Ocm39986872-1961-HB-3027.Pdf

HOUSE No. 3027

Che Commontoealth of Massachusetts

SPECIAL REPORT

Of THE

MASS TRANSPORTATION COMMISSION RELATIVE TO THE EX- TENSION AND EXPANSION OF CERTAIN RAPID TRANSIT FACILITIES BY THE METROPOLITAN TRANSIT AUTHORITY

Under Section 10 of Chapter 10 of the General Laws

March, 1961

BOSTON WRIGHT & POTTER PRINTING CO., LEGISLATIVE PRINTERS 32 DERNE STREET 1961

Che Commontoealth of Massachusetts

Mass Transportation Commission, m State House, Boston 33, March 9, 1961. To the Honorable Senate and House of Representatives. Pursuant to section 10, chapter 16 of the General Laws, we sub- mit herewith the report relative to the extension and expansion of certain rapid transit facilities by the Metropolitan Transit Authority. This report was prepared for the Commission by Dr. Joseph Maloney, Executive Director, and Nathan Paven, Special Counsel for the Mass Transportation Commission.

Respectfully submitted

LUCY M. CARRA. MICHAEL J. GORMLEY JACK P. RICCIARDI. HAROLD FINN. JOSEPH R. DRAGONE. ROBERT F. MURPHY. THOMAS J. GRIFFIN. WILLIAM F. CALLAHAN. EPHRAIM A. BREST. DANIEL A. BENSON. d I C&c Commontoealtft of

SPECIAL REPORT OF THE MASS TRANSPORTATION COMMISSION RELATIVE TO CERTAIN RAPID TRANSIT FACILITIES OF THE METROPOLITAN TRANSIT AUTHORITY. w FOREWORD This report, while being filed in accordance with the provisions of chapter 16, section 10, of the General Laws, is being submitted in partial fulfillment of the investigations and studies directed to this Commission by chapter 89 and chapter 100 of the Resolves of 1960. The portions of these Resolves with which this report deals has to do with the several studies of M. T. A. service, as well as the study of commuter needs and highway programs north and west of Boston. No funds were appropriated for these studies.

Part I. Introduction. Chapter 416 of the acts of 1959 created the Mass Transportation Commission and charged it with co-ordinating all planning for highways and transportation. The only funds made available to the Commission in 1959 were funds to continue the study of the Old Colony problems. There was an additional appropriation of $20,000 made in the supplementary budget for fiscal 1959. Chapter 644 of the acts of 1960 made certain corrective changes in the legislation establishing the Mass Transportation Commission, to enable the Commission to draw upon federal funds for studies relating to the co-ordination of highway planning, transportation, 'and use and urban renewal. This corrective change was not made until September 6, 1960. It was at that time that the Commission was first able to start planning for its long range work in these vital fields. Chapter 89 and chapter 100 of the Resolves of 1960 directed the Commission to undertake investigation and studies of several extensions of M. T. A. service, as well as a study of the commuter 6 HOUSE No. 3027. [Mar. needs and highway programs north and west of Boston. No funds were appropriated for these studies. In preparing this report, we have, of course, referred to the 1945 and 1947 Metropolitan Transit Recess Commission reports, which are the only master plans available for mass transportation in the Metropolitan Boston region. We have also examined the 1948 Metropolitan Master Highway Plan and the 1957 Coverdale and Colpitts report. Unfortunately, very little has been done since 1945 to review the of reports. Changes taken place in basic conclusions these have * population, travel and highways since 1945, which were only con- jectures at that time. We must therefore, review these reports in light of these changed conditions. This report is intended to serve as a guide to future studies. It does not and cannot offer answers to all of our transportation problems without considerable engineering and planning work. We can and do, however, explore certain areas where improvements over existing rail rights of way should be implemented. We recommend that a comprehensive study should be made of the effects of decentralization caused by roads such as Route 128 and the forthcoming Route 495. Such decentralization has created a diversion of traffic between Boston and the suburbs to traffic between the suburbs. If mass transportation is feasible for these new traffic needs, such plans must be drawn from new and radical ideas. We have included herein a table, comparing the population changes for the inner core of twenty-three cities and towns shown in the 1945 Coolidge report with those which have occurred between 1945 and now, as Appendix A. Certainly, such propulation changes have an effect on our planning for transportation. As we have pointed out, the Coolidge report concentrated solely on moving traffic to and from the center of Boston. We question whether such a premise is completely valid in the light of changed conditions. In 1948, a joint board for the Metropolitan Master Highway Plan presented its report to Governor Bradford outlining a ten- year program of highway planning. This plan is still the basic plan for the metropolitan Boston area and a large portion still re- mains uncompleted. The Metropolitan Master Highway report pointed out that a comprehensive plan for the improvement of a transit system was contained in the two reports of the Metropolitan Transit Recess 1961.] HOUSE —No. 3027. 7

Commission dated April of 1945, and April, 1947. These reports were the so-called “Coolidge Reports”, mentioned above. In planning the master highway plan, the 1948report said

If rapid transit facilities are not extended and improved, the system of expressways recommended will be inadequate to handle the volumes of traffic that will be generated in the outer and rapidly growing portion of the metropolitan district. The expressways do not offer a rubber-tired alternate to railborne rapid transit. The vast number of people to be handled by public transportation would make such an expedient economically unsound. Furthermore, the downtown street system would be unable to absorb any significant portion of the number of buses that would be involved.

Since 1948 there have been two extensions of the rapid transit system of the M. T. A. These two extensions are the Highland Branch and the Revere Beach extension. Since 1946, however, there has been a drastic decline in the use of the facilities of the M. T. A. The following chart indicates the extent of this decline;

This decline will probably continue if no extensions of service are made. In large measure this decline has been caused by the movement of population out of the fourteen cities and towns into the outlying suburbs, while the M. T. A. has been confined to virtually the same limits as existed in 1946. This, in turn, has led to greater reliance upon the automobile as the means of transportation. To meet the movement of populations, which has occurred, it is apparent that extensions of rapid transit service should be accomplished as rapidly as possible. Fortunately, the Boston area is so situated that it can take ad_ 8 HOUSE —No. 3027, [Mar. vantage of existing railroad rights-of-way for expansion of passenger transportation. Recent experience has also clearly supported the conclusion of the Coolidge Report, that the railroads are moving in the direction of abandoning all passenger transportation. Vast highway building programs have been and still are being planned through the heart of the core city and surrounding cities. The increasing demands of the automobile for more and more roads cannot be denied, but in planning such roads thought should be given to incorporate the principle that sufficient space be ac- quired for rapid transit in the median strips, according to a logical plan for expansion of rapid transit along with the highways. Un- less we do so, we will not be lessening the demand for roads, but increasing it. Planning rapid transit expansion can take one of two forms. First, we can so arrange financial matters that we reimburse the railroads for any loss resulting from their continuation of passenger service. Such a system is feasible, but is subject to the same ills as those which presently make passenger transportation by railroads uneconomical old equipment, high fares, infrequent service and lack of adequate parking facilities at the stations. Second, a combination of extending existing M. T. A. facilities over railroad rights-of-way by any one of several combinations or methods. It is our position that, if the Commonwealth is to expend large sums of money to provide passenger service, it would be most eco- nomical and most advantageous that the Commonwealth do so by means of a public authority and provide such service directly. The greatest advantage of an authority is that it pays no taxes and can raise money at less expense and more readily than private companies. The greatest objection to such a public authority at the present time is the spectre of increasing burdens upon the local real estate tax rates resulting from the cost of such service. Obviously, some new methods of paying the cost of service must be established. The most obvious answer is the amendment of the constitutional limitation which prohibits the application of the Highway Fund to' passenger transportation. Such a limitation has proved to be short- sighted and contrary to the best interests of the motoring public whom it was originally intended to protect. The failure to make funds available for public mass transportation has resulted in the demand for more and more highways, ever increasing the highway 1961.] HOUSE — No. 3027. 9

tax which is imposed upon motorists. It has long been established that it is far less expensive to build and maintain facilities for mass transportation on rail than it is to provide and maintain facilities carrying the same amount of people on rubber. Studies also indicate that during the rush hours, highways are being used to capac ity but the M. T. A. carries 70 per cent of its passengers during rush hours without making full use of its capacity. Approximately 156 miles of the Master Highway Plan remain to be built. The cost of construction alone is estimated to be in excess of $1 billion. To provide an extension of ten miles of rapid "transit facilities to the South Shore has been estimated to be no more than $29 million, total capitalization. If all of the extensions proposed in the Coolidge Report, for example, were to be immediately implemented, such an expenditure would provide relief from congested highways, would decrease the cost of maintenance of roads, would lessen the losses resulting from expensive land takings and would lead to an integrated and co- ordinated highway and rapid transit system for the metropolitan region. In many localities it would assist in planned urban renewal and would also stop the prospect of making a large parking lot out of the citv of Boston. If we use the Highland Branch, as an example, a recent Greater Boston Economic Study Committee study has pointed out that the Highland Branch extension, which cost $lO million, is carrying the same number of passengers as would require one lane of traffic in each direction over Storrow Drive. The same study points out that the railroad carried 2,600 passengers daily, whereas, at the time of the study the M. T. A. was already carrying 26,000 passengers daily. Contrast the cost of the Highland Branch extension with the $175 million estimated cost of constructing the proposed turnpike extension from the same starting point to serve the same purpose and we have some idea of comparative costs. A recent unpublished study by the M. T. A. indicates that the passenger count on the Highland Branch now exceeds over 30,000 Aper day. Such passenger counts, even with inadequate equipment, indicate that the availability of passengers is great enough to warrant expenditure by the State to provide the facilities. In large number the passengers using the Highland Branch come from out side the M. T. A. district. The mere fact that passengers come from outside of the district should not be the sole justification for requiring that the State pay 10 HOUSE No. 3027. [Mar. for a certain portion of M. T. A. expenses. Rather, the State should pay for such expenditures because it serves the State as a whole by reducing the additional expenditures needed for highways. The citizens of Worcester and Springfield contribute for the pay- ment to build highways around Boston, and the citizens of Boston contribute to the building of roads in Lawrence and in Fall River. There should not be an artificial barrier to having the citizens of the entire State provide for expanded transit services for the citizens of the entire Commonwealth. The recognition of necessity for extensions of service beyond the present limits was laid down by the Coolidge Report in 1945 and is true today: The enormous advantages which will result to the Commonwealth are so at- tractive and compelling that popular imagination, enterprise, cooperation and confidence should combine to bring the system to a state of fulfillment as speedily as possible, successfully meeting the inevitable challnege to rise above purely local considerations and to act for the general and genuine public welfare. Only with such an attitude can any great and beneficial public work be brought to pass. Therefore, it is our recommendation that we should extend existing rapid transit over available rail lines to Route 128 immediately and plan for future extensions beyond Route 128 as Route 495 becomes a more certain factor. We cannot fail to realize that we are today faced with the prospect of losing all private rail transportation. Private bus companies in short-haul service are also faced with lowered earnings, if not deficits. It must be readily apparent, that the M. T. A. is not the only passenger service which cannot be run at a profit. What is the answer? The need was foreseen in the Coolidge Reports of 1945 and 1947. For fifteen years we have had the answer but not the desire to imple- ment it. We have lived in hope that if we continue to postpone action, the problem would somehow solve itself. Unfortunately, this has not been true. The New Haven did abandon the Old Colony. The Boston & Albany has all but abandoned commuter service on its lines. The Boston & Maine is in the process of divesting itself of its passenger service. What can we do now? There are three possible alternatives 1. Continue railroad service by paying the railroads a subsidy sufficient to meet their deficits. 2. Permit the discontinuance of all rail service and hope that bu service would take up the burden. 1961.] HOUSE No. 3027. 11

3. Plan for realistic extensions of service to provide needed passenger service by the Commonwealth. Each of the alternatives has merits and demerits, which should be considered. To continue present railroad service by paying a subsidy is the plan which can be most rapidly implemented. As such, it has a great deal of appeal. Because of the history of the State’s involve- ment with the Boston Elevated Railway, we can only hope for one result from such an arrangement mounting subsidies and even- tual state ownership. Such an arrangement also requires, in the case of the Boston & Albany and the New Haven, substantial in- vestments in rolling stock, which the railroads are at present unwilling or unable to do without substantial state assistance. Not to provide new equipment is self-defeating because old equipment fails to attract new passengers. Railroads, because of present labor agreements, are unable or unwilling to provide sufficient off-peak service. To do so, railroads argue, would raise the amount of overtime pay for crews and would only add to the increasing losses resulting from passenger service. We present this contention as an argument which the railroads themselves have consistently put forth. To permit rail discontinuance and rely upon bus service is appeal- ing because it permits “free enterprise” to continue. Bus service, however, is not the answer to short-haul problems. For one, bus service sufficient to carry all of the 7,000 or 8,000 persons, who used the Old Colony, for example, would require 100 to 125 busses. Such a load would add greatly to the already overloaded highways, necessitating greater highway facilities and, as we pointed out above, highways are not delivered to us free of charge. They cost money and they cost vital space in our cities. Busses appear to be only a partial answer. They supplement other service but they suffer the ills of automobiles. They are vul- nerable to weather conditions and unfortunately do not have an unimpeded highway over which to travel. They do not compare Jfci'avorably with rail service in such factors as speed, comfort and of service. Where busses can carry 3,000 passengers per hour, service on rail can carry up to 40,000 per hour. Added to these drawbacks is the continually worsening financial picture of the bus companies serving metropolitan Boston. They cannot long continue without substantial state assistance and, if 12 HOUSE No. 3027. [Mar. that is to be the ultimate answer, it behooves us to plan now for an improved service rather than a mere stop-gap. Planning for extensions ofrapid transit over rails has several drawbacks, as well. It requires initial capitalization for track equipment and station improvements. We must also contend with continued resistance from communities outside the M. T. A. district to extensions into their boundaries.

Part 11. Extensions of Service. The General Court has referred to this Commission several in- * vestigations and studies, relating to extensions and improvements of service provided by the M. T. A., as well as a basic request to study the commuter needs of the communities north and west of Boston arising out of road discontinuances, and for co-ordinating the highway program. For the purpose of this report, we have listed the various report requested of us and combined several of them. 1. Establishment of commuter facilities and co-ordinating highway programs north and west of Boston. 2. Extension of the Everett to Forest Hills subway to Dedham and Hvde Park. 3. Extension of rapid transit to Braintree, Weymouth and Hingham. 4. Extension of the Ashmont line to some point near the South- east Expressway and/or Mattapan Square. 5. The need for utilization and improvements in the subway facilities in Boston, caused by conversion of trolley car operation to rapid transit operation, as well as the need for changing the subway system in Boston as a result of several building projects presently under way or contemplated. 6. Removal of the Washington Street elevated structure. 7. Changes required in the M. T. A. law to provide for extensions of service. A. Old Colony Extension. $ We have not made any recommendations in this report concerning extensions of service to Quincy, Braintree, Weymouth and Hingham. In several reports, and in hearings before committees, this Com- mission has discussed at length its proposal for extensions over the portion of tracks which the Commonwealth may acquire under the terms of its option. 1961.] HOUSE —No. 3027 13

Because of the limits imposed by the terms of the option, we have recommended that the extension be made to South Braintree and that any other service be co-ordinated with feeder bus lines in the outlying cities and towns. We do not intend to continue that dis- cussion in this report other than to reiterate our conclusions that such an extension is both logical, necessary, and of first importance in any plan for rapid transit extension. This is an area which the railroad has already abandoned and which places complete reliance upon highways to reach Boston. Some service is presently furnished by bus connections with M. T. A. terminals. We do not believe l'' that such service is an alternative to rapid transit planning in this area. B. Extension North of Bosto The Boston and Maine presently carries approximately 15,000 passengers daily north of Boston, and of this number almost one half travel over the so-called Heading Branch. At our request the M. T. A. has prepared estimates and preliminary plans which would extend the Forest Hills subway from Sullivan Square north to a point near Route 128 in North Reading. Such a route would proceed over a portion of the Boston and Maine Western Division tracks through Everett, Malden, Melrose, Wakefield, Reading, terminating just beyond Route 128 in North Reading where space is available for a large parking area. The Boston and Maine has indicated a willingness to co-operate in planning such an extension and has stated that it can continue to operate its freight business over such a route without extensive changes. Continuance of such service would not be hampered in any way by the extension of rapid transit. Such an extension would have the benefit of discontinuing long and costly feeder lines presently terminating in Everett Station. We have included in our report a traffic count, made October 13, 1960 and December 7, 1960, at Everett Station showing a summary of all passengers entering and leaving Everett Station by M. T. A. feeders, as Appendices B and C. We have also included 1960 and projected 1970 population figures for the cities and towns to be served, as Appendix D. This station is also serviced by bus lines of the Eastern Massachusetts Street Railway originating in Lawrence and Lowell. Such service could be continued by an inter- change at the North Reading terminal or at other terminals, short- ening the ride for these passengers and thereby increasing the passenger services offered by the Eastern Massachusetts Street Railway. 14 HOUSE — No. 3027. [Mar.

We have considered various types of services which could be provided over this extension. These can be summarized in three categories: 1. Extension from Haymarket Square by Means of a Subway constructed from Haymarket Square to North Reading. While this would be the most expensive method, it would mean that maintenance costs are considerably reduced because of the elimination of delays caused by weather and exposure. It would contribute greatly to the improvement of the North Station area as well as removing the elevated structure from the Charlestown area, thus serving the urban renewal needs of that area. It would be less noisy for the neighborhood through which it passes, wherever such a consideration is made necessary by existing land uses. The estimated cost of construction of such a subway extension would be in excess of $l5O million exclusive of land takings. We cannot, under present methods of financing the M. T. A., recommend the extension by means of a subway because of the substantial cost involved. 2. Extension of existing Rapid Transit from Sullivan Square to North Reading. This method would require the electrification of the tracks between Sullivan Square and North Reading by means of overhead catenaries. Existing cars on the Forest Hills route would have to be adapted to use either the third rail or catenaries. The use of such a system would require certain adjustments at two or three crossings, to avoid interference with traffic. The M. T. A. has prepared a study of construction costs for an extension of such service from Sullivan Square to North Reading over the Western Division tracks of the Boston and Maine. This study indicates that the total estimated construction costs would be approximately $l5 million exclusive of land takings. The estimated cost of rolling stock, if we assume an extension of M. T. A. service, brings the total estimated project cost to $25 million. To this must be added the cost of land takings, purchase of the right-of-way from the Boston and Maine Railroad and interest during construction. The Boston and Maine presently carries 7,500 passengers daily over this line. If we apply the experience of the Highland Branch to this ex- 4k tension, we could reasonably assume that this line could carry between 50,000 and 70,000 passengers daily. The Everett Station could be used for a shuttle service or could be abandoned. There are approximately 13,000 passengers daily who use the Everett Station. Because the vast majority of these passengers would be serviced by new stations along the new line, additional work will be 1961.] HOUSE —No. 3027. 15 necessary for preparing schedules for the new feeder systems, estimates of cost savings resulting from the changes to shorter feeder lines, fare schedules, traffic estimates and consideration of convert- ing on M. T. A. trackless trolley lines in Everett and Malden to bus operation and re-routing the lines on a circumferential basis. To provide this new service brings us again to the political problem of how to extend the M. T. A. service beyond its present boundaries. This project should, however, be given top priority, because it is apparent that the Boston and Maine will in the very near future seek further abandonments in service north of Boston. We propose that the Mass Transportation Commission undertake to prepare an engineering study for the additional work necessary to prepare plans for such extensions. New stations would be constructed at the Wellington Circle shopping area, Edgeworth, Malden Square, Oak Grove, Wyoming Avenue, Melrose, Melrose Highlands, Green- wood, Wakefield and at Route 128. We are including a map showing this proposed extension as Appendix E. 1 It is estimated that the cost of such a study would be approximately $lOO,OOO. 3. Use of Self-propelled Railroad Cars as a Shuttle Service. This system would use existing railroad self-propelled cars in a shuttle service connecting at Sullivan Square and would have no requirements for conversion of tracks or crossings and w'ould provide more frequent service than is presently available. Such service would be provided by the M. T. A. or a state authority, which would not be subject to existing labor regulations. It is estimated that the cost of installing such a system is approximately $3 million, resulting largely from land acquisition and purchase or lease of equipment. The arrangement would also take into account existing bus lines and trolley lines presently terminating at Malden Square in such construction. There would also be savings in rerouting certain lines presently terminating at Sullivan Square. Because there are several problems still unanswered, we have begun study of origin and desti- nation figures, together with cost analysis and rescheduling of the feeder service which would be made necessary by such an extension. As soon as our studies are completed, we shall file an additional report on this matter. We propose to complete the study started by the M. T. A. to analyze the costs, as well as probable passenger counts changes necessary to existing M. T. A. services. Certainly, if the Highland Branch experience is any indication, there would be an expectation

1 NOTE, The map is on file with the Clerk of the House of Representatives. 16 HOUSE No. 3027. [Mar. of at least 50,000 to 70,000 passengers daily who would use such service, if it were provided. The advantage to the M. T. A. ofproviding any one of the alternatives would be to shorten considerably certain costly feeder lines used by the M. T. A. and replace them with connecting services at new stations along the route, with corresponding savings and benefits to the communities served. C. Removal of Washington Street Elevated. For many years there has been authority for the M. T. A. to remove the elevated structure along Washington Street on its Forest Hills Branch. Coupled with this have been the repeated recom- * mendations for extending the line beyond its present terminal over the New Haven tracks to Dedham. The Mass Transportation Commission, as part of its work in co- ordinating the work of several agencies, has found that the Depart- ment of Public Works is planning to proceed with the construction of the Southwest Expressway. Such a highway would proceed along Washington Street, according to present plans, but would not intersect with the M. T. A. until it reaches the Dudley Street Ter- minal. We recommend that the Department explore whether or not federal funds may now be used to remove the elevated structure, as well as provide for a median strip permitting the M. T. A. to place its service in such a strip, the cost of acquiring the property to be part of the Department’s costs. The remaining cost of installing tracks and electrification would be borne by the M. T. A. We find that in March, 1958, there was filed a joint report by the Department of Public Works and the trustees of the M. T. A. being Senate, No. 670. This report pointed out that, under certain conditions, such federal funds would be available. We recommend that immediate action be taken to prepare plans for obtaining such funds and determining the costs of construction which will have to be borne by the M. T. A. Such additional rights-of-way should be included for the entire route for the Southwest Expressway as far as Route 128 in Norwood We recommend that studies be undertaken to determine the con traction costs and desirability of such an extension as far as Route 5 128. Such an extension would service the growing areas of Ded ham, Canton, Westwood, Norwood and possibly Walpole, Sharon and Stoughton. The removal of the elevated structure along Washington Stree was authorized by chapter 654 of the Acts of 1950, but the funds 1961.] HOUSE No. 3027. 17 then made available were inadequate for such removal. Such removal would also assist in the urban redevelopment of the city of Boston in the Roxbury-Dorchester area and increase land values to a considerable extent, as well as expedite traffic. If the Department of Public Works is able to obtain funds from the federal government for such removal, the capital cost to the M. T. A. would be reduced considerably. We should also explore the availability of urban renewal funds for such work. There is presently available alongside the proposed extension the tracks of the Boston and Providence Railroad Company, which could be utilized as a right-of-way for such an extension as far as the parking area on Route 128, developed by the New Haven Rail- road. This parking area could be utilized in joint operation between the M. T. A. and the railroad for connections between the railroad and Boston. It is estimated that the cost of preparing plans, specifications and study of such an extension would be approximately $lOO,OOO, if existing plans can be updated. The Mass Transportation Commission proposes that studies be undertaken to determine to what limits the Forest Hills extension should be carried, as well as co-ordinating this planning with the Southwest Expressway. D. Lechmere Viaduct. We recommend that a study be made in conjunction with the North Terminal Project of the possibility of eliminating the Lech- mere viaduct and the overhead tracks at North Station and drawing back to Haymarket Square as a terminal. This, together with planning for a direct connection of the M. T. A. with the proposed government center, should be undertaken immediately so that co- ordinated planning may be undertaken to prevent costly mistakes resulting from lack of co-ordination. We have found that the North Station area is very much interested in removing the overhead Lechmere Viaduct from Haymarket Square to Lechmere Square. There is statutory authority enabling M. T. A. to do such work, but we find that such a removal would be of little benefit to the M. T. A. aside from certain econo- mies which could be realized from rerouting feeder bus lines. It has been estimated that the cost of removing the viaduct would be approximately $350,000. Because such removal would eliminate a blight in this area, and would largely benefit the property owners, we recommend that, if 18 HOUSE No. 3027. [Mar. the interested parties and the urban renewal authorities are willing to advance the cost of removing the viaduct, the M. T. A. could revise its schedule to provide the new services which would be required. To prepare plans, revise the schedules, and determine whether or not new station facilities would be required, would cost approximately $25,000. E. Changes in the Subway System in the City of Boston. The M. T. A. prepared reports in 1958 and 1959 dealing with the Stuart Street extension and changes in the Park Street-Boylston Street-Scollay Square subway stations. The need for expansion of the Park Street subway station is apparent to anyone who uses the % station during rush hours. The increased load which will be placed upon these stations by the addition of traffic from the Government Center and the Prudential Development will be far beyond its present capacity and will lead to slower service for all. During rush hours, the highways are used to full capacity, but 70 per cent of all people carried by mass transportation are carried between 7:00a.m- . a.m. and 4:00 p.m.-6:00 p.m. We find that the engineering costs submitted by the M. T. A. reports were $34,280,000 for the Stuart Street and Park Street changes. Today the expansion of Park Street subway and Stuart Street extension would be approximately $36 million. We have not had an opportunity to evaluate the merits of the Stuart Street extension as no funds were made available to conduct an engineering survey of such an extension. We estimate that, were we to conduct such a survey, the cost would be approximately $150,000. Such a study would also entail changes required in the stations for conversion from trolley car service to rapid transit service, because all of the present stations are low-level loading operations. To provide rapid transit service for heavier cars would require rebuilding of the stations to provide high-level platforms and widening of several of the stations, as well as protection from contact with third rail, if such service were provided with a third rail. We cannot emphasize too strongly the need for the M. T. A. to start its construction planning to provide service to the Govern- : ment Center project and to the Prudential project. Such planning should be done in conjunction with the engineers planning each of the projects so that direct connections into each building can be provided by the M. T. A. This would be of great benefit to those working in these centers and to the M. T. A. Since these extensions have been studied by the M. T. A. engineers 1961.] HOUSE —No. 3027. 19

and a study has been made by outside consultants at a substantial cost, we do not see the need for further studies by this commission. F. Extension of East Boston Line. We recommend that studies be instituted to develop a connection between the Orient Heights station on the East Boston extension to the vicinity of Linden Square in Malden and make greater use of this line than is now made of it. Such a connection would terminate at a point near the intersection of Routes C-l and 95. The cost of preparing such a study would be approximately $75,000. G. Extensions West of Boston. * I For the moment, the Highland Branch, with all its imperfections, has led to improvement of the conditions faced by commuters from the West. This extension has utilized the railroad right-of-way and has increased the number of riders from some 2,500 daily to more than 30,000. How much of this increase is due to lower fares and how much is due to improved service has not been determined. Had we been willing to spend more, a better service with heavier equipment could have been installed. The important conclusion is that so many more riders have been removed from the highways and have used public transportation. This conclusion is most important. In large measure it met the problems caused by the Boston & Albany discontinuances. Much has been written of the increased deficit resulting from the Highland Branch extension as an argument against further extensions without considering the benefits resulting from such extensions. We suggest that further analysis be made of the costs and revenue of the Highland Branch before conclusions are drawn. We have found that it is well-nigh impossible to draw an accurate figure for the cost of this service because of local fares and transfer passengers using the line. We recommend that the Highland Branch service be improved by using a heavier type of car. We note with approval the attempts of citizens west of the High- land Branch to provide a plan for commuter service from Framing- ham, Natick, Wellesley and Weston. We have not as yet had the opportunity to study a complete report of their plan and we cannot, therefore, evaluate the results of the study in any way. We believe that extension of service west of Route 128 should be considered as far as Framingham, but we do not believe that this extension should have as great a priority at the present time as that north of Boston or that over the Old Colony. There are approximately 2,000 pas- 20 HOUSE No. 3027 [Mar. sengers daily using the existing Boston and Albany service and we believe that the bulk of this service could be accommodated by the Highland Branch if improvements are made in the service. Until this group is able to obtain accurate cost estimates from the Boston and Albany no definite opinions can be formed. We recommend an engineering study to provide information as to the type of service required on the Highland Branch as well as the feasibility of looping the service through Bird Hill to provide for service into Needham. It is estimated that the cost of such a study would be approximately $75,000. H. Changes in M. T. A. Law to provide for Extensions. Chapter 544 of the Acts of 1947 established the M. T. A. Sec- tion 10A provided the method whereby extensions of the M. T. A. into other communities could be provided. Briefly the method, as set forth, requires the following steps 1. The Trustees of the M. T. A. must decide that an extension into any city or town not in the M. T. A. territory is desirable. 2. The M. T. A. then prepares plans or specifications for such an extension and submits them to the Department of Public Utilities. 3. There must be a public hearing before the Department of Pub- lic Utilities and notice is given to the Mayor and Selectmen of the affected communities. 4. If, after the public hearing, the Department of Public Utilities approves the extension, the Department of Public Utilities must notify the Mayor or the Board of Selectmen. 5. There must then be a special election in time to notify the Department of Public Utilities of the results of such an election within 60 days after notice is sent to the communities. 6. The form of the question to be submitted to the voters is set forth in the statute. If the city or town fails to hold an election, such city or town shall be deemed to have approved the extension. 7. Upon the expiration of sixty days after giving the required notification, the Department of Public Utilities must report the results to the general court, together with a draft of legislation au- thorizing the proposed extension. 8. The general court may then vote on the proposed extension. t All of these steps are intended to protect the rights of the cities and towns outside the M. T. A. district and should not be tampered with lightly. It may be frustrating to those concerned with the problems of mass transportation to contemplate the many steps required and the many opportunities, which opponents to such ex- 1961.] HOUSE - No. 3027. 21

tensions may have to defeat the proposed extensions, but certainly no city or town should be forced to shoulder tax burdens which its citizens do not want. We believe, however, that such decisions should be based on sound information. Too often, such decisions are influenced by emotional appeals without any basic information. It has been argued that no city or town wants to assume the so- called burdens of the M. T. A. until those burdens are lessened. We respectfully suggest that consideration be given to our earlier recommendation that the State assume the capital costs of the fPM. T. A. as a first step in the direction of making the M. T. A. acceptable to the outside community We do not, therefore, recommend any change in the provision of chapter 544 dealing with the extensions of servicevice at this time We suggest that this matter be included for further study together with those dealing with extensions of service.

Part 111 Conclusion.

To accomplish all of the studies mentioned herein, we would require an appropriation of $300,000. Together with additional funds which we hope to have made available from federal source for the basic studies which are necessary, we recommend that we proceed with the preparation of a master plan for public transporta tion in the Greater Boston Metropolitan Region. We are appending legislation for this purpose. All of these proposed extensions cannot help but affect the urban renewal plans and zoning regulations of the cities and towns through which such extensions pass. Removal of elevated structures for example would have a great impact on the rehabilitation plans in Charlestown, Roxbury and Dorchester districts of Boston. A good deal of basic preparation must be done to prepare the way for these improvements. We have, therefore, begun negotiations with tl Housing and Home Finance Administration to assist the Commis- sion in financing the first step of such work. Our application, when approved, will provide funds for integrating all existing plans and studies for transportation, highways and urban renewal, so that we may move toward preparing a master plan for mass transportation. The results of our work will, of course, he made available to the several agencies and municipalities requiring this basic information. This study will develop the basic information necessary 22 HOUSE No. 3027. [Mar. to determine how far expansions of service in metropolitan Boston should go. It is our belief that extensions of service are necessary if we are to continue the best utilization of highways and transportation facilities. The continued building of highways should be co- ordinated with improved rapid transit facilities along with the highways so as to avoid congestion and waste ofall of these facilities. The problems posed by extension of the M. T. A. into other communities can only be faced if we change the tax base which will sup- port this service. So long as the real estate tax is the only means of paying for such extensions and for deficits, it is difficult to con- I vince cities and towns outside the M. T. A. district that it would be to their advantage to have rapid transit facilities to and from the city of Boston. While we believe that such an attitude is ill-considered, we can appreciate the problems which these communities face. Unless and until there is a change in attitude, it becomes impossible to begin co-ordinated transportation planning in the metropolitan area. The time has come for the State to assume a portion of the costs of providing such service, which is beneficial to all of the citizens of the State.

t 1961.] HOUSE —No. 3027. 23

Appendix A.

CHANGES IN POPULATION FROM 1940 TO 1960.

1940. j 1950. 1960.

. Arlington 40,013 44,353 49,953 Belmont 26,867 27,381 28,715 Bo.‘ 770,816 801,444 697,197

Braintree 16,378 23,161 31,069 Brookline 49,786 57,589 54.044 Cambridge 110.879 120,740 107,716 Che 41,259 38,912 33,749 Dedh; 15,508 18,487 23.869 Everett 46,784 45,982 43.544 Lexington 13,187 17.335 27,691 Lynn 98,123 99,738 94,478

Malden 58,010 59,804 57,676 Medforc 63,083 66,113 64,971 Melrose 25,333 26,986 29,619 Milton 18,708 22,395 26,375 Needha 12,445 16,313 25,793 NewU 69,873 81,994 92,384

Qo 75,810 83,535 87,409 Readi: 10,866 14,006 19,259 Reven 34,405 36,763 40,080

14,825 17,162 20,666 ille 102,177 102,351 94.697

ne 10,765 13.229 17,821 W 16,223 19,633 24,295

Walt ha 40,020 47,187 55,413

Watertown 35,427 37,329 39,092 Wellesle 15,127 20,549 26,071 Wincheat 15,081 15,509 19,376

Woburn 19,751 20.496 31,214 24 HOUSE No. 3027. [Mar.

Appendix B,

SUMMARY OF TRAFFIC COUNT TAKEN AT EVERETT STATION, THURSDAY, OCTOBER 13, 1960. I

Number of Passengers carried Inward.

Route from Route from Route from Lebanon St. Route from Route from Malden Sq. Revere and Faulkner St. Linden St. via Ferry Carhouse Malden Sq. via Main St. via Broadway. St. and and via Main St. Broadway. Woodlawn.

118 116 158

308 399

269 434 404

145 131

37 112 102 167

124 99

70 53 48

19 153 64 73

19 150 114 81

83 108

137 118

14 43 44

47 43 68

21 44

16 13 40 21

39 34

13 37 21

934 2,690 1,904

Grand Total 1, 1961.] HOUSE No. 3027. 25

Appendix B Continued.

SUMMARY OF TRAFFIC COUNT TAKEN AT EVE RET 'T STATION, THURSDAY, OCTOBER 13, 1960.

Number op Passengers carried Outward.

# Route to Route to Route to Lebanon St. Route to Route to Malden Sq. Revere and Faulkner St. Linden St. via Ferry St. Carhousc Malden Sq. via Main St. via Broadway. and and via Main St. Broadway.Broadway. WoodlawnWoodlawn.

172

162

155

299

586

216

2,189

12,946 26 HOUSE — No. 3027. [Mar.

Appendix C.

NUMBER OF PASSENGERS ENTERING EVERETT STA- TION PASSIMETERS, WEDNESDAY, DECEMBER 7, 1960.

& 1961.] HOUSE —No. 3027. 27

Appendix D.

POPULATION OF MUNICIPALITIES WHICH WOI LD CONTRIBUTE TRANSIT PASSENGERS.

Projected, 1970.

Malden . Medford Everett

Melrose . Wakefield

Stoneham

North Reading

Lynnficld

Andover North Andover Methuen Lowell

I Haverhill

Tewk

Peabody

Danvers

Boxford

Middleton

Wilmingtoc 21,000

Billerica 29,200 Chelmsford 19,000

Totals 751,600 • 28 HOUSE No. 3027. [Mar. 1961.

Cl)e Commontoealtf) of

In the Year One Thousand Nine Hundred and Sixty-One.

Resolve providing for the continuation of an investigation AND STUDY BY THE MASS TRANSPORTATION COMMISSION RELATIVE TO THE EXTENSION AND EXPANSION OF CERTAIN RAPID TRANSIT FACILITIES BY THE METROPOLITAN TRANSIT AUTHORITY AND TOM CHANGING THE NAME OF THE SAID AUTHORITY.

1 Resolved, That the Mass Transportation Commission is 2 hereby authorized and directed to continue an investigation and 3 study of the following extensions and expansions of the Metro- -4 politan Transit Authority: Extension of the Everett-Forest 5 Hills line of the Metropolitan Transit Authority to North Read- -6 ing; removal of the elevated structure of the Everett-Forest 7 Hills line and extension of the said line to Route 128; removal of 8 the Lechmere Viaduct from Haymarket Square to Lechmere 9 Square and the relocation and rerouting of service from Lech- -10 mere Square; an investigation and study of the feasibility of ex- -11 tending the East Boston rapid transit line from Orient Heights 12 to Linden Square, Malden; an investigation and study of the 13 requirements of the Highland Branch extension and the feasi- -14 bility of providing a loop through the Bird Hill section into 15 Needham; to continue the study and investigation relative to 16 the establishment of mass transportation facilities and co- -17 ordinating highway programs west and north of Boston; an 18 investigation and study relative to altering the composition of 19 the Metropolitan Transit Authority, changing its name and 20 making other changes therein. For the purposes of said in- -21 vestigation and study the commission may expend a sum not 22 to exceed three hundred thousand dollars. 23 Said commission shall report to the general court the results^? 24 of its investigation and study and its recommendations, if any, 25 together with engineering plans and drafts of legislation neces- -26 sary to carry said recommendations into effect, by filing the 27 same with the clerk of the house of representatives on or before 28 the last Wednesday of January, nineteen hundred and sixty-two.