STREET MAINTENANCE DIVISION
2004 SNOW RESPONSE
EVALUATION REPORT
TABLE OF CONTENTS
SECTION
PAGE
I.
Introduction
1
II.
February’s Storm Significance
1
III.
Current Snow & Ice Program
2
IV.
Recent Improvements to Program
2
V.
Variance in Plowing Policy
3
VI.
Assessment
3
VII.
Recommendations as a Result of this Assessment
7
I.
INTRODUCTION
Due to the unprecedented snowstorm of February 26, 2004 and the complexity of the
emergency response, the Street Maintenance Division performed an internal City
evaluation of its snow program and response to the storm. Layton Lamb, Street
Maintenance Superintendent, conducted the assessment by seeking input from SMD
employees and other City agencies responsible for emergency response or support
services. He also incorporated into the assessment the crux of media reports/articles and
citizen calls to City agencies for service. The City agencies that participated in the
assessment were: Fire (Deputy Chief Jeff Dulin), Police (Sergeant Bud Cesena, Head of
Police Command Center), Aviation (Gene Carney, Assistant Director/Operations), CATS
(Tom Stringer, Assistant General Manager/Bus Operations and Steve Keiper, General
Manager/Bus Operations), Solid Waste (Superintendent Sheldon Smith and Don
Robinson, Field Operations Supervisor), Equipment Management (Ed Sizer, Equipment
Management Director/Business Support Services; Karen King, Manager/Light Vehicle
Shop; Bill Roche, Shop Manager/Louise Avenue; Walt Crews, Team Leader/Louise
Avenue; and Anthany Oxendine, Team Leader/Sweden Road), Customer Service (Ellen,
Ingolia, Senior Customer Services Representative/Team Leader) and Corporate
Communications (Director Julie Hill). These agencies were selected because SMD either
partners and/or interacts with them during weather emergencies or the agency’s services
are impacted by the job SMD does in the snow removal.
II.
FEBRUARY’S STORM SIGNIFICANCE
The February 26, 2004 snowstorm was the largest snowstorm the City had experienced in
over 40 years. The average snow accumulation across the city varied anywhere from 7
inches in the West and North to 18 inches in the East and South.
A.
Charlotte’s Snow & Ice History
The following chart summarizes the annual snowfall and icing events in Charlotte
over the last 10 years. The snow and ice quantities in the chart are accumulative.
Ice quantities include sleet amount in inches. The cost reflects labor, equipment,
materials and contractors. FEMA reimbursements were not subtracted from the
cost.
2004
2003
2002
2001
2000
1999
1998
1997
1996
1995
1994
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Snow
15.8"
9.5"
4.5"
0"
12.0"
0.5"
2.5"
2.8"
3.0"
0"
0"
Ice
½"
0"
1"
0"
0"
3"
0"
0"
3"
0"
2"
# Storms
5
3
2
0
4
5
4
1
3
0
1
Cost
$1,550,557
$979,591
$276,972
$147,482
$407,127
$111,321
$61,681
$24,518
$261,847
$43,893
$119,225
B.
February Historical Storm Comparison
The chart below lists the single largest Charlotte snowfalls over the last 40 years.
The depths are average for Charlotte. This information indicates from 4 to 16
years between large snowstorms or an average of 9.6 years between significant
snowfalls of 10 inches or more. The February snowstorm is the largest in these
40 years.
Date
February 26, 2004
January 7, 1988
March 24, 1983
February 18, 1979
January 16, 1965
III.
Snowfall
12.8"
12.1"
10.3"
10.0"
10.0"
CURRENT SNOW & ICE PROGRAM
The current SMD snow and ice program is structured around 23 City salt spreaders, 16
City snow plows, 3 City loaders, 3 City motor graders, 3 CMU tandems, 3 CMU
backhoes, 1 CMU standard dump truck, 11 contract motor graders, and 11 contract
loaders. The mission is to salt and plow approximately 1500 lane miles of major arterial
streets within 48 hours after the storm. The program is designed to plow and salt streets
in the following priority: 1) Thoroughfares and connector streets, 2) Charlotte transit
routes, 3) Streets leading to schools, and 4) Problem residential streets. Included in the
thoroughfares are the majority of the State streets excluding the interstates and freeways.
SMD also responds to many emergency calls related to Police, Fire, Medic, and life
threatening emergency situations. Also included in the program is salting and plowing
hospital emergency entrances, driveways and parking lots for various City agencies
(Sanitation, CATS, Street Maintenance, Fire, Coliseum) and plowing and hauling snow
from downtown. The program is divided up into three condition levels with varying
degrees of manpower and equipment designed to meet the storm severity. Condition
level selection is determined for each storm type (snow or ice) based on: forecasts,
temperatures before, during and after the storm, and the amount of snow and/or ice
accumulation.
The operators, dispatchers, supervisors, and administrators of the snow program in
February’s storm condition amounted to over 300 employees and contract people
knowing where to go, what to do and how to do it. These 300 people were from Street
Maintenance, Special Services, CMUD Sewer Distribution, Crowder Construction
Company, Blythe Construction Company, F.T. Williams Construction Company and W.
D. Smith Construction Company.
IV.
RECENT IMPROVEMENTS TO PROGRAM
The snow program has been improved over the last 3 years to be more proactive in its
snow and ice removal efforts. The Division began using salt brine (salt water) on bridges
and culverts in advance of the storm in 2000-1 season. The salt brine combats the
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sudden freezing of the bridges as well as the bonding of ice to the bridge deck. In the
2002-3 season, the Division also began spreading salt on street surfaces much earlier in
those events that begin as rain and temperatures are close to freezing. This proactive
approach also combats the sudden freezing of the road surfaces and ice build up that
usually catches motorists by surprise. This year in the 2003-4 season, the Division began
using pure rock salt versus a salt and slag mixture. Research has proven that the more
salt used and the sooner it can be put down significantly increases the melting
effectiveness.
V.
VARIANCE IN PLOWING POLICY
Neighborhood streets historically have been considered low priority in Charlotte storms.
Due to normally above freezing temperatures following a storm, typically the snow or ice
melts on neighborhood streets by the time thoroughfares and bus routes are cleared. By
incorporating this natural occurrence into the snow program the City substantially
reduces the capital and operating costs associated with clearing neighborhood streets.
With the amount of snow that accumulated in some neighborhoods in the February
storm, City Management decided to increase plowing service level efforts. SMD rented
additional equipment to begin plowing snow from neighborhood streets. The
neighborhood street plowing priority was based on emergencies, location of equipment
when mobilized, and calls from City agencies and citizens who could not get out of their
subdivisions due to the depth of the snow.
VI.
ASSESSMENT
City Agencies
The assessment was performed to evaluate Street Maintenance’s response and to obtain
ideas for improvement. Questions that were asked of each agency are as follows:
“How would your agency rate SMD’s response to the storm and did we meet
your agency’s expectations?”
POLICE: SMD did a good job during this storm. The Police liked having a SMD
representative in the Police Command Center during these emergencies to simplify and
streamline communication.
FIRE: Great overall response by SMD. SMD provided and responded in a timely
manner when they were called to assist with plowing fire station driveways and aprons
and helping in accidents and where needed. SMD employees were courteous and did
what was asked. Yes, SMD met Fire’s expectations.
CATS: SMD generally did a good job. CATS maintenance department wanted to thank
SMD for letting them pick up some slag to use at their maintenance yard.
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AVIATION: Overall Street Maintenance did a good job. Aviation handles all the
plowing and snow removal around the airport. No complaints about roads around the
airport. Had some problems with ice build up at Old Dowd and Josh Birmingham when
temperatures dropped below freezing.
SOLID WASTE: SMD did a great job in this storm. The 4:30 a.m. SMD street
condition call to Solid Waste Management during these storms helps them plan their day.
Appreciate the salting and plowing of their employee parking lots.
CUSTOMER SERVICE: SMD did a good job in the storm. Had very few calls from
citizens requesting plowing of residential streets. Most residential street calls were
complaining about plowing snow and blocking residential driveways. Had no problems
getting through to SMD to provide and obtain information during the storm.
EQUIPMENT SERVICES: SMD did a great job during this storm. They like getting
the storm forecasts from SMD via email.
CORPORATE COMMUNICATIONS: I think SMD did a great job. This storm was an
anomaly for Charlotte. SMD’s plan of action cleared the streets in a very reasonable
time. SMD did a good job of getting their message out to the public on what they were
doing in preparation of the storm. SMD stated their policies regarding what streets they
clear and in what priority very well.
STREET MAINTENANCE: Generally did a good job with the response considering
the magnitude of the storm. Provided the service level that we set out to achieve.
“What were some specific problems experienced by your agency during the
storm?”
POLICE: We had a few problems with police cars getting stuck. We also had some
problems with police officers getting to work because they could not get out of their
driveways. We sent tow trucks to get them out. No major problems.
FIRE: We only had one fire engine stuck that had to be towed and it was because of
driver error. Medic was having problems with their ambulance’s getting stuck. The Fire
Department transported several patients for Medic. We had some problems with
feedback on status of requests for assistance from SMD.
CATS: Had three busses get stuck on North Tryon Street. We got them out. Had a
problem getting equipment from their maintenance yard to the Transit Center due to
traffic when all the businesses let out Thursday at noon.
AVIATION: No problems associated with Street Maintenance performance.
SOLID WASTE: Very difficult getting to garbage containers on streets that were
plowed where a ridge of snow was in the way after street was plowed.
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CUSTOMER SERVICE: Difficult for Customer Service employees to get to work
Friday morning. Had trouble communicating to citizens what SMD was doing because of
not notifying Customer Service of our intentions. Example: when we began plowing
residential streets.
EQUIPMENT SERVICES: Would like to have had more lead-time on knowing SMD’s
preparations for the storm so that they could have sent their mechanics home to come
back in.
CORPORATE COMMUNICATIONS: I would have liked to see us follow the
communication plan we set up last year in which we got all agencies (Police, Fire, Solid
Waste, Street Maintenance, NCDOT) together and conducted the news briefing. This
represents agencies working together and coordinating their efforts. It simplifies to the
citizens how the City is reacting and working as a team. When each agency is
communicating on its own, it is more confusing to the citizens and it does not send a
unified message on behalf of the City.
STREET MAINTENANCE: Minor problems with confusion when salt trucks were
asked to go from a “C” condition to a “B” coverage when plowed streets began to ice
over Friday night.
“How could SMD improve their program and improve response?”
POLICE: Would like to get SMD on Police video conferencing system and Police
mapping system. This would allow us to communicate and provide feedback in real time
and avoid time-consuming phone calls requesting updates. Would like all agencies to
communicate on an 800 MHz radio events channel.
FIRE: Incorporate a better communications system involving tracking and feedback
using LAN, Intranet, and GIS. Fire would like a system put in place where they could
request something and have a status check so that they could monitor when request was
performed and completed. All agencies should be talking on 800 MHz radio Fire Mutual
Aide channel. Fire Department will proactively pursue a list of problem neighborhood
streets and give to SMD. Fire Department could help SMD with fueling their equipment
at their fire stations. SMD could also use the fire fuel truck to fuel snow plows. Fire will
look into putting snowplows on their brush trucks. Have ordered cables for better traction
for their fire trucks.
CATS: Would like SMD to include salting and plowing the hill behind their
maintenance center on Davidson & 12th Street when SMD covers their bus parking lot
during snow and ice. CATS will email SMD a list of streets as they discontinue running
their busses down them during ice and snow. This will allow SMD to quickly target the
problem areas and get CATS busses running quicker thus reducing their detours. SMD
will salt bus way on Independence but CATS will have to hire contractor to plow and
remove snow. CATS needs a list of contact numbers. SMD will place CATS on their
emergency response plan distribution list. CATS management will also be placed on the
Hazardous Roads notification list. CATS is also going to purchase a piece of equipment
to remove snow around their maintenance yards.
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AVIATION: Gave us a copy of their snow program to see if there were any ideas SMD
could use.
SOLID WASTE: City could incorporate a policy for citizens to clear snow from curb
for garbage container after snowstorms. Would like for Solid Waste management to be
placed on the Emergency Hazardous Roads notification list so that they could get a
sooner heads up in predicted snow or ice events. Will send an updated list of problem
streets they are aware of during snow and ice events so that SMD can take a proactive
approach to salting and plowing these streets. Would like the weather report that we fax
them sent email. SMD needs to inform Special Services when it makes the decision to
plow snow so that they can send SS truck drivers home to come back in and work for
SMD. Need to put SS management on Hazardous Road notification list. Communicate
more often. Meet once a month.
CUSTOMER SERVICE: SMD needs to inform CS before it does a news conference. It
also needs to give out CS’s phone number (704-336-7600) instead of SMD’s. Also SMD
needs to notify CS when it changes policy such as plowing residential streets. Need
better communication between CS and SMD. When CS receives a call, they have to call
SMD to relay the complaint. Need better system of transmitting information back and
forth and have the ability to follow up on progress. Suggest that SMD get Emerald so
that complaints and customer calls can be communicated to SMD from CS electronically.
CS would like to be placed on the Hazardous Roads notification list. CS may be able to
communicate SMD snow and ice condition and shift information to SMD employees to
reduce calls to SMD by employees wanting to know when and if they have to come to
work.
EQUIPMENT SERVICES: They would like SMD to provide them one week’s advance
notice when SMD plans the annual snow practice day so they can better schedule the
work into their other priorities. They would like as much advance notification as
possible when planning extra work hours for a storm event. EMD’s work schedule
varies from SMD’s. For instance, EMD’s first shift typically goes home at 2:30 p.m.
EMD key staff members would like to be placed on the Hazardous Roads notification
system list. EMD will provide SMD additional information on access to additional
fueling options including emergency Fuelman site access procedures as well as the
process to activate site delivered fuel by the City’s towing contractor.
CORPORATE COMMUNICATIONS: Call a meeting of the Hazardous Roads Group.
Invite the division managers, the PIOs, and the communications folks to talk about a
communication plan that best informs and serves the citizens on City preparation,
policies, and what to expect.
STREET MAINTENANCE: Update antiquated salt spreaders with new spreaders that
have saddle tanks so that salt can be pre-wet with calcium chloride increasing the melting
effectiveness of the salt in cold temperatures. Increase the number of snow plows to
reduce SMD’s dependence on more expensive, slow motorgraders.
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Citizen Calls
“What were the majority of complaints from citizens?”
Citizen calls to Customer Service and Street Maintenance received during the 3 days
of storm response were approximately 350.
80% of calls involved the following:
 plowed snow left blocking drives
 when was residential street going to be plowed
 what was closed
20% of calls involved were:
 regarding ice and snow in particular locations on streets that caused accidents
Other City Department calls to SMD were 40:

related to requesting SMD to salt or plow parking lots or to assist with one of
their vehicles being stuck in the snow
Media Reports/Articles
During the snowstorm, Street Maintenance received mostly positive response stating that
CDOT did a good job. After the storm The Observer and Channel 6 reported that more
affluent neighborhoods were plowed while lower income neighborhoods were ignored.
These articles contained inaccurate and incomplete information. SMD did not receive
any citizen calls making these allegations. Residential street plowing was based on depth
of snow, problems with citizens getting out of their subdivisions and location of
equipment.
VII. RECOMMENDATIONS AS A RESULT OF THIS ASSESSMENT
Action Steps
Equipment:
1. Replace 15 antiquated salt spreaders with more efficient models that have the ability
to coat salt with melting enhancing chemicals. This will enhance response time and
efficiency. Layton will team with Budget to get this done. Annexation should justify
5 of these. Cost $120,000
2. Purchase 11 additional snow plows to improve the Division’s response during large
snowstorms and to reduce the City’s reliance on rented equipment that is slow, easy
to break, expensive to repair/operate, and really not designed to plow snow or ice.
Layton will pursue with the Budget Office to get this done. Annexation should justify
5 of these. Cost $88,000
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3. Trade 3 standard trucks for 3 tandem dump trucks to increase effectiveness. Trucks
will also increase work capacity for street repair work. Layton is seeking these
through Budget. Layton Lamb and Budget. Cost $250,000 (Included in FY05 budget
for equipment replacement).
4. Install Calcium Chloride dispensing units at the 3 Street Maintenance facilities. This
will improve salt melting effectiveness. Layton will pursue with the Budget Office.
Possibly can include one of these in the construction of the new SMD Central
Facility. Cost $150,000
5. Stipulate a service level target that clears thoroughfare streets in 48 hours after the
storm and residential collector streets within 72 hours after the storm. In a typical
storm, SMD will continue to address priority on emergencies, bus routes, school
streets, residential connectors then residential streets. Step up service levels based on
severity of the storm. Layton will incorporate into snow policy.
6. The Fire Department has given permission for SMD to use its fuel truck and fueling
facilities during weather events. Also Equipment Services has arranged for SMD to
work with the City’s fuel supplier to deliver and supply fuel in time of emergency.
Communication:
1. Improve communication among Police, Fire and Street Maintenance by installing
video conferencing and mapping software that can be used for any emergency like
flooding, tornados, hurricanes, disasters, and snow and ice. Layton will work with
Chief Dulin from Fire, Bud Cesena from Police, and City IT. Cost $25,000
2. Julie Hill and Layton Lamb will meet with key agency PIOs and Department
representatives to discuss the communication plan and get consensus on following
the plan during emergencies.
3. Plans to install Emerald in SMD are already under way. Layton will pursue Emerald
training for SMD staff and work with Dee Crayton to implement a communication
plan between SMD and Customer Service.
4. Layton Lamb, Jimmy Jones (Police) and Marsha Simmons (Fire) will work through
the Hazardous Roads Team to dedicate 800 MHz radio channel so that all agencies
can communicate more quickly and easily.
5. Layton Lamb will have representatives of CATS, Equipment Services, Customer
Service and Solid Waste placed on the Hazardous Roads Communications program
for notification during predicted weather events. CATS will also be placed on SMD’s
Emergency Response distribution list.
6. Fire and Cats will begin to proactively work on a list of potential locations that
continually cause them to set up detours during times of snow or ice. They will
communicate this list to SMD before the next storm so that SMD can incorporate
salting and plowing in their snow program. Jeff Dulin (Fire) and Randy Mullinax
(CATS) are responsible for getting this information to Layton Lamb.
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7. Layton will work closely with his staff to see that Equipment Services is notified
immediately when SMD decides to call a snow shift.
Service Improvements:
1. SMD will begin salting and plowing the streets and drives behind the CATS
maintenance facility on Davidson. Layton will see this gets on the program.
2. SMD will continue to salt the bus lane on Independence but CATS will have to hire
contractors to plow and remove the snow. Layton will place in salting program and
CATS will take care of the plowing.
3. Layton has talked with Angela Lee and made arrangements with CMU to secure
additional equipment operators for relief during major snowstorms. CMU will
provide a list of operators and SMD will incorporate these operators into its snow
program and provide training. This will address fatigue of the snow plow operators.
4. Solid Waste will pursue a policy to clear snow from sidewalks so that garbage
containers can be picked up by their trucks during times of snow plowing.
Responsible party Sheldon Smith.
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