Improving Business Processes for More Effective Transportation Systems Management and Operations

Chapter 4. Work Zones

Figure 2. Photo. Example of work zone management activities.
(Source: Michigan Department of Transportation).

4.1 Work Zone Business Processes

Work zones are defined as any construction activities that result in physical changes to the highway environment, such as reductions in the number or width of travel lanes, lane shifts, lane diversions, and temporary road closures⁶. Work zones will often reduce the capacity or flow of the roadway because of lane closures, work activity, or ingress and egress of construction vehicles, and they can experience higher crash rates. Managing traffic in work zones (see Figure 2) is necessary to minimize delays and maintain access to and around the site, ensure the safety of motorists and workers, and ensure that the work is completed effectively and as quickly as possible.

Work zone management strategies are often complex and can change frequently based on varied circumstances such as the space needed for work operations, funding, weather, and the roles of the various agencies involved. Work zones can present challenges for the larger transportation network in terms of their effects on alternate routes, transit operations on routes with a work zone, or multiple concurrent events in the work zone area or corridor.

Work zones can last for several months or a few days, depending on the construction or maintenance activity. Long-term work zones, such as for major reconstruction projects, provide an opportunity for improved coordination among affected agency partners, more lead-in time for planning, and typically result in more regular communications among partners about work zone changes through construction partnering meetings. Furthermore, there are opportunities for more sustained motorist awareness and education campaigns for those longer-term work zone activities, although day-to-day changes in work zones still require specific onsite mitigation measures and motorist safety messages. Those activities with a limited duration impact might not have the same level of advanced coordination among affected partners or the same level of motorist information about the work zone or restrictions.

Business processes affect work zones at every stage—from initial considerations during the project development and planning stage, to the transportation management plan (TMP) developed during design, procurement and contracting processes, as well as during work zone implementation and active work zone activities.
The following are business processes for work zones:

• Contracting strategies to enable effective and efficient implementation
• Planning processes
• Coordination involving multiple divisions or groups
• Program plan and review processes
• Performance measures, metrics, and data informing practices and procedures
• Documented procedures, including planning, implementation, and conflict resolution
• Management policies

The Work Zone Safety and Mobility Rule (69 Federal Register 5462) provides provisions and guidance for states to address work zone safety and mobility at the policy level and throughout the planning, design, and implementation process. Agencies develop their respective work zone policies and guidance based on this rule. It also requires agencies to conduct a process review, at least every 2 years, with the goal of assessing the effectiveness of its work zone program and the effect on safety and mobility of work zones. The intent of the process review is to improve work zone processes, procedures, and training through a multidisciplinary review, input, and analysis. This review provides an opportunity to examine key business processes associated with the various stages of work zone planning, implementation, and evaluation. Outcomes of work zone performance and safety assessments can help to identify important considerations that could result in improved coordination and communication processes, contractor requirements, and updates to agency processes or policy.

The following are some guiding questions that can be used to identify issues and potential action items to improve work zone business processes. These questions, based on the work zone business process framework and work zone process review, can apply to several partners involved in work zone planning, implementation, coordination, and evaluation:

• Are the project significance and needs known and considered throughout the project development process?
• Are the user costs considered during the decision-making process?
• Are procedures in place to use innovative contracting strategies to address work zone needs? Are there certain projects (large/complex) that warrant extra consideration?
• Are contractor requirements and agency work zone policies aligned?
• Are TMPs developed, and do they provide strategic support during the project development process?
• How are work zone safety and mobility performance measures tracked and incorporated into process improvements?
• How are multiple projects coordinated to achieve work zone management objectives? If so, does this process include methods for addressing conflicts?
• Is there a process for developing and distributing training for work zone management?
• Is there a formalized process for succession planning and cross-training for work zone management within the agency?
• Are there established processes for coordination among divisions and/or offices within the agency (for example, design and traffic, construction, transportation management center) with respect to work zone management? Are the right staff involved at the right stage?
• How is the work zone management policy implemented and evaluated throughout the agency?

An example of a change in business process to help improve work zone management would be to ensure that changes in work zone configuration are communicated to all parties involved, rather than just those onsite. Staff, such as operations, can help disseminate information regarding work zones and manage roadway capacity. Failure to inform all parties of changes would hinder effective roadway management.

Another example of a business process is to consider managing work zone(s) on a regional scale at the planning stage, especially in identifying possible conflicts with concurrent work zones nearby (such as on parallel routes and modes). Transportation Systems Management and Operations (TSMO) strategies could also be used on other corridors, to help facilitate any additional traffic flow that may divert to avoid the work zone. Taking a holistic view and coordinating regionally would help bring about the most effective management.

Table 3 outlines potential business process challenges for various elements of work zone management. These challenges can be identified during work zone planning and operational discussions regarding potential limitations or issues that can be addressed through improving the corresponding business processes.

Table 3. Work zone business process challenges.

Work Zone Program Elements	Work Zone Potential Business Processes Challenges
Planning	Work zone needs, issues, and constraints are not identified early in the project development process. Project cost estimates and budget do not include (adequate) funding for traffic management. Affected partners or agencies are not involved in work zone planning or TMP development. The established work zone policy does not adequately specify requirements for work zone plans and/or TMPs. Work zone planning and design do not involve staff from operations to identify potential operational issues or modifications to operational strategies as a result of the work zone. No standard process is used for modeling potential effects of large-scale or long-term work zones. Potential concurrent events in the work zone area (such as a recurring special event or other work zones nearby) are not adequately addressed in the early planning stages. Adoption of innovations or changes is hindered because no established process is used for evaluating new devices, technologies, or processes that could reduce work zone duration or impacts.
Contracting, Procurement, and Contract Administration	Selected project delivery method does not adequately capture requirements for work zones. Innovative or alternative contracting methods are not routinely considered or are only reserved for major projects. Safety and mobility metrics are not clearly identified in the contractor requirements. Schedule incentives in the contractor requirements do not adequately address safety and mobility requirements. Lack of knowledge of options available to the agency may limit different project delivery methods and their potential impacts on work zones. Training may be inadequate for contracting staff on the different delivery performance-based methods and the relationship to work zone requirements or contract administration.
Implementation and Monitoring	Current processes do not adequately involve or inform affected agency groups, such as operations. Processes for notifying other affected agencies of work zones or changes in work zones are not in place or are not consistent. No policy exists that enables off-peak work hours for contractors or maintenance staff to limit disruptions to travel lanes during peak hours. No process or technologies are available to update motorist information systems as work zone configurations change. Established processes and procedures do not adequately address work zone incident management or contingency planning (for a conflicting event). Work zone performance measures are not established, or no process exists for collecting data and assessing the measures. Regular communications about work zone performance are not consistent during project review meetings.

4.2 Work Zone Business Process Case Studies

4.2.1 Work Zone Traffic Control Modeling Provides Valuable Insight to Construction Staging and Scheduling in Michigan

Work zone business processes addressed in this case study are as follows:

• Planning processes
• Coordination involving multiple divisions or groups

Michigan Department of Transportation (MDOT) has established processes for using modeling to evaluate the impacts of upcoming work zones and to develop work zone traffic control plan alternatives. Traditionally, long- and short-range planning activities and project-specific work zone planning functions do not intersect; however, in this case, some innovative analysis from the MDOT Planning Division was able to provide valuable input to the group implementing a significant project work zone on Interstate 75 (I-75) through metropolitan Detroit.

MDOT was able to leverage an existing model to analyze the potential impacts of the I-75 Ambassador Bridge Gateway Project to develop network microsimulation models years before construction started. The model was originally developed as a tool for helping facilitate MDOT project funding decisions for southeast Michigan. MDOT Metro Region Planning repurposed the model and applied it to work zone modeling of the I-75 Ambassador Bridge Gateway Project. This marked the first time that network microsimulation had been used in an operations analysis, as opposed to planning applications. The model also had to consider numerous planned closures of I-75 and surrounding roads both because of the I-75 Ambassador Bridge Gateway Project and other planned construction projects.

Using this tool, MDOT Region Construction and Engineering staff were able to see the work zone's influence on the surrounding network and see how different closure and traffic control scenarios would affect mobility on other corridors. As a result, the work zone mobility plan was developed considering impacts beyond the work zone. Model outputs were also used to inform the public outreach and involvement strategy, traffic incident management (TIM) planning, and traveler information program. This change in business processes brought together groups that did not typically collaborate on work zone planning and implementation. It also provided MDOT with delay measures based on project design and construction staging, as well as informed operation processes for other corridors affected by the work zone.

4.2.2 Maryland Work Zone Performance Management Program Uses New Data Sources to Monitor and Analyze Work Zone Impacts

Work zone business processes addressed in this case study are as follows:

• Coordination involving multiple divisions and groups
• Program plan and review processes
• Performance measures, metrics, and data informing practices and procedures

The Maryland State Highway Authority (MDSHA) wanted to use probe data already integrated into the Regional Integrated Transportation Information System (RITIS) to help measure work zone performance, as well as to improve work zone planning and management. To reach this goal, they contracted with the University of Maryland Center for Advanced Transportation Technology to develop a real-time performance monitoring tool specifically for work zones. This project would also help the MDSHA assess the traffic impacts of upcoming projects.

One of the main outcomes of the project was a real-time performance dashboard that computes mobility performance measures for active work zones from RITIS probe data and displays it on dashboard in the MDSHA website. The RITIS data include information from fixed sensors and a third-party probe data provider. Computed performance measures included mobility measures such as delay, congestion, and queue length, and programmatic performance measures, such as number of days when queuing occurred, average queue during and length, and vehicle/hours of delay.