[A Planning Guide for Emergency Highway Traffic Control for States] [From the U.S. Government Publishing Office, www.gpo.gov] OCD Publication 3063 December 1943 Transportation Bulletin No. 3 A Planning Guide for EMERGENCY HIGHWAY TRAFFIC CONTROL FOR STATES U. S. OFFICE OF CIVILIAN DEFENSE Washington 25 9 D, C* Acknowledgment— Is made to the War Department, the Highway Traffic Advisory Committee to the War Department, the Joint Committee on Evacuation, and other Federal agencies, to the several Transport Officers of OCD Regional Offices and Metropolitan Area Civilian Defense Councils, and to the several State and local police officials for their assistance and suggestions in the development of this bulletin. A Planning Guide for EMERGENCY HIGHWAY TRAFFIC CONTROL FOR STATES Transportation Bulletin No. 3 OCD Publication No. 3063 December 1943 U. S. OFFICE OF CIVILIAN DEFENSE Washington 25 9 D. C. PREFACE * This manual outlines plans that States in critical areas should make in order to deal with emergency highway traffic problems that* involve coordination between highway and police services of municipal, county, State, and Federal agencies within the State. It is not confined to traffic problems arising during periods of “red” air-raid alarm but deals also with those' arising prior to or following such periods and at times of heavy military moverrients, evacuation of persons, or public disasters. Black-out traffic-control devices and problems of vehicular lighting during black-outs are not covered in detail in this publication. (See section V-C for sources of information on such subjects.) The manual has been prepared with the advice and assistance of the War Department and has been reviewed by other agencies interested in traffic control. It supplements OCD Publication 3028, War Traffic Control, from the standpoint of application to State organizations and supersedes Transportation Bulletin No. 1, Surveys of Vital Routes and Facilities, OCD Publication 3018. No precise pattern logically can be suggested for all States alike and this guide does not pretend to do so. The prime objective to be kept in mind is an effective general plan, as nearly uniform with those in adjacent States as may be practicable. Two features of the plans suggested herein, intended to make them adaptable in any State, are*. 1. They are so designed that they may be modified wherever actually necessary to adapt them to the local conditions in the State. 2. Appointment of additional personnel or creation of new salaried positions over and above those already existing-in typical State and local governmental departments is not necessary. The titles or positions provided under this plan are merely functional" designations for existing personnel as they would fit into the coordinated emergency organization proposed herein. The adoption by States of sound emergency traffic-control plans that are as nearly uniform, 'both within States and between States, as is practicable under the variable situations from State to State will facilitate emergency traffic movements, military or other, where coordination locally-and at State boundary lines is important; II TABLE OF CONTENTS Acknowledgment__________________________________Inside front cover Preface________________________________________________ n Definition of Terms--------------------------------------- 1 I. The Problem__________________¿T------------------- _ 2 A. Air-Raid Alarms------------------------------ 2 B. Movements of Military Personnel and Supplies _ _ 2 1. By Military Vehicles—„---.7_-------- 2 2. By Commercial Vehicles-------------- 2 C. Evacuation of Persons_______________\------ 3 II. Military Traffic-Control System------------------- 4 A. Military Organization for Traffic Control-x— 4 1. Transportation Corps----------------— 4 2. Military Police_____________________ 4 B. Characteristics of Military Traffic-------- 4 1. Zone of the Interior_____________________ 4 2, Theater of Operations------------------ 5. C. Coordination with Civil Authorities—Operations Liaison________________________________________ 5 1. Service Commands—Transportation Zones. 5 2. Military Police-------------------------- 5 - 3. Communications__________________________ 5 III. The Plan______________________________________________ 5 IV. Developing the Plan------------------------------ 6 A. Organization----------j-------------------- 6 1. Emergency Transportation Committee. __ 6 2. State Traffic-Control Officer-----___ 6 3. Other State Protection Branch Staff Assist-ants.---------------------------.------- 6 4. Cooperation Above the State Level--- 8 5. Cooperation with Local Police------- 8 B. State Traffic Operations Room-------------- 8 C. Route Selection, Mapping, and Marking.....— 9 1. The Master Wall Map---------------— 9 2. The Traffic-Control Map...----------* 10 3. Supplemental Maps—.----------------- 10 4. Supplemental Maps of Confidential Na- ture------------------------------- 10 5- . Selecting Routes-_---------------- 10 6. Marking Secondary Highways.------------ 11 D. Organizing Highway Maintenance Services----- 11 1. Responsibility------------------------- 11 2. Organizing a State Emergency Highway Repair Service--------------------- 11 III IV. Developing the Plan—Continued. D. Organizing Highway Maintenance Services—Con. 3. United States Department of Agriculture Equipment Mobilization Plan__________r___ 12 4. Mutual Aid Plans_______________---------- 13 5. Winter Problems__________________________ 13 E. Coordinating Police Traffic-Control Services--- 13 1. Responsibility_x__________________— 13 2. State Traffic-Control Points_____________ 14 3. Emergency Routes in Metropolitan Areas, 15 4. Metropolitan Traffic-Control Stations____ 15 F. Highway Damage Reporting,______________________« 16 G. Evacuation Planning___________________________ 17 1. Responsibility,________________________ 17 2. Selecting Evacuation Routes______________ 18 3. Marking Evacuation Routes________________ 18 4. traffic Control Planning_________________ 19 5. Education_______________________________ 21 V. Operàting the Plan___________________________________ 21 A. Mobilization___________________________________ 21 1. Highway Repair Services___________'______ 21 2. Police____________________---------------- 21 3. Supervisors of Local Public Works' Departments________________________________ 21 4. Division Headquarters of Highway Department ________________________________- 21 5. Division Headquarters of State Police--- 21 6. Zone Control Center______________________ 21 7. State Traffic Operations Room,_ :________22 8. State Highway Department Headquarters, 22 9. State Control Center_____________________ 22 B. Highway Repair Operations______________________ 22 C. Traffic Control at Times of Air-Raid Alarms, __ 22 1. Types of Air-Raid Signals________________ 22 2. Periods of “Blue” Alarm,_________________ 22 3. Periods of “Red” Air-Raid Alarm__________ 23 4. Demobilization___________________________ 23 D. Movements of Civilian Defense Reinforcements in Mutual Aidi._____________________________________ 23 • E. Movements of .Military Personnel and Supplies __ 24 1. Movements of Military Vehicles_;_________ 24 2. Civilian Vehicles Carrying Military Supplies or Personnel_______________-,______ 24 F. Controlling Scenes of Disaster_________________ 25 G. Traffic Control During Evacuation_______________ 25 1. Voluntary Unorganized Evacuation_________ 25 2. Voluntary Governmental Evacuation________ 25 3. Panicky Situations,,__________7_________ 26 4: Compulsory Evacuation____________, , - 26 IV DEFINITION The following terms, as used in this Planning Guide, have the meanings ascribed to them below: 1. State Control Center.—The intelligence and operating center of the State Civilian Defense organization during and following periods of air-raid alarm. 2. State Traffic Operations Room.—The control room at the headquarters of the State police where police traffic control, highway routing, and road repairs are coordinated during times of emergency. 3. Zone Control Center.—The communications center for one Civilian Defense zone 1 or division of the State.2 4. Division Headquarters of State Police.—Headquarters of the State police or patrol for a State police division or other major police subdivision of the State.2 5. Division Headquarters of Highway Department.—Headquarters office of one division of the State highway department.2 6. Metropolitan Area Control Center.— Civilian Defense control center for a metropolitan area. This area may be the same as that included in one zone 1 or it may be only a part of a zone: 7. Local Control Center.—Civilian Defense control center for a county or municipality. 8. State Traffic-Control Post.—A highway location that is manned by a police officer during periods of air-raid alarm or other emer- OF TERMS gency, for traffic-control purposes as a part of a State plan. 9. x State Traffic-Control Point.—A State traffic-control post that is provided with means for two-way communications as a part of the State plan for interchange of information: 10. Metropolitan Traffic-Control Station.—A key traffic-control point on a main highway approaching a metropolitan city where information on road damage and routes may be maintained and given to trucks carrying perishable food, vital military supplies or personnel, etc. 11: Cordon Control.—Control of access to an area by selected and manned traffic-control points or posts at every road where vehicles may enter or leave the area. 12. Emergency Route.—A rout? selected usually from the primary highway system for exclusive use of emergency vehicles, with each intersection given special protection by police and/or barricades. 1 A zone is one portion of the area of a State, selected for Civilian Defense control purposes with regard to telephone communication factors, existing political jurisdictions, and division organizations of State departments. (The average State should contain approximately 10 zones.) 2 The area included in a zone fhay cover part of two or more State police divisions or vice versa. Similarly, the area covered by a highway department division may include parts of two or more zones. Highway divisions may or may not be coterminous with State police divisions. 1 A Planning Guide on EMERGENCY-HIGHWAY TRAFFIC CONTROL FOR STATES I. The Problem A. AIR RAID ALARMS. Traffic problems of an intercommunity nature that must be met during and following periods of “red” air-raid alarm 3 include the following: 1. Road and traffic blocks must be reported promptly, detours established, and traffic rerouted properly. State, county, and local officials must work as one team in this activity; Traffic to be given special consideration includes: a. Military motor vehicles. b. Commercial vehicles carrying vital military supplies or personnel. , c. Vehicles carrying perishables, particularly food. d. Intercommunity movements of police, fire, medical, rescue, and other Civilian Defense vehicles for mutual aid or reinforcements. e. Civilian convoy movements of persons or goods. 2. Nonessential traffic must be controlled properly, so as to avoid the possibility of traffic blocks at vital intersections or other important sections of the highway. This may require control by a cordon of traffic-control posts around the area under-air-raid alarm and around certain vital installations, and the manning of special routes for emergency vehicles. A practical and firm control plan is one of the best assurances against the spread of panic affecting highway movements. Should panic develop, such a plan is essential for controlling it. 3. Vital sections of damaged highways should be opened as soon as possible, making maximal use of available equipment, including that of the State highway department and Federal equipment included in the mobilization plan of the. United States Department of Agriculture. 3 A period of “red” air-raid alarm is the time beginning with the “red” air-raid signal and ending with the audible signal signifying the end of that period. In areas other than in the Western Defense Command, a preliminary audible public “blue” warning signal usually will precede the audible public “red” air-raid signal. A “blue” signal also will signify the end of the period of “red” air-raid alarm. The traffic-control plan must continue to function during the “blue” period following the period of “red” air-raid alarm, because there usually is an increase in the amount of traffic at such times. Also, care must be exercised to provide adequate traffic control at night during “blue” periods when normal traffic movement is permitted (except in the Western Defense Command) but when many illuminated traffic-control devices may become inoperative. Bi MOVEMENTS OF MILITARY PERSONNEL AND SUPPLIES. 1. By Military Vehicles.— Intercity and interstate military motor vehicle movements may take place at any time. Such movements must be routed over the most direct highways, considering such factors as road capacity, strength of bridges, location of road and traffic blocks, and probable concentrations of civilian and other military vehicles. Traffic officials of each jurisdiction must do their part by assisting in the routing and guiding of military movements and in rerouting civilian traffic? This requires coordination, since local officials usually do not have up-to-date information on traffic and road conditions outside their own jurisdictions. They must rely upon information and instructions furnished currently through State officials, who must maintain close liaison with the proper military authorities. This problem will be especially impbrtant in theaters of active military operation in case an enemy invasion should become imminent or actually occur. . At such times, proper coordination is vital to the success of military operations, as has been demonstrated on European battlefields repeatedly during this war. Even if civil authority should be superseded by martial law, the civilian agencies may continue to be extremely helpful to the military authorities because of their knowledge of local conditions. 2. By Commercial Vehicles. — An additional problem is the movement by commercial vehicles of vital military supplies or personnel to ports of embarkation, staging areas, and other 2 military installations. In the present war, movements to ports, especially, must proceed without interruption, regardless of road damage due to air raids or other enemy action. When destinations for such vehicles are changed, provision must be made for prompt rerouting from a point sufficiently distant from the destination to avoid delay and congestion. C. EVACUATION OF PERSONS. Traffic-control coordination during periods of civilian evacuation is very important because of the need for keeping evacuation traffic from conflicting with or delaying military operations. Evacuation movements must be kept under control at all times so as to avoid the chaotic traffic conditions that contributed to the fall of France in the spring of 1940. The .two main types of civilian evacuation that should be given consideration are voluntary evacuation and compulsory evacuation, as defined in Evacuation Bulletin No. 2, published jointly by the OCD and the Office of Defense Health and Welfare Services (now the Office of Community War Services). A voluntary evacuation, except when supervised by the Government, is the spontaneous movement of civilians out of an area. The nature of such movements may vary by degrees from orderliness in the one extreme to panic in the other extreme, depending on the situation. They may be movements in anticipation of enemy action or in consequence of enemy action, whether on a small or a large scale. The more orderly and deliberate these movements, the more complete the arrangements made by the evacuees are apt to be, and the nearer chaotic or panicky the movements, the less are their advance arrangements likely to be. The numbers of vehicles involved in such movements may be sufficiently, great to require firm and coordinated traffic control by officials of several jurisdictions even though chaotic situations may not yet have developed. If panicky conditions threaten or unavoidably make their appearance during evacuations, drastic control measures will be necessary to stop, retard, or direct them to prevent their interference with movements of military or other essential traffic. Prompt and coordinated effort by every available agency, including the State Guard or other State protective force, may be necessary to avoid the development of a disastrous traffic situation. A plan for coordinated action is necessary to assure the proper control of such situations. A voluntary governmental evacuation is the removal of priority groups (such as family groups, children, pregnant women, hospital patients, invalids, and infirm and aged people) by the Government on the advice of military authorities and at the request of the evacuees, parents, or others responsible for the welfare of the evacuees. It may include also the registration and movement of other persons who make their own arrangements and leave as a part of the Government plan. A compulsory evacuation is the removal of a portion or all of the civilians from an area on order of military authorities without regard to individual wishes, for reasons of military necessity such as imminent threat of invasion or occupation of specified zones by military forces, or the removal of the whole civilian population from areas surrounding military targets. In extreme cases, this type would be a mass evacuation. When a voluntary governmental evacuation is advised or a compulsory evacuation is ordered, the situation .would be sufficiently serious in most instances to require that evacuation traffic over highways be organized into convoys. The movement by convoy permits better control and aids in providing for requisite welfare and care of the evacuees. . Coordination is necessary between traffic officials of all affected jurisdictions to insure proper routing of the convoy movements and to avoid conflicts with military movements. The assembly, registration, and transportation of persons in the'priority groups are major problems because of the many health, education, and welfare aspects to be considered. Wherever practicable, plans should be made for using railroads for their evacuation. If highways must be used, buses should be used to the extent available. Convoys of private automobiles should be considered as the last choice for the evacuation of these priority groups. Traffic-control plans for each type of evacuation must be coordinated with the health, education," and welfare plans of evacuation 3 officers and the plans’ of transport officers that deal with requisitioning of equipment and formation and use of convoys.4 If. Military Traffic Control System Emergency traffic-control plans of civilian authorities must be closely coordinated with military traffic-control plans. For this reason, a« brief explanation of the military traffic-control system is included here. A. MILITARY ORGANIZATION FOR TRAFFIC CONTROL. 1. Transportation Corps.—The Transportation Corps of the Army directs, supervises, and coordinates all transportation functions of the War Department except tactical maneuvers or highway movements of military motor vehicles (and except where such functions in an emergency may become the responsibility of the commanding general of a Defense Command). It aims to assure that necessary facilities and services are provided by commercial motor transportation for the movement of traffic in which the War Department may be directly or indirectly interested, including truck, bus, and privately owned vehicle operations, and that the necessary highways and traffic facilities for these services are provided. 2. Military Police.—The execution of traffic plans affecting military motor vehicle movements is assigned, insofar as the War Department is concerned, to the military police. In the Zone of the Interior, the execution of such plans is subject to agreements made with civilian authorities with whom the military police are prepared to cooperate and collaborate to the fullest extent. Military police make use of two basic trafficcontrol systems and thrée basic traffic-control techniques. The basic traffic-control systems are: a. Organizational.—Traffic control organized for a particular column to assure priority of movement over or proper integration with other traffic encountered along its route. b. Area.—Traffic control organized to handle all traffic moving over a certain road net in accordance with regulations and orders in effect thereon. 4 Evacuation planning is discussed in section IV-G and operations in section V-G. The organizational traffic-control system is more commonly employed in the Zone of the Interior, whereas the area traffic control system is more generally employed in Theaters of Operations. The basic traffic-control techniques are (a) intersection control, (b) escort, and (c) patrols. Various combinations of traffic-control techniques are used with either „traffic-control system. \ Should an invasion, bombing, or other circumstance cause an area to be declared a Theater of Operations, military authorities would take over traffic. control as well as all other phases of civil government and the role of the military police with reference to civil traffic authorities would be reversed. The emergency highway traffic-control plan developed by civilian authorities would be taken over and used by military authorities. Mutual assistance and cooperation then would become even more important. B. CHARACTERISTIC OF MILITARY TRAFFIC.. 1. Zone of the Interior.—Normally, military traffic consists largely of groups of vehicles on a common mission rather than of random individual vehicles. Any one of the following three types of march may be used. a. Infiltration.—Vehicles are dispatched individually or in small groups. This requires careful marking of the routes to be followed. It offers the minimum of interference with other traffic. This type of military movement would appear similar to normal civilian traffic and would be governed by civilian rules and regulations. b. Close Column.—Vehicles are grouped together with a minimal distance between vehicles consistent with safety. The column has minimal length, but offers maximal interference with other traffic. It is'normally used in movements through congested areas to facilitate rapid transit of the entire column through the area. c. Open Column.—Constant headways are maintained between vehicles; thus intervehic-ular spacing increases as speeds increase and decreases as speeds decrease. It is a compromise between infiltration and close-column marching and is most often used in the Zone of the Interior. It offers less interference with 4 other traffic than does close-column marching. 2. Theater of Operations.—In a Theater of Operations, military traffic takes precedence over any and all other types of traffic. Traffic flow under military conditions is subject to large, erratic, and frequently unpredictable changes and interruptions, which occur with little or no warning. It is imperative, therefore, that adequate communications be maintained so that information concerning these changes can be transmitted immediately to a central authority where corrective measures can be initiated in time to prevent dangerous congestion. C. COORDINATION WITH CIVIL AUTHORITIES—OPERATIONS LIAISON. 1. Service Commands — Transportation Zones.6—For Army administrative purposes, the continental United States (referred to as the Zone, of the Interior) is divided into nine areas, termed Service Commands, the boundaries of which in all instances follow State borders. All contact with the Army must be made through the commanding general of the appropriate Service Command (except where transportation functions in an emergency are the responsibility of the commanding general of a Defense Command). The commanding general of the Service Command or Defense Command, as the case may be, should be consulted prior to the completion of any emergency traffic-control plan to assure proper coordination of civilian and military traffic movements during emergencies. Nine transportation zones, whose boundaries and headquarters are coincident with the nine Army Service Commands, have been .established. The zone transportation officer, commanding officer of the transportation zone, normally is a member of the staff of the commanding general of the corresponding Service Command. Close liaison is maintained between the zone transportation office, the State highway traffic advisory committee in each State, the regional offices, of the Office of Defense Transportation, and OCD. 2. Military Police.—The execution of all traffic plans involving the movement of military motor vehicles is a function of the military 4 Not to be confused with Civilian Defense zones. police, under command of the provost marshal general of the staff of the commanding general of the Service Command (except where this function is the responsibility of the commanding general of a Defense Command). Through the commanding general of the Service Command or of the Defense Command, as the case may be, liaison should be established with the provost • marshal general. 3. Communications.'—Direct two-way communications should be provided between the State traffic operations room and such military police headquarters as have been established by the provost marshal in the respective States. Through this direct communication, civilian traffic movements can be -properly coordinated with planned as well as with sudden and unexpected movements of military vehicles. Direct two-way communication may also be established between the State control center and such military installations as may be designated by the commanding general of the Service Command. HL The Plan The emergency traffic-control plan outlines in this manual is based on the use of equipment and personnel (both regular and auxiliary) of the State police, the State highway department, the State motor vehicle department, the United States Department of Agriculture, and other State and Federal agencies and services and their coordination with county and municipal services. In brief, the plan provides for the following: A. Designation of a State traffic control officer and other staff officers from existing . State agencies, to guide the application of the plan (section IV-A). B. Organization of a State traffic operations room with direct communication with the State control center for centralized traffic direction during periods of war emergency (section IV-B). C. Preparation of adequate route and trafficcontrol maps for the use of all who participated in the plan (section IV-C). D. Organization of a State system for highway repair and erection of detour and temporary route signs (section IV-D). E. Coordination of police traffic-control services of State, county, and municipal police, regular and auxiliary (section IV-E). 5 F. Development of plans for prompt reporting of highway and traffic blocks and highway damage information (section IV-F). G. Development of traffic-control plans for evacuation (section IV-G). H. Establishment of adequate liaison with -proper military authorities (section II), the State evacuation officer (section IV-G), thé State transport officer (section IV-G), and the * State Guard (section IV-G—5). IV. Developing the Plan A. Organization. 1. Emergency Transportation Committee.—Each State defense council should have an emergency transportation committee that may advise the State defense coordinator and his chief of civilian protection and transport officer (and traffic-control officer, if one already is designated) on all emergency highway, rail, and water transportation matters, including the application of the plan outlined in this manual. In most States, the State committee of the highway traffic advisory committee to the War Department (HTAC)6 should be regarded as the emergency transportation committee or as the nucleus of an enlarged emergency transportation committee that also should include representatives of the State utilities commission or similar State agencies having jurisdiction over transportation facilities other than motor vehicles. In addition, the emergency transportation committee may contain local representatives of the United States Department of Agriculture’s ^Equipment Mobilization Committee, the United States Office of Defense Transportation, the United States Public Roads Administration, the United States Coast Guard, appropriate military authorities (section II), thè • The highway Traffic Advisory Committee to the War Department was formed in 1941 to serve as the liaison between the War Department and civil agencies concerned with traffic control and regulation. State committees were formed and were assigned the respon- ? sibility for coordinating civilian and military motorvehicle movements. State departments represented on these committees include the State police, the State highway department, and the motor vehicle department. The State utilities comihission also is represented in several States. Military commanders obtain civilian assistance by communicating with the “liaison’mem-ber” of the State committee at the State police headquarters. State safety council, and State rail, highway, and water transport associations. The State committee of the HTAC, either as the emergency transportation committee of the State defense council or as a subcommittee of a larger emergency transportation committee, should be charged with the responsibility of coordination between civilian and military authorities in both the development and operation of this plan in each State. 2. State Traffic Control Officer.—This plan contemplates that, in carrying out the functions of the State civilian protection branch, the head of the State police would be designated as emergency police officer.7 * In practically every State, some ranking member of the State police organization already has been designated as State liaison officer (usually as a member of the State HTAC) for the coordination of civilian and military motor vehicle movements. This officer, or some other ranking officer of the State police organization, should be designated as State traffic-control officer, under the emergency police officer. The traffic-control officer should have general supervision over police trafficcontrol phases of the program,' working with the advice of the State HTAC and with the assistance of the police chiefs’ and sheriffs’ associations of the State. 3. Other State Protection Branch Staff Assistants.—Other staff officers who should be selected from State agencies and designated to. carry out certain functions in both the planning and operating stages of this program include the following: . a. The State traffic engineer officer, who is to function under the emergency highway officer in coordinating the work dealing with the selecting and mapping of primary and secondary routes, and who would assist in the actual selection of special routes for various other purposes during times of emergency. 7 Chart No. 1 shows a suggested organization of the transportation service of the State protection branch that is in harmony with the traffic control plan described herein. An alternative organizational plan that has been suggested as suitable in some States would be to place at the same level the seven services shown unde Police, Highways, and Transport Officer, all under a Transport or Transportation Officer or Coordinator, who would be directly responsible to the chief of the protection branch for his operation chief. 6 STATE DEFENSE COUNCIL PROTECTION BRANCH Emergency Transportation — —— — — — — OPERATIONS Other Committee •—-... ........——J L.. ■■ ....... x ■' ■" ' r 1 1 ' ' ; " z • ' 1 ». ' > ■ . • üTru.Avc TRANSPORT I - . HIGHWAYS OFFICER POLICE Other Highway----Water Traffic Control Traffic Highway 11 p———— Engineer Repair „ Rail . Air CHART NO. 1 SUGGESTED ORGANIZATION OF TRAFFIC CONTROL AND RELATED FUNCTIONS OF . STATE CIVILIAN PROTECTION BRANCH (See footnote to Section IV-A-2) b. The State highway repair officer, who is to function also under the general direction of the emergency highway officer, and who should be responsible for developing the plan for coordinating road and bridge repair and related services, utilizing facilities of the State highway department and local, other State, and Federal agencies. c. The State transport officer, who, although primarily responsible for mobilizing transport equipment and drivers for emergency use, can advise on many traffic-control problems.8 (In the event that some official other than the head of the State motor vehicle department is designated as State transport officer, the head of the State motor vehicle department should be State motor transport officer, under the State transport officer.) In obtaining support for this traffic-control plan, full use should be made of the facilities of all State and county associations, such as those of police, sheriffs, mayors, and county highway superintendents. 4. Cooperation Above the State Level.— OCD regional transport officers and officers in charge of highway transportation matters for the Army, including Army defense commanders, service commanders, and zone transportation officers, should be consulted regarding the application of this plan in a State. In addition, the HTAC has a staff of field men available for assistance to State emergency transportation committee officials. Information regarding such assistance may be obtained from the ex-, ecutive secretary or liaison member of each State committee of that organization. Interstate. and interregional coordination, particularly with reference to communications and the selection and, during operating stages, the manning of routes, should be handled by the regional transport officers with the advice and cooperation of the other officials named in the preceding paragraph. 5. Cooperation With Local Police.—Local and county police should be consulted about this plan during the development stage and their cooperation and assistance obtained, since, when the plan is activated in an emergency, they will play an important part which must be coordinated through the State traffic-control 8 Functions of transport officers are listed in Operations Letter No. 86, Office of Civilian Defense. officer. Another important reason is that these officers know local conditions and situations better than anyone else. B. STATE TRAFFIC OPERATIONS ROOM. State and zone control centers would operate during and immediately following periods of air-raid alarm. Many traffic-control and roadrepair activities during such times, however, may be dealt with from the headquarters of the various State departments, subject to any instructions from the State control center. Operations after the control centers cease functioning may be directed entirely from.head-quarters of State departments. Establishment of a State traffic operations room is desirable, regardless of the State control system. Such a room would be used in furnishing military commanders with desired information on the routing of military convoys, following the procedure described in section V-E. It will be used also in routing and coordinating movements of fire equipment and other civilian defense reinforcements that may be ordered by the State control center. Following disasters, this room should direct the control of spontaneous movements of civilians desiring to leave the area of danger. At times of evacuations ordered or advised by military authorities, it should coordinate the dispatching of civilian motor vehicle convoys, subject to the requirements of those directing the evacuation program. The State traffic-control officer should supervise the establishment of this traffic operations room (or rooms) in a location where use can be made of normal police communication facilities. The room usually should be in State police headquarters. In some cases, it may be desirable to locate it near the State control center. It should have sufficient wall space for mounting the maps mentioned in section IV-C of this manual and should be sufficiently large to accommodate the operating personnel mention- • ed in section V-A. - The communication system should be studied to determine whether there is need for additional facilities. Especial attention should be given to providing regular and alternative communications with the State control center, the proper military headquarters, and the headquarters of the State Guard. 8 The operation of this room in relation to the State control center is discussed in section V: Means for communicating with highway and police personnel throughout the State are discussed in section IV-E-2-a: The room should not be open to the public, because much of the information assembled there is confidential in nature.9 C. ROUTE SELECTION, MAPPING, AND MARKING. Supervision of route selection and marking and map preparation should be a responsibility of the State traffic engineer officer, with the advice and assistance of the State trafficcontrol officer. Selection of traffic-control points, described in section IV-E, should be a responsibility of the State traffic-control officer, with the advice and assistance of the State traffic engineer officer. Maps made for civilian defense purposes and pertaining to the use of highways should have the concurrence of the commanding general of the Service Command concerned. 1: The Master Wall- Map.—A map showing highway route information should be prepared and mounted for use- as a master wall map in the State traffic operations room. Such a map is 'essential for showing pertinent information regarding the highways and for use in selecting suitable routes for movement of vehicles from one point to another within the State. Standard base maps and much of the information to be shown on them are available in most States from the State highway planning surveys. The wall map may be prepared by making a mosaic of highway planning survey county maps (scale of % to inch to the mile) or by obtaining a “blown-up” copy or enlargement of the “State base or highway transpor 9 The Office of Civilian Defense is subject to the provisions of Office of War Information Regulation No. 4, September 28, 1942, as amended, covering the safeguarding of classified information. In addition to being marked “Restricted” or “Confidential,” documents, forms, papers, or maps containing classified information should bear the following statement: “This document contains information affecting the national defense of the United States within the meaning of the Espionage Act (50 U. S. C., 31, 32). Its transmission or the revelation of its contents in any manner to an unauthorized person is prohibited by law.” tation series” map tracing. In some instances; it may be preferable to use a scale of 1 inch to the mile except for congested areas; for which an enlargement is desirable. The scale of the map should be suited to the wall space available for mounting the map in the traffic operations room. Information to be shown on the map includes the following:10 a'. A primary highway route system, a secondary route system; and other routes for special purposes, selected as described in section IV-C-5. Other available highways should be shown also. b'. Load limits and clearances of substandard bridges, underpasses, and other limiting factors of each route on the primary and secondary system. Numbered symbols may be used, so that the details may be coded on a card index file. c. Detour routing for weak bridges; when available.11 di Traffic-control points, selected as described in section IV-E of this manual: e; Boundaries of Civilian Defense zones ^pd of State police and highway divisions: Pins or other removable symbols should be assembled for use in indicating traffic-control posts and temporary conditions, such as locations and types of incidents, road damage, road and traffic blocks, detours, motor-vehicle convoys, and similar information. It may be desirable to prepare more than one wall map of the State, so as to reduce the amount of information shown on any one map. In California, for example, eight wall maps are used in the State traffic operations roorp; each showing certain types of information. Assembly of the highway route information for the maps may require field surveys in some instances to bring up to date the information in the files of the State highway planning 10 Each State may desire to use the legend of its highway planning survey in showing this information. In many States, special stipples have been developed for superimposing road classifications on existing base maps. Legends used on military circulation maps are contained in the War Department’s manual Motor Transport, FM 25-10, dated March 12, 1942. 11 Such information for vital structures may be available already through surveys made by highway departments for Civilian Defense facility security officers. » survey office; In other instances, surveys will be necessary to verify bridge capacities on certain county roads that are selected for the secondary system but that had not been surveyed by the State highway planning survey. If difficulty should occur in arranging for the preparation of maps during the regular working hours of the personnel of the State highway department or planning survey, it may be possible to obtain volunteers from the regular force to prepare the maps during their spare time as a contribution to civilian defense.12 Sections of this wait map may be copied, if desired, for use in division headquarters of the State police or patrql or highway department and in local, zone, or State control centers. 2. The Traffic-Control Map.—A map showing traffic-control points and the primary and secondary route systems should be prepared as indicated in section IV-E-21 This map should be reproduced in quantity} using an inexpensive process, for distribution only to officials participating in the program; Enlarged portions of the map covering metropolitan areas may be used by division commanders of the State police or patrol to portray traffic-control plans that have been developed for the primary and other important routes selected as emergency routes, as described in section IV-E-3. Such maps should show for such routes the police traffic assignments that are in addition to those of the regular network of traffic-control points; Copies may be furnished to local officials participating in the plans shown on the map; 3. Supplemental Maps.—Xhe following are examples of classes of information that should be Useful and in some instances will be essential for reference in the traffic-operations room; Some of it may be shown on supplemental maps according to,its availability and need in each community. a. Rail and water transport facilities, including piers, terminals, sidings, and other points of transfer to highway transport, and access roads to such locations. b. For each highway department division, the locations of maintenance garages and other road-repair facilities that are under the control of the highway repair officer; 12 The latter procedure was followed successfully in Colorado. c. Locations of emergency base hospitals and facilities for assembly of and welfare service for evacuees; (Probable routes for evacuations may be shown on the master wall map.) d. Locations of assembly and rendezvous points that are designated for use in mutual-aid programs. e. Information on road types} widths, capacities, traffic volumes, speeds, “bottleneck” points, and other conditions (frequently on maps already prepared). 4. Supplemental Maps of Confidential Nature.—Maps of the following types in particular must be handled in accordance with provisions for safeguarding vital information: a. Maps showing vital areas requiring special traffic consideration, such as military posts, camps, stations, ports, and staging areas, vital war plants, dams, and forests, and access roads to vital areas. b. Maps showing (1) sources of gasoline, water, food, and other supplies, (2) halt, rest;, and bivouac locations, and (3) hospitals and fire stations. This map is useful for assisting commanders of military cpnvoys.13 c. Maps showing communication systems; 5. Selecting Routes.—The primary and secondary route systems, mentioned in the preceding sections, should be selected upon consultation with military authorities and evacuation authorities and with traffic officials of adjacent States. The primary, system ordinarily should include any strategic military highways that already have been selected in each State; It may include portions of other highways that are designated by proper military authorities as likely to be used also as first priority highways for military purposes. Some of the primary routes may be designated by military authorities as military transport or supply routes. These may be indicated on supplemental traffic-control maps of confidential nature. Police traffic-control posts to be manned by the military police on such routes during emergencies may be indicated on such a map. Certain selected primary routes (and occasionally others between important points in »In some States, as in Arizona, detailed data on such facilities have been tabulated and keyed to a special map prepared for the purpose. IO metropolitan areas that are not primary routes) may be designated as emergency routes, to be given special traffic control consideration during emergencies. Such routes are useful to expedite movements of fire, police, medical, rescue; and other reinforcement services as well as to speed the movement of military forces or vital materials. Selecting and manning of such routes is discussed in section IV-E-3 and their mapping is discussed in section IV-C—2. The secondary route system should be selected to provide an interconnecting system of other routes alternative to those of the primary system. The secondary system should em’ brace, when available, two or more alternative routes for each section of primary highway. The selection of certain secondary and other highways as evacuation routes and their marking is discussed in section IV-G on evacuation planning. 6. Marking Secondary Highways.—Primary routes usually require no further marking for civilian purposes, since they generally follow well-marked highways. The marking of routes for military purposes is the responsibility of military authorities. Secondary routes in metropolitan areas and in populous States may be marked with special “Civil” route signs. Such signs facilitate the control and guidance of traffic when primary highways are blocked or reserved for military motor movements. Each such secondary route sign~should contain the name of the State, a route number in the “500” series, and the word “Civil” beneath. This type of sign is used in several Eastern States. It is also the standard type recommended in the War Emergency Edition of the Manual on Uniform Traffic Control Devices. Secondary routes that are presently marked with the same route number throughout need not be remarked with “Civil” route signs. The secondary route number should be shown on the maps and the numbers should be used when giving routing instructions. D. ORGANIZING HIGHWAY MAINTENANCE SERVICES. 1. Responsibility:—The State highway repair officer should be assigned the responsibility of organizing the personnel and equipment of the State highway department and other agencies not committed,to local Civilian Defense uses for a State emergency road-repair service.14 He also should give attention to the coordination of plans for mutual aid between communities for road repair and debris clearance. 2. Organizing a State Emergency Highway Repair Service.—Most State highway departments have considerable personnel and equipment that can be utilized best as a service under control of the State. In addition, equipment of the United States Department of Agriculture, other Federal and State agencies, road contractors, and conscientious objectors’ camps, not already committed exclusively and necessarily to other civilian defense uses, may be made available through a State emergency highway repair service. Such services already have been foAied in several States as a part of State civilian defense organization. Although the primary use of such facilities may be road and bridge repair and debris clearance, there are other uses to which they may be put, such as erection of detour and emergency route signs and in rescue, demolition, decontamination, and related services. The State emergency highway repair organization should be set up on the basis of the established divisions of the State highway department. The development and operation of the mobilization plan in each of the divisions should be headed by the division engineer or other responsible State highway official. Necessary supervisors for each maintenance district or other subdivision of each highway division should be selected from maintenance superintendents, supervisors of maintenance garages, or other responsible highway officials, or in some instances from other sources, according to local situations. In some States, district supervisors of this program may be subject to the general orders of the chief of the emergency public works service of the various county defense corps. In most States, however, it will be advantageous to create a State emergency highway repair service and have the district supervisors report directly to the division supervisor of the State service. 14 For Emergency Road Repair Service of the Citizens Defense Corps, See Handbook for Road Repair Crews, OCD Publication 1009. 11 Persons participating in the program should include the regular employees of the various organizations supplying the equipment. Auxiliary personnel may be recruited; Any training necessary to supplement the experience of the men should be given, including the basic OCD training wherever practicable. “The men then should be enrolled as members of the State emergency highway repair service or the county or municipal defense corps; Arm bands and identifying devices for vehicles usually should be issued through the State' defense council; Inventories of highway road building, maintenance, and repair equipment, already available in many States, should be ready for use by those who will direct road-repair operations during emergencies. Attention also should be given to inventorying and storing materials for repairing roads and strengthening weak bridges. District and division levels should maintain detailed inventories, but summaries of such inventories should be sufficient for State headquarters operations. Emergency road repair operations in a division usually will be coordinated from the division office of the highway department,. the division headquarters of the State police, or other suitable State office. A wall map of the division may be maintained in such a division headquarters to show the road net, distribution of available services, and road conditions. Operations within a district usually will be directed from a district highway maintenance garage. Adequate communications will be an important part of the system. Normal communications should be used when available, provided the control centers are kept informed of the activity. When necessary, the messages may be routed through municipal, county, and zone control centers of the Civilian Defense organization; Use also may be made of State police communication facilities, especially after the air raid. The highway division headquarters should maintain direct communications with zone control centers and division headquarters of the State police. Division highway offices, highway maintenance garages, and other facilities and personnel of the State emergency road repair service should be included among those with priorities for communication with control centers during times of emergency. When making advance plans, it is desirable that they be prepared for temporary restoration of vital highway structures, either through establishment of fords, erection of temporary structures, or other expedients. In each instance, the designs should be ready and the plans completed for utilizing personnel^ materials, and equipment. Liability and other legal questions that may arise from construction and use of detours and temporary structures should be studied in advance. y here may. be some important “bottleneck” ppints on secondary highways that require widening or improving otherwise so that heavy traffic may flow without congestion; Such points should be located and the repairs made. Other work may include widening roadways at sharp corners, repairing roadway defects, surfacing detours, and strengthening bridges. In some instances, this repair work may be done shortly before a road is to be pressed into service but after the traffic demands are known: However, the plans should be ready beforehand and the materials made available. Plans should be made in cooperation with the State police for the establishment of detours and the erection of temporary route signs. Highway department personnel may be organized into separate units for these purposes. An estimate should be made of the additional material that would be required. Temporary cardboard signs for marking evacuation routes may be prepared in advance. Preliminary plans may also be made for action in the event that military authorities should order the removal of signs that might give destinations, locations, or other information to an enemy threatening invasion: 3. United States Department of Agriculture Equipment Mobilization Plan.—The United States Department of Agriculture already has a comprehensive plan for mobilizing in each State the personnel and equipment of its many bureaus and divisions;. Coordination with Regional Directors of the Office of Civilian Defense and detailed procedure for the mobilization of this equipment and the execution of the program are the responsibility of Regional U. S. D. A. Equipment Mobilization Com 12 mittees; State and local contact officers and local dispatch officers have been designated to carry out the program. Liaison between such officers and State and local defense councils should be established. Equipment to be made available for Civilian Defense includes, but is not restricted to, automotive, vehicular, construction; maintenance, earth-moving, firefighting, and repair machinery of that Department, with all necessary personnel and supplemental tools and other devices. It also includes cots, bedding, and other facilities that may be useful to the Emergency Welfare Service and the Evacuation Service. Equipment useful for road repair and related Services, not already committed for local ' defense corps* service, should be listed for emergency use as directed by district and division supervisors of the State emergency road repair service.- Equipment already committed for use by local defense corps service should not be included as a part of the State service unless its transfer from local to State service is agreeable to all concerned, provided that coordination between all road repair services in the State, as mentioned under mutual aid plans, should be arranged. All requests for use of United States Department of Agriculture road repair equipment normally located in a highway division should be cleared through the proper divisional supervisor of the State service, except for equipment that is committed to and is a part of local defense corps service. 4. Mutual-Aid Plans.—Study should be made of the geographical location of target areas, vital structures, and local and State emergency road repair services, so as to ascertain 'the possible requirements for reinforcing municipal and county services in repair of highways under municipal and county jurisdiction. In most instances, services available through the State emergency road repair organization may be sufficient to supplement services of municipal and county road-repair services as well as to extend aid to other divisions in the State. However, advance arrangements should be made for such coordination, so that effective cooperation may be assured if required. Plans should be developed for possible movement of local personnel and various types of equipment to other jurisdictions for reinforcement: Certain types of equipment needed for special purposes; as for repairing roads and bridges on State highways, may be available in some jurisdictions and not in others. Jurisdictional questions may affect operation of these plans. In general, repairs to highways under the jurisdiction of the State highway department will be made by facilities of the highway department. When other facilities are used to repair those highways, the facilities should be under the control of a State highway official except where* temporary emergency repairs must be supervised by others. Similarly, repairs made to roads under the jurisdiction of a county or municipality usually should be made in cooperation with county or municipal officials: Advance arrangements are desirable to deal with jurisdictional problems that might hinder the prompt repair of highways in the primary or secondary route system. This is especially true for dealing with sections of such highways that may be under municipal or county control for ordinary maintenance. The State emergency road repair services should be notified of any damage to highways in the primary or secondary system, even though it be within municipalities and may necessarily have been repaired temporarily: 5. Winter Problems.—During winter months in many States, snow and ice may block« many primary and secondary routes or produce hazardous conditions. The need for keeping such routes open for possible emergency use is an additional reason for following a policy providing for prompt snow removal and' the sanding of icy sections of such streets and highways. E. COORDINATING POLICE TRAFFICCONTROL SERVICES. 1. Responsibility.—The State traffic control officer should be made responsible for coordinating assignments of State, county, and local police for emergency traffic-control purposes. The State traffic engineer officer should assist in selecting locations for use as State traffic-control points and metropolitan control stations and in selecting suitable emergency routes in metropolitan areas. Advice also 13 should be obtained from local police’ and other traffic authorities in making these selections and in manning the posts. 2. State Traffic-Control Points.—A network of strategic locations should be selected throughout the State for use as State trafficcontrol points. Such points should be located at intersections of primary highways, of secondary highways, and of primary and secondary highways, and at other strategic places convenient to communications. To facilitate the coordinated use of these traffic-control points, State and division commanders of the State police or patrol should work with local and county officials in developing coordinated operations plans for meeting emergency problems, such as the following: (1) Establishment of cordons around areas under air-raid alarm, for warning and control of incoming traffic at such times. (2) Control of traffic across bridges between jurisdictions during emergencies. (3) Establishment of cordons around vital war installations and around scenes of disasters during emergencies. (4) Rerouting of civilian traffic when certain primary routes are blocked or taken over for exclusive use of military motor vehicle movement. (5) Control and routing of various types of evacuation and the prevention or stopping of panic evacuation. In many instances these activities will require intercity, intercounty, and interstate agreements regarding traffic control to meet certain types of. emergencies. In making plans for Che first type of activity indicated above, for example, it is essential that the capacities of alternative routes be considered and that the diverted traffic be spread properly to avoid creating traffic congestion in other locations. State traffic-control points manned by local police in their own jurisdictions may be used as part of the local plans for traffic control during emergencies as well as part of the State plan. In this way, »local personnel will be serving a local purpose as well as aiding the State program. In planning the establishment of trafficcontrol cordons around areas under air-raid alarm, consideration should be given to the-use of air-raid information signs to supplement 14 the work of the cordon traffic-control personnel. The purpose of this phase of the plan is to provide a system of points, manned by municipal, county, or State police personnel, where traffic may be diverted from one route to another or otherwise controlled and to provide a means of reporting the progress of the movements of civilian and military convoys and other traffic. Reports on progress are particularly important, so that movements of motor vehicle convoys on intersecting • highways may be scheduled to avoid arrival at the same intersections at the same time. Control points may also serve as key trafficcontrol posts for establishing cordons around areas under air-raid alarm, around vital war plants and military installation's, and around major fires, explosions, or other disasters. In areas where the number of highways is limited because of geographical barriers or other reasons, control points at the two ends of each vital section of a highway are desirable to permit the proper scheduling of movements in the two directions. Such stations are essential for one-way traffic operation. Each city, town, and usually each village should have at least one control point, even though it may not" be at an intersection of primary or secondary routes. In this way, advantage may be taken of the available communication facilities and any available police personnel for manning the station. After the control points shall have been selected, they should be indicated on maps that can be reproduced and furnished to police officials throughout the State.15 Each point should be numbered for ready reference. Point 76—5, for example, might be point No. 5 in county No. 76 of the alphabetical list of counties in the State. These maps also should show primary and secondary highway systems. Arrangements should be made for manning these points at times of emergency by State, county, or local police, regular or auxiliary. Such arrangements preferably should be made by the proper division or post commander of the State police or patrol. Full use should be made of State police chiefs, sheriffs, and peace officers associations in developing interest and support for this plan for traffic-control coordination. It may be desirable also to have the Governor or other au thorized State official issue an executive order requesting that the State police undertake this activity.16 a. Communications.—Communications between each traffic-control point and the nearest control center or police station are an essential part of the plan for the transmission of messages between each traffic-control point and the division or State traffic-control headquarters. Telephone communications should be available, whenever possible, at each control point or in a~ building nearby. In some instances, it may be necessary to rely on the two-way, radios of police cars dispatched to a control point. Use may also be made of the War Emergency Radio Service. In arranging for telephone communications, officials of telephone companies and State and local communication officers of corresponding Civilian Defense councils should be consulted, since locations of telephone toll centers may affect operation materially during emergencies. 3. Emergency Routes in Metropolitan Areas.—A limited number of primary routes in metropolitan areas may be designated as emergency routes and their use may be limited during emergencies to emergency vehicles. The purpose of such routes would be to facilitate the movements of vehicles in emergency service, particularly for movements between vital sections of the metropolitan area. Additional personnel, barricades, and other devices should be provided on such routes to furnish the necessary protection.' While such routes usually should be selected from the primary highways in a metropolitan area, it may be necessary to designate as emergency routes some sections of streets that are not on the primary system in order to provide quick access to some vital depot, plant, or district. Great care should be taken to limit the number of emergency routes to those that are deemed absolutely necessary, because of the 'heavy demands for personnel to man such routes. Each emergency route, after selection in cooperation with military and local authorities, should be surveyed to determine the various points along the route where personnel, barri 16 Such executive orders, issued by the Governors of Massachusetts and New Jersey, have greatly aided the programs in those States. cades, and portable signs will be needed to supplement personnel of the regular trafficcontrol points. Assignments then should be made, usings personnel of State, county, and local jurisdictions, both regular and auxiliary. The chief enforcement officer of each jurisdiction should be responsible for the manning of all traffic control posts on such routes under his jurisdiction. It is imperative that all posts be manned and instructions obeyed for successful operation. Ordinarily, at least one man will be needed at each intersection along the route to see that vehicles áre diverted from the route and that it is kept clear for emergency vehicles. It may be feasible to plan for placing of detour barricades or portable signs at many of the intersections, so as to provide more complete protection or to replace personnel at minor intersections. In addition, mobile patrols may be provided to assist in keeping the route free of unauthorized traffic at all times during an emergency. These plans should be closely coordinated with any that the military authorities may have made or desire to make for the control of military transport or supply routes. In some instances, it may be possible to use military police for manning certain emergency routes. Traffic-control maps showing emergency routes and traffic-control "points along such routes are described briefly in section IV—C—2. Such maps should be supplied to officials of each jurisdiction in the metropolitan area. 4. Metropolitan Traffic-Control Stations.—A more permanent type of traffic-control station may be desirable on the important highways approaching large metropolitan cities in the coastal regions. Such stations may be considered as master traffic-control points having the additional purpose of routing trucks carrying food and military supplies to alternative terminals within the city. When such a system is to be applied, the first step should be to get information on the quantities of milk, vegetables, and other perishable food supplies brought into the city by various means. Study also should be devoted to the locations of terminals, warehouses; markets, and docks that receive such materials and to locations of terminals that receive military supplies for ports of embarkation. The stations then should be established at 15 strategic points on highways that have heavy truck movements of such supplies coming into the city. Adequate communication facilities should be provided between each control station and the proper local control center or police headquarters, so that the necessary information regarding blo'cked streets and highways, other damage affecting truck destinations, inaccessible sections, and use of or need for certain routes for other essential purposes may be kept up to date in each station. Maps of the area will be needed in each station for indicating such information. Arrangements should be made among companies receiving food supplies and by proper military authorities as they may deem advisable to select and designate alternative terminals that may receive goods in the «vent that the regular terminals are damaged or otherwise are- inaccessible. This information, which should include for each alternative terminal the name, address, precinct number, and map section number, should be furnished to and kept at each control station. During emergencies, each station may require several men to permit operation without delaying the vehicles. After an air raid causing serious damage, each truck is stopped and its destination ascertained, so that the driver may be given proper informatiorf on the routing to his regular terminal or to an alternative terminal if necessary. A truck driver bound for an inaccessible location would be permitted to proceed to the first accessible alternative terminal listed. In the absence of information on alternative terminals, trucks bound for inaccessible locations may be held until such information can be obtained. An alternative plan would be for the companies to print the information above mentioned on cards which should be furnished to and kept in each truck bringing supplies to the terminals. Under this plan the trucks would be stopped at the control stations and be given information on damaged routes and inaccessible terminals and would then proceed according to available routes and accessible terminals: Such truck control stations in areas having ports of embarkation may have military personnel assigned to them on a 24-hour day basis for routing vehicles carrying military supplies to the proper terminal. It is imperative, there- forej that the zone transportation officer or other proper military authorities be consulted prior to selecting the stations. Facilities to be provided at each station include a weatherproof building (or house trailer), located along the highway at a place having a wide shoulder to permit vehicles to stop off the traveled way. Adequate parking facilities should be available nearby for those trucks that have no known accessible destinations. Other facilities include adequate communications, heat, and light, the map mentioned previously, pads of “trip tickets” for indicating routes to truckers, and proper signs and lanterns for use in stopping and controlling truck traffic. Financing of such stations may require cooperative arrangements between State and local officials that are concerned with the system. The stations in the vicinity of the New York metropolitan area are* financed by the States. An emergency food-control subcommittee will be very helpful in developing the detailed application of this plan in a metropolitan área and in developing support for it from the food distributors, truckers, and local officials affected by the plan. F. HIGHWAY DAMAGE REPORTING. Any damage to highways or structures affecting or likely to affect the movement or operation- of any protective service should be reported immediately to a control center, police station, highway department office, or public works office, and to the State traffic operations room. When reported through police or highway channels, the information should be relayed to the proper local control center. Such information relating to the primary and secondary route systems then should be relayed through available channels to zone control centers and division headquarters of the State police and the State highway department, whence it should be further relayed, in such detail as may be necessary, to the State police headquarters and the State control center. Those instructed to report such information should include police and highway department personnel and appropriate members of the Civilian Defense Corps. Any information received from others may be forwarded to police or highway officials or Civilian Defense per 16 sonnel near the location for verification, when thought necessary prior to reporting it to State headquarters: Detours established for blocked sections likewise should be reported. Specific information-should be given on routes used for detours and whether they have any weak bridges or other limitations: In order to keep the maps up to date regarding normal highway facilities, State police and highway personnel may be instructed to report road condition information periodically (daily, if possible) to division headquarters. Such reports then should be forwarded to State headquarters, so that the information may be shown on the wall map. These reports should include information on: 1: Sections blocked completely by snow, floods, wash-outs, slides, road construction, road repair, etc.; 2. Sections blocked partially by such causes, 3. Detour routes for such blockades, and 4. General weather conditions throughout the State. The reports also should embody any available information as to the extent of delays that may be expected from any of the conditions reported above. When the Civilian Defense control centers are in operation, any road damage information that is reported to division or State headquarters of police or highway departments should be transmitted to the proper zone or State control center. The State and zone control centers will keep their State police and highway headquarters supplied with all proper information received at such control centers. Special efforts should be made for prompt and complete reporting of road damage, because it is essential to the success of the emergency trafficcontrol plan. Further, in view of the fact that several different agencies necessarily may be reporting highway damage, great care should be exercised to avoid the possibility that duplicate reports may be interpreted as reports of separate incidents. G: EVACUATION PLANNING: 1! Responsibility.—Policies, principles, and procedures for planning and executing evacuation of civilians are presented in Evacuation Bulletins Nos. 1 and 2, published jointly by OCD and . the United States Office of Defense Health and Welfare Services (now the Office of Community War Services). An OCD regional evacuation officer^ under general direction of the regional director, is responsible for both planning and execution in each Civilian Defense region. In each State,-an evacuation authority comprising the responsible heads of State agencies concerned with problems of health, welfare, emergency medical services, education, housing and transportation should be responsible for the State’s part in the evacuation program. It should be organized under the , State defense council and may operate through a State evacuation officer, who would direct the coordinated use of facilities of Federal, State, and local agencies participating in the program, subject to the orders and advice of the military authorities and the regional evacuation officer. State and local transport officers have the responsibility of providing transportation nec-esssary for evacuations, as set forth in OCD Operations Letter No. 86 and Transportation Bulletin No. 4, OCD Publication 3067. The formation and operation of motor-vehicle convoys are also responsibilities of State and local transport officers, subject to requirements of evacuation officers. Organization of motor transport companies and training of convoy leaders and convoy drivers are prescribed in Transportation Bulletin No. 2, OCD Publication 3019, and its supplemental instructions. State and local traffic control officers should assist corresponding transport officers in selecting locations suitable for formation of convoys, considering such factors as types of persons and vehicles, locations of temporary shelters, evacuation routes, destination, and parking facilities available at the formation points. The emergency , medical service is responsible for the evacuation of hospitals, for which the transportation facilities should be arranged by the State transport officer and the funds would be provided by the evacuation authority. The State traffic control officer is responsible for the control .of all evacuation movements over highways, subject to requirements of evacuation and transport officers and of military authorities. The State highway repair officer may be responsible for the actual erection of temporary evacuation route signs in rural 17 areas and in the smaller communities, utilizing highway divisional personnel. , The State traffic engineer officer should select the evacuation routes, working in close coordination with the State traffic control officer, the'State highway repair officer, evacuation and transport officers, local traffic authorities, and the military authorities. - 2. Selecting Evacuation Routes.—When selecting evacuation routes, it should be recognized that such movements may be dispatched over several alternative routes and by different modes of transportation, depending upon the military situation and the availability of rail, t highway, and water transport facilities at the time. Evacuation movements over highways may proceed over one or more of a number of alternative routes, and it may be necessary to change from one route to another on short notice. This emergency highway traffic control plan is well suited for rerouting such movements according to instructions from higher authority. • Probable routes for evacuation over highways may be selected in advance to aid in planning' traffic-control measures and in organizing - arrangements for health, welfare, and refueling and maintenance of vehicles. Such routes should be selected primarily for use in voluntary evacuation. In rural and suburban areas, such routes should follow secondary highways or highways not on either the primary or the secondary highway systems. In some cases, as in mountainous areas, however, it may be necessary to select parts of primary highways and to plan for scheduling movements .over them at times when they will not interfere with military movements. In cities within evacuation areas, a number of evacuation routes may be selected to provide properly for evacuees from each part of the city with as few conflicts as possible with essential traffic on emergency routes or other primary highways. Full use should be made of any available underpasses or other grade separations to accomplish this purpose. Probable routes for voluntary governmental evacuation should be selected only after information is known regarding: (1) Probable locations of reception areas and their capacity, (2) Available amount and types of transport equipment, (3) Probable numbers that may be evacuated, (4) Locations and capacity of food and shelter facilities in route, and (5) Probable amount of time available for evacuation. Special routing plans may be developed to facilitate control in the event that panic evacuation should develop in spite of efforts to prevent it. These plans may include the routing of panicky evacuees into areas where they will cause the least difficulty of control and from which they may be returned to their homes, if desirable, as soon as conditions improve. Pedestrians as well as.motor vehicles should be considered. Military authorities, the State Guard, and chiefs of State and local emergency medical services should be consulted prior to developing such routing plans. Since circumstances that may require compulsory evacuation cannot readily be foreseen, the military authorities should be consulted to determine the advisability of making efforts to select additional routes for probable use in any such evacuation. 3. Marking Evacuation Routes.—Plans for any necessary marking of evacuation routes with temporary route signs should be made in advance. The actual work generally should be done under the direction of the State highway repair officer through highway division personnel and coordinated at the State level insofar as necessary. Evacuation routes that may be marked with such signs just prior to an evacuation include (1) portions of urban streets or highways leading to numbered highways that are to be used and (2) portions of rural highways that are not on any numbered and marked highway system. Ordinarily, it will be inadvisable to plan for erecting either temporary or permanent evacuation route signs in rural areas on primary or secondary highways that already are parts of numbered and marked highway systems. During evacuation, the routes to be used may change from time to time, depending upon road damage and traffic demands at the time, and, if a route were reinoved from the evacuation plans, it usually would be desirable to remove 18 the evacuation route signs to avoid misguiding others. Marking of those evacuation routes that are to be marked usually should be deferred until just before the evacuation although the signs may be erected in anticipation of voluntary evacuation. The War Emergency Edition of the Manual on Uniform Traffic Control Devices suggests colored arrows and special destination signs for temporary markings on short notice. Permanent signs that will be useful in evacuation and that may be erected at the present time include the secondary route signs previously described in section IV-C-6 and additional directional, destination, and route signs placed along poorly marked secondary highways. 4. Traffic Control Planning.—Plans for traffic control of voluntary evacuation should include the manning and operation of State traffic-control points and the stationing of any necessary additional police personnel at other key points on all evacuation routes to serve as guides for the movements. Intersections where two evacuation routes converge into one route or where such routes cross primary or secondary highways are particularly important points. Mobile patrols also may be desirable to assist in maintaining uniform movements and to aid persons in trouble. Plans for -such assignments should be sufficiently flexible that they may be adapted to any changes in routing and to control of compulsory evacuation. Plans for a voluntary evacuation not supervised by the Government should include procedure for directing the vehicles to selected routes leading out of the city. Such plans also should include procedures for curtailing or stopping such evacuation if orders therefor should be issued by the State traffic operations room for any reason. At times of voluntary governmental evacuation and also under some conditions without such supervision, the departure of persons who make their own arrangements may be restricted to those who have a definite destination, such as the home of a relative or friend. The condition of vehicle and tires and availability of gasoline should also be given consideration. Plans to be prepared for the control of volun tary governmental evacuation from a local area should provide for: (1) The directing of evacuees to assembly points and temporary shelters, (2) Cooperating with local transport officers in assembly, formation* and dispatch of convoys, (3) Fixing of times of departure and routings as determined by the State traffic control officer and his staff, in cooperation with evacuation officers, and (4) Providing of police escorts to guide the convoys out of the city. The procedure for escorting convoys may be similar to that used for military convoys, except that the escorts should also assist the evacuation convoy leaders in maintaining order. In developing plans for the prevention of panic evacuation, military authorities and officials of the State Guard or other State armed forces should be consulted so that there will be cooperative activity by all who may assist in the maintenance of order. Such cooperation is essential at times of serious emergency when there is danger of panic developing among the population and resulting in confusion that might block highways. All available personnel should be utilized to assist in maintaining order when there is any danger of panic arising among the people. Instructions should be given to State, county, and local police, wardens, and the State Guard defining their parts in maintaining order and keeping unauthorized vehicles off the streets and the manner of their cooperation with military police in the event that martial law should become necessary. These instructions should also include assignments in executing any plans for routing panicky drivers and pedestrians into areas where there will be no interference with traffic on primary highways, if such drastic action should become necessary. Any necessary modification in the above plans to adapt them for use in control of compulsory evacuation may be made in cooperation with military authorities. Arrangements may be made with the Civil Air Patrol for assistance at time of evacuation (or other serious emergency) in spotting and reporting traffic, and road blocks resulting from congestion, road damage, or obstructions, etc., from airplanes. To some extent and in certain 1» CHART NO. 2 OPERATIONAL RELATIONSHIPS INDICATING CHANNELS OF COMMUNICATIONS DURING PERIODS OF AIR RAID ALARMS AND OTHER EMERGENCIES Mobile Patrols 20 situations, the actual supervision of traffic may be directed from the air. 5. Education.—An advance educational program for the plans that have been made for | transportation, traffic control, welfare, and care i can be very helpful in reducing the number of panicky drivers. Such a program should emphasize confidence in the military and Civilian Defense authorities and the necessity of esseii-I. tial persons remaining at their posts. If it I should be necessary to order an evacuation, | sufficient advance notice will be given for the I movements of those persons in priority groups I who indicate their desire to be included in the I evacuation inventory. The publicity should I point out that complete plans have been made I for the safety and care of children, their moth-| ers, and others to be moved. Material for this educational program should I be cleared through evacuation and military I authorities before its release. V. Operating the Plan The operation of the emergency traffic-I control plan is described here briefly for several I different types of war emergency. Chart No. I 2 showst the operational relations and channels I of communications between the various organi-■ zations concerned with traffic control and road I repair at State, division or zone, and local I levels; Each rectangle on the chart is num-■ bered for ready reference. In States not having State or zone control I centers (1) .and (7), their functions from the standpoint of traffic control and road repair should be added to the functions of the State ■ traffic operations room (3), division head-I quarters, of State police (8), and highway ■ department (9). Similarly, at times of heavy military move-ments or during suck disasters as floods, ■ explosions/ fires at war plants, and forest ■ fires or during evacuations, the peacetime headquarters of the police and highway de-partments (3), (4), (8), (9), (12), (14), and (15) ■ (and other governmental departments) will direct all operations, unless control centers are also operated at other times than during and immediately following periods of air-raid alarm. A. MOBILIZATION. Mobilization of the personnel should occur at the time of the “blue” air-raid warning signal. A part or all of the personnel may be mobilized at other times, such as for those emergencies listed above. The personnel that mobilizes at various stations indicated on the chart is listed in the following paragraphs, which also indicate the chain of command in operations. 1. Highway Repair Services.—Personnel of highway repair services (16), (17)> and (18) 'mobilizes at their respective garages or stations and awaits orders from higher authority (15) and (9). , 2. Police.—Regular and auxiliary police personnel of State, county, and municipal jurisdictions mobilizes at State traffic-control points (19) for traffic-control duty, subject to instructions from higher authority (12)$ (14), (8), and (3). Other personnel may mobilize at other State traffic-control posts (20) located on cordons or along emergency routes in metropolitan areas. 3. Supervisors of Local Public Works Departments.—Such supervisors mobilize at their peacetime headquarters (15) and await orders from the local control center (11). 4. Division Headquarters of Highway Department.—Each division highway engineer (with any necessary assistants) mobilizes at this headquarters (9) to receive requests and instructions from zone control centers (7) or orders from the State highway repair officer at (3) or (4) of from the chief highway engineer (1). 5. Division Headquarters of State Police.— Any necessary additional personnel mobilizes at this headquarters (8). This office may function as the coordinating agency for all State traffic'control points (19) in the police division, or it may serve primarily as a center for communications between the State traffic operations room (3) and State police posts (14) and local police headquarters (12). 6. Zone Control Center.—Civilian Defense personnel mobilized at zone control center (7) will supply intelligence information on proposed movements of civilian defense reinforcements and on road damage and blockades! 21 7. State Traffic Operations Room.—The men or their deputies who mobilize at this room (3) in State police headquarters include the State traffic-control officer, the State traffic engineer officer, the State highway repair officer (unless he directs his activities from the State highway department headquarters), and such assistants as may be necessary to maintain the maps and supply information on available routes, times, and priorities for movements of motor-vehicle convoys. The State transport officer or the State motor transport officer may operate from this same headquarters. Operations are subject to orders received from the Staté control center Q); 8. State Highway Department Headquarters.—This headquarters (4) may not be activated during periods of air-raid alarm, unless it is desired that the State highway repair officer and his assistants mobilize there instead of at the State traffic operations room. 9. State Control Center.—When mobilized during or following an emergency, operations at the State control center (1) would be directed by the State defense coordinator and the State chief of protection or other person directly in charge of operations. The emergency police officer (from the State police or patrol), the emergency highway officer (from State highway department), the State transport officer, and the State evacuation officer would be among those mobilized at the center in either an advisory or operating capacity, depending on the immédiates ituation.. Assistants needed to maintain communications, maps, and other information would be on duty. B; HIGHWAY REPAIR OPERATIONS. Damage to vital sections of primary or secondary highways will be reported immediately through control centers (11), State highway channels (18) and (9), and police channels (12), (14), and (8) to the State and zone control centers (7) and (1) and to the State traffic operations room (3); Damage to highways under highway department jurisdiction ordinarily will be repaired by the appropriate State services (16) and U. S. D. A. equipment (17), ordered into action by the division highway engineer (9), unless there has been sufficient damage to require that higher authority (1) or (3) determine priorities of damage to be repaired. When one highway division (9) needs assistance from another division, the request should clear through the State highway repair officer at the State traffic operations room (3). Damage to primary and secondary highways under municipal or county jurisdiction ordinarily will be the responsibility of local highway repair units (18). When reinforcements are necessary, they may be supplied through channels from the State highway depots (16), or the U. S. D. A. facilities (17), or from highway repair units (18) of other local jurisdictions. Suitable detours for blocked sections of primary and secondary highways should be established by highway personnel (16) or others responsible for this activity. The various police headquarters (12), (14), (10), (8), (5), and (3) should be informed of the detour routings and any physical limitations, such as weak bridges, restricted tunnel and bridge clearances, and condition of any fords on the detour; C. TRAFFIC CONTROL AT TIMES OF AIR-RAID ALARM. 1. Types of Air-Raid Signals.—Traffic control at times of air-raid alarms is related to the types of warning signals in use in an area. In all areas except the Western Defense Command, plans should be made for traffic control during the period following the audible “blue” preliminary warning signal as well as during the periods of the “red” alarm and the subsequent “blue” period. 2. Periods of “Blue” Alarm.—During the period following the preliminary “blue” signal, ordinary traffic will be allowed to proceed in x certain instances' except on highways that are designated and manned as emergency routes. Personnel mobilized at State traffic-control posts and points along emergency routes will divert such traffic to intersecting highways and will not permit any except emergency vehicles and other authorized vehicles to enter such routes. Mobile patrols also may assist in keeping these routes free of all except emergency vehicles. For the hours of darkness, steps also should be taken properly to treat or render inoperative all illuminated traffic-control devices that can 22 not be turned off within the time limits prescribed by applicable air-raid regulations.16 Since normal traffic is permitted to move during the “blue” periods, a plan may be developed to permit operation during these periods of certain essential traffic signals that otherwise would have to be turned off because (a) they are not equipped properly for continued operation during a period of “red” alarm and (b) they cannot otherwise be turned off within the specified time after the sounding of a “red” air-raid signal. Such a plan may provide for training and assignment of personnel for mobilization at locations of such traffic signals so that they can turn the signals off within the allowable time; During “blue” periods that follow periods of “red” air-raid alarm, traffic-control plans should provide for movements of civilian defense reinforcements and direction of panicky movements of the civilian population as well as for the resumption of norjnal traffic movements. 3. Periods of “Red” Air Raid Alarm.— Military vehicles and fire, police, medical, rescue, utility repair, and other vehicles identified and equipped as emergency vehicles should be permitted to move during periods of “red” air-raid alarm.17 Certain classes of these vehicles, such as those of the civilian defense auxiliary groups preferably should not be permitted to travel on 19 Air Raid Protection Regulations No. 1 of the Eastern Defense Command, effective February 17,1943, require that all illuminated traffic-control devices shall be treated for black-out operation or turned off during the “blue” period except for those traffic-control signals that can be turned off within 1 minute after the “red” signal. Methods for treating traffic signals and other illuminated traffic-control devices for black-out operation are contained in the War Department Specification Traffic Control during Blackèuts, OCD Publication 3062, and in the War Emergency Edition of the Manual on Uniform Traffic Control Devices, published by the U. S. Public Roads Administration. 17 Definitions and identifications for emergency vehicles that may move during periods of “red” airraid alarm are contained in Operations Letter No. Ill of the Office of Civilian Defense. Vehicular equipment specified by the War Department for use during blackouts is described in the War Department Specification Blackout Requirements for Highway Movement, OCD Publication 3048. Subsequent Operations Letters or other publications of the Office of Civilian Defense may give additional recommendations on matters of identification and black-out equipment. emergency routes or be given unquestioned access to areas of disaster. .Ordinary traffic should be stopped or rerouted at State traffic-control points and posts on the t>oundaries of the area under “red” airraid alarm and should not be permitted to enter such areas. Traffic within the area under the air-raid alarm should be handled according to the air-raid regulations in effect at the time. 4. Demobilize tion.—The traffic-control and road-repair personnel should continue to remain on the alert until orders for demobilization are given. This is especially necessary at times of air-raid alarm, since traffic ordinarily is very heavy following the end of the period of a “red” air-raid alarm. In addition, such activities as road repair and the movement of Civilian Defense reinforcements may continue throughout and beyond the end of the final “blue” period that follows the period of “red” alarm: Conditions also may be such that ordinary traffic should remain “frozen” in a badly damaged area after a raid to permit entry of emergency vehicles and to prevent panic evacuation that might result in disastrous traffic * congestion. D. MOVEMENTS OF CIVILIAN DEFENSE REINFORCEMENTS IN MUTUAL AID. . Requests for fire, medical, rescue, police,'and other civilian defense reinforcements are sent to the zone control center (7) from local control centers (11). The zone control center will arrange for obtaining the reinforcements from other jurisdictions and will immediately advise the proper division police headquarters (8) and the State control center (1) of its decision. The routing for reinforcement , movements from one community or county to another will be supplied by either the division police headquarters (8) or State traffic operations room (3), since both have complete information on road blocks, military movements, etc., in the area, obtained from such communication centers as (5), (7), (9), (10), (12), and (14): In any case, routings for reinforcement movements should be reported to the State traffic opera- , tions. room, so that an over-all picture of intercity movements may be obtained. 23 Plans for the assembly of fire vehicles 18 and other civilian defense reinforcements and then-dispatch should be developed in advance by the State and local chiefs of the various services with the assistance of State and local transport and traffic-control officers. (Consideration should be given to the limitations of fire apparatus and other special equipment for long-distance runs; which may require shipment by rail.) Police escorts may be assigned to the movements, following procedures already developed for escorting military convoys. This escort may report at each State traffic-control point in route to get any late information or orders regarding routes and destinations. In metropolitan areas, emergency routes, may be used to expedite the movement. In the event of a serious disaster involving reinforcement movements from many plac.es, the reinforcements may be routed to previously selected rendezvous in outlying districts of the stricken area for orderly use in the emergency. Rendezvous areas in England have facilities for temporary food and shelter for reinforcement personnel. E. MOVEMENTS OF MILITARY PERSONNEL AND SUPPLIES. 1. MoverAents of Military Vehicles.— General procedure for liaison between civilian and military authorities on military motorvehicle movements is discussed in section II. When the plan outlined in this manual shall be in operation, the military authorities may utilize the facilities of the various police headquarters and the State traffic-control points, where routing information can be obtained, based upon the latest information available through civilian defense, police* highway, or military channels. The commander in charge of a military motor vehicle movement may find this civilian trafficcontrol system especially helpful in an emergency to clear the way for an unimpeded nonstop movement to his destination. If time should permit, the commander of a unit might notify military police headquarters (5), the. traffic operations room (3), or other 18 See Fire Defense Organization, OCD Publication 3013, for information on State fire-defense coordination and mutual-aid plans. police headquarters (8), (10), (12), or (14) of his intentions, calling upon them to have a certain route cleared at a definite time. In this case, instructions for manning an emergency route or for otherwise rerouting civilian traffic would go to proper police headquarters (12) and (14), thence to State traffic-control points (19) for execution. The commander may also call upon these headquarters for assignment of civilian police escorts by various jurisdictions through which he would pass. In some cases, the unit commander might indicate his desires directly to the first State traffic-control point (19) encountered. The information then would be communicated from the State traffic-control point (19) to the proper headquarters, from which instructions could be issued to affected police headquarters and State traffic-control points. If it should become necessary for the military authorities to assume control of the civil government, the traffic-control system may be taken over intact, with continued use made of State traffic-control points as a part of the area control plan of the military police. The military authorities may desire to continue the use of existing personnel, supplementing it where necessary or desirable by military personnel. The State and division headquarters and the road-repair organization may continue to operate under military authority, with civilian personnel supplemented by military officers and enlisted men where necessary.. 2. Civilian Vehicles Carrying Military Supplies or Personnel.—Movements of such vehicles,,singly or in small groups, to ports of embarkation and staging areas are particularly important and must be expedited, regardless of the emergency. Such vehicles may display pennants when ne^ssary to identify them as emergency vehicles. (See section V-C-3.) When requested, the progress of the movements of such vehicles may be reported by State traffic-control points through channels to the proper military authority. Drivers may be instructed to stop at certain traffic-control points to receive messages regarding changes in destinations or routes. Information regarding air-raid conditions may also be reported to drivers of such vehicles by personnel at control points. During periods of air-raid alarm, such vehicles 24 should be permitted to use. emergency routes and to move freely at all times, unless instructed otherwise through proper channels. Motor transport companies, organized and trained according to Transportation Bulletin No. 2 of the Office of Civilian Defense, Ynay be used in convoys for the movement of military personnel or supplies. At such times, pennants or other devices should be displayed to identify the vehicles as being entitled to full emergency privileges. Police escorts may be provided, according to the procedure for military vehicles. State traffic-control points may be extremely useful in transmitting orders regarding routes and destinations. F. CONTROLLING SCENES OF DISASTER. When a vital area, such as an ordnance plant, is damaged, a cordon of police should be established around the entire area as rapidly as possible to reroute nonessential traffic and to facilitate access by emergency.vehicles. Non-essential traffic should be rerouted at points a considerable distance away to keep the surrounding area clear at all times. Plans for such action should be feady for execution, with officials of each jurisdiction consulted and fully informed of their parts. G TRAFFIC CONTROL DURING EVACUATION. . 1. Voluntary Unorganized Evacuation.— Minor movements of evacuees in anticipation of enemy action or in consequence of relatively insignificant incidents may go unnoticed at first. Traffic-control officials should be alert to the probability of such movements in order that action promptly may be instituted in anticipation of increased movements that may require definite control. On first notice of voluntary unorganized evacuation, those officials should man the necessary control points and report to the State traffic operations room, which, in consultation with State evacuation headquarters, should determine the measures necessary to be taken in the light of the over-all situation existing and anticipated. If the situation is not expected to become serious, it may be advisable to attempt to dissuade those leaving or about to leave from doing so. Public announce ment through the press and radio and direct contact by traffic-control personnel may be employed. It may be preferable to permit those who insist on evacuating to proceed so long as their movement does not interfere with military or other essential traffic and is not contrary to military orders. However, a close watch should .be kept on the situation so that the number of vehicles may not become so great as to get beyond control. Capacity of the highways that are available and not likely to be needed for other important uses should be a controlling factor. A sufficient number of State trafficcontrol points should be manned to provide adequate information on the progress of the movements and to retard them where necessary to avoid delaying any military or civilian movements. In extreme situations, it may be necessary for the authorities to order the temporary suspension of all except certain specified essential traffic movements. The State evacuation officer, in consultation with the State traffic-control officer, may recommend or direct that vehicles of voluntary evacuees be organized into convoy groups and escorted out of the area as described below under voluntary governmental evacuations. The erection of evacuation route markers may be ordered at this time in accordance with prearranged plans.19 2. Voluntary Governmental Evacuation.—When an evacuation is ordered by the Government, or just prior to such an order, it may be necessary 'to request or urge all persons to remain at home until otherwise instructed, so as to avoid the possibility of so many leaving that control over their movements might be lost; but those who insist on evacuating should be directed to the proper assembly points for registration. Following registration, they should be guided or directed to suitable locations for the formation of vehicle convoys to be dispatched in the desired directions. Here again, it may be advisable in extreme situations temporarily to suspend movement, as mentioned above. State evacuation officers, State transport officers, and State traffic-control officers should consult each other and the military authorities 19 Traffic control planning for evacuations is discussed in section IV-G. 25 before deciding on the numbers of persons of various priority groups to be evacuated to the various destinations each day by motor-vehicle convoy. Local traffic-control officers will assist local transport^ officers in the formation of convoys and their control while passengers and baggage are being loaded, using locations previously selected for forming the convoys. As the motor-vehicle convoys are being formed, the convoy leaders and the local transport officers should request local police.to obtain information on leaving times, routes, move-, ment priorities, and time limitations for clearing key intersections. Several assistants may be needed in the State traffic operations room to supply such information, especially if there also are several military motor vehicle movements at the same time. Close liaison must be maintained at all times between the State transport officer, the State traffic-control officer, and the State evacuation officer when routing such convoys. At all times, the convoys should be under control of convoy leaders and their assistants, who should be responsible for maintaining column discipline. Police escorts, if available, should guide evacuation convoys when moving out of the city and when moving through other cities. Identification cards or other devices should be displayed by each convoy. (See Transportation Bulletin No. 4, OCD Publication 3067.) The police stationed at the State traffic-control points will supply information on the progress of convoys and halt or reroute such movements where necessary, as instructed by the State traffic operations room. In such situations, operations will be subject to instructions of the regional and State evacuation officers. Convoy leaders will exchange information with the police officer at each State trafficcontrol point. This information should be relayed through channels to the 'State traffic operations room and the State evacuation officer. Progress of the movement“ of each civilian and military convoy may be indicated by pins on the wall map. Many individuals with their own vehicles, after registration, may desire to leave for des tinations at times when there are insufficient vehicles to form convoys. In such instances, permission may be obtained for such departure over routes designated by the State traffic operations room. Permission, when granted, may specify the maximal number of vehicles that may be permitted to leave each hour over specified routes. Such movements may be held or rerouted at State traffic-control points according to instructions issued later by the State traffic operations room. These vehicles should be identified and marked as evacuation vehicles. If evacuation route signs were not erected previously to guide voluntary evacuation movements, they may be erected to aid in the governmental evacuation program, as discussed in section IV-G. 3. Panicky Situations.—Following a series of heavy bombings or at times of threatened invasion, all police and available auxiliary personnel should follow their instructions for the prevention of panic that might result in connection with voluntary evacuation. After the ending of the “red” alarm period following à severe bombing, for example, the traffic restrictions that apply during the “red” period might be continued for some time for the primary purpose of preventing such a situation. If panic should arise and spread regardless of efforts to stop it and if people should attempt to leave the area by vehicle and on foot, previously developed plans for control of such movements should be applied. Firm measures may be necessary to direct such movements to and over streets and highways that lead into other ample areas or open spaces from which the people might return to their homes after the panic had subsided. Methods similar to those used in controlling mobs may be required at certain locations to keep such traffic off the highways of vital military importance. 4. Compulsory Evacuation. — Plans described above for voluntary governmental evacuation will apply for compulsory evacuation-, subject to any modifications necessary because of the number of persons involved, the military situation, and other conditions that may exist at the time; U. S. GOVERNMENT PRINTING OFFICE: 1943 28