? Review the Transportation Research News Report, August 2013. This is a long document that you can review later, but focus o

JULY–AUGUST 2013 NUMBER 287

TR NEWS

Logistics of Disaster Response � Key Lessons for Postdisaster Humanitarian Logistics

� Building Adaptive Supply Chains

� Assembling a Model for Community Recovery

� Planning for the Worst, Teaming with the Best

� Securing the Fuel Supply

� Timely Interventions: Social Media, Ferries

� Commercial Aviation and Business Continuity

Plus:

Communicating the Urgency

for Action on Climate Change

National Academy of Sciences National Academy of Engineering Institute of Medicine National Research Council

The Transportation Research Board is one of six major divisions of the National Research Council, which serves as an independent adviser to the federal gov- ernment and others on scientific and technical questions of national impor- tance, and which is jointly administered by the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine. The mission of the Transportation Research Board is to provide leadership in transportation innovation and progress through research and information exchange, con- ducted within a setting that is objective, interdisciplinary, and multimodal. The Board’s varied activities annually engage about 7,000 engineers, scientists, and other trans portation researchers and practitioners from the public and private sectors and academia, all of whom con- tribute their expertise in the public inter- est. The program is supported by state transportation departments, federal agencies including the component administrations of the U.S. Department of Transportation, and other organiza- tions and individuals interested in the development of transportation.

The National Research Council was orga- nized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy’s purposes of fur- thering knowledge and advising the federal government. Functioning in accordance with general policies deter- mined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scien- tific and engineering communities.

www.TRB.org

TRANSPORTATION RESEARCH BOARD 2013 EXECUTIVE COMMITTEE*

Chair: Deborah H. Butler, Executive Vice President, Planning, and CIO, Norfolk Southern Corporation, Norfolk, Virginia

Vice Chair: Kirk T. Steudle, Director, Michigan Department of Transportation, Lansing Executive Director: Robert E. Skinner, Jr., Transportation Research Board

Victoria A. Arroyo, Executive Director, Georgetown Climate Center, and Visiting Professor, Georgetown University Law Center, Washington, D.C.

Scott E. Bennett, Director, Arkansas State Highway and Transportation Department, Little Rock William A. V. Clark, Professor of Geography (emeritus) and Professor of Statistics (emeritus), Department of

Geography, University of California, Los Angeles James M. Crites, Executive Vice President of Operations, Dallas–Fort Worth International Airport, Texas Malcolm Dougherty, Director, California Department of Transportation, Sacramento John S. Halikowski, Director, Arizona Department of Transportation, Phoenix Michael W. Hancock, Secretary, Kentucky Transportation Cabinet, Frankfort Susan Hanson, Distinguished University Professor Emerita, School of Geography, Clark University, Worcester,

Massachusetts Steve Heminger, Executive Director, Metropolitan Transportation Commission, Oakland, California Chris T. Hendrickson, Duquesne Light Professor of Engineering, Carnegie Mellon University, Pittsburgh,

Pennsylvania Jeffrey D. Holt, Managing Director, Bank of Montreal Capital Markets, and Chairman, Utah Transportation

Commission, Huntsville, Utah Gary P. LaGrange, President and CEO, Port of New Orleans, Louisiana Michael P. Lewis, Director, Rhode Island Department of Transportation, Providence Joan McDonald, Commissioner, New York State Department of Transportation, Albany Donald A. Osterberg, Senior Vice President, Safety and Security, Schneider National, Inc., Green Bay, Wisconsin Steve Palmer, Vice President of Transportation, Lowe’s Companies, Inc., Mooresville, North Carolina Sandra Rosenbloom, Director, Innovation in Infrastructure, The Urban Institute, Washington, D.C. (Past Chair,

2012) Henry G. (Gerry) Schwartz, Jr., Chairman (retired), Jacobs/Sverdrup Civil, Inc., St. Louis, Missouri Kumares C. Sinha, Olson Distinguished Professor of Civil Engineering, Purdue University, West Lafayette,

Indiana Daniel Sperling, Professor of Civil Engineering and Environmental Science and Policy; Director, Institute of

Transportation Studies, University of California, Davis Gary C. Thomas, President and Executive Director, Dallas Area Rapid Transit, Dallas, Texas Phillip A. Washington, General Manager, Regional Transportation District, Denver, Colorado

Rebecca M. Brewster, President and COO, American Transportation Research Institute, Marietta, Georgia (ex officio)

Anne S. Ferro, Administrator, Federal Motor Carrier Safety Administration, U.S. Department of Transportation (ex officio)

LeRoy Gishi, Chief, Division of Transportation, Bureau of Indian Affairs, U.S. Department of the Interior, Washington, D.C. (ex officio)

John T. Gray II, Senior Vice President, Policy and Economics, Association of American Railroads, Washington, D.C. (ex officio)

Michael P. Huerta, Administrator, Federal Aviation Administration, U.S. Department of Transportation (ex officio)

David T. Matsuda, Administrator, Maritime Administration, U.S. Department of Transportation (ex officio) Michael P. Melaniphy, President and CEO, American Public Transportation Association, Washington, D.C.

(ex officio) Victor M. Mendez, Administrator, Federal Highway Administration, U.S. Department of Transportation

(ex officio) Robert J. Papp (Adm., U.S. Coast Guard), Commandant, U.S. Coast Guard, U.S. Department of Homeland

Security (ex officio) Lucy Phillips Priddy, Research Civil Engineer, U.S. Army Corps of Engineers, Vicksburg, Mississippi, and Chair,

TRB Young Members Council (ex officio) Cynthia L. Quarterman, Administrator, Pipeline and Hazardous Materials Safety Administration, U.S.

Department of Transportation (ex officio) Peter M. Rogoff, Administrator, Federal Transit Administration, U.S. Department of Transportation (ex officio) David L. Strickland, Administrator, National Highway Traffic Safety Administration, U.S. Department of

Transportation (ex officio) Joseph C. Szabo, Administrator, Federal Railroad Administration, U.S. Department of Transportation (ex officio) Polly Trottenberg, Under Secretary for Policy, U.S. Department of Transportation (ex officio) Robert L. Van Antwerp (Lt. General, U.S. Army), Chief of Engineers and Commanding General, U.S. Army

Corps of Engineers, Washington, D.C. (ex officio) Barry R. Wallerstein, Executive Officer, South Coast Air Quality Management District, Diamond Bar, California

(ex officio) Gregory D. Winfree, Acting Administrator, Research and Innovative Technology Administration, U.S.

Department of Transportation (ex officio) Frederick G. (Bud) Wright, Executive Director, American Association of State Highway and Transportation

Officials, Washington, D.C. (ex officio)

* Membership as of August 2013.

TR NEWS NUMBER 287 JULY–AUGUST 2013

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LOGISTICS OF DISASTER RESPONSE AND BUSINESS CONTINUITY

3 INTRODUCTION Transportation’s Roles in Disaster Response Jon S. Meyer Many parties are involved in transportation’s role in disaster relief and business continuity; the articles assembled here offer snapshots of well-researched initiatives, improvements, collaborations, insights, and the steps ahead.

4 Improving Postdisaster Humanitarian Logistics: Three Key Lessons from Catastrophic Events José Holguín-Veras, Miguel Jaller, and Tricia Wachtendorf The authors present three practical lessons gleaned from fieldwork after the Port-au- Prince, Haiti, earthquake and the Tohoku, Japan, tsunami: the strategic differences between disasters and catastrophes, the need to control the spontaneous flow of supplies, and the benefits of integrating the civic society into the response and recovery.

11 Humanitarian Relief and Broken Supply Chains: Advancing Logistics Performance John T. (Jock) Menzies III and Omar (Keith) Helferich All of the stakeholders in a relief operation—donors, humanitarian groups, governments, local nongovernment organizations, the military, and the private sector—are connected by a fragile supply chain. The challenge is to create a flexible and adaptive supply chain for humanitarian relief, capable of launching a variety of services appropriate to the incident, with a wide scope, in a short time. The authors identify practical approaches.

17 Humanitarian Clean Water Initiative in the Dominican Republic: Summary of a Sustainability Pilot John T. (Jock) Menzies III and Omar (Keith) Helferich

18 Building Resilience in Community Recovery: Overcoming Supply Chain Performance Challenges in a Crisis Charlotte Franklin The Arlington County Office of Emergency Management is implementing a supply chain–focused partnership between local government and private businesses. The goal is to enable a fast, smooth transition from the supply chain’s normal, cost-efficient function to the life-saving focus needed in a crisis.

20 Summit Explores Lessons from Supply Chains

23 Disaster Resilience in America: Steps Forward Elizabeth A. Eide and Lauren Alexander Augustine

24 Fuel Supply in an Emergency: Securing the Weakest Link Herby Lissade

26 Social Media in Disaster Preparation, Response, and Recovery Sarah M. Kaufman

28 Ferries to the Rescue: Lessons for Resilience on Waterways Roberta E. Weisbrod and Adam Zaranko

30 Emergency Management and Business Continuity Within Commercial Aviation Richard Bloom, Joyce Kirk-Moyer, and Norm Wrona

32 Planning for the Worst, Teaming with the Best: Instituting an Emergency Management Program in Idaho to Maximize Performance Bryan D. Smith Instead of building a conventional emergency management office, the Idaho Transportation Department has established a broad, team-focused system and program that can tap into all the expertise, staff, and resources of the department and the state. The best cross-functional team can be ready for deployment anywhere in the state at any time, and can grow as fast as necessary, as big as necessary, for as long as necessary.

38 Transportation Hazards and Security Summit and Peer Exchange: Advancing Research and Applications for Agencies Stephan A. Parker

18

32

COVER: A U.S. Coast Guard crew loads medical supplies for first responders in Port- au-Prince, Haiti, after the 2010 earthquake. Recent natural and human-caused disasters have highlighted gaps in international aid and disaster relief logistics. (Photo: Stephen Lehmann, U.S. Coast Guard)

TR NEWS features articles on innovative and timely research and development activities in all modes of trans portation. Brief news items of interest to the transportation community are also included, along with profiles of transportation profes – sionals, meeting an nouncements, summaries of new publications, and news of Trans portation Re search Board activities.

TR News is produced by the Transportation Research Board Publications Office Javy Awan, Editor and Publications Director Lea Camarda, Associate Editor Jennifer J. Weeks, Photo Researcher Juanita Green, Production Manager Michelle Wandres, Graphic Designer

TR News Editorial Board Frederick D. Hejl, Chairman Jerry A. DiMaggio Charles Fay Christine L. Gerencher Edward T. Harrigan Christopher J. Hedges Russell W. Houston Katherine Kortum Thomas R. Menzies, Jr. G.P. Jayaprakash, Research Pays Off Liaison

Transportation Research Board Robert E. Skinner, Jr., Executive Director Suzanne B. Schneider, Associate Executive

Director Mark R. Norman, Director,

Technical Activities Stephen R. Godwin, Director,

Studies and Special Programs Gary J. Walker, Director,

Administration and Finance Christopher W. Jenks, Director,

Cooperative Research Programs Ann M. Brach, Director, SHRP 2

TR News (ISSN 0738-6826) is issued bimonthly by the Transportation Research Board, National Research Council, 500 Fifth Street, NW, Washington, DC 20001. Internet address: www.TRB.org.

Editorial Correspondence: By mail to the Publications Office, Transportation Research Board, 500 Fifth Street, NW, Washington, DC 20001, by telephone 202-334-2972, by fax 202-334-3495, or by e-mail [email protected]

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Notice: The opinions expressed in articles appearing in TR News are those of the authors and do not necessarily reflect the views of the Transportation Research Board. The Trans por tation Research Board and TR News do not en dorse products or manufac- turers. Trade and manufacturers’ names appear in an article only because they are considered essential.

Printed in the United States of America.

Copyright © 2013 National Academy of Sciences. All rights reserved. For permissions, contact TRB.

The September–October issue of TR News focuses on environmental sustainability in transportation and how it can improve the quality of life for individuals and communi- ties. Articles highlight practice-ready research and cover such topics as integrating vegeta- tion and green infrastructure into sustainable transportation planning; implementing the Eco-Logical approach in Nevada, Colorado, Utah, Montana, Washington, and Oregon; Virginia’s improved construction specifica- tions for stormwater pipe-lining materials; creating a multiagency sustainability frame- work in Colorado; effective noise barriers in North Carolina; Delaware’s use of recycling materials and techniques; sustainability in airspace system planning; and more.

40 POINT OF VIEW Communicating the Urgency for Action on Climate Change: Challenges and Approaches Robert B. Noland The science of climate change suggests that ambitious initiatives are needed in planning for adaptation and in implementing policies to mitigate potentially severe impacts in the next 50 years. How can transportation professionals play a role in advocating and implementing the most effective policy options? The author reviews research that offers guidelines for overcoming the barriers to communication about climate change.

A L S O I N T H I S I S S U E :

C O M I N G N E X T I S S U E

44 Profiles C. Randall (Randy) Mullett, public policy, corporate security, and communications executive at Con-way Inc.; and Eric C. Shen, Director of Transportation Planning for the Port of Long Beach, California

46 Research Pays Off Extending the Service Life of Pavement Markings: Iowa Applies Innovation and Technology to Reduce Costs, Increase Safety Omar Smadi, Neal Hawkins, and Robert Younie

49 Calendar

50 TRB Highlights Webinars Save State Agencies Money, 50 Lisa Berardi Marflak

Cooperative Research Programs News, 50

Second Strategic Highway Research Program News, 51

On-Time Arrival App Wins Six-Minute Pitch: Young Members Council Sponsors Annual Meeting Challenge, 52 Shana R. Johnson

54 News Briefs

56 Bookshelf

P H O T O C O U R T E SY

O F K E N P O LC A K

Noise barriers—the traditional approach to traffic noise abatement in the suburban setting—target the primary noise source and provide a means of restoring or improving the soundscape.

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T he Transportation Research Board established the Task Force on Logistics of Disaster Response and Business Continuity in 2012. The mission of the task force is to provide a forum to

initiate and facilitate discussion, feedback, and exchange between the different parties involved in the various aspects of disaster relief and humanitarian aid logistics—from academia, industry, all levels of government, the military, research, nongovernmental organizations, and U.S. and international relief agencies.

The need for this dialogue is readily apparent in the response to the many natural disasters that have occurred in the past few years—for example, the 2011 earthquake and tsunami in Japan and Superstorm Sandy, the deadliest and most destructive hurricane of the 2012 Atlantic season and the second-costliest in U.S. history. The feature articles, minifeatures, and sidebars in this issue of TR News provide snapshots of the many parties involved in transportation’s role in disaster relief and business continuity— their well-researched initiatives, improvements, collaborations, insights, and the steps ahead—to stimulate interest in this topic, as well as participation in the ongoing efforts of the task force.

—Jon S. Meyer, Chair Task Force on Logistics of Disaster Relief

and Business Continuity

Appreciation is expressed to TRB Senior Program Officers Joedy W. Cambridge, who retired in May, and Scott Brotemarkle for their work in developing this issue of TR News. The magazine’s editorial board salutes Cambridge for her work in coordi- nating a variety of theme issues on marine, freight, and transportation security topics and in recruiting many additional feature articles during her TRB career.

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Holguín-Veras is William H. Hart Professor and Director, and Jaller is Research Associate, Volvo Research and Educational Foundations’ Center of Excellence for Sustainable Urban Freight Systems and the Center for Infra- structure, Transportation, and the Environment, Department of Civil and Environmental Engineer- ing, Rensselaer Polytech- nic Institute, Troy, New York. Wachtendorf is Asso- ciate Professor, Depart- ment of Sociology and Criminal Justice and Asso- ciate Director, Disaster Research Center, Univer- sity of Delaware, Newark.

Publisher’s Note: Holguín-Veras is a 2013 recipient of a U.S. White House Champion of Change Award for “exem- plary leadership in devel- oping or implementing transportation technology solutions to enhance per- formance, reduce conges- tion, improve safety, and facilitate communication across the transportation industry….”

C atastrophic events such as the 2004 Indian Ocean tsunami, Hurricane Katrina in 2005, the 2010 Port-au-Prince earthquake, and the

Tohoku tsunami in 2011 reinforce the critical impor- tance of postdisaster humanitarian logistics (PD-HL), not only in transporting and distributing supplies to the affected populations but in the larger response effort. Conducting efficient and effective PD-HL operations in the aftermath of such events is a huge challenge.

The world today is embedded in complex sociotechnical systems—networks of individuals conducting technical activities through a set of sup- porting systems, such as transportation, communi- cations, and finance. The impacts of a catastrophe on these components and systems are severe, as indi- vidual members of the social networks may be killed, injured, or displaced; the equipment and materials needed to conduct the technical activities may be destroyed or may lack the necessary inputs to run; and all of the supporting systems are likely to be inoperable or to function at a fraction of their nor- mal capacity.

Catastrophic events present other unique and notable challenges. In the aftermath, large and

dynamically changing volumes of critical supplies must be transported in a short time; great uncer- tainty prevails about the needs for critical supplies; the ability of the local civic society to organize a response is compromised; large portions of critical local assets are destroyed; and huge flows of nonpri- ority donations arrive at the site, distracting resources from more critical tasks (1–3).

Moreover, a poor understanding of catastrophes affects the nature and efficiency of a response. Because catastrophic events are rare, only a minus- cule percentage of responders have experience in postcatastrophe logistics and operations. In addition, the events are extremely dynamic and can quickly transition from stage to stage. Lastly, catastrophes are extremely difficult to study—travel to the area is required soon after to observe the unfolding response.

Fieldwork that has spanned such catastrophic events as the September 11, 2001, terrorist attacks on the World Trade Center, Hurricane Katrina, the Port- au-Prince earthquake, the Tohoku tsunami, the Joplin tornados, and Superstorm Sandy has yielded definite lessons. The focus here, however, is on the top three lessons learned from the Port-au-Prince

Improving Postdisaster Humanitarian Logistics Three Key Lessons from Catastrophic Events J O S É H O L G U Í N – V E R A S , M I G U E L J A L L E R , A N D T R I C I A W A C H T E N D O R F

Flooding at the Sendai Airport near the site of the March 2011 Tohoku tsunami.

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and the Tohoku responses. These two events provide complementary lessons leading to a unified and com- prehensive set of suggestions for improvement (4–6).

Lesson 1. Disasters and catastrophes are not the same; be ready for both. Disasters of all sizes leave trails of destruction and human suffering that defy easy description or cate- gorization. Individuals and families can experience impacts that are disastrous or catastrophic on a per- sonal level; nevertheless, disasters are defined from a sociological and not from a personal perspective— the focus is on how communities and societies can best prepare for and respond to extreme events.

Defining Terms Although the appropriate definition is a subject of debate (7), a disaster can be understood as “a non- routine event that exceeds the capacity of the affected area to respond in a way that saves lives, preserves property, and maintains the social, ecological, eco- nomic, and political stability of the affected region” (8). In contrast, a catastrophe is “a high-consequence event that generates widespread and crippling impacts, [so that] the ability of the impacted society to respond is severely compromised” (2, 9).

The typical impacts of disasters and catastrophes are summarized in Table 1 (below). In disasters, the local capacity to respond is viable and depends on

the state of the civic leadership, the availability of critical supplies, and the capacity to mobilize and dis- tribute critical supplies. The response effort has access to multiple entry points in the disaster area, and the local distribution effort is simpler than in a comparable catastrophe.

In short, the local civic society is able to provide a meaningful first wave of resources in response to a disaster. Outside help complements the local effort beyond the initial 24 to 48 hours, as outlined in the National Response Framework (10).

By contrast, a catastrophe is likely to have had an impact on the local leadership, which may be unable

Characteristic Disaster Catastrophe

Leadership of civic society Typically survives the disaster and is able to lead the response

In most cases, severely affected and unable to lead an effective response

Local stocks of supplies in businesses and households

Only partly destroyed; the surviving supplies may become part of the response

Mostly destroyed; the role of local supplies in the response is minimal

Demand for supplies Increases with the needs of business- es, people, and the response; pre- cautionary or opportunistic buying could be a problem

Huge increases because of the mag- nitude of the impacts; precautionary or opportunistic buying could be a problem in nearby areas

Private-sector supply chains Partly impacted but functional, could help in response

Severed, destroyed, cannot help in response

Number of points of entry to the disaster area

Multiple points of entry provide responders with alternatives to enter the area

Only a few points of entry, compli- cating distribution efforts

Complexity of the local distribution effort

Challenging but manageable Exceedingly complex, because of the size of the impacted area and the personnel required

Material convergence of nonpriority supplies

A nuisance that can be controlled A major problem that distracts sig- nificant amounts of resources from critical tasks

Net result Local help is key in initial days; out- side help brings additional supplies

Outside help is the primary source of supplies

TABLE 1 Comparison of Impacts: Disasters Versus Catastrophes

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Pallets of water treatment gear are loaded onto an Oxfam aid flight to Haiti after the 2010 earthquake in Port-au-Prince.

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to lead the civic society and to organize aid efforts. The material capacity to respond is likely to be severely compromised—local inventories of critical supplies are usually destroyed or out of reach, and the companies that manage local supply chains for critical supplies are unable to function. Moreover, the demands for the impacted population and for the response itself are much more intense than after a disaster; as a result, the local civic society cannot provide the first wave of resources.

Manning the Distribution The most challenging component in the response to a catastrophic event is the local distribution of criti- cal supplies at the points of distribution (PODs). This activity is relatively simple in disasters but in cata- strophes is hugely complex, because of the large geo- graphic areas to be served; the large number of PODs to be established, manned, and supplied; and the severe impacts on the transportation and distribu- tion networks (11).

In the immediate aftermath of the Port-au-Prince earthquake, for example, manning and supplying the 150 to 200 PODs required 20,000 to 25,000 volun- teers—approximately the size of an average U.S. Army division, which needs three to four weeks to deploy. In catastrophes that have an impact on large urban areas, therefore, the resources to man and sup- ply the PODs cannot be provided by outside sources; only the local social networks can address the mon- umental challenge.

Lesson 2. Control material convergence and precautionary or opportunistic buying. Material convergence—the spontaneous flow of sup- plies, donations, and equipment to the disaster area— is a unique, overlooked, and poorly understood phenomenon (3, 11, 12). The convergence con- tributes much-needed supplies, along with an astro- nomical amount of useless and inappropriate items, such as wedding gowns, used clothing, expired med- ications, and a range of products that have failed in the marketplace.

Material convergence comprises three groupings (2, 13):

1. High-priority supplies for immediate distribu- tion and consumption,

2. Low-priority supplies that are not immediately needed but could be useful later, and

3. Nonpriority supplies that are not of any practi- cal use.

Nonpriority items often are termed “in kind” and “unsolicited” donations, but in-kind and unsolicited donations can be useful; a large portion of the inter- national aid that arrived at Haiti was both in-kind and unsolicited, as international donors sent critical sup- plies without being asked by the Haitian government.

The impacts and problems associated with mate- rial convergence were first identified almost a century ago (3, 11, 12). Recent rough estimates indicate that

P H O T O : T

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S G O M A

Collaborative aid networks such as Caritas—here providing assistance to Congolese residents displaced by war—are well-suited to respond to emergency events.

about 5 to 15 percent of the cargo arriving at the site consists of high-priority supplies, about 25 to 35 per- cent are low-priority supplies, and nonpriority sup- plies make up a staggering 50 to 70 percent.

Controlling Nonpriority Supplies The flow of nonpriority supplies is the most prob- lematic component of material convergence. Non- priority supplies consume resources that could be applied to more important tasks, create major com- plications to the response, and offer little to help the survivors or the response. Disaster responders refer to the flow of useless, nonpriority goods as “a second- tier disaster” (14). These supplies “often complicate unnecessarily the logistics of relief operations,” “fre- quently… have not been asked for,” “do not respond to the needs of the affected population,” “lead to a waste of time and resources,” “are useless or irrele- vant,” and “should be discarded as soon as possi- ble…to make room for useful supplies” (3, 11, 13).

Research suggests that the media’s portrayal of needs—mostly subjective and based on what is con- sidered newsworthy—can generate nonpriority sup- plies (3). Moreover, vehicles carrying nonpriority supplies can clog the entry points to the area and usually require longer inspection …