Flagger Safety and Alternatives to Manual Flagging

Ullman, G. L.; Levine, S. Z.; Booker, S. C. · 1987 · ROSA P / Texas Transportation Institute. Texas A&M University

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Summary

This 1987 report by the Texas Transportation Institute addresses the significant safety risks associated with manual flagging at highway work zones. Motivated by the high frequency of severe accidents involving flaggers, the study aimed to identify alternatives to manual flagging and evaluate techniques to improve driver awareness when flaggers are necessary. The research was sponsored by the Texas Department of Highways and Public Transportation and conducted in cooperation with the Federal Highway Administration. The study employed a multi-phase methodology. First, researchers analyzed 28 flagger accidents from 1983–1985 to identify severity patterns and contributing factors. Second, observational studies were conducted at six work zones to assess operational hazards, revealing that inadequate sight distance, improper signing, poor flagger communication, and incorrect flagger positioning significantly increased danger. Third, the report evaluated specific alternatives and supplemental devices through field studies and theoretical analysis. These included self-regulated traffic operations using yield signs, portable traffic signals, and supplemental devices such as oversized STOP/SLOW paddles and temporary rubber stop bars. Key findings indicated that flagger accidents are often severe, with 39% resulting in death or incapacitating injury, and elderly drivers were disproportionately involved. For attention-getting purposes, devices like arrowboards, changeable message signs, and flashing beacons were identified as effective substitutes for flaggers. For controlling alternating one-way traffic on two-lane highways, two primary alternatives were assessed. Self-regulated traffic using yield signs was deemed suitable only for short work zones (under 700 feet) on low-volume roads, with specific volume-length criteria established to ensure safe gap selection. Portable traffic signals were found to offer substantial savings in flagger labor costs with only minimal increases in motorist delay. However, field studies noted occasional driver non-compliance with red signals, raising concerns about potential head-on collisions. Additionally, supplemental devices—specifically freestanding oversized STOP/SLOW paddles and reusable stop bars—successfully reduced the variability in stopping distances, thereby improving driver compliance and flagger safety. The significance of this research lies in its practical recommendations for reducing flagger exposure to danger. The report concludes that while flaggers remain effective, their use should be minimized in favor of automated or self-regulating systems where geometric and traffic conditions permit. When flaggers are required, the integration of supplemental visual aids like oversized paddles and stop bars is recommended to enhance driver understanding and reduce the likelihood of accidents. The study provides specific criteria for implementing these alternatives, offering a framework for safer work zone traffic management.

Key finding

Portable traffic signals provide substantial savings in flagger labor costs with minimal increases in motorist delay, while supplemental devices like oversized paddles and stop bars reduce variability in driver stopping distances.

Methodology

field_study

Provenance

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Summary generated by qwen3.6-27b-prismaquant on 2026-06-10; verification: verified.

Topics

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• emergency work zone conspicuity
• work zones
• signage environment