Honolulu tsunami after-action report findings show that most Oʻahu drivers who took to the roads during last summer’s warning did not need to evacuate, and that clearer public guidance and stronger internal coordination could have eased the chaos.

Kakaʻako resident Ashley Severson recalled the fear as she and her husband tried to move inland with their baby on July 29, stopping for diapers at Target Ala Moana before heading to Pālolo Valley. They were mired in gridlock for nearly an hour leaving the parking lot. A large tsunami did not arrive, but anxiety overwhelmed many across Oʻahu as standstill traffic clogged major routes with people rushing to get out of coastal areas.

Nearly a year later, Honolulu emergency officials are detailing how the response could improve. In a report released Friday, the city Department of Emergency Management said clearer instructions on how to evacuate and better assignment of responsibilities among response teams are key lessons.

According to the report, preliminary state transportation data indicates that 92% of vehicle traffic during the warning was unnecessary. Many people who chose to leave were not in danger zones. The report urges those who are safe to remain in place so people in at-risk areas can move quickly. Officials also emphasized vertical evacuation, advising residents near the shoreline to go to higher floors in sturdy buildings rather than drive and add to congestion.

On the day of the warning, Hoʻopili resident Quentin Rita flew back from Kauaʻi to reunite with his four-year-old son. Seeing social media posts about gridlock, he left his car at the airport and jogged about four miles to the Aloha Stadium Skyline station, carrying roughly 30 pounds of belongings, and boarded the last departing train just in time.

Honolulu tsunami after-action report: better staffing needed

Some systems worked well, the report noted. The Pacific Tsunami Warning Center notified the city within minutes of detecting an 8.8 magnitude earthquake off Russia, allowing the city to quickly activate its Emergency Operations Center. Despite heavy traffic, congestion in the primary evacuation zone had largely thinned by the expected first-wave arrival shortly after 7 p.m., and there were no reported fatalities.

Even so, the Department of Emergency Management and a consulting firm, Ascenttra, identified several areas to strengthen. The department needs more staff and clearer roles during emergencies. Deputy Director Jennifer Walter said multiple teams handle planning, interagency coordination, logistics, and emergency procurement, and some personnel were so new they were still orienting when the warning hit. She said the department has since developed more detailed role checklists. “We don’t wait to start fixing things,” she said.

At the time of the warning, the department had fewer than 20 positions. The City Council added 13 positions in the latest budget, including eight requested by the department and five introduced by Councilmember Esther Kiaʻāina. She said staffing is a central issue. The report also notes that trained responders from other departments and retirees can be tapped during crises. Walter said more positions help, but there is no simple number that solves staffing needs.

Jammed roadways

The report outlines additional fixes. More assembly areas, such as parks with access to restrooms, could have been opened for people needing a last-resort gathering site. While the list of assembly sites was quickly shared, many assumed those locations would operate like indoor shelters with supplies and sleeping space. Officials said the purpose of assembly areas must be communicated more clearly.

Evacuation maps also created confusion. City maps display two zones, one closest to the coast for typical events like last summer’s, and a larger inland zone for extreme scenarios. The report says many residents did not understand the difference. It recommends distributing maps that show only the relevant zone and formatting graphics for easy sharing on social media. Kiaʻāina said officials lacked ready-to-use static maps that could be posted quickly.

The report also calls for tighter coordination of public messaging between the city and state. Officials said the lack of synchronization led to overlapping press briefings and Emergency Alert System messages.

Councilmembers praised the recommendations as a strong starting point. Member Matt Weyer called it a solid initial evaluation with actionable steps and said further discussion is needed. A committee hearing is expected next month so councilmembers can question officials about the findings, a council spokesperson said.

The document’s release was delayed in part by back-to-back Kona low storms. Department Director Randal Collins told councilmembers in April it would be out within 30 days, but it remained under final review after 56 days, prompting Council Chair Tommy Waters to urge immediate release. Walter said the department used the process as a training opportunity for newer staff, which slowed completion. She said the approach might have been different had they anticipated the delay.