Transcript Traffic Control for Incident Management

Illinois Department of Transportation
Don Hoffman- IDOT Traffic Control Supervisor
Bureau of Operations
Andrew Keyt- Attorney
Heyl Royster







Manual on Uniform Traffic Control Devices.
Basic traffic control for emergency incidents.
Road closure authority.
IDOT assistance and Communications Center.
Training (information on training).
Legislation.
Legal questions and answers.
http://www.fhwa.dot.gov



The MUTCD contains the national standards governing all
traffic control devices. All public agencies across the nation
rely on the MUTCD to bring uniformity to the roadway. The
MUTCD plays a critical role in improving safety and mobility
of all road users.
The MUTCD is the law governing all traffic control devices.
Non-compliance of the MUTCD ultimately can result in loss
of federal-aid funds as well as significant increase in tort
liability.
The MUTCD audience includes, but is not limited to: State
and, local highway agencies, public officials, the insurance
industry, law enforcement agencies, incident management
personnel, maintenance personnel, academic institutions,
private industry, and planning, construction and
engineering organizations.
When used in this Manual, the text headings shall
be defined as follows:
1. Standard—a statement of required, mandatory, or specifically
prohibitive practice regarding a traffic control device. All
standards are labeled, and the text appears in bold type. The
verb shall is typically used. Standards are sometimes modified
by Options.
2. Guidance—a statement of recommended, but not mandatory,
practice in typical situations, with deviations allowed if
engineering judgment or engineering study indicates the
deviation to be appropriate. All guidance statements are
labeled, and the text appears in unbold type. The verb should is
typically used. Guidance statements are sometimes modified by
Options.
3. Option—a statement of practice that is a permissive condition and
carries no requirement or recommendation. Options may
contain allowable modifications to a Standard or Guidance. All
option statements are labeled, and the text appears in unbold
type. The verb may is typically used.
4. Support—an informational statement that does not convey any
degree of mandate, recommendation, authorization, prohibition,
or enforceable condition. Support statements are labeled, and the
text appears in unbold type. The verbs shall, should, and may are
not used in Support statements.
Standard:
The needs and control of all road users (motorists, bicyclists, and
pedestrians within the highway, including persons with disabilities in
accordance with the Americans with Disabilities Act of 1990 (ADA), Title
II, Paragraph 35.130) through a TTC zone shall be an essential part of
highway construction, utility work, maintenance operations, and the
management of traffic incidents.
Support:
A traffic incident is an emergency road user occurrence, a natural
disaster, or other unplanned event that affects or impedes the
normal flow of traffic.
A traffic incident management area is an area of a highway where
temporary traffic controls are imposed by authorized officials in
response to a road user incident, natural disaster, hazardous material
spill, or other unplanned incident. It is a type of TTC zone and
extends from the first warning device (such as a sign, light, or cone) to
the last TTC device or to a point where vehicles return to the original
lane alignment and are clear of the incident.
Traffic incidents can be divided into three general classes of duration, each of
which has unique traffic control characteristics and needs. These classes are:
Major-
expected duration of more than 2 hours.
Intermediate- expected duration of 30 minutes to 2 hours.
Minor-
expected duration under 30 minutes.
The primary functions of TTC at a traffic incident
management area are to move road users reasonably
safely and expeditiously past or around the traffic
incident, to reduce the likelihood of secondary traffic
crashes, and to preclude unnecessary use of the
surrounding local road system.
Guidance:
In order to reduce response time for traffic incidents, highway agencies,
appropriate public safety agencies (law enforcement, fire and rescue,
emergency communications, emergency medical, and other emergency
management), and private sector responders (towing and recovery and
hazardous materials contractors) should mutually plan for occurrences of
traffic incidents along the major and heavily traveled highway and street
system.
On-scene responders should be trained in safe practices for
accomplishing their tasks in and near traffic. Responders should always
be aware of their visibility to oncoming traffic and take measures to move
the traffic incident as far off the traveled roadway as possible or to
provide for appropriate warning.
Responders arriving at a traffic incident should, within 15 minutes of
arrival on-scene, estimate the magnitude of the traffic incident, the
expected time duration of the traffic incident, and the expected vehicle
queue length, and then should set up the appropriate temporary traffic
controls for these estimates.
Option:
Warning and guide signs used for TTC traffic incident management
situations may have a black legend and border on a fluorescent pink
background (see Figure 6I-1).
Support:
…The ability to quickly install proper temporary traffic controls might
greatly reduce the effects of an incident, such as secondary crashes or
excessive traffic delays. An essential part of fire, rescue, spill clean-up,
highway agency, and enforcement activities is the proper control of
road users through the traffic incident management area in order to
protect responders, victims, and other personnel at the site while
providing reasonably safe traffic flow. These operations might need
corroborating legislative authority for the implementation and
enforcement of appropriate road user regulations, parking controls,
and speed zoning. It is desirable for these statutes to provide sufficient
flexibility in the authority for, and implementation of, TTC to respond
to the needs of changing conditions found in traffic incident
management areas.
Support:
Major traffic incidents are typically traffic incidents involving
hazardous materials, fatal traffic crashes involving numerous vehicles,
and other natural or man-made disasters. These traffic incidents
typically involve closing all or part of a roadway facility for a period
exceeding 2 hours.
Guidance:
If the traffic incident is anticipated to last more than 24 hours,
applicable procedures and devices set forth in other Chapters of Part 6
should be used.
Support:
A road closure …. A combination of traffic engineering and enforcement
preparations is needed to determine the detour route, and to install,
maintain or operate, and then to remove the necessary traffic control
devices when the detour is terminated. Large trucks are a significant
concern in such a detour, especially when detouring them from a
controlled-access roadway onto local or arterial streets.
During traffic incidents, large trucks might need to follow a route separate
from that of automobiles because of bridge, weight, clearance, or geometric
restrictions. Also, vehicles carrying hazardous material might need to
follow a different route from other vehicles.
….. Maintaining good public relations is desirable. The cooperation of the
news media in publicizing the existence of, and reasons for, traffic incident
management areas and their TTC can be of great assistance in keeping road
users and the general public well informed.
If manual traffic control is needed, it should be provided by qualified
flaggers or uniformed law enforcement officers.
Guidance:
Attention should be paid to the end of the traffic queue such
that warning is given to road users approaching the end of the
queue.
If flaggers are used to provide traffic control for an incident
management situation, the flaggers may use appropriate traffic
control devices that are readily available or that can be brought
to the traffic incident scene on short notice.
Support:
Intermediate traffic incidents typically affect travel lanes for a time period
of 30 minutes to 2 hours, and usually require traffic control on the scene to
divert road users past the blockage. Full roadway closures might be
needed for short periods during traffic incident clearance to allow traffic
incident responders to accomplish their tasks.
Support:
Minor traffic incidents are typically disabled vehicles and minor
crashes that result in lane closures of less than 30 minutes. On-scene
responders are typically law enforcement and towing companies, and
occasionally highway agency service patrol vehicles.
Diversion of traffic into other lanes is often not needed or is needed
only briefly. It is not generally possible or practical to set up a lane
closure with traffic control devices for a minor traffic incident. Traffic
control is the responsibility of on-scene responders.
Support:
The use of emergency-vehicle lighting (such as high-intensity rotating,
flashing, oscillating, or strobe lights) is essential, especially in the initial
stages of a traffic incident, for the safety of emergency responders and
persons involved in the traffic incident, as well as road users approaching the
traffic incident. Emergency-vehicle lighting, however, provides warning only
and provides no effective traffic control. It is often confusing to road users,
especially at night. Road users approaching the traffic incident from the
opposite direction on a divided facility are often distracted by emergencyvehicle lighting and slow their vehicles to look at the traffic incident posing a
hazard to themselves and others traveling in their direction.
The use of emergency-vehicle lighting can be reduced if good traffic control
has been established at a traffic incident scene. This is especially true for
major traffic incidents that might involve a number of emergency vehicles. If
good traffic control is established through placement of advanced warning
signs and traffic control devices to divert or detour traffic, then public safety
agencies can perform their tasks on scene with minimal emergency-vehicle
lighting.
Guidance:
Public safety agencies should examine their policies on the use of
emergency-vehicle lighting, especially after a traffic incident scene is
secured, with the intent of reducing the use of this lighting as much as
possible while not endangering those at the scene. Special consideration
should be given to reducing or extinguishing forward facing emergencyvehicle lighting, especially on divided roadways, to reduce distractions to
on-coming road users.
Vehicle headlights not needed for illumination, or to provide notice to other
road users of the incident response vehicle being in an unexpected location,
should be turned off at night.
Chapter 6
A-E
General; Fundamentals Principles; Temporary Traffic Control
Elements; Pedestrian and Worker Safety; Flagger Control
F
Temporary Traffic Control Zone Devices
G
Temporary Traffic Control Zone Activities
H
Typical Applications (TA)
I
Control of Traffic Through Incident Management
Areas
Standard:
The needs and control of all road users (motorists, bicyclists, and pedestrians
within the highway, including persons with disabilities in accordance with the
Americans with Disabilities Act of 1990 (ADA), Title II, Paragraph 35.130)
through a TTC zone shall be an essential part of highway construction, utility
work, maintenance operations, and the management of traffic incidents.
Support:
When the normal function of the roadway is suspended, TTC planning provides
for continuity of the movement of motor vehicle, bicycle, and pedestrian traffic
(including accessible passage); transit operations; and access (and accessibility)
to property and utilities.
The primary function of TTC is to provide for the reasonably safe and efficient
movement of road users through or around TTC zones while reasonably
protecting workers, responders to traffic incidents, and equipment.
Of equal importance to the public traveling through the TTC zone is the safety of
workers performing the many varied tasks within the work space. TTC zones
present constantly changing conditions that are unexpected by the road user.
This creates an even higher degree of vulnerability for the workers and incident
management responders on or near the roadway (see Section 6D.03). At the
same time, the TTC zone provides for the efficient completion of whatever
activity interrupted the normal use of the roadway.
Consideration for road user safety, worker and responder safety, and the
efficiency of road user flow is an integral element of every TTC zone, from
planning through completion. A concurrent objective of the TTC is the efficient
construction and maintenance of the highway and the efficient resolution of
traffic incidents.
Support:
Construction, maintenance, utility, and incident zones can all benefit from TTC to
compensate for the unexpected or unusual situations faced by road users. When
planning for TTC in these zones, it can be assumed that it is appropriate for road
users to exercise caution. Even though road users are assumed to be using caution,
special care is still needed in applying TTC techniques.
During TTC activities, commercial vehicles might need to follow a different route
from passenger vehicles because of bridge, weight, clearance, or geometric
restrictions. Also, vehicles carrying hazardous materials might need to follow a
different route from other vehicles. The Hazardous Materials and National Network
signs are included in Sections 2B.52 and 2B.53, respectively.
Standard:
Before any new detour or temporary route is opened to traffic, all necessary
signs shall be in place. All TTC devices shall be removed as soon as practical
when they are no longer needed. When work is suspended for short periods of
time, TTC devices that are no longer appropriate shall be removed or
covered.
Support:
Formulating specific plans for TTC at traffic incidents is difficult because of the
variety of situations that can arise.
Guidance:
General plans or guidelines should be developed to provide safety for motorists,
bicyclists, pedestrians, workers, enforcement/emergency officials, and equipment,
with the following factors being considered:
B. A TTC plan, in detail appropriate to the complexity of the work project or
incident, should be prepared and understood by all responsible parties before the
site is occupied. Any changes in the TTC plan should be approved by an official
knowledgeable (for example, trained and/or certified) in proper TTC practices.
6C.01
Support:
TTC plans range in scope from being very detailed to simply referencing
typical drawings contained in this Manual, standard approved highway
agency drawings and manuals, or specific drawings contained in the contract
documents. The degree of detail in the TTC plan depends entirely on the
nature and complexity of the situation.
Guidance:
TTC plans should be prepared by persons knowledgeable (for example,
trained and/or certified) about the fundamental principles of TTC and work
activities to be performed. The design, selection and placement of TTC
devices for a TTC plan should be based on engineering judgment.
Support:
Most TTC zones are divided into four areas: the advance warning area,
the transition area, the activity area, and the termination area. Figure 6C1 illustrates these four areas. These four areas are described in Sections
6C.04 through 6C.07.
The advance warning area is the section of highway where road users are
informed about the upcoming work zone or incident area.
The advance warning area may vary from a single sign or high-intensity
rotating, flashing, oscillating, or strobe lights on a vehicle to a series of
signs in advance of the TTC zone activity area.
On higher speed facilities, place advanced signage farther back (1000’1500’) and less for lower speed facilities. Sign placement may need to be
further on larger incidents to advance warn motorists before the queuing
area.
Guidance:
Because flaggers are responsible for public safety and make the
greatest number of contacts with the public of all highway workers,
they should be trained in safe traffic control practices and public
contact techniques.
Flaggers should be able to satisfactorily demonstrate the following
abilities:
A. Ability to receive and communicate specific instructions clearly, firmly,
and courteously.
B. Ability to move and maneuver quickly in order to avoid danger from
errant vehicles.
C. Ability to control signaling devices (such as paddles and flags) in
order to provide clear and positive guidance to drivers approaching a
TTC zone in frequently changing situations.
D. Ability to understand and apply safe traffic control practices, sometimes in
stressful or emergency situations.
E. Ability to recognize dangerous traffic situations and warn workers in
sufficient time to avoid injury.
Flaggers may use red flags, lighted flashlights, and other means on hand at the
initial response.
At night, flaggers should be wearing high visibility apparel- including law
enforcement.
Devices:
For use on the National Highway System, all devices should meet
NCHRP 350.
What is NCHRP 350?
Essentially, a device is tested to make sure it is safe and does not
impose a hazard itself.
Most all devices used by emergency personnel will meet this
requirement.
Minimum device installation guide for traffic control.
IDOT ASSISTANCE
Major Incidents
Road Closures, Detours, Accidents involving multiple facilities
Temporary traffic control is usually provided by the Illinois State Police.
IDOT can provide necessary signage and barricades for use on loan. It is important to
consider this may take time and not be accessible as quickly as possible.
Either the towing company or persons involved in incident are responsible for debris
clean-up. If the magnitude of debris will prolong the opening of a road, IDOT may cleanup but will asses charges to the responsible party for labor and transportation.
Lane and night closures should be avoided, if possible, due to the possible inability to
advance warn motorist.
The removal of a wrecked vehicle or other debris not interfering with the free flow of
traffic is not considered an emergency.
Install detour routes for long term incidents. Usually greater than six hours depending
upon facility involved.
COMMUNICATIONS CENTER
309-671-4487
24 hours a day- 7 days a week.
Answers all calls after hours and monitors
roadways in Peoria area with numerous cameras.
Notify as soon as possible concerning road
closures or incidents.
Can contact appropriate personnel for any
situation.
ROAD CLOSURE AUTHORITY
Generally, IDOT has the final say.
IDOT and Illinois State Police have an agreement
and open communication and if deemed the road
needs closed it is done.
Interstates are closed as a last resort and require
the immediate notification of IDOT.
Field technician may respond and question or
examine situation to determine if traffic can pass.
Open communication is vital.
LEGISLATION
Scott’s Law
“Move Over” law. Motorists must slow down or
move over when emergency vehicles are on the
highway.
WORKER VISIBILITY RULE
23 CFR PART 634
This regulation implemented section 1402 of the Safe, Accountable, Flexible, Efficient
Transportation Equity Act: A Legacy for Users (SAFETEA–LU) (Pub. L. 109–59; August
10, 2005), which directed the Secretary of Transportation to, within 1 year, issue
regulations to decrease the likelihood of worker injury and maintain the free flow of
vehicular traffic by requiring workers whose duties place them on or in close proximity
to a Federal-aid highway to wear high-visibility safety apparel.
The proposed definition of ‘‘worker’’ included any person on foot whose duties place
them within the right-of-way of a Federal-aid highway, such as highway construction
and maintenance forces, survey crews, utility crews, responders to incidents,
including law enforcement personnel, within the highway right-of-way of a Federal-aid
highway. ‘‘High-visibility safety apparel’’ was defined as any garment meeting the
American National Standards Institute (ANSI) 107–2004 Class 2 or 3 standard.
Therefore, the FHWA agreed with the recommendation from the International
Association of Chiefs of Police and provided an exception for law enforcement
personnel in the Final Rule
In April 2008, the University of Michigan, Ann Arbor, Transportation Research Institute
released a study on the conspicuity of first-responder safety garments. The study was
conducted on a closed track in both daytime and nighttime conditions to compare the
conspicuity of three different types of safety garments used by first responders:
NFPA 1971 turnout gear coats, ANSI/ ISEA 107 safety vests, and ANSI/ISEA 207
safety vests. Eight participants, balanced for gender and age, drove instrumented
vehicles on the closed track indicating the distance at which they could detect
workers at a simulated emergency response scene. The results show no statistically
significant difference in the distance at which workers were detected, regardless of
which garment was worn. In other words, all three garment standards provided equal
levels of conspicuity under the conditions examined. The results suggest that all of
the garments studied should be considered equivalent relative to first responder
conspicuity when working in close proximity to traffic. Based upon this research, the
FHWA believes that the PPE for firefighters specified in the NFPA 1971 standard is
equivalent to the ANSI 107– 2004 Class 2 garment.
AMENDMENTS TO RULE FROM COMMENTS
634.2 Definitions.
*****
Workers means people on foot whose duties place them within the right-ofway of a
Federal-aid highway, such as highway construction and maintenance forces; survey
crews; utility crews; responders to incidents within the highway right-of-way; firefighters
and other emergency responders when they are not directly exposed to flame, fire,
heat, and/or hazardous materials; and law enforcement personnel when directing
traffic, investigating crashes, and handling lane closures, obstructed roadways, and
disasters within the right-of-way of a Federal-aid highway.
FINAL RULE
All workers within the right-of-way of a Federal-aid highway who are exposed either
to traffic (vehicles using the highway for purposes of travel) or to construction
equipment within the work area shall wear high-visibility safety apparel. Firefighters
or other emergency responders working within the right-of-way of a Federal-aid
highway and engaged in emergency operations that directly expose them to flame,
fire, heat, and/or hazardous materials may wear retroreflective turn-out gear that is
specified and regulated by other organizations, such as the National Fire Protection
Association. Firefighters or other emergency responders working within the right-ofway of a Federal-aid highway and engaged in any other types of operations shall
wear high-visibility safety apparel.
LEGLISLATION- ANDREW KEYT
TRAINING
THANK YOU FOR YOUR TIME AND ATTENTION.