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The MUTCD:Its History and Future
Gene Hawkins, Ph.D., P.E.Texas A&M University
1920s
1930s
1940s
Early 1950s
1960s
Today
Manual on UniformTraffic Control Devices
Known as the MUTCDContains basic principles for
traffic control devicesEssential traffic engineering
toolExtensive informationLong historyMultiple versions – many
editions
1935 1942 1948 1961 1971 1978 1988 2000
The MUTCD: Where It’s Been
There have been 10 editions of the MUTCD
2003 2009
Summary of MUTCD Evolution
Edition MUTCDEra Pages Parts Size
(inches)Thickness (inches)
1935Initial
166 4 6×9 ⅜
1942 208 4 6×9 ⅜
1948Transition
223 4 6×9 ⅜
1961 333 6 6×9 ⅝
1971
Mature
377 8 6×9 ¾
1978 425 9 6×9 1⅜
1988 473 9 6×9 1⅜
2000
Modern
982 10 8½×11 1⅝
2003 754 10 8½×11 1¼
2009 864 9 8½×11 1⅝
*FHWA assumed MUTCD ownership
How did we end up with a such large document on traffic control devices?
*
Traffic Control Devices History
Early markers were used in the Roman EmpireAlso used on pioneer trails in AmericaAutomobile age created new demands
Colonial America
Early 20th Century
Roman Empire
Early Traffic Signs
Need for devices increased with more automobile travel
Little coordination between agencies
Early Traffic Control Devices
The wide variety of devices created the need for uniformity
1914 – 1st electric signal Cleveland
1911 – 1st centerline Michigan
1920 – 1st 3-colorsignal Detroit
1923 Sign Shape Recommendations
Mississippi Valley Assoc of St Hwy DeptNumber of sides represents hazard level
RR Grade Crossing
Stop Intersection
Warning (speed reduction)
Caution
Directions or Regulations
1924 Sign Color Recommendations
National Conference on Street and Highway Safety
For signs and signals
Red - stopWhite – directions
or distance
Yellow - caution
Green - proceed
Purple – intersection
1925 Joint Board Report
Report of Joint Board on Interstate Highways
AASHO ledDeveloped U.S. Highway systemIncluded recommendations for
standard signs
1927 AASHO Manual
Evolved from Joint BoardFirst national manualRural signs only Title:
Manual and Specifications for the Manufacture, Display, and Erection of U.S. Standard Road Markers and Signs
Revised 1929 and 1931
1930 NCHS Manual
Prepared by American Engineering Council
Signs, markings, and signals for urban areas
Title: Manual on Street Traffic
Signs, Signal and Markings
Not Revised
Birth of the MUTCD
Problems of two manuals led to creation of the MUTCD
Joint Committee
1927 Rural Manual
1930 Urban Manual
1935 MUTCD
1935 MUTCDFirst MUTCD
1935 mimeograph1937 typeset
SignsWhite or yellowDiamond, square, circle,
octagon, rectangleMarkings
White, yellow, or blackSignals
3-color signal as standardRevised 19391937 Typeset
1935 Original
1942 MUTCD
Few major changesAddressed wartime
conditionsConservation of materialsBlackout traffic control
Not Revised
1948 MUTCD
Significant rewriteSigns
Simplified messagesEliminated square signsAdded advisory plateRounded alphabet
Pavement markingsYellow – Double center & barrier lineWhite – all other applicationsEdge lines not recommended
Simplified signal warrants
Revised 1954
Traffic Signal Legacies
Non-standard traffic signals continued in use through the 1950s and 1960s in some locations
Darley 2 bulb signal
Wiley signal
NYC Olives
1958 AASHO Interstate Manual
Created for the new Interstate Highway system
New featuresWhite on green guide signsLower case lettersGreen on white service signs
Utilized larger sign sizesBlue service signs added in
1961 revision
Revised 1961, 1962, 1970
1961 MUTCD
Federal compliance requiredNew material:
Construction traffic controlCivil defense signingFreeway guide signing
Not Revised
1971 MUTCD
Significant rewriteDOT ownershipNew features:
Content: school areasColor: orangeShapes: pennant, pentagon
International sign influenceMany new symbols
Yellow markings for opposing traffic
Revised 8 times
1978 MUTCD
Update of 1971 editionLoose leaf (binder) format
Individual page revisions
New contentRR-hwy grade crossingsBicycle facilities
Yellow markings on left side Revised 4 times
1988 MUTCD
Update of 1978 edition Included new revision (#5)
New contentRecreational/cultural signsLogo signsTODS
Planned to be revised only for safety reasons Revised 7 times
Rev 3: Part VI
MUTCD During the 1990sBlue ribbon panel (1989)
Recognize shortcomings of 1988 MUTCDRecommended reformat and rewrite of 1988 MUTCD
Need to clarify intent of languageExamples of language challenges
“shall be permitted”“shall preferably be”“normally should” “may be required”
Two step process: reformat then rewriteStarted in early 1990s
“may be justified”“it is desirable that”“it is necessary that” “is intended for use”
Rewrite/Reformat EffortFirst step
Evaluate current languageReformat language using shall, should, & may
Classify as standard, guidance, option, support (with headings)
Second stepRewrite reformatted languageUpdate contentFix inconsistencies
Multiple proposed rules in mid- to late-1990sResulted in 2000 MUTCD
2000 MUTCD
Millennium editionReformatted/rewrittenSignificantly different
from 1988 MUTCDFirst with 8½11 pagesFirst to be on the internetMany errors & shortcomings
Editorial and technical errorsErrata did not correct all problems
1 Errata1 Revision
Significant Changes
New structureStandard, Guidance, Option, Support
New parts added to MUTCDLow Volume RoadsHighway-Light Rail Transit Grade Crossings
Islands part deletedDefinitions addedPrimary units: metric
2000: Selected Key Changes
Legibility index = 40 ft/inSign graphics not accurateLane ending symbol
(W4-2) droppedCrosswalk lines dropped
from crossing signsNew Yield LineIn-road lights
2003 MUTCD
Primarily an update of the 2000 MUTCDChanges
Editorial improvementsGraphics correctedTechnical correctionsSome new material
Compressed text982 to 754 pages
2 Revisions
2003: Selected Key Changes
Some new/revised signsNew sign color
Pink for incident mgmt
Countdown ped signalsMetric sign changesAccessibility in work zonesRevisions:
1: Pharmacy signing2: Min sign retro
2009 MUTCD
Current edition (10th overall)Final rule: Dec 16, 2009NPA received more
comments than any other1,840 individual letters15,000+ comments
Many changes611 significant changes listed
in Federal Register final rule
2009: Philosophical ChangesFWHA focus for 2009 MUTCD
UniformityComplete street concept: all road usersAging populationInnovation
More specific detail, reduced ability to deviateFine tuning of TCD useMore devices addressed
Compliance dates restructuredCompliance as part of systematic upgrade
MUTCD applies to private propertyCombine RR and LRT partsNew content
Toll road & managed lanes traffic control Purple for toll roads
Changeable message signs
2009: Selected Key ChangesParagraphs numbered, guidance italicized, metric values removedChange in definition for a standard
Added: “Standard statements shall not be modified or compromised based on engineering judgment or engineering study”
Legibility index = 30 ft/inIncreases in sign sizes – 36 in Stop sign required for some situationsIncreased requirements for One Way signsRequirements for warning signs for
changes in horizontal alignmentRevised optional lane guide signing
Individual arrowsHigh-visibility safety apparel
Required for all workers within the public right-of-way
School warning signs: FYG only Cannot use Speed Limit sign alone to end school speed limit zoneYield or Stop signs required at passive grade crossings
2009: Signal Changes
12 inch indications for all new installationsLimited use of 8 inch indications
Signal head for each lane when speed 45Backplates required
Flashing yellow arrow for left turnsHybrid beacon (HAWK) for ped crossing
2009 MUTCD Revisions
Rev 1: engineering judgment & definition of a standardAdded: the MUTCD is not a substitute for
engineering judgmentDeleted: standard statements shall not be
modified or compromised based on engineering judgment
Rev 2: compliance dates12 of the previous 58 compliance dates retainedSeveral of the remaining 12 have been modified
Hotlinks 2009 MUTCDFHWA posted hotlinks version of the 2009 MUTCD
Cross-referenced chapters, sections, figures, and tablesPop-up definitionsLinks to external documents and web sitesLinks to official interpretationsIndications of material affected by known errors 31 MB file – download instead of using on-line version
MUTCD ResourcesMUTCD web site
http://mutcd.fhwa.dot.govHTML & PDF versions of MUTCD (incl hotlink)Lists of changes
mutcd.fhwa.dot.gov
Additional Resources
MUTCD History ResourcesSearch “Gene Hawkins MUTCD” – goes to CE Profs website
Select MUTCD History linkMUTCD history PPT presentationITE Journal articlesScans of old MUTCDs
Future of the MUTCD
Two areas of interest:Recent and upcoming FHWA action
Request for comments on splitting MUTCDExpected 2016 MUTCD edition and related
rulemaking activitiesLong-range vision and strategic plan
NCUTCD effort to identify questions and identify needs for the MUTCD of the 2030s
Splitting the MUTCDJanuary 2013
FHWA Federal Register notice requesting comments on splitting MUTCD into 2 documents1) Standards document (MUTCD) subject
to rulemaking2) Supplemental document that can be
changed without rulemakingJune 2013
FHWA announces that comments were against splitting and FHWA agrees with comments
MUTCD to remain as single document
Rulemaking for Next MUTCD
FHWA has indicated a plan to publish a new edition of the MUTCD in 2016
Expect proposed rulemaking in late 2014 or early 2015
Potential proposed changesCritical technical changesReduce number of shall statementsImprovements in organization and language
Potential Enhancements for Next Edition
Incorporate routine updatesNCUTCD recommended changesCorrecting errors or inaccuracies in 2009 Edition
Improve with new contentAdding content to address new technologies or treatmentsAdding content necessitated by new legislationAdding content related to an urgent or critical need
Reassess each standard statement: Retain, delete, or downgrade
Eliminate redundant or unnecessary textReorganize content where opportunities for improving
flow are identifiedReorganize/reconfigure existing figures to better
correlate with text
20-Year Future of the MUTCDWhat is the future of the MUTCD?
If we were to write the MUTCD from a blank sheet of paper, what would we end up with?
Some key questions:What is the MUTCD?
Book of standards, engineering guidelines, best practices, other
What audience is the MUTCD written for? (this is a different question from who uses the MUTCD)
Traffic engineers (new, mid-career, experienced), contractors, lawyers, traveling, public, elected officials, architects, private property owners, other
Who should be responsible for the MUTCD?FHWA, NCUTCD, AASHTO, ITE, other
MUTCD needs a long-range (20+ year) vision
Why a Vision and Strategic Plan (VSP)?
MUTCD grown in size and complexityMost MUTCD changes developed on individual
basis without strategic coordinationCritical unknowns not yet defined:
MUTCD purpose (why it exists)MUTCD target user (who written for)MUTCD basic content concepts (what goes in it)
2009 MUTCD issuesSize of NPA and coordination of revisionsSpecificity of content mandates
Where does the MUTCD need to go over the next 20 years?
VSP DevelopmentVision & Strategic Planning (VSP) effort conducted by National
Committee on Uniform Traffic Control Devices (NCUTCD)2010-2012: Initial efforts by NCUTCD task force to develop
VSP2012-2013: Presentations to stakeholder groups and
development of white papersMultiple attempts to create a plan
Nothing worked well, tried to keep it smallResult of volunteer committee approach
May 2013: start overCombined every document
into one fileOrganized the pieces
Found order from chaosNCUTCD review: Fall 2013NCUTCD approval: January 2014
Document Structure
79 pagesFront matterCh 1: IntroductionCh 2: MUTCD Opinions, Challenges,
Needs, and QuestionsCh 3: Recommended VisionCh 4: Recommended Strategic PlanReferences and Appendices
Highlights: Front Matter and Introduction (Ch 1)
Background information on development of VSP
Process used to develop VSPStructure and status of document
Structure: Opinions, Challenges, Needs, and Questions (Ch 2)
Categories:TCDs as independent elementsMUTCD as authoritative
reference documentStructure and organizationContentUse and usersAdministrationTechnology influence
Groups for each category:OpinionsChallengesNeedsQuestions
Highlights: Opinions, Challenges, Needs, and Questions (Ch 2)
Series of thoughts related to categoryOpinions and challenges generally lead
to needs and questionsNeeds and questions generally lead to
recommendations in the Vision chapter
Need to read this chapter so you know the basis for the Vision recommendations
There are 124 items (#1-124)
Structure: Vision (Ch 3)
This chapter recommends what MUTCD should be in 20 years
Chapter structure:Fundamental assumptionsFundamental recommendationsGuiding rules for the MUTCD contentRecommended MUTCD languageMUTCD contentMUTCD structureMUTCD revisions
There are 49 items (#501-549)
Highlights: Vision (Ch 3)Keep as one document
Proposed alternative structure conceptDefine TCD activitiesMore levels of mandate
Distinguish uniform and consistent standards4 levels of mandate:
Standard, requirement, recommendation, optionDistinguish user content
Engineer (decision) Non-engineer (instruction)
Better coordinate contentNeeds more than hyperlinksConcept of “smart tags”
Limits on size of rulemaking
Structure: Strategic Plan (Ch 4)
Phase I: complete strategic planActivities that are beyond volunteer abilitiesAdditional outreach
Phase II: 2016 MUTCDContent improvementNo major changes
Phase III: 2024-26 MUTCD Restructuring levels of mandate
Phase IV: mid-2030s MUTCDContent coordinationNeed to start in near future to finish by mid-2030s
Key thought: MUTCD stability is importantDon’t want to make all the changes at once
Structure: Appendices
A: Portions of US Code and Code of Federal Regulations
B: History and Growth of the MUTCDC: Revising the MUTCDD: National Committee on Uniform Traffic
Control DevicesE: Future of Traffic Control DevicesF: ADA Laws and Regulations