Ontario Traffic Manual - Book 7 - 2. Temporary Work Zone Planning and Monitoring

Temporary Work Zone Planning and Monitoring

Section 2 describes the process of transportation management planning and monitoring in temporary work zones.

Addressing worker safety, highway user safety, mobility, and accessibility requires careful consideration that starts early in project development and continues through to project completion. Early identification of project site-specific issues and potential traffic impacts can mitigate safety risk before construction commences.

ATransportation Management Plan (TMP) consists of a coordinated set of strategies and work zone safety guiding principles designed to mitigate the impacts of work zone activities during the work period. Inclusion of these strategies can help achieve the fundamental principles for work zone planning, design, and operation.

The TMP includes up to five sub-plans:

Traffic Protection Plan (mandatory).
Traffic Control Plan (requirement of road authority).
Traffic Operations Plan (optional).
Public Information Plan (optional).
Incident Management Plan (optional).

TMP is used to define and communicate, through a clear, consistent, and structured process, a comprehensive project-specific plan for use by project stakeholders such as local road authorities, contractors, ministry staff, and the general public.

Since work zone impacts and issues vary, TMP must be developed and implemented to best serve the unique needs of each work zone. The scope, content, and level of detail of a TMP may vary based on the local road authority’s work zone policies and the anticipated work zone impacts of the project. The TMP is a living document and will evolve throughout the life cycle of the project.

Fundamental Principles for Work Zone Planning, Design, and Operation

The following fundamental principles, in Table 2.1, provide the basis upon which work zones should be planned, designed, and operated. Ideally, each principle below will be fully incorporated into work

zone design, however, since these principles are not always mutually exclusive, fully incorporating one

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principle may comprise another. Practitioners who plan, design, or operate work zones must therefore strike the appropriate balance.

Table 2.1 Fundamental Principles

PRINCIPLE

DESCRIPTION

Worker safety

The safety of construction workers within the construction zone.

Road user safety

The safety of motorists, cyclists, pedestrians, transit users and enforcement/emergency personnel travelling through the construction zone.

Mobility and accessibility

Highway user movement should be inhibited as little as practicable. When this principle is followed, speed changes, and differentials are minimal and traffic progression is maintained, thereby increasing safety. Accessibility and mobility for pedestrians and cyclists is an important consideration.

Communication and positive guidance

Highway users should receive pertinent information at the times and locations needed to make appropriate decisions (e.g. speed or lane changes). Equipping highway users with clear, consistent, timely, and relevant information can help them prepare for unusual circumstances when approaching and navigating the work zone.

Consistency and uniformity

All messages should be consistent, unambiguous, easily, and quickly understood, and should provide only necessary information. Work zone design across the province should be

kept consistent as practicable by following the guidelines in this manual.

Constructability

Projects should be planned, designed, and built as effectively and efficiently as possible to shorten the work duration and reduce cumulative risk exposure.

Transportation Management Planning Process

Figure 2.1 presents the process (steps) for developing and implementing a TMP. Practitioners should begin developing the TMP early in the project planning process and should update the Plan frequently throughout project design and construction. Detailed guidelines for each step in the process are included in the following sections.

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Figure 2.1 Transportation Management Planning Process

Collect Project Information (Step 1)

Table 2.2 presents examples of project information to be collected for the TMP, including references to Sections in the Manual where further information can be found. The level of detail required for the TMP will vary based on the scope of the project and requirements of the local road authority.

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Table 2.2 Examples of Project Information for TMP

CATEGORY

INFORMATION REQUIRED

SECTION

TMP roles

TMP team leader and team member roles and responsibilities.
Contact information for key personnel and stakeholders.

Project description

Project background.
Project location (area/corridor).
Project goals and constraints.
General schedule and timeline.

Roadway environment

Area type (urban or rural).
Highway type (freeway or non-freeway).
Cross-section (two-lane, multi-lane divided, or undivided).
Traffic volume (low volume or high volume).
Highway Design Speed.
Normal Posted Regulatory Speed (NPRS).
Operating Speed.
Presence of vulnerable highway users (pedestrians and cyclists).
Existing traffic operations (traffic controls, signal timing, signs).
Vertical profile and horizontal alignment (hills, valleys, and curves), sightlines, and visibility obstructions.
Other traffic data such as capacity, vehicle queues, vehicle type distribution, transit service, collision data (as applicable).
Information from other projects in the area to evaluate the combined impacts (if applicable).

3.2

Work zone description

Configuration of temporary conditions.
Location and length of work zone.
Duration of work.
Hours of work.

3.3

3.4

3.5

Identify, Assess, and Manage Risks (Step 2)

The level of planning and effort required in preparing a TMP for a work zone is dependent on the expected worksite hazards and risks.

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Assessing project hazards and risks is the process of:

Reviewing site-specific characteristics;
Identifying the hazards and risks; and
Consideration of the likelihood and consequences of each.

A risk assessment process should be undertaken during initial preparation of the TMP, and the outcome should be used to develop appropriate strategies for managing and mitigating risks.

Early identification and documentation of risks that may arise during a project acts as a preliminary filter to separate work zones that require in-depth planning and preparation from those that do not.

Examples of factors which may result in greater risk may include, but are not limited to, the following presented in Table 2.3:

Table 2.3 Potential Risk Factors

RISK FACTOR

DESCRIPTION

Speed

Higher speeds reduce the time a driver can recognize, inter- pret, and react to work zone conditions.

Lateral space

Workers are at greater risk of being injured by vehicles intrud- ing into the work space when they are closer to a live lane of traffic, especially at higher speeds.

Location of work

Workers are at greater risk in areas with limited escape routes such as on bridge structures or other confined areas.

Pedestrian and cyclist traffic

Pedestrians and cyclists are vulnerable highway users and are at risk if not accommodated adequately.

Project scope and duration

Longer duration work zones increase the amount of cumulative time workers and highway users are exposed to safety risks.

Anticipated traffic volumes

High traffic volumes increase highway user and worker expo- sure to safety risks due to the number of potential conflicts.

Time of day

Night time work presents challenges such as visibility and conspicuity.

Space restrictions (longitudinal)

Work zones are considered higher risk if standard lengths for component areas (Section 3.4) cannot be achieved due to space restrictions (e.g. driveways, side streets).

Sight line restrictions

Workers are at higher risk if adequate sight lines are not provided for drivers to recognize, interpret, and react to work zone condi- tions. Sight line obstructions may include horizontal and vertical curves (e.g. hills) or roadside obstructions.

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RISK FACTOR

DESCRIPTION

Observed safety issues

Determine if the project location has a high collision history under typical conditions, if stakeholders are aware of any exist- ing safety issues, or if any obvious safety issues were identi- fied during a site visit. Locations with existing safety issues are considered higher risk.

Inclement weather

Conditions such as fog, snow, rain, and heavy winds can affect sight distance and stopping distance for vehicles.

Intersections and driveways

Intersections and driveways may cause longitudinal space re- strictions (see above). In addition, intersections and driveways increase the number of movements and potential conflicts near the work zone.

Condition of highway surface

Highway surfaces in poor condition may affect driver maneu- vering ability and stopping distance.

Bus stops and bus lanes

Buses make frequent stops and may increase potential for con- flicts. Areas with bus service are more likely to have a higher pedestrian presence.

Vehicle types (e.g. trucks)

Large trucks have longer stopping distances and different sight lines than passenger vehicles.

Overall work zone risk should be assessed considering:

Level of risk for individual factors.
The number of contributing factors.
Potential interaction between various risk factors.

For example, a narrow lateral buffer space presents a greater risk when operating speeds are higher.

Consider Hierarchy of Risk Controls (Step 2a)

A hierarchical approach should be used when considering and evaluating the control of risk in work zones, starting with the most effective approach and justifying decisions for implementing less- effective measures.

The fundamental principles of work zone planning, design, and operation (Section 2.1) and Steps 1, 2, and 2b of the TMP process should also be considered in the evaluation, and trade-offs between principles should be documented.

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Table 2.4 provides a hierarchy of risk control measures and examples of strategies for each. Noting that certain strategies many not be available, practical, or feasible, many work zones will require a combination of these strategies to best mitigate risk.

Table 2.4 Hierarchy of Risk Control Measures

PRINCIPLE

DESCRIPTION

EXAMPLE STRATEGIES

1. Risk elimination (most effective)

Remove risk from work zone.
Eliminate highway user and worker interaction.

Full highway or ramp closure.

2. Exposure control

Reduce exposure to potential conflicts between highway users and workers.
Reduce number or proximity of vehicles travelling adjacent to workers.

Crossover.
Diversion.
Additional lane closure.
Rolling closure.

3. Positive protection

Use positive protection devices to physically prevent highway users from leaving travelled path.
Effective at protecting workers but may increase hazard to highway users.

Buffer Vehicles (4.5.1).
Barriers (4.5.3-4.5.4).
Vehicle arresting systems (4.5.5-4.5.6).

4. Behavioural and administrative controls (least effective)

Controls to manage highway user and worker behaviour.
Should be considered for all work zones even when higher-order controls are used.

Speed management techniques (3.6).
Traffic control devices (4.4-4.5).
Temporal work strategies (e.g., off-peak).

Assess Work Zone Impacts (Step 2b)

Impacts of work zone design and operations strategies developed in the TMP should be understood by both the practitioner and the road authority. These impacts will affect decisions regarding the proposed design and operations strategies. During project life cycles, the TMP must be revised according to these impacts and the hierarchy of risk control treatments (Step 2a).

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Examples of work zone impacts include:

Traffic impacts such as delays to motorists, queues, and congestion.
Impacts to other highway users such as pedestrians, cyclists, and transit.

In general, projects with higher risk, longer duration, and more disruptive configurations will require a detailed impact assessment, while others will require only a high-level impact assessment.

Develop Traffic Control Plan(s) (Steps 3, 4, and 5)

Select Relevant Layout (Step 3)

Section 6 of this manual contains layouts for work zone design, including decision matrices to assist with selecting the most applicable layout, given work zone requirements and characteristics outlined in Step 1.

The layouts are organized by the following hierarchical structure:

Develop Traffic Control Plan by Applying or Modifying Layout(s) to Address Site Specifics (Step 4)

Depending on the characteristics of the project work zone, a layout may be implemented without any modifications. However, work zones with greater risk (as determined in Step 2) may require

modifications to the layout. Additionally, multiple layouts may be involved in developing the TMP due to different stages of work.

For high-risk complex projects, qualified and experienced practitioners should develop customized Traffic Control Plans based on layouts but designed specifically for the site.

Develop Traffic Protection Plan (Step 5)

ATraffic Protection Plan (TPP) is required under Ontario Regulation 213/91, Section 4-5 for all projects:

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“Every employer shall develop in writing and implement a traffic protection plan for the employers’ workers at a project if any of them may be exposed to a hazard from vehicular traffic. The traffic protection plan shall specify the vehicular traffic hazards and the measures … to be used to protect workers; and shall be kept at the project and made available to an inspector or a worker on request.”

If the core TMP has been developed as outlined, practitioners should be able to transcribe much of the content for the TPP from the TMP, including the Traffic Control Plans and other information related directly to the vehicular traffic hazards and associated protection measures for their workers.

According to the Ministry of Labour, an effective TPP may include:

Assignment of roles and responsibilities for parties who may be exposed to traffic hazards.

Training standards.
Protective equipment requirements.
Inspection procedures.
Safe work procedures and practices.

Develop Additional Plan(s) (as required) (Step 6)

ATPP is required as part of the TMP for every project.

Depending on the type, complexity, and level of risk of the project, the following plans may also be used in developing the TMP:

Transportation Operations Plan
Public Information Plan
Internal Traffic Control Plan
Incident Management Plan

These Plans are described in the following Section.

Other Plans (If Required)

Transportation Operations Plan (TOP)

ATransportation Operations Plan (TOP) includes strategies used to mitigate work zone impacts using improved traffic operations and management techniques. Strategies include:

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Vehicle restriction strategies.

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Alternative traffic flow strategies.
- Improvements to the transportation network because of restrictions (signal timing modifications or detour routes).

Lessons learned from the past and/or recommendations previously made should be considered when developing a TOP.

Public Information Plan (PIP)

A Public Information Plan (PIP) includes actions and procedures for informing:

The travelling public;
The general public;
Area residences and businesses; and,
The local road authority about expected work zone impacts.

Communication method(s) best suited for the project should be considered. These methods include:

Public information centres;
Broadcast on radio and television;
Highway signs; and,
Social media.

The Plan can help warn drivers of upcoming work zones and provide information to drivers both pre- trip and enroute, allowing drivers to make informed decisions about the route to take and when to travel.

Internal Traffic Control Plan (ITCP)

An Internal Traffic Control Plan (ITCP) coordinates and assigns the flow of work vehicles, work equipment, and workers within the work zone to ensure worker safety and should include elements such as:

Highway user paths.
Work vehicle and equipment paths.
Ingress and egress points.
Storage and staging areas.

Incident Management Plan (IMP)

An Incident Management Plan (IMP) outlines priorities and procedures for detecting and rapidly responding to unplanned events to minimize impact on:

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The safety of workers and the public.
Mobility in order to restore traffic flow.

Following an incident, it is critical to document the events that initiated the incident so the TMP can be re-evaluated to determine if any changes are necessary.

Implementation and Monitoring
1. Obtain Approvals (Step 7)

Once the TMP and any required additional plans have been developed, approval must be obtained from all authorities having jurisdiction. The following steps should be taken to ensure the proper approvals have been received and notifications have been provided:

Ensure knowledge of all applicable regulations, permit requirements, and work restrictions.

Obtain the necessary approvals from the local road authority when:

Establishing a designated construction zone.
Posting reduced regulatory speed limits.
Using partial lane shifts.
1. Using portable or non-portable temporary traffic signals.
  1. Conducting traffic control with moving vehicles other than for setup or removal.
    1. Applying orange pavement markings.
      1. Deploying Portable Variable Message Signs (PVMS).
        
        Installing speed display signs.
        
        Using a mobile barrier vehicle.
        
        Applying a new technology.

Notify police, fire department, emergency medical services (EMS), transit authorities, road authority, and any other agencies which may be affected by the maintenance, construction, or other work activities.
Provide notice to the public of the works planned or in progress (as outlined in the Public Information Plan) through local media and signage.
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Inform occupants of abutting properties, either orally or by written notice, of parking prohibitions or access limitations (as outlined in the Public Information Plan).

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Discuss speed control and enforcement with the police and road authorities.

Implementation (Step 8)

Implementation of plans associated with the TMP should be completed as outlined in the TMP and additional plans, and according to all approval conditions from authorities having jurisdiction.

Methodology for the setup and removal of traffic control devices, utilized in the Traffic Control Plan, can be found in Section 4.

Monitoring (Step 9)

The ongoing inspection and monitoring of work zones are important to ensure that the appropriate traffic control devices are in the appropriate place at all times (as outlined in the TMP and Traffic Control Plan) and that the TMP strategies are effective in serving their purpose. TMP should be updated as adjustments are required, based on observations during monitoring.

Guidelines for inspection and monitoring can be found in Section 4.