Highway Incident Emergency Management Guidelines
Response to Highway Incidents
I.
Purpose:
This procedure identifies parking practices for
Emergency Vehicles and other vehicles that will provide maximum protection and
safety for personnel operating in or near moving vehicle traffic. It also
identifies several approaches for individual practices to keep personnel safe
while exposed to the hazardous environment created by moving traffic.
II.
Scope:
It shall be the policy of the Emergency Service
providers within Oconto County to position emergency vehicles at a
vehicle-related incident on any street, road, highway, expressway and
freeways; in a manner that best protects the incident scene and the work
area. Such positioning shall afford protection to fire department personnel,
law enforcement officers, EMS providers, tow service operators and the
motoring public from the hazards of working in or near moving traffic.
III.
Authority:
In accordance with Wisconsin Statute - §349.02. In the event of fire or other
emergency, law enforcement officers, sheriffs, deputy sheriffs and traffic
officers and officers of the fire department may direct traffic as conditions
may require notwithstanding the provisions of chs. 346 to 348 and 350.
IV.
Terminology:
The following terms shall be used during incident operations, post-incident
analysis, and training activities related to working in or near moving
traffic.
1)
Advance Warning- notification procedures that
advise approaching motorists to transition from normal driving status to that
required by the temporary emergency traffic control measures ahead of them.
2)
Block- positioning an emergency
vehicle on an angle to the lanes of traffic creating a physical barrier
between upstream traffic and the work area. Includes “block to the right” or
“block to the left”.
3)
Buffer Zone- the distance or space
between personnel and vehicles in the protected work zone and nearby moving
traffic.
4)
Downstream- the direction that traffic
is moving as it travels away from the incident scene.
5)
Spotters(s)- emergency personnel assigned
to monitor approaching traffic and activate an emergency signal if the actions
of a motorist do not conform to established traffic control measures in place
at the highway scene
6) Flaggers(s)
– Personnel assigned to control stop and go of traffic or direct traffic in
conformance with the manual for uniform traffic control devices.
7)
Shadow- the protected work area at a
vehicle-related roadway incident that is shielded by the block from apparatus
and other emergency vehicles.
8)
Taper- the action of merging
several lanes of moving traffic into fewer moving lanes.
9)
Temporary Work Zone- the physical area of
a roadway within which emergency personnel perform their EMS, fire and law
enforcement tasks at a vehicle-related incident.
a)
Type 1 Event
(Major Event): Lane closure in excess of 2 hours
b)
Type 2 Event
(Intermediate Event): Lane closure in excess of ½ hour
c)
Type 3 Event
(Minor Event): Lane closure less than ½ hour
10)
Transition Zone- the lanes of a roadway
within which approaching motorists change their speed and position to comply
with the traffic control measures established at an incident scene.
11)
Upstream- the direction that traffic
is traveling from as the vehicles approach the incident scene.
12) Block to the
left (right)- A maneuver designed, in the event of a collision, to force the
vehicle impacting to a safe location away from the personnel on the scene.
(Blocking Left means Traffic will move to the left, Blocking Right Traffic
Moves to the Right)
V.
Incident Response
Priorities:
1)
Primary Goals:
a)
Priority - One:
Life Safety: Initial efforts will be directed to preserving the lives of the
citizens and responders. Safety will be the first priority throughout the
incident
b)
Priority - Two:
Prevent Secondary Vehicle Crash: To minimize the risk of another motor vehicle
crash involving response units and personnel, responders must properly warn
approaching traffic that there is a hazard ahead, to slow down and use
caution. Also, responders can position apparatus to divert traffic around the
crash scene.
c)
Priority - Three:
Incident Stabilization: To enhance operational safety actions must be taken to
prevent fire, eliminate ignition sources and stabilize the crash vehicles.
d)
Priority - Four:
It shall be the goal to clear the scene as soon as practical to initiate
traffic flow.
2)
Secondary Goals:
a)
Priority - Five:
Protection of the Environment: Crews working from the cold zone and with the
proper personal protective equipment and training will try to contain the
spilled product to the smallest area possible without exposing themselves.
b)
Priority - Six:
Protection of Property: Crews will attempt to protect or save property by
limiting damage to vehicles to what is necessary to stabilize and remove
trapped victims. Also, property salvage operations will be conducted as soon
as possible.
c)
Priority - Seven:
Protection of Evidence: Crews will create as little impact as possible to the
crash scene to help the crash investigator(s) to determine the cause and who
was at fault. Responders should understand that any crash is a potential
crime scene and must be treated accordingly.
d)
Priority - Eight:
Crash Investigation: An investigation will be conducted to determine cause,
collect evidence, and to provide law enforcement. This is primarily the
responsibility of Law Enforcement, but other crews can be used to assist.
e)
Priority - Nine:
Resource Utilization & Traffic Congestion Reduction: Any resources not needed
at the scene of an emergency may be returned to staging or returned to service
to minimize congestion of the highway.
f)
Priority - Ten:
Termination & Recovery: Resources at the scene, which are not needed, will be
returned to service. Resources being staged or working at the scene will be
used only as long as necessary to meet the goals of the incident action plan.
VI.
Safety Benchmarks: All emergency personnel are at
great risk of injury or death while operating in or near moving traffic.
There are several specific tactical procedures that should be taken to protect
all crewmembers and emergency service personnel at the incident scene
including:
1)
Never trust approaching traffic.
2)
Establish an initial “block” with the first arriving emergency
vehicle and redirect flow of moving traffic.
a)
Always maintain an acute awareness of the high risk of working in
or near moving traffic, look before you move.
b)
Personnel arriving on emergency vehicles to the scene should exit
the apparatus from the protected “shadow” side away from moving traffic
whenever possible.
c)
Officers, apparatus operators, crew members in apparatus, and all
ambulance personnel must exit and enter their units with extreme caution
remaining alert to moving traffic at all times, avoid turning your back to
moving traffic if at all possible, and avoid exiting apparatus on the traffic
side.
3)
Wear a Class II or Class III-high visibility reflective vests or
other protective clothing when necessary that meets the standard of the manual
on uniform traffic control devices. High Visibility safety apparel shall meet
standards referenced in the manual of uniform traffic control devices chapter
6E.02 (ANSI 107-1999 class two risk exposure).
4)
Turn off sources of vision impairment to approaching motorists at
nighttime incidents excluding vehicles emergency lights, but including vehicle
headlights and spotlights.
5)
Establish advance warning and adequate transition area traffic
control measures upstream of incident to reduce travel speeds of approaching
motorists.
6)
Use traffic cones where appropriate for sustained highway incident
traffic control and direction.
7) Establish a
“Flagger” function to monitor approaching traffic and activate an emergency
signal if the actions of a motorist do not conform to established traffic
control measures in place at the highway scene.
VII.
Emergency Vehicle Benchmarks:
Listed below are benchmarks for Safe Parking of apparatus and emergency
vehicles when operating in or near moving traffic.
1)
Always position first arriving emergency vehicle to protect the
scene, patients, and emergency personnel.
a)
Initial fire apparatus placement should provide a protected work
area from traffic approaching in at least one direction protecting personnel
and emergency vehicles.
(i)
Angle fire apparatus on a roadway with a “block to the left” or a
“block to the right” to create a physical barrier between the crash scene and
approaching traffic.
(ii)
The front of the fire apparatus shall be placed slightly in the
lane of traffic designated for the motorist passing the accident scene. This
maneuver forces traffic to slow while passing the accident scene to protect
personnel operating on the scene.
(iii)
Use fire apparatus to block at least one additional traffic lane more
than that already obstructed by the crashed vehicle(s).
(iv)
When practical position apparatus in such a manner to protect the pump
operator position from being exposed to approaching traffic.
(v)
Necessary apparatus, not utilized in assisting traffic movement should
be parked on the shoulder as far from the traffic lanes as possible,
downstream or on the same side of the road.
2)
Operating personnel, equipment, and patients should be kept within
the “shadow” created by the blocking apparatus at all times.
3)
When blocking with emergency vehicles to protect the emergency
scene, establish a sufficient size work zone / buffer Zone. This includes:
a)
All damaged vehicles
b)
Roadway debris
c)
Patient triage and treatment area
d)
Extrication work area
e)
Personnel and tool staging area
f)
Ambulance-loading zone
4)
Ambulance should be positioned within the protected work area with
the rear patient loading door area angled away from the nearest lanes of
moving traffic.
5)
It may be necessary as a last resort to completely shut down
traffic in the event of a vehicle extrication to establish a level of security
for the personnel operating on the scene.
6)
In the event an air ambulance is required to land on the roadway,
traffic must be stopped in both directions with the exception of a limited
access highway with a sufficient median to accommodate a 100 X 100 landing
zone. (Note that Fire Service use the State MARC-2 for radio communications.)
7)
At all intersections, or where the incident may be near the middle
lane of the roadway, two or more sides of the incident may need to be
protected.
8)
Law enforcement vehicles must be strategically positioned to expand
the initial safe work zone for traffic approaching from the opposing
directions. The goal is to effectively block all exposed sides of the work
zone. The blocking of the work zone must be prioritized from the most critical
or highest traffic volume to the least critical traffic direction.
9)
For first arriving engine companies where a charged hoseline may be
needed, block so that the pump panel is “down stream”, on the opposite side of
on-coming traffic. This will protect the pump operator.
10)
Traffic cones shall be deployed from the rear of the blocking
apparatus toward approaching traffic to increase the advance warning provided
for approaching motorists. Cones identify and only suggest the transition and
tapering actions that are required of the approaching motorist. (See Temporary
Work Zone diagrams for Type I, II and III events)
a)
Personnel shall place cones, and retrieve cones while facing
oncoming traffic.
b)
Traffic cones should be strategically placed on any roadway where
emergency operations are taking place. This is to allow adequate advance
warning to drivers. Cones used for controlling traffic must be consistent in
construction with the manual of uniform traffic control devices section 6F.01.
VIII.
Cancelled En-Route:
When responding to highway emergencies and the first unit on-scene has assumed
command, it will be the responsibility of the first on scene unit to assume
command as the Incident Command Officer, and to evaluate all response factors
before canceling any other responding units (law enforcement, ambulance or
fire units). Many Fire and Ambulance Services operate with Joint Mutual Aid
Agreements, were fire will assist with patent care, manpower, scene safety,
and extrication operations.
If the first on scene
Incident Command Officer (Law Enforcement or Fire) does not feel comfortable
evaluating these response factors / making thess decisions, the officer will
have the other first due responding units continue to respond. Canceling a
unit en-route should only be done if the Command Officer is sure he or she has
all the response factors identified; and is confident units will not be
needed.
IX.
Approaching and Staging
1)
Emergency
vehicles should attempt to reach the scene in the direction of the reported
incident unless otherwise instructed by law enforcement. In some cases, the
first on scene unit may advise the best access is via the access frontage or
by traveling against the normal traffic flow. Emergency Vehicles should
proceed in the opposite direction of normal flow only at the specific request
of the first on scene Command Officer when it is assured that all traffic has
been stopped. Additional responding units including Law enforcement,
Ambulances and fire apparatus should confirm traffic is stopped before
entering the highway against traffic. On multiple unit responses, the first
unit approaching or entering the highway within a mile of the incident will
report its identity, location and direction. Other units approaching will then
stage Level I, preferably near an on-ramp to avoid premature commitment to the
highway or access frontage. Where appropriate to do so, and within the
guidelines of this policy; these apparatus may block the access road to
prevent additional traffic from entering the freeway.
2)
It is the
responsibility of the first unit to direct other units via alternate access if
unable to reach the scene. Specific directions should be given regarding
approach and direction for other apparatus when problems are encountered.
X.
COMMAND
1)
The
first unit arriving on the scene of will establish lead command of the Unified
Cmd. System and establish the “Type of Event”
a)
The Incident
Commander shall consider the following for establishment of the incident
objectives:
(i)
Traffic Conditions
(a)
Stopped
(b)
One lane open
(c)
All lanes open
(ii)
Scene Assessment
(a)
Medical Situation
(b)
Number of patients
(c)
Extrication needed
(d)
Fire Conditions
(e)
Haz Mat, Other
(iii)
Other Resources
(a)
Staging of
Emergency Services
XI.
Command Post Location
1)
Command Post
Location Should be Announced to Responding Units.
2)
The Command
Post location should be carefully chosen for major incidents to provide access
and a good view of the scene.
3)
The access
frontage or an overpass provides a view of the scene for incidents on
depressed roadway sections.
XII.
Unified
Command
1)
Unified Command
enables all authorities having jurisdiction and other responsible agencies to
manage an incident together by establishing a common set of incident
objectives and strategies.
2)
The command
components will include representatives from law enforcement, fire, the
Highway Departments, public works, State and Tribal representation and are
based on specific incident objectives and conditions.
3)
It's important
to physically assemble all representatives at a single location as soon as
possible.
4)
Once a physical
location for the Command Post is determined, all agencies should advise
dispatcher of that location.
5)
Utilization of
ICS identification vests will facilitate the Command operation and allow other
agencies to find key persons at the incident.
6)
Unified Command
does have a lead commander. This is addressed later in the policy.
XIII.
Incident Command Benchmarks: The Incident Commander must complete critical benchmarks to
assure that a safe and protected work environment for emergency scene
personnel is established and maintained including;
1)
Assure that the first-arriving emergency vehicle operator
establishes an initial block to create an initial safe work area.
2)
Assign a parking location for all ambulances as well as
later-arriving emergency vehicles.
a)
Lanes of traffic shall be identified numerically as “Lane 1”, “Lane
2”, etc., beginning from the right to the left when right and left are
considered from the approaching motorist’s point of view. Typically, vehicles
travel a lower speed in the lower number lanes.
b)
Directions “Right” and “Left” shall be as identified as from the
approaching motorist’s point of view left or right.
c)
Instruct the driver of the ambulance to “block to the right” or
“block to the left” as it is parked at the scene to position the rear patient
loading area away from the closest lane of moving traffic.
d)
Assure that all ambulances on-scene are placed within the protected
work area (shadow) of the larger apparatus.
3)
Assure that all patients loading into Ambulance Units is done from
within a protected work zone.
4)
The initial company officer and/or Incident Commander must operate
as the Scene Safety Officer until this assignment is delegated.
5)
Command shall assure that traffic preemption devices (if used) are
turned OFF and that other emergency lighting is appropriate for the situation.
6)
Minimum size-up should include:
a)
Exact Location of
incident (I43 south bound right lane near ramp to 172 East)
b)
Number of vehicles involved
c)
Type of vehicles if different than standard auto (Semi with load
etc.)
d)
Number of Patients with or without injuries (follow-up additional
information on patient condition conscious or unconscious)
e)
Patient Entrapment (Meaning jaws or other extrication required)
f)
Other Conditions such as Fire, Haz Mat Potential, Downed Wires, etc
g)
Traffic Conditions (Flowing, not flowing, blocked etc.)
h)
Additional dispatch requirements (what more is needed than
additionally dispatched)
XIV.
General Roles & Responsibilities by functional area:
1)
Emergency Medical Services & Ambulance
a)
Report to IC
b)
Proper care and
treatment of injuries of victims and responders
c)
Packaging patient
to move to ambulance
d)
Transporting
patients from scene to medical facility (Let Incident Cmd. Know you are
leaving the scene and which facility the patient is being transported to)
e)
Triage for
multiple patient incidents if assigned by Command Officer
f)
Pre-hospital
treatment of responders injured on-scene
g)
Maintain
accountability of staff
h)
Communicate with
hospital, and On Scene Command Officer
i)
Assign on-scene
medical control if incident warrants
j)
Protect crews and
victims from secondary incident
2)
Fire Service
a)
Report to IC /
Assume IC if functionally a Fire Lead Event
b)
Determine safety
zones
c)
Communications and
set up for Air Ambulance Landing Zone
d)
Maintain
accountability
e)
Stabilize vehicle
f)
Suppress fires
&suppress flammable vapors (foam)
g)
Fire Protection
Standby during medical treatment, extrication, vehicle stabilization
h)
Gain Vehicle entry
i)
Cut & pry vehicle
for removal of victims
j)
Maintain safe
access to victims
k)
Assist in patient
assessment
l)
Protect patient(s)
during cutting & prying operations
m)
Provide scene lighting
(when needed)
n)
Assist EMS & Law
Enforcement (LE) in their responsibilities when staffing permits
o)
Preserve evidence
(i)
Be careful when
moving objects
(ii)
Report evidence
found
(iii)
Try not to move
objects or disturb scene as little as possible
p)
Senior fire
officer reports directly to IC, Operations Section Chief, Fire. Branch
director +
q)
Protect crews and
victims from secondary incident
r)
Evaluate for Haz
Mat Situations
s)
Secure vehicle
prior to towing including battery isolation, fluid recovery, and cleanup of
fluids (Oil Dry)
t)
Reporting as
required to WDNR per state requirements
3)
Law Enforcement (LE)
a)
Report to IC. /
Assume IC If Functionally a Law Enforcement Lead Event
b)
Divert or stop
traffic to ensure the safety of responders and other motorists
c)
Investigate crash
d)
Conduct traffic
control to allow continued (if not limited) traffic movement
e)
Provide law
enforcement
f)
Collect & preserve
evidence
g)
Protect crews and
victims from secondary incident
4)
Public Works
a)
Report to IC
b)
Set up MUTCD
compliant lane and road closures. When road closures are required, set up
MUTCD compliant detour route
c)
Advise regarding
traffic congestion, safety concerns, need for detours, need to open lanes to
relive congestion and address safety concerns, highway impediments, etc.
d)
Utilize portable
changeable message signs as appropriate
e)
Remove traffic
control at the end of the incident to resume normal traffic operations as soon
as possible
5) Notes:
The first emergency unit on-scene will assume command. Command may be
transferred per local agreement or when it makes sense.
6)
The
crew-leader / Company Leader (Engine Officer, Lead EMS Staff etc.) will report
as directed by the IC. It must be communicated to responding resources who,
where, when and on what frequency they are to contact when arriving at the
emergency.
7) The
crew leader provides leadership for their crews accountability and safety.
8) The
highest level trained EMS personnel on-scene will be in complete charge of the
injured. If Triage Officer is established, all EMS staging and transport
will be coordinated through the Triage Team Leader.
9)
Command and Transfer of Lead Command
Each situation will dictate the command lead role of a scene. Below is a
general “rule of thumb” relating to command.
a)
All
incidents will be managed through use of Unified Command as defined by NIMS.
b)
Unified Command will have a lead commander based on the current incident
priority.
XV.
Response:
1)
Only the resources assigned tasks will be at the scene.
a)
Only emergency
service vehicles shall be allowed at or near the crash scene. Responders must
be on emergency service apparatus to respond to a motor vehicle crash.
Private vehicles when necessary must be kept as far away from the crash site
as possible (Down Stream / beyond the accident scene if possible).
b)
Communications:
Assigned radio frequencies and any other pertinent information will be
transmitted to dispatch and responding crews.
c)
Staging areas
shall be setup as close to the operation as possible but in a safe area. Level
One Staging will be defined as On Scene Staging, Level Two Staging is staging
not at the event, but in a reasonable distance from the scene.
d)
The IC is
responsible that sufficient resources are on-scene to handle the emergency and
may send extra staffing and equipment home or stop the response of resources
en-route to exercise proper resource management. Resource allocation will be
based on number of victims, crash severity, vehicle stability, hazardous
material involvement, and other conditions warranting resources.
XVI.
On-Scene:
1)
Resources shall be organized consistent with ICS principles and
accountability shall be maintained within the ICS system.
2)
Resources will not freelance or start work at the scene unless assigned
by the IC or their designated representative. All tactics will be based on
the incident action plan.
a)
Crews status is
any of the following
(i)
Staging - Immediately ready for service on apparatus
(ii)
Assigned – Performing a tactic or task
(iii)
Out of Service - Rehabilitation, Equipment inoperative
(iv)
De-Mobilization/Released – Available for Call
XVII. Post
Incident:
1)
To ensure
continuous improvement a critique should be held as soon as possible for Type
I Incidents.
2)
Where required
Critical Incident Stress Debriefing (CISD) should be conducted.
3)
Each Agency
will debrief its own personnel, and agency leads will coordinate and critique
each Lead Type 1 event with 15 days following its conclusion.
