Introduction

The Work Zone Safety and Mobility Rule, issued by the Federal Highway Administration 

(FHWA) in 2004, aims to bring about greater consideration and understanding of work zone 

impacts throughout project development; minimization of those impacts where possible 

through scheduling, coordination, design, and staging decisions; and better management of 

remaining impacts during construction. Design-build projects have become more prevalent as 

agencies seek to speed up projects to leverage resources. The principles advocated by the Rule 

and its provisions apply to design-build projects, but may need to be applied somewhat 

differently to address the differences between design-build and traditional design-bid-build.

Research was conducted to explore and identify the issues with and approaches to applying the 

Rule to design-build projects and how this affects the project development process. In-depth 

research was done through two case study sites to further examine the issues and identify 

successes, challenges, and tips. This leaflet summarizes the key points and uses the two case 

studies to illustrate successes and challenges. More details are provided in the publications 

referenced at the end of the leaflet. The two case studies are briefly described below.

Colorado US 285 Design-Build Project

Colorado Department of Transportation’s (CDOT) US 

285 Design-Build Project was a $40 million safety and 

mobility project on US 285 (Hampden Avenue) in the 

southwestern part of the Denver Metropolitan area. 

The project covered four miles of a mostly four-lane 

limited access facility that included one signal 

controlled intersection. The primary elements of the 

project were reconstruction/resurfacing of the highway 

replacement of three bridges, rehabilitation of four 

bridges, and reconstruction of an interchange.

North Carolina I-85 Corridor Improvement Project

The I-85 Corridor Improvement Project was a $201.5 

million design-build project located in Central North 

Carolina, half way between Charlotte and Greensboro. 

The project was split into separate north and south

segments. Each segment was let as an individual designbuild contract, with a different team selected for each 

segment. The southern segment included the I-85 Bridge 

over the Yadkin River, the only major vehicular crossing 

for many miles. The primary elements of the project were

widening and reconstruction of the highway, and 

reconstruction of interchanges, bridges, and rail 

infrastructure.

Key Aspects of the 

Rule

Work Zone Assessment 

and Management 

Procedures

Work Zone Data 

Collection and Analysis

Training

Process Review

Transportation 

Management Plans

(TMPs)

Plans, Specifications & 

Estimates that Include 

the TMP or Provisions 

for Contractors to 

Create a TMP

Pay Item Provisions for 

Implementing the TMP

Designated Trained 

Persons

Work Zone Safety and Mobility Rule

forDesign-Build Projects

Successes, Challenges, and Tips

FHWA-HOP-13-026 March 2013
Differences between Design-Bid-Build and 

Design-Build That May Affect Rule Application

Two major differences between the design-bid-build and 

design-build project delivery methods are who assumes the risk 

during the project and how the roles and responsibilities are 

handled. Because of these factors, the key aspects of the Rule 

may need to be applied to a design-bid-build project differently 

than they do a design-build project. The table below illustrates 

the different roles and responsibilities for the Owner/Agency 

and the Contractor in both project delivery methods.

Design-Bid-Build Method Design-Build Method

Owner/Agency

• Develop plans and specifications

• Identify and estimate work zone impacts 

• Identify appropriate transportation management 

strategies:

 Temporary traffic control

 Traffic operations

 Public information

• Identify coordination issues (e.g., utilities, enforcement, 

emergency response, community impacts) and conduct 

upfront coordination

• Develop TMP, including the Traffic Control Plan (TCP)

• Include in the Plans, Specifications & Estimates (PS&E)

those TMP items that will be implemented by the 

Contractor

• Develop and implement public information plan

• Implement TMP, except those components included in the 

contract

• Perform quality assurance, control, and verification, 

including for maintenance of traffic

• Monitor and manage work zone impacts during 

construction – has greater ownership than the Contractor

• Define requirements for work zone impacts assessment 

and allowable impacts during construction

• Define requirements for transportation management 

strategies:

 Temporary traffic control

 Traffic operations

 Public information

• Identify coordination issues (e.g., utilities, enforcement, 

emergency response, community impacts)

• Develop Request for Proposal (RFP) that outlines project 

requirements 

• Assist with public outreach and interagency coordination

• Perform quality verification, including for maintenance of 

traffic

• Provide oversight over monitoring and management of 

work zone impacts during construction

Contractor/Design-Builder

• Construct the project in accordance with the 

Owner/Agency plans and specifications

• Implement the components of the TMP that were included 

in the contract

• Coordinate with utilities on field work

• Provide a safe worksite

• Monitor and manage work zone impacts during 

construction, if included in the contract

• Design plans

• Assess work zone impacts per contract requirements

• Develop the TMP (including the TCP) 

• Construct project based on Contractor completed design

• Implement the TMP 

• Develop and implement public information plan – may 

share responsibility for public outreach with the 

Owner/Agency

• Coordinate with utilities upfront and during field work

• Provide a safe worksite

• Monitor and manage work zone impacts during 

construction

• Perform quality control and quality assurance, including 

for maintenance of traffic

Successes, Challenges, and Tips

RFP Development and Proposal Evaluation

Successes

• CDOT placed safety, quality, and mobility as a priority by 

including extensive requirements in the RFP for the US 285 

project and awarded a significant amount (35 percent) of 

points for those portions of the proposals.

• NCDOT found that if a project begins with a solid scope that 

specifies non-negotiable items, performance measures, and 

timelines, many future concerns/conflicts can be avoided.

• NCDOT noted the importance of being specific about the TMP 

requirements without being overly prescriptive. This allows 

the Contractor flexibility to generate and implement 

innovative ideas to shorten the project schedule, increase 

safety and mobility, and reduce project costs.

• The I-85 Project RFPs devoted significant score percentages 

to work zone safety and mobility and encouraged value 

added elements and innovations. The Contractor responded 

by including some extra elements that aided in work zone 

monitoring and traffic management.

• The US 285 RFP required that a maintenance of traffic (MOT)

task force be created, with CDOT and Contractor personnel, 

to ensure the TMP was developed in conformance to the RFP. 

Challenges

• The I-85 Project required the Contractors to supply portable 

dynamic message signs (DMS) that could be controlled 

remotely by NCDOT traffic management centers. The RFP did 

not include requirements to ensure the signs were 

compatible with existing NCDOT systems, resulting in 

difficulties with communicating and controlling the DMS 

early in the project.
Innovative traffic control strategy to reduce conflicts 

between through and merging traffic. 

Photo courtesy of URS Group, Inc.

Tips

• Writing a good RFP is a key part to 

managing the Agency’s risk in a 

design-build project. The Agency 

must be clear and firm with their nonnegotiables in the RFP to avoid 

bearing unnecessary risks.

• Agency work zone traffic control 

staff should be involved in RFP 

development and proposal 

evaluation. This will ensure that 

safety and mobility receive the 

necessary attention during scoping, in 

the RFP, and in scoring the proposals.

• Proposal evaluation criteria and 

scoring should reflect the level of traffic management on 

the project. The RFP should place safety, mobility, and 

quality as part of the criteria and scoring to communicate to 

bidders that these factors are important to the Agency.

• Include RFP provisions to require that traffic 

management issues be addressed promptly. This is 

particularly important for design-build projects due to their

fast moving nature and payment structure. RFPs can specify 

a timeframe to address issues before monetary damages will 

be assessed.

• Project specific guidance should be used in the RFP

where the Agency’s guidelines and/or procedural 

requirements are conflicting or vague. It is important that 

the RFP includes project specific guidance that supersedes 

general policy and clearly defines requirements (e.g., 

ensuring communications systems are compatible).

• Innovations can shorten project schedule, increase safety 

and mobility, and reduce costs. It is important for the 

Agency to recognize the value of innovation and avoid 

including overly prescriptive requirements in the RFP in 

order to encourage innovation. 

Design and TMP Development

Successes

• Safety was the #1 priority for the CDOT US 285 Project and 

the Contractor made that clear by implementing many safety 

related elements as value-added components that were not 

required in the RFP.

• NCDOT staff reviewed all TCPs internally (instead of using 

consultants) for the I-85 project to: (1) ensure the plans met 

NCDOT standards, requirements, and expectations; and (2) 

eliminate a potential conflict of interest a consultant may 

have when reviewing plans on behalf of the Agency.

• The flexibility of the design-build process allowed the US 285 

Contractor to tailor project phasing to accommodate the 

strengths of their construction process. This in turn reduced

the duration of lane closures and saved money on

mobilization and traffic control operations.

Tips

• Design-build projects enable bidders to propose extra 

elements that provide benefits (value-added elements). 

These elements can improve work zone safety and mobility 

and shorten overall project duration.

• The safety of workers and the traveling public should be 

a top priority. It is important for both the Agency and the 

Contractor to recognize this from the beginning and work 

cooperatively throughout the project.

• Direct involvement by the 

Agency in reviewing TMPs may be 

more effective in reflecting Agency 

needs and expectations. The Agency 

can benefit from using qualified staff 

within its organization to ensure all 

standards, requirements, and Agency 

goals and expectations are met.

TMP Implementation and 

Monitoring

Successes

• The US 285 Contractor 

introduced an innovative strategy to 

reduce traffic flow conflicts at a ramp 

merging location. This traffic control 

modification improved safety and mobility as well as 

constructability.

• NCDOT monitored the I-85 work zone traffic conditions via 

closed-circuit television cameras and used portable DMS to 

alert travelers to work zone conditions and incidents.

• The US 285 Project required the Contractor to provide a 

courtesy patrol on the corridor during weekday peak hours

for incident response, towing, and other motorist assistance. 

This helped increase Contractor accountability and attention 

to incident management.

• The US 285 Contractor collected traffic volume data and used 

the results of capacity analysis for staging decisions in a 

maintenance of traffic variance situation.

• Availability of pre-construction crash data and data collected

during the project allowed NCDOT and the I-85 Contractors 

to assess how the work zones affected crashes and use this 

information to remedy conditions that led to crashes.

Challenges

• With the fast moving nature of design-build projects, the 

Agency may not be aware of issues with TMP implementation 

or a specific traffic control element and the issues may not be 

addressed before the work in that area is completed and the 

work zone changed/removed.

• CDOT staff performed manual data collection to monitor 

safety and mobility for the US 285 Project, but the 

information collected was generally not recorded nor 

distributed to other team members.

• CDOT and the US 285 Contractor had difficulty tracking 

incidents in the work zone. One likely cause was that the 

project was under the jurisdiction of five different law 

enforcement agencies.

• Incident data recorded by the US285 Contractor were not 

used due to resource limitations and because it was not

specified in the RFP.

• The I-85 Project RFPs did not require the Contractors to 

collect or analyze operational data to manage impacts.

Tips

• Safety and mobility issues need to be identified and 

addressed quickly. Design-build projects often have many 

configuration changes, so it can be difficult for drivers to get 

used to the traffic patterns. Project staff need to be on the 

lookout for traffic flow issues and address then promptly.

• TMP monitoring needs and responsibilities should be 

identified upfront, and the Contractor’s role included in 

the RFP. This includes what monitoring will be done, how 
Photo courtesy of URS Group, Inc.

data will be shared, and what actions will be taken on issues. 

Management of work zone safety and operational 

performance and use of performance-based specifications 

are difficult if appropriate data are not collected.

Quality Management

Successes

• The US 285 Project implemented a unique document control 

method that reduced potential errors and assured that 

construction crews were working with the correct and most 

up-to-date plan set.

• NCDOT required the I-85 Project Contractors to each 

designate a Quality Control Manager to 

ensure quality policies were 

established and followed by the 

Contractor teams, facilitating NCDOT’s 

quick review of plans.

Challenges

• The US 285 Project Contractor had a 

difficult time developing a Quality 

Management Plan (QMP) due to the 

magnitude and complexity of the 

project. CDOT worked closely with the 

Contractor to overcome this challenge 

by exchanging ideas and identifying 

CDOT’s desired concept for the QMP.

• Establishing scoring criteria and a selection process to ensure 

the winning team has a qualified designer/traffic engineering 

firm can be a challenge. It is possible that the winning team 

has a well-qualified general contractor but the design/traffic 

firm may not have the same level of qualifications and 

experience, which could impact the quality of plans.

Tips

• Successful implementation of a QMP is beneficial. 

Implementation of a QMP leads to mutual understanding in 

roles and responsibilities and collaboration between the 

Agency, Designer, and Contractor. This can result in more 

effective utilization of resources, quality products, and cost 

savings for both the Agency and the Contractor.

Team Capabilities

Successes

• Each I-85 Project RFP required a Traffic Control Supervisor 

(TCS) who was knowledgeable on TCP design and application 

and had full authority on maintenance of traffic. The TCS for 

one segment had extensive experience in North Carolina and 

fully understood NCDOT expectations and processes.

Challenges

• NCDOT felt that the Contractor did not fully understand the 

Rule and NCDOT’s work zone policy at the beginning of the 

project, but once the Contractor realized the benefits of 

applying them, the response was positive.

• NCDOT needed to educate its own staff on the importance of 

the Rule and NCDOT’s associated policies. They recognized 

that if personnel did not have this understanding, it 

hampered NCDOT’s ability to develop a good RFP and

provide guidance and oversight to the Contractor.

Tips

• A traffic control supervisor (TCS) with knowledge on 

local requirements is beneficial. A common characteristic 

of design-build projects is that many of the Contractor’s 

laborers come from out-of-State. Having a designated trained 

person with experience working in the State is beneficial to 

understanding Agency expectations and development and 

implementation of effective traffic plans.

• Contractors need to be familiar with the Rule and the 

Agency’s work zone policies. This is more important in 

design-build projects because the Contractor bears more 

responsibilities in work zone management.

• Agency staff needs to have knowledge and recognize the 

value of the Rule and associated Agency policies. This 

enables the Agency to convey the key messages to the 

Contractor, and adequately weight 

work zone safety and mobility in the 

proposal evaluation process.

Coordination and Partnership

Successes

• The RFP for the US 285 

Project required that a task force be

established to ensure coordination 

with affected agencies. This work built 

trust between the task force personnel 

and ensured all stakeholders were part 

of TMP development.

• The close collaboration among the I-85 Project design-build 

team members and NCDOT enabled them to quickly identify 

and address issues. All partners involved in TMP 

development felt they had ownership in the project.

• Coordination and cooperation between the two I-85 Project 

segments was beneficial. The results of this cooperation 

were a less congested, safer work zone and reductions in 

construction time and cost.

Tips

• Project collaboration and good partnership are 

important to project efficiency and success. This is more 

important in design-build projects as the Designer, Traffic 

Engineer, Construction Contractor, and Agency all have to 

work closely throughout the project. It is essential to make 

sure all parties are informed.

• Early engagement and participation from stakeholders 

helps with building goals and expectations into the RFP. 

This ensures that the Contractor understands the safety and 

mobility requirements and the Agency’s expectations, and 

incorporates them in design and TMP development.

Additional Resources

Applying the Work Zone Safety and Mobility Rule to 

Design-Build Projects: Key Considerations

ops.fhwa.dot.gov/wz/resources/publications/fhwahop13023

Applying the Principles of the Work Zone Safety and 

Mobility Rule to Design-Build Projects: Two Case Studies

ops.fhwa.dot.gov/wz/resources/publications/fhwahop13024

Tips for Incorporating Work Zone Safety and Mobility in 

the RFP for Design-Build Projects

ops.fhwa.dot.gov/wz/resources/publications/fhwahop13025

Work Zone Safety and Mobility Rule

ops.fhwa.dot.gov/wz/resources/final_rule.htm