COVID-19 and Transportation

Vulnerable populations such as carless, female-headed, low-income, disabled, and minority households were already more likely to face challenges when presented with the need to evacuate. Pre-existing vulnerabilities may be exacerbated and newly vulnerable populations may emerge as a result of COVID-19, including for individuals with underlying conditions that are at greater risk of COVID and households facing financial insecurity due to changes in employment status related to the pandemic.

The interactive map to the right shows COVID cases by zip code in Virginia.

The interactive map on the right shows an example of how vulnerability was defined for use in this project. The CDC Social Vulnerability Index and Virginia Department of Emergency Management's (VDEM) vulnerability data were used to provide examples of how a community can begin to explore where vulnerable populations are located and also how they are being defined. As part of this study, the CDC data were used to show the traditional indicators of vulnerability and supplemented with VDEM's vulnerability data that focused more on populations with access and functional needs.

**Please be aware that the data shown on the interactive map are provided as an example of how communities can begin to examine vulnerabilities but may not include an exhaustive list that is relevant to all areas.**

For additional information about the data used in the interactive map, please see the final report for the project located  HERE .

The capacity to reduce vulnerability and build resilience by withstanding and absorbing hazards varies from one place to another depending on institutional, infrastructural, and community characteristics, including access to transportation, and can be assessed with a variety of scales. While natural hazards often bring communities together through shared experience, disasters that involve contagious diseases weaken social capital by promoting distrust and alienation. Additional research is needed to identify a way to balance the contributors to resilience and vulnerability in a compound hazard.

The Hurricane Florence survey shows the role of transportation options in past evacuation behavior. 1,210 online surveys were completed by residents of 7 Hampton Roads cities between November 2018 and February 2019, using a random stratified sampling method of phone numbers in the Resilient Distribution Dataset.

Virginia's Governor issued an evacuation order for low lying areas identified as Zone A prior to the arrival of Hurricane Florence. 40% of survey respondents lived in Zone A. Of those, 20% evacuated outside Hampton Roads, and 14% stayed at a place other than their residence within Hampton Roads. Primary reasons for staying included: 16% caring for a person with a medical condition, 9% cost, and 2% no transportation access.

86% of the total survey respondents stayed in Hampton Roads during Hurricane Florence, whereas 13% evacuated. Primary reasons for staying included: 15% caring for a person with a medical condition, 10% cost, and 3.5% no transportation access.

Caring for a person with a medical condition influenced 15% - 16% of those that did not evacuate outside the region, and cost was a limiting factor from evacuating outside the region during Hurricane Florence for 9% - 10% of households. The role of transportation access in household evacuation decision-making was higher by 1.5%, or three quarters, within the region compared to Zone A. This variance in transportation access may be of concern to emergency planners when determining how to distribute public transit services.

56% of respondents would not do anything different in the event of a similar future storm. Although 40% of both Zone A and regional residents chose not to evacuate for Hurricane Florence because of low perceived risk, an additional 11% planned to evacuate for similar future storms that did not in 2018. 

The 2020 Life in Hampton Roads (LIHR) survey assessed evacuation and sheltering decision-making during the COVID-19 pandemic compared to Hurricane Florence. 1,100 residents of seven Hampton Roads cities opted-in to the online survey. Data were weighed in order to maintain the representation of the sample.

18% of survey respondents lived in Zone A during Hurricane Florence - 2018. 31% evacuated and 2% went to a public shelter. 72% of respondents who evacuated in 2018 would consider doing the same in 2020. 73% of those that evacuated in 2018 but would not in 2020 cited insufficient funds as a contributor to the decision. 50% of those respondents who evacuated in 2018 would consider going to a public shelter in 2020. 69% of those that would not consider going to a public shelter reported concerns with virus transmission as a contributing factor to their decision.

Comparison of actual behavior during Hurricane Florence and intention for a similar storm in 2020 by city shows a much higher intent (42% - 53%) to evacuate than previously occurred (10% - 16%). The intent to go to a public shelter in 2020 (15% - 25%) is also higher than those reporting sheltering in a location other than their home for Hurricane Florence (3% - 11%). However, as identified in the focus groups, the capacity to meet these needs may be reduced because of COVID-19, and jurisdictions must take proactive measures to ensure successful evacuation and sheltering. As there has not yet been a significant weather event in Hampton Roads since the onset of the pandemic, lessons should be learned from areas that have experienced a hurricane during the 2020 hurricane season. 

Use the slider on the interactive map on the right to explore the differences between surveys.

Some transportation issues brought up during the workshops related to the 2020 season and general knowledge, such as an especially active season and limited resident knowledge of zones and evacuation routes. Other concerns were related to COVID-19 including: i) exacerbated vulnerabilities, ii) limited public transportation capacity to accommodate social distancing, iii) needed PPE, sanitization, and symptom checking iv) separated spaces for symptomatic and COVID-19 positive individuals, v) reduced staff and budgets, and iv) delayed evacuation decisions related to fear.

In September 2020, researchers at Old Dominion University convened two participatory online focus groups to identify changes, policies and resources needed to adapt the transportation system for evacuation and sheltering during the COVID-19 pandemic. This included a targeted snowball sample of emergency management, transportation, and public health professionals from the coastal United States. 27 people participated in the first focus group, and 23 participated in the second.

Participants discussed the need to reevaluate current policies and procedures as new information is introduced in order to facilitate evacuation and sheltering and seek out lessons learned based on the experiences of other jurisdictions.

By the peak of hurricane season, emergency management was already engaged in vaccine distribution planning in anticipation of one being developed. Some states had experienced evacuations. Lessons learned were becoming available. The preference for local evacuations including sheltering with family and friends was broadly accepted. Pre-registration for transportation and sheltering was desirable. The decision to rely on individuals to self-report symptoms and provide their own PPE, sanitization, and meals was made, although not consistently. Communication about these recommendations and requirements was underway. Safety protocols for public transit and sheltering were largely agreed upon, despite some jurisdictional discrepancies. Outsourcing contracts had been explored for non-congregant transit (rideshare) and shelter (hotels) options. Additional considerations regarding distribution and willingness to participate and accommodate certain populations were identified. Public resources were adjusted to account for those still in need of congregant shelter options. Stockpiles and sharing agreements were identified for health and safety supplies. Safety enforcement options were delegated to law enforcement in some cases. Additional time for deploying strained resources was desired during the pandemic, but localities were hesitant to order evacuations early in the hopes of avoiding congregant situations.