Road Safety Audit for the Intersection of VFW Highway & Bridge Street in Lowell, Massachusetts Prepared by University of Massachusetts Traffic Safety Research Program Prepared for Massachusetts Highway Department Federal Highway Administration
1.0 Introduction to Road Safety Audits & Lane Departure Crashes in Massachusetts 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. Specific objectives of an RSA include, but are not limited to the following: Minimizing the risk and severity of road crashes that may be affected by the existing or future roadway at a specific location or nearby network; Improving the awareness of safe design practices which are likely to result in safety benefits based upon potential safety concerns. Although RSA s have been employed in other countries for some time, they are being fully embraced across the United States as a low cost opportunity to make significant safety improvements at any number of stages ranging from project development and planning through existing operation. Furthermore, RSA s have proven to be effective on projects of all shapes and sizes. The RSA program here in the Commonwealth presents a unique and exciting opportunity for improvements in roadway safety. To date, a series of road safety audits focused on lane departure crashes has been implemented across the Commonwealth; however, within the Northern Middlesex Council of Governments (NMCOG), a known high crash location exists at the intersection of VFW Highway and Bridge Street in Lowell, MA. The enclosed following report summarizes the findings of a RSA focused on this high crash location. 2.0 Background Material for VFW Highway and Bridge Street in Lowell Lowell, Massachusetts is the fourth largest city in Massachusetts with a population of approximately 105,000. Located in northeastern Massachusetts, Lowell is part of Middlesex County and is part of the Northern Middlesex Council of Governments (NMCOG). Lowell is home to a myriad of attractions and businesses and is bisected by the Merrimack River. Along the northern banks of the Merrimack River is VFW Highway, an arterial roadway with an average daily traffic (ADT) ranging from 17,700 to 22,000 vehicles. Bridge Street crosses the Merrimack Figure 1. Intersection Overview River and connects downtown Lowell with the northern portions of Lowell. The intersection of VFW Highway and Bridge Street is a highly travelled intersection, which is currently listed as the highest crash intersection in Massachusetts. The intersection has four major approaches, however, a fifth intersection leg (Lakeview Avenue) serves as an additional exiting roadway from the intersection (see Figure inset). Because of the documented crash problem, the intersection of VFW Highway and Bridge Street was selected for inclusion in the FHWA and MassHighway Road Safety Audit initiative. Some of the major characteristics, including crash clusters, for VFW Highway and Bridge Street in Lowell are summarized in Figure 2 below. The RSA for VFW Highway and Bridge Street was held on Wednesday, August 29, 2007 at the Lowell City Hall. In total, 16 team members participated in the road safety audit as listed in Table 1. Page 2
As indicated in Table 1 representatives were present from State, Regional and Local agencies and included a cross-section of engineering/planning, education, and enforcement expertise. Table 1 Participating Audit Team Members Audit Team Members Agency/Affiliation Bonnie Polin Massachusetts Highway Department Safety Section Justin Howard Northern Middlesex Council of Governments Jeff Gomes City of Lowell George Proakis City of Lowell Neil Boudreau Massachusetts Highway Department Traffic Engineering Michael Knodler University of Massachusetts - Amherst Michelle Langone Howard/Stein Hudson, Associates Don Crawford Lowell Police Department Jay Flaherty Lowell Police Department Carrie Lavallee Massachusetts Highway Department Highway Design Beverly Woods Northern Middlesex Council of Governments Anne Barton Division of Planning and Development Lisa DeMeo City of Lowell T.J. McCarthy City of Lowell Samuel Gregorio Massachusetts Highway Department Safety Section John Gregg Massachusetts Highway Department District 4 Page 3
Existing pump station location, discussed as a possible relocation for the VFW/Lakeview intersection Proposed CVS / Pharmacy SB Approach Seepage issues resulting from levee under VFW Highway John E. Cox Memorial Bridge across the Merrimack River Weaving area Towards downtown Lowell VFW Highway @ Bridge Street Summary of Crashes From 2003 to 2005 there were 200 total crashes at this intersection, including 2 fatal crashes. The resulting equivalent property damage only (EPDO) score was 450, resulting in the highest such score for any intersection in the Commonwealth. Figure 2. Characterization of Intersection Features for VFW Highway & Bridge Street Page 4
Members of the road safety audit team visited the intersection prior to the RSA meeting to familiarize themselves with the intersection attributes and characteristics. A copy of the meeting materials and pertinent information which was distributed at the meeting is included in Appendix A of this report. Specifically, the additional information provided was pertinent to the RSA safety initiative and included traffic volumes and collision diagrams for intersection crashes as summarized below: As a result of the proposed CVS / Pharmacy current traffic data was available for review. Although AM peak period TMC data was not available, automatic traffic recorder (ATR) data was available along the north Bridge Street approach and is briefly summarized in Table 2. Figure 3 summarizes turning movement count (TMC) data for the PM peak period. Worth noting is the heavy through movements in both the EB and WB directions along VFW Highway as well as the 234 left turns (37 hard lefts to VFW and 197 bear lefts to Lakeview from Bridge Street NB). From 2003 to 2005 there were 200 total crashes which were geolocated at this intersection, including 2 fatal crashes and 58 injury crashes. The resulting equivalent property damage only (EPDO) score was 450, resulting in the highest such score for any intersection in the Commonwealth. Please note the EPDO was calculated by weighting fatal crashes by 10, injury crashes by 5, and property damage and non reported crashes by 1. Collision diagrams were prepared by MassHighway, based on paper copies of the crash reports from the Lowell Police Department, and provided to the RSA team to provide insight regarding predominant crash patterns. Specifically, angle and rear-end crashes were most frequent and will be further discussed in the identification of safety concerns. The traffic signal phasing at the intersection of VFW Highway and Bridge Street was also considered and reviewed by the RSA team. Figure 4 shows the signal phasing for the intersection which includes protected left turn phases for the WB and SB approaches as well as an exclusive pedestrian phase. Also as shown in Figure 4, phases 3 and 6 account for the fire pre-emption. Additional background material relevant to the RSA discussion included the proposed circulation plans for the CVS / Pharmacy. Figure 5 shows the proposed circulation plan which includes a drive through. As shown vehicles would access the proposed site from 3 rd Street to the north and via Lakeview Avenue on the south. Worth noting, the City of Lowell expressed the desire to have the facility similar in nature to an existing Chicago location which provides a building along a city sidewalk. This is convenient for pedestrians and vehicles, and is buffered by landscaping and fences. Table 2 Summary of ATR Volumes along Bridge Street north of VFW Highway Northbound Southbound AM Peak AM Peak 6:00 7:00 AM 326 veh 6:00 7:00 AM 946 veh 7:00 8:00 AM 545 veh 7:00 8:00 AM 717 veh 8:00 9:00 AM 420 veh 8:00 9:00 AM 841 veh 9:00 10:00 AM 584 veh 9:00 10:00 AM 704 veh PM Peak PM Peak 3:00 4:00 PM 866 veh 3:00 4:00 PM 643 veh 4:00 5:00 PM 978 veh 4:00 5:00 PM 611 veh 5:00 6:00 PM 944 veh 5:00 6:00 PM 625 veh 6:00 7:00 PM 973 veh 6:00 7:00 PM 653 veh Page 5
Figure 3. Summary of PM Peak Turning Movement Count Data Phase 1 Phase 2 Phase 4 Phase 5 Phase 7 Ped Note that phases 3 and 6 for fire pre-emption Figure 4. Preferential Phasing Sequence for Intersection of VFW Highway at Bridge Street Page 6
Figure 5. Proposed Preliminary Circulation Plan for CVS / Pharmacy 3.0 Characterization of Major Traffic Safety Challenges Following a brief introduction to the RSA process in general, the meeting participants were asked to summarize and characterize potential safety considerations for the intersection of VFW Highway at Bridge Street and Lakeview Avenue. The initial characterization of the major safety considerations focused on several key elements related to the intersection. A summary of the discussed issues includes the following: The initial focus of the discussion regarding safety issues was on the unique geometry of the intersection itself. Specifically, some of the geometric issues potentially contributing to crashes include, but are not necessarily limited to the following: o The 5 th intersection leg of the exiting Lakeview Ave traffic; o The close proximity of the intersection of Lakeview Ave and VFW Highway; o The offset nature of intersection approaches, including WB left turn lane and the EB through/left lanes (see Figure 6; o The skew of the intersection itself, in particular the EB and WB approaches; and o The large physical size of the intersection itself. Page 7
Somewhat related to the geometry was the lane utilization. As a result of the wide intersection and the delay for turning vehicles de facto, turn lanes are created (i.e., turning left off of Bridge Street from the south) and confusion exists among some motorists regarding which movements are permitted from which lanes. Considering the crash patterns and related to the two previous bullets the most frequently observed crash types were: 1) angle crashes between EB left turning vehicles and WB through vehicles; and 2) rear end crashes which were fairly common across all four intersection approaches. Although pedestrian volume data was not available, local RSA team members reported that pedestrian volumes were at an all time high. Some challenges that pedestrians face at the intersection include the following: Figure 6. Typical Traffic Signals o A long crossing distance, especially across the EB and WB approaches which results in a 28 second exclusive pedestrian phase; o Crossing an uncontrolled slip lane provided to WB right turning vehicles; o Four out of the 5 vehicle/pedestrian crashes at the intersection involved SB left-turning vehicles and pedestrians crossing the eastern leg (VFW Highway); o Additional pedestrian issues included the installed hardware. For Example, at the time of the RSA bulbs were not functioning (due to the bulbs) in the pedestrian signal head. Because of glare there was some general visibility issues associated with the pedestrian signal heads; o The curb cuts provided for pedestrians should be reconstructed to assure ADA compliance, including direction of the cuts and a detectable landing strip. Worth noting is that the intersection has recently been upgraded to include accessible pedestrian signals (APS) to aid visually impaired pedestrians; o Although there are street lights at the intersection, the lights do not illuminate pedestrians, often resulting in dark crossing opportunities for pedestrians; and o Pedestrian compliance with the signal phasing was reported to be lower than ideal with many pedestrians seeking alternative crossing opportunities. This can often result in frustration among passing motorists. Congestion at the intersection often results in grid lock conditions with vehicles in the middle of the intersection during conflicting phases. Additional issues discussed were related to drainage. Reportedly, a Lakeview catch basin with a dip results in ponding along Lakeview during weather events. Directing this runoff into the City's combined system, however, is contrary to City projects currently underway and should be investigated. Additionally it is worth noting that in 2007 the US Army Corp of Engineers (ACE) listed the City of Lowell s Local Flood Protection System as in-active and the condition of both the seepage system and the pump station need to be addressed in order to bring the levee back to active status. Regarding the seepage system, the City is looking for the most cost effective and least evasive method to make repairs at this time and the DPW does not anticipate any long term physical impact to the VFW Highway. Page 8
4.0 Summary of Short Term Recommendations for VFW Highway and Bridge Street The formal review of potential safety concerns at the intersection of VFW Highway at Bridge Street and Lakeview Avenue was completed by the entire audit team. Following identification of a potential safety issue, the dialogue subsequently focused on possible countermeasures with some preliminary discussion regarding the feasibility of implementation (timeframe and cost) as well as the potential payoff of safety benefits. Given the potential for an immediate impact there was an added focus on short term (less than 1 year) and low cost (less than $10,000) improvements that could be done almost instantaneously resulting in a positive safety impact. Resulting recommendations for immediate actions in the area include: Confusion exists among motorists given the lane utilization. An immediate series of solutions includes enhanced delineation including the employment of lane usage signage, symbolic lane utilization pavement markings, and possibly the pavement marking delineation of paths through the intersection. An additional series of improvement opportunities exist in the form of pedestrian-related enhancements. Specific recommendations include the improvement of existing hardware and markings, including assuring pedestrian signal heads are functioning, crosswalk markings are visible, and detectable landing strips are at crosswalk ramps; although it may cost more than a typical low-cost improvement it is recommended that the sidewalk ramps be reconstructed to assure ADA compliance. As a result of the predominant crash pattern, it is also recommended that the signal timing plan be revised to accommodate a protected left-turn phase for EB traffic as a result of the high conflicting through volumes dependent upon additional LOS analyses. Also related to the EB left versus WB through crashes, there is concern regarding the offset and visibility for turning vehicles. Although the optimal strategies for preventing this problem may be longer term and higher cost in nature, an immediate short term improvement is the relocation of the cluster of signage of the median island which obstructs driver visibility (see Figure 7). It is recommended that an enforcement program be established specifically targeting causing motorists. Similarly, some consideration may be given to Don t Block the Box markings and signage. Another low cost improvement includes the assurance of and Figure 7. View of the Intersection from the Road Add OM Figure 8. Candidate OM Location enforcement of no parking on the intersection approaches. Of particular concern is the SB Bridge Street approach which is adjacent to existing (Dunkin Donuts) and potential (CVS / Pharmacy) businesses. Because of the potentially confusing geometry it is recommended that an object marker be added on the Lakeview median to alert motorists to its presence (see Figure 8). Page 9
As previously noted there are current plans for a proposed CVS / Pharmacy. It is recommended that as plans are reviewed an emphasis of the review remains safety associated with adjacent intersection. As previously noted current alternatives for the seepage systems and pump station are being explored. One costly, and perhaps unlikely scenario, would involve the relocation of the pump station, which may provide added alternatives from a transportation perspective and warrant consideration in this report. 5.0 Summary of Long Term Alternatives and Considerations In addition to the short term recommendations, the RSA team also felt it was important to discuss longer term strategies that had significant potential for resulting in improved intersection operations. Specifically, the RSA team discussed several strategies which could be considered in isolation or in some instances as complimentary to one another. There are several individual strategies that would be effective at reducing the predominant crash pattern, several of which involved some element of an alignment correction as follows: The longest term strategy involves an alignment which shifts the EB travel lanes north to align with the opposing WB travel lanes. This strategy would further allow traffic to exit the constrained bridge geometry before arriving at the intersection. In turn, this would allow for the creation of added storage lanes for the both the NB and EB approaches, while simultaneously improving the visibility for the EB and WB approaches. This would require the removal of at least one median which currently has a monument. A slight variation of this alternative would allow for the existing geometry to Proposed realignment Added storage and turn lanes from bridge Figure 9. Overview of Proposed Alignment Changes remain fairly constant, however turning lanes would be created for the EB traffic, including both left and right turn lanes. This alternative would require the reclamation of a smaller portion of the median but would significantly improve the visibility for EB and WB drivers (i.e. allows for positive offsets); however it is uncertain if this proposed configuration may impact the median monuments. Another long term alternative discussed involved the possibility of closing (i.e. dead ending Lakeview Avenue at the intersection). Additionally, this variation would relocate the existing intersection of VFW Highway and Lakeview Avenue westward towards the existing pump station. Challenges with this alternative may include the need for land ownership or land taking as well as investigation of the possibility of creating an adequately operating intersection at the new western location. If the pump station is actually relocated, it increases the potential feasibility of this alternative. Page 10
6.0 Summary of Additional VFW Highway & Bridge Street Countermeasures Although an emphasis was placed upon short term and low cost improvements that could be carried out immediately, the focus of the team was not limited to solely those countermeasures. The following section details countermeasures discussed by the team, which are reflective of all costs and timeframes and includes both general and specific safety opportunities. Please note that with respect to the timeframe there are some unknown variables that must be further explored. Several definitions exist for low, mid, and high cost as well as for short, mid and long term implementation timeframes. For purposes of this report, low cost improvements will be under $10,000, mid costs will be under $50,000, and high costs will be above $50,000. From a timeframe perspective short term will refer to less than 1 year while mid and long term will refer to countermeasures that will take 1 to 3, and greater than 3 years, respectively. Page 11
Potential Safety Issue Possible Countermeasures Implementation Timeframe & Cost Potential Safety Payoff Photos Confusion among motorists regarding lane utilization Add signage indicating lane utilization patterns. Add symbolic pavement marking designating lane utilization. Consider turn delineation markings through the intersection. Short Term & Low Cost Mid Inspect & repair pedestrian signal heads, push buttons and pavement markings as necessary. Short Term & Low Cost Pedestrian enhancements Employ pedestrian enforcement and educational campaign to prevent pedestrians from crossing without the pedestrian signal phase. Improve condition of pedestrian ramps to assure appropriate direction and detectable landing strip. Mid Term & Mid Cost Mid Term & Mid Cost Mid Add median on WB approach to allow shorter crossing distance if space is available. Improve lighting to ensure positive pedestrian illumination. Long Term & High Cost Drainage and Seepage Develop plan with MassHighway to discuss drainage responsibilities (i.e., using City s combined system). Consider long term improvement resulting for seepage. Mid/Long Term & Mid/High Cost Mid Page 12
Potential Safety Issue Possible Countermeasures Implementation Timeframe & Cost Potential Safety Payoff Photos Introduce protected left turn phase for EB left turn movements. Mid Term & Mid Cost Mid Angle crashes Add supplementary signage reminding motorists of the need to yield for permissive left turns. Short Term & Low Cost Low Enforcement of gridlock related incidents Consider enforcement of gridlock causing events. Consider Don t Block the Box markings to prevent gridlock. Short Term & Low Cost Low Adjacent intersection operation As plans move forward to upgrade controller, use a single controller for this intersection and adjacent VFW Highway at Lakeview intersection or improve coordination. Long Term & High Cost Low/Mid Median related Issues Remove/relocate signage to improve driver visibility of opposing traffic stream. Add object marker on Lakeview median to alert motorists. Shorter Term & Low cost Low/Mid No parking area Continue to enforce no parking, particularly on SB Bridge Street approach. Short Term & Low Cost Low Page 13
7.0 Discussion With respect to the safety improvement opportunities described in the previous section it is important to consider the following: 1) many treatments are both low cost and short term and 2) there is a complimentary nature of many of the safety strategies in that one improvement will aid with multiple safety issues. Please note that although this document provides a series of specific recommendations which warrant short term implementation, the approach towards improved safety is dynamic in nature and warrants revisiting over time. As previously noted, the currently pending CVS / Pharmacy development has the potential to significantly impact the overall operation and safety of the intersection. The RSA team felt strongly that all aspects of this project must be considered from a safety perspective, especially given the already existing high crash history of this intersection. Additionally, the RSA team did want to recommend consideration of various alternatives associated with relocating the Lakeview and VFW Highway intersection (i.e., removing the 5 th intersection leg). One final issue related to the current intersection operation and safety is related to intersection storage. Opportunities to increase storage on the westbound and southbound approaches should be explored. Page 14
8.0 Appendix A: Distributed RSA Meeting Materials Materials provided to RSA team members in advance of the meeting included the following: 1. Intersection Layout 2. Traffic Signal Data 3. Collision Diagrams (by manner of collision) a. Angle 6 sheets b. Rear-end 4 sheets c. Other 1 sheet d. Head-on 1 sheet e. Sideswipe 1 sheet f. Lakeview @ VFW 1 sheet Page 15
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