Volume 3

Part 24
Road Safety Audits
 VOLUME 3 PART 24  
ROAD SAFETY AUDITS 

Disclaimer
The  State  of  Qatar  Ministry  of  Transport  (MOT)  provides  access  to  the  Qatar  Highway  Design 
Manual  (QHDM)  and  Qatar  Traffic  Control  Manual  (QTCM)  on  the  web  and  as  hard  copies  as 
Version (1.0) of these manuals, without any minimum liability to MOT. 
 
Under  no  circumstances  does  MOT  warrant  or  certify  the  information  to  be  free  of  errors  or 
deficiencies of any kind.  
 
The  use  of these  manuals  for any work does  not relieve  the user  from  exercising due diligence 
and  sound  engineering  practice,  nor  does  it  entitle  the  user  to  claim  or  receive  any  kind  of 
compensation for damages or loss that might be attributed to such use. 
 
Any future changes and amendments will be made available on the MOT web site. Users of these 
manuals should check that they have the most current version.  
 
Note:  New  findings,  technologies,  and  topics  related  to  transportation  planning,  design, 
operation, and maintenance will be used by MOT to update the manuals. Users are encouraged 
to provide feedback through the MOT website within a year of publishing the manuals, which will 
be reviewed, assessed, and possibly included in the next version. 
 
 
Copyright © 2015. All rights reserved.  
   

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‫‪VOLUME 3 PART 24 ‬‬
‫‪ROAD SAFETY AUDITS ‬‬

‫تنويه‬

‫قامت وزارة املواصالت ي دولة قطر بتوف ﺮ دليل تصميم الطرق لدولة قطر )‪ (Qatar Highway Design Manual ‐ QHDM‬ودليل‬
‫قطر للتحكم املروري )‪ (Qatar Traffic Control Manual ‐ QTCM‬ع ى شبكة اإلن ﺮنت وكنسخ مطبوعة باعتبارها اإلصدار رقم‬
‫)‪ (1.0‬من هذﻩ األدلة‪ ‬وذلك دون ادنى مسؤولية ع ى وزارة املواصالت‪.‬‬
‫ُ‬
‫يجب التأكيد ع ى إن وزارة املواصالت‪ ،‬وتحت أي ظرف من الظروف‪ ،‬ال تج أو تتعهد أو تصادق ع ى أن تكون املعلومات املتضمنة ي هذين‬
‫الدليل ن خالية من أي نوع من األخطاء أو العيوب‪.‬‬

‫إن استخدام هذﻩ األدلة ألي عمل ال يعفي املستخدم من إتباع العناية الواجبة أو الفائقة واملمارسة الهندسية السليمة‪ ،‬كما أنه ال يخول‬
‫ُ‬
‫للمستخدم املطالبة أو استالم أي نوع من التعويض عن األضرار أو الخسائر ال يمكن أن تعزى إ ى هذا االستخدام‪.‬‬

‫سوف تكون أي تغي ﺮات او تعديالت متاحة ومتوفرة ع ى موقع اإلن ﺮنت الخاص بالوزارة‪ .‬ويتوجب ع ى املستخدم ن التحقق بشكل متواصل بأن‬
‫لد م أحدث إصدار من هذﻩ األدلة‪.‬‬

‫مالحظة‪ :‬ستقوم وزارة املواصالت بمواصلة تحديث وتعديل ِكال الدليل ن مع األخذ بع ن االعتبار االكتشافات الجديدة والتكنولوجيات الحديثة‬
‫ُ‬
‫واملواضيع املستجدة ال تتعلق بتخطيط وتصميم وتشغيل وصيانة النقل والطرق واملرور‪.‬‬
‫ُ‬
‫إن الوزارة تشجع املستخدم ن‪ ‬ع ى تقديم املالحظات واالق ﺮاحات والتعليقات وردود األفعال‪ ،‬خالل سنة من اصدار ِكال الدليل ن‪ ،‬وذلك من‬
‫خالل موقع الوزارة حيث سوف يتم مراجعة هذﻩ املالحظات واالق ﺮاحات ومن ثم تقييمها وإدراجها ضمن اإلصدار القادم من األدلة‪  .‬‬

‫‪ ‬‬
‫‪ ‬‬

‫‪ ‬‬ ‫‪VOLUME 3 ‬‬
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Contents Page

Acronyms and Abbreviations .................................................................................................... iii

1 Introduction..................................................................................................................... 1
1.1 Purpose ..........................................................................................................................1
1.2 Context ..........................................................................................................................1

2 Introduction to Road Safety Audits .................................................................................. 3

2.1 Purpose and scope.........................................................................................................3
2.1.1 Purpose ..........................................................................................................3
2.1.2 Scope ..............................................................................................................3
2.2 What are Road Safety Audits? .......................................................................................3
2.3 Roles and responsibilities ..............................................................................................4
2.3.1 Client Organization .........................................................................................4
2.3.2 Project Management Consultant ...................................................................5
2.3.3 Design Organization .......................................................................................5
2.3.4 Road Safety Audit Team .................................................................................5
2.3.5 Client Safety Engineer ....................................................................................5

3 Safe System ..................................................................................................................... 7

3.1 Context: The Safe System Approach .............................................................................7
3.2 The Role of Road Safety Audits in the Application of a Safe System Approach ............8

4 Road Safety Audit Stages ................................................................................................. 9

4.1.1 Checklists ........................................................................................................9
4.2 Stage 1: Concept Design ................................................................................................9
4.2.1 Road Safety Audit Objectives at Concept Design Stage .................................9
4.2.2 Key Actions for the Auditor at Concept Design Stage ................................. 10
4.3 Stage 2: Preliminary Design ........................................................................................ 10
4.3.1 Road Safety Audit Objectives at Preliminary Design Stage ......................... 10
4.3.2 Key Actions for the Auditor at Preliminary Design Stage ............................ 11
4.4 Stage 3: Detailed Design ............................................................................................. 11
4.4.1 Road Safety Audit Objectives at Detailed Design Stage .............................. 11
4.4.2 Key Actions for the Auditor at the Detailed Design Stage .......................... 11
4.5 Stage 4: Preopening (Post-construction) .................................................................... 12
4.5.1 Road Safety Audit Objectives at Preopening or Post-construction Stage... 12
4.5.2 Key Actions for the Auditor at Preopening or Post-construction Stage ..... 12
4.6 Stage 5: Road Safety Assessment (Existing Road Network) ....................................... 13
4.6.1 Road Safety Audit Objectives at Road Safety Assessment Stage ................ 13
4.6.2 Key Actions for the Auditor at Road Safety Assessment Stage ................... 13
4.7 Other Types of Road Safety Audits ............................................................................. 13
4.7.1 Interim ......................................................................................................... 13
4.7.2 Thematic ...................................................................................................... 13
4.7.3 Work Zones ................................................................................................. 14

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4.8 Exemptions ................................................................................................................. 15

4.9 Site Visit ...................................................................................................................... 15
4.10 Responsibilities ........................................................................................................... 15

5 Road Safety Audits within Projects ................................................................................ 17

5.1 Types of Projects to be subjected to Road Safety Audits ........................................... 17

6 Road Safety Audit Team ................................................................................................ 19

6.1 Overview ..................................................................................................................... 19
6.2 Composition of the Road Safety Audit Team.............................................................. 19
6.2.1 Road Safety Audit Team Leader .................................................................. 20
6.2.2 Road Safety Audit Team Member ............................................................... 20
6.2.3 Road Safety Team Observer ........................................................................ 20
6.2.4 Specialist Advisors ....................................................................................... 20
6.2.5 Local Representative ................................................................................... 20
6.3 Experience................................................................................................................... 21

7 Road Safety Audit Procedure ......................................................................................... 23

7.1 Overview ..................................................................................................................... 23
7.2 Step 1: Project Identification ...................................................................................... 24
7.3 Step 2: Evaluation of Exemption Certificate ............................................................... 24
7.4 Step 3: Road Safety Audit Program and Gateway Process ......................................... 24
7.5 Step 4: Selection of Road Safety Audit Team ............................................................. 24
7.6 Step 5: Road Safety Audit Briefing and Approvals ...................................................... 25
7.7 Step 6: Desktop Study ................................................................................................. 25
7.8 Step 7: Site Visit .......................................................................................................... 25
7.9 Step 8: Draft Road Safety Audit Report ...................................................................... 26
7.10 Step 9: Road Safety Audit Debrief .............................................................................. 26
7.11 Step 10: Reporting ...................................................................................................... 26
7.12 Step 11: Creation of the Decision Tracking Form ....................................................... 27
7.13 Step 12: Audit Close-out ............................................................................................. 28

References .............................................................................................................................. 31

Bibliography ............................................................................................................................ 31

Tables

Table 2.1 Summary of Road Safety Audit Definitions ......................................................... 4

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Acronyms and Abbreviations

CV curriculum vitae

RSA Road Safety Audit

TTM temporary traffic management

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1 Introduction
1.1 Purpose
This part provides a summary of the Road Safety Audit Guide (Ashghal, 2014).

1.2 Context
Between 2008 and 2010, approximately 220 people were killed each year and over
550 people were seriously injured in Qatar because of road crashes. Death and injury
has a direct and devastating impact on road-crash victims, their families, and the
community as a whole in financial, social, and personal terms. While the fatality rate
in Qatar stood at 13.7 road deaths per 100,000 people each year in 2010, this shows a
significant improvement from 2006, when road deaths were as high as 26 per
100,000 people each year. The current rate however is still significantly higher than
the best performing countries. The United Kingdom, Sweden, and the Netherlands
have achieved rates below 5.0 and some of these countries are now setting targets to
reduce their road casualty numbers by a further 33 percent or more in the coming
decade.

The State of Qatar is strongly committed to continuous improvement in road safety,

to establish its position as one of the safest road networks in the world. The Qatar
National Road Safety Strategy 2013-2022 (National Traffic Safety Committee, 2013)
provides a long-term vision for road safety in Qatar of “a safe road transport system
that protects all road users from death and serious injury.” An integral part of this
strategy, identified within the Road Safety Engineering sector of the Safe Roads pillar
of the National Road Safety Action Plan, is the introduction of a world-class process
and guidelines for Road Safety Audit (RSAs).

Worldwide experience demonstrates that RSAs are both cost beneficial and effective
as a proactive safety improvement tool within the context of an overarching National
Road Safety Strategy 2013-2022 (National Traffic Safety Committee, 2013). Research
in the UK and New Zealand has estimated the benefit-cost ratio of undertaking RSAs
to be as high as 20:1, while saving money by identifying safety needs before roads and
intersections are designed or constructed. More importantly, routine and robust
application of the RSA processes can reduce the occurrences of human injury.

A RSA is a formal examination of the operational safety of an existing or future road

link or intersection by an independent and qualified RSA Team member. The RSA
reports qualitatively on potential road safety issues at various milestones of the
design and construction process and identifies opportunities to improve operational
safety for road users with the objective of eliminating death and serious injury.

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2 Introduction to Road Safety

Audits
2.1 Purpose and scope
2.1.1 Purpose
The purpose of this Part is to provide an overview to the Road Safety Audit Guide
(Ashghal, 2014) which provides clear and coherent guidelines to facilitate the
consistent implementation of RSAs at all road infrastructure works affecting the road
or roadside in Qatar.

RSAs shall be conducted at all stages of design and construction within a road project.

2.1.2 Scope
The Ashghal Road Safety Audit Guide (2014) sets out basic RSA principles to
encourage those involved in the planning, design, and construction of road projects
across Qatar to routinely implement RSA as a part of everyday practice.

The guidelines are applicable to the organizations involved in road projects including:

• Public Agencies together with their partner organizations. This includes Ashghal,
the Ministry of Municipality and Urban Planning as well as local municipalities that
want to introduce road improvements to expressways, local roads, and
maintenance projects.
• Private development agencies and their partner organizations. These include
agencies developing land that also design roads or construct roads and roadside
infrastructures, or both. This also includes specific agencies such as ports, harbors,
and airports.
• Utility companies including gas, water, electricity, and telecommunication service
providers.

2.2 What are Road Safety Audits?

RSAs are designed to improve road safety in the design, construction, and operation
of the roads and roadsides in Qatar.

An RSA is a formal examination of the operational safety of existing or future road

infrastructures by an independent and qualified RSA team. It reports qualitatively on
potential road safety issues and identifies opportunities to improve operational safety
for all road users, with the objective of minimizing the number and severity of
personal injury crashes in accordance with the Safe System approach (see Chapter 2).

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Compliance with design standards, while important, does not necessarily result in a
safe road. It is important that the RSA team is qualified and experienced in identifying
potential road safety issues, irrespective of whether or not the design complies with
local design standards.

A simple summary of what a RSA is, and what it is not, is provided in Table 2.1,
followed by the primary questions that a clear and coherent RSA process addresses.

Table 2.1 Summary of Road Safety Audit Definitions

What Road Safety Audits Are: What Road Safety Audits Are Not:

Focused on road safety A means to evaluate, praise, or critique design

work

A formal examination A means of rating one design option over another

Proactive in nature A redesign of a project

Undertaken by an RSA team that is independent of

the design team
Undertaken by an RSA team that is experienced in
road safety engineering and road safety auditing
and that is adequately qualified, both individually
and as a team
Broad enough to consider the safety of the road
users and road facilities
Qualitative in nature

The aim of an RSA is to answer the following questions:

• What elements of the road project are likely to present a road safety concern: to
what extent, to which road users, and under what circumstances?
• What opportunities exist to eliminate or mitigate identified safety concerns?

2.3 Roles and responsibilities

Each party involved in the RSA process has a different set of responsibilities. The
definitions of the primary involved parties are explained below.

2.3.1 Client Organization

The client organization represents the overseeing organization and takes overall
responsibility and ownership of the road project that is to be audited. They also have
the responsibility for ensuring that the contents of this guidance document are
complied with by the involved parties throughout the design and implementation
process.

The client organization should identify a Project Manager to ensure that the RSA
process is embraced and any potential conflict between the Design Team and the RSA
team are managed appropriately.

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2.3.2 Project Management Consultant

A project management consultant (PMC) has delegated authority from the client
organization to assist with the management and delivery of road construction
projects. The roles and responsibilities of the PMC include ensuring that:

• RSAs are carried out at all appropriate stages based on the needs of the project.
• RSAs are carried out by independent audit teams.
• Quality of RSAs are in accordance with the Road Safety Audit Guide (Ashghal,
2014).

2.3.3 Design Organization

The Design Organization is responsible for managing the Design Team and progressing
a road project through the necessary stages of design and implementation. Staff with
road safety engineering experience within the Design Organization should be included
in the design team to allow appropriate road safety issues to be addressed
throughout the design process, rather than relying solely on RSA procedures.
Incorporating the use of a road safety engineer shall not be considered an acceptable
alternative or substitute for the undertaking of RSAs.

If any staff is involved with the road project design as part of the design team, that
person cannot be included as a member of the RSA team.

The design organization shall be responsible for the engagement/convening of

meetings with stakeholders at all stages of the RSA. This is particularly important as
the road project moves from preliminary to detailed design, where an
interface/handover of overall responsibility may be required between organizations.

2.3.4 Road Safety Audit Team

The RSA team is responsible for identifying safety issues based on the RSA brief and
associated information about requesting further audit brief information where
required, for convening of preaudit and post audit meetings, and for the production
and issue of draft and final reports. All communication between the RSA team and the
design team will be handled through the client organization or representative (PMC).

2.3.5 Client Safety Engineer

The client safety Engineer represents the client organization and has the delegated
responsibility for ensuring that road safety engineering is applied within road projects
for which the overseeing organization is responsible. This includes verification and
approval of RSA teams, attendance at RSA briefing and de-briefing meetings, the
endorsement of decision tracking forms, and the approval of exemption certificates.

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3 Safe System
3.1 Context: The Safe System Approach
This document has been prepared using the Safe System approach as the guiding
principle. A Safe System is a road transport system designed to compensate for
human error by ensuring that road users are not subjected to crash forces that result
in fatal or serious injuries. In a Safe System, the road transport system is designed to
anticipate and accommodate human error and is based on the vulnerability of the
human body.

The challenge under a Safe System is to manage the interaction between road users,
vehicles, travel speeds, and roads to not only reduce crashes but, most importantly,
ensure that crashes that occur do not result in death or serious injury. This means
working holistically and collaboratively across each of the four core Safe System
elements:

• Safe road users: Road users that are competent and compliant with traffic laws.
This includes road user education, managing the licensing of drivers, and taking
action against those who break the law.
• Safe vehicles: Vehicles that have technology that can help prevent crashes and
safety features that protect road users in the event of a crash. This includes the
promotion of safety features to encourage consumers and fleet operators to
purchase safer vehicles.
• Safe roads: Roads that are self-explaining and forgiving of mistakes, to reduce the
risk of crashes occurring and to protect road users from fatal or serious injury
should a crash occur. This requires roads and roadsides to be designed, built, and
maintained to reduce the risk and severity of crashes.
• Safe speeds: Vehicles travel at speeds that suit the function and the level of safety
of the road and to ensure that crash forces are kept below the limits that cause
death or serious injury. This requires the setting of appropriate speed limits,
supplemented by enforcement and education.

Designing, building, and maintaining safe roads and roadsides is critical to achieving a
Safe System. The Safe System recognizes that road users will, at times, make mistakes
and that through engineering measures the potential for harm can be reduced and in
some cases eliminated. The Safe System acknowledges that all categories of road
users are vulnerable and should not be exposed to the risk of injury. Those
responsible for the design, management, construction, and maintenance of roads and
roadsides have a duty of care to all road users and a responsibility to maximize safety
for all road users. It is therefore important that all groups involved in the design,
construction, and maintenance of roads and roadsides collaborate, to minimize the
risk of injury to all road users.

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3.2 The Role of Road Safety Audits in the Application of a

Safe System Approach
The RSA process provides an opportunity for the RSA team to challenge design
principles at the earliest possible stage in the process, with the objective of identifying
the likelihood of a serious or fatal crash occurring and to thereby contribute to the
process of developing a safer road network.

In the context of the Safe System approach, Table 4 of the Road Safety Audit Guide
(Ashghal, 2014) summarizes a number of important questions that the RSA Team
must consider when undertaking an RSA and are categorized under four key themes.

If the answer is yes to any of the questions in the Road Safety Audit Guide (Ashghal,
2014), it is incumbent on the Road Safety Auditor to seek clarification from the Design
Team as to what mitigation measures will be employed.

The RSA process is a device with which to challenge Design Teams to consider risks
that exist in their designs. Appendix B of the Road Safety Audit Guide (Ashghal, 2014)
contains a flowchart depicting when a road project is within a Safe System and when
intervention levels need to be employed.

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4 Road Safety Audit Stages

There are five key stages of an RSA in the development, design, construction, and
monitoring phases of a road project that must be undertaken on all road
infrastructure works affecting the road or roadside. Reflecting international best
practices, these stages are:

• Stage 1: Concept Design

• Stage 2: Preliminary Design
• Stage 3: Detailed Design
• Stage 4: Preopening (Post-Construction)
• Stage 5: Road Safety Assessment (Existing Road Network)

For each of the above stages, this part defines the role and objective of the RSA
process.

4.1.1 Checklists
To assist the RSA Team in working methodically through each element of a road
project, checklists are contained in Appendix A of the Road Safety Audit Guide
(Ashghal, 2014).

It is important to recognize that these checklists are a tool/guide to aid the RSA team,
not to replace the Roads Safety Auditor’s judgment and perception and should not be
used as the only means of undertaking an RSA. The RSA team has a duty to make aure
that the checklists are appropriate and have been amended to suit wherever
required.

4.2 Stage 1: Concept Design

4.2.1 Road Safety Audit Objectives at Concept Design Stage
The RSA objective at the concept design stage is to:

• Influence safety on fundamental issues such as route choice.

• Determine the intersection or interchange types.
• Determine the impact on existing adjacent road networks and adjacent trip
generators.
• Determine compatibility with road user expectations.

Safety problems can become inherent in a road project once design commences,
hence the value of a Stage 1 RSA.

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In adopting the basic principle of a Safe System, a concept stage RSA provides the
opportunity for the RSA team to not only identify potential road safety issues at the
planning and inception stages, but also to challenge the client organization and design
team on the nature and type of road project being proposed. To identify potential
road safety issues, there are a few questions that should be asked:

• Will the proposed design speed and posted speed be appropriate for the
surrounding environment?
• Will potential conflicts occur at unacceptably high-impact speeds?
• Will the project be where road users will comfortably comply with the rules and
laws of the road?

At this stage, a concept stage RSA may be undertaken on multiple options for
particular aspects of a road project. The issues identified should be given due
consideration by the design team prior to the development of the preliminary design
of the proposed road project.

4.2.2 Key Actions for the Auditor at Concept Design Stage

The checklist to be used when undertaking a Stage 1 RSA is contained within
Appendix A of the Road Safety Audit Guide (Ashghal, 2014).

To fully embrace the application of the Safe System principles, all road infrastructure
works affecting the road or roadside will be subject to a Stage 1 (Concept) RSA.

4.3 Stage 2: Preliminary Design

4.3.1 Road Safety Audit Objectives at Preliminary Design Stage
The RSA objectives, at completion of the preliminary design stage, are to influence
safety on horizontal and vertical alignments, intersection layouts, access locations,
and use by user groups.

As the design progresses from the concept to preliminary design, the choices for the
alignment and the intersection have usually been made. Preliminary design drawings
typically show the horizontal and vertical alignment, road widths, and intersection
types. However, the road project presented for RSA at Stage 2 may still be undergoing
development, with several viable options being worked on by the design team. As
such, the design work will be ongoing and certain individual elements may not have
progressed sufficiently at the time of the Stage 2 RSA. Therefore ALL options under
consideration shall be subjected to a Stage 2 RSA.

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4.3.2 Key Actions for the Auditor at Preliminary Design Stage

The following design elements should be available for RSA during Stage 2:

• Design parameters
• Constraints
• Design Standards
• Departures from Standards
• Geometry
• Cross-sections
• Intersection and interchange controls

At preliminary design stage, the Stage 2 decision tracking forms are reviewed for
acceptance and implementation of any remedial actions in the design (see decision
tracking form in Appendix I of the Road Safety Audit Guide [Ashghal, 2014]).

4.4 Stage 3: Detailed Design

4.4.1 Road Safety Audit Objectives at Detailed Design Stage
The RSA objective at the completion of the detailed design is to influence the safety of
the design elements required to construct the road project.

4.4.2 Key Actions for the Auditor at the Detailed Design Stage
The checklist to be used when undertaking a Stage 3 RSA is given in Appendix A of the
Road Safety Audit Guide (Ashghal, 2014).

The RSA team has a duty to make sure that the checklists are appropriate and have
been amended to suit the needs of the project where required.

As the road project progresses into the detailed design stage, the preferred option
will have been chosen, and a complete set of design elements should be available for
RSA, including (but not limited to):

• Horizontal and vertical alignments

• Drainage
• Curbs
• Edge details
• Street lighting
• Traffic signing
• Landscaping
• Safety barriers and restraint systems
• Road markings
• Intersection control

A Stage 3 RSA concentrates on more detailed aspects of the road project and should
include a review of all the issues that were previously identified in the Stage 1 and 2
RSA reports.

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At the detailed design Stage, the Stage 3 decision tracking form is reviewed for
acceptance and implementation of any remedial actions in the design.

Until the issues identified have been closed out, the road project shall not proceed to
the construction stage.

4.5 Stage 4: Preopening (Post-construction)

4.5.1 Road Safety Audit Objectives at Preopening or Post-construction Stage
The objective of a preopening (post-construction) RSA on a substantially completed
road project is to influence the safety of the constructed project and the associated
connections and approaches prior to the opening to traffic.

4.5.2 Key Actions for the Auditor at Preopening or Post-construction Stage

Large road projects and those road projects that require existing roads to be altered
may be undertaken in phases and partially opened to traffic as work is completed. In
such instances, the time interval between opening of the first phase and full
completion of the road project could be significant. Therefore, where road projects
are opened to road users in a phased approach, each stage must be audited before
opening.

The point at which Stage 4 RSAs are undertaken, in relation to project completion and
opening the road to users, shall be agreed on among the client organization, design
organization, overseeing organization or contractor, or both prior to the works
commencing.

The Stage 4 decision tracking form is reviewed for completion and incorporation into
the design, as presented for the Stage 4 RSA.

To fully appreciate and identify the possible issues related to road-user safety, all
members of the RSA team shall conduct a site visit of the road project. Together they
shall walk, drive, and ride the road project (as appropriate) in daylight and darkness.

As soon as possible after the Stage 4 RSA has been conducted, the RSA team leader
should meet with the client organization, design team, and contractor to review any
alterations or recommendations, which the RSA team may have proposed. This
provides the chance for the contractor and client organization to initiate any
immediate site works prior to the report being issued and the road project’s opening
to the road users.

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4.6 Stage 5: Road Safety Assessment (Existing Road

Network)
4.6.1 Road Safety Audit Objectives at Road Safety Assessment Stage
A Stage 5 Road Safety Assessment is a formal road safety examination of an existing
road. A Road Safety Assessment can be undertaken at any time as determined by the
overseeing organization and is an important tool for network managers, so that the
client organization and the overseeing Organization can deliver a Safe System for road
users. The condition and use of an existing road is dynamic and changes over time.
The knowledge obtained from the Stage 5 Road Safety Assessment can be used by
designers, when interfacing the existing transport network with proposed road
projects.

4.6.2 Key Actions for the Auditor at Road Safety Assessment Stage
An RSA of this nature is a Road Safety Assessment and assesses the existing road
network, rather than a proposed road project. It can be carried out to audit an
intersection, link or all-inclusive length of road.

A Road Safety Assessment can be undertaken at any time using standard Stage 4 RSA
methodologies and terms of reference. A Stage 5 Road Safety Assessment does not
replace the requirement for a Stage 1, 2, 3, or 4 RSA for road projects

4.7 Other Types of Road Safety Audits

4.7.1 Interim
An interim stage RSA can form an integral part of the RSA process in working toward a
Safe System. An interim RSA can be undertaken on any aspect of the road project at
any stage, offering a more focused RSA. It is the design organization’s responsibility to
develop the RSA brief to such a level that the requirement for Interim RSAs is stated
as early and as clearly as possible in the process. They should be conducted in the
same manner as other RSAs in the process and be undertaken by the RSA team,
together with specialist advisors pertinent to the type and nature of the interim RSA
required.

Interim RSAs are additional to Stages 1, 2, 3, and 4 RSAs and should only be
undertaken under special circumstances and at the request of the client organization.
All information contained within the interim RSAs must be gathered and assessed like
any other RSA, as part of the formal RSA process.

4.7.2 Thematic
A Thematic RSA offers a more specifically defined and focused RSA approach and is
conducted from the perspective of specific road users. The RSA brief must clearly
state which theme is to be addressed under this RSA. Themes could include specific
infrastructure for cyclists or public transport, or to audit a project from a single road-
user perspective, for example, pedestrians, cyclists, or routes for wide/heavy loads.

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Thematic RSAs can also be conducted for specific street furniture found within a
typical road environment.

Prior to conducting a thematic RSA, the RSA team should tailor the RSA checklists, to
suit the appropriate group of road users, routes, or road features that are to be
audited. However, checklists only provide a guide; they do not replace the auditor’s
judgment and perception. The thematic RSA can be undertaken, adopting the
conventional RSA process to identify safety issues and recommend solutions. A
thematic RSA should be undertaken by the RSA team with assistance from the
appropriate specialist advisors relevant to the theme being audited. A thematic RSA
can be undertaken as a stand-alone RSA or as part of Stage 1, 2, 3, or 4 RSAs and
should be controlled in the same manner as interim RSAs.

4.7.3 Work Zones

The requirement to undertake RSAs of temporary traffic management (TTM)
proposals that form part of the traffic diversion plan (TDP) for the construction of
road projects and traffic management projects is prescribed in the Work Zone Traffic
Management Guide (WZTMG [Ashghal, 2013]) and summarized by Part 9 of the Qatar
Traffic Control Manual. This process enables the construction phase of a road project
to be subjected to a separate RSA, to work toward a safer road system. The Stage 3
and Stage 4 work zone RSAs are necessary where the duration of works exceeds that
shown in Table 5 of the Road Safety Audit Guide (Ashghal, 2014).

For a work zone RSA Stage 3, work zone proposals are audited to assess if the
proposed TTM within a work zone is safe for use by general traffic, or if improvements
are required. A Stage 3 work zone RSA shall be carried out as an integral part of the
work zone planning stage, when the TTM design has been reviewed internally by the
contractor, supervision consultant and project management consultant, if appointed.
A Stage 3 work zone RSA is required for TDP approval.

A Stage 3 work zone RSA will consider a number of factors unique to a work zone on
the road, such as the provision of traffic control devices (including signs, markings,
and delineation devices), the need for a temporary speed limit though the work zone,
safety barrier systems, the clarity and visibility of both permanent and temporary
features within the work zone to all road users, and the treatment of permanent
features during the period of works. On phased projects, every phase shall be subject
to a Stage 3 work zone RSA.

The outcome of the Stage 3 work zone RSA, including any improvements identified,
shall be communicated to the site traffic management supervisor and the Overseeing
Organization. It is the responsibility of the site traffic management supervisor to
ensure that the improvements are incorporated or alternative arrangements are
proposed. All RSA documentation shall be included within the TDP.

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An ongoing review of the TTM should take place throughout the life of the road
project. Work Zone RSAs shall not be considered a replacement for the road project
RSAs; rather they are thematic RSAs specified to the TTM arrangements required to
facilitate construction of the road project.

4.8 Exemptions
For any road project, or project stage, where an RSA is not considered necessary, the
Project Manager shall seek approval for an exemption. Prior to applying for the
exemption the design Project Manager must document the reasons, complete an RSA
exemption certificate and gain the client safety Engineer’s endorsement. Any
exemption from a RSA shall only be given if the client organization agrees that the
road project will have a minimal effect on the safety of the road network. An example
exemption certificate is contained in Appendix C of the Road Safety Audit Guide
(Ashghal, 2014)

4.9 Site Visit

RSAs require that the road project is examined from the viewpoints of all road users.
The members of the RSA Team should drive, walk, or ride (as appropriate) through
the road project at different times of day and night, to assist in the evaluation and to
make sure that they have a comprehensive understanding of the project. A variety of
weather conditions and the effects the conditions are likely to have on the proposed
road project under an audit should also be considered by the RSA team when
conducting the RSA.

4.10 Responsibilities
Responsibilities of the client organization, design organization, and RSA team during
the RSA are detailed in section 2.3.

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5 Road Safety Audits within

Projects
5.1 Types of Projects to be subjected to Road Safety Audits
RSAs shall be conducted at all stages of design and construction within a road project.
For most road projects and development projects, it should be possible to undertake
a full range of RSAs. RSA intervention levels (mandatory/optional) are listed in the
Road Safety Audit Guide (Ashghal, 2014) for different project types and by the RSA
stage.

The nature of an RSA is proactive rather than reactive. The team should consider
circumstances under which causes and effects are not necessarily apparent. In
embracing this approach, a concept stage RSA should be carried out for all project
types, involving the RSA team at the inception and planning stages.

Gateway process milestones are within the road project lifecycle, beyond which the
road project shall not proceed without specific management and funding approvals
from the overseeing organization. At each approval gateway, an independent review
of the technical scope, projected whole life-cost, and program management for the
project will be a prerequisite for approval to proceed to the next stage.

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6 Road Safety Audit Team

6.1 Overview
The successful outcome of the RSA process is entirely dependent on the ability and
experience of the RSA team, both as individuals and as a team. The possession of
certain skills, knowledge, and experience will allow the team to review critically the
available data, undertake an efficient site visit, and open effective dialogue, for
appropriate road safety issues can be raised and discussed.

Candidates who carry out RSAs full time and do not undertake any other road safety
engineering or traffic management work, are unlikely to be acceptable, as they may
lack the appropriate (and current) road safety engineering experience. Teams
comprising road design engineers with no experience of road safety work would also
be considered unsuitable.

The RSA team must be formed with individuals from outside the design organization
to allow an impartial, objective RSA of the road project.

6.2 Composition of the Road Safety Audit Team

RSA is a team task, involving a minimum of two individuals forming the RSA team. It is
the RSA team leader’s responsibility to ensure that the team contains sufficient audit
team members, with the breadth of experience necessary to undertake the RSA in
hand. The primary reason for at least a two-person team is the necessity to discuss
issues with like-minded professionals to provide a reasoned response to an issue from
a road safety perspective. Team members will scrutinize each other’s comments, to
decide what road safety issues are included in the RSA report, and what issues fall
outside the scope of the RSA but are worthy of bringing to the attention of the client
organization or overseeing organization. These items are recorded in separate
correspondences, which form parts of the RSA process.

The RSA team leader and team members shall be independent of the development,
design, and implementation of the project.

This multi-person approach results in more effective recommendations than those by

a single person. However, the RSA team should not be so large that it becomes
difficult to manage.

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The RSA team is generally comprised of the following persons, further description is
provided in the subsequent sections:

• RSA team leader

• RSA team member(s)
• RSA team observer (optional)
• Specialist advisor(s)
• Local representative

6.2.1 Road Safety Audit Team Leader

It is essential that the RSA team leader has significant experience in conducting RSAs,
particularly the type of road infrastructure works affecting the road or roadside under
review. The appointed team leader should be of sufficient seniority to lead the RSA,
be present at the preaudit brief meeting, and present the findings of the RSA at the
audit debrief meeting.

6.2.2 Road Safety Audit Team Member

The RSA team members are also required to have the experience of undertaking RSAs
of the type of road infrastructure works affecting the road or roadside to be audited.

6.2.3 Road Safety Team Observer

The RSA team observer role is essentially a training opportunity for less experienced
staff to become involved in the RSA process with a view to their becoming RSA team
members in the future.

6.2.4 Specialist Advisors

The client organization (in conjunction with the design organization and RSA team
leader) should consider if there are specific features within a project, to warrant the
appointment of specialist advisors. Appointed with the approval of the client
organization, the specialist advisors should specifically advise the RSA teams on
aspects within their respective fields of expertise. Areas could include but are not
limited to:

• Complex traffic signal control

• Road maintenance
• Temporary traffic management
• Enforcement (traffic police)
• Emergency services
• Nonmotorized users (including pedestrians and cyclists)
• Public transport infrastructure and operation
• Facilities for the disabled.

6.2.5 Local Representative

An individual who is familiar with the area under audit and who has detailed
awareness of historical traffic safety issues should attend all stages of the RSA
process. Suggested representatives include a member of the local Police.

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6.3 Experience
All RSAs must be assessed and authorized, prior to undertaking RSA work in the State
of Qatar. It is the responsibility of the client organization to verify that the proposed
RSA team leader, RSA team members, and RSA observers all have adequate and
relevant training, skills, and experience. Each RSA team leader, RSA team members,
and observers should submit a curriculum vitae (CV) to the client safety engineer. CVs
should consist of no more than three pages of information and should demonstrate
that their previous experience of RSA and road safety engineering is relevant to the
road project to be audited, in terms of type and complexity.

The client safety engineer must be satisfied regarding the independence,

competence, and skills of the RSA team to undertake the RSA. Members of the RSA
team must demonstrate their competence by submitting their CVs, including details
of relevant experience suited to the scale and nature of the proposed new road
project to be safely audited. Approvals are conditional and the use of personnel, audit
stages, or organizations on previous RSA work does not guarantee their suitability to
undertake RSAs on all projects/road projects.

Details of RSAs, crash investigations and road safety engineering should also be
included in the continuing professional development record included within the
submitted CVs. Details should be given for any other continuing professional
development covering areas relevant to the scale and nature of the proposed new
road project such as road design, traffic management, and road maintenance.

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7 Road Safety Audit Procedure

7.1 Overview
This chapter provides details of the management process for undertaking RSAs. It is
important that all RSAs are programmed for delivery within the design process, as no
design can continue until each stage of the RSA has been fully closed out with the
client safety engineer. Consequently, RSAs could seriously affect road project
programs and delivery, if this process is not given sufficient weight and time allotment
for experienced RSAs.

The RSA process can be broken down into the following steps:

• Step 1: Project identification

• Step 2: Evaluation of exemption certificate
• Step 3: RSA program and gateway process
• Step 4: Selection of RSA team
• Step 5: RSA briefing and approvals
• Step 6: Desktop study
• Step 7: Site visit
• Step 8: Draft report with decision tracking form
• Step 9: RSA de-brief
• Step 10: Reporting
• Step 11: Creation of the decision tracking form
• Step 12: RSA close out

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7.2 Step 1: Project Identification

To provide an auditable record of the reasons for selecting what road projects are to
be audited, the Project Manager should assess each project for its impact on the road
network. Once a project has been identified as requiring an RSA, the Project Manager
within the client organization should define the parameters for the RSA to be
specified in the RSA Brief, including:

• Project objectives and location

• Scope of the RSA
• Timescales for completion of the RSA
• Requirements for an RSA team
• Site visit and debrief requirements
• RSA report format
• Decision tracking form expectations

7.3 Step 2: Evaluation of Exemption Certificate

To provide transparency and auditability, the Project Manager, after assessing the
road project, may consider that for sound engineering reasons, an RSA is not
required. In those instances, the Project Manager can apply for an exemption
certificate. Applications must be submitted to and signed by the client safety
engineer. If the exemption certificate is issued, the road project does not require an
RSA.

7.4 Step 3: Road Safety Audit Program and Gateway Process

All Qatar road projects must comply with an agreed program and comply with the
gateway procedure where applicable.

7.5 Step 4: Selection of Road Safety Audit Team

The client safety engineer has the responsibility for approving the appropriate RSA
team on a project-by-project basis as proposed by the design Project Manager. The
audit team will be selected from an approved list held by the client safety engineer.

The client safety engineer should select a qualified RSA team. The RSA team must be
comprised of individuals who are independent of the design organization.

The Project Manager may also wish to appoint specialist advisors in a particular
technical area, depending on the nature of the road project. The client safety
engineer maintains the overall responsibility for reviewing CVs of the RSA team to
verify that they are suitable for the road project to be audited.

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7.6 Step 5: Road Safety Audit Briefing and Approvals

The design organization will prepare an audit brief for the RSA team. This brief will be
project specific and shall be established based on the outcomes of the first three
steps in this process. In general, it should include the project objectives, location,
proposal, drawings, data, and information. The briefing provides an opportunity for
the RSA team leader to request appropriate information and align specific specialist to
the audit as appropriate.

The Project Manager within the client organization, the design team (not for Stage 5),
the client safety engineer, and the RSA team leader shall meet to discuss the scope of
the RSA and the information available. This meeting provides the opportunity for
ensuring the RSA team is acquainted with the road project and that all parties are
aware of each other’s responsibilities and methodologies. It is the responsibility of the
design team (on behalf of the client organization) to supply the RSA team with the
relevant information in a timely manner.

7.7 Step 6: Desktop Study

The review of design drawings is crucial to understand how road users may interpret
the proposed road project. The desktop review should identify safety issues for
verification during the site visit. The design drawings should be supplemented by
supporting information, which the RSA team can use to assess the safety of the road
project against prevailing conditions and use. Comments should be limited to those
which have a bearing on the safety of road users and operators.

7.8 Step 7: Site Visit

Before undertaking a site visit, RSA team members must complete a site-visit risk
assessment form to identify the potential risks of working in the environment
necessitated by the RSA and to identify measures to mitigate those risks as much as
possible.

It is imperative that the appropriate personal protection equipment is worn by all the
team members attending the site visit. Furthermore, if the RSA is being carried out
during the construction stage, all RSA team members, including specialists, should
receive a safety induction before going to site. The safety induction should be
delivered by the contractor’s health and safety officer.

Issues identified in the desktop study should be verified during the site visit and any
additional issues should be recorded. Photographic or video evidence is useful for
writing the RSA report and performing the RSA debrief.

The nature of the site visit differs depending on the RSA stage. During the concept
and design stages, the RSA team will need to visualize features including the curb
lines, street furniture, and their tie-in with existing infrastructure. Construction stages
afford the opportunity to comment on the actual layout and road-user interactions.
Peak-hour visits shall be required for all RSAs to view the layout under the heaviest

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traffic conditions. Similarly, off-peak observations would reveal higher traffic speeds.
During RSA Stages 4 and 5, night-time visits shall be undertaken to identify any
additional issues that may arise in darkness.

7.9 Step 8: Draft Road Safety Audit Report

The RSA team is responsible for undertaking the investigations on crash potential and
for providing photographs, videos, multimedia presentations, 3D visualizations, and
information on all identified safety issues, as they compile the draft RSA report. This
draft report is provided to the design team, with the onus on the lead designer to
prepare associated responses. Once the design project manager has responded to the
issues identified, the RSA team leader provides the draft report with completed
decision tracking form to the client organization, Overseeing Organization, and the
client safety engineer for comment at the debrief meeting.

7.10 Step 9: Road Safety Audit Debrief

The RSA debrief meeting shall be held with the design Project Manager, RSA team
leader, and the client safety engineer to discuss the RSA findings. This meeting allows
the RSA team leader to present the RSA findings, as documented in the draft RSA
report, including associated photographs, videos, examples, and 3D visualizations, as
appropriate, to provide clarity on all safety issues identified and to obtain feedback. It
is also an opportunity for the client safety engineer to question the RSA team findings
and recommendations and the design team’s responses.

It is important that minutes of the RSA debrief meeting are recorded to reduce
subjective interpretation and the risk of the report’s contents being misinterpreted by
the Project Manager/design organization.

7.11 Step 10: Reporting

Once the findings and recommendations are finalized, the RSA team leader is
responsible for the contents of the RSA report, which may be written with the support
of the audit team as necessary. The RSA report should be completed within the time
frame specified in the RSA brief.

The RSA report should be concise. Each issue should be clearly numbered and defined
as specifically as possible, with supporting photographs, illustrations, and
maps/location plans where appropriate. Appropriate standards, guidance, or reports
should be referenced. The introduction to the RSA report should include a description
of the road project, including the scope, objectives, and any issues raised by the client
organization or design team.

The main body of the report should contain the identified road safety issues. The RSA
team may wish to categorize or group the road safety issues into broad areas, such as,
alignment, vulnerable road users, and intersections. The RSA team may also wish to
group road safety issues by risk, reporting on the high risk safety issues first, followed

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by lower risk safety issues toward the end of the RSA report. Each road safety issue
should be accompanied by a recommendation for addressing the issue. Also, while
some risks cannot be totally eliminated, it is possible to devise solutions that mitigate
harm as it is important to keep the RSA report objective.

Recommendations should be aligned with the stage of the RSA being undertaken. For
example, it would not be appropriate to suggest vertical alignment changes in a
Stage 4 RSA, once a road project has been constructed. In contrast, during a Stage 1
RSA, suggesting the installation of safety barrier on the outside of reduced radii curve
would not be appropriate. Rather, the alignment could be altered at such an early
stage.

The RSA report should be submitted to the Project Manager. If road safety issues that
are outside the scope of the road project (as mentioned in Step 1) are identified, they
should be listed in a cover letter accompanying the RSA report. A brief outline of a
RSA report is detailed below.

• Introduction
• Scope and purpose of the RSA
• Project stage
• Stage of RSA
• Project limits and information from client organization
• Background
• Audit team composition
• Affiliations and qualifications of the audit team
• Commentary on the data received from the client organization and design team
• General observation from the project site/road including design drawings
• Descriptions of safety issues
• Evaluation of safety risks
• Problems identified and recommendations
• Statement
• Statement signed by the RSA team members indicating their involvement and
participation in the RSA process

7.12 Step 11: Creation of the Decision Tracking Form

The RSA team leader is responsible for the preparation of the decision tracking form.
The design Project Manager is responsible for providing a response to the problems
shown in the decision tracking form. The client organization is responsible for
ensuring that each problem identified has been addressed.

Responses such as “complies with standards and requirements,” will not necessarily
be accepted by the client safety engineer.

Mitigations proposed by the design team may be considered by the RSA team in the
debrief meeting.

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The decision tracking form must be available for the debrief meeting.

The finalized RSA report, together with completed decision tracking form, should be
checked by the client organization before being submitted for approval. The audit is
closed once it has been approved.

The decision tracking form should identify whether the road safety issue is to be
accepted or rejected. This responsibility for authorizing the decision ultimately lies
with the Project Manager. However, discussions with the design organization will be
required. The following factors should be considered when reviewing the
recommendations:

• Is the defined road safety issue within the scope of the road project as identified in
Step 1?
• Would the recommendation made in the RSA report mitigate the safety issue
identified?
• What are the costs to implement the recommendations and could a different
more cost-effective solution be used?

Items that are outside the scope of the project, as described in Step 1, should be
referred by the Project Manager or to the responsible person within the appropriate
authority or organization.

7.13 Step 12: Audit Close-out

The decision tracking form shall identify whether the road safety issue has been
accepted or rejected. The responsibility for the decision ultimately lies with the design
organization. The following factors must be confirmed when reviewing the RSA
recommendations:

• Is the defined issue within the scope of the project as identified in Step 1?
• Would the recommendations made in the RSA report and the design team’s
responses mitigate the identified road safety issue and reduce the probability of
the design’s results in terms of death or serious injury?
• Will the recommendations lead to other road safety issues and, if so, who will be
responsible for this?
• What are the costs to implement the recommendations and could there be a
different more cost-effective solution?
• Is the Overseeing Organization able to accept the designed safety development
road safety risks within a Safe System?

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The RSA and decision tracking forms shall be provided in an electronic format and a
hard copy format delivered to the client safety engineer, the RSA team, and the
design organization. These documents with all their signatures and contact details
shall be a public document, available for reference, and a safety application record for
that specific point in time.

The RSA report and the decision tracking form shall be stored as a complete record of
the RSA Process.

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References

Ashghal. Road Safety Audit Guide. State of Qatar Public Works Authority: Doha, Qatar. 2014.

Ashghal. Qatar Work Zone Traffic Management Guide, Version 1.0. Principal of Temporary Traffic
Management. State of Qatar Public Works Authority: Doha Qatar. March 2013.

National Traffic Safety Committee. Qatar National Road Safety Strategy 2013–2022. 2013.

Bibliography

Ashghal. Interim Advice Note: Road Safety Audits. Unpublished. May 2011.

Department for Transport. Design Manual for Roads and Bridges, Volume 5: Assessment and
Preparation of Road Schemes. Section 2: Preparation and Implementation, Part 2, HD 19/03—
Road Safety Audit. 2003.

Department of Transport, Abu Dhabi. Road Safety Audit Procedures for Main Roads. 2010.

Federal Highway Administration. FHWA Road Safety Audit Guidelines. U.S. Department of
Transportation. 2006.

Roads and Traffic Authority. Policy for Road Safety Audits of Construction & Reconstruction
Projects, TD 2003/RS03 Version 2. 2005

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