Work lights, flagger paddles and radios: how night road crews stay visible and in step
How to light flagger stations, control glare, signal clearly and keep radio contact
Safety Behind the Wheel Foundation built this guide from the Federal Highway Administration’s (FHWA) Manual on Uniform Traffic Control Devices, Occupational Safety and Health Administration (OSHA) rules and guidance, National Institute for Occupational Safety and Health (NIOSH) data, federal work zone regulations and published research. Every source is listed at the end.
Why these three tools belong together
A road crew at night faces two problems. Drivers must see the work area early enough to slow down. Crew members must understand each other over engines and traffic. Lights, paddles and radios tackle both.
A flagger paddle is a hand held sign on a handle that tells drivers to stop or slow. Work lights show drivers where the crew and the flagger are.
The stakes are high. A work zone is a stretch of highway with construction, maintenance or utility work [4]. In 2022, U.S. work zones had about 96,000 collisions and about 37,000 injuries [4]. The CDC’s National Institute for Occupational Safety and Health (NIOSH) lists 891 fatal injuries that year [4]. It also lists 136 pedestrian fatal injuries and says 105 were workers [4].
A study of 3,268 OSHA accident reports from 2000 to 2022 found that struck by events made up over 50% of reported construction work zone accidents and nearly 70% of related deaths [5]. In New York State projects from 1990 to 2001, “flagger struck by vehicle” was one of five traffic accident types behind nearly 86% of fatal traffic accidents involving contractors’ employees [6].
Road contractors, utility crews and maintenance teams use all three tools. Towing firms and event operators may too, with the road owner’s approval. For driver behavior and move over laws, see our work zone and move over safety article.
Who chooses and places this equipment
Authorized agencies select, design and place public traffic control devices, and trained crews carry out the plan. Anyone working on a public road should follow the road owner’s plan.
The main rulebook is the Manual on Uniform Traffic Control Devices, or MUTCD. Its Part 6 covers temporary traffic control, the signs, lights, people and devices that guide drivers through roadwork. OSHA’s work zone page says guidance on work zone signs, barricades and flagging is in the MUTCD [7]. OSHA’s signaling rule says flagger signaling and the use of flaggers, including warning garments, must conform to Part 6 [9].
The 11th Edition of the MUTCD took effect January 18, 2024, and Revision 1 took effect March 5, 2026. States must adopt the 11th Edition within two years of its effective date [8]. This article quotes the December 2023 text of Part 6 [1]. Revision 1 is now current, so ask the road owner which wording applies to your project.
FHWA’s rule on temporary traffic control devices asks agencies to consider measures that include trained flaggers and spotters, enhanced flagger stations, worker visibility and worker training [3]. A companion rule says states must require training for people who plan, run and inspect work zone traffic control, with periodic updates [10].
Work lighting: what it does and where the light should fall
Lighting has three jobs at a night work site. It helps workers see what they are doing. It helps drivers see the flagger and the work area from far enough away to react. It also helps the crew spot hazards in their own space.
The MUTCD treats these jobs differently. For night work, it says the traffic control zone and its approaches may be lighted, so general lighting is an option [1]. For flagging, the rule is firm. Flagger stations must be lit when flagging is used at night, except in emergencies [1].
OSHA’s work zone fact sheet says lighting for workers on foot and equipment operators should be at least 5 foot candles. A foot candle is a U.S. unit that measures how much light lands on a surface. Where lighting is not enough, the sheet says to use flares or chemical lighting [2]. OSHA’s construction rule lists 5 foot candles for general construction area lighting [11].
Crews use light towers on trailers, balloon style lights that glow inside a large fabric globe, truck mounted lamps and small stand lights. Each spreads and aims light in its own way.
Plan light in layers. Start with the flagger station, so drivers see the flagger and paddle from far away. Next light the work space, then the paths people and equipment use. Keep lenses clean, fuel or batteries full and masts steady.
Glare: the risk bright lights can create
Glare is light so bright or so badly aimed that it makes seeing harder. OSHA’s fact sheet says glare affecting workers and motorists should be controlled or eliminated [2]. A dazzled driver cannot judge where the flagger stands. A flagger facing a lamp cannot see vehicles coming.
Glare is hard to count on real roads. A 2026 study of police reports from 11 states found glare recorded in only 0.1% to 0.2% of nighttime crashes from 2015 to 2024 [12]. Where officers described the driver’s response, leaving the lane was the most common, in over half of cases [12]. That study looked at headlights, not work lights, and counts only what officers wrote down. Still, a driver who drifts out of the lane beside a work space is what crews want to prevent.
A Texas study of 2020 to 2024 collisions in which vehicles hit workers or work areas tied nighttime lighting and rainy or cloudy weather to injury severity [13]. The authors point to reduced visibility or changed driver behavior as possible reasons [13].
Run this drive through check at each new night setup:
- Mark where each light will stand and what it must show.
- Aim each lamp down and toward the work, not toward the drivers’ lane. Use shields if the lamp has them.
- Turn all lights on before dark, so you can fix the aim while you can still see the problem.
- Have a coworker drive toward the site at normal speed in each open direction. Note any spot where light hits the eyes or the flagger vanishes in a bright patch.
- Stand at the flagger station and look both ways. No flagger should face a lamp.
- Adjust and repeat until the problem spots are gone, then recheck at mid shift and after any move.
Flagger paddles: what the standard asks for
A flagger is a trained worker who directs traffic with hand signals. The MUTCD calls the STOP/SLOW paddle the primary and preferred hand signaling device, because it gives road users more positive guidance than red flags [1]. Both the MUTCD and OSHA say flags are for emergencies [1, 2].
Comparison compiled by Safety Behind the Wheel Foundation
What MUTCD Part 6 asks of a flagger paddle
| Feature | What Part 6 says | Why it matters at night |
|---|---|---|
| Shape and handle | Octagonal, on a rigid handle [1] | Drivers know the shape as a stop sign |
| Night visibility | Must be retroreflective at night [1] | Headlight beams bounce back to the driver |
| Material | Should be light and semirigid [1] | Easier to hold steady for hours |
| Height | Staff tall enough that the face is seen when the staff rests on the ground [1] | Stopped drivers can still see it |
| Size | Sign size table lists 18 by 18 inches for the STOP face [1] | Large enough to read from a distance |
| Lights | Optional flashing lights, white or red on STOP [1] | Extra notice in a busy scene |
A STOP/STOP or SLOW/SLOW paddle may be used in some situations if it meets the same size and shape rules [1]. The option for flashing lights allows white or red on the STOP face, white or yellow on the SLOW face, and 50 to 60 flashes per minute [1].
To stop traffic, the flagger faces drivers and aims the STOP face at them in a stationary position, arm extended horizontally. The free hand is held above shoulder level, palm toward traffic [1]. Waving the paddle sends a mixed message.
The flagger station at night
A flagger station is the spot where a flagger stands to control traffic. The MUTCD says drivers must have enough distance to stop at the intended spot. Stations should also leave extra room for a runaway vehicle to stop before the work space [1]. An advance warning sign must come first, except in emergencies [1, 2].
The flagger should stand on the shoulder beside the traffic being stopped, or in the closed lane before stopping drivers. The spot should be far enough ahead of workers to warn them of out of control vehicles. The flagger should stand alone, away from workers and equipment, with an escape route picked out [1].
Two night checks fit here. Stand where drivers will stop and look back: can you see the paddle face from far away? Then walk the escape route after dark. Is it lit and clear?
Two way radios: keeping flaggers and crew in step
A two way radio is a hand held or vehicle radio that lets people talk right away. When a closure squeezes two way traffic into one lane, a flagger should control traffic at each end. One should be the coordinator, and the flaggers should be able to talk by voice, electronic means or manual signals [1]. If one flagger can see from end to end, one flagger or two may be used [1].
The manual adds that signals between flaggers should not be mistaken for flagging signals meant for drivers [1].
Radios have limits. A Virginia Tech team testing alerts for highway workers noted that poor visibility and high noise can hinder warnings. In their early tests, vibration alerts drew 43.6% faster reactions than audio signals [14]. Those tests are not a field standard, but they show that a spoken call can be missed. Crews need a backup.
Radios can also be a hazard. The MUTCD requires a TURN OFF 2 WAY RADIO AND CELL PHONE sign where blasting operations occur [1]. Near blasting, follow the blasting contractor’s radio rules.
The MUTCD sections quoted here do not script radio phrases. Flagger training and the agency’s plan do that. A trained communication procedure often looks like this:
- Test every radio before the shift, including a call between the two flagger stations.
- Name one coordinator who decides when each end releases traffic.
- Use short, agreed phrases, the same ones every night.
- Say who you are calling, who you are, then the message.
- Repeat back every order to hold or release traffic.
- Never release traffic on a message you did not understand. Ask for it again.
- Agree on what each flagger does if the radio fails, such as holding traffic until contact returns.
When choosing radios, ask about range across your longest closure, battery life for a full shift and weather ratings. Pick a setup that lets the flagger still hear traffic. Ask the supplier whether the radios need a license and which channels to use.
Training and the pre shift briefing
The MUTCD says flaggers should be trained in traffic control practices and public contact. They should communicate instructions clearly, move quickly to avoid errant vehicles and recognize dangerous situations [1]. OSHA’s fact sheet says flaggers should be trained or certified and use the signaling methods the authority in charge requires [2]. Safety Behind the Wheel Foundation gives every crew the same advice.
Night work adds fatigue. OSHA’s fact sheet says workers should be told how shiftwork and nightwork may affect their performance [2]. Our article on work driving fatigue and scheduling covers sleep and the drive home.
Upkeep and common mistakes
Each agency must use quality guidelines to keep temporary traffic control devices adequate for the whole project, with enough inspection to check them [3]. The MUTCD says crews should watch the zone in different traffic, light and weather conditions to confirm devices are effective, clearly visible and clean. It says signs that lose legibility should be replaced promptly [1]. A paddle is a hand held sign, so the same checks apply.
Comparison compiled by Safety Behind the Wheel Foundation
Common mistakes with lights, paddles and radios
| Tool | Common mistake | Better habit |
|---|---|---|
| Lights | Aimed at the lane drivers use | Aim down and toward the work, then drive through |
| Lights | Set once at dusk and never rechecked | Recheck at mid shift and after any move |
| Paddle | Dirty, faded or bent face | Clean it, and replace it when it loses legibility [1] |
| Paddle | Flag used as the main signal | Keep flags for emergencies [1] |
| Paddle | Waved or swung while signaling | Hold it still, arm extended [1] |
| Radio | Battery dies mid shift | Carry charged spares |
| Radio | Radio is the only link | Agree on manual signals and a failure plan [1] |
What drivers and neighbors can do
Slow down at the first “flagger ahead” sign and follow the paddle. Do not stare into work lights. For night driving habits, see our night driving safety article.
If a site has a problem, such as a blinding light, a dark flagger station or an unreadable paddle, note the road, nearest cross street, time and what you saw. Then contact the road owner, usually a state, county or city agency. Our guide to safer road design explains how. If someone is in danger now, call 911. Never place, move or adjust traffic control devices yourself.
Where crews get this equipment and what to ask
Crews usually get this gear from traffic control suppliers, equipment rental firms and qualified traffic contractors. Ask these questions:
- Does the paddle meet the agency’s specification and the MUTCD rules for shape, size and retroreflection?
- How is the light spread and aimed, and can the aim be locked?
- Who inspects, cleans and repairs rented lights and radios, and how often?
- Will radios cover our longest closure, and do they come with spare batteries?
- Does the road owner accept this equipment on our project?
Frequently asked questions
Must a flagger use a paddle?
The MUTCD calls the STOP/SLOW paddle the primary and preferred device and limits flags to emergencies [1]. OSHA’s fact sheet lists paddles, paddles with lights and flags, and says to use the signaling methods the authority in charge requires [2]. So the road owner sets the final answer for your job.
How bright should work lights be?
OSHA’s fact sheet says lighting for workers on foot and equipment operators should be at least 5 foot candles [2]. Brighter is not always better, because glare must be controlled [2]. Ask the supplier or road owner for a lighting plan, then run the drive through check before traffic builds.
What should I do if a work light blinds me while driving?
Slow down and keep to your lane markings. Look toward the right edge of your lane rather than into the light, and watch for workers and trucks. Afterward, report the location and time to the road owner so the aim can be checked.
Can a tow operator or event crew use these tools on a public road?
They may, but flagging on a public road should follow the road owner’s rules, which build on MUTCD Part 6 [7]. Ask the road owner or local authority what approval you need before you set anything up, and confirm that each flagger has the training the agency expects.
How often should lights, paddles and radios be checked?
Check them before every shift, at mid shift and after any move, such as a truck repositioning or a light being bumped. The MUTCD says crews should watch the zone under different traffic, light and weather conditions [1]. Agencies must also maintain temporary devices all project long [3].
The bottom line
Recommendation from Safety Behind the Wheel Foundation
Safety Behind the Wheel Foundation urges night crews to light every flagger station, check for glare and agree on radio habits before each shift. Work lights, flagger paddles and radios are simple tools, and each fails in a simple way. Lights blind drivers when badly aimed. Paddles go unseen when dirty, held low or waved. Radios fail when nobody tests them or agrees on words.
A calm routine solves most of this. Light the flagger station, check glare from the driver’s seat, keep paddles clean and still, and brief the crew each shift.
Related articles
- Work zone and move over safety: protect road crews, responders and you
- Night driving safety: how to see hazards and stop in time after dark
- Work driving fatigue: safer shifts, schedules and trip rules for employers
- Safer road design: a field guide to the safety fixes on your street
- Move over laws by state: who's protected and what you must do
Sources and further reading
- 1Federal Highway Administration (FHWA). Manual on Uniform Traffic Control Devices, 11th Edition, Part 6: Temporary Traffic Control. Published December 2023 (Revision 1 took effect March 5, 2026). mutcd.fhwa.dot.gov/pdfs/11th_Edition/part6.pdf
- 2Occupational Safety and Health Administration (OSHA). FactSheet: Work Zone Traffic Safety. Published 2005. osha.gov/…/work_zone_traffic_safety.pdf
- 3U.S. Government Publishing Office, eCFR. 23 CFR Part 630, Subpart K – Temporary Traffic Control Devices. eCFR text current through October 2, 2026. ecfr.gov/…/subpart-K
- 4Centers for Disease Control and Prevention, National Institute for Occupational Safety and Health (NIOSH). Highway Work Zone Safety. Updated November 6, 2024. Data year: 2022. cdc.gov/niosh/motor-vehicle/highway/index.html
- 5Khan M, Gbiengu P, Ibrahium A, Nnaji C. Investigating patterns and causes of struck-by accidents in roadway construction projects. International Journal of Occupational Safety and Ergonomics, 2025. PubMed record (PMID 40459033). Data year: 2000 to 2022. pubmed.ncbi.nlm.nih.gov/40459033
- 6Mohan S, Zech WC. Characteristics of worker accidents on NYSDOT construction projects. Journal of Safety Research, 2005. PubMed record (PMID 16197960). Data year: 1990 to 2001. pubmed.ncbi.nlm.nih.gov/16197960
- 7Occupational Safety and Health Administration (OSHA). Highway Work Zones and Signs, Signals, and Barricades – Overview. Published or updated: date not shown; reviewed October 2026. osha.gov/highway-workzones
- 8Federal Highway Administration (FHWA). Manual on Uniform Traffic Control Devices (MUTCD). Page updated August 5, 2026 (11th Edition effective January 18, 2024; Revision 1 effective March 5, 2026). mutcd.fhwa.dot.gov
- 9Occupational Safety and Health Administration (OSHA). 1926.201 – Signaling. Updated May 14, 2019 (84 FR 21577). osha.gov/…/1926.201
- 10U.S. Government Publishing Office, eCFR. 23 CFR Part 630, Subpart J – Work Zone Safety and Mobility. eCFR text current through October 2, 2026. ecfr.gov/…/subpart-J
- 11U.S. Government Publishing Office, eCFR. 29 CFR 1926.56 – Illumination. eCFR text current through September 30, 2026. ecfr.gov/…/section-1926.56
- 12Brumbelow ML. Headlight glare in police-reported crash data: Prevalence, contributing factors, and potential effects. Journal of Safety Research, 2026. PubMed record (PMID 42744470). Data year: 2015 to 2024. pubmed.ncbi.nlm.nih.gov/42744470
- 13Chowdhury TI, Starewich M, Barua S, Tusti AG, Das S. Impact assessment of contributing factors in direct-impact work zone crashes using heterogeneity and constrained-based discrete choice models. Accident Analysis and Prevention, 2026. PubMed record (PMID 41806800). Data year: 2020 to 2024. pubmed.ncbi.nlm.nih.gov/41806800
- 14Yang X, Roofigari-Esfahan N. Vibrotactile Alerting to Prevent Accidents in Highway Construction Work Zones: An Exploratory Study. Sensors, 2023. PubMed record (PMID 37420817). pubmed.ncbi.nlm.nih.gov/37420817
This article reflects the safety priorities of work zone traffic control and protecting road crews at night. It is general education, not legal or professional advice, and it does not replace your agency's traffic control plan, flagger training or the current MUTCD. Rules change, so verify details with official sources. For your own project, contact the road owner (a state, county or city agency), your employer's safety manager or OSHA. Reviewed October 2026.
Cite this article: Safety Behind the Wheel Foundation. “Work lights, flagger paddles and radios: how night road crews stay visible and in step.” drivewithcare.org, https://drivewithcare.org/work-lighting-two-way-radios-flagger-paddles/. Reviewed October 2026.
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