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Maintenance operations within an intersection, whether it is signalized or unsignalized, is a special operation that warrants extra manpower and demands advance planning. At a minimum, to do otherwise is likely to result in some angry motorists, cyclists, or pedestrians. Worse, a casual approach to this work can place road workers in unnecessary danger and cause conflicts between the multi-modal road users.
Part 6 of the Delaware Manual on Uniform Traffic Control Devices (MUTCD) provides standards and guidance for temporary traffic control and, in particular, Typical Application 27 (TA-27) details the signage and positioning for a successful start to the workzone setup. As with all of the typical applications in Part 6H, don’t neglect the notes that accompany it, as those contain critical standards, guidance, and options specific to the situation.
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In addition, the MUTCD site includes a memorandum from the Delaware Department of Transportation (DelDOT) on the topic that traffic managers should consult before operations within an intersection. The Delaware Code does authorize police officers, authorized flaggers, fire police officers and uniformed adult school crossing guards to control or regulate vehicle and pedestrian traffic on public roads and even override traffic control devices at intersections. DelDOT notes that while, “certified flaggers and uniformed law enforcement officials have the legal authority to override traffic control devices, this practice may not provide the safest method of controlling traffic during non-emergency construction or maintenance work operations within an intersection. In an effort to maintain the safest possible work zones on Delaware roadways, the [memorandum] prescribes methods to control traffic in intersections when work zone activities must interrupt the normal function of the existing traffic control devices within those intersections.”
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As noted with TA-27, the workzone setup can sometimes be simplified by closing one or more of the intersection approaches. Yet another approach is for through vehicular traffic to be directed to other roads or streets based on a detour plan approved by DelDOT Traffic and in accordance with TA-20.
Both DelDOT’s memorandum and TA-27 stress the need to provide at least one (certified) flagger at each intersection approach, as well as a Primary Flagger to control flow through the intersection and direct the other flaggers. On multilane roadways, one flagger is required for control of each lane of traffic. Too often, operations within intersections are attempted with just one flagger; this places the flagger in an unsafe situation and is often ineffective for the flow of traffic.
If the intersection is signalized, contradicting a live signal is a very poor practice since it violates driver expectancy and the rules drivers have been taught to obey. DelDOT states that “the traffic signal shall be placed in flash mode and a traffic officer should be used to assist with traffic control.” If a traffic officer is used, he/she “will place the traffic signal in flash mode and will remain on location as long as the traffic signal is in flash mode.” The officer may assist with directing traffic through the intersection. When the work operation is completed and the temporary traffic control devices have been removed, the officer will return the traffic signal to its normal mode.
The Transportation Management Center (TMC) shall be notified [(302) 659-4600] when any intersection is placed under flagger control or a traffic signal is placed in flash mode and when the signal is returned to normal operational mode.
At unsignalized intersections, similarly recognize that Stop signs on one or more approaches will be the default guidance for drivers. It is especially important for flaggers to be alert to drivers who may revert to the normal right-of-way rules of the road. Eye contact with drivers and a strong situational awareness is important for the safety of the flaggers, the road workers, and other motorists.
It should be self-evident, but the flagging operation should be operated to provide the minimal practicable delay for all approaches to the intersection. Individual flaggers monitor the length of the queue for their lane of traffic and report that information to the Primary Flagger so he/she can efficiently control the flagging operation for greatest efficiency and safety.
For roadways with average daily traffic exceeding 2,000 trips per day require additional advance coordination with DelDOT’s Traffic Safety Section is necessary.
Finally, pedestrians and cyclists are likely to be present at many intersections and the flaggers must be on the lookout for them as they approach. Verbal communication as they approach should usually be possible, but appropriate hand gestures may also be helpful to ensure that the approaching pedestrian or cyclist sees them and awaits instructions before entering the intersection.
As we discussed in our September e-newsletter article, all flaggers should be trained and certified through one of the four acceptable pathways outlined in DelDOT’s memorandum on the topic. Indeed, as noted in the Delaware MUTCD (Part 6E), “All flaggers working on state-maintained roadways, except for emergency personnel and law enforcement officers, shall be certified by a DelDOT-recognized flagger certification program. All flaggers, except for emergency personnel and law enforcement officers, shall be required to carry a flagger certification card and photo identification on their person at all times.”
Finally, while Delaware is a so-called “non-plan state,” the Occupational Safety and Health Administration (OSHA) still addresses private sector contractors, and those contractors must ensure the safety of its employees, as well as subcontractor employees. OSHA inspectors have cited contractors in Delaware for failure to provide proper supervision, training, notifications, and execution of flagging operations, so it is essential that these operations are correctly planned and executed for the safety of all concerned.
All flagging operations have risks for flaggers, the road workers, and multi-modal road users that are reasonably mitigated by advance planning of the operation, good signage, flagging supervision, and good flagging practices by certified flaggers. Within intersections, the risks increase and supervisors should pay close attention to these requirements, plan in advance, and ensure that all flagging personnel are properly briefed before the operation begins.
Remember that we do have an ATSSA Certified Flagger training coming up on December 6th, so if you have public sector employees that can benefit from the training, be sure to sign them up before all the seats are full.
As our great Delaware safety champion, Joe Vattilana (Joe V), used to caution us, “take time to be safe.”
The Delaware T2/LTAP Center’s Municipal Engineering Circuit Rider is intended to provide technical assistance and training to local agencies and so if you have work zone safety concerns or other transportation issues, contact Matt Carter at matheu@udel.edu or (302) 831-7236.
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