Appendix H - FHWA-IF-08-001 - Office of Highway Policy Information

Toll Facility Safety Study Report to Congress

Appendix H - Feedback on Strategies from Workshop

**Potential Strategies to Improve Worker Safety When Accessing Toll Booths**
Strategy	Description	Rankings from Workshop Participants and Comments on Effectiveness²⁰	Concerns / Constraints
Providing Direct Access to Booths
Provide physical by-passes of toll lanes for collectors.	Use tunnels or bridges to reduce the need for workers to cross lanes.	Effective if used properly. However, ranked last (tied) of all solutions considered by workshop participants to reduce worker exposure.	Very expensive. Tunnels present problems with flooding. Even when available many workers do not use them.
Provide break areas on either side of large plazas.	Some agencies with large numbers of plaza lanes or with staffed lanes on both outside lanes (with ETC in the middle) have placed break rooms on either side of the plaza to minimize the number of lanes that must be crossed.	Considered highly effective (though costly) where appropriate. Due to the fact that this strategy would only be required in limited situation, it was not selected by any workshop participants in their "top three list" of the most effective strategies for reducing worker exposure.	Can be expensive to implement.
Locate all dedicated ETC lanes to the far left side of the plaza, eliminating the need for workers to cross ETC lanes.	Locate all dedicated ETC lanes to the far left of the plaza so that collectors can avoid crossing these lanes.	Highly effective where feasible. Ranked 3rd (tied) of 30 strategies considered by workshop participants for reducing worker exposure, with 4 of 20 participants selecting it as the most effective solution.	Will not work where ETC lanes are required on the right to facilitate exiting on down-stream ramps close to plaza.
Eliminate all mixed mode lanes to reduce uncertainty of driver behavior.	Many toll collectors consider mixed-mode lanes (with both ETC and cash customers) to be more dangerous to cross than cash or ETC lanes because it is more difficult to predict driver behavior. Consequently, some agencies have given consideration to eliminating these lanes.	Does increase worker safety, but may reduce throughput. Ranked 15th (tied) of 30 strategies considered by workshop participants for reducing worker exposure.	May not be feasible at certain plazas due to space constraints, traffic volumes, mix of ETC and cash traffic. May cause increased weaving and lane changing behavior.
Crossing Procedures
Require workers to make eye contact with motorists in approaching vehicles.	Require workers to make eye contact with drivers before crossing.	Considered very effective by agencies that have this rule. Was ranked as the number 1 strategy out of 30 strategies considered by workshop participants for reducing worker exposure.	None.
Require workers to wear safety vests at all times.	A number of agencies require workers to wear safety vests at all times while on shift. This is thought to reduce incidences of workers failing to put their vest on when they exit a booth or break area.	Highly effective where enforced. Ranked 2nd (tied) of 30 strategies considered by workshop participants for reducing worker exposure.	None.
Prohibit workers from crossing any high-speed ETC lanes.	Many agencies prohibit workers from crossing high-speed ETC lanes under any circumstances.	Effective, but may not always be practical. Ranked 7th (tied) of 30 strategies considered by workshop participants for reducing worker exposure.	There may be no other way for collectors to reach staffed lanes.
Prohibit workers from crossing in front of any vehicle larger than an SUV.	After experiencing a fatality when a collector crossed in front of a large truck that was not able to see the worker, the agency now prohibits workers from crossing in front of any vehicle larger than an SUV.	Highly effective, where practical. However, was not selected as a top three strategy to mitigate worker exposure by any of the workshop participants. Ranked last (tied).	May not be practical depending on placement of truck lanes.
Require workers to signal intention to cross.	Require workers to signal their intention to cross to the approaching driver and to wait for acknowledgement from that driver.	Considered very effective. Ranked 3rd (tied) of 30 strategies considered by workshop participants for reducing worker exposure.	None.
Prohibit workers from crossing BEHIND vehicles.	A number of agencies instruct their employees not to cross behind vehicles in case the vehicle backs up.	Common practice with a number of agencies, but not all. Was not selected as a top three strategy to mitigate worker exposure by any of the workshop participants. Ranked last (tied).	None.
Require toll collectors to use stop paddles when crossing.	Issue handheld STOP sign paddles to workers to hold while crossing lanes.	A number of agencies that have tried this have not found it to be effective. Gave a false sense of security. Ranked near the bottom of all strategies considered by workshop participants for reducing driver exposure.	Requires workers to be properly trained. Difficult to hold paddle while also holding cash drawer.
Instruct workers to provide verbal cues to motorists when crossing.	Instruct workers to give verbal cues to motorists when crossing (e.g., yell "I'm Crossing!").	Considered moderately effective, mitigated by noisy environment. Ranked 13th (tied) of 30 strategies considered by workshop participants for reducing worker exposure.	May be too noisy to practically implement.
Promote hands-free crossing for workers.	Require workers to have at least one hand free during crossing so that they can signal to drivers if need be.	Considered moderately effective. Ranked 13th (tied) of 30 strategies considered by workshop participants for reducing worker exposure.	None.
Issue shoulder bags to workers to use when crossing.	Issue shoulder bags to collectors for hands-free crossing, and consider high-visibility color such as orange.	Helps to keep hands free. Ranked 9th (tied) of 30 strategies considered by workshop participants for reducing worker exposure.	None.
Instruct workers to use mutual support when crossing.	Instruct workers to use mutual support when crossing lanes (i.e., the collector in the booth directs motorists to stop for the crossing collector).	Considered moderately effective. Is simply done as a matter of course (without formal instruction) at a number of facilities. Ranked 9th (tied) of 30 strategies considered by workshop participants for reducing worker exposure.	None.
Escort employees across lanes.	A small number of agencies have, or have considered, a police escort or crossing guard for crossing lanes.	Effective at reducing worker risk, but very cost prohibitive. One agency that has implemented this strategy reports that in 42 years, no employee has been hit while crossing a lane. Was not selected as a top three strategy to mitigate worker exposure by any of the workshop participants. Ranked last (tied).	Very cost prohibitive. May simply expose another employee.
Crosswalks
Strategically locate crosswalks.	Carefully consider the location of crosswalks (i.e., upstream of the booth to provide improved sight lines, downstream of the booth so that vehicles stop prior to crossing, or well downstream of the booth to provide for longer stopping distance) to encourage workers to cross where most appropriate for the environment at that particular plaza.	Two workshop participants selected this in their ranking of the top 3 most effective strategies for reducing worker exposure, placing the overall ranking of this strategy toward the middle of the 30 strategies considered. Effectiveness is somewhat dependent on plaza configuration.	May be constrained by physical layout of plaza.
Paint pedestrian crosswalks at the plaza.	Designed to warn the public and to ensure that workers cross at the same dedicated location.	Encourages collectors to cross at a consistent location. Ranked 9th (tied) of 30 strategies considered by workshop participants for reducing driver exposure.	Need to be re-painted periodically. May give the collector a false sense of security.
Warnings to Employees
Use ManSaver^TM Bars to slow collectors down while crossing the plaza, possibly with chains at the sides of the crossing area to channelize workers.	These bars, patterned after those used on fire trucks, require a worker to stop and lift the bar to enter a lane but to easily push to exit.	Ranked 7th (tied) of 30 strategies considered by workshop participants for reducing worker exposure.	Some concerns that they may be difficult to open when workers' hands are full. Chains may hinder a quick escape in the event of an emergency. Adding bar or chains may pose a hazard in that collectors' bags and/or clothing may get caught as they are crossing.
Use visual cues to remind workers of the danger of crossing lanes.	Agencies use a variety of visual cues to remind workers of the danger of crossing lanes including: Signs (e.g., BE ALERT HIGH SPEED TRAFFIC, red and white warning signs at crossing points). Pavement markings (e.g., LOOK and WATCH FOR CARS) to remind collectors about the dangers of crossing lanes. Warning stickers (e.g., on the ground outside the booth doors, or notes such as WEAR YOUR VEST on the booth door).	May be most effective for newer employees. Ranked near the bottom of all strategies considered by workshop participants for reducing driver exposure.	No real constraints, although workers may become complacent and ignore signs and markings over time.
Visually remind workers when they are entering ETC and mixed use lanes.	Label ETC and mixed use lanes differently from cash only lanes to remind collectors that vehicles may not stop in these lanes (e.g., with purple lights).	Ranked near the bottom of all strategies considered by workshop participants for reducing driver exposure.	Concerns that this strategy may give workers a false sense of security when crossing the non-ETC lanes.
Garments for Improved Worker Visibility
Consider higher visibility vests.	Use vests with battery-powered flashing lights.	Was not selected as a top three strategy to mitigate worker exposure by any of the workshop participants. Ranked last (tied).	Most plazas are well-lit, approach may not be cost effective.
Consider 5-pt breakaway safety vests.	Safety vests have a 5-point breakaway system designed to come off with minor or no injury if the vest becomes hooked on an object.	Ranked low by workshop participants considering strategies to reduce worker exposure, with only one participant placing this strategy in their top three.	Cumbersome to put on.
Maintenance and Lane Closures
Instruct workers to look back over their shoulder at traffic after manually closing a lane.	Require workers to look back over their shoulder every few steps after manually closing a gate.	Mixed assessment of effectiveness, some concern about workers tripping. Was not selected as a top three strategy to mitigate worker exposure by any of the workshop participants. Ranked last (tied).	Concerns about tripping.
Require attenuator trucks for all maintenance work requiring a lane closure.	Some agencies require the use of attenuated trucks for all maintenance work requiring a lane closure.	Highly effective when implemented, but often not feasible. Ranked 3rd (tied) of 30 strategies considered by workshop participants for reducing worker exposure.	Very expensive. Time consuming to wait for attenuator truck.
"Your Speed" signs on attenuator trucks.	Use digital "Your Speed is..." on the rear of attenuator trucks to protect maintenance workers.	Was not selected as a top three strategy to mitigate worker exposure by any of the workshop participants. Ranked last.	Very expensive.
Require maintenance workers to use a "buddy" system.	Require maintenance workers to use a "buddy" system (i.e., no maintenance work is performed alone) so that one worker can watch for traffic.	Considered very effective, but may be cost prohibitive in certain situations. Ranked 9th (tied) of 30 strategies considered by workshop participants for reducing worker exposure.	Cost.

Potential Strategies to Reduce Worker Exposure to the Environment
Strategy	Description	Rankings from Workshop Participants and Comments on Effectiveness²¹	Concerns / Constraints
Mitigating Air Quality Issues
Install CO monitors in booths or test for CO periodically.	A few agencies now have CO monitors in their booths.	Ranked 6th (tied) out of 15 strategies considered by workshop participants for reducing environmental impacts for collectors.	Must be maintained and tested periodically.
Install positive air in all booths.	Positive air systems are designed to extract fresh air from outside of the immediate vicinity of the booth (e.g., above the toll booth structure) where the air is not contaminated with vehicle emissions or particulate matter such as dust and delivering it to the booth at a pressure which allows for positive pressure within the booth, thereby ensuring that air is forced out of the toll booth window. Cold/heat stress can also be controlled by these systems.	15 out of the 20 workshop participants rated this strategy among the top 3 most effective strategies for reducing environmental impacts for collectors, with 7 participants rating it as the most effective strategy.	Expensive.
Install air conditioning in booths.	Install air conditioning in booths in warmer climates and consider having individual controls inside booths.	Ranked 3rd out of 15 strategies considered by workshop participants for reducing environmental impacts for collectors.	Adds costs for installation and maintenance. Without individual controls it is difficult to calibrate the systems to individual preferences.

Potential Strategies to Improve Ergonomics for Workers
Strategy	Description	Rankings from Workshop Participants and Comments on Effectiveness²²	Concerns / Constraints
Equipment
Provide collectors with ergonomic stools.	Nearly all agencies provide some sort of ergonomic stools to their collectors. Some have gone toward a "sit/stand" stool. Others have found that swivel chairs with surrounding foot rests are preferable to their collectors.	8 of the 20 workshop participants rated this strategy among the top 3 most effective strategies in the "ergonomics" category.	Difficult to find stools that suit all collectors. Avoid chairs with flexible backs as this encourages collectors to lean back and can result in serious injury.
Install shelving and hooks in the booths.	Many agencies expressed the importance of keeping the booth floor free of all items that can pose a tripping hazard for workers. Having sufficient shelving and clothing hooks in the booth can facilitate this.	Although none rated this strategy among the top 3 most effective strategies in the "ergonomics" category, most workshop participants commented that this was a low-cost, common sense strategy. Important to avoid blocking collectors' view out of the booth.	None.
Provide collectors with anti-fatigue mats in the booths.	Anti-fatigue mats in the booths can reduce fatigue caused by standing for long periods on a hard surface.	14 of the 20 workshop participants rated this strategy among the top 3 most effective strategies in the "ergonomics" category, with 5 participants rating it as the most effective strategy.	Can present a tripping hazard - important to ensure that the mat is securely fastened to floor and that the chair legs cannot puncture the mat.
Install convex mirrors on the side of booths.	A small convex mirror on the booth can allow collectors to monitor vehicles exiting the booth without turning.	Most workshop participants commented that this was a low-cost strategy that made sense.	Could pose a problem with trucks and large vehicles hitting the mirror at facilities with narrow lanes.
Provide ergonomic training to collectors.	Providing ergonomic training to collectors can reduce repetitive motion injuries.	8 of the 20 workshop participants rated this strategy among the top 3 most effective strategies in the "ergonomics" category.	Can be expensive.
Booth Design
Provide collectors with adjustable height terminals, cash drawers, and/or chairs.	Providing collectors with adjustable height equipment can reduce workplace injuries associated with reaching. Especially helpful for tall or short employees.	Ranked 3rd out of 9 strategies considered by workshop participants in the "ergonomics" category.	Can be expensive.
Use bumped-out Dutch doors on booths.	Booths with a bumped-out door design can allow collectors to see oncoming traffic and to reach vehicles without having to lean quite so far out of the booth.	Ranked 2nd out of 9 strategies considered by workshop participants in the "ergonomics" category.	Lane widths at older plazas may constrain the width of the booth.
Policies and Procedures
Implement policies to reduce injury due to vehicles pulling into or away from the booth.	To reduce injuries due to pulled arms as vehicles pull away from the plaza, one agency has made it a policy that collectors perform validation as their last step in the transaction process so that the gate stays down until the transaction is complete. Another has implemented a policy that collectors are not allowed to place their hands outside of the booth until after the vehicle has come to a complete stop.	8 of the 20 workshop participants rated this strategy among the top 3 most effective strategies in the "ergonomics" category.	Practicality of the validation policy depends on treadle placement.

Potential for Reducing Worker Risk of Assault
Strategy	Description	Rankings from Workshop Participants and Comments on Effectiveness²³	Concerns / Constraints
Lock booth doors	Instruct collector to keep the booth door locked at all times when inside the booth.	N/A	May restrict collectors' ability to rapidly exit the booth in an emergency.
Have periodic cash drops during shifts.	May reduce the temptation for robbery.	N/A	None.
Install cameras in and around booths.	Provides both a deterrent and investigation tool.	N/A	Expensive to install and monitor.
Install bullet-resistant glass on booths.	Offers additional protection to collectors against assault and guns.	N/A	Very expensive. Limited effectiveness as collectors must keep at least part of the booth open to interact with public.
Provide bullet-resistant vests to collectors.	One toll agency began offering collectors the option of wearing bullet-resistant vests after one of their collectors was shot.	N/A	Expensive. May be uncomfortable to wear.
Install covert panic alarms in all booths.	Allows for collectors to summon help either from nearby supervisor or law enforcement. Particularly helpful at remote locations with a single collector.	N/A	Potential issue with false alarms.

Potential Strategies to Reduce Merging and Lane-Changing Behavior
Strategy	Description	Rankings from Workshop Participants and Comments on Effectiveness²⁴	Concerns / Constraints
Position ETC lanes on both the right and the left side of plazas with nearby on or off ramps.	In situations where a plaza is quickly followed by an off-ramp, it can be dangerous for high-speed ETC traffic to have to quickly weave across multiple lanes of traffic to utilize the ramp. This is exacerbated in areas with high percentages of truck traffic.	There is considerable debate about this practice. While most consider that the practice will increase driver safety there are concerns that it can decrease worker safety - forcing collectors to cross high-speed lanes to reach staffed booths. Ranked among the top 3 most effective merging mitigation strategies by 8 of 20 workshop participants.	In many locations the practice is prevented by physical constraints. Can lead to increased worker exposure to high-speed lanes. Concerns that it may be confusing to drivers. Requires additional signs. Additional ETC lane may be blocked by queues from cash lanes. Could create additional, unexpected weaving problems.
Select location of truck-only lanes at plaza based on feedback from truck drivers.	A number of agencies face difficulties with trucks having to merge from shoulder travel lanes to median lanes to access ETC and then merging back across traffic. To address this concern, the Illinois Toll Authority recruited a number of commercial truck drivers and asked them to drive their facility and indicate where they would ideally like to access the plaza. Truck-only lanes were then situated based in part on these responses.	While workshop participants felt that the practice of situating truck-only lanes based on user feedback was effective, there were concerns about the use of truck-only lanes in general. Was rated among the top 3 strategies for mitigating merging incidents by only 3 of the 20 workshop participants.	Identified constraints identified referred to the general practice of truck-only lanes and centered on limited space to implement such an operation.
Channelization of Traffic
Channelize traffic downstream of the plaza with delineators.	While many facilities actively separate traffic upstream of the plazas, a smaller number make use of delineators (and to a lesser extent physical barriers) to similarly maintain separation for some length downstream of the plaza.	Would be most effective if the delineated section extended far enough to allow vehicles from the cash and mixed lanes to accelerate to match the speeds of the ETC traffic. Rated among the top 3 most effective strategies to mitigate merging concerns by 8 of the 20 workshop participants, although none rated it as the most effective strategy.	Many plazas simply do not have the space. As with all delineators introduces worker safety issues associated with placement and maintenance.
Provide a buffer lane between ETC and cash customers.	A small number of agencies use buffer or unused lanes between ETC and cash or mixed lanes. As more and more customers move to ETC and fewer lanes are required at plazas, this is becoming more feasible.	Rated as the 2nd or 3rd most effective strategy to address merging by 5 out of the 20 workshop participants and as the most effective strategy by 1 participant. Felt to be more economical than the use of physical barriers.	Many plazas simply do not have the space to support unused lanes. Violators may try to use the buffer lane in an attempt to bypass the toll. May confuse patrons. If used intermittently may create an unsafe situation for workers during buffer lane closing and opening.
Use physical barriers to separate approaching high-speed traffic from cash or mixed lanes.	A number of agencies use physical separation such as concrete barriers to separate high-speed ETC traffic from lower speed mixed or cash traffic. The length of separation and the type of barrier varies greatly among the facilities employing this technique.	18 of the 20 workshop participants rated this strategy among the top 3 most effective for reducing merging incidents, with 15 of the participants ranking it as the most effective strategy.	Barriers themselves could become safety hazards. Installation and maintenance costs are high. Customers may inadvertently become "trapped" in the wrong lane and try to back up. Implementation may be restricted by lane width considerations. May present challenges to snow removal.
Use physical barriers to prevent vehicles in left-most lane from making unsafe maneuvers to reach downstream off-ramps.	In situations where off-ramps are immediately downstream of a plaza, some authorities physically prevent vehicles in left-most lanes from merging across traffic to reach the off-ramp. Other authorities use striping and signs to try to enforce such restrictions; however, this was felt to be less effective than physical barriers.	Felt to be effective only with physical barriers versus lane striping, barrels, cones, or delineators. Was only rated among the top 3 most effective strategies for mitigating merging incidents by 5 of the 20 workshops participants, with none rating it as the most effective strategy.	Concerns that it may confuse patrons and cause them to back up.
Use high-visibility flexible delineators to separate traffic lanes.	This method of separating traffic lanes makes use of physical delineators in the roadway that are less expensive to deploy and that do not provide the same physical separation as barriers. Over time agencies have evolved to increasingly higher visibility delineators such as wide sergeant stripe panels and arrangements of multiple delineators in bowling pin configurations.	Considered more cost-effective to deploy then physical barriers. Was rated among the top 3 most effective strategies to mitigate merging incidents by 9 out of the 20 workshop participants, with 3 ranking it the most effective strategy.	Agencies reported a number of concerns, associated with maintenance of delineators including cost and worker safety.
Use pop-up delineators to reduce worker exposure at plazas requiring lane changes throughout the day.	Pop-up delineators are systems where the delineators reside in the pavement and can be automatically activated or raised to demark lanes or support lane closures.	Only 4 of 20 workshop participants rated this strategy among the top 3 strategies for mitigating merging incidents. Those facilities that employed the technique, such as the NY State Thruway, were very pleased with their operation and felt that the use of the delineators helped to reduce the worker exposure that is necessitated by manual systems.	Some concerns about operation in areas with snow and ice. However, the NY State Thruway's compressed air system appears to have overcome this operational challenge. Felt to be an expensive solution that introduces its own maintenance concerns.

Potential Strategies to Reduce Speeding
Strategy	Description	Rankings from Workshop Participants and Comments on Effectiveness²⁵	Concerns / Constraints
Policies and Enforcement
Implement an automated enforcement program.	A number of agencies use a combination of an automated video enforcement system to identify violators and a program to issue warning letters and suspend ETC for repeat violators.	Anecdotally, sites that employ this technique seem to have the lowest incidence of speeding. 16 out of the 20 workshop participants rated this strategy among the top 3 most effective strategies for reducing speeding.	Significant cost. Legislation may make this prohibitive in some States. Somewhat restrictive as most agencies are only able to revoke tags that they have issued.
Increase enforcement presence at plazas.	Some agencies have increased enforcement presence in the vicinity of their plazas in an attempt to reduce speeds through the plaza. In many cases agencies report that even the presence of an unattended patrol car is quite effective.	11 out of the 20 workshop participants rated this strategy among the top 3 most effective strategies for reducing speeding. Several of the workshop participants spoke very highly of this strategy from their experience.	Can be costly depending on what arrangement the agency has with the police. Some plazas may not have sufficient space downstream of the plaza to safely pull over offenders.
Double fines for speeding in toll areas.	A number of agencies have worked to enact legislation allowing them to enforce double fines for speeding in toll areas.	7 out of the 20 workshop participants rated this strategy among the top 3 most effective strategies for reducing speeding.	Must be accompanied by enforcement. Not feasible in States where legislation does not allow agency to enforce speeds around plazas.
Physical Treatments
Install gates downstream of the plaza.	Depending on the configuration, gates downstream of the plaza can help control speeds. In most cases, the gates lift automatically as an ETC vehicle approaches, so that ETC customers can proceed safely through the plaza without stopping as long as they maintain a reasonable speed - typically below 15 miles per hour.	Most workshop participants agreed that gates are an effective way of controlling speeds.	Not feasible at plazas where throughput is an issue. Maintenance can be an issue as gates can be hit by inattentive motorists. Inoperable gates can pose a safety hazard requiring toll collectors to exit their booth to lift the gate.
Install rumble strips or saw cuts in pavement upstream of the plaza.	Rumble strips in advance of the plaza can be used to draw motorists' attention to their speed and can also provide toll collectors with an auditory warning that a vehicle is approaching.	9 out of the 20 workshop participants rated this strategy among the top 3 most effective strategies for reducing speeding, with 6 participants rating it as the most effective strategy. One workshop participant reported that thermoplastic rumble strips are somewhat expensive and that there are associated maintenance costs, but that they are still worthwhile since they are so effective.	Noise can be an issue for nearby residents. Plastic rumble strips can pose problems with snow plow operations.
Other Mitigation Strategies
Install transverse pavement markings in advance of the plaza.	Transverse yellow pavement markings with progressively closer spacing gives motorists the illusion that they are increasing speed when in fact they are traveling at a constant speed.	May become less effective over time as motorists become accustomed to the markings.	One workshop participant noted that the pavement markings may lead to further driver confusion in that they may make the lines separating lanes less visible.
Ensure that speed limits at plazas are consistent with nearby toll authorities.	Some agencies have found that ensuring consistency in speed limits across agencies can help with speed limit compliance.	Most workshop participants felt that this is an important strategy as it maintains driver expectation.	May not work in areas where plaza configuration and traffic patterns are quite different from one plaza to another. Interagency coordination can be critical to achieving this.
Post speed limits at each lane.	Some agencies post speed limits at each lane to remind motorists of the speed limit.	Especially helpful at plazas where the speed limit varies by lane.	Sign overload was a concern expressed by some workshop participants.
Implement a public outreach campaign targeting speeders.	Some agencies employ targeted outreach to their customers to remind them of the dangers of speeding through plazas. This can be done cost-effectively through mailers to ETC customers.	Was not selected by any workshop participants as among the top 3 most effective strategies for reducing speeding.	Can be costly depending on how it is done. Difficult in areas with high tourist traffic.
Paint the speed limit on the pavement in advance of the plaza.	Some agencies reinforce the speed limit by painting it on the pavement in advance of the plaza.	Several workshop participants noted that this is a cost effective solution. Mixed debate as to effectiveness. Some agencies that had tried this did not find it to be particularly effective while others found it to be quite effective.	Maintenance. May not be as effective in areas where weather issue cause problems (i.e., sanding or snow plowing).
Use regulatory speed limit signs at plazas.	Some agencies have found that changing speed limit signs from advisory to regulatory (black on white) has made a difference in speed limit compliance.	Was selected by only one workshop participants as among the top 3 most effective strategies for reducing speeding.	Must be accompanied by enforcement.
Use digital signs displaying real-time speeds at the plaza.	Many agencies use temporary or permanent digital signs displaying real-time speeds to motorists. Some use these signs in the area upstream of the plaza while others use them at the plaza itself.	6 out of the 20 workshop participants rated this strategy among the top 3 most effective strategies for reducing speeding. Several participants noted that they had tried this and that it works. One noted that speeds in their ETC lanes were reduced by 1mph, and the other noted that they saw a 70% reduction in speeders. One agency uses it in their express lanes only (where the speed limit is posted at 45 mph) and has found it to be very effective. One workshop participant commented that they had tried a number of strategies, but it was not until they installed the "Your Speed" indicator signs that they saw a drop in the number of speeders. Several participants noted that the signs are more effective when the agency uses temporary trailer-mounted signs and moves them around to different locations periodically.	Some agencies have experienced issues with motorists speeding up when these signs are present to see how high of a speed the sign will display. Sign accuracy was a concern mentioned by a few workshop participants since motorists are not always sure it is "their" speed that was shown. Sign overload was a concern mentioned by a few workshop participants. One workshop participant noted that placing the signs near a fixed speed limit sign caused confusion for motorists at their plaza.

Potential Strategies to Reduce Driver Confusion and Driver Inattention
Strategy	Description	Rankings from Workshop Participants and Comments on Effectiveness²⁶	Concerns / Constraints
Clearly Identifying ETC Lanes
Supplement brand name signs such as "SunPass" with generic signs such as "Pre-PAID ONLY" to label ETC lanes.	In areas with heavy visitor traffic there are concerns that many travelers may not be familiar with local ETC product names (such as EZ Pass or SunPass) and may inadvertently enter ETC lanes as a result.	Ranked 5th of 16 strategies considered for reducing driver confusion by workshop participants.	Can add to information overload. Difficult to select the appropriate term, e.g., "Pre-PAID" may not be universally understood by drivers either.
Paint lane numbers on the pavement in advance of the plaza.	To provide drivers more time to maneuver toward the appropriate lanes within a plaza some agencies have undertaken the practice of painting lane numbers into the pavement along the approach to a plaza with corresponding numbers over the various booths.	Particularly effective in areas where site lines to plaza are compromised (e.g., along curves). Some agencies that have implemented the practice question its effectiveness; however, customers seem to like it (according to satisfaction surveys). Strategy was ranked in the middle of the pack (7th of 16 strategies considered for reducing confusion) by workshop participants.	Concerns that it may lead to information overload.
Differentiate ETC lanes from cash or mixed lanes with special pavement markings.	A number of agencies, such as the NY State Thruway use unique pavement markings (such as purple paint) to differentiate ETC from cash or mixed lanes.	Strategy was ranked 4th out of 16 strategies considered to reduce driver confusion. Agencies that have implemented the approach feel that it is effective and have received positive customer feedback on the practice.	Maintenance of paint / markings, especially in cold weather environments. Restricts ability to re-configure lanes.
Informing Motorists of Changing Conditions
Use variable message signs (VMS) to inform drivers of plaza conditions.	An increasing number of agencies are using variable message signs on the mainline to inform drivers of unexpected traffic conditions (e.g., incidents, maintenance, etc.). Few agencies use these signs specifically for plaza conditions.	Effective method of informing travelers of unexpected conditions. Received the highest number of top three votes as an effective strategy for reducing driver confusion (out of 16 strategies considered).	Requires active surveillance and management. Expensive to install and maintain.
Use digital signs in advance of plaza to indicate which lanes are currently ETC.	For plazas where lane configurations change throughout the day at least one agency has implemented the use of digital signs in advance of the plaza that indicate which lanes are ETC.	Ranked 2nd of 16 strategies considered for reducing driver confusion by workshop participants. Helps to move lane selection decision back to mainline lanes.	Can create additional confusion. Must be actively updated. Added maintenance costs and issues.
Position maintenance trucks with flashing lights and flaggers at end of long queues.	Use high visibility maintenance trucks and / or flaggers at the end of long, unexpected queues that extend beyond the sight of the plaza.	Considered to be very effective when implemented, but ranked low by workshop participants.	Resource-intensive.
Create a buffer lane between bi-directional traffic where physical barriers do not exist.	A number of plazas change the number of bi-directional lanes throughout the day and thus do not have physical separation between the travel directions. The use of a buffer lane (or unused lane) can help to separate these opposing traffic flows.	Felt to be an effective strategy if traffic demands and plaza capacity supported taking one lane out of operation. Tied for 15th of the 16 strategies considered for reducing driver confusion by workshop participants.	Many plazas do not have the excess capacity to support this.
Informing Motorists of Lane Closures
Include signs on gates upstream of the plaza to convey to motorists when a lane is closed.	While a number of agencies use no more than a traffic cone to indicate lane closures, others use more conspicuous indicators such as STOP signs, LANE CLOSED signs, large red X signs, etc.	Signs are felt to work best in concert with physical gates. Strategy received the 5th highest (out of 16) number of votes for most effective strategies by workshop participants.	Signs may be difficult to affix current gates. May be expensive to retro-fit.
Mitigating Sensory Overload
Determine sign messaging based on feedback from motorists.	Make use of surveys, focus groups and other formal feedback mechanisms to design and select sign messages.	Ranked last of the solutions considered for reducing driver confusion by workshop participants.	Costly. Difficult to capture visitors' inputs.
Ban the use of advertisements on or near plazas.	Agencies have conflicting policies with regard to advertisements in and around toll plazas, with some even having ads on the booths themselves. This has created questions about information overload and caused a number of agencies to ban such signs.	Debates continue as to whether or not such advertisements contribute to unsafe conditions; however, the majority of agencies agree that having fewer signs contributes to increased safety. Ranked in the bottom 3rd of all strategies considered for their effectiveness in reducing driver confusion by workshop participants.	Banning advertising reduces revenues.
Increasing Conspicuity of Facilities and Workers
Use signs to warn drivers about the potential for workers in the roadway.	Many agencies use signs such as SLOW DOWN - PROTECT OUR WORKERS or pedestrian crossing signs to protect workers.	Ranked 3rd of 30 solutions considered by workshop participants for reducing driver exposure. Collectors like them.	Adds to visual clutter and driver confusion.
Use white strobe lights at plazas to highlight facilities during inclement weather.	A number of agencies use special lighting, such as strobe lighting, to increase the conspicuity of toll plazas, especially during inclement weather such as fog.	May be most effective in areas with severe weather such as fog. Ranked 9 of 16 (tied) strategies considered for reducing driver confusion by workshop participants.	None identified.
Reducing the Incidence of Vehicles Stopping or Backing Up in High-Speed Lanes
Use a tall barrier wall to prevent motorists in high-speed lanes from stopping and crossing lanes to staffed booths.	Drivers who inadvertently enter ETC lanes or whose transponder malfunctions often exit their vehicles and cross lanes to reach staffed booths. The installation of taller barrier walls can help to cut down on this dangerous practice.	Agencies that have implemented this practice have found it to be very effective in preventing customers from both crossing lanes and from stopping in the first place. Ranked 2nd of 16 (tied with one other) strategies considered for reducing driver confusion by workshop participants. As a by-product, may cut down on rubber-necking.	May limit ability to detect incidents and monitor ETC lanes.
Eliminate violation warning signs.	Some agencies have eliminated or reduced the conspicuity of toll violation warning signs in ETC lanes to discourage non-ETC drivers from stopping and either backing up or exiting their vehicles to reach a staffed booth.	Ranked second last (tied) of all strategies considered for reducing driver confusion by workshop participants. Practice may help to reduce unsafe actions, but does not eliminate them.	Questions as to effectiveness of approach. Some concerns about legislative consequences of not providing warnings of violation prosecution.
Post STAY IN VEHICLE signs at booths.	Such signs should help to prevent drivers from exiting their vehicles in ETC lanes and attempting to walk to staffed lanes.	Doubts as to the effectiveness of such signs. Relatively low cost. Ranked 7th (tied) of 16 solutions considered for reducing driver confusion by workshop participants.	Creates additional sign "clutter." Questions as to whether or not patrons actually read them.
Install a PA system at unmanned booths to enable communication with drivers.	In order to address drivers that stop at unmanned booths some agencies have installed public address systems	Considered to be very effective by agencies that have implemented. Ranked 6th of 16 strategies considered by workshop participants for reducing driver confusion.	May not be cost-effective. May not work very well in noisy environments.

²⁰ Within each strategy grouping, workshop participants were asked to select and rank the three strategies that they believed to have the greatest potential to improve safety for workers and customers at toll plazas. Some of this ranking information is provided here; the full details of the rankings are provided in Appendix G. Note that at the workshop, the strategies discussed here were presented in a category entitled "Improving Safety Issues Associated with Worker Exposure to Vehicles." [ Return to note 20. ]

²¹ Within each strategy grouping, workshop participants were asked to select and rank the three strategies that they believed to have the greatest potential to improve safety for workers and customers at toll plazas. Some of this ranking information is provided here; the full details of the rankings are provided in Appendix G. Note that at the workshop, the strategies discussed here were presented in a category entitled "Environmental Issues." [ Return to note 21. ]

²² Within each strategy grouping, workshop participants were asked to select and rank the three strategies that they believed to have the greatest potential to improve safety for workers and customers at toll plazas. Some of this ranking information is provided here; the full details of the rankings are provided in Appendix G. Note that at the workshop, the strategies discussed here were presented in a category entitled "Ergonomics." [ Return to note 22. ]

²³ Within each strategy grouping, workshop participants were asked to select and rank the three strategies that they believed to have the greatest potential to improve safety for workers and customers at toll plazas. Some of this ranking information is provided here; the full details of the rankings are provided in Appendix G. Note that at the workshop, the strategies discussed here were presented in a category entitled "Assault", but the comments were not able to be recorded as there was a power outage during this portion of the workshop due to a power outage. [ Return to note 23. ]

²⁴ Within each strategy grouping, workshop participants were asked to select and rank the three strategies that they believed to have the greatest potential to improve safety for workers and customers at toll plazas. Some of this ranking information is provided here; the full details of the rankings are provided in Appendix G. Note that at the workshop, the strategies discussed here were presented in a category entitled "Merging and Lane Changing." [ Return to note 24. ]

²⁵ Within each strategy grouping, workshop participants were asked to select and rank the three strategies that they believed to have the greatest potential to improve safety for workers and customers at toll plazas. Some of this ranking information is provided here; the full details of the rankings are provided in Appendix G. Note that at the workshop, the strategies discussed here were presented in a category entitled "Speeding." [ Return to note 25. ]

²⁶ Within each strategy grouping, workshop participants were asked to select and rank the three strategies that they believed to have the greatest potential to improve safety for workers and customers at toll plazas. Some of this ranking information is provided here; the full details of the rankings are provided in Appendix G. Note that at the workshop, the strategies discussed here were presented in a category entitled "Driver Confusion and Distraction." [ Return to note 26. ]

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Bryan Cawley
Office of Asset Management
202-366-1333
E-mail Bryan

Updated: 04/07/2011