Hurricane Response Plan-1984

ONSLOW COUNTY HURRICANE.RESPONSE PLAN
TABLE OF CONTENTS
1
PAGE
RECORD
CHANGES
OF ANG S . . . .
I.
AUTHORITIES
1
II.
REFERENCES . . .
iIII.
PURPOSE AND SCOPE
1
'
IV.
ORGANIZATION ...
1
V.
CONCEPT OF OPERATIONS
3
'
VI.
WARNING AND ALERT SYSTEM ...
3
VII.
INCREASED READINESS ACTION CHECKLIST
3
iVIII.
AND SHELTER LOCATIONS
4
EVACUATION AREAS, ROUTES,
IX.
REENTRY . _ . . .
5
X.
RESPONSIBILITIES . . . . . . . . . . .
5
1
Local . . . . . . . . . . . . . . . . . . . . . .
5
State and Federal Agencies . . . .`
6
COMMUNICATIONS
6
XI.
. . . . .
XII.
PUBLIC INFORMATION
6
'
XIII.
EXERCISES. ;. :
7
XIV.
APPROVAL . .-
7
Attachment 1 - Line of Succession
'
Attachment 2 - Warning and Alerting Flow Chart
'
Attachment 3 - Increased Readiness Action Checklist
Attachment 4 - Conditions Action Flow Chart
1
Attachment 5 - Evacuation Areas, Routes, and Shelter
Locations - Map
Attachment 5A - Hurricane Evacuation Plan
Appendix A. - Memo - Planning and Research Branch
N. C. Department of Transportation
Attachment 6 - American National Red Cross Agreement

PLAN
ONSLOW COUNTY HURRICANE -RESPONSE
I. AUTHORITIES
A.
North Carolina General Statutes, Chapter 166.
B.
Civil Preparedness Resolution for-Jacksonville-Onslow.
'
II. REFERENCES
A.
North Carolina Disaster Relief and Assistance. Plan
'
(NCDR&AP )
B.
Jacksonville-Onslow Disaster Operations Plan.
'
C.
Jack sonville-Onslow - American National Red Cross
Agreement.
III.
PURPOSE AND SCOPE
A.
Purpose: This Plan has been developed to provide for an.
orderly and coordinated evacuation of endangered areas to
minimize the effects of hurricanes on residents and
visitors in Onslow County. The Plan provides for the
alerting of selected officials, the evacuation of the
public from danger areas, and designation of shelters for
evacuees. It also provides for reentry into evacuated
areas when the threat to persons is ended.
Plan is -purpose
B.
Scope: This Hurricane Evacuation a single
c nttingenc.y plan and is a part of an all encompassing
local disaster operation plan which specifies functional
emergency responsibilities (reference II.B.).
'
IV. ORGANIZATION
A.
Evacuation Action: Hurricane evacuation involves all
areas under County jurisdiction and Municipal jurisdic-
tion. As joint action is required by County and Municipal
governments, a joint organization for decision making and..
use of resources is needed. A Control Group and a Support
Group are hereby established.for this purpose.,
B.
Control Group:
T
1. Mission: To exercise overall direction.and control of
hurricane evacuation operations including decisions to
institute county -wide increased readiness conditions.
and such other actions deemed necessary in response to
the situation.

'
2. Composition:
a.The Chairman of the County Board of
Commissioners - Group Chairman.
b., The Mayors (or their representatives) of:
'
-(1) Jacksonville
(2) Swansboro
(3) Holly Ridge
(4) Richlands
P. County Emergency Management Coordinator -`
Advisor.
3. Line of Succession: In the event that any ;of the
members of the Control Group are not available, each
primary member will be succeeded by alternates who
will have the responsibility and authority of the
primary member (see Attachment 1).
C. Support Group:
1. Mission: To provide personnel and material resources
for the implementation of preplanned actions and
actions as directed by the Control Group; to provide
direction to personnel engaged in operations; and to
provide information, data, and recommendations to the
Control Group.
2. Composition:
a. County Manager - Group Chief
b. Sheriff
I
c. Director of Social Services
d. Superintendent of Schools.
e. County Health Director
f . County Auditor
g. County Tax Assessor
h. County Fire Marshal
i. Public Information Officer'
j. Rescue Squad Representation
k. State Highway Patrol Liaison Officer
1. Red Cross Liaison- officer
'
m. Jacksonville City Manager
n. Communications
D. Operational. Locations: The Control and Support Groups
will be located in the Emergency Operating Center (EOC)
'Agriculture Building to.facilitate coordination. Should
it become necessary to move the groups to an alternate EOC
location, the new location will be the Carolina Telephone
and Telegraph Office.
-2-

CONCEPT OF,OPE RATIONS
The Onslow County concept for hurricane evacuation calls for:
A. Early alerting of officials and concerned agencies in the
entire County.
' B. Overall direction and decision making by a Control Group.
C. Increased readiness actions taken progressively as the
hurricane approaches and as the threat of injury and
damage increases.
D. Evacuation of residents and visitors on beaches and in
threatened low-lying areas upon decision of the Control
Group.
E. Movement of evacuees to designated and operating public
shelters, or out of Onslow.County and the threatened area.
' F. Mass care for evacuees in predesignated shelters in
accordance with agreements. -
' G. Reentry of evacuees to evacuated areas when authorized by
the Control Group and when the hurricane threat has passed
or damage assessments indicate that reentry is feasible.
' H. Local governments request State and/or Federal assistance,
as necessary, before or after a hurricane (see NCDR&AP,
Annexes D, E, F and G).
VI. WARNING AND ALERT SYSTEM
. The system.for dissemination of hurricane watches and warnings
and for notification of departments and populace that the
evacuation plan will be executed, is shown as a flow chart
(see Attachment 2).
VII. INCREASED READINESS ACTION CHECKLIST
(See Attachment 3 Checklist and Attachment 4 - Condition/
Action Flow Chart)
A. Readiness Conditions: The following increased readiness
conditions.are established:
Condition 5 Hurricane Season (June 1 - November 30)
Condition 4 Alert - Hurricane Advisory
Condition 3 Hurricane Watch Approximately 48 hours
to forcasted landfall
-3-

Condition 2 Hurricane Warning - Approximately 24
hours to forcasted landfall
Condition 1 Twelve hours or less to forecasted land-
fall
Condition 0 Landfall
' Reentry Threat removed or damage assessment
allows
B. The Control Group will declare the condition. The Support
Group.will implement actions for each condition when
announced.
VIII. EVACUATION AREAS, ROUTES AND SHELTER LOCATIONS
(See Attachment 5).
A. General:
1 Evacuation routes and designated shelters for beach
areas are as indicated on Attachment 5.
' 2. Other residents wishing to seek shelter (mobile home
residents or persons living in any.structure which
does not provide adequate protection) should go to the
nearest designated shelter.
B. Shelter:
1 1. A shelter is defined as a predesignated structure of
sufficient strength to withstand high winds, which is.
located in an area not subject to flooding or storm
surge and which will safeguard a given number of
evacuees.
2. Onslow County is responsible for providing shelter for
all residents and visitors in Onslow County. Onslow
County will also provide shelter for residents of
A Pender or other surrounding counties to the maximum
extent possible.
3. Shelters will be operated by the Onslow County Chapter
of the American National Red Cross supplemented by
school system personnel if needed as per agreement
(reference II.C).
4. Shelters will be opened only on an as -needed basis.
Locations of operating shelters will be announced on
local radio stations.
-4-

5. Evacuees will be instructed to bring blankets, light
sleeping cots, battery operated radios, flashlights,
and special medicinal and dietary needs (including
baby needs) for the duration of the shelter period.
6. Persons living on West Onslow Beach may take shelter
in Topsail High School or Topsail Elementary School in
Pender County if they 'so desire.
IX. REENTRY
A. Upon cancellation of all hurricane warnings, and watches
P
which include Onslow County and when no damage has been
experienced, the Control Group will authorize reentry to
all evacuated areas.
B. When hurricane damages have 'resulted, reentry to evacuated
areas will be based upon damage assessments in any rescue
or other relief operations in progress. Reentry will be
authorized by Control Group to specific_ evacuated areas
and under conditions specified.
C. Decisions of the Control Group.will be broadcast by the
' P.I.O.
X. RESPONSIBILITIES
' A. Local:
1 Control Group: Overall direction (as directed in
Paragraph IV.B).
2. Support Group: As shown in responsibility blocks on
' t e Increased. -Readiness Action Checklist, Attachment
3.
3. County Emergency Management Coordinator:
' a. Serves as advisor to the Control Group.
' b. Coordinates actions of the Support Group and
operio s involving local nongovernment
organizations and operations of forces from
outside the County.
c. Operates the County EOC.
d. Furnishes Situation Reports to the State EOC.
e. Developes and conducts exercises to test and
' evaluate this Plan.
-5-

B. State and Federal Agencies:
1. National Weather Service.: Provides hurricane watches,
warnings, and related weather information.
I 2. U.S. Coast Guard:
a. Provides warnings to ships and- boats in affected
coastal areas.
b. Assists in coastal evacuation upon request.
3. Commander, Marine Corps Base, Camp_Lejeune_-
Commander, Marine Corps Air Station: Maintains
liaison and coordinates actions with_County EOC.
4. State Highway Patrol:
a. Operates State Warning Point and passes weather
information via Police.. Information Network (PIN).
' b. Responsible for, traffic control on State Highway
Systems.
' 5. State Division of Emergency Management:
a., Receives requests for assistance, coordinates
State actions, and arranges for assistance from
Federal.agencies.
b. Area "C" Emergency Management Coordinator:
(1) Assists in coordination of evacuation
efforts.
(2) Assists in coordination of State assist
ance.
XI. COMMUNICATIONS
A. Communications will be in accordance with Annex B, NCDR&AP
' and appropriate local plans.
B. The Sheriff operates the County Severe Weather Warning
' System and Traffic Control Points.
C. The Communications Officer will insure communications
between the Control and Support Groups and shelters.
XII. PUBLIC INFORMATION
' A. The Public Information Officer (PIO) will provide informa-
tion to the public via the news media and otherwise based
upon decisions of the Control Group to include the
following:
-6-

ATTACHMENT NO. 1
CONTROL GROUP
LINE OF SUCCESSION
To assure continuity of responsibility for governmental
functions of direction
and
control of emergency cperational efforts, the following
lines of succession
to offices are established:
1.
Chairman of the Onslow
a. Vice Chairman
b.
In the absence the
County Board
Chairman and Vice
Chairman, the
members present
'
may choose a
temporary chairman
2.
Mayor of Jacksonville
a. Mayor Pro Tempore
b.
The next senior,
'
member of the
council
3.
Mayor of Swansboro
a. The Town Commissioner
b.
The Chief of
that received the most
Police
'
votes
4.
e
Mayor of Holly Ridge
Y Y
a. Ma Pro Tempore
Mayor L�
b.
Present Town
Commissioners
elect temporary
mayor
5.
Mayor of Richlands
a. Mayor Pro Tempore
b.
Town councilman
r
receiving the
largest vote count
6..
Emergency Management
'a. Operations Chief
b.
Communications
Coordinator
Chief

ATTACHMENT No 2
WARNING AND ALERTING FLOW CHART
NWS
RADIO/TV
(ORIGINATES)
WEATHERWIRE
SUBSCRIBERS
STATE
WARNING
COUNTY WARNING
WARNING
POINT
POINT (SHERIFF'S
SYSTEM
(SWP)
MUNICIPAL
OFFICE)
NOTE (1)
-
WARNING
POINT
(POLICE
MUNICIPAL
DEPT.)
WARNING
SYSTEM
NOTE (1)
STATE
AREA
ALERTS
EOC
(RALEIGH)
COORDINATORS
.► Chm. County Bd. of
Commissioners
► Mayors
► Sheriff
► EM Coordinator
P
U B L
I C
ALERTS
ALERTS
ALERTS
► County .Manager
► Supt. of Schools
► State Officials
Local EM
► Mayor
► County Health
and Departments
Coords. in
► Chief of
Director
► American Nat'l
all affected
Police.
-► Director of Social
Red Cross -
: and adjacent
► Fire.
Services
Carolinas Div.
counties-:
Chief
:► Rep. County Vol.
► Federal Agencies
► Other
Fire Departments
(N.C. Offices)
Dept.
► Rep. County
► Local Highway
Heads
Rescue Squads
Patrol
► Red Cross Officer
► Other Members of
This Control and
Support Group
. NOTE (1) County and municipal
warning systems disseminate warnings to the public by use
of radio/TV
bulletins, news -
..paper extras, handbills,
signs,
loud speaker
or other aural systems, and door-to-door. Law enforcement,
rescue squads and
volunteer citizens' organizations used tospreadwarnings when activated.by
control group.

INCREASED READINESS ACTION CHECKLIST
AGENCY
SHERIFF
COMMUNICATIONS. OFFICER
DMC70R OF SOCIAL SERVICES
SUPERtMNOENT OF SCHOOLS
COUNTY HEALTH DIRECTOR
COUNTY ACCOUNTANT
COUNTY TAX ASSESSOR
PIO
COUNTY FIRE MARSHAL
CHEF OF COUNTY RESCUE SQUAD '
R OTHER RESCUE SQUAD OFFICIAL
AMERICAN NATIONAL RED
CROSS LOCAL CHAPTER
Responsibilities:
- Direction i control of evacuation
Pesponsibilities:
- our r >o o mmmxhications
R�e_s�onsibilities:
_ �ssist�irer IT ShelteL
res abilities:
_ pza,i aci ties to be
responsibilities:
- nsure t th and
Aesc«nsibilities:
- Maint� ain vial data.
res nsibilities:
- ssist er Shelter
Responsibilities:
- prepare or approve all
responsibilities:
abilities:
Re nsibilitiess
a reentry operations
- Operate warning System.
untyliaison
from shelters to EX.
- And any other point reguirinn
operations.
-provides personnel to
u� as shelters.
medical needs are provided
- Adapt accounting system to
emergency e,nperditure'
operations.
Provides m
news releases.
_ Yyinate'zi=e fighting
suport thramghout the CaumtY
_ hate provision of
rescue support operation.
-Operate designated Red
Cross shelters.
s
- Serves as liaison officer for all
communications.
assist in operation of
_ Provide personnel to
assist in operation of
during evacuation shelter
'
ad reentry.
provide
information upon request.
personnel
assist in operation of
(paid and, volunteer).
-Assist sheriff upon request.,
- provide ambulance service to
- provide other Red Cross
law enforcement agencies within
shelters and z istra-
shelters.
shelters and registra-
transportnonmbulatory
assistance.
INCREASED
the Oauity.
- Ensure communication between
Lain ci evacuees.
- Provide school bus trans-
tion of evacuees.
READINESS
ACTION
Control i Support Groups,
portatioan Then requested.
Shelter i Traffic Control Points.
1. Upaate hurricane evacuationpiani.
CONDITIOi 5
2. Check warning system and insure notification tasters
are current.
BEGINNING OF
3. Insure that shelters are designated IAW rid Crass
Agreement and plans to operate shelters are current.
HURRICANE SEASON
4. Relase general hurricane information to public through
5. Dissimination to public
PIO.
hurricane safety rules
5. Conduct exercise to test entire plan.
and shelter Mentions.
-
1. Review plans and procedures and alert personnel.
CONDITION 4
1. Provide 72 hour notice to
and Support Groups.
2. Coordinate preparations as necessary.
72 HOURSControl
2. Review plans and procedures.
AUM
3. Review assignments.
3. Continue dissimination
of the above.
CONDITION 3
1. Notify Control a� SupFnrt Group
1. Check all equipment'to
1. Make contact with Red
Class on using existing*
1. Dissiminate special
instructions to
1. Gas up all vehicles.
1. Gas up all vehicles.
1. Hake initial contact
with superintendent
46 HOURS OR
mmbers at Hurricane watch
hued,
insure operability."
schools as shelters as '
invalids:
2. Check all equipment.
2. Check all equipment.
ofschools on using
2s Gas up all vehicles.
planned.
existing schools as
HURRICANE bATCii
3. Check all equipment.
shelters as lammed.
2. Designate and assign
personnel to specific
Shelters.
I. Notify Control t Support Groups
1. Mobilize personnel. -
1. Assign personnel to
1. Close schools, send
1. Mobilize personnel.
1. Record all expenditures
1. Representative man
I. Accelerate Condition 4.
1.- Mobilize, personnel.
1: Mobilize personnel.
1. Mobilize personnel.
that Hurricane Warning is issued!
shelters.
pupils hone.'
2. Representative man EOC..
relating to hurricane in
EOC.
2. Render assistance mt ,
2. Move nonambulatory personnel.
2. Brief shelter managers.
2. Mobilize personnel.
2. Assign representative to
2. Mobilize. personnel,
3.' Insure adequate health
separate accounts.
requested.
3. Coordinate rescue operations.
3. Conduct joint inventory
OoNDiTICN 2
3. Finalze plans to direct.evacua-
ECC.
send then to designated'
personnel in shelters.
3. Coordinate firefighting
4. Assign representative to EOC.
� of shelters with school
Lion if ordered.
shelters.
4. Insure shelters are Firm-,
2. Representative nazi EOC.
activities.
S. Provide other assistance as
officials.
24 HOURS O1.
4. Assist aptorists presently
3. Conduct joint inspec-
twined in a sanitary
4. Assign representative to
requested.
4. Representative man EOC.
. evauuatiog voluntarily.
then er designated
Rendition.
EOC.
5. Upon EOC direction,
HURRICANE VARNING
5.• Representative mani EOC.
-
shelters with Red Cross
5. Report pertinent health
n and operate
representatives
information to officials.
shelters .
errEOC
4. Representative man EOC.
6Keep informed of
.
shelter situation.
1. Vehiccles with loudspeakers to
1. Coordinate provisions of
1. Provide personnel to
1. As Red Cross wlun-
1: Continue dissimination
CONDITION 1
areas in which evacuation-.
ommmmunications between
assist with shelter
teens, assist in the
of -shelter locatiop.on
ordered.
shelters, checkpoints and.
registration.
operation of the
evacuation sautes.
12 HOURS OR WM
2. Patrol evacuated area.
EOC.
shelter.
3. Coordinate provision of co msud-j
EVACUATION
cations between shelters, check-;
points and EDC.
1. Maintain law and order.
1. Go into operation.
1. Dissiminate special
CONDITION 0
instructions. from
Control Group.
-IJ4MID FALL`
-
1. Prevent looting
1. Continue operations until
'. Continue to assist
1. Provide personnel to
1. Evaluate and provide to
1. Assemble personnel.
1. Assemble personnel.
1. Release notices of
1. Operate shelters as
2. Check personel and equipment.
relieved.
Red Cross as needed.
assist in the operation!
the Control Group a
2. Conduct damage assess-
-damaged areas, etc.,
long as necessary.
Request needed assistance.
of shelters..
recommendation on the
2. Provide financial data on
vent.
and reentry instnx-
REERM
3. Control access to evacuated
health aspects of reentry
emergency expenditures to
3. Furnish damage assess-
Lions.
2. Render assistance to
areas.
into damaged areas.
Control Group.
vent data to EOC.
needy persons.
4. Maintain liaison with other law
4. Revise property
enforcement agencies.
records.
ATTACHMENT NO. 3

ATTACHMENT NO.
4
CONDITIONS/ACTIONS FLOW CHART
72-HOUR
CONDITION 4
ESTIMATE
ACTIONS
Hurricane Threat Removed ► ►. ►. ►
Return
to Normal
FROM ADVISORY
HURRICANE
WATCH
48-HOUR.
CONDITION 3
ACTIONS
Watch Cancelled ►
► ► ►.► ► ► ►
Return
to Normal
ESTIMATE
NWS
WARNINGS
HURRICANE
►No Watch ► ►
Return
to Normal
WARNING OR
CONDITION 2
Warning Cancelled
Hold
Hold in Watch
Return to
24-HOUR
ACTIONS
►Watch Reinstated
0-
►
Condition 2 Cancelled
Normal
ESTIMATE
HURRICANE
►No Watch", ► ►
Reentry
► ► Return to Normal
WARNING OR
CONDITION 1
ACTIONS
Warning Cancelled
12-HOUR
ESTIMATE
EVACUATION
► Watch ►
Hold
in ► Watch ► Reentr ► Return to
Y
Reinstated
Condition
1 Cancelled
Normal
CONDITION 0
DAMAGE
RECOVERY
SELECTIVE
LANDFALL
ASSESSMENT
REENTRY
REPAIR
RESTORATION

' ATTACHMENT 5. A,
HURRICANE EVACUATION PLAN
I. GENERAL
Certain areas of Onslow County can be termed high risk areas
and should be evacuated prior to the time a hurricane strikes.
The most vulnerable areas are the barrier islands (beach areas)
and low lying areas adjacent to the sounds and marshes between the
barrier islands and the mainland. The only developed,beach
community in the County is West Onslow Beach and most of the
attention relative to the evacuation of residents or occupants
must concentrate on this highly vulnerable area. Attention must
also be given to sound front developed areas and communities such
as Sneads Ferry and Swansboro; however, multiple evacuation routes
are generally available and, the areas are relatively accessible to
high ground.
Other areas, such as portions of the City of Jacksonville are
flood prone, (either from rising water or high rainfall runoff),
and limited evacuation of these areas may be required. Camp
LeJeune is also subject to similar flooding problems in some
areas, but local military authorities will manage this problem
within this own resources; however, close coordination should be
effected between Onslow County and U.S. Marine Corps Base
authorities.
' II. EVACUATION PLAN
The general plan for evacuation of threatened` areas of the
' County are briefly summarized in the Onslow County Hurricane
_ Evacuation Plan (Attachment No. 5 of the Onslow County Hurricane
Response Plan). This single page flyer is attached hereto and is
also available for widespread distribution to interested and/or
affected citizens throughout the County. The circumstances
requiring evacuation, evacuation routes and emergency shelters are
clearly depicted on the plan.
III EVACUATION CONSIDERATIONS
As mentioned above, evacuation of County areas other than the
barrier island beaches does not appear to represent a difficult
' problem. Some access roads are low-lying and persons living below
approximately six (6) feet above mean sea level (m.s.l.) should
seek higher ground before flood tides reach that level. The
' Swansboro, Sneads Ferry and intervening low-lying mainland areas
fall in this category. Generally, evacuation of these areas three
(3) to five (5) hours before a storm is scheduled to strike the
mainland should provide adequate lead time for safe evacuation of
' these areas. Development densities in these areas is low, so

Attachment 5A, Continued
' traffic flow or road conjestion should not represent a problem.
Persons living in these areas should be prepared to evacuate on
short notice when Condition 1 is announced.
' The barrier island (beach) areas are an entirely different
situation Access routes are restricted and in some cases
inferior. Although the Onslow County coastline is fairly long
(approximately 27 miles), less than half of this (about 12 miles)
is developed or inhabited by permanent or seasonal residents. The
Hammocks Beach.State Park island is undeveloped and should be
evacuated and closed completely during a threatened hurricane
storm period. The coastline within the Camp LeJeune Marine Base
is under the jurisdiction of military authorities. Thus, the
. primary area requiring careful evacuation planning is West Onslow
Beach. The remainder of this discussion focuses on that area.
IV. EVACUATION TIMES ANALYSISI_/
The amount of time it takes to safely evacuate an area depends
' on the level of development and number of, people in the area at
any one time. It depends on the condition of roads and bridges
along the evacuation route. It also depends on the attitudes of
local residents and visitors and the strength of a particular'
storm.
' Evacuation time has four components: mobilization time,
travel time, queuing delay time, and pre -landfall hazards time.
Mobilization time is that period between the issuance of the
' evacuation order and the departure time of ,the last vehicle
from the vulnerable area. It depends to,a large extent.on the
attitudes and response time of residents. Travel time is the
period necessary for the vehicles to travel the length of the
evacuation route at an anticipated operating speed assuming no
traffic delays (queuing). ..Queuing delay time' is defined as.
the time spent by vehicles in traffic jams resulting when the
capacities of the evacuation routes are exceeded by the number
of vehicles entering those routes.
' 1 William D. McEl ea David J. Brower David R. Godschalk.
•/ Y r r
Before the Storm; Management Development to -Reduce Hurricane
Damages. Ocean and Coastal Ecology Program Center f6r Urban
and Regional Studies, UNC/Chapel Hill; August 1982.

' Attachment 5A, Continued
' Mobilization time, travel time, and queuing delay time
together consititute the community's clearance time -- the
total time needed to move all evacuees to temporary shelter
' once an evacuation order is issued. Pre -landfall hazards time
is the time before the eye of the hurricane reaches the
community when the storm surge or sustained high winds.render
evacuation routes impassable. The National Hurricane Center
issues warnings based on its predictions of the time the..eye
is expected to reach land. However, the storm surge and
sustained winds can strike the community hours before the eye
' does.- This pre -landfall hazards time cannot be used for
safely moving evacuees; it is greater for more intense storms.
t Estimating these various components of evacuation time remains
a complicated task due to uncertainty regarding the intensity,
timing, and other characteristics of any particular storm and
uncertainty regarding the willingness of local residents and
visitors to evacuate. Current estimation techniques involve:
1. estimating storm surge levels, wind speeds, and their time
' of arrival before the eye's landfall for storms of
different intensities;
' 2. identifying points along the evacuation route that are
subject to flooding;
' 3. estimating the total number of people and automobiles that
must be evaccated;
4. estimating the carrying capacity of roads along the
' -evacuation route;
5. identifying any.bottlenecks or other points along the
' route that could delay traffic;
6. estimating the timing of traffic movement and traffic
' levels along the route; and,
7. estimating the time it will take people.to respond to an
' evacuation order.
Much of the evacuation time needed boils down to the level of
development,. resident population, and visitor population in areas
' that need to be evacuated, relative to the carrying capacity of
the evacuation route. If the level of development.of high hazard
areas exceeds the route's capacity for safe and timely.evacuation,
' the community can expect to suffer numerous casualties during a
major storm. Local officials' should bear in mind that the
National Hurricane Center's hurricane warnings (usually used as
the signal to evacuate) are issued 12 hours before the eye is

' Attachment 5A, Continued
' expected to hit land. Flooding and hurricane -strength winds can
precede the landfall by several hours, depending on the storm's
size and intensity. -
The Planning and Research Branch of the North Carolina
Department of Transportation (DOT), (Larry R. Goode), prepared an
internal memorandum for evacuation of Onslow and Pender Counties
(beach communities). A copy.of this memo is attached hereto as
Appendix A. This brief study estimates an evacuation time of 7 to
9 hours for the beach complex of Topsail (Ashe) Island. The
primary problem relative to the West Onslow Beach area is that the
analysis credits only 1,300 people evacuating northward from the
area over N.C. Highway 210. Never -the -less, the analysis gives
indication of the extended time required to evacuate the area.
' Evacuation time estimatingtechniques are f urther.refined b
q Y
John R. Stone in his U.N.C. sea grant working paper 83-2 entitled
' "Hurricane Emergency Planning: Estimating Evacuation Times for
Non -Metropolitan Coastal Communities."?• This excellent analysis
closely parallelF but refines the DOT estimate approach referenced
' above. It also provides a short cut calculation method for simple
evacuation networks like.West Onslow Beach. _Textural references
and the evacuation time calculating technique in the following
subparagraphs are borrowed from Stone's works.
West Onslow Beach Evacuation Time Estimate
" A. Evacuation Area: West Onslow Beach is a. barrier island which
forms the southeastern border of Onslow County facing the
Atlantic Ocean. Elevations range from 0 to a little over 20
' feet m.s.l. at its highest point. The width ranges from less
than one quarter to just over one half mile. The area lies
entirely within the hurricane flood zone. There is a single
two lane road (N.C. Highway) running north to south.over the
' entire length of the island. It is connected to the mainland
by a relatively new high level fixed span two lane bridge
about four miles from the north end of the island (New River
Inlet). Route 210 also extends southward (through Surf City)
with connections to the mainland over a two lane swing bridge
at an elevation of about 14 feet above the Atlantic
2./ Also included as reference 1_1/ in a report to the Onslow
County Board of Commisioners entited: Hurricane Storm
Mitigation and Post -Disaster Reconstruction Plans .for Osslov'-
County, North Carolina (January 1984), by Henry von Oesen and
Associates, Inc.

Attachment 5A, Continued
' Intracoastal Waterway (AIWW) For several reasons, it is
recommended that all West Onslow Beach traffic evacuate
northward as, shown on the evacuation plan map.
B. Hurricane Scenario: In 1954, when. Hurricane Hazel hit North
Carolina, a high-water mark from the tidal surge (excluding
wave action) of 16 feet._above mean sea level was recorded at
the South Brunswick County region. This is the surge expected
from a Category 4 storm which could similarly effect the
Topsail Island area. A storm of this magnitude could be
' expected there roughly once every 100 years. Assuming the
hurricane eye from such a storm crossed over West Onslow
Beach, it is likely that nearly 90 percent of the flood zone
' would be flooded. The possibility of flooding will be
increased by the likelihood of torrential rains and the
primary evacuation route would be completely inundated.
C. Hazards Time: A complete analysis for the surge and gale -
force wind hazards time components of evacuation time. would
require a computer simulation of the storm. However, prior
detailed analysis descriptions of a Category 4 storm suggest
that low-lying escaperoutes may be cut by rising water as
early as three to five hours before the hurricane eye arrives.
' This estimate for roadway inundation time is consistent with a
storm which moves at a typical 10 mph forward speed and has a`
surge that extends about 30 miles out from the hurricane eye.
An investigation and inspection of the evacuation route (NC
Highway 210) reveals that portions of the road are at eleva-
-tions of about 6 to 7 feet above mean seal level.
' Fortuitously, the lowest points are at the southern boundary
(at the Surf City north limit) and along much of highly
developed north end of the beach area betweenthebridge
crossing point and New River Inlet. In many areas, the road
passes extremely close to the ocean `(where low dunes may or
may not exist), which further increases the roads
vulnerability to tide and wave attack. Finally, the immediate
approach road section to the high _level bridge crossing is at
an elevation below 8 feet m:s.l. Thus, the escape access to.
the bridge itself could be inundated relatively early in the
' storm period. The excellent new high level bridge represents
no inpediment to rapid evacuation of controlled vehicular
traffic.
' Gale force winds and blinding rain can also combine to make it
virtually impossible to drive a vehicle on the evacuation
route. Wind analysis for barrier -islands and coastal areas in
Florida suggest that gale -force winds may precede landfall of
the eye by as much as six hours.

' Attachment 5A, Continued
- Based on the above, a cut-off time of 3 to 5 hours is used in
preparing this estimate.
D. -Mobilization Time; As previously mentioned, mobilization time
' for a community may vary somewhat. However, actual data.
suggests that.it may take over five hours for everyone 'to
begin the evcuation. A value of three to four hours would
find 80 percent to 90 percent of the evacuees on their way and
is used in this analysis.
E. Travel Time: Evacuation travel is based on the length of the
evacuation route and the assumed uninterrupted operating speed
of the evacuation vehicles. Assuming an evacuee lives at the
southern end of NC 210 on West Onslow Beach (at Surf City Town
limits) , he or she must travel six and one half (6-1/2) miles
to reach the bridge. It is another seven miles to Dixon
School (recommended shelter), giving a total evacuation
distance `of about 14 miles. Assuming storm conditions and
evcuation traffic, yet uninterrupted travel, an average
operating speed of 35 mph could -be maintained on the two-way,
' two-lane rural roads of the evacuation area. The "free -flow"
travel time is, therefore:
Travel Time = Distance/Speed
= 14 miles/35 mph
= 0.40 hours
= 24 minutes
' This estimate does not include queuing dela which is
q g. delay
.which
below.
' F. Queuing Time Delay: It is anticipated that all of the
evacuees will originate on West Onslow Beach. It is possible
that some occupants of Surf City and Topsail Beach to the
south may opt to attempt to evacuate northward over Route 210
through West Onslow Beach; however, this should be discouraged
and evacuees from those communities should continue to exit
' the area over the swing span bridge and N.C. Highway 50 that
serves these communities. Additionally, Highway 210 maybe
flooded early in the vicinity north of the.Surf City Town
limits as previously mentioned.
The primary constraint to rapid evacuation of West Onslow
Beach residents and visitors is the limited carrying capacity
of the principal evacuation route, N.C. Highway 210. As
mentioned in paragraph C rabove, extensive. portions of this
road are at elevations as low as 6 feet m.s.l. and
consequently may become impassabler during early tide surge and
gale conditions that may exist several hours before the
hurricane makes a landfall. This coupled with the marginal

r
rAttachment 5A, Continued
condition of the road will influence queuing delay.times for
the area.
The Onslow County Land Use Plan projects a maximum population.
density of West Onslow Beach in 1990 of 10,335 people. Based
on the rapid growth experienced in the area in the past five
years, this projection is considered to be quite low; however,
for purposes of this analysis, a peak population of 10,000 is.
used.
In order to estimate the queuing delay time during a
particular time. period of the evacuation, the traffic demand
and the restrictive road capacity must be known. For the
' purposes of this analysis, the following will be assumed:
1 10,000 persons evacuate.
2. The average automobile occupancy is 2.5 persons per
vehicle.
3. 20 percent of the evacuees leave before the order is
given.
4. The remaining 80 pecent of the evacuees leave over. a 3.5
hour period. -
' 5. Traffic control officers will be stationed at inter-
sections thereby mitigating the usual intersection
capacity constraints.
r6. Intersection turning traffic is negligible compared to the
evacuation traffic.
7. Traffic moves at "level of service D to E," with one lane
for evacuation and one lane for emergency vehicles.
rThe evacuation rate or traffic demand is thus,
Evacuation Traffic Demand (No. of evacuees/vehicle:
r occupancy) x (1 percent
remaining after order). ,x
0 /evacuation period)
or
ETD = (10,000/2.5) (.80) (1/3.5)
r= 900 vehicles/hour (3,200 vehicles in 3.5 hours)
1

Attachment 5A, Continued
Under the planning assumptions outlined above, DOT sources
indicate.Route 210 should have a carrying capacity about 900
to 1,000 vehicles per hour under optimum conditions; however,
the 22-foot width and marginal road condition would reduce
this to an assumed ideal capacity of 550 to 825 vehicles per
hour. If it is further assumed that under storm conditions,
1 this ideal capacity will be reduced by fluctuation in traffic
demand,.wind blown debris and winds, it is.estimated that the
actual evacuation capacity will be only half (50 percent) of
the ideal capacity. The road carrying capacity becomes. a
"bottleneck" in the evacuation process. Thus:
Evacuation Capacity = Ideal capacity x 0.50
Evacuation Capacity 275 to 400 vehicles per hour (assume
300)
Based on accepted prior study data, the maximum amount of
individual vehicular delay is given by the following formula:
Queuing delay time (Duration of bottleneck) x
(1 -- Bottleneck capacity/average
demand)
Hence,
Queuing delay time (3.5) '(1 - 300/900) = 2.hours
Note: The new high level bridge carrying capacity exceeds the
road carrying capacity by a considerable degree and is not
' considered to be a restricting factor.
G. Total Evacuation Time: The total evacuation time is the
summation olr the following components:
Cut-off Time 3 5 hours
Mobilization Time 3 4 hours
Travel Time 0.5 hours
Queuing Delay Time 2 3 hours
' Total 8 13 hours
V. DISCUSSION
As explained in the previously referenced Stone report, the
' evacuation time estimate of 8 to 13 hours is based on a Category 4
hurricane scenario and is dependent on a number of assumptions.
These include the assumed number of evacuees, auto occupancy rate,
community response, roadway inundation time, to name but a few.

' Attachment 5A, Continued
Changing the assumptions will change the time estimates. It is
interesting to .note, however, that certain tradeoffs. exist. For
example, much importance is placed on community awareness and
' rapid response to evacuation orders. Unfortunately, it is felt
that a sensitivity analysis would show that an earlier
mobilization of the evacuees will lead to higher traffic demands
and more queuing delay. What is gained in response time is lost
to traffic delay if.bottlenecks exist on the evacuation route.
Looking specifically at the West Onslow estimate of 8 to 13
hours evacuation time, it is seen that the figure is consistent
with estimates for roughly similar island situations in Lee
County, Florida (7). The estimate is also consistent with the
Holden Beach evacuation plan which indicates that evacuation
orders will be issued when a hurricane is within 12 hours of
landfall.
Finally, further analysis of the future development potential
..and ultimate development density of West Onslow Beach indicates
that the peak summer population could reach well over 30,000
people. This population increase would seriously impact the above
estimate and extend projected evacuation times.

1
1
i
APPENDIX A
MEMORANDUM FROM LARRY R. GOODE
PLANNING AND RESEARCH BRANCH
NORTH CAROLINA DEPARTMENT OF TRANSPORTATION (DOT)
r
1
_r
r
r
r
r

Appendix A, Continued
r n
ESTIMATED EVACUATION TINE FOR ONSLOW AND PENDER COUNTIES
r
Evacuation Area
rThe barrier island beaches off the coast of Onslow and.
Pender Counties include Topsail Beach, Surf City, Del Mar
' Beach. and West Onslow Beach. The island is a vacation ' spot
for up to 11,300 people during the peak summer season.
Elevation on the island ranges from 0 to 22 feet. In the
event a Category 4 storm hit the region the island would.
have to be evacuated. Areas south of Surf City would be
evacuated via NC 50. Areas north of Surf City would be
routed on NC 210.
Total
, Evacuation Time
rThe components of total evacuation time are hazards
time, mobilization time, travel time and queuing delay `.
times. The following.assumptions are made in this analysis:
1) 11,300 persons -to evacuate .
10,000 via NC 50
1,300 via.NC 210
2) Average automobile occupancy is 2.5 persons per vehicle.
' 3) 20% of the evacuees leave. before order is given.
4) The remaining 80% of the evacuees leave over a 3.5 hour
period.
5) Traffic control officers will be stationed at intersec
tions,'thereby reducing usual intersection capacity..
constraints.
6). .Contra flow traffic is negligible compared to evacuation
r traffic.
7) Traffic moves at "level of Services D to E"
' 8) 3% of traffic is recreation veh
icles.
9) Two lines oiie way on all evacuation routes.
10) Evacuation takes place daylight hours...
Hazards Time
Heavy rain, flooding and* gale force winds occurring
' before the eye of the storm hits may cut evacuation routes.
The hazards time component of evacuation time is three to
five hours before the eye of the hurricane arrives.

'. ATTACHMENT 6
JOINT AGREEMENT BETWEEN LOCAL AMERICAN NATIONAL RED CROSS CHAPTERS
' AND LOCAL EMERGENCY SERVICES/CIVIL PREPAREDNESS ORGANIZATIONS
JOINT OPERATING AGREEMENT
Between
ONSLOW COUNTY
(Chapter)
of the
iAMERICAN NATIONAL. RED CROSS
and the
COUNTY OF ONSLOW STATE OF NORTH CAROLINA
(Political Subdivision)
Relating to Natural Disasters
' I. PURPOSE
This operating arrangement describes the respective
responsibilities and roles of the Onslow County Chapter of the
American National Red Cross (hereinafter referred to as ANRC) and
the County of Onslow, State of North Carolina in preparedness
plans and operations for natural disaster emergency services.
Through collaboration, the resources of the ANRC and the County of
Onslow are brought to bear for. the relief of persons affected by
natural disasters or other emergencies.
II. RESPONSIBILITIES IN NATURAL DISASTERS
A. The American National Red Cross. The act of Congress
constituting the Red Cross c apter required the Red Cross to
undertake relief activities for the purpose of mitigating
suffering caused by disaster and obligates the Red Cross to
develop and carry out measures to prevent such suffering. Public
Law 93-288 in no way affects the legal status nor restricts the
authority and purposes of the American National, Red Cross as set
forth in that ACT. In carrying out the purposes of Public Law
93-288, and Sec. 303, (b), (3), or subsequent disaster
legislation, Federal, state or local government may, by contract
or otherwise, accept and utilize the services and facilities of
the Red Cross, or may render through the Red Cross any assistance
authorized by that Act, such as medicines, food, and other
consumable supplies or emergency assistance.

Attachment 6, Continued
' Aid to disaster victims is not.dependent upon a Presidential
declaration of a major disaster, but is provided regardless of the
size of that catastrophe or the number of people involved.
' Through a program of disaster preparedness and relief by.ANRC
chapters, divisions, and areas throughout the Country, ANRC
provides disaster victims with food, clothing, shelter, first aid,
and supplementary.medical, nursing, and hospital care and meets
other urgent immediate needs. This help may be provided on the
bases of mass care in shelters and at feeding stations and aid
stations and also provides food and first aid services for
' emergency workers. The Red.Cross provides blood and blood.
products for disaster victims, and handles inquiries from
concerned individuals outside the disaster area.
Help for disaster victims may also be provided on an
individual family basis, with funds or purchase orders issued to
' families for food, clothing, medical care, health items, essential
household furnishings, urgently needed occupational supplies and
equipment, emergency rentals for housing, transportation and
temporary minor repairs to homes so that they can be reoccupied.
The Red Cross will assist in providing information and federal and
other resources available for additional assistance to disaster
victims and will refer families to such resources. The Rea Cross
will assist families in assembling needed information for
applications for such aid and will help them in processing their
applications if the families ask for such assistance. When there
is no Presidential Declaration of a major disaster, or when such
declaration has been made but a family is. not eligible for
government benefits, Red Cross assistance may also include other
recovery needs in addition to the emergency help already given. In
such cases, the need for help will be determined by the individual
casework process. All Red Cross disaster aid is on a grant basis,
with no request for or expectation of repayment.
Because administrative responsibility and financial control
are inseparable, the Red Cross requires that all funds utilized by
it in extending relief will be expended in accordance with its
established policies.
B. Government:
1. The maintenance or restoration of normal government
services and facilities.
2. The extension or augmentation of certain normal
government services when such extensions or augmentation is
consistent or compatible with such normal community services.
These services include:

Attachment 6, Continued
' a. Warning and.evacuation.
b. Search and rescue.
1 c. Police and fire protection.
1 d. Emergency medical, public health,.and sanitation.
e.: Identification and dispositionofthe dead,
including operation of temporary morgues.
f. Institutional care for the sick, aged, and
orphaned.
g. Survey and damage assessment.
1 h. Engineering and public work.
i. Designation of hazardous structures and area.
' j. Debris removal from public property. 5
k. Public welfare
1. Utilities.
m. Supply, transportation, and communications.
n. Manpower.
1 o. Immediate notification to all departments and
agencies providing assistance when a,d si aster is imminent
or occuring.
p. Coordination and determination of priorities in
allocation and use of available local resources and
requests for support through other government or private
agency channels.
C. Red Cross Relations With The Federal Disaster Assistance
Administration, State and Local Governments:
1. The Red Cross will usually have on -going working
1 relationships for disaster preparedness and relief with state
and local governments. Because the Red Cross responds
immediately following a disaster's occurence, the organization
1 will often be operational before a Presidential Declaration of
a major disaster is made and will be working with the state
and local governments before a FCO (Federal Coordinating
Officer) of FDAA is designated. While the Red Cross will keep
i
1

Attachment 6, Continued
the FCO fully informed as to the working arrangements involved
in a specific disaster situation, the ANRC will continue its
direct relationships with the state and local governments.
' 2. FDAA Disaster Assistance Centers., The Red Cross will
provide appropriate volunteers and/or staff to give direct
service to disaster victims at all FDAA disaster assistance
centers when they are established. However, if the Red Cross
has opened disaster service centers in.the disaster area prior
to a Presidential Declaration and/or prior to the opening of
FDAA Centers, the Red Cross will continue to operate as many
of its separate centers as necessary unless facilities and
convenience to disaster victims are adequate in the FDAA
' center to accomodate the number of Red Cross relief personnel
and disaster victims involved
III. COOPERATION AND COORDINATION WITH PUBLIC AUTHORITIES
The Red Cross cooperates with, all federal, state and local
agencies who have any responsibilty for rendering disaster relief
assistance to the disaster victims. The Red Cross is willing to
accept commissions from governments and coordinate its relief
effort with designated agencies. This may include acting as Agent
' for governmental units under mutually agreed _upon conditions.
SIGNATORY:
Coordinator o Civil Prepare ness ARC C apter Chairman
Emergency Operations
Date Approved Date Approved
1