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Strategies for Work Zone Transportation Management Plans (2020)

Chapter: Chapter 11 - Public Awareness Strategies

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Suggested Citation:"Chapter 11 - Public Awareness Strategies." National Academies of Sciences, Engineering, and Medicine. 2020. Strategies for Work Zone Transportation Management Plans. Washington, DC: The National Academies Press. doi: 10.17226/25929.
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Suggested Citation:"Chapter 11 - Public Awareness Strategies." National Academies of Sciences, Engineering, and Medicine. 2020. Strategies for Work Zone Transportation Management Plans. Washington, DC: The National Academies Press. doi: 10.17226/25929.
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Suggested Citation:"Chapter 11 - Public Awareness Strategies." National Academies of Sciences, Engineering, and Medicine. 2020. Strategies for Work Zone Transportation Management Plans. Washington, DC: The National Academies Press. doi: 10.17226/25929.
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Suggested Citation:"Chapter 11 - Public Awareness Strategies." National Academies of Sciences, Engineering, and Medicine. 2020. Strategies for Work Zone Transportation Management Plans. Washington, DC: The National Academies Press. doi: 10.17226/25929.
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Suggested Citation:"Chapter 11 - Public Awareness Strategies." National Academies of Sciences, Engineering, and Medicine. 2020. Strategies for Work Zone Transportation Management Plans. Washington, DC: The National Academies Press. doi: 10.17226/25929.
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Suggested Citation:"Chapter 11 - Public Awareness Strategies." National Academies of Sciences, Engineering, and Medicine. 2020. Strategies for Work Zone Transportation Management Plans. Washington, DC: The National Academies Press. doi: 10.17226/25929.
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Suggested Citation:"Chapter 11 - Public Awareness Strategies." National Academies of Sciences, Engineering, and Medicine. 2020. Strategies for Work Zone Transportation Management Plans. Washington, DC: The National Academies Press. doi: 10.17226/25929.
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Suggested Citation:"Chapter 11 - Public Awareness Strategies." National Academies of Sciences, Engineering, and Medicine. 2020. Strategies for Work Zone Transportation Management Plans. Washington, DC: The National Academies Press. doi: 10.17226/25929.
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Suggested Citation:"Chapter 11 - Public Awareness Strategies." National Academies of Sciences, Engineering, and Medicine. 2020. Strategies for Work Zone Transportation Management Plans. Washington, DC: The National Academies Press. doi: 10.17226/25929.
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Suggested Citation:"Chapter 11 - Public Awareness Strategies." National Academies of Sciences, Engineering, and Medicine. 2020. Strategies for Work Zone Transportation Management Plans. Washington, DC: The National Academies Press. doi: 10.17226/25929.
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Suggested Citation:"Chapter 11 - Public Awareness Strategies." National Academies of Sciences, Engineering, and Medicine. 2020. Strategies for Work Zone Transportation Management Plans. Washington, DC: The National Academies Press. doi: 10.17226/25929.
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183 Public awareness strategies refer to the various methods of communicating with road users, the general public, communities, businesses, appropriate public entities, and other identified stakeholders. Public awareness strategies consist of two strategies: • Program-level public information strategies • Project-level public information strategies 11.1 Program-Level Public Information Strategies 11.1.1 Description Program-level public information strategies raise general awareness about motorist and worker safety and mobility issues and the need for drivers to be vigilant while driving in work zones. These strategies are not for one specific project, but are usually implemented for an entire state, district, or geographic region. Examples of program-level public information strategies are work zone safety and education campaigns, work zone safety curricula, and lane closure websites. 11.1.2 When to Use Program-level public information strategies can be used any time since they are designed to inform the public generally, as opposed to providing traveler information. However, scheduling these strategies during construction season is most likely to maximize the exposure of the message to the target audience. 11.1.3 Benefits Individual program-level public information strategies provide the following benefits: • Work zone safety and education campaigns and curricula – Reduce driver frustration and road rage–type aggression, and may also lead to safer driving behaviors – Encourage general safety when driving around work zones – Help travelers know what signs mean and what resources there are for advanced planning • Lane closure websites – Provide commuters with up-to-date traffic and construction information – Give the public advance warning to make decisions – Promote diversion of traffic to alternate routes – Decrease public dissatisfaction with work zones C H A P T E R 1 1 Public Awareness Strategies

184 Strategies for Work Zone Transportation Management Plans 11.1.4 Expected Effectiveness There is no published evidence correlating the effect of program-level public information strategies on work zone safety or mobility. However, providing updated information on work zone activities reduces driver frustration and results in increased goodwill for an agency. 11.1.5 Crash Modification Factor A CMF is not applicable for this strategy. 11.1.6 Implementation Considerations Work zone safety and education campaigns may not reach most of the targeted audience if appropriate dissemination methods are not used. A range of media may be needed, including television, radio, newspapers, social media, and other measures deemed appropriate for a particular geographic area. Further, projects will also need to target information to those who speak languages other than English or require alternative formats to accommodate disabilities. Ensuring that all motorists have updated and reliable information on work zone activities can be time consuming. 11.1.7 Design Features and Requirements Work zone safety campaigns are designed to create awareness among road users that work zones require more caution; the campaigns can be implemented using websites and media campaigns (social media, radio, and television). These campaigns target such work zone safety issues as flagger instructions, early merging, and driver awareness and comprehension of work zone messages. Educating drivers, pedestrians, and other road users on the meaning of work zone TCDs and appropriate actions to take in work zones can be achieved through training videos and brochures. Education tools may include meanings of work zone TCDs and instruction on what actions drivers are to take when they encounter specific TCDs. A lane closure website may include details on location of closure; description of lane closure type; direction of closure; number of lanes in direction of closure for weekday, weekend, and night construction; and the date and time work will begin and end. 11.1.8 State of the Practice The typical program-level public information strategies are work zone safety and education campaigns, work zone safety curricula, and lane closure websites. Selected examples of state DOT practices in the aforementioned categories follow. 11.1.8.1 Work Zone Safety and Education Campaigns The National Work Zone Awareness Week (NWZAW) is an example of a work zone safety and education initiative at the national level. For the past 20 years, the NWZAW has been taking place each year in the spring to bring attention to motorist and worker safety and mobility issues in work zones. It is held in partnerships between FHWA, AASHTO, state DOTs, national road safety organizations, private companies, and individuals. National Go

Public Awareness Strategies 185 Orange Day, introduced in 2016 and held on the Wednesday of NWZAW, is a staple of NWZAW and encourages individuals and organizations across the country to wear orange to express their support for work zone safety. The activities conducted as part of the NWZAW are documented and available widely on the NWZAW web page (http://www.nwzaw.org/), and thus are not covered in this section. In addition to a national event conducted each year, most states host their own NWZAW events. For example, OKDOT, as part of the 2019 NWZAW, launched the “In the Game of Cones, Safety Always Wins” campaign, a playoff of the popular television show Game of Thrones. As part of this campaign, OKDOT developed and posted content on Facebook and Twitter feeds, as well on digital billboards in both Oklahoma City and Tulsa metro areas during April 1–14, 2019 (Figure 11.1). Along with events associated with the NWZAW, some agencies have made efforts to emphasize work zone safety more broadly by hosting awareness events throughout the year. Work Zone Wednesday, a weekly effort to remind the public to drive carefully in work zones, is an example of one such event. The Michigan Work Zone Safety Task Force was officially launched in October 2018 as a collaborative effort between MDOT and Michigan’s heavy/highway construction industry. It is the goal of the task force to reduce and eliminate work zone injuries and deaths for con- struction workers and motorists. As part of this effort, the Work Zone Wednesday campaign was launched in February 2019. Michigan’s campaign is a weekly Facebook and Twitter effort to get drivers’ attention and make them think about safety behind the wheel. Figure 11.2 shows example posts from the 2019 campaign. In 2016, OKDOT began Work Zone Wednesday messaging during its Work Zone Awareness campaign. The first 2 months proved to be so successful and memorable with drivers that OKDOT decided to carry on this weekly tradition for years in order to improve driver safety habits. Every 2 months, a committee of OKDOT employees plans messages that are informa- tional or seasonal or have to do with a current pop culture trend. The message is displayed every Wednesday on the 52 digital messaging boards throughout the state, reaching more than 3.1 million drivers. Figure 11.3 shows example posts from the 2019 campaign. Figure 11.1. Oklahoma DOT NWZAW campaign (Credit: Oklahoma DOT).

186 Strategies for Work Zone Transportation Management Plans 11.1.8.2 Minnesota Work Zone Safety Curricula The MnDOT Work Zone Safety Awareness Program (WZSAP) is a public education program that promotes safe driving in winter and summer highway work zones. The WZSAP is a free multimedia program that includes slides, overheads, a PowerPoint presentation, and video segments. Most of the 30- to 40-minute presentation offers motorists guidance on navigating work zones. Additional information on the WZSAP can be found at http://dot.state.mn.us/ const/wzs/speakers.html. The Minnesota Local Technical Assistance Program also provides a free online tutorial, Orientation to Work Zone Safety, designed to provide work zone employees with an under- standing of the most basic aspects of safety in a work zone and encourage them to develop safe habits. Orientation to Work Zone Safety begins with how a worker should prepare before entering the work zone, and it ends when the worker is off site and out of the work zone area. Additional information on the program can be found at http://www.mnltap.umn.edu/training/ online/workzone/index.html. March 20, 2019 Post April 24, 2019 Post May 29, 2019 Post Figure 11.3. Oklahoma DOT Work Zone Wednesday example posts (Credit: Oklahoma DOT). Feb 6, 2019 Post May 1, 2019 Post Oct 30, 2019 Post Figure 11.2. Michigan Work Zone Wednesday example posts (Credit: Michigan Work Zone Safety Task Force).

Public Awareness Strategies 187 Figure 11.4. Florida lane closure information system (Credit: FDOT). 11.1.8.3 Lane Closure Websites A lane closure website summarizes planned lane closures for public information, listing the routes involved as well as the closure start and end dates, in both text and graphical forms. Several states have developed lane closure websites to disseminate accurate work zone lane closure information to the public. For example, the Wisconsin Lane Closure System web site is found at https://transportal.cee.wisc.edu/closures/. FDOT developed the Lane Closure Information System (https://www.fdotlcis.com/) in 2010. Figure 11.4 shows a snapshot of FDOT’s lane closure system. Similarly, Caltrans uses a planned lane closure website (https://lcswebreports.dot.ca.gov/main? district=Statewide) to report lane closure status. Figure 11.5 shows a snapshot of a Caltrans lane closure system. 11.1.9 Cost The budget for program-level public information strategies depends on several factors: the agency’s in-house capability, selected strategies that are already established within the agency and can be readily used, and the role of partners.

188 Strategies for Work Zone Transportation Management Plans 11.1.10 Resources and References FHWA. Guidelines on Improving Work Zone Safety Through Public Information and Traveler Information. No. DTFH61-06-G-00007, FHWA, U.S. DOT, March 2011. FHWA. Work Zone Public Information and Outreach Strategies, FHWA-HOP-05-067, FHWA, U.S. DOT, November 2005. Fry, P. J. Safety Evaluation of Billboard Advertisements on Driver Behavior in Work Zones, Ohio University, May 2013. Gallo, A. A. Development of Performance Assessment Guidelines for Virginia’s Work Zone Transportation Manage- ment Plans, University of Virginia, May 2012. Higgins, L., A. Nelson, T. Geiselbrecht, and B. Ullman. Understanding the Decision-Making Process for Drivers Faced with Lane Restriction or Closures on Wisconsin Highways, 0092-11-15, Wisconsin Department of Transportation, February 2013. IDOT. Best Practices in Public Involvement, Indiana Department of Transportation, 2014. Minooei, F., N. Sobin, P. Goodrum, and K. Molenaar. Community Outreach Tools and Strategies for Accelerated Highway Construction Projects Implementation Guide, TPF-5(260), University of Colorado Boulder, January 2016. O’Leary, A. A., C. A. Kyte, E. D. Arnold, Jr., and M. A. Perfater. An Assessment of the Virginia Department of Transportation’s Public Involvement Practices and the Development of a Public Involvement Toolkit: Phase II, VTRC 03-R17, Virginia Department of Transportation, June 2003. Ross, J. H., and A. J. Pietz. Maximizing Investments in Work Zone Safety in Oregon, OR-RD-12. Oregon Department of Transportation, May 2011. Figure 11.5. Caltrans lane closure system (Credit: Caltrans).

Public Awareness Strategies 189 Sanders, D. A., J. J. Sluss, Jr., and S. Radhakrishnan. Deployment Plan 511 Traveler Information Services, OTC Report 2005-1, Oklahoma Transportation Center, January 2005. Shaw, J. W., T. Klockziem, and D. A. Noyce. Overview of State DOT Online Work Zone Safety Public Service Announcements (PSAs), Paper No. 15-4135, University of Wisconsin–Madison, January 2015. Vermont Agency of Transportation. Engaging the Public Outreach Guidelines for Projects, Plans, and Other Agency Activities, Vermont Agency of Transportation, June 2017. 11.2 Project-Level Public Information Strategies 11.2.1 Description Project-level strategies are used to communicate with road users, the general public, area residents and businesses, and appropriate public entities about a specific road construction project and its implications for safety and mobility in the area. 11.2.2 When to Use All work zones can incorporate some form of project-level public information strategy. For small, short-duration work zones, the public information and outreach effort may be limited to routine efforts (e.g., press releases, community meetings). Longer, more disruptive projects may warrant more elaborate public information strategies and may require significant data collection and analysis. The size and nature of a public information and outreach campaign will be determined by the anticipated effects of the project. Agencies might consider a range of elements when determining the size and nature of the public information strategies to be implemented: • Traffic delay and safety at the corridor and network levels, including effects on parallel corridors and alternate routes. • Disruptions of other modes of transportation, including pedestrian and bicycle traffic and transit. • Other public and private entities (such as schools and universities). • Planned special events (such as sporting events, holiday parades, and concerts). • Businesses and residences. A combination of several strategies may make sense for some projects, while only one or two of the strategies may be necessary for other projects. Typically, there will be a significant amount of interaction between different means of communication. For example, informational materials such as brochures and fact sheets can be posted on project websites, making them more widely accessible. Ultimately, these agency-provided project materials may reach the public indirectly through reporting in newspapers, on radio, and on television. Ultimately, the decision about which mechanisms to use for a specific project depends on the target audiences, message to be communicated, available budget, agency resources and expertise with these strategies, and other factors. 11.2.3 Benefits The use of project-level public information strategies provides the following benefits: • Raises awareness of the special safety and mobility challenges that the public will encounter in a specific work zone. • Creates traffic avoidance during construction (i.e., reduces demand). • Increases road-user awareness (of, e.g., road closure, pedestrian/bike detour).

190 Strategies for Work Zone Transportation Management Plans • Decreases impatient driver behaviors (e.g., speeding and road rage). • Builds trust with the public and promotes project support. Table 11.1 provides a summary of the benefits and implementation considerations for the individual project-level public information strategies. 11.2.4 Expected Effectiveness It is difficult to separate the effectiveness of individual project-level public information strategies because individual strategies are not mutually exclusive or cumulative. However, a 2015 pooled-fund study (Minooei et al. 2016) indicated static signs and variable sign boards have the highest usage rate among outreach tools used to increase public awareness. This can be justified in that one of the main functions of these tools is to notify motorists of safety issues in work zones. The next three most frequently used tools of communication are project websites, social media, and radio advertisements (Figure 11.6). The same study (Minooei et al. 2016) also found mobile applications to be the most effective outreach tools in reducing traffic demand (Figure 11.7). This can be attributed to their ability to provide real-time information that allows motorists to plan in advance of their travels. The next most effective tools for traffic avoidance are social media, project-specific television advertise- ments, interviews with television news reporters, and text message alerts. Strategy Benefits Project Website Access to real-time information Ability to access all project- related materials in one place May be easy to update of website’s existence. Information Significant effort will be required to inform public needs to be current and accurate (static and real-time). Costs vary based on complexity of website. Mechanisms to collect data or information may need to be created to feed site. A process for tracking public use is necessary. Public Meetings, Workshops and Community Events Good exposure to public Gives agency a chance to raise credibility with public Gives public a chance to voice their concerns Need to make sure right audience is at the events. Need to be wary of making “empty promises.” Need to keep database of stakeholders updated. Paid/Earned Media Can reach many people at one time Same ad can be used in many different newspapers Agency controls content and timing of the message May only target local/regional motorists. Declining readership of print media. Costly to implement. Coverage more likely for mega projects. Social Media Low cost Easy to distribute and update Printed Materials • Low cost Easy to distribute Often targets local motorists only Outreach limited to those who download and use social media apps. . Needs to be designed in a manner that makes drivers want to read the information. E-mail/Text Alerts Low cost Can reach many people at one time for the service. Need to determine criteria for when to send alerts. Audience is limited to those people who sign up Table 11.1. Summary of individual project-level public information strategies.

Public Awareness Strategies 191 Figure 11.6. Effectiveness of outreach tools to increase awareness (Credit: University of Colorado). Figure 11.7. Effectiveness of outreach tools to create traffic avoidance (Credit: University of Colorado).

192 Strategies for Work Zone Transportation Management Plans 11.2.5 Crash Modification Factor A CMF is not available for this strategy. 11.2.6 Implementation Considerations Projects need to start developing and implementing public information strategies well before road construction begins and to monitor the effectiveness of the strategies throughout the life of the project. Successful deployments of public information strategies generally include the following key steps: Step 1. Determining the appropriate size and nature of the public information and outreach campaign. Step 2. Identifying resources necessary to support the campaign. Step 3. Identifying partners to assist in developing and implementing the campaign. Step 4. Identifying target audiences for the campaign. Step 5. Developing the messages for the campaign. Step 6. Determining communication strategies for disseminating the messages to the target audiences. Step 7. Determining communication timing for the campaign. Step 8. Evaluating the effectiveness of the campaign. 11.2.7 Design Features and Requirements The following are commonly used mechanisms to disseminate work zone project-level public information strategies: • Project website. Project-specific websites can provide both static and real-time information, including many other forms of project information, such as all types of written material, traffic camera images, travel times, photographs, maps, and links to other sources of infor- mation. Moreover, many features can be made interactive with links to map icons and pop-up textual information and camera views. • Public meetings, workshops, and community events. This strategy involves presenting project information to the public, the community, and businesses and soliciting their input concerning potential concerns, impacts, and management strategies. • Paid or earned media. Paid announcements of an upcoming major project may use news- paper, radio, or television ads. Paid advertisements can also be used for progress updates or to provide information regarding major changes to the work zone configuration. Agencies use free media (also known as earned media), such as news stories and traffic information, to the maximum extent. Large projects are typically considered newsworthy by local media outlets, so it is relatively easy to get news coverage. • Social media. Provide breaking traffic alerts and road closure information via social media (namely Facebook and Twitter). • Printed materials. Printed materials can include information on project phasing, events, and other important work zone details. They can be in the form of brochures, newsletters, flyers, fact sheets, or maps. Dissemination methods include mailing, hand delivering, placing in newspapers and on project websites, and distributing at public meetings, workshops, and community events. • E-mail and text alerts. Lane closures, delays, and incident/crash information can be distributed to travelers who have signed up for e-mail and text alerts. Information can be sent to an e-mail account or a cell phone.

Public Awareness Strategies 193 11.2.8 State of the Practice Examples of project-level public information websites follow: • Transform 66 Outside the Beltway, Virginia (http://outside.transform66.org/) • Improving 295, District of Columbia (https://www.improving295dc.com/) • Rehabilitation of the Whitney Young Memorial Bridge, District of Columbia (https://www. eastcapbridge.com/) 11.2.9 Cost The budget for a project-level public information strategy will depend on several factors, including the size and nature of the campaign, the communication strategies selected, whether the selected strategies are already established within the agency and can be readily used, and the role of partners. In general, expenditures for project-level public information strategies typically range from 0.3 percent to 1 percent of the entire project budget. 11.2.10 Resources and References FHWA. Guidelines on Improving Work Zone Safety Through Public Information and Traveler Information. No. DTFH61-06-G-00007, FHWA, U.S. DOT, March 2011. FHWA. Work Zone Public Information and Outreach Strategies, FHWA-HOP-05-067, FHWA, U.S. DOT, November 2005. Fry, P. J. Safety Evaluation of Billboard Advertisements on Driver Behavior in Work Zones, Ohio University, May 2013. Higgins, L., A. Nelson, T. Geiselbrecht, and B. Ullman. Understanding the Decision-Making Process for Drivers Faced with Lane Restriction or Closures on Wisconsin Highways, 0092-11-15, Wisconsin Department of Transportation, February 2013. IDOT. Best Practices in Public Involvement, Indiana Department of Transportation, 2014. Minooei, F., N. Sobin, P. Goodrum, and K. Molenaar. Community Outreach Tools and Strategies for Accelerated Highway Construction Projects Implementation Guide, TPF-5(260), University of Colorado Boulder, January 2016. O’Leary, A. A., C. A. Kyte, E. D. Arnold, Jr., and M. A. Perfater. An Assessment of the Virginia Department of Transportation’s Public Involvement Practices and the Development of a Public Involvement Toolkit: Phase II, VTRC 03-R17, Virginia Department of Transportation, June 2003. Sanders, D. A., J. J. Sluss, Jr., and S. Radhakrishnan. Deployment Plan 511 Traveler Information Services, OTC Report 2005-1, Oklahoma Transportation Center, January 2005. Shaw, J. W., T. Klockziem, and D. A. Noyce. Overview of State DOT Online Work Zone Safety Public Service Announcements (PSAs), Paper No. 15-4135, University of Wisconsin–Madison. January 2015. Vermont Agency of Transportation. Engaging the Public Outreach Guidelines for Projects, Plans, and Other Agency Activities, Vermont Agency of Transportation, June 2017.

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One of the ways a state department of transportation or other transportation agency can address work zone safety and other impacts is to develop and implement a transportation management plan (TMP).

The TRB National Cooperative Highway Research Program's NCHRP Research Report 945: Strategies for Work Zone Transportation Management Plans provides a practitioner-ready guidebook on how to select and implement strategies that improve safety and traffic operations in roadway construction work zones.

Supplemental materials to the report include NCHRP Web-Only Document 276: Evaluating Strategies for Work Zone Transportation Management Plans; fact sheets on ramp meters, reversible lanes, and truck restrictions; and guidebook appendices.

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