VIRGINIA DEPARTMENT OF TRANSPORTATION OPERATIONS DIVISION INSTRUCTIONAL AND INFORMATIONAL MEMORANDUM

Transcription

1 VIRGINIA DEPARTMENT OF TRANSPORTATION OPERATIONS DIVISION INSTRUCTIONAL AND INFORMATIONAL MEMORANDUM GENERAL SUBJECT: Changeable Message Signs NUMBER: IIM-OD SPECIFIC SUBJECT: Changeable Message Sign Usage Sunset Date/Expires: March 31, 2022 Implementation Date: April 1, 2017 DATE OF ISSUE: December 23, 2016 SUPERSEDES: IIM-OD Approval with Signature on file in office of the Operations Division: OPERATIONS DIVISION APPROVAL: Dean Gustafson, PE, PTOE State Operations Engineer Approval with Signature on file in office of the Traffic Engineering Division: TRAFFIC ENGINEERING DIVISION APPROVAL: Ray Khoury, PE State Traffic Engineer DIRECTED TO: District Maintenance Engineers Regional Operations Engineers/Directors Residency Administrators and Engineers Transportation Operations Centers Central Office and District Duty Officers

2 VDOT CMS Policy December 2016 Page 1 of 37 December 2016 VDOT CHANGEABLE MESSAGE SIGN (CMS) Policy

3 VDOT CMS Policy December 2016 Page 2 of 37 Contents 1. Introduction Purpose Usage Acceptable CMS Usage Blank Signs Travel Times Traffic Incidents Road/Ramp/Tunnel Closures and Moveable Bridge Operations Construction and Maintenance Activities HOV/HOT/Managed Lane Messages Emergency Messages Queue Warnings Unplanned and Emergency Roadwork Adverse Weather, Environmental, and Roadway Conditions Special Events Missing Person and LEO Alerts Future Roadwork Future Special Events That Adversely Affect Travel Ozone Advisory Messages Safety Campaigns Wildlife Warning Campaigns VDOT Public Hearings Messages for Other States/Facilities/Geographic Areas Messages for Other Transportation Modes Other Sources of Traveler Information In-Vehicle Displays Messages using graphic or symbols Test Messages Unacceptable CMS Usage Generic Congestion Messages Advertising Public Service Announcements Contact Information Date/Time Static Signing... 12

4 VDOT CMS Policy December 2016 Page 3 of Personnel Responsible for Use Determining Which CMS to Use MUTCD and Virginia Work Area Protection Manual Symbols, Color, and Graphics Inoperable Sign Guidance Message Priority Message Credibility Message Display Verification of CMS Message Determining Message Duration Post-incident Messaging Documentation of CMS Usage Messages Message Types Message Content Message Length Message Load and Unit of Information Message Format Message Phase Communicating Time or Date Urgency Diversions to Alternate/Other Routes Communicating Location and Distances Displaying Dynamic Features and Animation on CMS Blocked vs. Closed Abbreviations Guidance for Specific Message Types Travel Time Messages Missing Person and LEO Alerts Appendix A: Sample Message Library Appendix B: Foundational Documents Summary of Tables Table 1 -- CMS Message Priority Table 2 CMS Strategies to Increase Diversion Rates... 22

5 VDOT CMS Policy December 2016 Page 4 of 37 VDOT CHANGEABLE MESSAGE SIGN (CMS) GUIDELINES 1. Introduction Changeable Message Signs (CMS) are an important resource for the Virginia Department of Transportation (VDOT). These signs are a direct, visible information link between VDOT and motorists, and are the primary tool to communicate information about traffic and road conditions. CMS, Dynamic Message Sign (DMS), and Variable Message Sign (VMS) are terms that are often used interchangeably in the transportation industry to refer to traffic control devices that are capable of displaying one or more alternative messages. The term CMS best represents VDOT s use of these signs and is therefore used consistently throughout this document. The scope of this document covers CMS and portable CMS (PCMS) that are able and permitted to display a wide range of textual messages. These guidelines do not cover the following types of signs that convey limited dynamic information: Blank-out traffic control signs that are used solely to display a standard regulatory or warning message such as No Left Turn Lane Use Control Signals (see Section 4M of the Manual on Uniform Traffic Control Devices) OPEN/CLOSED message signs for facilities such as weigh stations Dedicated Dynamic Message Signs (DDMS) that display variable travel time information for destinations shown on a static portion of the sign Dedicated variable speed limit signs Signs with messages that are triggered by events such as excessive speed or over-height detection As a general rule, signs used exclusively for Maintenance of Traffic or in an automated manner are not covered by these guidelines. Several CMS display technologies are currently utilized throughout Virginia. The guidance in this document is based on VDOT s CMS best practices to date, findings from research conducted by the Virginia Transportation Research Council and other research institutions, and CMS policies from eight other states. The documents referenced in preparing these guidelines are listed in Appendix B. This document supersedes VDOT s 2004 Changeable Message Sign (CMS) Usage Procedure and supplants VDOT s Changeable Message Sign (CMS) Usage Instruction and Information Memorandum (IIM-OD-13-03, February 2013).

6 VDOT CMS Policy December 2016 Page 5 of Purpose The purpose of this document is to ensure uniformity and consistency in the use of all CMS that are operated within VDOT right of way. To be effective, a CMS should meet five basic requirements: 1. Fulfill a need; 2. Command attention; 3. Convey a clear, simple meaning; 4. Command respect from road users; and 5. Give adequate time for proper response. The primary purpose of any CMS is to provide information that supports quick and appropriate decisions by motorists in response to abnormal roadway, traffic, weather or security conditions. To be effective, CMS must provide timely, reliable, accurate and relevant information, and they must be operated properly. If CMS messages are inaccurate or unclear, preventable delays and increased risk to motorists and those working along the highway may occur. Motorists need to know what they should do and the reason for doing it upon reading a CMS message. 2. Usage This section discusses appropriate and inappropriate usage of a CMS. 2.1.Acceptable CMS Usage The essential function of a CMS is to convey timely, accurate, and important route information to motorists. The credibility of these messages is the foundation of a successful CMS program. VDOT has established acceptable CMS uses to provide for statewide consistency in order to meet motorist expectations and encourage motorist comprehension and response. This section discusses examples of acceptable uses of CMS. If any non-lane impacting message appears to be causing congestion immediately upstream of the sign, the sign should be blanked until the congestion clears Blank Signs A blank sign is a valid message during non-peak travel periods, informing 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 should remain blank Travel Times A primary use of CMS is to display the actual, predicted or estimated travel time from the CMS to a given point(s) downstream. Travelers on that section of roadway or upstream adjoining sections will then be able to judge the level of delay. During peak travel periods, there may be uncertainty about travel. A travel time message provides positive reinforcement to the motorist. Travel time information should be displayed if reasonably accurate times are available. To ensure accuracy, travel time information shall be displayed automatically as manual entry is labor intensive and prone to errors. Travel time messages should be displayed as the default message during peak travel periods (either daily, weekly, special holiday, or seasonally) unless a

7 VDOT CMS Policy December 2016 Page 6 of 37 higher priority message needs to be displayed. When a CMS is needed to display a higher priority message (lane impact message), operators should display a hybrid travel time message (if possible). A hybrid travel time message displays incident information on one phase and travel time information on the other phase. Further guidance on travel time messaging can be found in section Traffic Incidents One of the most important uses of CMS is alerting motorists to lane closures and blockages due to traffic incidents. A traffic incident is defined as any unexpected non-weather event on the roadway that reduces capacity or travel speeds. Incident types include, but are not limited to: Crashes Disabled vehicles Debris on the roadway, impacting one or more lanes of travel Vehicle or brush fires Shoulder activity, including emergency responder or security-related activity Hazardous material spill/release (chemical spill, oil spill, toxic cloud, refinery fire) Depending on the location, severity, and duration of the incident, messages may be displayed several miles in advance of the incident, even up to several hundred miles in advance for severe incidents. As a normal practice, messages should not be displayed if the incident or its residual congestion is expected to clear before motorists passing the sign will reach the incident. Conversely, if the incident is confined to an adjoining route (either Interstate or non-interstate roads) and motorists reading the sign may be impacted, a message should be displayed. Should a situation arise whereby multiple incidents are downstream from a sign, the CMS should alert motorists to the closest incident unless conditions warrant otherwise, for example the incident farthest away impacts travel much more severely. If the incidents have generated separate queues, and there is no CMS located between the first and second incident, then a twophase message may be used to alert motorists to both incidents Road/Ramp/Tunnel Closures and Moveable Bridge Operations Closures of roads, ramps, and tunnels, as well as the opening of a moveable bridge, are among the most significant operations VDOT undertakes that impact travel. CMS are a vital mechanism to inform the travelling public of both planned and unplanned closures of these facilities. Motorists must be informed of the closure, both scheduled and unscheduled, in order to prepare for delays and congestion, and to find alternate routes Construction and Maintenance Activities CMS have a wide variety of uses for managing traffic in and around work zones associated with construction and maintenance activities. Example situations where CMS messaging should be considered include, but are not limited to, the following: Lane and/or shoulder closures Lane width restrictions Roadway or ramp closures Areas of significant queuing or delays

8 VDOT CMS Policy December 2016 Page 7 of 37 Changes in roadway alignment or surface conditions Changes in traffic patterns Detours/alternate routes Advance notice of significant changes in traffic control Emergency roadwork Truck entering roadway messages Excessive speed warning Reduced speed advisory Dynamic lane merge Non-functioning traffic control devices The latest edition of the Virginia Work Area Protection Manual (VWAPM) should be referenced for the proper use of CMS in work zone applications. CMS should not be a substitute for devices required by the VWAPM HOV/HOT/Managed Lane Messages Virginia has several high-occupancy vehicle (HOV), high-occupancy toll (HOT), and managed lane facilities. These facilities may post messages on permanent and portable CMS relating to pricing, allowable vehicles, or service hours Emergency Messages CMS may be used in coordination with law enforcement and in times of emergency to convey critical information. Messages related to homeland security and ongoing police activities are two such emergency situations. Regardless of the emergency, CMS policies and practices as described in these guidelines should be followed whenever possible. CMS advisories should provide sufficient yet concise information while ensuring safe and efficient traffic flow. Messages must be transportation-related or convey specific emergency conditions that require motorist action. Emergency messages with a possible impact beyond a specific Region must be coordinated through VDOT s Operations Support Center (OSC), which will determine the duration and geographic extent to display the message. Priority for displaying messages should remain in VDOT s control. Specific wording should also remain in VDOT s control, although close coordination with emergency personnel is strongly encouraged. If extensive emergency information must be conveyed, CMS should refer motorists to 511 Virginia, local media outlets, or public emergency management websites Queue Warnings Queue Warning messages provide upstream motorists with advanced warning of substantially variant or stopped traffic. They should be used as a supplement to Travel Time messages when an end of queue location is verified. See Appendix A for examples. NOTE: Generic congestion warnings without a verified end of queue location (e.g., CONGESTION AHEAD or EXPECT DELAYS) should be avoided. Travel Time messages should be the primary means of communicating traffic delays. EXPECT DELAYS may only be used where no travel time information is available or in locations where the area of expected delay is a short distance and travel time would not be reliable.

9 VDOT CMS Policy December 2016 Page 8 of Unplanned and Emergency Roadwork All CMS messages for unplanned or emergency road work shall convey the urgency for road work. All messages should at a minimum include a problem statement, location, and either effect or action. If the message can be displayed in one phase, the top line should present the problem, the center line should present the location or distance ahead, and the bottom line should present the recommended action/effect. Sample messages are provided in Appendix A Adverse Weather, Environmental, and Roadway Conditions CMS may be used to convey information about adverse weather, environmental, or roadway conditions. Information must be confirmed either from on-scene personnel, roadway weather data, or the National Weather Service. In general, weather information should be location specific and not readily apparent to motorists. Proper messaging may include warnings about fog, flooding, major snowstorms, icy roadways, high winds, tornado, natural disaster and severe weather. Nonfunctioning traffic control devices (e.g., traffic signal outage) caused by weather events may be displayed on CMS at the discretion of the Regional Traffic Operations Manager (RTOM) Special Events CMS may be used to help manage traffic generated by special events (e.g., sporting events, festivals, auto races, graduations, etc.). Because VDOT and the Federal Highway Administration (FHWA) prohibit the display of advertising messages on any CMS, messages related to special events should only use generic terms describing the event and be approved by VDOT (e.g., RACE or 10K RACE instead of UKROPS MONUMENT 10K). CMS usage of this type must be coordinated by the RTOM or their designee with the event organizers. The RTOM or their designee has the authority and accountability to approve such requests. The RTOM or their designee will request the review and obtain approval from the State Operations Engineer or designee for messages that do not meet these CMS guidelines. 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 and 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 detour Missing Person and LEO Alerts Virginia participates in several alert systems for missing or at-large persons, including AMBER Alerts for missing or kidnapped children, Senior Alerts for missing senior citizens, and Law Enforcement Officer (LEO) Alerts for at-large perpetrators suspected of wounding or killing law enforcement officers. A Virginia Amber Alert Plan and Virginia Senior Alert Plan have been developed to identify VDOT s role in providing this information to motorists via CMS. Activation of Virginia s AMBER, Senior, and LEO Alert Plans must be initiated through the Virginia State Police (VSP). VSP will contact VDOT s Operations Support Center, who will coordinate CMS usage for the event. Only CMS messages that follow this chain of authority will be allowed. Section provides message guidelines for these types of alerts.

10 VDOT CMS Policy December 2016 Page 9 of Future Roadwork Traffic-related information that provides advance notice of future roadwork requiring lane closures may be displayed. Advance notification should not be given more than six 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 the display of calendar dates Future Special Events That Adversely Affect Travel CMS 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 highways (e.g., parades, bike races, marathons, etc.). Advance notification should not be given more than six days prior to the event. Days of the week (e.g., TUES-FRI) should be displayed. Calendar dates (e.g., SEPT 25-SEPT 28) are discouraged, but may be used in the message, particularly if using days of the week may confuse motorists. Display of advertising messages on any CMS is prohibited as outlined in Ozone Advisory Messages Forecasts for elevated ozone levels are occasionally issued on hot summer days in Virginia. These forecasts are available from May through September on weekdays. As advisories are issued, VDOT will support this effort in declared areas by displaying messages that advise motorists of the air quality condition and promote strategies to reduce vehicle emissions Safety Campaigns Safety campaign information may be displayed as supplements to specific national, statewide, or regional traffic/driver safety media campaigns on the same topic. Message wording must clearly relate to the applicable campaign. The campaign should be less than two weeks away. The total duration of any such safety message should not exceed four hours per day at any CMS location without approval from the Regional Operations Director (ROD). Messages should not be displayed during peak travel periods, but may be displayed during off-peak periods. As with any non-lane impacting sign, if the message appears to be causing congestion immediately upstream of the sign from drivers slowing to read the message, the sign should be blanked until the congestion clears. Prior to being displayed on a CMS, safety campaign messages must be approved by the ROD in coordination with Traffic Engineering Division. Coordination is required with District Public Affairs for regional messages and with the Office of Communications and Customer Service Center for statewide/national messages for situational awareness and coordination with other public information. The RTOM or Traffic Operations Center (TOC) manager will recommend message duration and applicable signs, and obtain ROD approval. Messages should follow the sample message shown in Appendix A Wildlife Warning Campaigns Many roadways in Virginia experience high rates of animal crossings at certain times of the year and times of the day. These messages are general warnings to be displayed on CMS and/or PCMS near known areas with high rates of vehicle-animal crashes involving large animals. A large animal is one that is taller than a typical car s bumper and large enough that there is significant potential that the vehicle will be significantly damaged if that animal is struck.

11 VDOT CMS Policy December 2016 Page 10 of 37 Neither CMS nor PCMS shall be used to warn of the presence of small animals. These messages are similar to general safety campaigns, except they are targeted to certain areas at certain times. Messages should be displayed only during those times of year and times of day when the risk of animal-related crash is most significant. For deer, messages should be displayed only in October through December between the hours of 5:00 PM and 9:00 AM, provided there are no higher priority messages to be displayed. Locations and time periods for wildlife warning messages must be approved by the ROD, in coordination with the Traffic Engineering Division. If there is no congestion, wildlife warning campaigns should be displayed in place of travel time messages. Messages should follow the example message shown in Appendix A. Messages should refer to the specific animal (e.g., deer ) rather than more generic terms like animal or wildlife VDOT Public Hearings It is permissible to use portable CMS in advance of a public hearing or public meeting related to a VDOT project. The portable CMS should be placed in the general vicinity of the project, but not more than two miles from the project site. As described in Section below, phone numbers and website URLs shall not be displayed on portable CMS. If additional information is needed, encourage motorists to call Messages for Other States/Facilities/Geographic Areas CMS may be used to display traffic-related messages for other surrounding states, localities or facilities. It is acceptable to display messages about traffic conditions in neighboring states/geographic areas if the information is significant and credible, and is expected to impact travelers leaving Virginia or roadways under VDOT s operation. The priority for displaying messages should remain in the control of the RTOM. All efforts must be made to keep the information current and accurate Messages for Other Transportation Modes CMS may be used to display messages related to other transportation modes such as transit and rail arrival and travel times, and parking availability information. These messages should only be based on automated information sources Other Sources of Traveler Information Motorists only have a brief period of time to read and understand CMS messages. If additional or extensive travel information must be conveyed, such as detour or alternate route information, CMS should alert motorists to call VDOT s 511 traveler information service Prior to posting such a message, operators should confirm that the additional information exists in In-Vehicle Displays The evolution of connected and automated vehicles allows for the display of CMS messages directly inside a vehicle through on-board vehicle equipment or mobile applications. VDOT allows the replication of our CMS messages inside a vehicle by original equipment manufacturers or third-party application providers. While VDOT does not have authority to regulate these messages inside a vehicle, VDOT strongly encourages original equipment manufacturers and third-party application providers to follows the guidelines contained herein.

12 VDOT CMS Policy December 2016 Page 11 of Messages using graphic or symbols The evolution of CMS allows the use of graphic and symbols to convey messages to motorists rather than text. Only graphics or symbols contained in the Manual of Uniform Traffic Control Devices (MUTCD) are permitted on CMS. The use of graphics or symbols has shown to improve motorists comprehension and understanding leading to improved operations and safety. All requests to use graphics or symbols must be approved by the State Operations Engineer Test Messages It is sometimes necessary to display test messages on a CMS to ensure correct operation or test a new sign. A standard message of TRAFFIC INFO / CALL 511 should be used to test a sign s communicability. Legibility testing may require an alternative message, in which case the message must state TEST within at least one frame of the posted message. Test messages should be limited to off-peak hours whenever possible, and a test may be interrupted to display emergency messages, even while undergoing acceptance testing. If the message appears to be causing congestion immediately upstream of the sign from drivers slowing to read the message, the sign should be blanked until the congestion clears. 2.2.Unacceptable CMS Usage Any CMS usage not identified under Section 2.1 of these instructions is prohibited. Any questionable messages or unusual circumstances should be directed to the appropriate ROD or RTOM. Further interpretation may be directed to the State Operations Engineer. Allowable exceptions to these examples will be considered and must be coordinated through the RTOM, who will elevate the exception to the State Operations Engineer for final approval. Although not all-inclusive, several specific improper uses of CMS in Virginia are listed below Generic Congestion Messages Generic congestion messages (e.g., CONGESTION AHEAD or EXPECT DELAYS) shall not be displayed, unless the exception noted below is relevant. NOTE: Travel Time messages should be the primary means of communicating traffic delays. Queue warnings may be posted to supplement Travel Time messages when an accurate end of queue location can be verified. EXPECT DELAYS may only be used where no travel time information is available Advertising Messages advertising any product, service, event or political party are prohibited. Special event messages should be designed such that advertising is not embedded in the message, and proper names or commercial identities are not used Public Service Announcements Messages designed to relay a public service announcement (catch phrases, greetings, jingles, general safety statements, non-vdot public meetings, etc.) are not permitted on CMS. Safety campaign messages, as described in Section and VDOT public hearings as described in Section may be acceptable Contact Information Phone numbers greater than three digits, websites, or mailing addresses shall not be displayed on CMS, as these are a distraction to motorists. Any references to 911 or #77 are prohibited unless

13 VDOT CMS Policy December 2016 Page 12 of 37 specifically requested by the law enforcement or dispatching agency that would answer the resulting calls Date/Time Messages providing only the current date and/or time are prohibited on CMS. If no message is to be displayed, the sign should remain blank Static Signing A CMS should not be used to replace a static sign when the static sign message is applicable at all times. Variable speed limit signs and full-color matrix CMS that can be made to simulate a static sign are allowable, if their messages are expected to change over time. 2.3.Personnel Responsible for Use VDOT personnel or its designees should oversee the operation of CMS on roadways under its jurisdiction. A TOC has full operational control of all permanently mounted CMS within its Region, with the exceptions of special facilities (such as tunnels, ferries, Express Lanes, and weigh stations) where the special facility operations center may control CMS specifically related to that facility, as well as CMS under the control of other agencies under agreement with VDOT. VDOT will work with law enforcement personnel to post messages for given traffic and/or highway situations. Any use of CMS within VDOT right of way shall adhere to this procedure. VDOT shall be notified prior to any such use by non-vdot personnel or designee, or a suitable operating agreement (MOA/MOU) should be in place, as reviewed by the State Operations Engineer and ROD. 2.4.Determining Which CMS to Use TOC operators must determine which CMS or CMS group within their primary area of responsibility should be used to address a particular situation or problem. For advance warning of future lane closures and special events, the messages displayed are typically of a general warning nature and can be displayed on CMS over a fairly wide area. However, TOC operators must be careful to make sure that the CMS selected will reach the appropriate audience when displaying a message for a current incident or work zone lane closure (e.g., posting a sign on northbound lanes for a northbound impact). Messages should be displayed with consideration given to sight distance, time of day, traffic volume, weather conditions, and resource availability. Determining the appropriate radius or how far back to display a message varies for each event and the use of travel times provides additional clarity. In most cases in urban areas, CMS may be displayed upstream within a 15- mile radius on all roads that approach and feed the incident location; and in rural areas, CMS may be displayed upstream within a 25-mile radius for all roads that approach and feed the incident location. The suggested radius may be adjusted as the situation warrants. The goal is to provide motorists with advanced notice before they reach the event affecting traffic or before they reach a decision point to take an alternate route or mode. 2.5.MUTCD and Virginia Work Area Protection Manual All CMS signs shall be in accordance with Chapter 2L of the MUTCD edition currently in effect in Virginia, and the latest effective edition of the Virginia Supplement to the MUTCD. In

14 VDOT CMS Policy December 2016 Page 13 of 37 addition to these standards for all CMS, the Virginia Work Area Protection Manual (WAPM) Section 6F.68 and Appendix D lists additional standards and guidance specific to portable CMS. The Virginia WAPM is the primary governing document for the operation, placement, and message design for Portable CMS used in work zones in Virginia. 2.6.Symbols, Color, and Graphics CMS may be used to display standard signs and symbols consistent with the Virginia Supplement to the current MUTCD. The use of graphics and symbols on CMS is permitted only if the CMS is capable of replicating the appropriate color combinations, the lettering style, sign/symbol size and line spacing consistent with the Virginia Supplement to the MUTCD. The graphics can be displayed either in stand-alone fashion or as a supplement to text. When supplementing text, the graphics should be placed to the left of the text and vertically centered. Software used to display graphics should not allow the graphics to be moved to the center or right when displaying with text. Only one graphic should be included in each phase of the message. Graphics should not be used if the text size cannot meet standard height requirements in order to do so. Graphics may be used in place of text-only messages if the same meaning is conveyed to motorists. For CMS with full-color, full-matrix capabilities, the allowable colors used for the legends and backgrounds are provided in Table 2A-5 of the 2009 MUTCD. A single CMS phase may also be used to display a standard static sign as allowed by the 2009 MUTCD. 2.7.Inoperable Sign Guidance The TOC and the RTOM are jointly responsible for keeping permanent CMS operational at all times. TOCs should report device outages, system outages, communication failures, sign failures, and power failures of significant impact to the RTOM. The RTOM may inform the District Duty Officer or ROD as needed, depending on severity of the outage or failure. At least 90% of the CMS characters and pixels should be functioning properly before displaying the message. A message must be legible before being displayed. A sign is legible if a driver can identify the letters and words on a sign. If a message is illegible, the TOC should not display a message and should follow the established maintenance reporting protocol for immediate mitigation. Should a permanent CMS on a corridor of statewide significance become inoperable beyond 24 hours, a portable CMS should be used in its place while it is being repaired, if available. If a permanent CMS is expected to remain inoperable for more than 30 days, a static sign may be installed notifying motorists that the permanent CMS is inoperable (see IIM-TE for signage details). The RTOM should report the inoperability of the sign and its expected repair date to the District Duty Officer. 2.8.Message Priority When multiple messages compete for display on the same CMS, messages supporting a lane impact take precedence over all others. These lane impact messages shall be displayed on the appropriate CMS until the related impact ends or another lane impact occurs closer in proximity to the appropriate CMS. Lane impact messages inform that the motorist may encounter an impediment (e.g., crash, bridge opening, traffic detour), thus indicating a potential need to take action, such as merge or use a detour. All other messages that provide the motorist with travelrelevant information, but do not indicate a lane impediment (e.g., events impacting only the shoulder, safety campaigns, weather advisory), are lower in priority than lane impact messages.

15 VDOT CMS Policy December 2016 Page 14 of 37 Table 1 CMS Message Priority Lane Impact Note: Event proximity to the CMS is the determining factor when there are multiple messages (supporting events with lane impact) competing for display on the same CMS. Events impacting a lane Traffic incidents and crashes Debris Road/ramp/tunnel closures Drawbridge operations Road work Traffic detours Queue Warnings Dedicated Lane Control Reversible Roadway Critical Signs Active Traffic Management Hard Shoulder Running HOV/HOT/Managed Lanes (open/closed/price) No Lane Impact Note: The following are listed in order of priority. The RTOM has the authority to override. Lane Control Non-Critical Reversible Roadway Signs HOV Diamond Lane Travel Advisory Messages Travel Time information Events not impacting a lane Traffic incidents and crashes Road work Severe Weather Warnings Adverse weather and roadway conditions Special Event Management Soft diversions, related info (e.g., parking) Emergency Alerts Amber, Senior, and Leo Alerts Future Impacts Special Events Roadwork Environmental Messages Ozone/Air Quality advisory messages Campaign Messages Safety campaigns (e.g., Buckle Up) Wildlife warning campaigns Public Service Announcements VDOT public meeting notice 2.9.Message Credibility Signs are the primary channel of communication to road users so accurate, timely, and relevant messages are vital to achieve high levels of driver compliance with CMS messages. CCTV, crowdsourcing, and/or other incident detection systems should be used to identify and monitor incidents and to keep CMS messages up-to-date and relevant. It is better to display nothing on a CMS than to display a message that is incorrect or inaccurate. Road users will tend to ignore CMS if they have regularly encountered incorrect or inaccurate messages. Therefore, every message should be relevant and accurate to the current conditions. Messages should not be displayed if they do not impart timely, accurate or relevant information.

16 VDOT CMS Policy December 2016 Page 15 of 37 CMS should not display information that is outdated or no longer relevant, and CMS should be reviewed frequently to ensure that their displayed messages are still applicable Message Display Messages should be centered line by line, and word messages on CMS should be composed of all upper-case letters Verification of CMS Message Once the operator is satisfied with the accuracy of the information available, the information in the message and the message format, the selected message can be displayed. After the CMS is activated, it is important that the operator validate that the correct message is displayed on the CMS. This can be accomplished by viewing the status of the CMS through the statewide ATMS or software system that monitors and controls the sign. If practical, an operator should also verify correct message posting by viewing the CMS from a nearby closed-circuit television (CCTV) camera. When a sign is under test due to new installation or corrective maintenance, its operation should be verified by staff in the field if a CCTV camera is not nearby. When available, Safety Service Patrol (SSP) units should be used routinely to verify CMS by reading the message to TOC Operators when they pass by and/or when they are directed to do so Determining Message Duration After a message has been selected and conflicts resolved, the TOC Operators must decide how long to display the message on the sign. For advance warning of upcoming work activity or special events, the message can be shown for several hours or even days prior to the event. For traffic incidents, active road work or other events having an immediate impact on traveling motorists, the message should be shown for the entire duration of the event until traffic returns to normal flow or until a higher priority message is requested Post-incident Messaging Messaging responsibilities do not end when an incident is removed from the freeway lanes since congestion may still exist on the roadway, particularly following a major incident. The objectives of messages at this time are to: Inform motorists that the incident has been removed, Advise motorists that all lanes are open to traffic, and/or Advise motorists of the travel time to designation It is important to inform motorists who have seen a previous CMS message or have received information via radio or other media of a major incident that the incident has been removed from the lanes and all lanes are open to traffic. This is important for drivers to make informed decisions. An example of a message is shown below: Phase 1 CRASH AT EXIT 15 ALL LANES OPEN

17 VDOT CMS Policy December 2016 Page 16 of Documentation of CMS Usage The following information, at a minimum, should be recorded by the system that operates a CMS whenever a message is posted: Sign identification Location Message displayed (all lines and phases) Date and time when message was posted Date and time when message was no longer displayed (whether expired or manually terminated) Name of operator or schedule that posted the message Records shall be electronic and should be secure and accessible for review, retrieval, and printing. 3. Messages This section provides guidelines for the design, display, and content of changeable message sign messages, based on guidance from the MUTCD and human factors research. Messages must find a balance between completeness, legibility at highway speeds, motorist comprehension, and motorist compliance. The guidelines in this section attempt to address those concerns, and will help operators develop effective messages. For specific examples of messages, the message library in Appendix A covers scenarios across all message types, and each message fully complies with these guidelines. A CMS that is (a) placed within a Rest Area or Park-n-Ride lot, or similar off-road application with operating speeds less than 25 mile per hour, and (b) is not visible from the adjacent public roads, may display multiple messages and details not permitted herein. 3.1.Message Types Acceptable and unacceptable types of messages and their priority to be displayed on CMS are defined and described in Section 2 of this Policy. For examples of messages for each of the message types, see Appendix A. 3.2.Message Content Message content refers to specific information displayed on a CMS. Essentially, conveying information about issues impacting the motorist and how they should respond are the key elements. The specific structure and content of CMS messages should be carefully designed to relay accurate information in a way that is both understandable to motorists and comprehensible given time and visibility constraints. This section provides general guidance for designing and displaying messages that are both useful and understandable Message Length Message length refers to either the number of words or the number of characters and spaces in a CMS. Generally, messages should be limited to no more than 20 characters per line Message Load and Unit of Information The term message load refers to the units of information in the total message, and is a measure of the amount of total information contained in a message. A single unit of information can be

18 VDOT CMS Policy December 2016 Page 17 of 37 described as an answer to a question a motorist might ask. For example, anticipated questions may be: what happened, where, and what should I expect? Each unit of information should typically be four words or less, given that the average motorist can comprehend no more than one unit of information each second Message Format Message format refers to the order and arrangement of the units of information on a CMS. Most messages should convey some of the following five units of information, listed below in order of importance and according to motorist expectations. Problem what happened? (e.g., crash, road work, closure descriptor) Location where? (e.g., 5 miles ahead, at exit 180, at Gaskins Rd) Effect what is the effect on traffic? (road closed, left lane blocked) Audience/Attention if necessary, who is the message intended for? (e.g., DC traffic, all trucks) Recommended Action if necessary, what is advised? (e.g., exit, prepare to stop, take alternate route) All messages shall, when applicable, include a problem statement, location, and either effect or action. Messages may also include effect, audience/attention statement, and recommended action. If the message can be displayed in one phase and the CMS can display three lines of text, then the top line should present the problem, the center line should present the location or distance ahead, and the bottom line should present the recommended action. While this is the preferred message format, it may not always be possible to provide information for each of these elements due to information availability. In the cases of Audience/Attention and Recommended Action, it may not be necessary to display information at all. When developing messages, the following guidance should be considered: Messages should not contain more than two units of information per line. One unit per line is recommended. It is acceptable to display a unit of information over two lines, if space restrictions require it, but that unit of information should not be split over two phases. No more than three units of information on a single message phase should be used. This may be relaxed on CMS displaying repetitive messages such as travel time or dynamic pricing. A phase should not consist of more than three lines of text. Each phase should be understood by itself regardless of the sequence in which it is read. No more than four total units of information should be used on two-phase message signs where speeds are greater than 35 mph. No more than five total units of information should be used on two-phase message signs where speeds are less than or equal to 35 mph, due to congestion or speed limits. No more than eight words per phase should be used for drivers at high speeds (based on the required reading time of one second per four to eight character word, or two seconds per information unit, whichever is longest). Additional guidance on message length is provided in the MUTCD Section 2L.05.

19 VDOT CMS Policy December 2016 Page 18 of Message Phase CMS may display a single message on one screen, called a single-phase message. Single-phase messages are always preferable to two-phase messages, as motorists can comprehend singlephase messages faster. Single-phase messages are preferred for non-traffic and non-emergency messages such as ozone alerts, non-event travel times, and safety campaign messages. When more information should be displayed than can fit on a single phase, a CMS may use a two-phase message if visibility (either geometric or weather-related) permits. No more than two phases should be displayed per message. If a two-phase message is used, the following guidelines should be followed: When dividing messages between two phases, compatible information units should be kept in the same phase. For example, the Problem and Location units should be displayed in the same phase. Similarly the Audience and Recommended Action, if displayed in the same message, should be displayed in the same phase. Present different sets of information on each phase. Alternating line messages (multiple phase messages in which only a subset of the lines change between phases) should only be used when necessary to improve motorist comprehension of the phase. The display time for each phase should never be less than two seconds. Typical display time for each phase is three seconds, but may be longer for complex messages. The total display time for both phases should be no more than eight seconds. At higher speeds, avoid longer messages that cannot be fully read: up to eight words per phase at 55 and 60 mph speed limits; seven words per phase at 65 mph speed limits; and six words per phase at 70 mph speed limits. The duration between the displays of two phases should not exceed 0.3 seconds. Travel time information may be displayed on the second phase if there is an incident or lane closure message displayed on the first phase. Although a two-phase message can convey more information, a single message phase may be more effective, giving drivers more time to read and process the information. In cases where consecutive CMS can be used in coordination, complementary one-phase messages should be considered. The first CMS might alert drivers of the incident, and the second encourage an alternate route; for example, MAJOR CRASH / 3 MILES AHEAD / 2 LANES CLOSED on the first CMS and MAJOR CRASH / PAST EXIT 84 / USE OTHER ROUTES on the second CMS, where each message is a single phase Communicating Time or Date For certain message types regarding events in the future, such as planned or ongoing roadwork or special events, it may be necessary to display the times or dates of the events in the CMS message. Messages are written differently for events occurring within the next seven days and for those occurring more than seven days in the future. For dates occurring within the next seven days: Use days of the week rather than calendar dates (e.g., TUE THUR). Do not use FOR 1 WEEK because the start and end dates are ambiguous. NITE may be used in place of NIGHT.

20 VDOT CMS Policy December 2016 Page 19 of 37 A hyphen with a space on either side should be used in place of THRU where space is permitted (e.g., TUE FRI in place of TUE THRU FRI). The space on either side of the hyphen may be omitted on PCMS with space limitations. WEEKEND may be used if the event begins on Saturday morning and ends on Sunday evening. For dates occurring more than seven days in the future: Use a three-letter month abbreviation and not a numerical month representation (e.g., APR 21 rather than 4/21) Only display the month once in a message if both dates in a range are in the same month (e.g., APR rather than APR 21 APR 23). Do not include day, date, and time information simultaneously. Time displayed in the CMS message should relate to the standard 12-hour format using AM and PM designation, and display local time in the shortest format (e.g., 7:30 PM 6 AM or 4 6:30 PM ) Urgency There may be some message types that have content of either low or high priority. Weatherrelated information, for example, may relate to heavy fog or water across a roadway which necessitates message formats that express high priority. To increase or decrease the relative urgency of a message, the following guidelines should be followed: Use command style messages when the situation is urgent and an immediate control action is required by the driver. Examples of command style messages include: SLOW DOWN or REDUCE SPEED. Use notification style messages when an immediate control action is not required, or the situation is not urgent. Examples of notification style messages include: USE CAUTION, USE ALTERNATE ROUTE or STORM WARNING. o USE CAUTION should be used only for unverified events, such as reports of debris or a hazardous pothole. See Appendix A for examples. Additionally, messages relating to maintenance should clearly differentiate between planned and unplanned/emergency road work. Planned road work messaging, whether active or future, should include ROAD WORK, a location and an impact. Unplanned road work must contain EMERGENCY ROAD WORK (or EMER on a PCMS), a location, and an impact Diversions to Alternate/Other Routes During some major incidents, alternate routes may exist that can accommodate a portion of the affected traffic, simultaneously reducing delay for diverted vehicles and reducing the queue at the incident scene. If a reasonable alternate route exists, but the original road is not closed to traffic, CMS may be used in such a way as to encourage a greater percentage of motorists to divert onto the alternate route.