12 Aug Flagging – JSA

Flagging Job Safety Analysis (JSA)

Job / Task

Flagging operations used to control or direct public traffic, construction vehicles, and equipment through or around temporary traffic-control zones, lane closures, construction entrances, and other work areas.

Purpose

This Job Safety Analysis (JSA), also known as a Job Hazard Analysis (JHA), identifies hazards associated with flagging operations and establishes safe work practices and controls to prevent struck-by incidents, vehicle collisions, traffic conflicts, and other injuries to flaggers, workers, motorists, pedestrians, and the public.

Personnel Qualifications

Flaggers shall be trained, competent, and authorized in accordance with applicable federal, state, local, project, and roadway-owner requirements before performing flagging duties.

Flaggers shall:

• Understand the traffic-control plan and their assigned flagging station before work begins.
• Know the approved signaling methods and proper use of STOP/SLOW paddles or other authorized devices.
• Be able to recognize traffic hazards and communicate clearly with motorists, other flaggers, equipment operators, and supervision.
• Remain alert and focused on traffic-control duties at all times.
• Know the location of a safe escape route and remain positioned to use it.
• Wear required high-visibility safety apparel and other PPE.
• Never perform flagging duties while distracted, impaired, or unable to safely communicate with road users.
• Stop work and notify supervision when conditions change or traffic cannot be safely controlled.

Required PPE

PPE shall be appropriate for the roadway, traffic, weather, lighting, and work conditions and may include:

• High-visibility safety apparel meeting applicable traffic-control requirements.
• Hard hat where required by the work environment or site.
• Safety footwear with appropriate toe protection and slip-resistant soles.
• Safety glasses with side protection.
• Work gloves appropriate for the conditions.
• Weather-appropriate protective clothing.
• Hearing protection where occupational noise exposure requires it.
• Additional PPE required by the project, roadway owner, or site.

High-visibility apparel improves conspicuity but does not replace proper flagger positioning, advance warning, channelizing devices, traffic-control plans, barriers, or other required protective measures.

JSA – Job Steps, Hazards, and Controls

Step 1 – Review the Traffic-Control Plan and Assignment

Potential Hazards

• Unclear responsibilities.
• Incorrect flagger location.
• Inadequate communication.
• Unexpected traffic pattern.
• Missing traffic-control devices.

Required Controls

• Review the approved traffic-control plan or authorized layout before flagging begins.
• Identify traffic direction, lane closures, work activity, speed conditions, pedestrian routes, and equipment movements.
• Confirm the number and location of flaggers required.
• Establish the communication method between flaggers and other affected personnel.
• Do not begin flagging until required advance warning and traffic-control devices are in place.

Step 2 – Inspect the Flagger Station

Potential Hazards

• Poor sight distance.
• Limited escape route.
• Uneven footing.
• Exposure to equipment.
• Obstructions or poor visibility.

Required Controls

• Select the flagger station specified by the traffic-control plan and verify it provides adequate visibility to approaching road users.
• Position yourself so approaching traffic can see and respond to the signal in time.
• Identify and maintain a clear escape route.
• Stand on a stable surface and avoid locations that create unnecessary exposure to construction equipment.
• Do not stand in shadows, behind obstructions, or where signs or equipment block visibility.

Step 3 – Verify PPE and Signaling Equipment

Potential Hazards

• Poor visibility to motorists.
• Defective paddle or signaling device.
• Inadequate nighttime visibility.
• Dropped or uncontrolled equipment.

Required Controls

• Wear required high-visibility safety apparel before entering the traffic-control area.
• Inspect the STOP/SLOW paddle or other authorized signaling device before use.
• Verify retroreflective or illumination requirements are met for low-light or nighttime operations.
• Keep signaling equipment under control and readily visible.
• Do not use unauthorized signaling devices or improvised methods.

Step 4 – Assume the Safe Flagging Position

Potential Hazards

• Struck-by vehicle.
• Standing in vehicle path.
• Insufficient reaction time.
• No escape route.

Required Controls

• Stand on the shoulder, closed lane, or other designated safe position until traffic must be stopped.
• Do not stand directly in the path of approaching traffic.
• Face approaching traffic and maintain continuous awareness of vehicle movement.
• Remain far enough from the work area to provide motorists adequate warning and stopping distance.
• Keep the escape route clear and be prepared to move away from an errant vehicle.

Step 5 – Stop Traffic

Potential Hazards

• Vehicle fails to stop.
• Rear-end collision.
• Driver confusion.
• Flagger struck by vehicle.

Required Controls

• Use the STOP face of the paddle or other authorized method in accordance with applicable flagging procedures.
• Stand in a clearly visible position without placing yourself directly in the vehicle’s path.
• Make eye contact with the driver when practical and confirm the vehicle is slowing.
• Do not assume a vehicle will stop merely because a signal has been given.
• Remain alert to following vehicles and be prepared to use the escape route.

Step 6 – Hold Traffic

Potential Hazards

• Stopped vehicles moving unexpectedly.
• Driver impatience or distraction.
• Vehicles attempting to pass.
• Flagger distraction.

Required Controls

• Remain in a visible and safe position while traffic is stopped.
• Continue monitoring approaching and stopped vehicles.
• Do not stand between opposing traffic streams or directly in front of a stopped vehicle.
• Do not engage in unnecessary conversation or activities that distract from traffic.
• Coordinate with the opposing flagger before releasing traffic.

Step 7 – Release and Direct Traffic

Potential Hazards

• Conflicting traffic movements.
• Driver misunderstanding.
• Excessive speed through work zone.
• Collision with workers or equipment.

Required Controls

• Confirm the travel path is clear and opposing traffic has been stopped before releasing vehicles.
• Use the SLOW face of the paddle or authorized signal to direct traffic through the work zone.
• Do not use the paddle to wave traffic through in a confusing or inconsistent manner.
• Monitor vehicle speed and behavior as traffic passes.
• Maintain separation between moving traffic and workers or equipment.

Step 8 – Coordinate with Other Flaggers

Potential Hazards

• Both directions released simultaneously.
• Loss of communication.
• Misunderstood signals.
• Traffic trapped in work zone.

Required Controls

• Use the predetermined communication system, such as radio or other approved method.
• Clearly identify when the last vehicle has entered or cleared the controlled section.
• Do not release traffic until positive confirmation is received when two-way coordination is required.
• Immediately stop traffic and notify supervision if communication is lost and safe coordination cannot be maintained.

Step 9 – Control Construction Vehicle / Equipment Movements

Potential Hazards

• Equipment entering public traffic.
• Backing incidents.
• Motorist collision.
• Flagger caught between vehicle and equipment.

Required Controls

• Coordinate construction vehicle entry and exit with operators and other flaggers.
• Do not stand between moving equipment and public traffic or fixed objects.
• Use spotters where equipment operators have restricted visibility.
• Stop public traffic when required to allow safe equipment movement.
• Ensure equipment has fully cleared the travel path before releasing traffic.

Step 10 – Manage Pedestrians and Bicyclists

Potential Hazards

• Pedestrians entering work zone.
• Bicyclists conflicting with vehicles.
• Unsafe detours.
• Flagger distraction.

Required Controls

• Follow the traffic-control plan for pedestrian and bicycle movement.
• Direct pedestrians only along established safe routes.
• Do not direct pedestrians into active equipment areas or uncontrolled traffic.
• Maintain accessible routes where required.
• Request additional assistance when pedestrian activity interferes with safe flagging duties.

Step 11 – Flag During Low-Light, Night, or Adverse Weather Conditions

Potential Hazards

• Reduced visibility.
• Glare.
• Rain, fog, snow, or dust.
• Slippery footing.
• Driver recognition delays.

Required Controls

• Use required high-visibility apparel, illumination, and retroreflective traffic-control devices.
• Position lighting to improve visibility without creating disabling glare for motorists or flaggers.
• Maintain stable footing and weather-appropriate protection.
• Increase caution when stopping distances or visibility are reduced.
• Stop and reassess operations if conditions prevent motorists from seeing or responding to the flagger safely.

Step 12 – Respond to an Errant or Non-Compliant Vehicle

Potential Hazards

• Vehicle intrusion.
• Flagger struck by vehicle.
• Workers exposed to uncontrolled traffic.
• Secondary collision.

Required Controls

• Move immediately toward the predetermined escape route when threatened by an errant vehicle.
• Do not attempt to physically block or stop a moving vehicle.
• Warn workers and other flaggers using the established emergency signal or communication method.
• Contact emergency services or law enforcement when required.
• Stop affected work and restore traffic control before operations resume.

Step 13 – Take Breaks or Change Flaggers

Potential Hazards

• Fatigue.
• Loss of concentration.
• Uncontrolled traffic during handoff.
• Communication failure.

Required Controls

• Provide relief as needed to maintain alertness and effective performance.
• Complete the handoff only after the replacement flagger understands current traffic conditions and communication methods.
• Maintain continuous traffic control during the transition.
• Do not abandon the flagging station until properly relieved.

Step 14 – End Flagging Operations

Potential Hazards

• Premature removal of traffic control.
• Workers or equipment still exposed.
• Driver confusion.
• Struck-by hazard during shutdown.

Required Controls

• Continue flagging until traffic no longer requires manual control and the responsible person authorizes release.
• Coordinate with the traffic-control crew before leaving the station.
• Remain protected while devices are being removed.
• Do not leave the flagging position while workers or equipment remain exposed to uncontrolled traffic.
• Remove or cover flagger-related signs when they no longer apply, as required by the traffic-control plan.

General Safe Work Requirements

• Flaggers shall follow the approved traffic-control plan and applicable traffic-control requirements.
• Only trained and authorized personnel shall perform flagging duties.
• Flaggers shall remain visible to approaching road users and maintain a clear escape route.
• Flaggers shall not stand directly in the path of approaching vehicles except as specifically required by an approved procedure and only when protected.
• Use approved STOP/SLOW paddles or other authorized traffic-control devices.
• Do not use cell phones, headphones, reading material, or engage in other distracting activities while actively flagging.
• Never turn your back on approaching traffic when exposed to vehicle movement.
• Maintain positive communication with other flaggers when alternating one-way traffic.
• Do not perform other work while assigned to active flagging duties.
• Stop work whenever visibility, communication, traffic behavior, weather, or work-zone conditions prevent safe traffic control.

Training

Flaggers shall receive training that meets applicable federal, state, local, project, and roadway-owner requirements. Training shall include flagger positioning, approved signaling methods, STOP/SLOW paddle use, traffic-control plans, communication, escape routes, high-visibility apparel, pedestrian and equipment interaction, adverse-weather and nighttime operations, emergency procedures, and recognition of dangerous driver behavior. Refresher or retraining shall be provided when required or when deficiencies are identified.

References

• OSHA 29 CFR 1926.200 – Accident Prevention Signs and Tags.
• OSHA 29 CFR 1926.201 – Signaling.
• OSHA 29 CFR 1926.202 – Barricades.
• Manual on Uniform Traffic Control Devices (MUTCD), current applicable edition.
• Applicable state, local, project, and roadway-owner flagger requirements.

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