather operations, extends beyond NDOT operations and maintenance to also include law enforcement and neighboring states. The Nevada High- way Patrol (NHP) is responsible for law enforcement and inci- dent management coordination and response on the corridor and is a key partner in overall corridor operations. From a winter-operations perspective, law enforcement is a critical partner in restricting trucks from parking on I-80 because of a closure at the state line, and NHP will turn away trucks from the state line using truck turnarounds and not allow the trucksto obstruct the I-80 shoulders. Because of the significance of I-80 as a major east-west freight corridor, multistate coordina- tion during major events is important. NDOT’s efforts to notify state DOTs in Utah and even in Wyoming, both several hundred miles east of the Nevada/California state line, provide for even more advance notice to freight traffic about upcom- ing closures. Process Development Between 2002 and 2007, NDOT reported 23 closures on I-80 at the Nevada/California state line and 31 truck prohibitions because of severe winter weather (2). Nevada DOT has devel- oped and implemented specific processes aimed at providing as much advance notification as possible to westbound freight traffic that the state line is closed and that there are limited to no parking options in Reno, which is just east of the Califor- nia/Nevada state line. A recent closure of a 400-space truck stop has further exacerbated the parking shortage for freight vehicles near Reno. In some instances, NDOT indicated that trucks sometimes park on the shoulder or exit the freeway and park on arterials until they can cross the state line. Caltrans, NDOT, and associated partner agencies (including state and local law enforcement) hold a meeting annually in September, before the snow season, to discuss strategies, roles and responsibilities, and extraneous circumstances that could affect strategies, and to establish overall lines of communica- tion. This meeting is also an opportunity to fine-tune processes based on previous years’ experiences during winter closures. Involving state DOTs in law enforcement, public information and communications, county and city operations, and enforce- ment, helps to introduce key stakeholders and obtain a broad range of perspectives into the planning process. It was at one of these meetings that a hierarchy of closure activities was established and agreed on among the primary partners. This hierarchy is based on expected duration of the closure; depending on the duration, additional strategies may be implemented. These levels and their associated durations are as follows: • Level 1: Assumed duration of less than 3 h; • Level 2: Up to 6 h; • Level 3: 6 to 12 h; • Level 4: 12 to 24 h; and • Level 5: 24 h or longer. For the first three levels, controls are primarily implemented by Caltrans for the state line closure and NDOT will initiate its own notification processes, which includes agency and traveler notifications. For a Level 3 closure, District 2 or 3 will activate NDOT DMS further east on I-80. For Level 4 and Level 5 clo- sures, NDOT and NHP will implement Nevada controls and

57will turn trucks away before they reach the Reno area, in addi- tion to the Caltrans controls at the state line. This process has been refined over time, and although most of the steps involve manual processes such as issuing notifica- tions via phone or e-mail and text alerts, NDOT has incorpo- rated important tools into the processes to support notifications along the I-80 corridor through roadside infrastructure and its 511 web and phone systems. The need to inform westbound travelers about these closures has influenced NDOT’s planning and implementation of ITS infrastructure along the corridor. Road weather information sensors provide real-time informa- tion about weather, precipitation, and pavement conditions to the NDOT District Road Operations Centers in Reno/Sparks (District 2) and Elko (District 3). Traveler notification systems, including DMS and flashing beacons, have been strategically placed before decision points along I-80; although DMS are located on each side of the corridor, there has been more emphasis on placing infrastructure to notify westbound trav- elers of closures or other concerns. Detailed Process and Integration Points When weather conditions warrant closure of the Donner Sum- mit pass on I-80 just west of the California/Nevada state line, Caltrans will make the decision to close the state line to trucks and maybe to all I-80 westbound traffic approaching the Nevada/California border. Once Caltrans decides to close the state line, it initiates notifications to NDOT’s District 2 ROC in Reno/Sparks, which is staffed 24/7. As part of this notification, Caltrans will also indicate an estimated duration and will update NDOT if conditions warrant extending the estimated closure time. Caltrans also has remote access to be able to post messages on three DMS on I-80 in Nevada alerting westbound traffic that the state line is closed to trucks or that trucks are restricted. When NDOT’s ROC receives the notification from Cal- trans, including the expected duration of the closure, it sets in motion a series of actions for NDOT to mobilize according to the stage level (predetermined by the duration or stage level). For a Level 1 closure, NDOT would notify its District 2 main- tenance staff and District 3 office in Elko that a closure is in effect and that advisories are being issued, including NDOT’s DMS on westbound I-80 (already activated by Caltrans); and input closure information into NDOT’s statewide road con- dition database, which then makes the information available through Nevada’s 511 system and www.nvroads.com traveler information website. Operators at the ROC will monitor road weather information systems and stay in contact with Caltrans to monitor the closure duration. As conditions warrant and if the closure duration is extended, NDOT will initiate addi- tional operational procedures, including posting messages on DMS further east on I-80, activating additional flashers, andupdating the information going to 511 and NDOT’s website. NDOT District 3 also is notified to begin alerting trucks as they cross into Nevada on I-80 from Utah; a longer closure would also necessitate notifying Utah DOT and Wyoming DOT of the westbound I-80 closure at the Nevada/California state line, and these states would also initiate notifications using their respective systems and infrastructure. The objec- tive is to minimize truck traffic approaching the Reno/Sparks area because there is limited to no available parking for trucks to wait out a lengthy closure at the state line. Figure 6.1 shows a typical series of processes when Caltrans initiates a closure at the state line on I-80. This graphic assumes a Level 3 closure (6 to 12 h) and the external agency notifica- tions that would be initiated by NDOT as a result of the prede- termined strategies. As shown in this process diagram, there are several key integration points among NDOT and other agency processes to carry out winter operations on I-80. Process inte- gration actually begins before a weather event affects I-80, in the form of preplanning for response strategies among agen- cies responsible for traffic management, maintenance, enforce- ment, and notification along I-80. At a higher level, there are overarching interstate coordination processes for winter main- tenance and road closure operations that are also not necessar- ily specific to an event but provide the framework for which specific processes and activities are carried out and coordinated in response to winter closures in this region. Internally, NDOT has established operational procedures that have evolved with the addition of technologies and systems for traveler infor- mation and agency communications. One of the most critical processes in the I-80 winter operations strategies are the trav- eler notifications. NDOT will activate various traveler informa- tion systems, some of which are localized to the I-80 corridor (such as DMS or flashing beacons), while others provide infor- mation to travelers beyond I-80, including phone and web- based systems.Several key integration points were identified in the I-80 winter state line closure process, including the following: • NDOT initiating preplanned responses to state line closure by Caltrans once notified (Caltrans and NDOT process inte- gration). This sets into motion several process activities, all of which result from agreed-upon strategies and protocols. • Road closure database updating multiple notification chan- nels of the closure and effects. This includes informing internal stakeholders (NDOT District Operations and Main- tenance staff), as well as external stakeholders through its 511 and web-based systems. Media also use this information to provide updated alert information through radio and TV broadcasts. • Extending notification to additional NDOT districts and other state DOTs (including Utah and Wyoming), who then initiate their own sets of planned strategies and approaches.

58Figure 6.1. Detailed business process diagram of Nevada DOT I-80 winter closure.There is a predetermination of specific coordination actions based on anticipated duration of the I-80 closure. • Monitoring truck parking impacts to the road network (for safety of winter plowing and operations and emergency vehicle use) and coordination with state police for enforce- ment support. In some instances, law enforcement will ini- tiate its own processes to implement truck turnarounds further east on I-80, thereby restricting trucks before they reach the Reno area. Types of Agencies Involved Primary partners for initiating and implementing winter response strategies on this segment of I-80 are Caltrans and Nevada DOT District 2 and, depending on the duration of theclosure, NDOT District 3, further east on I-80, also will have a critical role. NDOT’s internal processes have been established to effectively mobilize maintenance crews and equipment, update internal databases (which provide data to traveler infor- mation tools) and activate traveler information systems. Oper- ators and Operations/Maintenance staff at the District 2 ROC in Reno/Sparks also are responsible for initiating other noti- fications, including neighboring states, cities, counties, and truck-stop facilities along the corridor. Law enforcement for both California and Nevada are crit- ical partners in I-80 winter operations. While DOTs can ini- tiate closures of the roadways and implement processes for notifications and mobilization of DOT crews, enforcement of these closures is the responsibility of state police and highway patrol. NDOT indicated that the NHP also relies on trained

59volunteers to help staff established truck-turnaround points that NHP might establish along I-80 to prevent trucks from creating a bottleneck on I-80 while waiting out the closure. There is an agreement in place that allows Caltrans to cross the state line to establish truck turnaround and checkpoints on the Nevada side of I-80. Caltrans will notify Nevada DOT before mobilizing in Nevada. NDOT did not indicate that there were other formal policies in place to support specific winter response strategies, but rather agencies partner as part of a collaborative process to do what is needed to minimize the impacts of closures on I-80 traffic. Within NDOT, there are additional divisions and groups involved in executing operations strategies for winter events on I-80. NDOT’s Public Information Office launched an outreach campaign to the freight community, notifying them of parking restrictions on I-80 during winter closures. They provided flyers and other information to each truck stop on I-80 and posted flyers at rest areas along the corridor (3). At some rest areas, NDOT has installed free wireless Internet, so travelers can access information about weather, closures, and parking alternatives. Types of Nonrecurring Congestion Addressed Although most of I-80 within Nevada and near the state line with California is considered rural (with the exception of the Reno/Sparks metropolitan area), winter-weather incidents can cause significant congestion if trucks and other vehicles are held in Nevada. NDOT estimates daily truck traffic of 2,500 vehicles per day on a typical winter day. There is the risk of crashes as a result of trucks parked illegally on the shoulder or in the outside travel lane on the highway. Parked trucks pose a significant hazard for maintenance crews trying to clear roadways or for emergency responders who need to get to an incident scene. Although the primary focus of the operations strategies and processes are to address the effects of winter weather, there are also definite links to incident-related conges- tion measures. Performance Measures There are few formal performance measures in place to mon- itor and track progress of the various business processes and integration strategies on I-80. Primary sources of information are visual observations from NDOT and NHP about numbers of trucks parked (potentially parked illegally) on I-80, or num- bers of trucks that need to find an alternate route because of an enforced truck-turnaround point. It is difficult to quantify how many trucks might have sought an alternate route as a result of information provided to them further east on the I-80 corridor. NDOT is implementing some enhancements to its 511 service to include truck control andrestriction information, and NDOT will be able to track how often this information is accessed. Benefits NDOT continually refines strategies and approaches for win- ter management on I-80 to incorporate new systems or tech- nologies and changes in land use as a result of development (such as removal of truck parking facilities or the addition of potential new parking areas or facilities), and incorporates les- sons learned from previous winter events into its established operations processes. A strong partnership with NHP has been critical to successful development and execution of these win- ter operations strategies. NDOT’s processes are aimed at providing as much advance notification as possible to freight travelers that the state line is closed and parking on I-80 west of Reno is not available. Truck traffic can receive these alerts and notifications through sev- eral avenues: NDOT DMS and highway advisory radio, DOT flashing beacons (warning that state line is closed), 511 and NDOT’s traveler information web page, commercial broadcast media, and truck stop announcements and notices. Freight drivers can choose either to find parking further east on I-80 or use an alternate route to reach their westbound destinations. Recognizing the importance of providing advance notifica- tion, particularly to freight, has been the motivation for NDOT to plan and program specific enhancements and infrastructure. Corridor information needs along I-80 have resulted in NDOT Districts 2 and 3 installing permanent DMS and highway advi- sory radio on westbound I-80, with an increased number of flashing beacons that are activated during state line closures on the segment of I-80 in District 2 approaching the Reno metro- politan area. The need to provide more comprehensive and timely information to freight traffic has also been the driving force behind some key enhancements to NDOT’s 511 and web traveler information system. This infrastructure is invaluable for helping to manage winter closure events on this corridor, but it also is used for construction restriction notifications, incident alerts, and AMBER alerts. Lessons Learned Prewinter meetings held before the snow season have been an effective strategy in bringing together key stakeholders from Nevada and California to manage I-80 closures during haz- ardous winter weather. These allow operations, maintenance, law enforcement, public information office, and others from both states to interact, establish contacts, and discuss roles and responsibilities during winter events. The recent closure of a truck parking facility on I-80 in Verdi, Nevada, just east of the California/Nevada state line, eliminated 400 truck parking spaces. The impacts of truck

60parking and storage on I-80 during severe winter storm events do not just affect NDOT and I-80 operations but also local agencies when trucks seek parking alternatives in unsuitable locations. Cities are faced with trying to accommodate the need for truck parking during these events. There are cur- rently only 750 available parking spaces at truck stops and other facilities along the I-80 corridor between the California/ Nevada state line and Fernley, Nevada, a distance of approxi- mately 50 mi (4). Truck stops are private developments that are subject to local zoning ordinances, which is often one of the biggest challenges in getting local approvals for building these kinds of facilities. Other concerns often expressed by local agencies or residents are enforcement, increase in traf- fic, and access issues; funding for access and potential inter- changes also limits the development potential. NDOT does not have a role in land use planning or zoning, but is actively partnering with municipalities and local agencies to examine long-term solutions to the need for more truck parking along the corridor. Because of the need to effectively manage freight traffic dur- ing winter events (as well as during other occurrences, such as an incident or wildfire evacuation), NDOT has mirrored capa- bilities between the ROCs in Districts 2 and 3. This allows operators from either center to execute predefined processes regardless of the center where they are based. Analysis and Research Observations The evolution of the I-80 processes and strategies has been driven by several factors. At the core, there is a high priority on traveler safety during hazardous winter conditions, particularly given the steep elevation changes on this segment of I-80. There is also a need to minimize (or eliminate) the number of trucks parking on I-80, which affects other traffic, poses a haz- ard to emergency access, as well as impedes NDOT’s winter maintenance activities.Most of the processes identified in this case study are the result of operations needs at the field operations levels; this includes field maintenance staff, highway patrol and law enforcement, and others. Relationships among DOT and pub- lic safety/law enforcement are essential for these kinds of operations. NDOT does not have the level of influence of the highway patrol for implementing en-route truck turnarounds; NHP’s role for enforcement is critical. Both agencies recognize that current resource constraints limit their ability to ade- quately staff a long-term closure out in the field. This has trans- lated into deploying traveler information infrastructure further east of the state line, coordinating with local agencies and truck stops about the closure and its potential impacts, and establish- ing lines of communication with neighboring states to provide even more advance warning to freight traffic. A long-standing agreement between Caltrans and NDOT established the initial framework for cooperative management strategies and gave Caltrans the ability to implement check- points and truck-turnaround points in Nevada. A cooperative venture between Caltrans and NDOT installed three DMS on I-80 just east of the state line, and Caltrans has remote access to these signs to be able to post messages about state line closures or restrictions for westbound traffic. References 1. FHWA, U.S. Department of Transportation. Reducing Non- Recurring Congestion. http://ops.fhwa.dot.gov/program_areas/ reduce-non-cong.htm. Accessed July 20, 2011. 2. Dyson, T., and M. Fuess. I-80 Truck Management During California Ice and Snow Events. Nevada Department of Transportation, Carson City, 2008. 3. Nevada DOT. Reno/I-80 Truck Stop Closure. www.nevadadot.com/ Doing_Business/Trucking/Reno/I-80_Truck_Stop_Closure.aspx. Accessed July 20, 2011. 4. Nevada Department of Transportation. Truck Parking Initiative. Grant Application to FHWA, U.S. Department of Transportation, 2008.