RFP Document.pdf

South Dakota Department of Transportation

Request for Proposals Project SD2025-04

Title: Improvements in Flagger Safety, Operations, Effectiveness, and Training

Problem Description: Flaggers serve as the critical interface between work zones and the traveling public, yet they experience a disproportionately high rate of injuries and fatalities. A recent flagger death in South Dakota underscores the urgent need to strengthen flagging operations, training, and support practices statewide.

Flaggers work in increasingly hazardous environments shaped by distracted driving, speeding, aggressive behavior, poor visibility, and inconsistent driver compliance. Crashes and frequent near misses, mostly undocumented, often occur because drivers fail to recognize stopped queues, ignore flagger instructions, or encounter unclear or inadequate traffic control setups. Visibility challenges arise when flaggers lack distinguishing markings or equipment, blend in with other workers and traffic control devices, or operate under nighttime or inclement weather conditions.

Operational inconsistencies compound these risks. Department of Transportation (DOT) staff, contractors, utility owners, and smaller agencies interpret moving operations, lane closure requirements, and minimum setup durations differently, leading to situations where proper traffic control is delayed, reduced, or omitted. Communication barriers, including mismatched terminology, also affect coordination and understanding among crews and inspectors.

Human factors further contribute to safety concerns. Flaggers frequently work long, monotonous shifts under stressful conditions that can lead to fatigue, distraction, or complacency. Many are new hires with limited experience, and despite performing one of the most safety-critical roles, flaggers are often among the lowest-paid workers on a project. Recruiting and retaining qualified personnel remains a challenge across the construction industry.

Training is a foundational issue. While South Dakota Department of Transportation (SDDOT) has established flagger training, current instruction may not fully prepare workers for real-world hazards, evolving driver behavior, or complex work zone configurations. Questions have emerged regarding hands-on training needs, structured break and relief-flagger requirements, emergency procedures, fatigue management, and whether the current training format provides adequate rigor.

Technology offers promising opportunities to reduce risk, including Automated Flagger Assistance Devices (AFADs), portable rumble strips, wearable visibility devices, intrusion alerts, dynamic warning systems, and work-zone cameras. Yet South Dakota lacks clear guidance on when these tools should be deployed, how they should be applied across various roadways and average daily traffic (ADT) contexts, and what benefits or limitations they present. Enforcement challenges persist as well; driver violations are difficult to address in remote areas. Public messaging also influences behavior, and negative perceptions of work zones can undermine driver attentiveness and compliance.

Given these issues, a comprehensive review of flagger operations, training, driver behavior impacts, technologies, and compliance expectations is needed. This research will identify contributing factors to crashes and near misses; evaluate training effectiveness; review best practices from other states; gather insights directly from flaggers, contractors, and field staff; assess emerging technologies; and develop actionable guidance to improve flagger visibility, safety, consistency, and effectiveness across South Dakota.

Importance: Work zone and flagger safety is very important to the SDDOT. This is demonstrated by a strategic objective of the SDDOT of “Everyone Home Safe Every Day”. A focus area is workforce safety by reducing workplace injuries, incidents, and crashes. Association of General Contractors (AGC) also identifies flagger safety, operations, effectiveness and training as a high priority.

Research Objectives:

1) Conduct a detailed analysis to determine the most common factors leading to flagger injuries and near misses within work zones.

2) Evaluate the effectiveness of current SDDOT flagger training programs and recommend improvements to better prepare workers for real-world hazards, operational challenges, driver behaviors, communication needs, and consistent application of work zone safety practices.

3) Evaluate and recommend improvements to work zone flagger best practices by identifying traffic control configurations that enhance visibility, physical protection, proper stationing, and appropriate work frequency and break intervals.

4) Investigate the impacts of distracted driving, speeding, and other driver behaviors on flagger safety, and develop recommendations for effective countermeasures, including potential updates to statutes, penalties for non-compliance, and improved driver awareness and education campaigns.

5) Assess the feasibility, safety benefits, and cost-effectiveness of emerging and innovative technologies, such as AFADs, wearable visibility devices, intrusion alerts, and rumble strips, and develop clear guidance on their appropriate application and integration into flagger operations and work zone traffic control.

Research Tasks:

1) Meet with the project’s technical panel to review the project scope and work plan.

2) Conduct an in-depth review of national and state research related to flagger-controlled work zones, contributing factors to flagger-related crashes and near misses (including driver behavior), best practices for flagger training and operations, work zone traffic control configurations, enforcement approaches, and innovative technologies.

3) Evaluate SDDOT’s current flagger training, flagger manual, standard work zone templates, traffic control guidance, and flagger operational procedures to identify strengths, weaknesses, inconsistencies, and opportunities for improvement, including training delivery, fatigue management, break requirements, stationing guidance, distinguishing visibility features, and nighttime flagging considerations.

4) Prepare a list of interviewees and interview questions for approval by the Technical Panel, then conduct interviews with other state DOTs to gather best practices related to flagger operations, training programs, driver awareness campaigns, enforcement practices, traffic control standards, near-miss documentation approaches, innovative flagger technologies and if there are penalties for improper flagging practices.

5) Prepare a list of interviewees and interview questions for approval by the Technical Panel, then conduct interviews with SDDOT field staff and contractors to gather insights on contributing factors to crashes and near misses, current flagger challenges, operational inconsistencies, workforce factors, communication barriers, visibility issues, and the effectiveness of current training and use of flagging technologies. Also, conduct a flagger focus group to gain further insight.

6) Visit at least two active SDDOT flagger-controlled work zones during the 2027 construction season, one urban, one rural, as approved by the technical panel. Document flagger operations, traffic behavior, work zone compliance, technology usage, flagger visibility and positioning, communication challenges, and environmental conditions. Interview flaggers on-site to capture real-world operational challenges and best practice recommendations.

7) Prepare and present for approval of the project’s technical panel a technical memorandum detailing the results of Tasks 2 through 6.

8) Based on the evaluation conducted in Tasks 3 through 6, develop targeted recommendations to improve SDDOT’s flagger training procedures and practices so they better prepare workers for real-world hazards and driver behaviors. Recommendations must address identified strengths, weaknesses, and opportunities related to training rigor, communication and comprehension, fatigue management, break scheduling, visibility practices, and operational consistency. Each recommendation must specify the SDDOT materials in which the change should be incorporated— such as the Flagger Manual, standard plates, work-zone templates, operational procedures, training modules, or testing materials—and include clear, actionable implementation direction.

9) Prepare and present for approval of the project’s technical panel a technical memorandum detailing the results of Task 8.

10) Develop a Driver Behavior Compliance Framework that identifies specific, evidence-based countermeasures to address distracted driving, speeding, aggressive behavior, and driver noncompliance in flagger-controlled work zones. The framework must analyze enforcement limitations, statutory constraints, and current penalty structures; evaluate and recommend practical, South-Dakota–appropriate countermeasures; specify where each recommended countermeasure should be incorporated within SDDOT materials; and provide structured implementation guidance.

11) Develop recommendations for improvements to traffic control configurations, flagger stationing strategies, distinguishing visibility features, and operational guidance that maximize flagger safety, visibility, and physical protection. Each recommendation must specify the SDDOT material where the change should be incorporated, such as the Flagger Manual, standard plates, work-zone templates, procedures, or training content, and provide clear, actionable implementation guidance.

12) Develop an assessment of promising technologies—including AFADs, rumble strips, wearable visibility devices, intrusion alerts, and work-zone cameras—addressing feasibility, safety benefits, limitations, implementation challenges, maintenance needs, worker exposure during setup, and cost-effectiveness. Provide clear guidance on appropriate use and application within South Dakota work zones and specify which SDDOT materials each recommended technology-related change should be incorporated into, such as the Flagger Manual, standard plates, work-zone templates, operational procedures, or training modules, along with precise implementation direction.

13) Prepare and present for approval of the project’s technical panel a technical memorandum detailing the results of Tasks 10 through 12.

14) Develop and present to the Technical Panel a comprehensive guidance document consolidating recommended best practices for work-zone configurations, flagger operations, training enhancements, driver-awareness and compliance strategies, and deployment criteria for innovative technologies. All recommendations must identify the specific SDDOT materials in which each change should be incorporated, along with precise implementation direction.

15) In conformance with the Guidelines for Performing Research for the South Dakota Department of Transportation, prepare a final report and executive summary of the literature review, research methodology, findings, conclusions, recommendations, and implementation strategies.

16) Make an executive presentation to the SDDOT Research Review Board at the conclusion of the project.

Potential Implementation: Results of this research project focus on developing comprehensive recommendations to enhance flagger safety through a multi-faceted approach involving enhanced training protocols, optimized work zone design, improved driver awareness campaigns, and implementation of innovative technologies. The research will identify specific SDDOT materials where the change should be incorporated. The project aims to leverage the strategic implementation of technology to reduce exposure and risk. The goal of these efforts is to significantly decrease flagger injuries and fatalities, thereby ensuring a safer work zone environment for both personnel and the traveling public.

SDDOT Involvement: The project technical panel will be involved in reviews, approvals, and supplying information to the researcher. SDDOT staff will participate in interviews.

Available Funding: $130,000

Duration: 18 months

Anticipated Start Date: April 15, 2027

Terms of Payment: Payment for study services will be made upon SDDOT’s acceptance of key project deliverables. For this study, percentages of total project cost will be paid upon satisfactory completion of the following tasks in Table 1.

Table 1: Payment of deliverables

Task Percentage of Total Cost 7 25% 9 20% 13 25% All Tasks 30% Total 100%

General Information: The South Dakota Department of Transportation solicits proposals from colleges, universities, research institutes, foundations, consultants, federal, state, and local agencies, and others with demonstrated capability and experience in the subject area.

The South Dakota Department of Transportation gives public notice of its policy to uphold and assure full compliance with the non-discrimination requirements of Title VI of the Civil Rights Act of 1964 and related Nondiscrimination authorities. Title VI and related Nondiscrimination authorities stipulate that no person in the United States of America shall on the grounds of race, color, national origin, religion, sex, age, disability, income level or Limited English Proficiency be excluded from the participation in, be denied the benefits of, or be otherwise subjected to discrimination under any program or activity receiving Federal financial assistance. Any person who has questions concerning this policy or wishes to file a discrimination complaint should contact the Department’s Civil Rights Office at 605-773-3540.

Proposals must remain valid for at least 120 days after the submission deadline. All submitted proposals become the property of the South Dakota Department of Transportation. SDDOT has the right to use all information presented in any proposal unless it is specifically annotated as being proprietary. SDDOT considers all information contained in proposals to be privileged and reserves the right to maintain its confidentiality.

All proposals must meet accessibility requirements from Section 508 of the Rehabilitation Act of 1973 and are required to follow Department of Justice guidelines.

South Dakota state statute requires the winning proposal, with proprietary information redacted, to be posted online along with the corresponding contractual agreement.

SDDOT reserves the right to reject any proposals submitted. SDDOT may negotiate with a selected proposer to address specific weaknesses in the selected proposal prior to contract award.

SDDOT is not responsible for any costs, including proposal preparation, incurred by researchers prior to the execution of a contract.

Certification Relating to Prohibited Entity: For contractors, vendors, suppliers, or subcontractors who enter into a contract with the State of South Dakota by submitting a response to this solicitation or agreeing to contract with the State, the bidder or offeror certifies and agrees that the following information is correct:

The bidder or offeror, in preparing its response or offer or in considering proposals submitted from qualified, potential vendors, suppliers, and subcontractors, or in the solicitation, selection, or commercial treatment of any vendor, supplier, or subcontractor, is not an entity, regardless of its principal place of business, that is ultimately owned or controlled, directly or indirectly, by a foreign national, a foreign parent entity, or foreign government from China, Iran, North Korea, Russia, Cuba, or Venezuela, as defined by South Dakota Executive Order 2023-02. It is understood and agreed that, if this certification is false, such false certification will constitute grounds for the State to reject the bid or response submitted by the bidder or offeror on this project and terminate any contract awarded based on the bid or response. The successful bidder or offeror further agrees to provide immediate written notice to the contracting executive branch agency if during the term of the contract it no longer complies with this certification and agrees such noncompliance may be grounds for contract termination.

Restriction of Boycott of Israel: For contractors, vendors, suppliers, or subcontractors with five (5) or more employees who enter into a contract with the State of South Dakota that involves the expenditure of one hundred thousand dollars ($100,000) or more, by submitting a response to this solicitation or agreeing to contract with the State, the bidder or offeror certifies and agrees that the following information is correct:

The bidder or offeror, in preparing its response or offer or in considering proposals submitted from qualified, potential vendors, suppliers, and subcontractors, or in the solicitation, selection, or commercial treatment of any vendor, supplier, or subcontractor, has not refused to transact business activities, has not terminated business activities, and has not taken other similar actions intended to limit its commercial relations, related to the subject matter of the bid or offer, with a person or entity on the basis of Israeli national origin, or residence or incorporation in Israel or its territories, with the specific intent to accomplish a boycott or divestment of Israel in a discriminatory manner. It is understood and agreed that, if this certification is false, such false certification will constitute grounds for the State to reject the bid or response submitted by the bidder or offeror on this project and terminate any contract awarded based on the bid or response. The successful bidder or offeror further agrees to provide immediate written notice to the contracting executive branch agency if during the term of the contract it no longer complies with this certification and agrees such noncompliance may be grounds for contract termination.

Proposal Deadline: Proposals are due to the SDDOT by 5:00 pm CST on Thursday, December 17, 2026. This deadline is firm. Extensions will not be granted.

Proposals must be submitted as an e-mail attachment in Portable Document Format (PDF) not exceeding 18MB. The email must be addressed to andy.vandel@state.sd.us and michael.border@state.sd.us.

Proposers should send the e-mail using “Delivery Receipt” and “Read Receipt” options to verify successful delivery.

Proposal Guidelines: Proposals must fulfill the requirements listed in the document entitled RESEARCH PROPOSAL PREPARATION, SUBMISSION, AND EVALUATION and dated April 27, 2026.

Proposal Evaluation: Proposals will be evaluated by a technical panel knowledgeable in the problem area.

Selection will be made in consideration of criteria listed in RESEARCH PROPOSAL PREPARATION, SUBMISSION, AND EVALUATION.

Project Management: Andy Vandel is responsible for the management of this project and can be reached at andy.vandel@state.sd.us to answer inquiries.