VIRGINIA DEPARTMENT OF TRANSPORTATION OPERATIONS DIVISION INSTRUCTIONAL AND INFORMATIONAL MEMORANDUM SUPERSEDES:

Transcription

1 VIRGINIA DEPARTMENT OF TRANSPORTATION OPERATIONS DIVISION INSTRUCTIONAL AND INFORMATIONAL MEMORANDUM GENERAL SUBJECT: Changeable Message Signs NUMBER: IIM-OD SPECIFIC SUBJECT: Changeable Message Signs (CMS) Usage APPROVAL DATE : February 1, 2013 SUPERSEDES: MM 329 Sunset Date/Expires: Approval with Signature on file in the office of the Operations Division: December 31, 2018 Implementation Date: February 1, 2013 OPERATIONS DIVISION APPROVAL: Dean Gustafson, PE, PTOE State Operations Engineer DIRECTED TO: Regional Operations Directors PURPOSE: The purpose of this IIM is to establish the procedures to be followed by the Operations Division, Districts, and Regions for Changeable Message Sign usage.

2 EFFECTIVE DATE. These instructions are effective as our business practice on February 1, 2013 and will sunset on December 31, 2018 unless extended for another five year period by signature and notice by the State Operations Engineer. BACKGROUND: See Other Considerations DEFINITIONS: CMS Changeable Message Signs OD Operations Division in the Central Office ROD s the five (5) Regional Operations Directors. OD Policy A course of action, guiding principle or procedure considered expedient, prudent or advantageous. OD Process processes are operational directives used to ensure personnel perform tasks in a specific manner to promote continuity and reproduction of the end results. Guidance provides information for personnel to use in order to perform tasks in a preferred manner to promote continuity and reproduction of the end results. ROLES AND RESPONSIBILITIES See Other Considerations Ownership o Upon adoption, the policy provides statewide direction regarding Changeable Message Sign Usage. Process Roles: o Ownership of the process includes central office staff and district operations and security personnel responsible for the work program.

3 RELATED DOCUMENTATION See Other Considerations LIMITATIONS ON USAGE What restrictions or training needed? o None identified with this policy. PROGRAM EVALUATION The effectiveness of this policy is to be monitored by the OD Division Administrator/State Operations Engineer and the Regional Operations Directors. COPY DISTRIBUTION OD District Administrator/State Operations Engineer District Administrators Regional Operations Directors State Traffic Engineer Regional Traffic Operations Managers OD Policy Section Operations Division personnel in the central office and regions as needed. OTHER CONSIDERATIONS The proposed policy will need to be coordinated with the Policy Division in the Central Office to determine if a department policy memorandum is needed.

4 Introduction Changeable Message Signs (CMS) are an important resource for the Virginia Department of Transportation (VDOT). These signs are a direct and most visible information link between VDOT and motorists. Ultimately, the success of CMS depends upon the motorists belief in the information being displayed. Improper sign usage or incorrect information will erode motorist confidence and reduce overall sign effectiveness. VDOT has updated this policy for the use of CMS and is intended to establish procedures to ensure uniformity in usage and messages on all CMS located VDOT maintained roadways and within VDOT right-of-way within the Commonwealth of Virginia. Changeable Message Signs (CMS), Dynamic Message Signs (DMS), Variable Message Signs (VMS) and Portable Changeable Message Signs (PCMS) offer very subtle differences. In practice, these terms have become interchangeable. For the purpose of this document, the term CMS is used, and is defined as a programmable traffic control device that can display most combinations of characters and symbols to present messages to motorists. Numerous CMS technologies are currently utilized throughout Virginia. These procedures are intended to be utilized regardless of the sign technology. In addition, these procedures shall be in effect and applicable to both permanently mounted CMS as well as portable or trailer-mounted CMS located or operated on VDOT maintained roadways. CMS equipment and the messages it displays must quickly relay concise and meaningful information to motorists. The Manual on Uniform Traffic Control Devices (MUTCD) in Section 1A.02 states that to be effective, a traffic control device should meet five basic requirements: A. Fulfill a need; B. Command attention; C. Convey a clear, simple meaning; D. Command respect from road users; and E. Give adequate time for proper response. Design, placement, operation, maintenance, and uniformity are aspects that should be carefully considered in order to maximize the ability of a traffic control device to meet the five requirements listed in the previous paragraph. Vehicle speed should be carefully considered as an element that governs the design, operation, placement, and location of various traffic control devices, including CMS. CMS operators must ensure that messages are precise and meaningful and are updated as conditions change. Occurrences will arise when a CMS could be used for two or more situations at the same time. The CMS operator will display the higher priority message based on proximity of the sign to the event, volume of traffic potentially affected, and reliability of the information. Basic CMS message content should include the what (situation the motorist will encounter), where it is located, and an action the motorist should take. CMS shall be used in a manner consistent with MUTCD Chapter 2L Changeable Message Signs.

5 The Field Operations Section of the VDOT Operations Division, with input from the Regional Transportation Operations Managers (RTOM) Committee and Traffic Engineering Division, shall be responsible for making any updates, exceptions, or revisions to this memorandum. Under an agreement made with the State Traffic Engineer, on January 31, 2013, this policy, upon its official release, effectively supersedes and rescinds Traffic Engineering Division Numbered Memorandum MM Document Map The CMS Policy describes the acceptable and unacceptable uses of CMS, roles and responsibilities, and definitions. Figure 1 shows the relationship of the CMS Policy to the CMS Message Guidelines and several process documents. Not all the process documents have been completed. Figure 1: VDOT's Changeable Message Sign (CMS) Document Map 3. Responsibility for Operation of CMS 3.1 Transportation Operations Center (TOC) Transportation Operations Center (TOC) personnel shall oversee the operation of CMS on roadways under its jurisdiction The TOC shall have full operational control of all permanently mounted CMS within that Region; except those located at special facilities, such as tunnels and weigh stations, where the special facility operations center may control the CMS specifically related to that facility.

6 3.1.3 Regardless of who is assigned this operational responsibility, 24-hour/7- day control shall be maintained All authorized users must be trained to ensure that proper procedures are followed and appropriate messages are displayed at all times Any use of CMS within VDOT right of way (no matter the ownership of the CMS) shall adhere to the CMS Policy, CMS Message Guidelines and Process documents. 3.2 Regional Transportation Operations Manager (RTOM) Serve a primary point of contact regarding the interpretation of this Policy, Message Guidelines and Process Maps Ensure those trained to program messages on CMS have the skills required and assist with the training and development for other construction or Residency staff and use used in accordance with this Standard Operating Procedure. 3.3 Duty Officer Maintain situational awareness regarding current messages posted on CMS for messages of statewide importance. 3.4 State Operations Engineer Provide guidance on CMS usage and interpretation of or exception to this policy as requested Approve statewide traffic driver safety campaign requests, coordinate as needed with VDOT Public affairs and VDOT executive management, and determine appropriate and consistent statewide messages for these campaigns. 3.5 Residency Administrator, District Land Development Staff, Level II Commander, On-Scene VDOT Incident Commander, and Construction Inspectors Review all CMS messages within area of responsibility to ensure they comply with the CMS Policy, CMS Message Guidelines and Process Map. 4 Inoperable and / or Sign Malfunctions The Regional TOC and RTOM have the responsibility to keep CMS operational at all times. TOCs are required to report device outages, system outages, sign failures and power outages that have significant impact as determined by the RTOM to the District Duty Officer. If any permanent CMS becomes inoperable, a portable CMS may be used until the permanent sign becomes operational. If a permanent CMS is expected to remain inoperable for longer than fifteen (15) days, a static sign may be installed notifying motorists of the inoperable condition. (see TE Memorandum 335) The RTOM will also be required to report the inoperability of this sign and expected repair date to the

7 District Duty Officer. This provision also relates to new CMS that are physically installed but not yet under VDOT control. 5 Acceptable CMS Usage The essential function of CMS is to convey timely and important en-route and roadside information to motorists and credibility is the foundation upon which any successful CMS program is built. VDOT has established acceptable CMS uses to provide for statewide consistency in order to meet motorist expectations on information about traffic conditions throughout the Commonwealth. The remainder of this section details acceptable uses of CMS. 5.1 Blank Signs A blank sign shall be viewed as a valid message, telling motorists that there is no unusual travel information to relay. Conditioning motorists to this use of signs provides the greatest potential for driver compliance. Unless a CMS is displaying a message in accordance with this section, the sign shall remain blank. 5.2 Traffic Incident Situations One of the most important uses of CMS is alerting motorists to lane closures due to traffic incidents. Within these instructions, a traffic incident will be defined as any unexpected situation that reduces roadway capacity or significantly impacts the flow of traffic Incident types include, but are not limited to: Accidents Disabled vehicles Debris on the road, impacting one or more lanes of travel Vehicle or brush fires Shoulder activity (police activity) Any traffic incident is acceptable for a message. Depending on the location, severity, and duration of the incident, messages may be displayed several hundred miles in advance of the scene. As a normal practice, messages should not be displayed if the sign is such a distance away from the affected area that full capacity is restored before motorists reading the sign would be impacted. Conversely, if the incident is confined to an adjoining route (e.g., US Route 1, US Route 17) and motorists reading the sign would be affected, a message should be displayed Should a situation arise whereby multiple incidents are downstream from a sign, CMS shall alert motorists to the closest incident unless conditions warrant otherwise.

8 5.3 Roadway Construction and Maintenance Work Zone Activities CMS have a wide variety of uses for temporary work zone applications. Example situations include, but are not limited to, the following: Lane and/or shoulder closures Lane width restriction Roadway or ramp closures Areas of significant queuing or delays Changes in roadway alignment or surface conditions Changes in traffic patterns Detours/alternate routes Advance notice of new traffic control devices The current edition of the Virginia Work Area Protection Manual shall be referenced for proper use of the Portable CMS (PCMS) in work zone applications. PCMS shall not be a substitute for devices required by the Virginia Work Area Protection Manual. 5.4 Display of Future Roadwork Traffic-related information that provides advance notice of future roadwork requiring lane closures may be displayed, but shall be replaced by current information whenever applicable. Advance notification should not be given more than six (6) days prior to the roadwork unless approved by the RTOM. Every effort should be made to display the days of the week (e.g., TUES-FRI). However, there may be a special situation that requires calendar dates. Advance notice messages have lower priority to messages that impact the immediate safety and operation of the roadway. 5.5 Adverse Weather, Environmental, and Roadway Conditions CMS may be used to display adverse weather, environmental (ozone alerts), or roadway conditions. Information must be confirmed either from personnel on-scene, roadway weather data, The Department of Environmental Quality or the National Weather Service. In general, weather information should be location specific and not readily apparent to motorists. Proper messaging may include fog, smoke, flooding, major snowstorms, icy roadway, high cross winds, and severe weather warnings. CMS may also be used to advise of specific recommendations due to the weather or roadway conditions (e.g., tire chains or snow tires). 5.6 Other Sources of Traveler Information Motorists only have a brief period of time to read and understand CMS messages. If extensive travel information must be conveyed, CMS should refer motorists to Highway Advisory Radio (HAR), 511 Virginia and/or local media. Messages referring motorists to HAR are only to be posted in

9 areas where HAR is readily accessible and functioning properly. CMS messages shall not be allowed to solely promote a traveler information service. 5.7 Special Events CMS and PCMS may be used to help alleviate major traffic problems generated by special events (e.g., sporting events, festivals, auto races, graduations, etc.). VDOT prohibits the display of advertising messages on any CMS and PCMS; therefore, messages related to special events shall only use generic terms describing the event. CMS usage of this type must be coordinated by the RTOM or their designated TOC Operations Manager with the event organizers. The RTOM or the RTOM s designee has the authority and accountability to approve such requests. At the discretion of the RTOM, the RTOM or RTOM s designee will request the review and approval from the State Operations Engineer or designee for anything that does not meet the CMS Policy. This will assure that planned operations of the 511 services and Highway Help line are scheduled accordingly. Furthermore, CMS operators must remain available and in contact with on-scene personnel to ensure message accuracy. This is especially important when CMS are used in conjunction with alternate route/parking strategies CMS may be used to inform drivers of other transportation opportunities for visitors to the special event (i.e. shuttle parking). CMS messages may also advise through-drivers of adverse traffic conditions created as a result of special event traffic or conditions, or to reroute. 5.8 Traffic Detours Alternate Routes - CMS messages may be used when a complete road closure is not required however, it is desirable to detour traffic to alternative routes. This process should be used only under the following circumstances where the CMS operator has current and continuously updated knowledge of the traffic conditions on the alternative route; and where the alternate route will result in a significant savings in time for the detoured motorists Detours- CMS and PCMS messages should be used when a complete road closure is required. Traffic detours to specific routes shall only be warranted if positive route guidance is provided to motorists along the alternate route in the form of: A properly marked detour or guide signs to the major destination Law enforcement or traffic control personnel are positioned at critical locations along the detour route to control and guide traffic 5.9 Display of Future Special Events That Adversely Affect Travel CMS and PCMS may be used to relay traffic-related information in advance of future special events that will adversely affect travel (e.g., concerts, auto races, festivals, etc.) or that require closing streets or

10 highways (e.g., parades, bike races, marathons, etc.) Advance notification should not be given more than six (6) days prior to the event unless approved by the RTOM. Days of the week (e.g., TUES-FRI) shall be displayed. Advance notice messages have lower priority to messages related to current incidents that impact the safety and operation of the roadway Display of Travel Times An evolving use of CMS is to display the travel time from the CMS to a given point downstream. Motorists who regularly use the section of roadway will be able to judge the level of delay and make decisions regarding alternate routes This technology is currently being used in the Eastern and Northern Regions. The Operations Division has developed a SOP on travel time usage for CMS. The plan is to employ this technology statewide in the future Displaying Messages for Other States or Transportation Agencies CMS may be used to display traffic-related messages for other States and transportation agencies. It is acceptable to display messages about traffic conditions in other states and the District of Columbia if the information is credible and relevant and has the potential to impact motorists traveling through Virginia. The RTOM or designee is authorized to post messages related to work zone or incident management coverage. Any other multi-state messaging request shall be forwarded to the Central Office Duty Officer for review and approval and coordinated with neighboring jurisdictions (Districts, Regions or States). The priority for displaying messages shall remain in the control of VDOT. All efforts must be made to keep the information current and accurate Emergency Messages CMS may be used in times of emergency to convey critical information. Messages related to homeland security, Amber Alerts and law enforcement request are examples of such emergency situations. The Emergency Message Process shall be followed CMS advisory messages of this type are to provide sufficient and concise information while ensuring safe and efficient traffic flow. Messages must be transportation related or convey specific emergency conditions that require motorist action. All emergency messages must follow the Emergency Message Process Special emergency requests by law enforcement officials must follow the Emergency Message Process Priority for displaying messages and specific wording shall remain in VDOT s control. If extensive emergency information must be conveyed, CMS should refer motorists to 511 Virginia, HAR or local media.

11 The Amber Alert /Senior Alert plan is a valuable tool used to help law enforcement agencies protect our children and older adults. The Virginia Amber Alert/Senior Alert plan has been developed to include VDOT assistance in order to provide valuable information to motorists (refer to the Amber Alert policy). In addition, if the VSP are able to provide license plate information for the suspect vehicle, that information is to be displayed on appropriate functionally capable CMS along the corridors requested by the VSP. The Amber Alert/Senior Alert Process shall be followed Blue Alerts - The purpose of the Virginia Blue Alert plan is to broadcast critical information of an offender(s) who has killed or critically injured a law enforcement officer, and that if not apprehended immediately would pose a significant risk to the public. The information would be broadcast in a timely manner, to the general public via VDOT s Changeable Message Signs (CMS) and other highway advisory methods. The Blue Alert process shall be followed Ozone Advisory Messages Ozone forecasts are issued on hot summer days for most of Virginia. From May through September, these forecasts are available from the Virginia Department of Environmental Quality Monday through Friday afternoon for the following day. Measures must be implemented on Code Red Air Quality Actions days and are strongly recommended to be voluntarily implemented on Code Orange Air Quality Action Days VDOT will support this effort in declared areas, by displaying messages that will advise motorists of the air quality condition, and promote strategies to reduce vehicle emissions Ozone advisory messages have lower priority to messages that impact the safety and operation of the roadway Permanent signs that are in use to convey timely and important en-route and roadside information more than 30% of the time will not be used to display ozone messages Refer to Ozone Advisory Process for message content and notifications Safety Campaigns CMS messages related to traffic/motorists safety campaigns may only be displayed as supplements to specific regional, statewide, or national traffic/driver safety media campaigns on the same topic or to address a specific operational/safety problem affecting the system (eg. Series of fatal crashes on Interstate due to unbelted drivers, distracted driving, etc.). Message wording must clearly relate to the applicable campaign.

12 The campaign should be less than two (2) weeks. Safety message should be limited in duration during daylight hours and should not be displayed during peak travel periods Safety campaign messages have lower priority to messages that impact the safety and operations of the roadway Permanent signs that are in use to convey timely and important en-route and roadside information more than 30% of the time will not be used to display safety messages in order to minimize the negative impact on traffic flow Prior to being displayed on a CMS, a traffic/motorists safety campaign must be approved by the Regional Operations Director for regional campaigns or OSD Division Administrator for statewide/nationwide events or designee. Coordination is required with District Public Affairs for regional messages and Office of Communications for statewide/national messages for situational awareness and coordination with other public information Test Messages It is sometimes necessary to display messages on a CMS to assure correct operations or burn-in a new sign. Acceptable test messages should either use a generic message understood by VDOT staff the sign us under testing (eg. TRAFFIC INFO DIAL 511 ) or state TEST within at least one frame of the posted message. Test messages should be limited to off-peak hours and be generic to avoid confusion with other messages. In the event of a disaster or emergency situation, RTOM s will work with the sign contractor s still under acceptance testing to interrupt the test message and display the emergency information VDOT Public Hearings It is acceptable to use portable CMS in advance of any public hearing related to a VDOT project. The portable CMS should be placed in the general vicinity of the project but not more than 2 miles from the project site. 6 Unacceptable CMS Usage Any CMS usage not identified under Section 5.0 of these instructions is prohibited. Any questionable messages or unusual circumstances should first be directed to the RTOM s or their designee. Further interpretation will be directed to the State Operations Engineer or designee. Although not all-inclusive, several specific improper uses of CMS in Virginia are listed below.

13 6.1. Advertising Messages advertising any product, service, event or political party are prohibited. Special event messages shall be designed such that advertising is not embedded in the message Public Service Announcements Messages designed to relay a public service announcement (catch phrases, greetings, jingles, general safety statements, non-vdot public meetings, etc.) shall not be permitted on CMS. Safety campaign messages, as described in Section 5.14 and VDOT public hearings as described in Section 5.16, may be acceptable Routine Congestion Messages During daily peak traffic periods, CMS will only be used to advise motorists of unusual conditions (e.g., accidents, lane blockages, 10 minute delay, slow traffic next 3 miles, etc.) Generic descriptors (e.g., CONGESTION AHEAD) should not be used to advise motorists of normal, daily traffic congestion during peak travel hours. Specific information regarding the level of congestion is acceptable; (e.g. SLOW TRAFFIC TO I-264) until the implementation of the statewide travel time program, at which time, further guidance will be provided Contact Information As prescribed by the MUTCD, no phone numbers greater than 3 digits, web sites, or mailing addresses shall be displayed on CMS. This is a distraction to motorists Any reference to 911 and #77 is prohibited unless specifically requested by the law enforcement or the dispatching agency that would answer the resulting calls Date/Time Messages giving only the date and/or time are not allowed on CMS. If no message is to be displayed, the sign shall remain blank Static Signing A CMS shall not be used to replace a static sign. 7.0 Exceptions 7.1 Exceptions to this policy will be considered and must be coordinated through the RTOM, who will elevate to the State Operations Engineer or designee for final approval.