Memorandum

Date:    April 17, 2014

To:         Boston Region Metropolitan Planning Organization (MPO)

From:   Chen-Yuan Wang, MPO Staff

Re:         Routes 127A/127 Subregional Priority Roadway Study in Gloucester and Rockport

1         INTRODUCTION

The study corridor comprises Route 127A in Gloucester and Rockport, Route 127 from Route 127A in Rockport to Grant Circle on Route 128 in Gloucester, and major roadways in downtown Rockport. It is one of two corridors selected for analysis as part of a larger study funded by the Boston Region MPO: Addressing Safety, Mobility, and Access on Subregional Priority Roadways.1

This memorandum summarizes the existing conditions and issues, roadway operations and safety analyses, and proposes improvements for the entire corridor and specific locations. It contains the following sections:

      1. Introduction
      2. Existing Conditions and Issues
      3. Safety and Operations Analyses
      4. Proposed Improvements
      5. Summary and Recommendations

This memorandum also includes appendices that contain relevant technical data and methods applied in the study.

      Background

During the MPO’s outreach process for developing the Unified Planning Work Program (UPWP) and Long-Range Transportation Plan (LRTP), Metropolitan Area Planning Council (MAPC) subregional groups and other entities submit comments and identify transportation issues that concern them. Often, these issues are related to bicycle, pedestrian, and freight accommodation, bottlenecks, safety, or lack of safe or convenient access for abutters along roadway corridors. In addition to affecting mobility and safety, such issues also can influence livability, including economic development and air quality.

To address these kinds of concerns, this study was included in the federal fiscal year (FFY) 2013 UPWP.2 The purpose of this study was to identify roadway segments in the MPO region that concern subregional groups but that have not been identified in the LRTP regional needs assessment. 

This study focusses on issues identified by relevant subregional groups and the recommendations developed to address them. In addition to mobility, safety, and access, the study considers transit feasibility, truck issues, bicycle and pedestrian transportation, preservation, and other topics.

1.2      Selection Procedure

The MPO used a comprehensive procedure to select the study location. First, staff identified potential study locations via various means: soliciting suggestions during the outreach process for the FFY 2014 UPWP; reviewing meeting records from the UPWP outreach process for the past-five years; appraising potential locations in the MPO’s LRTP Priority Corridors study; and monitoring roadways in the MPO’s Congestion Management Process (CMP) program.

MPO staff identified 20 potential study locations in the MPO region. Staff then assembled detailed data on the identified roadways and evaluated them according to five selection criteria:

The Boston Region MPO selected and approved two roadway corridors for study:4

The section of Routes 127A/127 in Gloucester and Rockport is a part of the 90-mile state-designated Essex Coastal Scenic Byway. The Essex National Heritage Commission (ENHC) and the North Shore Task Force subregion proposed three roadway sections in the byway system for review and potential improvements—for all users, with emphasis on pedestrian and bicycle safety and accommodations. This corridor was regarded as the highest priority among the three proposed sections. 5 (See Appendix A for a description of Essex Coastal Scenic Byway and a map of the designated byway system.)

1.3      Study Objectives

The objectives of this study are to:

1.4      Study Area and Data Collection

The study corridor is about 16 miles long, and consists of three sections:

The sections of Route 127A and Route 127 are under the jurisdiction of the City of Gloucester or the Town of Rockport, depending on their specific locations. The major roadways in downtown Rockport are under the jurisdiction of the Town. Massachusetts Department of Transportation (MassDOT) Highway Division District 4 oversees the development and maintenance of the state routes in the area.

With the assistance of MassDOT, Gloucester, and Rockport, MPO staff collected roadway traffic counts, speed data, and intersection turning movement counts (including pedestrian crossings, bicycle movements, and heavy-vehicle counts) at a number of selected locations; they also gathered relevant transportation and land use data in the areas adjacent to the study corridor.

1.5      Study Advisory Meetings

During the course of the study, MPO staff conducted three meetings with representatives from Gloucester, Rockport, MassDOT, MAPC, and ENHC. The first two meetings—held in Gloucester on April 4, 2013 and Rockport on May 22, 2013—introduced and coordinated the study, and discussed the concerns about the study corridor. The third and final meeting—held in Rockport Town Hall on February 10, 2014—presented findings from data analyses and reviewed the proposed improvements.

On May 3, 2103, the Gloucester Community Development Department led a bicycle tour of the study corridor to examine roadway conditions for cycling and to discuss various transportation issues on site. (See Appendix B for a list of participants in the three advisory meetings and bicycle tour.)

2         Existing Conditions AND ISSUES

This section examines the corridor’s location; adjacent major transportation roadway configurations and facilities; adjacent land uses; and observed traffic, pedestrian, and bicycle conditions. It also summarizes issues and concerns raised in the study advisory meetings.

2.1      Study Corridor and Major Transportation Facilities in the Area

Cape Ann—which includes the city of Gloucester, and the towns of Essex, Manchester-by-the-Sea, and Rockport—is located about 30 miles northeast of Boston on the Atlantic Ocean. The study corridor is basically a circular route, the Cape Ann Loop, around “The Island” of Cape Ann.7

Route 127 is a major state route in the North Shore area, which runs east along the shore from Beverley Harbor, through Manchester-by-the-Sea, to downtown Gloucester. It then turns north, away from the shore, crosses Route 128, and continues into Rockport. At the “Five-Corner” intersection8, Route 127 veers northwest near the shore, passes the MBTA commuter rail station, Rowe’s Cove, Pigeon Cove, and Halibut Point State Park, and bends southward, re-entering Gloucester. It then runs along Rowley Shore and the banks of the Annisquam and Mill Rivers and ends at Grant Circle (Route 128).    

Route 127A is a north–south state route that runs from Route 127 (Eastern Avenue) in Gloucester to Route 127 (Main Street) in Rockport. It serves as a coastal alternative to the Route 127 inland section (from downtown Gloucester to the Five-Corner intersection in Rockport) on “The Island.”

Figure 1 shows the location of the study corridor and major transportation facilities in the area. The 16-mile corridor consists of about 9.5 miles of Route 127, about 5.5 miles of Route 127A, and about 1.0 miles of major roadways in downtown Rockport. About half of the selected roadways are located in Gloucester and the other half in Rockport.

All of the study-corridor roadways are classified as urban minor arterials. Besides two principal arterials on the Island, Route 128 and the inland section of Route 127, these roadways are significant to the area’s residents and businesses.

They all have two lanes and are undivided (one travel lane in each direction with no median). Each travel lane is about 12 feet wide, with a shoulder of two feet or less. Most of the roadways have sidewalks on one side (usually the coastal side) and some have sidewalks on both sides (such as the streets in downtown Rockport). However, a substantial section of Route127A (Thatcher Road) and another section of Route 127 (Granite Street/Washington Street) have no sidewalks on either side. No bike lanes exist on the study corridor roadways.

The MBTA Rockport commuter rail line is the major regional transit service for commuters to and from Boston and communities along the line, and for people visiting the area. The commuter rail runs parallel to Route 127 in the middle of the “island” with two stops: Gloucester Station and Rockport Station. Gloucester Station has 96 parking spaces, with a parking rate of $4.00 per day. Rockport Station has 140 parking spaces, with no charge for parking. Commuters usually can find a parking space at the two stations. In summer, the MBTA provides a “bicycle coach” on the line so that riders may carry their bikes with them.

Locally, the Cape Ann Transportation Authority (CATA) provides bus services along the major roadways in the area.9 Major bus routes that serve the study area include:

These routes run five to ten trips each way on weekdays and four-to-eight trips on Saturdays; except for the Rockport Park & Ride Loop, which operates daily in July and August, Saturday and Sundays in June and September, and on a few special days in May and October. (Please see Appendix C for details of CATA service routes and schedules.)

2.2      Adjacent Land Use and Developments

In general, adjacent land use on Route 127A and Route 127 is mainly residential; though mainly commercial and institutional in downtown Rockport. There are some variations of land use and development density given the roadway locations and surrounding natural environment. Existing land use and developments are summarized below.

Route 127A in Gloucester

Route 127A in Rockport

Major Roadways in Downtown Rockport

Route 127 in Rockport

Route 127 in Gloucester

No major large-scale business developments are expected in the study corridor in the near future, as the city and town generally constrain these on Route 128 and the inland section of Route 127. The only anticipated major development is the old Cape Ann Tool Company on Granite Street (Route 127). The area’s potential land use would be townhouses or multiple residential units with limited businesses. (See Appendices D and E for the current zoning maps for Gloucester and Rockport.)

Beyond the roadside developments, an abundance of open space—sandy beaches, inlets, rocky shores, swamplands, ponds, coastal woods, nature trails, hilly woods, tranquil quarries—flanks Routes 127A and 127. (See Appendix F, the Cape Ann Trail Map (produced by MAPC).)

2.3      Traffic Volumes, Pedestrians, and Bicycles

The study area is a popular tourist destination for beaches and sightseeing. Traffic, pedestrians, and bicycles increase significantly from May to October, especially on weekend days and holidays from late June to early September.

2.3.1   Traffic Volumes

According to study advisory members, traffic at most locations in the study corridor generally moves well on weekdays, except at the Five-Corner intersection in the evening peak hour. However, during peak tourism hours on Saturdays and Sundays (usually around noontime), roadways are congested at popular destinations, such as the areas adjacent to Good Harbor Beach and the roadways and intersections in downtown Rockport. The congestion start time and duration differ somewhat from location to location.

In order to estimate the effect of tourism on traffic, MPO staff requested MassDOT’s assistance in collecting traffic counts for a series of weekend and weekdays in the summer peak season. The counts were performed from July 10 to 14, 2013, at 14 selected locations.

Figure 2 shows two sets of estimated traffic volumes, one for an average weekday and one for an average summer weekend day, by direction.10 The figure also shows average daily traffic (total of both directions) on Route 128 and the inland section of Route 127—from the MassDOT Roadway Inventory database.11

Depending upon their locations, the roadways in the study corridor carry about 3,000-to-13,500 vehicles per average weekday, and about 3,500-to-14,000 vehicles per summer weekend day. Comparisons of the average weekday and summer weekend day traffic volumes indicate that summer weekend daily traffic increases about 20-to-30 percent at most locations in the corridor. Notably, summer daily traffic increases about 40-to-50 percent on the major roadways in downtown Rockport and nearly 100 percent on Route 127A at the Good Harbor Beach.12 Appendix G summarizes the traffic volume estimations and comparisons at the count location. 

Staff also analyzed traffic volumes by hours of the day. Figure 3 shows the peak-hour traffic volumes for average weekdays and summer weekend days.

The weekday peak hour occurs from 3:00 to 6:00 PM, and the summer weekend peak hour is generally between 11:00 AM to 2:00 PM. Analysis indicates that summer weekend daily traffic increases about 15-to-30 percent at most locations in the corridor. Notably, summer peak-hour traffic increases about 40-to-60 percent on Route 127 at the Good Harbor Beach and about 30-to-80 percent on the major roadways in downtown Rockport. (See Appendix G for a summary of estimated traffic volumes.)

In addition to the roadway traffic counts, MassDOT collected turning movement counts at six selected intersections for this study, which are:

      1. Route 127A (Thatcher Road/Bass Avenue) at Atlantic Road in Gloucester
      2. Route 127A (Thatcher Road) at Barn Lane in Gloucester
      3. Route 127A (Thatcher Road) at Witham Street in Gloucester
      4. Route 127A (Mt. Pleasant Street/Broadway) at T-Wharf in Rockport
      5. Dock Square (Mt. Pleasant St. at Main Street) in Rockport
      6. Route 127 (Washington Street) at Stanwood Street in Gloucester

The counts were performed on Saturday, July 13, 2013 from 10:00 AM to 2:00 PM. Counts by various modes, including pedestrians, bicycles, and heavy vehicles, were collected. (Appendix H presents the data in 15-minute intervals at the six selected locations. Appendix I presents a summary of the counts by mode by hour, with the peak hour highlighted in yellow in the summary table.)

It is essential to examine the proportion of heavy-vehicle (truck and bus) traffic in a corridor, as an unusually high share of these may seriously affect roadway and intersection operations. The counts indicate that the corridor’s heavy vehicles comprised about 1.0 to 1.5 percent of total traffic on the count date—a summertime weekend day. (See Appendix I for heavy-vehicle percentage summarized by hour.)

According to the study advisory members from Gloucester and Rockport, heavy-vehicle traffic may be slightly higher on weekdays than on weekend days. However, it is in the similar range of about two percent or less, as the area’s heavy vehicles generally use Route 128 and the inland section of Route 127 as their major routes. This percentage is considered normal, or even slightly lower, than that of some urban minor arterials.

2.3.2   Pedestrians

Based on the pedestrian crossing counts collected by MassDOT, Figure 4 shows the highest hourly pedestrian crossings at the major intersections between 10:00 AM and 2:00 PM on Saturday, July 13, 2103. For contrast, the figure also shows traffic movement counts at the major intersections during the peak pedestrian crossing hour.

In general, the area adjacent to Dock Square in downtown Rockport has the most intensive pedestrian activity in the corridor. Pedestrian counts indicate that, during the peak hour, as many as nearly 1,000 pedestrians crossed the intersection of Mount Pleasant Street at Broadway/T-Wharf, and nearly 500 pedestrians crossed Dock Square. About 160 pedestrians crossed the Five-Corner intersection, located at the perimeter of downtown. At the same time, traffic volume approaching these intersections also was high.        

Good Harbor Beach is another pedestrian-heavy area. A recent count conducted by volunteers from the city (see Appendix J) shows that on Route 127A (Thatcher Road) near the beach entrance, about 60-to-110 pedestrians per hour were observed from 10:30 AM to 2:30 PM, with the most active pedestrian hour defined as 10:30 to 11:30 AM.14 The counts also indicate that traffic on Route 127A was very congested during the noon hour in the area adjacent to the entrance.

Depending upon the location, the peak pedestrian-crossing hour is usually around noon. At popular tourist locations, such as the areas adjacent to Dock Square and Good Harbor Beach, peak pedestrian crossings can last as long as three-to-four hours. (See Appendix I for total pedestrian crossings summarized by hour at the major intersections.)

2.3.3   Bicycles

Based on the MassDOT turning movement counts, Figure 5 presents the highest hourly bicycle movement counts at the major intersections in the study corridor. The figure also shows directional bicycle counts on Route 127A and Route 127, estimated from the bicycle turning movement counts.

Approximately 40-to-50 bicycles per hour traveled at various locations in the corridor on July 13, 2013, an average summer weekend day. The bicycle peak hour is identified as 10:00 to 11:00 AM at most count locations. At Dock Square, the peak bicycle hour is identified as 10:30 to 11:30 AM, which indicates that cyclists might take a snack break or detour to Bearskin Neck for sightseeing. (See Appendix I for the hourly bicycle counts at selected locations.)

The directional bicycle counts indicate that most cyclists travel the Cape Ann Loop in a counter-clockwise direction (on the coastal side of the corridor). The directional spilt is about 80% on the coastal side and 20% on the inland side.

2.4      Issues and Concerns

In the scope meetings on April 4 and May 22, 2013, study advisory members from Gloucester, Rockport, MassDOT, and MAPC shared their concerns about the study corridor, which are summarized below.

The study advisory members also discussed safety and operational problems at specific locations in the corridor. These, along with the proposed improvements, are summarized by location in Section 4 of this memorandum.

3         SAFETY AND OPERATIONS ANALYSES

To explore potential improvements, this section examines recent five-year crash data, existing speed controls and prevailing travel speeds, and existing roadway cross-sections.

3.1      Crash Data Analysis

Crash data are essential for identifying safety and operational problems in a study area. Analysis of crash locations, collision types, time-of-day, roadway conditions, and other factors can help to develop improvement strategies.

Based on the 2006–10 MassDOT crash data, 202 crashes occurred in the study corridor in the five-year period. Figure 6 shows the crash locations and crash rates in different sections of the corridor.

In general, all the roadway sections have a crash rate lower than the state average of 3.63 crashes per million vehicle miles traveled on urban minor arterials. Most of them have a crash rate of less than 1.60 crashes per million vehicle miles traveled. A few sections of the study area have a slightly higher crash rate because of greater vehicle and pedestrian activity. These sections are Bass Avenue from Route 128 to Thatcher Road in Gloucester and Mt. Pleasant Street, Broadway, and Railroad Avenue in Rockport. The section of Mt. Pleasant Street between Broadway and Prospect Street has the highest crash rate. It is a transition zone into downtown Rockport but already experiences intense roadway activity.

With one (or less) crash per year on average, most of the intersections in the corridor are low-crash locations, except for the following intersections:

Figure 6 also shows that seven crashes involved a pedestrian and four involved a cyclist. Six of the seven pedestrian crashes occurred in downtown Rockport (three on Main Street, two on Bearskin Neck Road, and one at the Five-Corner intersection). One pedestrian crash occurred at the intersection of South Street at Jerdens Lane. (The Rockport School District is located further south of the intersection on Jerdens Lanes.)

Two of the bicycle crashes occurred near the downtown area, both on Mt. Pleasant Street northbound near Norwood Avenue. The other two bicycle crashes occurred near the intersection of Bass Avenue and Thatcher Road near the Good Harbor Beach.

According to Gloucester, Grant Circle is a tough location for pedestrians and cyclists to cross; thus, the city designated Cherry Street-Popular Street-Maplewood Avenue as an alternate bike route. The crash data indicate that one pedestrian crash occurred in 2008 and one bicycle crash in 2006, at this location.

In 2008, one fatal crash—a head-on collision that involved three vehicles—occurred on Washington Street just south of Stanwood Street in Gloucester. The day was clear and the cause is not identified in the database. This incident is considered to be a random case in the study corridor.  

3.2      Travel Speeds and Speed Controls

Figure 7 shows the existing speed controls and observed 85th percentile travel speeds in the study corridor. The “85th percentile” is the principle value used for establishing speed controls. It is the speed at or below which 85 percent of vehicles passing a given point are traveling. The 85th percentile speeds at seven selected locations in the corridor were derived from spot speed studies performed by MassDOT in July 2013.

Speed limits in the corridor are regulated in five ranges: 15-, 20-, 25-, 30-, and 35 miles per hour (mph). Most sections on Route 127A are designated as 30- or 35-mph speed zones. Exceptions are Bass Avenue between Route 128 and Thatcher Road in Gloucester and Mt. Pleasant Street between Prospect Street and Broadway in Rockport, which are designated as 25-mph zones because of their dense business and residential districts.

All of the study roadways in downtown Rockport are designated as 20-mph zones, including Mt. Pleasant Street, Main Street, Broadway, and Beach Street. Drivers usually do not travel too fast on these roadways because they are narrow, with on-road traffic and roadside activities. However, drivers tend to travel somewhat faster on Broadway, as it is a straight and downhill path toward downtown.

Speed regulations on Route 127 from Five-Corner to Route 128, are variable, ranging between 15-and-30 mph. Most sections, however, are 25-mph zones, as they are thickly settled residential districts. A number sections scattered along Route 127 are designated as 20-mph zones. These usually are narrow, winding, and near a village center, or adjacent to a major intersection. The other sections are 30-mph zones, except for a small section of Granite Street just south of Beach Street, which is only about 600 feet long and is designated as a 15-mph zone.15 The section of Route 127 parallel to the Annisquam River is narrow and winding. Though it is mostly under a 20-mph speed-limit control, a third of the section, between Bennett Street and Bittersweet Road, is zoned for 30 mph.

As shown in Figure 7, the observed 85th percentile speeds are about two-to-five mph higher than the posted speed limits at most count locations. The following locations have a wider variation between the observed 85th percentile speed and its posted speed limit:

A review of the regulated and observed speeds, and the roadway’s adjacent land use, indicates that some speed-regulation adjustments could be considered at the following locations:

Establishing or modifying speed regulations is a complicated procedure that requires careful engineering analyses. The proposed locations for modification were based on limited speed data collected as part of the recent traffic counts.16 They should be further examined and validated according to the procedures required by MassDOT.17

3.3      Roadway Cross-section Analysis

To address two major concerns in the study corridor, this section examines the existing roadway cross-sections and explores those with the potential to accommodate pedestrians and bicycles (see Figure 8).

Currently most sections on Route 127A and Route 127 have a roadway surface of about 24-to-28 feet that contains two 12-foot travel lanes and outside shoulders generally less than two feet wide. In general, sidewalks are on the coastal side only; and a substantial section of Route127A (Thatcher Road) and another section on Route 127 (Granite Street/Washington Street) have no sidewalks at all. Cyclists need to travel with traffic on the 12-foot travel lanes.

The corridor does not contain a separate lane or sufficient shoulder for bicycle travel. Although no pavement markings or traffic signs clearly indicate the corridor as a shared roadway, it is regarded as one since bicycles are not prohibited in any sections of the corridor.18 However, it is desirable to consider separate or clearly indicated shared-road bicycle accommodations, as the prevailing traffic speed is nearly 40 mph in many sections of the corridor.

The MassDOT Roadway Inventory file indicates that the roadways in the corridor generally have a right-of-way of about 36-to-50 feet (mostly 40 or 50 feet), except for a narrow section of Route 127A (Thatcher Road) from the Gloucester borderline to Briny Way in Rockport. However, the roadways appear much narrower than that, as most roadside areas are either developed or occupied by natural elements such as trees and boulders. In some residential districts, houses are built very close to the road with stone fences against the edges of sidewalks. This “narrow country road” charm surrounded by rich natural and man-made (with local materials) elements is a local trait that should be preserved. Meanwhile, the narrow-road appearance presumably should influence drivers not to travel too fast.

This study identifies a few potential cross-sections that could improve pedestrian and bicycle accommodations without major roadway expansions. The potential improvements include continuous sidewalks for pedestrians and five-foot wide shoulders for bicycles in as much of the corridor as possible, while preserving area’s ambience.

The second graphic in Figure 8 shows an example of a potential shared-road cross-section that is confined by nature or developed surroundings with little space for expansion. Essential components these cross-sections include:

The third graphic in Figure 8 shows a sample cross-section that contains five-foot shoulders to accommodate bicycles apart from vehicular traffic. This cross-section may be used where a right-of-way of about 42 feet is available to include standard five-foot sidewalks on both sides. Major elements of the proposed wide-shoulder cross-sections include:

It is important that wide shoulders for bicycle travel are continuous (preferably for at least half a mile); fragmented wide shoulders would cause bicycles to weave in and out of traffic, and create difficulties for roadway maintenance.   

For areas with a tight right-of-way, but which also hold potential for wide-shoulder application, a four-foot shoulder may be considered. However, MassDOT requires a standard five-foot shoulder for bicycle travel, and a four-foot shoulder would require a design exemption, if federal or state funding is applied.22

Study advisory members from MAPC suggested a roadway cross-section without centerlines in order to accommodate bicycles (see Appendix K). This “no center-line” design would remove centerlines that delineate opposite traffic streams and provide wide shoulders on both sides for bicycle travel (also known as “advisory bicycle lanes”) by using dashed lines to delineate vehicle and bicycle travels. The dashed lines would allow vehicles to travel on the shoulders while passing from opposite directions. The design is intended for narrow roadways with relatively low traffic volume and speed. See Appendix L for details about this design concept and its application.

Currently, staff does not propose such an application in the study corridor because:

However, this no centerline application is effective in slowing traffic and providing bicycle and pedestrian accommodations and could be considered for local streets or low-volume collectors in areas adjacent to the study corridor.

Staff consulted with various bicycle advocates, MAPC transportation planners, and MassDOT design professionals about what elements to include and how to design bicycle, pedestrian, and vehicle accommodations that share a roadway with significant right-of-way constraints. These views are included in Appendix K. As some of the opinions are not consistent, we expect that, at the design stage and depending upon the funding source, all of these views would be taken into account and compared against the design standards. At that time, various existing design standards could also be contested by proceeding through the formal design exemption application process.

4         Proposed improvements

Based on the preceding analyses, this section proposes a series of safety and operational improvements for pedestrians, bicycles, and traffic in the study corridor and at a number of selected locations.

4.1      Pedestrian Accommodations and Safety Improvements

Figure 9 shows the locations of existing sidewalks and proposed locations for standard five-foot sidewalk installation. Major proposed improvements include:

Note that standard five-foot sidewalks on both sides of the roadways, especially in dense residential districts, are desirable in the corridor. However, some sections in the corridor likely would have a right-of-way only wide enough for sidewalks on one side. The goal is to provide at least a continuous pedestrian path on the coastal side of the corridor. Based on the recently issued MassDOT Engineering Directive E-14-001 (see Appendix M), the sections with sidewalks on only one side would require a design exemption process, if federal or state funding is used for the improvements.

Also note that the proposed locations were based on field observations and reviews of online assessors’ maps. Further investigation of right-of-way availabilities and roadside obstructions (such as utility poles) is required to determine exact locations for proposed improvements.

Although the roadways in the study corridor are narrow, the layouts of many intersections in the corridor are relatively wide.25 These intersections create long crossing distances for pedestrians; and it is difficult for drivers to observe pedestrians at the far corners. These intersections mostly could be reconfigured into tighter layouts with reduced curb radii in order to slow turning traffic. Sidewalk extensions and pedestrian bulb-outs could be installed—to compensate for lessened curb radii—to shorten pedestrian crossing distances and so drivers and pedestrians could see each other better. See Section 4.3 for further discussion of these improvements.

There are many crosswalks at intersections and at mid-blocks of the roadways in the corridor; and a large number of them are not equipped with Americans with Disabilities Act (ADA) standard wheelchair ramps. Their locations and viability for enhancements, along with those of wide intersections, should be examined further to provide a systematic outcome for pedestrian safety improvements.

4.2      Bicycle Accommodation and Safety Improvements

Figure 10 shows the locations of the existing bicycle lanes and the proposed locations for the installation of wide shoulders and the designation of shared roads for bike travels. Major proposed improvements include:

The proposed locations were based on field observations and reviews of online assessors’ and wetland maps. Further analyses of right-of-way and wetland constraints are required to determine exact locations for proposed improvements. For instance, the section of Route 127A in Rockport from Red Fox lane to Briny Way is located in an environmentally sensitive area and its wide-shoulder expansion should be examined further.

The section of Route 127A (Thatcher Road) from Witham Street in Gloucester to Eden Street in Rockport provides some scenic ocean views on the coastal side and is relatively narrow, so that wide-shoulders potentially may be applied only on one side. However, based on a number of context-sensitive factors (below), it may be feasible to consider the wide-shoulder accommodation on the coastal side as well:

Study advisory members from MassDOT expressed their concerns about wide-shoulder bicycle accommodation on only one side of roadways based on the principal of consistency in highway design (see Appendix K) and stressed that such application would require a design-exemption process, if federal or state funding is used for the roadway improvements.

4.3      Traffic Operations and Safety Improvements

The study corridor carries substantial numbers of pedestrians and bicycles, especially in the tourism season. The key to traffic operations in the corridor is how to maintain suitable low- to-medium travel speeds in order to accommodate all travel modes and enhance safety for all users, including pedestrians, cyclists, and drivers. Major proposed improvements related to traffic operations include:

4.4      Proposed Improvements at Selected Locations

Based on discussions with study advisory members, the major locations of concern in the corridor are Good Harbor Beach in Gloucester and downtown Rockport. 

4.4.1   Good Harbor Beach

Good Harbor Beach is a popular destination in summers, especially on weekend days. Its parking lot that takes nearly 950 passenger cars is usually full around 11:00 AM on weekend days. Major issues and concerns include:

Proposed roadway improvements and traffic and parking management schemes for the beach area include:

4.4.2   Downtown Rockport

Downtown Rockport has many commercial and historical attractions, and is a very popular destination during the summer season. Streets are usually mixed with vehicles, pedestrians, and bicycles, especially on weekend days. Major issues and concerns of the area include:

Proposed improvements for the area in general include:

Improvements for pedestrian accommodation and safety are proposed at the following specific locations.

Intersection of Route 127A (Mt. Pleasant Street/Broadway) at T-Wharf

There is intensive pedestrian activity at this intersection, which is relatively wide and undefined, and has a small traffic island holding a mini lighthouse that extends from Broadway. Crosswalks are located away from the intersection and create long crossing distances for pedestrians. Figure 12 shows the intersection’s existing conditions and proposed improvements.

Dock Square (Mt. Pleasant Street at Main Street/Bearskin Neck Road)

Dock Square is located close to the T-Wharf intersection and also carries intensive pedestrian activity. Traffic splits at a central island. Through-town traffic is advised to use the left lane. There is a crosswalk from the east side of Mt. Pleasant Street to the central island but no crosswalks from the central island to the west side of Mt. Pleasant Street.

Figures 13 and 14 show the existing conditions and three proposed alternatives for the intersection, which are:

Bearskin Neck Road

Bearskin Neck Road—which leads to a grand ocean view—is relatively narrow with stores and shops located densely on both sides and is a popular walking area. There are no clear entry policies for traffic control. Two crashes occurred between 2006 and 2010; both involved a pedestrian being hit by a vehicle. Proposed improvements for this road include:

Five-Corner (Intersection of Main Street/Railroad Avenue at Broadway and Parker Street)

MPO staff and MAPC jointly studied this intersection in 2011.30 Signalization and modern roundabout options were reviewed but not preferred. The preferred options include modifying intersection layouts, extending sidewalks, and relocating crosswalks.

Intersection of Main Street at Beach Street

Beach Street and Main Street south of Beach Street are located in mostly residential districts; and residents expressed concern about pedestrian accessibility and safety at this intersection. Figure 15 shows the existing conditions and proposed improvements for this intersection. The existing crosswalk is located at the lower side of the intersection. Installing a pedestrian bulb-out and relocating the crosswalk to a higher position would significantly increase pedestrians’ view of traffic and drivers’ view of pedestrians.

5         Summary and recommendations

This study performed various analyses to identify safety and operational problems in the study corridor and proposed improvements to address the identified problems. Benefits of proposed improvements:

The study outlines transportation improvements that the city and town could consider for the corridor’s long-term plan. In the near term, however, the following measures should be considered to enhance safety, mobility, and access for all:

In the past few years, Gloucester has been promoting walking and cycling in the city through a number of projects, including “Get Fit Gloucester!” and a series of Compete Streets Community Forums based on a draft complete streets plan.32 A master plan for downtown Rockport (2011) addresses the pedestrian safety and access issues. More significantly, MassDOT recently issued an engineering directive E 14-001 (Appendix M) containing new design criteria for pedestrian and bicycle accommodations that support healthy transportation alternatives.

These initiatives indicate that the city, the town, and MassDOT are moving toward a consensus vision of complete streets and context-sensitive roadway design and reconstruction. Implementing the proposed improvements, however, would require sufficient resources and cooperation from the city, the town, and related agencies (such as MassDOT and ENHC), as well as residents, business owners, and citizen groups.

CW/CW/cw

1 The study’s work program was approved on December 6, 2012. The other selected corridor is Route 3A in Cohasset and Scituate, whose findings are reported in a separate memorandum.

2    Boston Region Metropolitan Planning Organization, Unified Planning Work Program, Federal Fiscal Year 2013, Endorsed by the Boston Region Metropolitan Planning Organization on June 28, 2012.

3 Geographic equity among subregions also was considered in this criterion.

4 Selection of Study Locations: Addressing Safety, Mobility, and Access on Subregional Priority Roadways, Memorandum to Boston Region MPO, Chen-Yuan Wang, February 7, 2013.

5 The other two proposed roadways were Route 127 from Beverley to Gloucester and Route 133 from Gloucester to Ipswich.

6 Broadway is another major roadway in downtown Rockport and is included in the Route 127A section of this study.

7 At the end of Cape Ann, the Annisquam River splits Gloucester into two parts: East and West Gloucester. Local residents refer to the land east of the Annisquam River (East Gloucester and Rockport) as “The Island.”

8 The intersection of Main Street, Broadway, Railroad Avenue, and Parker Street has five legs. It is the most traveled intersection in Rockport and locally known as the “Five-Corner” intersection.

9 CATA is a nonprofit transit service for the Cape Ann area, with additional service to the Danvers and Peabody Malls, and Ipswich, Essex, and Beverly.

10 Staff estimated the average weekday traffic by averaging the counts on July 10 (Wednesday) to July 12 (Friday) and adjusting them with seasonal factors to represent average annual weekday traffic. Staff estimated the average weekend day traffic by averaging the counts on July 13 (Saturday) and July 14 (Sunday) to represent average weekend day traffic in the peak summer season.

11 Summer traffic data and directional information are not available from the database.

12 The increase on Route 127A at Good Harbor Beach could be overestimated. Field observations indicated that during peak hours, visitors often queued on Route 127A waiting to enter the beach parking lot; or they drove back and forth looking for other places nearby to park their cars.

13 In addition to the MassDOT counts, the figure includes counts at the Five-Corner intersection, which were taken from a recent MPO Study: Rockport Five-Corner Intersection Improvement Study, Community Transportation Technical Assistance Program, Boston Region MPO, May 2, 2011. 

14 The Gloucester Community Development Department also performed pedestrian and bicycle counts at the beach entrance on July 22, 2013, for this study. It was a very hot day and there was less-than-normal pedestrian and bicycle activity. The counts, therefore, were not used to represent normal summer weekend pedestrian activity.

15 This section is straight, somewhat narrow, and downhill; no crash history or other strong reason may be found for why it is zoned at such a low speed. There are a few houses located very close to the roadway, whose residents would prefer a lower travel speed. However, such a regulation usually has little effect on speeds of drivers who do not live in the area.

16 The 85th percentile speeds for this study were spot speeds derived from data collected from automatic traffic recorders. To establish or modify speed controls, MassDOT requires data to be collected using radar or laser guns at critical locations for an area not to exceed 0.25 miles, in addition to vehicle trial runs in the study area. 

17 Procedures for Speed Zoning on State and Municipal Roadways, MassDOT Highway Division, May 2012.

18 Because it is legal for bicyclists to use nearly all roadways, most of them can be technically classified as shared roadways; except where bicycling has been expressly prohibited by ordinance or law, such as on city streets or access-controlled freeways in some states.

19 Sidewalks should be installed on the inland sides as well, wherever the right-of-way is available, especially in residential districts.

20 State-numbered routes are required to contain outside shoulder lines for guiding traffic and roadway maintenance.

21 Though no extensive research indicates significant evidence in the reduction of travel speeds, narrowing travel lanes in an appropriate dimension is generally considered to have effects on the majority of drivers to slow down somewhat or at least not to travel too fast .

22 MassDOT Project Development and Design Guide, January 2006, Massachusetts Department of Transportation.

23 Except for the section of Route 127 between Halibut Point State Park and Lanesville, all of the roadways in the corridor carry about 5,000-to-10,000 vehicles per day.   

24 Vehicle travels are prohibited on the roadway, except for residents and customers of hotels and restaurants located in the stretch, people with disabilities, and deliveries.

25 Route 127 was built in the 1930s and Route 127A in early 1950s. The layout of these intersections probably has not changed much since then, when the area was relatively rural with much fewer residents than today.

26 The standard Manual on Uniform Traffic Control Devices (MUTCD) application consists of an assembly of the “bicycle” (W11-1) warning sign and “share the road” (W16-1P) warning plaque.

27 Manual on Uniform Traffic Control Devices, Federal Highway Administration, Washington D.C., May 2012.

28 Major roadway expansions affecting environmentally sensitive areas would require an extensive MEPA (Massachusetts Environmental Policy Act) review process. 

29 The service is referred as “Rockport Park & Ride Loop” (see Section 2.1). The designated park-and-ride lot is located next to the town’s transfer station on Blue Gate lane. All parking is free. The parking lot has 199 spaces and six accessible spaces. The shuttle fee is $1.00 per person. The shuttles (with about 20-25 minute headway) will operate on most days of the season from May 18 to September 29, and on October 19 for the Rockport Harvest Festival.

30 Rockport Five-Corner Intersection Improvement Study, Community Transportation Technical Assistance Program, Boston Region MPO, May 2, 2011.

31 ENHC is currently working with MassDOT to install scenic way-finding signs along the routes in the byway system. The comprehensive signage system will serve as the principal on-road method of directing travelers to the byway from the region’s three arterial highways (I-95, Rt. 128, and Rt. 1); then once on the byway, guiding them along the entire route. In the study advisory meeting, the possibility of placing a plaque indicating the Cape Ann Loop bike route underneath the byway way-finding signs was mentioned.

32 Planning for Complete Streets in Gloucester (draft), Gloucester Community Development Department, April 2012.

FIGURE 1 .Study Corridor and Adjacent Major Transportation Facilities Routes 127A/127 in Gloucester and Rockport
This aerial-view map of the study area denotes, via various colored and textured lines, the: Principal arterials (access-controlled); principal arterials (full-access); urban minor arterials; other roadways; study corridor; municipal boundaries; bike routes (shared/separate) designed by Gloucester; MBTA commuter rail line; and MBTA commuter rail station.

FIGURE 2. Daily Traffic Volumes Routes 127A/127 in Gloucester and Rockport
This black-and-white map of the study area depicts: Recent traffic count location (7/10-14, 2013); directional traffic volumes, estimated from recent traffic counts; average annual weekday traffic; average summer weekend daily traffic; and average daily traffic (both directions), estimated from MassDOT database.

FIGURE 3. Peak-Hour Traffic Volumes Routes 127A/127 in Gloucester and Rockport
This black-and-white map of the study area depicts: Recent traffic count location (7/10-14, 2013); directional traffic volumes, estimated from recent traffic counts; average weekday evening peak-hour traffic; and average summer weekend peak-hour traffic.
FIGURE 4. Pedestrian Peak-Hour Crossings and Traffic Movements (Saturday 7/13/2013) Routes 127A/127 in Gloucester and Rockport
This black-and-white map of the study area depicts: Turning movement count locations; pedestrian crossing counts; and vehicle turning movement counts.

FIGURE 5. Bicycle Peak-Hour Counts (Saturday 7/13/2013) Routes 127A/127 in Gloucester and Rockport
This black-and-white map of the study area depicts: Turning movement count locations; estimated bicycle directional counts; and bicycle turning movement counts.
FIGURE 6. Crash Locations and Crash Rates Routes 127A/127 in Gloucester and Rockport
This is a black-and-white map of the study area, which uses various colors and textures to designate crash locations and crash rates: 
•	For the crash locations, red = crashes involving a motor vehicle; Blue = crashes involving a pedestrian; and green = crashes involving a cyclist. 
•	Other areas coded by color are: Soft green areas = less than 0.80 crashes per million vehicles miles traveled; soft yellow = 0.80-1.60 crashes per million vehicles miles traveled; and soft purple = more than 1.60 crashes per million vehicles miles traveled. 
•	Figure 6 contains the following notes: 1) Crash locations identified from MassDOT crash database 2006-10; 2) Except for bicycle and pedestrian crash locations, one crash location may represent many crashes; 3) Total number of crashes from the database: 202; 4) 2010 state average crash rate for minor arterials in urban areas: 3.63 crashes per million vehicles miles traveled (updated 1/23/2013).
FIGURE 7. Existing Speed Regulations and Observed 85th-Percentile Speeds Routes 127A/127 in Gloucester and Rockport
Figure 7 cites the various speed zones via use of color-coding: 
•	Yellow = 35-mph speed zone; orange = 30-mph speed zone; red = 25-mph speed zone; purple = 20-mph speed zone; and blue = 15-mph speed zone. Within each speed zone, the observed 85th percentile speeds are indicated by using numbers and directional arrows. 
•	The figure also contains the note: Observed 85th percentile speeds for weekday average (weekend average) based on spot speed counts 7/11-14/2013.

FIGURE 8. Existing and Potential Roadway Cross-Sections Route 127A/127 in Gloucester and Rockport
Figure 8 contains three separate illustrations: 
1)	The first drawing, for an Existing Roadway Typical Cross-Section, is comprised of (reading from left to right): An illustration of a house plus landscape elements (lawn, fence, tree) on the inland side; with a less-than two-foot shoulder; two 12-foot travel lanes (one in each direction); another less-than two-foot shoulder; four-to-five-foot discontinuous sidewalks; and another house plus landscape elements (house, tree, lawn, fence, rocks) on the Costal Side.
2)	The second drawing, for a Potential Shared-Road Cross-Section, is comprised of (reading from left to right): An illustration of a house plus landscape elements (lawn, fence, tree) on the inland side; with a minimal shoulder of one-foot wide; two 12-13-foot shared lanes (one in each direction); another one-foot-wide minimal shoulder; five-foot continuous sidewalks; and another house plus landscape elements (house, tree, lawn, fence, rocks) on the costal Side; for a total right-of-way width requirement of about 33 feet.
3)	The third drawing, for a Potential Wide-Shoulder Cross-Section, is comprised of (reading from left to right): An illustration of a house plus landscape elements (lawn, fence, tree) on the inland side; with five-foot continuous sidewalks; a five-foot wide shoulder; two 11-foot travel lanes (one in each direction); another five-foot wide shoulder; another five-foot wide continuous sidewalk; and landscape elements (no house, tree, rocks) on the costal Side; for a total right-of-way width requirement of about 42 feet.

FIGURE 9. Existing Sidewalks and Proposed Improvements Routes 127A/127 in Gloucester and Rockport
Figure 9 is a black-and-white map with superimposed colors that denote the following: Orange line = existing 4’-5’ sidewalks; yellow highlight with red dots = proposed 5’ sidewalks; blue line = proposed pedestrian zone; and red line = upgrade existing substandard sidewalks.

FIGURE 10. Existing and Proposed Bicycle Accommodations Routes 127A/127 in Gloucester and Rockport
Figure 9 is a black-and-white map with superimposed colors that denote the following: Green line with gray shadow = existing bike lanes; dashed green line with gray shadow = existing shared roads; light green thin line = popular bike side loops; green line with yellow shadow = potential 5’ shoulders for bike travel; dotted green line with yellow shadow = proposed shared roads; dotted green line = potential shared-road connections; dashed yellow line = bike routes to be studied; and green bulls eye = proposed bike rest stops.

FIGURE 11. Existing Conditions and Proposed Improvements Routes 127A (Bass Avenue/Thatcher Road) at Atlantic Road, Gloucester
This figure contains two aerial-view maps of the intersection of Routes 127A (Bass Avenue/Thatcher Road) at Atlantic Road, Gloucester in the study area. The maps denote, with both text and pointing arrows, the existing conditions and proposed improvements. 
1)	The first image, Existing Conditions, cites (in a clock-wise direction): Three-way stop control; free movements on Route 127A northbound; wide turning radius; and no crosswalks. 
2)	The second image, Proposed Improvements, cites (in a clock-wise direction): Expand sidewalk and reduce curb radius; reduce curb (vehicle-turning) radius; extend sidewalk; and install crosswalk.

FIGURE 12. Existing Conditions and Proposed Improvements Routes 127A (Mt. Pleasant Street/Broadway) at T-Wharf Rockport
This figure contains two aerial-view maps of the intersection of Routes 127A (Mt. Pleasant Street/Broadway) at T-Wharf Rockport in the study area. The maps denote, with both text and pointing arrows, the existing conditions and proposed improvements.
1)	The first image, Existing Conditions, cites (in a clock-wise direction): Long pedestrian crossing distance; limited pedestrian view of traffic; existing small lighthouse statue; setback crosswalk: not observable to drivers from Mt. Pleasant Street; visitor information kiosk; narrow sidewalk for heavy pedestrian traffic; and extra roadway space.
2)	The second image, Proposed Improvements, cites (in a clock-wise direction): Install pedestrian bulb-outs; relocate and shorten crosswalk; install pedestrian bulb-out; relocate crosswalks; extend sidewalk and install pedestrian bulb-outs; relocate crosswalk; expand sidewalk to 10’ wide; relocate parking spaces; and expand sidewalk.
FIGURE 13. Existing Conditions and Proposed Improvements Alternative 1 Dock Square (Main Street at Mt. Pleasant Street), Rockport
This figure contains two aerial-view maps of the intersection of Dock Square (Main Street at Mt. Pleasant Street), Rockport in the study area. The maps denote, with both text and pointing arrows, the existing conditions and proposed improvements.
1)	The first image, Existing Conditions, cites (in a clock-wise direction): Existing crosswalk; substandard pedestrian ramp; no pedestrian ramp; existing sidewalk; no crosswalk; existing sidewalk; existing central traffic island; and existing sidewalk.
2)	The second image, Proposed Improvements, Alternative 1, cites (in a clock-wise direction): Realign existing crosswalk; install ADA ramp; install pedestrian bulb-out; install ADA ramp; remove existing concrete box; install low vegetation flower box (optional); install pavement markings to channelize traffic; existing sidewalk; install ADA ramp; existing sidewalk; install pedestrian bulb-out and ADA ramp; install new crosswalk (6-foot wide); existing sidewalk; install ADA ramp.

FIGURE 14. Proposed Improvements Alternatives 2 and 3 Dock Square (Main Street at Mt. Pleasant Street), Rockport
This figure contains two aerial-view maps of the intersection of Dock Square (Main Street at Mt. Pleasant Street), Rockport in the study area. The maps denote, with both text and pointing arrows, the existing conditions and proposed improvements. 
1)	The first image, Expand Central Island and Install Crosswalks and ADA Ramps, cites (in clock-wise direction): Realign existing crosswalk; install ADA ramp; install pedestrian bulb-out; install ADA ramp; remove existing concrete box; install low vegetation flower box (optional); install pavement markings to channelize traffic; existing sidewalk; install ADA ramp; existing sidewalk; install pedestrian bulb-out and ADA ramp; install new crosswalk (6-foot wide); expand central island (using local cobblestones; existing sidewalk; and install ADA ramp. 
2)	The second image, Proposed Improvements Alternative 3: Redesign and Reconstruct the Intersection, cites (in clock-wise direction): Provide wide pedestrian staying area; install pedestrian bulb-out and ADA ramps; existing sidewalk; existing sidewalk; downtown wayfinder; new square (paved with local cobblestones); expand sidewalk width to 8’-10’; and install pedestrian bulb-out and ADA ramp.
FIGURE 15. Existing Conditions and Proposed Improvements Main Street at Beach Street, Downtown Rockport
1)	The first image, Existing Conditions, cites (in clock-wise direction): Pedestrian crossing at lower side of road surface; limited pedestrian view of traffic; no crosswalk on Main Street; substandard sidewalk less than 5’ wide; and “no centerline” striping on Beach Street.
2)	The second image, Proposed Improvements, cites (in a clock-wise direction): Maintain “no centerline” striping to slow down traffic; expand sidewalk curb and install pedestrian bulb-out; Install crosswalk;  Relocate crosswalk; Slightly expand sidewalk curb; Improve/widen sidewalks; and maintain “no centerline” striping to slow down traffic.

APPENDIXES

Page 1            APPENDIX A. Essex Coastal Scenic Byway Region (cover page)

Page 2            Map 1: Essex Coastal Scenic Byway Region

Page 3            APPENDIX B—List of Participants at Study Advisory Meetings, April 4, 2013, May 22, 2013, February 10, 2014. Bicycle Tour: Reconnaissance of Roadway Conditions, May 3, 2013.

Page 5            APPENDIX C—Cape Ann Transportation Authority Bus Services in the Study Area

Page 20          APPENDIX D—Zoning Map City of Gloucester

Page 22          APPENDIX E—Zoning Map Town of Rockport

Page 24          APPENDIX F—Cape Ann Trail Map, Metropolitan Area Planning Council

Page 26          APPENDIX G—Average Weekday and Summer Weekend Day Traffic Volume Estimates

Page 28          APPENDIX H—Turning Movement Counts, Saturday, July 13, 2013, 10:00 AM – 2:00 PM. Location 1: Rt127A (Thatcher Rd./Bass Ave.) at Atlantic Rd., Gloucester; Location 2: Rt127A (Thatcher Rd.) at Barn Ln., Gloucester; Location 3: Rt127A (Thatcher Rd.) at Witham St., Gloucester; Location 4: Rt127A (Mt. Pleasant St./Broadway) at T-Wharf, Rockport; Location 5: Dock Square (Mt. Pleasant St. at Main St.), Rockport; Location 6: Route 127 (Washington St.) at Stanwood St., Gloucester.

Page 65          APPENDIX I—Summary of Turning Movement Counts by Modes, Saturday, July 13, 2013, 10:00 AM – 2:00 PM. Location 1 Rt127A (Thatcher Rd./Bass Ave.) at Atlantic Rd., Gloucester; Location 2: Rt127A (Thatcher Rd.) at Barn Ln., Gloucester; Location 3: Rt127A (Thatcher Rd.) at Witham St., Gloucester; Location 4: Rt127A (Mt. Pleasant St./Broadway) at T-Wharf, Rockport; Location 5: Dock Square (Mt. Pleasant St. at Main St.), Rockport; Location 6: Route 127 (Washington St.) at Stanwood St., Gloucester.

Page 67          APPENDIX J—Pedestrian and Bicycle Counts, Saturday, July 2, 2011, Volunteers of Friends of Gloucester Harbor.

Page 69          APPENDIX K—Comments and Responses. This appendix consists of 12 pages of correspondence between Chen-Yuan Wang, the author of this study, and other entities involved in its production.

Page 81          APPENDIX L—Roadway Design: Bicycle Advisory Lanes Sustainable Transportation in the Netherlands. This appendix consists of color photographs and text.

Page 86          APPENDIX M—MassDOT Engineering Directive (Interim) E-14-001, February 4, 2014

Page 91          APPENDIX N—List of Intersections with Relatively Wide Layouts