Guidance for Safer Temporary Traffic Management - Issued 2002

Contents

Foreword

1. Introduction

2. Glossary of Terms

3. Health and Safety Issues

4. Health and Safety Responsibilities

5. Planning and Implementation of Traffic Management Operations

6. Workforce Issues

7. Working in Hours of Darkness

8. Traffic Management Equipment

9. References

10. Appendix A - Associated Documents

11. Appendix B - HSE Booklet ' Five Steps to Risk Assessment '

12. Appendix C - Incident Management

13. Appendix D - Assessment of Condition of Traffic Signs

This document, Guidance for Safer Temporary Traffic Management, is published on behalf of the Highways Agency, Health & Safety Executive and County Surveyors Society by TRL Ltd.

Hard copies are available from info@trl.co.uk. Price £35 including postage.

 

Guidance for Safer Temporary Traffic Management - Issued 2002

Foreword

The live carriageway of almost any road is a hostile environment in which to work. In particular, during the periods when traffic management arrangements are being set up, changed, maintained, or removed, operatives may need to work on the live carriageway without the protection afforded by the fully installed Chapter 8 layouts. It is therefore in the interests of both road users and the workforce that temporary traffic management operations are designed, planned and implemented in accordance with a safe system of work. The purpose of this document is to promote such a system.

All major elements of the highway industry, including Highway Authorities, Contractors, maintenance agents, police, health and safety practitioners and enforcers, and highway research specialists, were represented in the group which has produced this document. It is recommended as a framework for the Quality Plans and method statements of all organisations involved in the planning or implementation of temporary traffic management operations.

Contributors to the Publication

Foreword

1. Introduction

1.1 Background

In 1994, the third edition of "Notes for Guidance on Safety at Road Works" was published by the Department of Transport and the County Surveyors Society (CSS). The working group responsible for this document comprised personnel from the Department of Transport, County Surveyors Society, and Health and Safety Executive, with contributions from the Transport Research Laboratory.

That document pre dates the Construction (Design and Management) Regulations 1994 (CDM). The concept of risk assessment was introduced but not developed. The regulations requiring risk assessment together with the advent of the CDM Regulations has provoked fundamental re-appraisal of responsibility for safety within the highway industry.

In recent years, roads and highways have experienced both technical and operational developments, in addition to the continuing growth of traffic levels. There has been greater use of mobile lane closure operations, more extensive use of night-time only working, the development of narrow lane and tidal flow traffic management techniques, and more four and five lane carriageways. All such developments require ever increasing flexibility, sophistication, and specialist knowledge and skill from those given responsibility for managing and maintaining highways, both at the planning stage and in the implementation of temporary traffic management arrangements at road works. It is against this background that the highway industry has responded by creating a series of Quality Assurance Highway Sector Schemes for Traffic Management Contractors.

In view of all these developments the Highways Agency and the CSS resolved to review their document, "Notes for Guidance on Safety at Road Works". A Review Group comprising representatives from all elements of the highway industry was assembled to produce a revised edition of that publication and this document is the result.

1.2 Terms of Reference

The terms of reference for the Review Group were:-

The revised edition of "Notes for Guidance on Safety at Road Works 1994" shall be known as "Guidance for Safer Temporary Traffic Management".

1.3 Use of Document

The document includes information on various inter-related topics, and aspects of particular issues may be covered in different places, therefore sections should not be read in isolation.

1.4 Associated Documents

Section 9 gives a list of all publications referenced in this document. These documents are continuously being updated and care should be taken to refer to the latest version.

There are several documents that provide guidance about traffic management at road works and associated matters. These documents are listed in Appendix A, which also provides information about their role and application and indicates how they relate to each other and to this document.

1. Introduction

2. Glossary of Terms

ACAS The Advisory Conciliation and Arbitration Service.
Agent See Section 4.2.
Central reserve An area separating the carriageways of a dual carriageway road
Client The organisation for which the work is being carried out e.g. the Highway Authority.
Contract specification i) Manual of Contract Documents for Highway Works: Volume 1: Specification for Highway Works or as specifically required in the contract documents,
ii) Contract specific appendices,
iii) The Contract Drawings
Contractor This is a general term for an individual or organisation with whom a contract is made and therefore has various meanings within the document.
Designer See Section 4.3.
Frontager An individual or organisation occupying a property which faces onto a highway.
Health and Safety Plan See Section 3.4 and Appendix B.
Highway Authority The organisation responsible for the highway under the terms of the Highways Act 1980, Sections 1 to 3.
Incident An event that warrants a report or action. See Sections 3.5, 5.4.21 and Appendix C.
Live carriageway Lane(s) or carriageway(s) carrying traffic other than site traffic.
Method Statement A document which details how particular tasks will be carried out - See Section 5.7.2
Personal Protective Equipment (PPE) See Section 6.6
Planning Supervisor See Section 4.4
Principal Contractor See Section 4.5
Project Designer See Section 4.3
Risk Assessment See Section 5.7.1
Safety Zone An area between the works and moving traffic kept clear of all obstructions and personnel to help to secure the safety of site workers.
Site Supervisor See Section 4.6
Special Signs Authorisation An Authorisation of a traffic sign issued under Section 64 of the Road Traffic Regulation Act 1984.
Tidal flow layout A temporary traffic management layout which includes a reversible traffic lane.
Traffic Regulation Order Order made by the appropriate Authority under the Road Traffic Regulation Act 1984
Traffic Management Contractor The Contractor or sub-contractor responsible for the implementation, maintenance and removal of the temporary traffic management
Traffic Management Designer See Section 5.3
Type Approval Statutory Type Approval issued by the Highways Agency in accordance with the Road Traffic Regulation Act 1984 and Traffic Signs Regulations and General Directions 1994.
Type A works These are those works which are allowed to remain in operation in all traffic flow and visibility conditions.
Type B works Works which are allowed to remain in operation when the traffic demand is less than the available carriageway capacity when the works area is in place, and visibility is good.
Type C works Type C works are similar to Type B works, but traffic signs used are essentially vehicle mounted, although some static signs may also be required.
2. Glossary of Terms

3. Health and Safety Issues

This section gives a summary of the key issues which duty holders should consider in order to comply with health and safety law. An outline of the responsibilities associated with particular roles is given in Section 4.

Road works are regarded as a 'construction' activity in terms of health and safety legislation. This document focuses on traffic management issues rather than the works themselves although the two are clearly closely linked and other aspects of the work must be borne in mind at all times. Although the key health and safety issues are concentrated in this section it is essential that safety is addressed in ALL aspects of traffic management.

Working on live roads carries a potentially high risk. Drivers on these roads do not expect to encounter standing or slow moving vehicles, pedestrians or people at work. In addition, the personnel involved may have little protection from oncoming traffic. Hence the work must be properly managed to ensure that the risks are as low as is reasonably practicable.

Motorways and all purpose trunk roads are regarded, from a health and safety point of view, as higher risk than minor roads. High speed trunk roads, particularly motorways, and class A roads have a lower accident rate in normal use, however because of their high speed potential they can present a greater risk when obstructed by road works unless adequate precautions are taken to ensure that the travelling public is warned of the presence of the obstruction.

Although the potential consequences of an accident on heavily trafficked high speed roads are more severe, the risks involved in working on lower category routes must not be ignored. Commonly such roads will not meet current sight distance and design standards and in many cases the available carriageway width will be limited.

3.2 Legal Issues

The responsibility for an accident involving members of the public was apportioned by the Crown Court in 1990 (The Derby Case) between the main contractor, the sub-contractor and the authority responsible for the highway. It was established that site safety is the responsibility of all those having control of the site and that criminal responsibilities for safety cannot be abrogated by contractual arrangements. Subsequent case law (Associated Octel Case) has confirmed this principle.

The Health and Safety at Work etc. Act 1974 (HSWA) and the regulations made under it, set out the legal framework for occupational health and safety. Under the Construction (Design and Management) Regulations (CDM) 1994, Clients, Planning Supervisors, Designers and Contractors, have legal duties to plan, co-ordinate and manage health and safety throughout all stages of the project. CDM goes hand in hand with the Management of Health and Safety at Work Regulations 1999 (MHSW) and the Construction (Health, Safety and Welfare) Regulations 1996 (CHSW). Good management of the work is essential to prevent accidents and ill health.

Section 3 of the Health and Safety at Work etc. Act 1974 (HSWA) places a duty on employers to ensure that the health and safety of those not in their employ, but affected by their undertaking, is maintained. CDM amplifies the requirements of Section 3 of HSWA with regard to its application to Designers of 'structures' as defined within the Regulations. Although in many instances traffic management works will fall outside the definition of 'structure', adoption of the principles enshrined within CDM will enable those involved in the design process to fulfil the duty placed on them by Section 3 of HSWA.

It is essential that the principles of the CDM Regulations are recognised. A well-designed traffic management scheme, by the correct application of Chapter 8, will have minimised the risks associated with the traffic environment. The Health and Safety Plan (see Section 3.4) will acknowledge this environment but will only require further elaboration for exceptional risk. Designers always have a duty under the CDM Regulations to address the risks associated with their design. A competent Principal Contractor will be deemed to be able to address the practical aspects of the traffic management using procedures to implement, maintain, and remove the traffic management at the conclusion of the works. Exceptional circumstances will require identification in the Health and Safety Plan and appropriate development by the Principal Contractor.

MHSW requires employers to make an assessment of the risks to the health and safety of those they employ and others who may be affected by the work being undertaken. The assessment should identify the measures needed to comply with all relevant health and safety legislation. Arrangements need to be implemented to ensure the effective planning, organising, controlling, monitoring and reviewing of the measures put in place to secure health and safety. CHSW sets out the health and safety standards to be achieved on site. Safety in any work place is likely to be maximised if those employed do not become unnecessarily tired. Working hours are governed by the Working Time Regulations 1998.

3.3 Risk Prevention in Design

When developing traffic management proposals the following hierarchy of risk prevention and protection must be considered:

If this is not possible,

If this is not possible,

The selection of design solutions for traffic management schemes must take account of the significant health and safety issues likely to be encountered during their implementation, maintenance and removal. Risk assessment must be an integral part of the design process. Risk assessment is the process of identifying project-specific hazards inherent within the design. Significant hazards should be determined and, where possible, the design should be altered to avoid, or mitigate, the consequences of the hazards. The relevant HSE publication 'Five steps to risk assessment' is reproduced in Appendix B.

Consideration of the following issues is particularly relevant to traffic management:

Designs may be such that they require particular attention by the Contractor(s) when considering their safe method of installation or removal. Sufficient information, regarding significant residual risks, needs to be included with the design to alert others to the risks inherent in the design.

The information provided should be explicit, not implied (thus avoiding unnecessary duplication of work, misinterpretation, error or oversight). Such information may include:

When initial planning of the road works and temporary traffic management scheme is being undertaken it may be useful to consult the Highway Authority accident records. The impact of the works may change the type of use the road receives and as a result past accident records may not reflect the changed circumstances. However accident records are a source of information in relation to the risks inherent within the site and as such may influence the placing of cross-overs and signs, the issue of Traffic Regulation Orders and the amount of warning required to ensure an adequate level of safety for the site. Consideration should also be given to the condition of the existing road surface if the accidents have resulted from skidding problems as this factor will affect safe stopping distances.

Care must be taken to ensure that plant and personnel do not obstruct or intrude into areas marked for the passage past the works of vehicular traffic or pedestrians. Slewing vehicles, cranes and excavators must be carefully sited within a defined working area to ensure that when operating, no part of the machine or its load may interfere or collide with passing traffic. Consideration should be given to the operation of plant close to traffic that might cause a sudden movement due to the driver's fear or perception of collision.

Plant or materials should not be left unnecessarily on the hard shoulder, central reserve, verge, or other roadside areas outside the works area where they could be a hazard to vehicles that, for whatever reason, fail to keep to the carriageway.

The needs of vulnerable road users, the disabled and blind or partially sighted people must be carefully considered when delineating the areas reserved for the public.

3.4 Health and Safety Plan

The Health and Safety Plan, a requirement under CDM Regulations, provides the health and safety focus for the project. It should be a working document and be kept up to date at all stages of the project. For sites where CDM Regulations do not apply, the process of risk assessment is still necessary.

3.4.1 Pre-tender Health and Safety Plan

The Planning Supervisor should ensure that the pre-tender Health and Safety Plan is prepared in sufficient time that it is available for Contractors tendering or making similar arrangements to carry out or manage work. The pre-tender plan should include:

3.4.2 The Health and Safety Plan for the construction phase

The traffic management measures should not be implemented until the Health and Safety Plan has been developed to include an assessment of the risks associated with the proposed construction activities and the control measures that are being adopted to remove or mitigate such risks.

The plan developed by the Principal Contractor is the foundation on which health and safety management of the work is based. It should include:

3.4.3 Health and Safety Plans for term maintenance contracts

During the pre-tender stage of a term maintenance contract, the Planning Supervisor will need information from the designers for compilation of the safety plan. This must be developed by the Contractor with method statements for the various categories of work and traffic management involved.

Work during the term contract is instructed by 'works orders', each requiring elements of both engineering and traffic management design. Each works order will require a risk assessment from the person specifying the work to be done and this in turn will require a response from the Term Contractor. This will be either the implementation of 'generic risk assessment' based method statements which will apply to many of the work situations having similar requirements, or the development of a specific method statement (see Section 5.7.2).

There may be occasions when the Planning Supervisor will need to continue to oversee the coordination of designers during a term contract, a duty required by the Regulations for design work ongoing after the award of the contract. The essential requirement is however for the person responsible for issuing the 'works order' to always consider the health and safety implications of the work, the Planning Supervisor role being most influential in the initial phases of the Health and Safety Plan and its subsequent development by the Principal Contractor.

3.5 Reporting of Incidents

The effective analysis of incidents and accurate assembly of information is essential if long term monitoring is to be meaningful. Incident reports leading on to appropriate levels of investigation are the basis for all further analysis. The Highways Agency requires incident reports for trunk roads and motorways and it may be considered good practice to carry out these measures on all classes of road. See also Section 5.4.21 and Appendix C. The police must be informed of all road accidents which involve an injury occurring on that section of highway open to public use and, on behalf of HM Coroner any deaths occurring on site.

Under the Reporting of Injuries, Diseases and Dangerous Occurrences Regulations (RIDDOR), 1995, basic reports, using form F2508, are required by the HSE for certain categories of accident and incident.

The European Charter on Human Rights (ECHR) includes the right not to be required to self-incriminate and therefore in any post-incident de-brief/record etc potential offenders/ defendants ought not to be required to incriminate themselves.

3. Health and Safety Issues

4. Health and Safety Responsibilities

4.1 Introduction

This section gives a summary of the key health and safety responsibilities of particular roles associated with traffic management at road works. As noted in Section 5, it is recognised that some contract forms do not refer to traditional roles. For instance, for works promoted by the Highway Agency the Managing Agent or Project Consultant will carry out the role of Client Agent. The management structure and range of disciplines employed within a Highway Authority can make the distinction between client, planning supervisor and designer unclear. There is a need to ensure that the various roles within an organisation are clearly identified and recorded. In all such cases it is essential that it is clear who carries responsibility under Health and Safety legislation.

4.2 Client

A client is any person or organisation for whom a construction project is carried out.

Clients for highway works include:

Clients can appoint an Agent to carry out their CDM duties, but they retain their other duties, such as ensuring the health and safety of others from risks arising from the undertaking under Section 3 of HSWA. In appointing an Agent, the Client must be satisfied that the person or organisation has the competence to comply with Client duties. A declaration identifying an Agent to act for the Client should be made in writing to the HSE, and for notifiable projects can conveniently be made at the same time.

Where a Client appoints an external Project Manager to form contractual relationships between Designers and/or Contractors, the health and safety responsibilities laid down in CDM remain with the Client. These responsibilities only pass to Project Managers when they are formally appointed as Client Agent.

Where the CDM Regulations apply, the Client must appoint:

The Client must ensure all appointees are competent and will allocate sufficient resources to the project to comply with their health and safety duties (see Section 3). The Planning Supervisor should be appointed as early as possible during the design and planning stage of the project before decisions on time scale, phasing and diversion routes are made. Planning Supervisors need to be aware of the range of measures available and their interface with the main works to ensure that risks to health and safety have been minimised in the design process.

The Client should provide the Planning Supervisor with any project specific information, which is either already available or can be obtained by prior investigation, that is relevant to the functions of the Planning Supervisor. Relevant information may include:

Before work commences the Client must ensure that a Health and Safety Plan (see Section 3.4) has been prepared and developed by the Principal Contractor detailing arrangements for the management of the work including:

The client may consider it appropriate to require the Principal Contractor to appoint an individual, and deputy, who has responsibility for safety issues including the supervision and monitoring of subcontractors where the traffic management is sub-let.

4.3 Designer

The definition of Designer is wide and encompasses anyone who is involved in design, production of drawn or written information, specification or choice of materials or selection of working procedures used during construction. Traffic management Designers include:

Designers have a duty to consider the health and safety implications of the choices and decisions they make during the design process (see Section 3). They should seek to:

Project Managers who decide or revise procedures will have Designer liabilities as will a Client who dictates design solutions that are to be adopted as part of a contractual arrangement.

4.3.1 Subcontracting of design and appointment of Contractors

Designers who appoint other Designers to complete part of the design must be satisfied that those appointed are competent and have adequate resources to complete the design work bearing in mind the requirements for health and safety and control of risk. Similarly where Designers appoint Contractors they must be satisfied that the Contractor is competent and has sufficient resources to complete the works with due regard to the requirements for maintaining health and safety.

4.3.2 Co-operation with others

Co-operation between Designers and also between the Planning Supervisor and Designers, is required to ensure that all members of the project team are aware of the various discipline interfaces and that the overall design has been completed with due regard to the individual components and how they interact. The Planning Supervisor requires information to allow a Health and Safety Plan to be prepared and following its issue the Principal Contractor must develop the plan to demonstrate the measures proposed for dealing with residual risks. The traffic management design is part of this process and the Designer may provide information to other Designers, the Planning Supervisor or the Principal Contractor. Co-operation and liaison with the police are important, particularly for high risk or unusual works.

Co-operation between Designers is essential. Where the design of traffic management schemes are completed separately from the design of the main works, the distribution of design information between the various Designers is vital to ensure that:

When the traffic management works are to be designed by a Contractor during a tender period then co-ordination and provision of information is vital as design time is constrained and the Contractor's Designers may need to assimilate information in a short space of time.

Co-ordination and co-operation between Designers should be second nature and normal procedures including design team meetings and use of document issue and register proformas can be used to demonstrate compliance.

4.4 Planning Supervisor

One of the functions of Planning Supervisors is to ensure that due regard is taken of health and safety during the design phase of a project and that information on residual risks is documented and issued initially to the Contractor and finally to the Client.

4.4.1 Duties

The extent of the duties of the Planning Supervisor will vary depending on the scale and form of the traffic management works. They should ensure that:

The Planning Supervisor must review the design documentation produced for the works including requirements for traffic management. The principles of risk reduction and control must be considered in the design of both the main works and any associated traffic management proposals (see Section 3).

4.4.2 Advice to Client

The Planning Supervisor must have sufficient experience to be able to advise the Client regarding the competency of Designers and Contractors to complete their duties in relation to the project in hand. The assessment of competency is not restricted to health and safety issues but incorporates the normal range of duties undertaken by the relevant parties. In addition, advice may be requested with regard to adequacy of resources that may require assessment of both design and works programmes and associated manpower schedules.

4.4.3 Health and Safety Plan

The planning supervisor is responsible for ensuring that the pre-tender Health and Safety Plan (see Section 3.4.1) is prepared in time so that it is available for Contractors tendering or making similar arrangements to carry out or manage work. The Client for the project is required to ensure, so far as reasonably practicable, that the Health and Safety Plan has been developed by the Contractor before allowing work to start on site. In practice he will often place a contractual duty on the Planning Supervisor to complete an assessment of the plan to ensure its adequacy.

4.4.4 Project Notification

Where the project is notifiable, the Planning Supervisor should ensure that written notification, containing the specified information, is sent to the Health and Safety Executive (HSE) as soon as practicable after their appointment. Ordinarily, initial notification is issued early in the design stage followed by an update once the identity of the Principal Contractor is known. Where the design or implementation of traffic management schemes is completed by sub-contractors, the identity of the sub-contractor should be included in the notification. It is not a requirement for the sub-contractors to sign the project notification, but a copy must be displayed on the site.

4.5 Principal Contractor

Before starting work, the Principal Contractor must develop the pre-tender Health and Safety Plan so that it:

As much as possible of the Health and Safety Plan covering work on site (including traffic management) should be developed before any work begins. In particular, the procedures and arrangements that are applicable to the generality of the work and early work packages, including the initial setting out of any traffic management system. Work on site should not start until the Client has given confirmation that the plan is adequate.

As well as considering the health and safety of persons at work on the site, the Principal Contractor and other Contractors should not put the health and safety of members of the public at risk.

4.6 Site Supervisor

This is not a role recognised in the CDM Regulations, however, some organisations will appoint the 'Resident Engineer' as Site Supervisor for the duration of the works.

The Site Supervisor must work closely with the Principal Contractor and Planning Supervisor to ensure that the traffic management systems implemented actually work in practice.

The Site Supervisor must ensure that his/her team are medically fit, adequately trained, and familiar with the risks associated with working at road works sites. The Site Supervisor must also ensure that their team comply with all the Principal Contractor's site safety rules and safe systems of work.

4.7 Contractor

Contractors, including the Contractor whose responsibilities cover traffic management, must cooperate with the Principal Contractor. The duties placed upon Contractors, including all subcontractors, under CDM support those of the Principal Contractor. Co-operation between Contractors is essential to:

The development of the Health and Safety Plan and its effective implementation depends upon the flow of information from Contractors to the Principal Contractor. Risk assessments under MHSW and other legislation should be undertaken and safe systems of work devised and any relevant information passed to the Principal Contractor for inclusion in the plan.

Employers must ensure that their employees are medically fit (see Section 6.2), adequately trained and are familiar with the risks associated with working at road works. They must provide appropriate personal protective equipment (PPE) and ensure it is worn (see Section 6.6)

4. Health and Safety Responsibilities

5. Planning and Implementation of Traffic Management Operations

5.1 Roles and Tasks

There are a number of tasks which need to be undertaken in the course of the planning, design and implementation of temporary traffic management arrangements. Traditionally these tasks have often been associated with certain roles carrying particular job titles. It is recognised that there is increasing variation in the arrangements and forms of contracts relating to highway works and that reference to traditional roles may not always be appropriate. When tasks are allocated, it is essential that the person or organisation responsible for each task is identified, and that satisfactory completion of each task is recorded. This is particularly important for tasks highlighted in Health and Safety responsibilities (see Section 3).

Although health and safety legislation allows either individuals or organisations to fill certain designated roles, where an organisation is named, eg as planning supervisor, in accordance with the Construction (Design and Management) Regulations the management system should identify individuals who will fulfil the role.

Figure 1 and Tables 1 to 3 at the end of Section 5 identify the key tasks and the links and interactions between them. The links are common to all temporary traffic management design. For some schemes, temporary traffic management will only apply to tie-in details or discrete phases of the work. In others, traffic management considerations will affect the entire concept underlying the implementation of the project. Responsibility for the detailed traffic management design may be incorporated in a traditional contract requiring the Contractor to accept or propose a suitable solution, or be passed on, as in a design and build project. In either case, the responsibility resting upon the person or organisation undertaking the detailed traffic management design remains the same, and the designers will need the appropriate skills and expertise.

For some applications, the detailed traffic management design will be seen as complementary to the project design, whilst for others, the two will be linked as a composite design approach. In either case, these notes should be seen as providing the essential guidelines to a successful outcome of the project.

5.2 Introduction

Within this section, four distinct aspects of temporary traffic management are considered; design brief, project design, detailed traffic management design, and operation. The complexity of traffic management required varies from scheme to scheme, but the primary objective is always:

To maximise the safety of the workforce and the travelling public.

The main secondary objective is to keep traffic flowing as freely as possible.

Project Designers need to be conscious of these objectives in general and with the temporary traffic management requirements of the design brief in particular.

It is vital that risk assessments are carried out at all stages of the development of the project bearing in mind the potential hazards to the workforce and the public. The risk assessments will need to consider the hierarchy of risk prevention in design as set out in Section 3.3.

The associated project risk assessments will determine the complexity of the traffic management required. The final traffic management design will see the implementation of the project risk assessment process translated into working drawings incorporating the fundamental principles embodied within Chapter 8 of the Traffic Signs Manual (see Section A.1.4). There will be occasions when 'non-standard' solutions are required and in these circumstances, the principles of Chapter 8 are used as a basis of design. Consultation with the local police will be necessary where departures are extensive and approval will need to be given by the Highway Authority.

It should not be assumed that this guidance document applies only to major temporary traffic management operations, and is inappropriate for minor works. All temporary traffic management operations should be rigorously designed, planned and implemented, irrespective of scale. However for minor works, it may be more practical to apply the principles contained within this document to produce generic designs and method statements which are appropriate for specific sections of highway and operations.

It is not intended to reproduce or re-write guidance that is more than adequately given in other documents, in particular the requirements of Chapter 8. The text of this section provides guidance relating to key temporary traffic management tasks starting with the design brief and finishing with the removal of the temporary traffic management. Where further guidance or mandatory requirements are available, the appropriate references are given.

5.3 Preparation of Design Brief

It is in the preparation of the design brief that the first decisions about the safe management of the site are made. At this stage the form of contract should be determined and consequently the responsibilities that each participant in the project will fulfill. If the use of the lane rental form of contract is being considered the periods required to complete the work should reflect the need to operate safe systems of work which may require additional time.

The design brief should allow sufficient time for the subsequent design and implementation phases of the project.

A risk assessment will need to be carried out at this stage. The relevant Health and Safety issues including roles and responsibilities are described in Sections 3 and 4.

There will need to be consultations with the interested parties. These are given in the following subsections.

5.3.1 Highway Authority (and/or their agents)

In many cases, the Client will also be the Highway Authority, however, this will not always be the case. The Highway Authority may impose specific requirements and be aware of constraints that will have a bearing on the management of the site. These may include the following:

5.3.2 Adjoining Highway Authorities

In many cases, the work may have an impact on an adjoining Highway Authority's network. In these instances agreement will need to be reached on signing, diversion routes etc with the adjoining Highway Authority and/ or their agents.

5.3.3 Emergency Services

In many cases, the police/fire/ambulance will need to be aware of the planned works, site welfare arrangements and access to the site. In certain circumstances, there may be other organisations that will need to be involved in the planning of the works. These may include the coastguard, lifeboat crews and mountain rescue teams etc. Discussions should take place with the principal breakdown organisations to determine the extent of their involvement.

The police will need to be involved in the planning of the works. This will include:

Other emergency services:

5.3.4 Adjacent premises and works

The extent and level of consultation (eg letter drops, meetings, etc) will depend on local land use patterns. The following may need to be considered.

5.3.5 Statutory Undertakers

On some schemes there will be a need to co-ordinate the work of statutory undertakers related to the scheme. This will include programming of temporary traffic management and arrangements for the statutory undertaker's contractors.

Requirements to protect or divert apparatus should be considered as well as access to the site for supply/ emergency work.

5.3.6 Customers/Road users

For prolonged works in urban areas, consider (a) establishment of forum of road users, frontagers and businesses, also (b) existing information to determine the needs and additional requirements of vulnerable road users and special needs groups.

5.4 Project Design - led by 'Project Designer'

The project design will be built upon the design brief and develop the design to the implementation stage, including further consideration of risk assessment. On smaller schemes this may happen concurrently with the development of the design brief. The design should embody the hierarchy of risk prevention set out in Section 3.3. In all schemes the designer should consider the method of traffic management to be employed as an integral part of the design.

Because each site is unique, project designers should visit the site to identify special features that may bear on the operational safety of the work.

Amongst issues to be considered are the following:

5.4.1 Site information

There is a considerable stock of existing information about the site that may help in planning the works. This should be gathered, and where appropriate, passed to those responsible for the detailed traffic management design and the traffic management operation. This could include:

5.4.2 Programming

The detailed programme is usually developed during the planning of the construction works. However, the Designer should consider the need for a realistic programme when establishing contract length and consider constraints and closedowns and ensure adequate allowance is made for:

5.4.3 Minimise traffic disruption

In planning works the impact on the road user should be assessed. The desire to reduce disruption can often be in conflict with the need to provide a safe site which is the paramount consideration. An assessment of the likely delay and disruptions should be considered in relation to working times, route and area wide signing strategies. Consideration should also be given to other planned works including planned works notified to them by statutory undertakers.

5.4.4 Use of space

Space on road works sites is often at a premium, particularly where there is a need to maintain traffic movements. In designing a scheme consideration should be given to ensuring that the construction process can be carried out in a safe manner. In particular, the following should be considered:

5.4.5 Safety Zones

The design of the scheme should allow sufficient space for a safety zone which provides both a longitudinal and lateral safety clearance between the working space and moving traffic.

Where the road width is so restricted as to prohibit the provision of the appropriate sideways clearance and diversion of traffic would be impractical, traffic speeds must be reduced to less than 10mph and an agreed safe method of working imposed on the site (see Departmental Advice Note TA 63, Convoy Working).

5.4.6 Use of edge protection/temporary widening

This may be needed as a temporary measure where lane widths are narrow, or where turning vehicles may cause over-run problems. If required, the Designer should;

5.4.7 Use of narrow lanes

Temporary narrow lanes may be required due to constraints on space. Before deciding on lane widths, the Designer will need to take account of the practicality of installing narrow lanes and the impact of their use, for example, on wide loads, winter maintenance, cyclists and equestrians (see Section 5.4.14). The goods vehicles trade associations and the local police will need to be consulted regarding the implications/arrangements for narrow lanes arising from abnormal loads. In some cases provision may need to be made for abnormal loads to park and wait to pass through the works during off-peak hours. Edge of carriageway factors (eg the location of emergency telephones) should also be considered (Section 5.4.6).

Guidance on temporary road markings and the treatment of existing permanent road markings is given in Section 5.5.6.

5.4.8 Use of temporary safety barriers

Where it is evident at the design stage that temporary safety barriers will be necessary to protect the workforce or road users, their use should be specified as part of the design. The Designer should take account of the need to flare approach lengths of barriers away from the oncoming traffic. The implications arising from the use of temporary safety barriers on the emergency services/wide loads and the duration of the works are other factors that should be considered. Designers also need to take into account speed limits and the degree of deflection which may occur in the event of an impact. In determining whether to include these barriers, the Project Designer needs to undertake a risk assessment of the situation.

5.4.9 Sight Lines

Sight lines need to be considered from both the traditional highway design perspective where the road users' needs are considered, and also from the operatives' point of view (eg the design of works access/egress.) The Project Designer should ensure that layouts consider the sight line requirements from both points of view and endeavour to ensure that provision of forward visibility and signing does not compromise the operatives' safety.

5.4.10 Routes for emergency vehicles

Detailed consultation arrangements have been outlined inSection 5.3.3 which should be undertaken prior to the design stage. During design it is important to continue this consultation and ensure satisfactory arrangements are incorporated into the design for, in particular, availability of route(s) through or around the works, and communication arrangements.

Consideration should be given to emergency access to all parts of the works area and highway which are subject to temporary traffic management should a carriageway be blocked and queueing occurs.

5.4.11 Works area access/egress

Where possible, access/egress to the works area should be considered at the design stage and the following should be considered:

5.4.12 Routes for site vehicles

Routes for vehicles to the site and through the works can create significant problems. Access is required for works vehicles and plant, delivery vehicles and site staff's vehicles. The consideration of how these vehicles will access the site can have a significant impact on the adjoining network, and on high speed roads it is a fundamental element of the design process. In particular, the following should be considered:

5.4.13 Routes for diverted vehicles

Where diversions are necessary, the routing of diverted traffic should be planned to ensure that significant problems do not occur. This should include:

5.4.14 Pedestrians, cyclists and other vulnerable users

Where pedestrians, cyclists, equestrians and other vulnerable road users are affected by road works, detailed consideration, including, where appropriate, consultations with those affected, should be given to minimising the impact on them and ensuring suitable alternatives exist. This will include:

5.4.15 Material storage and deliveries

On most construction sites the delivery, storage and access to materials can cause concern. On road works sites with the inherent constraints on space, detailed consideration needs to be given during design to ensure that materials are safely delivered, stored without encroaching into safety zones and can be accessed without undue difficulty. Access and egress to the site has been considered in Section 5.4.11. Constraints on the timing of deliveries may need to be considered at the design stage to ensure that materials can be safely delivered. Particular attention will also need to be given to the storage of materials that are hazardous to health through Control of Substances Hazardous to Health Regulations 1999 (COSHH) assessments.

5.4.16 Safe working hours

When determining the site working hours consideration needs to be given to factors which can affect the work force, road users and local residents. Hours worked are governed by the Working Time Regulations 1998 (see Section 6.5). Traffic volumes may dictate 'off peak' or night working, although it should be borne in mind that construction work can cause noise nuisance. If night working is to be used, the welfare requirements for all involved in the project should be considered. Section 7 deals with issues relating to working in hours of darkness.

The design documentation should clearly indicate any constraint upon working hours and state the tasks to which the constraints apply. Traffic management activities may be possible at times when construction tasks are prohibited. Consideration should be given to the impact of constrained working hours on lane rental options.

5.4.17 Vehicle recovery operations

The Designer should determine the extent of the vehicle recovery operation. Advice on the provision of vehicle recovery is given in Volume 1 of the Trunk Road Maintenance Manual, and in Section NG120 of the Notes for Guidance on the Specification for Highway Works. Issues which need to be considered include the number and siting of the recovery vehicles, communication systems, the siting of drop off points, facilities provided (toilets, lighting, etc), in particular for vulnerable vehicle occupants, and also the system for identifying vehicles in need of recovery (CCTV/ patrols). In addition, a regime to ensure compliance with contractual requirements should be specified. Agree police role and communication details, particularly with regard to procedures for dealing with abandoned vehicles.

5.4.18 Intelligent traffic systems (ITS)

Where permanent CCTV, Variable Message Signs (VMS) and traffic information systems are available, consideration should be given to their use subject to consent by the local police.

5.4.19 Speed Control

Temporary traffic management arrangements may lead to lower geometric standards or the loss of safety features such as the hard shoulder or central reserve safety barrier. In such circumstances, it will be necessary to ensure that the speed of traffic is appropriate.

A speed control strategy should be developed in liaison with the police who are responsible for enforcement of traffic regulations. Consideration of the strategy should include,

5.4.20 Temporary Traffic Regulation Orders

The use of Temporary Traffic Regulation Orders can contribute to the safety of operations. They should be used to assist motorists in anticipating lower geometric standards in the temporary traffic management arrangement and to increase safety for the workforce. Discussions with the Highway Authority should establish how long they take to arrange, consultation processes, signing standards and payment of Highway Authority costs.

Consideration should be given to:

5.4.21 Incident Management

The statutory requirement to record and report incidents under RIDDOR 1995 and Section 25 of the Road Traffic Act 1972 needs to be augmented by the creation of a management tool for the project which records all site incidents, including particularly those which are traffic management related. This incident management system needs to incorporate a feature which will identify unexpected levels or categories of incidents, and this will facilitate early action to ameliorate any unsafe features in the project. The appointment of a dedicated Traffic Safety Officer under the terms of the contract provides a first line of reporting to assist in this procedure.

The incident management system should include:

Further issues concerning incident management are considered in Appendix C.

5.5 Detailed Traffic Management Design - led by 'Traffic Management Designer'

5.5.1 Detailed layout of the traffic management scheme

The objective of the detailed traffic management layout is to demonstrate a practical solution to facilitate safe passage of traffic past the works and ensure that the safety of operatives is not compromised. This requires an objective overview of all the factors previously considered in detail (eg design brief, consultation, and site constraints) to ensure production of a composite solution. In addition to familiarity with the appropriate standards and advice notes, knowledge of the site and the ability to visualise the traffic flow through the works are most important. Chapter 8 of the Traffic Signs Manual and any subsequent amendments/additions in the Design Manual for Roads and Bridges provide the prime source of guidance for detailed traffic management layouts.

Under traditional forms of contract, the Project Designer has the discretion to undertake the detailed traffic management design, or by reference within the contract, to pass responsibility to the implementation organisation. In either situation the Project Designer has an obligation, particularly identified by the CDM Regulations, to carry out a risk assessment to ensure that the project design does not give rise to unacceptable risk, the risk being either eliminated or, if this is not possible, controlled. The traffic management Designer, irrespective of other duties, carries responsibility for the health and safety implications of the detailed traffic management design and also must always consider the implications of erection and removal of the primary traffic management system. As part of the design, the traffic management Designer should consider the minimum maintenance resources required to maintain the safety and integrity of the design.

Chapter 8 of the Traffic Signs Manual provides guidance about minimum signing requirements for temporary traffic management. The signing must always convey accurately to road users exactly what is happening and what is expected of them. The demarcation of safety zones needs to be clear. Particular circumstances may require variations from the Chapter 8 minimum requirements, but these should not reduce the overall level of safety.

At times, it may be necessary to level verges to facilitate safe mounting for the sign bases. At some sites, control of vegetation needs to be considered to ensure that signs are not obscured.

5.5.2 Safe taper positions

Tapers are a fundamental element of traffic management layouts. Their position will be influenced by the location of the works in relation to road features for example slip roads, and the need to provide a longitudinal safety zone. However, the prime consideration should be that they are situated where sight lines are good (in both the vertical and horizontal planes). Additional lengths of lane closure may be required for this to be achieved.

It is essential, before detailing tapers as part of the traffic management design, that a full appreciation of the site is obtained; a site visit is the certain way to be sure that the theoretical layout can be achieved in practice. Consideration of safety issues involved in placing, erecting and removing advance warning signs and cones in the taper may also be factors in deciding the taper position.

5.5.3 Cross-overs

The design of cross-overs must take account of the following:

5.5.4 Short-term traffic management to facilitate implementation of the main scheme

There are particular hazards associated with short-term temporary traffic management needed as part of the implementation of the main temporary traffic management. The design and implementation of such schemes therefore requires particular care. Consideration must be given to the state of the traffic management at all times during the implementation of the temporary traffic management arrangements. For example, when installation of the arrangement needs to take place over several nights, the detailed traffic management design should take account of and remove or control the risk associated with the intermediate arrangements.

5.5.5 Advance road user and frontager notification

The Designer must anticipate the effect of the works on the flow of traffic and endeavour to minimise delays whilst being careful not to compromise safety. Advance road user and frontager notification is the first step in addressing this problem by seeking to remove a proportion of the flow from the route. Early publicity will allow some road users to plan their journeys to avoid the congestion caused by the works and frontagers to take appropriate action. The goods vehicle trade associations will disseminate notification to its members. Where such diversions are appropriate, advance signing can assist in diverting traffic onto alternative routes. In such circumstances, the Highway Authority will give direction about permissible alternative routes. Local public transport operators and the emergency services will require written confirmation of the works. In the case of works on busy roads where major delays are anticipated appropriate publicity should be agreed with the highway authority (or their representative/agent) and the media should be notified.

At some sites, during the first few days of operation, low traffic capacity may be experienced until drivers become accustomed to the situation. It is important not to make inappropriate changes during this period.

5.5.6 Treatment of existing permanent traffic signs and road markings

Consideration should be given to the removal or covering of existing permanent traffic signs and road markings. Where they give guidance in conflict with the temporary traffic management system they should be removed or covered with durable opaque materials. Particular care must be taken that retroreflective signs are sufficiently covered at night.

The following factors in particular should be considered by the Designer when designing a temporary traffic management system which incorporates temporary road markings:

At sites with temporary layouts consideration should be given to the use of temporary road studs in place of road markings to facilitate the installation of the layout in poor weather.

5.5.7 Signing

The traffic management Designer must consider all aspects of signing. These include:

It should be a requirement included in the contract that traffic signing equipment must comply with the relevant British or European Standard.

The use of any traffic sign not prescribed within the Traffic Signs Regulations and General Directions is illegal unless it has received Special Signs Authorisation. This needs to be procured through the Highway Authority.

The number of temporary diversion signs may be extensive and the location of each sign will need to be specified. It is important to ensure that temporary signs are consistent with permanent signs. As in all signing design, the choice of location should take account of existing services, sight lines, and should accord with actual site conditions.

Consideration should be given as to whether site conditions require a particular method of securing temporary traffic signs to prevent them falling or being blown into live traffic lanes.

Driver information signs may be required by the Highway Authority to provide road users with the reason for the works, and to explain delays. See the Specification for Highway Works, Clause 117.21. Variable message signs may be of particular use in informing drivers about exceptional delays, eg due to an accident.

Access and egress to the works area requires signing both for the purpose of directing works traffic, and to alert other road users of the likelihood of works vehicles making unexpected manoeuvres. Care needs to be taken to ensure that these signs do not obstruct sight lines and neither obstruct the view of, nor are obstructed by other signs.

5.5.8 Running surfaces

As part of a temporary traffic management layout, there will be occasions when areas of carriageway not normally used are brought into operation. The adequacy of these temporary surfaces should be considered. In particular, the effect on traffic of the following should be borne in mind:

Similarly the effect on carriageways of carrying unexpected traffic loads needs to be considered (eg drain covers on the hard shoulder may need to be strengthened).

5.5.9 Documentation

The temporary traffic management design should be set out in clear documentation including drawings and specifications which are scheme specific. The documentation should not include any standard drawings or details which are not applicable to the scheme.

5.5.10 Consultation with the police

The traffic management Designer should consult with the police and seek their comments in relation to:

However, the traffic management Designer should be mindful that the police bear no authority or responsibility for the design. In general temporary traffic management arrangements should be designed such that they can be safely implemented and removed without police assistance.

5.6 Post-Design Review - led by the 'Project Designer'

Upon completion of the detailed design, the proposals, as a whole, should be reviewed by the Project Designer and a formal risk assessment undertaken. At this stage the programme for the works should be finalised and the traffic management requirements at each stage confirmed. Some points to consider when drafting the programme are traffic volumes; weather conditions; effects of public holidays; and any other restraints incorporated in the contract.

At this stage a Road Safety Audit should be undertaken in accordance with the requirements of the Design Manual for Roads and Bridges.

The post design review is often an appropriate point at which to finalise publicity arrangements and to notify affected parties, and consultees from earlier stages of the design process, of the proposals. The police, other emergency services, and where appropriate, statutory undertakers and adjacent Highway Authorities, should be included in the notification process.

The post design review also provides the opportunity to check that the legal implications of the detailed temporary traffic management design are appropriately covered by Traffic Regulation Orders, Special Sign Authorisations, and Type Approvals.

At this time, the police or Local Authority should be advised of the intention to collate incident reports for incident management purposes and establish a formal contact for this purpose. These reports could be discloseable as evidence in court and therefore a policy should be identified for their retention and eventual destruction.

5.7 Temporary Traffic Management Operations

5.7.1 Risk Assessment

A risk assessment should be carried out to provide input to the method statement as it is being drafted. Consideration should be given to ways of minimising the risk to operatives and the public. The review should address the hierarchy of risks (see Section 3.3).

Further information on formulating a risk assessment is given in the HSE publication 'Five steps to risk assessment' which is reproduced in Appendix B.

5.7.2 Formulation of method statement

A project specific detailed method statement should be prepared for the implementation, maintenance, and removal of the detailed traffic management design.

Generic method statements should only be used after they have been assessed and adapted to the particular circumstances of the site and the specific activity proposed. The method statement should be prepared by the organisation responsible for undertaking the activities therein (see Section 4). Its formulation should take into account the available resources, including the skill, knowledge and experience of the various elements of the workforce. For each activity, the method statement should identify the resource implication, both human and equipment.

Where the method statement sets out activities which interact with those of other organisations, detailed liaison should take place to facilitate co-operation and ensure a cohesive operation. Such liaison is likely to include the police, the Highway Authority, and the organisation responsible for construction of the works.

To ensure sufficient scope in the production of the method statement consideration will need to be given to points raised throughout this document, in particular the following issues should be addressed:

5.7.3 Deployment of temporary traffic management arrangements

The organisation responsible for the temporary traffic management operation should address the following points prior to commencing operations:

5.7.4 Maintenance of temporary traffic management arrangements

It is advisable to stipulate within the detailed traffic management design and method statements, the required maintenance intervals. Review of traffic management is to be seen as a shared responsibility under the general obligations of the Health and Safety at Work etc. Act 1974 (HSWA) (see Section 3). The work load associated with maintenance is dependent on several variables, including volume of traffic, complexity of layout, weather etc, but resources must always be sufficient to maintain the layout in a good condition. Two hourly intervals, twenty four hours a day, would, for example, be appropriate for a heavily trafficked motorway site including cones, signs, barriers, temporary studs and markings. For other roads, appropriate intervals of inspection should be determined reflecting the vulnerability of the site. Twice or three times a day would not be unreasonable for most circumstances.

In the event of remedial work being needed, it should be undertaken in accordance with the method statement where applicable, and otherwise in accordance with the principles underlying the method statement.

It is recommended that the checks and remedial actions should be formally recorded. This will provide evidence as to the adequacy of the traffic management in the event of an incident, but also allows recurrent problems to be identified.

Any existing road markings forming part of the traffic management layout must be maintained to a standard comparable with temporary road markings.

If there is a recurrent problem on a long-term layout, then consideration should be given to ways of improving the layout with the involvement of other parties e.g. the police where appropriate.

5.7.5 Removal of temporary traffic management arrangements

The removal of temporary traffic management arrangements should be approached with the same level of planning as that adopted for its deployment.

The temporary traffic management arrangement should not be removed until a check has confirmed that construction works on the carriageway are complete, and that the carriageway is unobstructed and safe for traffic. The removal also needs to be co-ordinated with other activities on the site, so for example a safety inspection and audit can be completed under the protection offered by traffic management.

In general the temporary traffic management should be removed in a linear operation, working from the "end of works" sign towards the advance road works signs. Operatives should work facing oncoming traffic and within the works area as far as practicable. The advance warning signs should be removed or covered over as soon as practicable so as not to mislead drivers.

Figure 1: Interactions between key tasks

Table 1: Preparation of Design Brief - Consultation Topics

Table 2: Topic Section References

Table 3: Design References

5. Planning and Implementation of Traffic Management Operations

6. Workforce Issues

6.1 General

Everyone required to work on the highway should be aware that they have a responsibility for the safety of themselves and others:-

When working within highway limits, all personnel must wear high visibility clothing (see Section 6.6.3). On occasions additional specific personal protective clothing or equipment may be necessary (see Section 6.6).

6.2 Health

6.2.1 Introduction

Accidents cause many unnecessary deaths and injuries in the construction industry. However, many more occupation related deaths and injuries are caused through poor health.

6.2.2 Health Surveillance

The object of routine health surveillance is to supervise the occupational health of employees and to identify, at the earliest possible stage, any adverse effect on employees' health due to work related causes. Early referral to a doctor/medical practitioner can prevent permanent injury to an employee. Health surveillance should not be confused with 'Medical Surveillance' which is conducted directly by a medical practitioner.

Section 2 of the Health and Safety at Work etc. Act 1974 (HSWA) imposes a duty on every employer to safeguard the health of employees so far as it is reasonably practicable. Health surveillance provides a means of fulfilling one aspect of this duty and is mandatory in the case of employees who are, or are liable to be, exposed to a substance hazardous to health. Specific requirements relating to health surveillance are contained in the Control of Substances Hazardous to Health Regulations 1994 (COSHH) and the Management of Health and Safety at Work Regulations 1999.

The complexity of an appropriate health surveillance system depends on factors such as the work processes involved, the substances used, any known hazards etc. It is necessary to ensure that the system takes into account the introduction of new processes or substances. Where hazards are low there may be no need for regular health checks although the records described below should be kept. Where there is a possibility of an occupational disease with recognisable symptoms, as long as medical advice is quickly accessible to the employee, there is no need to have a doctor on call. Where the hazard possibility is high, then a system of surveillance should be established in liaison with a doctor.

It is good practice to keep basic personnel records for all employees no matter how low the hazards are. For each employee these records should include the following: name, address, place and date of birth, sex, next of kin, National Insurance number, NHS number and a historical record of jobs held classified by job category.

Detailed records should also be kept of:

6.2.3 Health Assessments

Nightworkers (i.e. those regularly working between 11pm and 6am) are entitled to free health assessments. These assessments should cover medical conditions which may be affected by night work e.g. diabetes, some cardiovascular or gastrointestinal conditions and sleeping disorders, together with the general standard of physical fitness, hearing and eyesight necessary to undertake traffic management work on motorways and high speed dual carriageways. Some people who have satisfactory unaided vision in daylight do need spectacles or contact lenses to improve their vision during the hours of darkness.

6.3 Competency

It is the responsibility of the employer to ensure personnel engaged on the works are competent. Organisations responsible for implementing temporary traffic management arrangements should be able to provide evidence of competency for any or all elements of their task(s).

6.4 Training

Only adequately trained traffic management operatives who are physically fit and mentally alert should set out signs, cones etc. on a live carriageway.

Where appropriate, traffic management personnel are to be fully trained and accredited in accordance with the relevant traffic management Sector Scheme for Quality Management in Highway Works. Staff with particular roles should complete the appropriate nationally recognised training scheme.

6.5 Working Hours

Working hours are governed by the Working Time Regulations which are statute law.

The Working Time Regulations 1998 limit working hours to 48 per week, including overtime, averaged over a 17 week period. However, working hours can be averaged over a longer period of up to 52 weeks, and workers can elect not to be bound by the limits. Night workers (i.e. those regularly working between 11 pm and 6 am unless specified elsewhere in a written agreement) who are involved in hazardous, heavy or stressful work should not work more than eight hours in any 24 hour period. In many cases, work associated with implementation of temporary traffic management arrangements would also be regarded as hazardous, heavy and stressful.

In addition, workers are entitled to daily and weekly rest periods and paid annual leave. Further information on leave and rest entitlements is available from ACAS.

The cause of safety in any working place will be furthered if those employed do not become tired. Fatigue can be induced by a number of factors including monotony, stress and prolonged working hours for sustained periods.

Some people are more susceptible to the effects of fatigue than others. Fitness, alertness and competence are paramount. The interests of safety must always be foremost and people who clearly cannot cope with a particularly tiring situation should not be required to do so.

Demanding working situations can arise under the lane rental type of contract. These works require a particularly high standard of planning which will itself lead to improved safety on site. For any lane rental contract with an estimated duration of over 14 weeks, consideration should be given to the planning of a rest period towards the estimated mid-point. Additional rest periods should be considered on contracts of much longer duration.

In lane rental contracts with 16 or 24 hour working days, over-long shifts should be avoided bearing in mind that "hand-over" periods will often be necessary. Where 12 hour working days are covered by a single shift, rest days should be allowed. Due regard should also be paid to the amount of travelling time required at the beginning and end of each shift.

There will be occasions when, due to the nature of the works to be undertaken, working prolonged or extended hours is unavoidable. Under such circumstances, managers of the organisation responsible for implementing temporary traffic management arrangements should consider the effect on safety of prolonged working hours having regard to the type of work, the degree of stress involved, and the duration of long shifts.

The particular issues involved in working during hours of darkness are covered in Section 7.

6.6 Personal Protective Equipment including High Visibility Clothing

The use of personal protective clothing and equipment (PPE) should not be considered as an alternative to efforts to reduce or eliminate hazards. On many sites it is possible to minimise exposure to risk by careful selection of plant and material, e.g. by minimising noise at source rather than providing ear defenders.

Even on the safest sites, hazards cannot be totally eliminated, therefore items of PPE will be necessary. High visibility, and when appropriate, weatherproof clothing should be worn at all times. Extra care should be taken when hoods are worn because they can restrict the field of vision.

6.6.1 Selection

When selecting PPE it is important that it is appropriate for the hazard and compatible with other items of equipment. Items selected should conform to relevant standards and bear the appropriate BS EN Number. Consideration of PPE requirements should take place in conjunction with the formulation of the method statement. Suppliers and manufacturers and the British Standards Institution are sources of advice on PPE issues.

6.6.2 Records of Issue

Organisations responsible for implementing temporary traffic management arrangements should maintain a Register of Protective Equipment. When PPE is issued to any person, an entry should be made in the register.

Statute law requires that all PPE is provided free of charge.

6.6.3 High Visibility Clothing

Where work is carried out on or adjacent to a highway open to traffic, high visibility clothing complying with BS EN 471 should be worn by the workforce and the site supervisory staff. Clothing should be to Table 1, Class 2 or 3 (Class 3 on motorways and other high speed roads) and should comply with paragraph 4.2.3(b) of the Standard. In addition, on motorways and other high speed roads, jackets or coveralls with sleeves, which meet the requirements of paragraph 4.2.4 of the Standard, should be worn.

The colour of the clothing should normally be "fluorescent yellow" or "fluorescent orange-red" complying with Table 2 of the Standard. The retroreflective material used should be to Class 2 as defined in Table 5.

The clothing should be clean and in good order at all times.

6.6.4 Foot Protection

Every year, injuries are caused by material falling onto the foot and the majority of these accidents could have been prevented if safety footwear had been worn.

Where a significant risk exists to employees (e.g. falling materials, handling heavy signs or gas bottles), they should be provided with the appropriate safety footwear. As a minimum, the operative will be issued with steel toe capped shoes that should be worn at all times.

6.6.5 Head, Eye and Hearing Protection

Where there is a foreseeable risk of injury to the head, eyes and/or hearing, all persons working on site should, at all times, wear safety helmets, suitable eye protection and/ or ear defenders as appropriate to the task and location (for instance noise levels in live highway tunnels will generally require ear defenders to be worn there). The loss, damage, or destruction of this protective equipment should be reported immediately so that a replacement can be issued.

6. Workforce Issues

7. Working in Hours of Darkness

7.1 Introduction

Traffic flows and other factors dictate that some traffic management activities are conducted during the hours of darkness. Such operations require additional pre-planning, resources and procedures to those needed for daytime activities.

Although the accident risk for the traffic management workforce associated with high flow traffic is generally lower during the night, the risk of other work related accidents during the hours of darkness is increased due to factors such as fatigue, difficulty in judging distances, and limited vision. In the case of night-time only working, additional hazards are introduced due to the necessity to remove the traffic management before the morning peak traffic flow when night-time operations may be running late.

The following issues should be considered in planning traffic management activities to be carried out during the hours of darkness.

7.2 Personnel Issues

It is essential that personnel involved in this activity are carefully selected for their fitness for night-time work. This selection should include an assessment of vision and hearing. (See Section 6.2.3).

Additional training for work during hours of darkness is of paramount importance, and this should be delivered by a nominated competent person.

Personnel required to work during the hours of darkness must have adequate rest periods both prior to and following each night shift. Information regarding hours of work for night workers is given in Section 6.5.

7.3 Pre-Planning

The following checks should be conducted during daylight hours as necessary.

Stopping points for vehicles should be pre-determined and positively identified. This is particularly important where there is no hard shoulder, or when stopping at locations that might be obstructed by safety fencing or other structures/objects.

The proposed location for temporary signs, the start and end of tapers, and longitudinal coning should be positively identified.

Relevant verges/central reserves should be inspected for hazards, and to ensure that there is adequate width to place the temporary signs safely. Consideration should be given to pre-placing signs in the central reservation or verge so that they then only need to be stood up at night.

Carriageway crossing points must be checked to ensure that there are adequate sight lines to see oncoming traffic.

The position of any overhead electric lines likely to impinge on the planned traffic management activity must be positively identified and the method statement adjusted to minimise any risk.

7.4 Lighting

Where signs are required to be lit for a long period of time, the supply should be connected to the mains electricity supply, e.g. street lighting, wherever practicable. If lighting is to be powered by battery, gas or oil powered generators, planning should ensure that the battery charge/ fuel supply is sufficient to last through the hours of darkness.

Where gas lamps are used for lighting signs, the cylinders must be secured in a safe position, protected from impact with errant vehicles, and provision made for their safe transport across the carriageway.

Consideration must be given to provision of adequate lighting of areas in which traffic management activity is taking place. If, because of the temporary nature of the activity, it is not practicable to connect these lights to the mains supply then, if possible, they should operate off the electrical system of accompanying vehicles.

All lighting must be sited so as not to dazzle users of the highway or the workforce and consideration should be given to locating reflective road signs to minimise reflected light.

Erection and movement of lighting towers or other elevated lighting equipment should be conducted with due regard to the danger presented by any overhead lines which may be present. When a lighting tower has to be moved the mast must be lowered.

At contra-flow cross-overs consideration should be given to the continuity of the level of street lighting for road users. Isolated pools of light or darkness should be avoided throughout the approach and cross-over areas of traffic management.

On unlit roads where the horizontal or vertical alignments, or the road surface through the cross-over is below standard, the application of temporary street lighting to the cross-over and approach areas should be considered.

7.5 Work Practices

A means of judging the distance between the crossing point and oncoming traffic should be considered to facilitate crossing of the carriageway on foot to place equipment on the central reservation (see Section 5.7.3).

Hand lamps should be available for use as appropriate.

Prior to commencement of work, all sign lighting equipment must be checked for correct operation, and batteries in warning lamps must be checked and replaced as necessary. All temporary traffic management equipment must be maintained in a clean condition (see Section 8.2).

A readily available stock of appropriate equipment must be maintained for immediate replacement of damaged or lost signs, delineators or lighting items. The relevant storage area must be equipped with adequate illumination.

7.6 Noise

Noise is less acceptable at night than in the daytime and every effort must be made to keep this to a minimum. This can be achieved by:

Consideration should be given during the planning stage, with regard to the Local Environmental Officer's requirements, to avoid methods of working which are particularly noisy, such as the use of thermal lances.

7.7 Communications

To compensate for the reduced visual inter-communication between elements of the workforce, special consideration should be given to the system of communication for temporary traffic management activities during darkness.

7. Working in Hours of Darkness

8. Traffic Management Equipment

8.1 Traffic Management Vehicles

It is recognised that traffic management operations, especially on high speed dual carriageways and motorways, require specially designed and adapted vehicles - standard production vehicles are generally not suitable.

All vehicles should be painted in a light or conspicuous colour (white or yellow), marked to be easily distinguishable from other vehicles and display "Motorway Maintenance" or "Highway Maintenance", as appropriate, to the rear in accordance with diagram 7404 of the Traffic Signs Regulations and General Directions.

All vehicles should have a minimum of two roof mounted amber beacons, with vehicles used in the implementation or removal of signing and coning having additional high intensity flashing lights to the rear. Care must be taken that beacons are not obscured by the load. Vehicles should also be fitted with a rotatable white spotlight to illuminate the back of the vehicle and/or adjacent work area during hours of darkness, but with care taken to avoid dazzle or distraction to other road users. Care should be taken that the desired impact of warning lights is not undermined by their indiscriminate use in inappropriate circumstances.

Drop-sided flatbed vehicles in the range 7.3t to 17t gross vehicle weight are highly suitable for use in the implementation and removal of signing and coning for traffic management arrangements which involve closing a live lane. The use of sign/cone trailers is not recommended on motorways and dual carriageways.

Vehicles for "maintenance and surveillance" of traffic management arrangements should be capable of transporting signs, cones and ancillary equipment but small enough to be manoeuvrable around site; 2t to 3.4t gross vehicle weight pickup type vehicles are suitable.

All vehicles used to support temporary traffic management activities should be well maintained and subject to daily checks to minimise the possibility of breakdowns during traffic management operations.

Vehicles for mobile lane closures should accord with the specific requirements of TD 49.

8.2 Traffic Signs

It is important that all items of equipment used for temporary traffic management fulfil their intended legal and informative function throughout the period they are in position. This applies to all signs, delineators, markings, traffic signal equipment and road danger lamps. The assessment of the condition of the equipment is dealt with in detail in Appendix D.

8. Traffic Management Equipment

9. References

A number of these documents are regularly updated, please ensure that reference is made to the current version.

Stationery Office Ltd.

Department of Transport (1986).
An Introduction to the use of vehicle actuated portable traffic signals.
(ISBN 0-11-550781-7)

Department of Transport (1991).
The Traffic Signs Manual - Chapter 8 'Traffic Safety Measures and Signs for Road Works and Temporary Situations.
(ISBN 0-11-550937 2)

The Traffic Signs Regulations and General Directions 1994.
(SI 1994 No. 1519).
(ISBN 0-11-044519-8)

Department of the Environment, Transport and the Regions (1992).
Safety at Street Works and Road Works. A Code Of Practice.
(ISBN 0-11-551144-X)

Road Traffic Act 1972.
Chapter 20.
(ISBN 10-542072-7)

Design Manual for Roads and Bridges (DMRB)

(published by The Stationery Office)

TA63 - Convoy working
(DMRB 8.4.5)

TD 19/85 - Safety fences and barriers
(DMRB 2.2.8)

TD 49 - The Mobile Lane Closure Technique.
(DMRB 8.4.4)

Health and Safety

Construction (Design and Management) (CDM) Regulations, 1994
Approved Code of Practice. Health and Safety Executive.

Construction (Health, Safety and Welfare) (CHSW) Regulations, 1996.
Health and Safety Executive.

Control of Substances Hazardous to Health Regulations (COSHH), 1999.
Health and Safety Executive.

Five steps to risk assessment, 1999. Health and Safety Executive.
Leaflet INDG163.
(ISBN 0 7176 1565 0).

Health and Safety Executive Information Sheet - Construction Information Sheet No 53.
Crossing highspeed roads on foot during temporary traffic management works.

Health surveillance of occupational skin disease. MS24.
Health and Safety Executive.

Management of Health and Safety at Work Regulations 1999.
Health and Safety Executive.

Reporting of Injuries, Diseases and Dangerous Occurrences Regulations (RIDDOR), 1995.
Health and Safety Executive.

Surveillance of people exposed to health risks at work. HS(G)6 1.
Health and Safety Executive.

The Health and Safety at Work etc. Act (HSWA) 1974.
Health and Safety Executive.

The Working Time Regulations 1998.
Terms and conditions of employment. Statutory Instrument (SI) 1833:1998.
Health and Safety Executive.

Manual of Contract Documents for Highway Works

(published by The Stationery Office)

Volume 1. Specification for Highway Works. Clause 120. 'Recovery Vehicles for Breakdowns'

Volume 2. Notes for Guidance on the Specification for Highway Works.
Clause NG120 'Recovery Vehicles for Breakdowns'.

British Standards

BS EN 471:1994 'Specification for high visibility warning clothing'.

Other Publications

ACPO/Highways Agency (1999).
Police Involvement in Traffic Management Activities at Roadworks.

CSS/DOT (1994).
Notes for Guidance on Safety at Roadworks.

DOT/Federation of Civil Engineering Contractors(1992).
Planning for Safety. London.

United Kingdom Accreditation Service (UKAS): Sector Schemes for Quality Management in Highway Works:

Scheme 12A:
Static temporary traffic management on motorways and high speed dual carriageways for schemes incorporating contra-flow operations and/or temporary markings.

Scheme 12B:
Static temporary traffic management on motorways and high speed dual carriageways for schemes not incorporating contra-flow operations and/or temporary markings.

Scheme 12C.
Mobile Lane Closure traffic management on motorways and other dual carriageways.

Traffic Management Contractors Association (TMCA)(2000). Notes for Guidance for Static Temporary Traffic Management on Motorways and High Speed Dual Carriageways.

RSDA/CSS (2000). Code of practice for signing at surface dressing sites.
CSS Report No ENG/3 - 2000.

Traffic Advisory Leaflet 15/99. Cyclists at Roadworks. Traffic Advisory Unit, DETR

9. References

10. Appendix A - Associated Documents

A.1 Introduction

There are several documents that provide guidance about traffic management at road works and associated matters. These documents are listed in this Appendix together with information about their role and application and an indication of how they relate to each other and to this current document.

A.1.1 Notes for Guidance : Safety at Road Works 1994

Much of the broader principles and general advice contained within this document has been updated and subsumed within this current document which replaces it.

A.1.2 Traffic Signs Regulations and General Directions (TSRGD)

This document is a statutory instrument, and sets out those sign faces and road markings that may be displayed legally on the highway. This document is not a specification and should not be treated as such, but its provisions are mandatory.

A.1.3 Planning for Safety

The sub-title for this document is "Guidance Notes for the Health and Safety of Workers at In-Service Motorway Road Works Sites". It was published jointly by the Department of Transport and the Federation of Civil Engineering Contractors in 1992. Its prime aim was to ensure that adequate planning for space, resources and materials took place at the pre-tender stage. Much of the relevant contents of "Planning for Safety" has been updated and subsumed within Guidance for Safer Traffic Management.

A.1.4 Chapter 8 of the Traffic Signs Manual

This document, together with those subsequent advice notes and standards which have updated and extended its contents, provides guidance for temporary traffic management Designers in relation to the signs shown in Schedule 12 (Signs for Road Works) of TSRGD. This document possesses no statutory powers, (except in Northern Ireland) but is universally recognised as containing good practice. It is not a specification and a requirement that traffic management should be in accordance with it, should not be regarded as a substitute for temporary traffic management design. It should be noted that, for mobile lane closures, Chapter 8 has been replaced by TD49. Guidance for Safer Temporary Traffic Management provides a framework for the safe planning and execution of the design requirements contained within Chapter 8.

A.1.5 The Specification for Highway Works

This specification has been developed by the Highways Agency in association with other elements of the Manual of Contract Documents. It is used in most road works contracts for the Highways Agency, and in many road works contracts for other Highway Authorities.

A.1.6 National Highway Sector Schemes

These national schemes establish a quality benchmark for the planning, training and management undertaken by Traffic Management Contractors, which is audited by independent certification bodies. The National Sector Schemes are listed in a document M4 - "UKAS Publications" which is published by the United Kingdom Accreditation Service (UKAS). Guidance for Safer Temporary Traffic Management will provide a framework for the planning and operational activities set out in quality plans.

A.1.7 Safety at Street Works and Road Works

This is a statutory document with powers under the New Roads and Street Works Act 1991. Although it does not apply to Highway Authority road works, the contents of this document are generally in accordance with the contents of Chapter 8. Guidance for Safer Temporary Traffic Management is not aimed at the works carried out in accordance with "Safety at Street Works and Road Works", but many of its general principles are applicable.

A.1.8 Traffic Management Contractors Association (TMCA) - Notes for Guidance

This document deals with the requirements for the establishment, maintenance, and removal of static temporary traffic management on motorways and high speed dual carriageways.

A.1.9 Joint ACPO/HA Guidance on Police involvement in Traffic Management at major Road works

This publication relates to the setting-up, alteration and removal of temporary traffic management at major road works including lane and carriageway closures and contra-flows etc. It is intended to clarify roles and responsibilities and regularise disparate practices and expectations amongst police, HA staff and contractors. It visualises a significantly reduced role for police in these activities.

A.1.10 Joint RSDA/CSS Code of practice for signing at surface dressing sites

This publication sets out the particular requirements for signing and traffic management when carrying out surface dressing work.

10. Appendix A - Associated Documents

11. Appendix B - HSE Booklet ' Five Steps to Risk Assessment '

HSE Booklet 'Five Steps to Risk Assessment' (721KB PDF).

11. Appendix B - HSE Booklet ‘ Five Steps to Risk Assessment ’

12. Appendix C - Incident Management

Risk assessment should be used to determine the appropriate level of incident management, allowing incidents to be categorised and related to their severity and likelihood of occurrence.

It may be appropriate that within this assessment incidents are categorised, Category 1 a 'severe incident' to Category X a 'minor incident'. Category 1 events will require full investigation and remedial action by changing the Health and Safety Plan. A high number of lower category incidents will also require investigation A procedure should be established to determine the appropriate level of investigation related to management responsibility.

The process of categorisation gives performance indicators for long term monitoring, to achieve the ultimate aim of any management system, which is 'continual improvement of performance.'

At the end of the Contract the client should be presented with a formal written report, Review of Incident Record, stating the manner in which the safety procedures were managed changes made and lessons learned. Such a report is only likely to be forthcoming if specified and priced in the contract.

The Incident Management Procedure must be considered with the other management proposals. A traditional risk assessment in accordance with BS 8800:1996, Occupational Health and Safety Management Systems would be suitable. This is based on the probability of occurrence rated against severity and may be used to enable a risk rating to be determined. This may be related to the control plan in which the incident can be measured according to its risk rating against the control function available. Even if the basic plan is considered to pass the qualitative test the Client must allow time for review to take place on site where the detail can be tested in situ.

If the design of the traffic management has contributed to an incident, the feedback must be to the Designer and appropriate measures should be taken to minimise the risk for the future. Similarly, poor implementation and maintenance contributing to an incident will have repercussions for the Contractor, the site supervisory team, and associated procedures. It is essential that the facts relating to an incident are available to all those who have responsibility, both contractual and under legislation.

It is good practice for the Planning Supervisor and Designer to assess the report and revise the next design procedure and pre-tender Health and Safety Plan to incorporate lessons learned in the next scheme.

12. Appendix C - Incident Management

13. Appendix D - Assessment of Condition of Traffic Signs

D.1 Introduction

It is important that all items of equipment used for temporary traffic management fulfil their intended legal and informative function throughout the period they are in position. This applies to all signs, delineators, markings, traffic signal equipment and road danger lamps. For instance, with age the retro-reflective properties of signs degrade and the sign face colours will also fade. Even in normal use, temporary traffic management signs and delineators are subject to forms of damage not experienced by permanent signs. This damage occurs during storage, delivery, installation, and removal, causing deterioration in appearance and effectiveness.

However, it is not practical to specify new signs and delineators for each project. Therefore guidance is needed to facilitate the assessment of the condition of temporary traffic management equipment. To help to achieve this objective illustrations of appropriate sign samples are included in Section D.4.

Signs with defects which affect recognition and legibility are unacceptable. Temporary traffic management equipment which appears acceptable in good weather conditions, may at other times, for example in heavy rain, not be adequate and so present a potential safety hazard. Such factors should be taken into account when assessing their condition.

Assessment of the condition of equipment should be made at several stages: prior to storage, during assembly for delivery to site, and at regular intervals throughout deployment. In many works contracts, this inspection and assessment is mandatory when the equipment is erected and while it is deployed.

D.2 Condition Classification

The condition of each item of temporary traffic management equipment should be classified as follows:

Acceptable

Equipment which falls within this classification is appropriate for initial deployment and continued deployment on the highway. At the time of the initial set up all equipment shall be in the "acceptable" category.

Marginal

Equipment which falls within this classification is reaching the lower end of acceptability and should not be delivered to site. During a project, following an assessment of condition any equipment classified as "marginal",

a) should be replaced within 24 hours if it is not repeated

b) if the item is repeated, it may remain in place until:

- it is assessed as unacceptable, or

- marginal items exceed 20 percent of the group (eg a set of repeater signs), or

- marginal items exceed 1 in 5 consecutive pieces of equipment (eg traffic cones).

Unacceptable

Devices in this category shall not be delivered to the site. When found in use, they should be replaced immediately.

D.3 Condition Assessment

Illustrations and associated descriptions, are provided in Section D.4 to assist assessment of condition of signs and delineators.

Temporary traffic management equipment inevitably becomes dirty during use and consequently becomes less conspicuous and legible, particularly at night and in adverse weather conditions. Thus regular cleaning is essential.

All items of temporary traffic management equipment should be cleaned prior to assessment of their condition and regularly cleaned throughout their time on site.

D.3.1 Signs and delineators

Signs and delineators should be assessed in relation to the following properties.

A sign or delineator assessed as failing in any one of the above categories should be classified as unacceptable.

A sign or delineator assessed as marginal in any one of the above categories, but passing in the others should be classified as marginal.

A sign or delineator assessed as marginal in two or more categories should be classified as unacceptable.

Signs of a suitable size with defects which affect recognition and legibility should be classed as unacceptable.

Signs which are not mounted at the specified height should be classed as unacceptable.

The practice of mounting signs on unnecessarily long posts which project above the top of the sign is hazardous and unacceptable.

Any sign or delineator which does not conform in every detail with the requirements in the Traffic Signs Regulations and General Directions is unacceptable regardless of its condition.

Structural Integrity

Sign plates should be checked to ensure that they are adequately fixed to their frames. Where a frame, including A-frames, is broken or deformed so that the sign cannot be adequately secured or the sign plate is not at the appropriate angle to the road surface, it should be classified as unacceptable.

Sign Face Condition

Legibility can be affected by scratches and other damage to the sign face. This can be best assessed at the appropriate viewing distance. The severity, extent and location of such damage must be taken into account when deciding whether a sign should be classified as unacceptable. For example a relatively small area of damage could render a letter illegible and seriously compromise drivers' ability to comprehend a sign, see Section D.4 for illustrated examples.

Sign Face Colour

If colour fading is noticeable it should be visually compared with a square of new/perfect material. For regulatory signs such as speed limit signs, any significant colour fading may compromise regulatory enforcement, and is therefore unacceptable. For information signs, legibility and vivid colour contrasts should be the main criteria.

Level of Retro-reflectivity

Delineators should be highly conspicuous and all signs, symbols, and letters should be clearly visible during darkness. The retro-reflective properties of signs and delineators can be assessed, whilst they are suitably illuminated, by visual comparison with a new/perfect sample of retro-reflective material. Alternatively the retro-reflectivity properties of signs and delineators can be assessed using a Field Retro-reflectometer and readings can be directly compared with BS 873 Part 6 Table 1. However, the use of a Field Retro-reflectometer should normally only be required in special situations or where the results of other methods are disputed.

Retro-reflectivity can be significantly reduced by dew formation on the sign face, and assessments should not take place in such circumstances.

D.3.2 Road Danger Lamps

All lamps must be working and in good condition.

D.3.3 Traffic Signal Equipment

Faulty equipment must not be placed on a public highway. All traffic signal equipment should be inspected and tested before delivery to the site. Information on fault detection procedures is given in Chapter 8 of the Traffic Signs Manual. Useful advice is contained in 'An Introduction to the use of vehicle actuated portable traffic lights'.

D.3.4 Temporary Road Markings

All temporary road markings such as studs, paint and tape must be installed according to the manufacturer's instructions, and their performance regularly monitored throughout the project.

D.4 Sign Condition Assessment Guide

This Section contains colour illustrations and associated descriptions to assist assessment of signs and delineators.

13. Appendix D - Assessment of Condition of Traffic Signs