What Makes LLM Agent Simulations Useful for Policy? Insights From an Iterative Design Engagement in Emergency Preparedness

Abstract: There is growing interest in using LLMs as agents (LLM agents) for social simulations to inform policy, yet real-world adoption remains limited. This paper addresses the question: How can LLM agent simulations be made genuinely useful for policy? We report on a year-long iterative design engagement with a university emergency preparedness team. Across multiple design iterations, we iteratively developed a system of 13,000 LLM agents that simulate crowd movement and communication during a large-scale gathering under various emergency scenarios. These simulations informed actual policy implementation, shaping volunteer training, evacuation protocols, and infrastructure planning. Analyzing this process, we identify three design implications: start with verifiable scenarios and build trust gradually, use preliminary simulations to elicit tacit knowledge, and treat simulation and policy development as evolving together. These implications highlight actionable pathways to making LLM agent simulations that are genuinely useful for policy.