ROAD SAFETY AUDIT - Massachusetts Department of ... Safety Audit—Kempton Street (Route 6) at Route...

ROAD SAFETY AUDIT

Kempton Street (Route 6) at Route 140 and Brownell Avenue

City of New Bedford

May 27, 2010

Prepared For:

MassDOT Highway Division

Prepared By:

BETA Group, Inc.

Road Safety Audit—Kempton Street (Route 6) at Route 140 and Brownell Avenue—New Bedford, MA Prepared by BETA Group, Inc.

Table of Contents Project Data.................................................................................................................................1

Background .................................................................................................................................2

Project Description .....................................................................................................................2

Audit Observations .....................................................................................................................6

Potential Safety Enhancements .................................................................................................7

Summary of Road Safety Audit...............................................................................................10

List of Appendices

Appendix A. RSA Meeting Agenda Appendix B. RSA Audit Team Contact List Appendix C. Detailed Crash Data Appendix D. Speed Regulations

List of Figures

Figure 1. Locus Map.............................................................................................................................. 3

List of Tables

Table 1. Participating Audit Team Members ....................................................................................... 1 Table 2. Estimated Time Frame and Costs Breakdown ....................................................................... 7 Table 3. Potential Safety Enhancement Summary ............................................................................. 11


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Project Data A Road Safety Audit for the intersection of Kempton Street (Route 6) at Route 140 and Brownell Avenue in the City of New Bedford was held on April 14, 2010 at the Tifereth Israel Congregation (Synagogue) in New Bedford, MA. As indicated in Table 1, the audit team consisted of representatives from Federal, State, Regional and Local agencies and included a cross-section of engineering, planning and emergency response expertise.

Table 1. Participating Audit Team Members Audit Team Member Agency/Affiliation Bonnie Polin MassDOT Highway Division – Safety Section Lisa Schletzbaum MassDOT Highway Division – Safety Section Pat Beattie MassDOT Highway Division Sam Offei-Addo BSC Group Joanna Lunsford BSC Group Tim White Federal Highway Administration Robert Gregory MassDOT Highway Division District 5 - Projects Barbara LaChance MassDOT Highway Division District 5 - Traffic Edward Feeney MassDOT Highway Division District 5 - Traffic Michael Martin City of New Bedford Police – Traffic Division Michael Paiva City of New Bedford Police – Detail Office

Manuel Silva City of New Bedford – Department of Public Infrastructure

Ronald LaBelle City of New Bedford – Department of Public Infrastructure - Commissioner

Jim Hadfield SRPEDD Jacqueline Schmidt SRPEDD Greg Lucas BETA Group, Inc. Christine Keches BETA Group, Inc.


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Background The Federal Highway Administration defines a Road Safety Audit (RSA) as the formal safety examination of an existing or future road or intersection by an independent, multidisciplinary team. The purpose of an RSA is to identify potential safety issues and possible opportunities for safety improvements considering all roadway users. A Road Safety Audit was scheduled for the intersection of Kempton Street (Route 6) at Route 140 and Brownell Avenue because it was identified as a high crash location and as a priority location for safety improvements using available Federal and/or State funding opportunities. Regardless of the funding source, the purpose of the RSA is to identify both short term and long term safety improvements that can be made at the subject intersection.

Project Description The intersection of Kempton Street (Route 6), Route 140 and Brownell Avenue, shown in Figure 1, is located in the western portion of New Bedford. Kempton Street (Route 6) is a City-owned roadway functionally classified as an Urban Principal Arterial. Route 6 is state-owned west of the Dartmouth town line, which is approximately 550 feet west of the study intersection. Route 140 is a state-owned roadway functionally classified as a Principal Arterial. Route 140 is a limited access freeway from its intersection with Route 24 in Taunton to its terminus at Kempton Street, a total distance of 19 miles. Brownell Avenue is a City-owned roadway functionally classified as an Urban Minor Arterial.

Kempton Street (Route 6) is an important regional roadway, connecting New Bedford with Fairhaven to the east and Dartmouth, Westport and Fall River to the west. Route 140 is also an important regional roadway, providing the only freeway access from the north to New Bedford. Brownell Avenue runs parallel to the adjacent Buttonwood Park, and provides access to residential areas in southern New Bedford and South Dartmouth.

Kempton Street, Route 140 and Brownell Avenue form a 4-way intersection under traffic signal control. The traffic signal provides a protected/permissive phase for left turning vehicles in both directions on Kempton Street. Kempton Street provides two through lanes and an exclusive left turn lane in each direction, and an exclusive right turn lane separated by a delta island that operates as a free movement from Kempton Street westbound to Route 140 northbound. The Route 140 approach provides

Kempton Street Westbound at Brownell Avenue

315 Norwood Park SouthNorwood, MA 02062

[email protected]

Kempton Avenue (Route 6) atRoute 140 and Brownell Avenue

NEW BEDFORD, MA

Figure 1

Location Map

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two general purpose lanes, as well as a right turn pocket separated by a delta island. The Route 140 southbound lanes are not marked to provide an exclusive left turn lane. Brownell Avenue provides a single lane that widens near the stop line.

A continuous sidewalk is provided along the south side of Kempton Street in the study area. A sidewalk is provided along the north side of Kempton Street west of the intersection that ends just west of Route 140. There is also a sidewalk on the north side of Kempton Street east of the intersection, beginning just west of Oesting Street at the southeast corner of the CVS Pharmacy property and continuing eastward. There is a marked, unsignalized crosswalk at Oesting Street, providing a pedestrian crossing on Kempton Street approximately 300 feet east of the intersection with Brownell Avenue and Route 140. There are no marked crosswalks at the study intersection, nor are there handicap accessible ramps or pedestrian pushbuttons or signals. Sidewalks are provided on both sides of Brownell Avenue. The sidewalk on the east side of Brownell Avenue is separated by a wide grass strip and is incorporated with the adjacent Buttonwood Park property, although the sidewalk is assumed to be within the Brownell Avenue right of way.

Land use of the surrounding area is a mix between commercial, residential and recreational. There is a gas station on the southwest corner of the intersection, a CVS Pharmacy on the northeast corner of the intersection, and other commercial properties along both sides of Kempton Street. Buttonwood Park is a 97-acre City-owned park on the southeast corner of the intersection. There are residential properties along the west side of Brownell Avenue opposite the park. The northwest corner of the intersection has a small wooded area separating Route 140 from the adjacent St. Mary’s Cemetery.

Average Daily Traffic (ADT) information was obtained from MassDOT Highway Division records. Data taken in 2007 show an ADT of 29,400 vehicples per day (vpd) on Route 140. Kempton Street has a 2007 ADT of 20,500 vpd at the Dartmouth town line west of the study intersection. Historical data available for Brownell Avenue show a 2001 ADT of 15,600 vpd. No other traffic count information was made available in advance of the audit.

Speed regulations maintained by MassDOT Highway Division establish a 35 MPH speed limit for Kempton Street in both directions in the vicinity of the intersection. The speed limit reduces to 30 MPH approximately ¼ mile east of the study intersection. The speed limit on Route 140 established by regulation is 65 MPH, but reduces approaching Kempton Street. The speed limit reduces to 45 MPH approximately 1500 feet in advance of Kempton Street, then reduces to 25 MPH 400 feet in advance of Kempton Street. It was noted during the audit that vehicle queues during peak hours often extend beyond the reduced speed zone. Complete speed regulations for the city of New Bedford are included in the Appendix.

Crash data were collected and summarized by Southeastern Regional Planning and Economic Development District (SRPEDD) for four years and are included in the Appendix. There were a total of 57 crashes at the intersection within the period from 2005 to 2008, which are mapped on the collision diagrams included in the Appendix. 28 of the 57 crashes were angle type crashes, with six occurring between an eastbound through vehicle and a southbound vehicle. These crashes may be the result of vehicles entering the intersection during the yellow clearance or after the signal has turned red. Four angle type crashes occurred between an eastbound vehicle turning left and a westbound through vehicle, while


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four occurred between a westbound vehicle turning left and an eastbound through vehicle. These crashes may be the result of drivers attempting to make a left turn in an insufficient gap between oncoming vehicles. Left turns on Kempton Street operate under protected/permissive phasing, so vehicles must cross two lanes during the permissive phase, which increases the potential for angle type crashes. Inadequate existing vehicle clearances may also be a contributing factor.

Seventeen of the 57 crashes were rear-end crashes, six of which occurred on the Route 140 approach. These crashes may be the result of drivers not anticipating the signal and not slowing in time, or potentially caused by driver frustration. It was noted during the audit that vehicles on this approach sometimes require three or four complete cycles of the traffic signal to clear the intersection during peak traffic times.

The intersection ranked 29th on MassDOT’s statewide list of the Top Crash Intersections from 2005 to 2007. This ranking is based on the number of crashes in MassDOT’s database which can be georeferenced to a cluster area around the intersection. This cluster area experienced 75 crashes in the three year period. 26 of the 75 crashes involved an injury, and there was one fatality. The ranking is based on a weighted system which calculates the Equivalent Property Damage Only (EPDO) rating of the intersection. Fatal crashes are weighted 10 times and injury crashes are weighted 5 times.

The fatal crash at the intersection was a single vehicle crash in April 2005. The vehicle was traveling south on Route 140, hit the curb, and rolled over several times. It should also be noted that there were two crashes involving pedestrians and one crash involving a bicycle in the study period. One pedestrian crash and the bicycle crash occurred on the Brownell Avenue approach.


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Audit Observations Following a brief introduction to the RSA process and a summary of existing geometry and crash information, the audit participants were asked to discuss items affecting safety at the intersection of Kempton Street (Route 6), Route 140 and Brownell Avenue. Audit participants then conducted a site visit as a group, at which time they offered observations on safety concerns and deficiencies. A summary of those major safety considerations is as follows:

• Severe Congestion – Several audit participants familiar with the intersection operation stated that traffic congestion is a significant issue during peak periods. Although no specific data were available, it was noted that long queues develop on the Route 140 approach and that it can take several cycles to clear the signal from Route 140. It was also noted that storage for the eastbound and westbound turning lanes was extended to allow more storage for queuing vehicles. It was theorized that the crash history is indicative of drivers taking chances on unacceptable gaps and drivers entering the intersection after the yellow clearance time.

• Existing Signal Condition – The existing traffic signal layout consists of post mounted signal heads with no pedestrian indications. Several audit participants cited the lack of overhead signals and the lack of pedestrian signals as a safety concern at the intersection. Adjacent signals along Kempton Street in both directions have overhead signal heads, which may create expectancy amongst drivers to look overhead for signal heads as they travel the corridor. It was also noted that the lack of backplates and the continued use of outdated incandescent signal lenses are a safety concern.

• Pedestrian Accommodations – In addition to the lack of pedestrian signals, the lack of handicap ramps and defined crosswalks for expected and observed pedestrian travel paths was cited as a safety concern. Pedestrian activity was noted crossing the Brownell Avenue approach and fewer, but some, pedestrians crossing Kempton Street. Pedestrians were observed crossing Kempton Street at the intersection instead of at the nearby midblock crosswalk. Vehicles were observed failing to stop for pedestrians in the midblock crosswalk.

• Public Transportation – The Southeastern Regional Transportation Authority (SRTA) has bus routes that traverse Kempton Street. There are stops just outside the intersection along Kempton Street, but they are stops on demand, with people observed alighting the bus during the audit.

• Visibility – It was noted that utility poles and signs restrict visibility for turning vehicles, specifically the sign for the gas station on the southwest corner, which restricts visibility for vehicles turning right on red from Brownell Avenue.

• Lighting – It was suggested that although roadway lighting exists in the area, it is insufficient and should be upgraded.


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Potential Safety Enhancements After the site visit, audit participants returned to the meeting location to discuss the safety issues and consider improvements. Audit participants were encouraged to consider both short and long term improvements for each issue. Each improvement considered has been categorized as short-term, mid-term, or long-term based on the definitions shown in Table 2. Additionally, a cost category has been assigned to each improvement based on the parameters set forth in Table 2.

Table 2. Estimated Time Frame and Costs Breakdown Time Frame Costs

Short-term <1 year Low <$10,000 Mid-term 1–3 years Medium $10,001–$50,000 Long-term >3 years High >$50,000

The following improvements were suggested by audit participants to improve safety issues associated with the intersection of Kempton Street, Route 140 and Brownell Avenue.

• Study intersection and increase capacity. The intersection is scheduled to be reconstructed in Summer 2011 by MassDOT Highway Division as part of the 2011 Transportation Improvement Program (TIP) for SRPEDD. A Functional Design Report will be prepared as part of this project, including traffic counts and capacity analysis. It was suggested that pedestrian and bicycle counts be included as part of the traffic counting program for the project to determine the volume and direction of all users of the facility. Potential lane configurations should be considered based on traffic count information and potential impacts to both intersection capacity and abutting properties. Audit participants suggested the following lane configurations, which should be considered equally with other potential options during the design process.

o Brownell Avenue – One left lane, one through lane, one right turn lane. This would require significant widening of the Brownell Avenue approach and would require removal of mature trees. It was noted that the City has met with the Friends of Buttonwood Park organization and that they were in support of the project despite these potential impacts. It is expected that proposed widening can be accommodated within the existing Brownell Avenue right of way.

o Route 140 – Two left lanes, one through lane, maintain existing channelized right turn lane. This would require some modification of the Route 140 approach, and would also require slight widening of Kempton Street eastbound departing the intersection to accommodate two defined travel lanes.

These are mid-term, high cost improvements that should be done as part of the planned reconstruction project.


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• Upgrade traffic signal. A number of safety issues discussed during the audit can be addressed with a complete upgrade of the existing traffic signal. Replacement of the existing post mounted signals with overhead signals with backplates would increase visibility of the signal for approaching vehicles. The inclusion of backplates would increase visibility of the signal heads, which is especially important on an east-west corridor like Kempton Street where sun glare and blending with business advertising may be an issue. The signal upgrade should also include emergency pre-emption equipment and bicycle accommodation. Preemption priority should be designed to enhance emergency response to and from St. Luke’s Hospital. This is a mid-term, high cost improvement that should be completed as part of the planned reconstruction project.

• Study signal phasing. The newly designed traffic signal should consider improvements in signal phasing based on analysis performed using traffic data collected. The designer may consider protected only phasing, or protected/permissive phasing depending upon the impact on the overall capacity of the intersection. Vehicle clearance times should be modified as part of phasing modifications. Proposed clearance phase times should be based on the Institute of Transportation Engineers (ITE) methodology. This is a mid-term, low cost improvement that should be completed as part of the planned reconstruction project.

• Provide wheelchair ramps, crosswalks and pedestrian signal accommodations. Accommodation of pedestrians was discussed at length during the audit. Some audit participants felt that pedestrians should be encouraged to use the existing crosswalk near Oesting Street, which would eliminate the need to accommodate pedestrians at the intersection of Kempton Street, Route 140 and Brownell Avenue. Other audit participants felt that handicap ramps, crosswalks and pedestrian pushbuttons should be provided wherever there is existing sidewalk at the intersection, which would require a crosswalk across the west leg of Kempton Street and across Brownell Avenue. As previously noted, the traffic count program to be completed as part of the planned reconstruction project should include a pedestrian count to determine volume and direction of existing pedestrian activity at and in vicinity of the intersection. If it is determined that pedestrians cross at the intersection, pedestrian accommodations should be provided at the intersection regardless of the impact to vehicle capacity. Several pedestrians were observed crossing Brownell Avenue during the audit, and the continuous sidewalk and nearby land use suggests that a crosswalk with handicap ramps and pedestrian pushbuttons should be provided on this approach. This is a mid-term, high cost improvement that should be completed as part of the planned reconstruction project.

• Consider closing curb cut for gas station. The gas station on the southwest corner of the intersection has three curb cuts providing access to the property – one located on Kempton Street, one located on Brownell Avenue, and one located on Metropolitan Avenue, which is a small side street running behind the gas station and the adjacent office building. The curb cut on Brownell Avenue begins at the stop line for Brownell Avenue northbound, which causes vehicles entering the gas station to navigate the intersection and the driveway entrance as one continuous turning movement. This creates a potential safety issue because drivers may not pause to yield to pedestrians and/or bicyclists. The proposed improvements at the intersection should consider closing the curb cut on Brownell Avenue, or at a minimum relocate it further away from the intersection, if practical. This is a mid-term, low cost improvement that should be completed as part of the planned reconstruction project.


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• Remove bollards. The house on the south side of Metropolitan Avenue at Brownell Avenue has bollards placed along both sides of the property, both in the grass and in the sidewalk at the corner where a handicap ramp is provided to allow crossing of Metropolitan Avenue. It was theorized during the audit that these were placed by the homeowner to stop errant vehicles, although no record of that type of crash was included in the crash data reviewed as part of the audit. The bollards in the sidewalk should be removed, as they may potentially create a safety hazard by blocking wheelchair access. The remaining bollards should be removed if they are presently on City property. This is a short-term, medium cost improvement.

• Remove work zone sign on Brownell Avenue. There is a “STATE LAW Speeding Fines Doubled in Work Zone” sign on the Brownell Avenue approach to Kempton Street that was likely left behind at the completion of previous roadway work. This sign should be removed. This is a short-term, low cost improvement.

• Transverse rumble strips on Route 140 southbound. It was suggested that rumble strips be placed on Route 140 southbound in advance of Kempton Street to provide additional warning to drivers that speeds should be reduced. It was noted by MassDOT personnel that other rumble strip applications on state highways were met with noise complaints by nearby residents. Since there is a residential neighborhood to the east of Route 140, this improvement is not recommended.

• Remove or modify gas station sign. It was noted by an audit participant that the sign for the gas station on the southwest corner of the intersection provided a sight obstruction for vehicles attempting to make a right turn on red from the Brownell Avenue approach. The specific obstacle appears to be a temporary “Full Service” sign attached to the permanent overhead sign, as seen in the picture to the right. This temporary sign should be removed or relocated so that it does not create a sight obstruction, and the permanent sign location should be reviewed to determine if it creates a sight distance obstruction. This is a short-term, low cost improvement.

• Review signage on Route 140 southbound. It was suggested by several audit participants that advance signage on Route 140 southbound warning that the highway ends and that there is a signal at Kempton Street is inadequate because queues extend beyond the location of existing signs. Existing and projected queues should be examined as part of the proposed reconstruction project, and signage should be reviewed to determine if additional signage is necessary further in advance. This is a mid-term, low cost improvement that should be done in conjunction with planned improvements.

Kempton Street as seen from Brownell Avenue


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• Update street name signage. The existing street name signs are located on a signal post on the southeast corner of the intersection, and are not clearly visible from all approaches due to the mounting height and other physical obstructions such as additional signs, signal posts and signal heads. These signs should be replaced with signs meeting current MassDOT and MUTCD standards that are placed for maximum visibility as part of proposed improvements. This is a mid-term, low cost improvement.

• Review lighting at the intersection. It was suggested that roadway lighting should be studied in the area. If existing lighting is insufficient, new overhead lights could be installed on existing utility poles. This is a mid-term, medium cost improvement.

Summary of Road Safety Audit Table 3 summarizes potential recommendations discussed by the audit team. The recommendations are categorized based on the potential safety payoff, as well as by time frame and cost. The safety payoff is a qualitative judgment of the effectiveness of the potential safety improvements. Each recommendation has a responsibility assigned to it stating whether MassDOT or the City of New Bedford would be responsible for implementing the recommended improvement. “Project” refers to improvements that are assumed to be included or could reasonably be accommodated as part of planned improvements at the intersection.

Road Safety Audit—KemptonStreet ((Route 6) at Route 140 and Brownell Avenue—New Bedford, MA Prepared by BETA Group, Inc.

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Table 3. Potential Safety Enhancement Summary Safety Issue Safety Enhancement Responsibility Safety Payoff Time Frame Cost Severe Congestion (resulting in drivers making unsafe maneuvers)

Study intersection and increase capacity. Project High Mid-term Dependent on

extent of improvements.

Severe Congestion, Existing Signal Condition, Pedestrian Accommodations

Upgrade traffic signal with overhead signal heads, backplates, emergency pre-emption, and bicycle and pedestrian accommodations.

Project High Mid-term $300,000

Existing Signal Condition

Review and modify signal phasing, considering protected only or protected/permissive phasing. Update clearance times as needed.

Project High Mid-term --

Pedestrian Accommodations

Provide wheelchair ramps, crosswalks and pedestrian signal accommodations. Project High Mid-term --

Pedestrian Accommodations, Visibility

Consider closing curb cut for gas station on southwest corner. Project Medium Mid-term --

Visibility Remove temporary “full service” sign from gas station sign on southwest corner. City Medium Short-term $200

Visibility Review location of permanent sign for potential sight distance obstruction. Project Medium Mid-term --

Visibility Review signage on Route 140 southbound. Project Medium Mid-term --

Lighting Review existing lighting conditions. Replace bulbs in existing lights, if needed. Project Medium Mid-term $20,000

Pedestrian Accommodations Remove bollards. City Low Mid-term $10,000

Visibility Remove work zone sign on Brownell Avenue. City Low Short-term $500 Visibility Update street name signage. Project Low Mid-term $500


Appendix A. RSA Meeting Agenda

Road Safety Audit New Bedford – Intersection of:

Rte 6 / Rte 140 / Brownell Ave / Kempton St Meeting Location: Tifereth Israel Congregation (Synagogue)

145 Brownell Avenue, New Bedford, MA Wednesday, April 14, 2010

10:00 AM – 12:00 noon

Type of meeting: High Crash Location – Road Safety Audit Attendees: Invited Participants to Comprise a Multidisciplinary Team Please bring: Thoughts and Enthusiasm!!

10:00 AM Welcome and Introductions

10:15 AM Review of Site Specific Material • Crash, Speed & Volume Summaries– provided in advance

• Existing Geometries and Conditions

11:00 AM Visit the Site

• Drive to the intersection of Rte 6 / Rte 140 / Brownell Ave / Kempton St

• As a group, identify areas for improvement

11:30 AM Post Visit Discussion / Completion of RSA • Discuss observations and finalize findings

• Discuss potential improvements and finalize recommendations

12:00 noon Adjourn for the Day – but the RSA has not ended

Instructions for Participants:

• Before attending the RSA on April 14th, participants are encouraged to drive through the intersection and complete/consider elements on the RSA Prompt List with a focus on safety.

• All participants will be actively involved in the process throughout. Participants are encouraged to come with thoughts and ideas, but are reminded that the synergy that develops and respect for others’ opinions are key elements to the success of the overall RSA process.

• After the RSA meeting, participants will be asked to comment and respond to the document materials to assure it is reflective of the RSA completed by the multidisciplinary team.


Appendix B. RSA Audit Team Contact List


Appendix C. Detailed Crash Data


Appendix D. Speed Regulations

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