chapter 2 – project design updates, cost, funding, & schedule

Final Environmental Impact Report Chapter 2 – Project Design Updates, Cost, Funding, & Schedule

Chapter 2 – Project Design Updates, Cost, Funding, & Schedule

South Station Expansion Massachusetts Department of Transportation

June 2016

Chapter 2 – Project Design Updates, Cost, Funding, & Schedule Final Environmental Impact Report

June 2016 South Station Expansion Massachusetts Department of Transportation

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South Station Expansion June 2016 Massachusetts Department of Transportation Page 2-1

2. Project Design Updates, Cost, Funding, and Schedule

Chapter 2 provides an update on the evolution of the South Station headhouse design since the DEIR, as well as an update on project cost, funding and schedule, as requested by the Secretary’s Certificate:

•

South Station headhouse design updates (see Section 2.1);

• Consistency with the project goals and objectives (see Section 2.2);

• Project cost and funding (see Section 2.3); and

• Project phasing and schedule (see Section 2.4).

2.1. South Station Headhouse Design Updates

The Secretary’s Certificate requested the FEIR provide the following information regarding the headhouse design:

•

Demonstration that the preferred South Station design will mitigate existing or potential areas of congestion and poor pedestrian Level of Service (LOS),1 including projected pedestrian congestion on at-grade rail platforms, within the trackhead2 concourse, and connections to the Silver Line and Red Line platforms (see Section 2.1.2);

• Clarification on whether the project includes ventilation systems separate from the existing South Station facilities (Section 2.1.3); and

• A description of how the latest conceptual design is consistent with MassDOT’s established station design principles (Section 2.1.4).

1 LOS is based on average pedestrian space and average flow rate. 2 The trackhead concourse refers to the exterior passenger circulation area between the enclosed headhouse and the tracks.

2.1.1. Update on South Station Headhouse Design

Since the DEIR, MassDOT has further refined the location of the expanded headhouse, pedestrian access points, and elevated concourses for the proposed South Station Terminal. The project would improve South Station facilities by expanding capacity, providing a more comfortable passenger environment, and providing better connections to surrounding neighborhoods.

The station design includes an expanded headhouse located along Dorchester Avenue, comprised of a new trackhead concourse, a new elevated concourse, and emergency egress elements. The expanded headhouse would be no more than 80 feet tall, with a proposed footprint of approximately 137,000 sf. The proposed entrance would bring passengers directly into an atrium, which would be programmed with passenger amenities, passenger services, station retail, and food and beverage concessions. The expanded headhouse would provide both a physical and visual link to the waterfront via a reopened Dorchester Avenue and an extension of the Harborwalk. The proposed headhouse entrances on Dorchester Avenue would better accommodate passengers traveling along Summer Street and the eastern side of the site. The proposed South Station concept is shown on Figures 1-5 and 1-6.


June 2016 South Station Expansion Page 2-2 Massachusetts Department of Transportation

Passenger boarding and alighting would occur from both the trackhead and the elevated concourse, which would be connected to each existing and new platform. The elevated concourse would serve as a link to the historic headhouse and the new trackhead, spanning across the new existing tracks mid-platform. This concourse would be integrated with the existing bus terminal, and would also provide direct access to Atlantic Avenue and Dorchester Avenue. As a result, all existing and new platforms would have direct access to the bus terminal and the Red and Silver Lines.

To comply with the National Fire Protection Association (NFPA) Standard for Fixed Guideway Transit and Passenger Rail Systems (NFPA 130) egress capacity and travel distance requirements, all existing and new platforms would require at least three points of egress. The trackhead at the northern terminus of the platforms would provide one egress point, while the other exits would be provided by stairs connecting to the track level at the southern terminus of each platform and vertical means of egress composed of stairs and/or escalators connecting to the elevated concourse or an egress bridge.3 Elevators, escalators, and stairs would also be utilized to move passengers from the platforms to other areas of the station and ease access into the surrounding neighborhood. Elevators would be conveniently located for the mobility-impaired and disabled to prevent possible conflict with general passenger flows. The overhead concourse and egress bridge would span all platforms and provide a means of passage between the platform level and a defined point of safety.

3 On April 25, 2016, Keolis Commuter Services presented a plan to the MBTA Fiscal & Management Control Board to investigate opportunities to install fare gates at South Station. MassDOT will coordinate the details of this with Keolis and address in Preliminary Engineering.

2.1.2. Pedestrian Level of Service

The existing passenger waiting area and circulation zone are inadequately sized and configured to accommodate the current daily demand. This often results in an unacceptable passenger experience of LOS E/F (minimum five sf per person) that occurs for short periods during peak boarding and alighting. An LOS E/F indicates that passing and cross flows are very difficult and flow is sporadic with frequent stopping. By 2035, the planned service increase to Amtrak and MBTA commuter rail for the project would add approximately 20,000 passengers per day arriving at South Station, and the new station design would provide adequate space and appropriate facilities to safely and conveniently manage the projected peak-hour pedestrian demand. The station’s size is designed relative to the pedestrian circulation elements that are fundamental to servicing the passenger demand. To create a comfortable and contemporary transportation facility, MassDOT established an overall goal of LOS C during peak periods to accommodate passengers of the South Station public circulation, waiting areas, and station platforms. This goal is typically established for a facility of this type as this LOS safely and conveniently accommodates passengers during peak times, while not being oversized for the non-peak times. The South Station platform level plan is shown in Figure 1-4.

2.1.3. Ventilation System Configuration

The Secretary’s Certificate requested clarification on whether the project includes ventilation systems separate from the existing South Station facilities. Pending a more extensive code review during final design, it is anticipated that the existing building mechanical, electrical, and plumbing systems would not be altered or replaced. The new square footage would be treated either as a separate addition or as a new adjacent building on the same property as the existing, and this new portion would be provided with new independent building systems, including ventilation.

The new design would integrate the SSAR project (see Section 1.5.3) with minor design modifications to the SSAR project for improved intermodal connection at South Station.



2.1.4. Consistency with Updated Station Design Principles

As requested by the Secretary’s Certificate, this section describes how the revised conceptual design is consistent with MassDOT’s updated station design principles. Below each principle is a description of how the conceptual design (depicted in Figures 1-5 and 1-6) incorporate those principles:

• Principle 1: Design an exemplary new passenger terminal with welcoming and functional public spaces including natural light; improved circulation and egress measures; safety, security, and emergency response enhancements; and improved passenger amenities (e.g., weather protected boarding, ticketing, and waiting areas).

The proposed station design substantially improves the capacity and operations of this important local and regional transportation hub. The proposed design and site plans present a well-integrated, accessible complex of buildings with a clear and logical organization of paths of travel. Safety and security enhancements are achieved through building design, effective platform egress systems, and specific structural and material characteristics. The station design should eliminate nooks, recesses, and “places to hide” wherever possible to minimize surveillance problems. It should also provide people with long open sight lines to eliminate all dark or obscure areas. In addition, weather protection, ticketing, and waiting areas may be enhanced to improve passenger experience.

• Principle 2: Optimize connectivity for pedestrians (including commuters and visitors) to the Financial District, Chinatown, Leather District, South Boston Waterfront/Innovation District, Convention Center, the Rose Kennedy Greenway, Harborwalk, and other downtown destinations and activities.

The proposed station design accommodates the existing pedestrian network and its relationship to current and evolving development patterns along Dorchester Avenue and across the Fort Point Channel that are creating new points of origin for users of the station. The design incorporates these elements along with possible new development and is informed by the connection to these sites.

• Principle 3: Maximize the station’s intermodality by promoting connections to multiple transit services, walking and bicycling facilities, and taxis.

The proposed station design provides convenient connections between multiple transit modes to increase the transportation options and to make the new transit station more useful to potential passengers.

• Principle 4: Design project components to reduce carbon production and incorporate sustainable design elements.

MassDOT will consider various techniques to minimize the vulnerability of South Station to flooding events and promote sustainable energy consumption within the building footprint. MassDOT proposes to raise a portion of Dorchester Avenue and the Fort Point Channel seawall to help protect the South Station site from future coastal storm flooding. Elevating power/HVAC sources and relocating critical systems to higher levels would be considered. Designing infrastructure and critical equipment to accommodate seawater flooding, water-proofing subsurface site elements, and using corrosion protection elements and materials for underground structures are additional solutions. MassDOT has set a goal to achieve LEED Silver Certification for the expanded headhouse portion of the SSX project. MassDOT will look to achieve this through green construction, energy efficiency, and water use reduction. New products and materials that are used to implement these strategies would strive to have environmentally,



economically, and socially preferable life-cycle impacts. As the design progresses, MassDOT will continue to look to implement strategies that will be easier to incorporate during the construction of the project as a preventative measure as opposed to modifying the infrastructure as a reactionary measure in the future. DEIR Chapter 5 – Sustainable Design and Climate Change Adaptation further details the sustainable design methodology.

• Principle 5: Connect South Station to adjacent neighborhoods and open spaces, including the waterfront, through the thoughtful programming of uses and design of the public realm.

A major objective of this project is to produce a highly functioning station with increased capacity while being mindful of evolving trends in the site area, including pedestrian and bicycle improvements along the adjacent Fort Point Channel waterfront and future air rights development opportunities. The Complete Streets approach to the redesign of Dorchester Avenue will provide pedestrian and bicycle connectivity to adjacent neighborhoods and public open space. This connectivity will be achieved with an expanded station and enhanced pedestrian and bicycle facilities, but without the addition of any automobile parking. The expanded station would support future opportunities for higher density, transit oriented development, and, when coupled with the preservation of historic buildings and continued enhancements to the Harborwalk, would also create tangible, collateral economic and local community benefits. MassDOT is committed to working with the City of Boston to advance that vision.

• Principle 6: Activate the building edges and streetscapes on all sides of the station to draw pedestrians to Dorchester Avenue, Summer Street, and Atlantic Avenue, with the Dewey Square entrance serving as the primary focal point of the station.

Passenger access points are provided on these adjacent streets for convenience, direct connectivity, and means of egress. Dorchester Avenue will be activated by an expanded headhouse and passenger drop-off area. The expanded headhouse is designed to have a prominent entrance along Dorchester Avenue. This will draw pedestrians while still respecting the primary historic entry at Dewey Square.

• Principle 7: Recognize and protect the historic integrity of the existing South Station headhouse and its value as a public space. Consider historic precedent in the design and integrate the expansion design with the existing station architecture. Maintain a public presence in the existing lobby, including the possible inclusion of information kiosks and displays, as well as retail.

The existing headhouse will remain the primary entrance to the South Station Terminal, thus allowing it to maintain its value as a public space to the community. Passenger amenities will continue to be located in the existing lobby, while additional amenities will be added to the expanded headhouse to improve station capacity and operations.

2.2. Consistency with Project Goals and Objectives

As requested by the Secretary’s Certificate, this section describes how the conceptual design is consistent with the purpose and need and MassDOT’s established goals and objectives for the project. As discussed in detail in DEIR Chapter 2, Project Purpose and Need, the project would address the following three fundamental transportation deficiencies (project needs) to improve both current and future railroad operations at South Station:

1. Terminal capacity constraints: The number of tracks and platforms at South Station and the configuration of the track system within the South Station Terminal area degrade service reliability and would inhibit future service delivery.



2. Inadequate station facilities: Current South Station headhouse facilities do not adequately support passenger service needs. The limited space often results in uncomfortable conditions.

3. Insufficient layover space: The capacity of vehicle layover facilities does not meet existing nor proposed layover facility program needs and railroad operational requirements.

The following section describes how the project, as currently designed, would meet MassDOT’s four performance objectives:

• Meet 95% on-time performance (OTP) and minimize delays;

• Provide sufficient track and platform capacity;

• Accommodate passenger service needs; and

• Provide adequate vehicle layover capacity.

2.2.1. Meet 95% On-time Performance and Minimize Delays

Consistent with current Amtrak and MBTA service delivery policy goals,4, 5 MassDOT established a goal of 95% OTP for trains arriving at the South Station complex, which includes the South Station platforms, Tower 1 Interlocking, and the key approach interlockings at Cove and Broad Interlockings (Figure 2-1). It is the intent of this project to provide greater service capacity and reliability to the greatest extent possible with operational improvements.

4 Amtrak Intercity Passenger Rail On-Time Performance: Twentieth Quarterly Report to Congress. February 2013. Viewed June 12, 2013 at http://www.fra.dot.gov. 5 According to the MBTA Service Delivery Policy (June 2, 2010), a train is considered 100% on time if it is arriving or departing at a terminal station within 5 minutes of scheduled arrival and departure times. The MBTA Commuter Rail Schedule Adherence Standard for OTP is 95%. The MBTA is currently updating their Service Delivery Policy, but do not have an anticipated release date at the time of publication.

As presented in FEIR Appendix E, Rail Operations Analysis Technical Report, the results of the operations analysis indicate that the proposed infrastructure would support proposed future operations and meet or exceed the MBTA Commuter Rail Schedule Adherence Standard OTP threshold of 95% of all trips departing and arriving at terminals within five minutes of scheduled departure and arrival times. The results also meet or exceed Amtrak’s 2030 OTP target for Acela Express service and Northeast Regional service (95%).6 These results indicate the proposed terminal infrastructure is robust and flexible enough to provide reliable service given the large increase in future 2035 trip volumes.

6 Amtrak Intercity Passenger Rail On-Time Performance: Twentieth Quarterly Report to Congress. February 2013. Viewed June 12, 2013 at http://www.fra.dot.gov.

http://www.fra.dot.gov/

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Figure 2-1 — Existing Conditions Schematic Track Layout

2.2.2. Provide Sufficient Track and Platform Capacity

By the year 2035, as projected by MassDOT, 554 daily train movements (arrivals and departures) are anticipated at South Station, consisting of 80 weekday Amtrak revenue trips, 315 weekday MBTA commuter rail revenue trips, and 159 Amtrak and MBTA non-revenue trips. Simulation tests showed that 20 station tracks would be sufficient to accommodate Amtrak’s and the MBTA’s future service plans, taking into account the geographic constraints of the Tower 1 Interlocking7. Therefore, proposed capacity improvements include the construction of seven new tracks and four new platforms to provide a total of 20 tracks and 11 platforms. In addition, several existing tracks and platforms would be lengthened and/or widened, as required. Tower 1 and an approach interlocking would also be reconfigured to meet requirements.

7 Massachusetts Department of Transportation, Massachusetts Department of Transportation Boston South Station HSIPR Expansion Project, Technical Memorandum: Network Simulation Analysis of Proposed 2030 MBTA/Amtrak Operations at South Station. Final Report. August 1, 2010. http://www.massdot.state.ma.us/Portals/25/Docs/FRA_HSIPR/Appendix_A1.pdf

MassDOT established platform capacity standards to accommodate Amtrak’s future berthing requirement of 1,050 feet and the MBTA’s future berthing requirement of 850 feet. As discussed in Section 2.3.1, the new platforms would be 26 feet wide to meet current NFPA and Americans with Disabilities Act (ADA)

http://www.massdot.state.ma.us/Portals/25/Docs/FRA_HSIPR/Appendix_A1.pdf



standards. The conceptual plans show that three berthing tracks could accommodate Amtrak’s desired length (1,050 feet) and 14 berthing tracks would accommodate the MBTA’s desired length (850 feet). Additional analysis would be necessary during preliminary engineering to determine exact berthing lengths in order to accommodate Amtrak and MBTA berthing standards.

2.2.3. Accommodate Passenger Service Needs

The project would improve South Station facilities by expanding capacity, providing a more comfortable passenger environment, and providing better connections to surrounding neighborhoods. An expanded headhouse would be located along Dorchester Avenue with a new station entrance, trackhead concourse, and elevated concourse. The station design would provide adequate space and appropriate facilities to safely and conveniently manage the projected peak-hour pedestrian demand, as described in Section 2.1.2, while also providing new passenger amenities, passenger services, station retail, and food and beverage concessions. The new expanded station would provide both a physical and visual link to the waterfront via a reopened Dorchester Avenue and an extension of the Harborwalk.

2.2.4. Provide Adequate Vehicle Layover Capacity

During the DEIR phase, MassDOT determined the amount and location of preferred vehicle layover capacity according to the MBTA’s layover facility program needs and railroad operational requirements. The MBTA currently does not have midday layover space for six of its south side trainsets and, by 2035, will need midday layover space for 21 additional trainsets. Based on ongoing conversations with Amtrak, Amtrak’s current and future layover needs are accommodated within its existing facilities.

For the purposes of completing the environmental review process, MassDOT is completing a full evaluation of two potential layover facility sites, Widett Circle and Readville – Yard 2. MassDOT is permitting the maximum possible capacity at both of these properties and recognizes that some combination of Widett Circle and an expanded Readville – Yard 2 would be required to meet the projected future midday layover needs. Widett Circle can provide layover space for up to 30 eight-car trainsets, and Readville – Yard 2 can be expanded to accommodate up to eight additional eight-car trainsets.

Beacon Park Yard in Allston, previously identified as a third layover facility alternative in the DEIR, is now subject to environmental review as part of the I-90 Allston Interchange project. The decision to separate the Beacon Park Yard layover site from the South Station DEIR and include it in the Allston project was done both to provide a more focused discussion of impacts in the affected community and in acknowledgment of the fact that the Allston project, including the construction of the Beacon Park Yard layover facility, is expected to advance to construction prior to South Station.

2.3. Project Cost and Funding

Upon completion of preliminary design, MassDOT will develop an estimate for cost of construction. MassDOT would use the estimate to evaluate both funding mechanisms and procurement methods available.

2.4. Project Phasing and Schedule

Construction activities would take place at the sites outlined in the project description. The proposed activities are generally categorized as rail, vertical construction, utility relocation and installation, and site and roadway development. The rail-related construction activities would be performed in close coordination with the operating railroads, including the MBTA and its commuter rail operator (Keolis),



Amtrak, and CSX Transportation, Inc. (CSXT). Flagging (protection of trains and employees) and inspection services would be provided by the operating railroad for a given section of track. Other non-rail-related construction activities would be coordinated with the City of Boston, utility companies, and other public and private entities as appropriate. Staging/laydown locations are envisioned in the following locations:

• South Station: The existing Dorchester Avenue, currently closed to the public, could be used as a staging area for the demolition of the USPS General Mail Facility (GMF). Once the USPS building is demolished and cleared, the former building site can be used for staging of the headhouse, rail work, and Dorchester Avenue construction. Should the acquisition of the USPS advance before funding is identified for the entire project, MassDOT may consider moving forward with the demolition of the USPS and reopening of Dorchester Avenue (along with associated Harborwalk improvements) before other project elements in order to provide improved public access along the Fort Point Channel.

• Widett Circle: It is anticipated that Widett Circle could be completed in stages that would allow the construction to remain within the limits of the yard.

• Readville – Yard 2: It is anticipated that the Readville – Yard 2 reconstruction could be completed in stages that would allow construction to remain within the limits of the yard.

Table 2-1 presents the proposed construction sequencing for the project. Table 2-1 — Proposed Construction Sequencing

Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1USPS Demolition

Track

Headhouse

Dorchester Avenue

Layover

Q2Year 1 Year 2 Year 3 Year 4 Year 5

The following sections define the construction schedule and sequencing, as well as major work activities for each area.

2.4.1. Demolish the USPS Facility

Demolition of the USPS facility would take approximately one year, and would occur at the beginning of the project to make the site available for future construction and staging/laydown space. The site demolition can occur simultaneously with rail construction at the interlockings. The general construction sequencing at the USPS site would be as follows:

•

Mobilization and site preparation;

• Demolition of existing structures;

• Excavation; and



• Foundation installation for the proposed track and headhouse.

2.4.2. Construct South Station Rail

Installation of the seven new tracks, four platforms, and connections and modifications to Tower 1 Interlocking would take approximately 4.5 years. The new track and platforms would largely be constructed outside of the existing South Station footprint. The work at Tower 1 Interlocking would require track outages, but would largely be completed during non-revenue hours and weekend closures, and by utilizing other methods that minimize disruption to passenger service. Construction at the South Station site would be phased to provide a balance between duration and impact. To minimize impacts to rail services and passengers, the contractor(s) would use overnight work windows, weekend work outages, and strategic track closures. As the project advances through preliminary design, MassDOT would coordinate with transportation providers and rail agencies to identify opportunities for strategic closures and alternatives for replacement services. The general construction sequencing for track installation at the South Station site would be as follows:

•


• Rail infrastructure installation;

• Station platforms; and

• Track testing.

2.4.3. Expand South Station Terminal

Construction of the headhouse and egress components at the South Station site would take approximately three years, beginning in third quarter of Year Two and ending in the second quarter of Year Five. Construction activities would include passenger circulation and waiting areas, concourse areas, and connections to the South Station Bus Terminal and parking garage. Passenger use most likely would not be affected during peak hours for the station. Disruptions would be largely minimized during other hours by completing utility connection work in non-public spaces, and utilizing non-revenue hours for public space connections. Once areas are no longer needed for construction activities, they would be returned to public use. The general construction sequencing for headhouse construction at South Station would be as follows:

•


• Installation of utility connections;

• Construction of the headhouse, including concourse and passenger circulation and waiting areas;

• Construction of the egress components; and

• Site furnishings and signage installation.

2.4.4. Reconstruct Dorchester Avenue and Harborwalk

Reconstruction of Dorchester Avenue would take approximately one year. Activities would include reconstruction of the vehicle travel lanes, construction of the parking or curb lanes, Harborwalk, bicycle accommodations, streetscape, and landscaping as well as utility and drainage installation. The general construction sequencing for reconstruction of Dorchester Avenue would be as follows:

• Mobilization and site preparation;



• Utility and drainage installation;

• Construction of the roadway and parking lanes;

• Construction of the Harborwalk including bicycle accommodations; and

• Construction of streetscape and landscaping.

2.4.5. Construct Rail Layover Facility Sites

Installation of the new tracks, connections and modifications to the existing tracks, and the shore power (electrical plug-ins) at the Widett Circle site would take approximately 1.5 years. Construction would include track, signals, and facility program functions such as crew quarters and parking, but would also include demolition of some existing structures at the Widett Circle facility. The general construction sequencing for track and infrastructure installation at the Widett Circle site would be as follows:


• Existing building demolition;


• Utility installation and non-rail site construction;

• Installation of shore power facilities; and

• Track testing.

MassDOT understands that the City of Boston is considering Widett Circle as a potential location for future air-rights development. This would require decking over any future layover yard in order to provide a ground plane on which to build. The proposed design of the Widett Circle layover facility can accommodate and does not preclude future air rights development opportunities, which are outside the scope of this project. As any City efforts advance, MassDOT will continue to coordinate with the City to help realize a future development vision for Widett Circle.

Because Readville is an active layover yard, construction would be staged to minimize impacts to daily operations. Installation of the new tracks, connections and modifications to the existing tracks, and the shore power at the Readville – Yard 2 Layover Facility would take approximately six months. Construction would include track, signals, and facility program functions such as crew quarters and parking, as well as extension of the existing noise barrier. The general construction sequencing for track and infrastructure installation at the Readville – Yard 2 site would be as follows:



• Utility installation and non-rail site construction;

• Installation of shore power facilities; and

• Track testing.

chapter 2 – project design updates, cost, funding, & schedule

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