Text-Only Version Prepared by: TranSystems Corp. Medford, ma and: Planners Collaborative Boston, ma august 24, 2007 contents
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Design This section of the report addresses the federal and state requirements for design of accessible transit stations and MBTA’s procedures for addressing those requirements. USDOT ADA Regulations For consistency of design, the USDOT incorporated the ADA Accessibility Guidelines (ADAAG) into the USDOT ADA regulations as standards for station design. Principal design elements addressed by ADAAG are:
With respect to further requirements related to public address systems, ADAAG 10.3.1 (14) states that “where public address systems are provided to convey information to the public in terminals, stations, or other fixed facilities, a means of conveying the same or equivalent information to persons with hearing loss or who are deaf shall be provided.” Among the means of conveying equivalent information are visual displays such as fixed signs, variable message signs, or for route identification, destination signs on vehicles. Variable message signs can include automated LED signs or manually changed sign boards. In ADA Station reviews this requirement has been applied to information needed by people to effectively use the transit service and includes stop and route identification, elevator outages, or other service disruptions that would significantly affect a person’s trip. The requirement has not been applied to unessential information such as advertisements or public service announcements. An example of acceptable equivalent information would be fixed signs identifying the name of transit stops as the equivalent of an announcement of the stop name using a PA system. The regulation (49 CFR Subsection 37.9 (c)) further requires that bus stop pad construction within control of the transit agency comply with ADAAG. Massachusetts Architectural Access Board Regulations The Massachusetts Architectural Access Board (MAAB) has regulations (521 Code of Massachusetts Regulations) that govern accessibility elements of design of buildings and facilities. With respect to transit passenger facilities, the design requirements are very similar to those of the USDOT. A notable exception is the design requirements for newly constructed commuter rail and light rail stations. The requirements for access in these instances are less flexible than those of the USDOT regulations. At such stations, access shall be provided to all passengers and to all cars of the train by means of a full length raised platform. Additionally, any reconstructed, altered or remodeled stations serving commuter rail coaches shall afford access to at least two coaches of a train by means of a raised platform at least 45 feet in length with overhead shelter from rain and snow along their full length and at all access ramps. Section 18.5.3.2 of the MAAB Regulations requires that “platforms at reconstructed, remodeled or altered stations serving light rail transit vehicles shall afford access to at least one car by means of a raised platform.” The platform must be 5 feet wide, 8 feet long with a 3 foot zone for the light rail car door. Note that the regulations do not specify a height requirement or level boarding for light rail systems, only that the platform be raised for the entire length for new stations and that mini-high platforms are acceptable for reconstructed stations. Where constraints result in gaps between the passenger platform and vehicle door of more than 1 inch vertical and 3 inches horizontal, a bridge plate designed to eliminate such gaps shall be made available at every passenger door of the vehicle. For light rail stations, where the above-cited gaps are exceeded, a device, or ramp, used to bridge the gap must not result in a slope greater than 1:12 (8.3%) unless the run or span is less than 3 inches. MBTA Design Procedures Compliance with ADAAG and MAAB design standards are addressed through a requirement that the professional architect or engineer responsible for station design, through a contract with the MBTA, certify that the design complies with the requirements of the regulations. In addition, design plans are reviewed by MBTA professional staff as they are being developed with station accessibility included in the review. Plans are also reviewed by the MBTA’s Senior Accessibility Specialist. The MBTA developed a Commuter Rail Design Standards Manual and Design Standards for rapid rail and subway stations. According to MBTA staff, the Commuter Rail Design Standards were last updated on April 19, 1996 and the Design Standards for rapid rail stations were also last updated in 1995. Also according to MBTA staff, the MBTA has no formal design standards for bus stops. The Commuter Rail Design Standards Manual addresses pathways, ramps, parking, passenger platforms and signage. ADAAG and MAAB requirements, including the requirement that all new stations have full length high platforms, are incorporated into the design standards. With respect to level boarding for people using wheelchairs, commuter rail systems have a unique challenge. Commuter rail passenger track is often shared with freight service, which uses wider cars than commuter coaches. In some instances the freight operation includes “wide load” cars. Sharing the same track with wide freight cars can impede construction of high platforms at commuter rail stations. This problem was encountered with construction of the Worcester Line. In that instance, state legislation was passed to supersede the MAAB regulations. The new stations on the Worcester Line (Ashland, Southborough, Westborough, Grafton) were built with mini-high platforms in accordance with state legislature Chapter 303 of the Acts of 1998 that states: SECTION 1. Notwithstanding the provisions of any general or special law, rule, regulation or agreement to the contrary, a platform constructed by the Massachusetts Bay Transportation Authority at commuter rail stations in the towns of Ashland, Southborough, Westborough and Grafton may consist of low platforms and mini high platforms. The FTA has made regular visits to the MBTA to conduct assessments of key stations to determine compliance with the ADAAG. Sixty-three of the 80 key stations have been assessed during these reviews with follow up assessments of 12 stations. Findings identifying non-compliance of specific station elements were identified during these reviews. From these reviews there appeared to be a pattern related to the following design elements:
The MBTA Commuter Rail Design Standards Manual for Stations and Parking appears to address most USDOT ADAAG and MAAAB design requirements. In general, the standards appear to effectively incorporate ADAAG and MAAB requirements. In one instance, the MBTA standards are more rigorous than the regulatory requirements with the MBTA standard for a ramp an 8% maximum slope, which is more gradual than the regulatory requirement of 8.3%. To address the excessive curb ramp slopes during FTA reviews, the MBTA should consider even more conservative standards. Such an approach would make even greater allowance for construction variances. Some designers specify running slopes of 1:13.3 (7.5%) rather than the required 1:12, and cross slopes of 1:67 (1.5%) rather than the required 1:50 (2%). A few areas of the design standards requiring updating were identified. The provision in current standards for curb cuts does not appear to include the recent USDOT requirement that a tactile warning be provided within the area of the curb ramp. Additionally, the Design Standards don’t address station name signs at depot buildings or station entrances and the associated need for raised letter and Braille signs at such locations. The design standards should be updated periodically to reflect current regulatory requirements, such as tactile warnings at curb ramps, and developments in design and construction techniques and materials. It also was noted that the MBTA has not developed formal design standards related to bus stops. A limitation to use of urban transit systems throughout the country is access to the system via local sidewalks and bus stops. Local sidewalks and bus stops are for the most part under the jurisdiction of local governments, limiting the MBTA’s ability to affect improved accessibility. The MBTA could, however, actively work with local communities and developers to promote better bus stop and streetscape accessibility. Several other cities and transit systems have developed bus stop design standards. The St. Louis Metro System has developed design guidelines for accessible bus stops to promote improved accessibility in conjunction with local roadway and development projects. The guidelines include requirements for clear curb space and platforms for deployment of lifts and ramps. Some transit properties have developed unique specifications for bus stop sign posts to make them more easily identifiable by people with visual disabilities. In Eugene, OR, the posts are a distinctive shape. In Broward County, FL, bright yellow posts are used in conjunction with a passenger activated light to signal a waiting passenger. The MBTA should develop standards for bus stops and shelters for use with local communities. These standards could identify ADAAG requirements as well as other desirable practices on bus stop and streetscape access and could be shared with developers and local communities. Adoption of bus stop design standards and encouragement of their use by local communities and developers in conjunction with roadway/sidewalk projects should help to promote increased bus use through improved access. To address accessible design of its facilities the MBTA has selected a firm to update its 1990 “Guide to Access.” The work scope includes addressing current state and federal requirements for accessible design as well as bus stops. The contract is scheduled to commence in the Spring of 2007. Elevators The MBTA operates a total of 113 elevators at all rapid rail (including all elevators at Back Bay Station), light rail, and Silver Line stations. An inventory of the elevators is provided in Attachment A. In addition to the 113 elevators in rapid rail, light rail and Silver Line Stations, the MBTA maintains commuter rail station elevators at Lynn and Framingham Stations. Elevators at Anderson, Lowell, Providence, Route 128 and Worcester Commuter Rail Stations are maintained by other agencies. Both maintenance and design problems, such as emergency communications, elevator controls, and signals, were identified with elevators during the FTA reviews of 63 key stations. In mid-2005 the MBTA was advancing a funded program of System Elevator Upgrades. The upgrades included intercom and emergency rescue features as well as other elements of the elevators. It appears that the MBTA’s program was addressing problems raised during the FTA reviews. MBTA managers of elevator maintenance indicated that the industry standard for the useful life of an elevator is typically 15 to 20 years. The life can be affected by exposure to weather, amount and type of use. Elevators in public transit systems will typically have a shorter useful life than elevators in office buildings. Of the 113 MBTA station elevators, 47 (42%) are 15 years old or older. Of this group, 19 elevators are 20 years old or older and seven are 25 years or older. The oldest elevators are on the Red line northwest extension that opened in 1984. The MBTA should establish an elevator replacement program designed to avoid operation of elevators beyond their effective life. On August 1, 2006 the MBTA awarded a contract for the design of four new or redundant elevators and five replacement elevators. In addition, the MBTA has recently hired an engineering firm to, among other things, review the status of the MBTA’s elevators and develop a program for elevator overhaul and replacement. On April 6, 2006 the MBTA Board of Directors approved a 2007 to 2011 Capital Improvement Program, containing a budget of $122 million for replacement or upgrade of station elevators and escalators. To address the harsh operating environment of transit elevators, the American Public Transportation Association (APTA) has developed “Heavy Duty Transportation Elevator Design Guidelines,” dated July 26, 2004. The objective of these guidelines is provision for the design and construction of elevators which can provide safe, reliable service in the harsh, heavy usage, high abuse environment of transportation systems. The MBTA should consider the APTA “Heavy Duty Transportation System Elevator Design Guidelines” in development of specifications for future elevator procurements. Also, there are at least 15 different elevator suppliers throughout the system. The greater the number of elevator types inevitably makes elevator maintenance a greater challenge. Multiple elevator types require service personnel to be familiar with many types of equipment and storing a wide variety of parts needed for maintenance. In conjunction with efforts to develop a capital program for elevator replacement, it is suggested that the MBTA consider ways of reducing the number of elevator types it operates and maintains. This might be done by purchasing new and replacement elevators as a system procurement rather than as individual elevators for each station improvement project. Central system purchase might be done through a competitively bid contract to supply elevators as needed for a period of years (5 years) with a specified initial purchase amount. For example purchase 10 elevators with an option to purchase a number of additional elevators in the future within the period of the contract. The MBTA should consider consolidated elevator procurement for all elevators needed within a specific time frame (3-5 years) as a means of reducing the number of elevator types and suppliers. Public Address- Variable Message Signs (PAVMS) With respect to ADA requirements, PA and VMS can be very helpful in assuring that requirements for route announcements at stations serving more than one route are met. Specifically, systems that provide automatic audible announcements of train arrivals can effectively address this requirement. Although signs on trains identify the routes for people who have hearing impairments, variable message signs provide another method of doing so. PAVMS systems can also be an effective way of communicating equivalent service information to people who have hearing or sight impairments as well as the general public. During FTA’s reviews of 63 MBTA key stations, a consistent observation was that the variable message signs do not provide equivalent visual text message to the audible message announced on PA systems. Continued advancement of the PAVMS system installation at passenger platforms and lobbies should improve communications to all of these transit customers. Variable message signs should be placed above and perpendicular to the passenger platform in order to maximize their visibility to waiting passengers. VMS equipment can also be helpful in informing the public of elevator outages. To minimize disruption to the customer’s trip, VMS equipment listing out of service elevators should be located on the accessible path of travel before the customer passes through the station’s fare gate and at or before the customer encounters an elevator. To get assistance in identifying an alternative travel route the VMS could be coupled with direct access, or intercom access, to a customer service agent. A system of this type is used by the Bay Area Rapid Transit District (BART) in San Francisco. The MBTA provides audio announcements at stations at approximately 175 rapid rail, light rail and bus way locations with more than 300 audio amplifiers, and 2,000 loud speakers. Announcements can be either pre-recorded or made live. Pre-recorded announcements can be made automatically at scheduled times. Announcements can also be made at individual locations, at groups of locations or system-wide. Announcements can be made from a central paging console, three remote consoles and 20 remote paging telephones. In mid-2005, the system had a working variable message sign at one station. The sign was programmed to provide simultaneous visual and audio messages. A second sign was to be converted to do the same. These two stations were Davis and North Quincy, both on the Red Line. The messages were controlled from a Local Control Unit at the MBTA’s Operations Control Center at 45 High Street. The system was designed with capacity to store 100 pre-programmed messages. Messages can be sent to a maximum of 15 zones. Stations are grouped into zones, including one zone for all stations, to conform to the 15-zone limit. A new message to a single station zone can be displayed in about 3 minutes. VMS at 24 remaining stations are inoperable. The signs are manufactured by two companies:
Accordingly, the MBTA had two stations with simultaneous audio and video messages. The MBTA should aggressively pursue its program to install a coordinated PAVMS system in its stations. In 2005, the MBTA planned to install a new system of simultaneous visual and audio messages. This effort included replacement of the Control Unit at the MBTA Operations Control Center and development of six communications centers with VMS signs on platforms and in lobbies at Airport, Aquarium, Back Bay, Downtown Crossing, North and Porter Stations. Future adaptation of stations to simultaneous messaging and installation of Ethernet was planned for stations as they are modernized or newly constructed. To address audibility of messages with trains entering stations the MBTA is considering programming an automated delay in making audio announcements when noise levels are high. The new system may use some components of an existing system that is largely inoperable. On August 25, 2006 the MBTA modified its contract for installation of PA systems at nine stations such that the PA system volume would adjust to ambient noise levels and would have the capability of providing the same message both audibly and through visual display. As of March 2007 speakers and microphones had been installed at Airport and North Stations and work was ongoing at Aquarium, Back Bay, downtown Crossing and Porter Square Stations. The MBTA is advancing coordinated PAVMS capabilities for 21 additional stations in phase III of its system-wide acoustical design program. All elevators have an intercom that either connects to the stations collector’s booth, the Message Center (located in the OCC) or the Hub Stations. Intercoms for public use are also provided in the stations. These intercoms are currently directed to the MBTA Police Department. As stations are rewired for Automated Fare Collection collector’s booths will be closed and the intercoms will be redirected to the MBTA Police Department for emergencies or Customer Service Agents at hub stations for service information. The MBTA has 175 PA systems serving the 66 stations 26, variable message signs that serve 39% of the stations, and 2 coordinated PAVMS systems that serve 3 % of the stations. In addition to the rapid rail and light rail subway system, the MBTA’s commuter rail system is equipped with LED station signs. Almost all commuter rail stations have LED signage. The exceptions are the following lightly used stations: Foxboro, Plymptonville, Hastings, Silver Hill and Mishawum. Passenger Vehicles Vehicle information is presented with a general discussion followed by a discussion of each of the fixed route travel modes, bus, commuter rail, light rail and rapid rail. The general discussion addresses the requirements for vehicle accessibility and the MBTA approach to equipping vehicles with coordinated audio and visual messages. The sections by travel mode address vehicle accessibility and communication systems. General The MBTA operates five modes of fixed route passenger service: bus and trackless trolley (Silver Line and fixed route buses and trolleys), commuter rail (Purple Line), rapid rail (Blue, Orange and Red Lines), light rail (Green Line, Mattapan Trolley), and boat. Commuter rail, boat service, and some bus service are operated through contracts with private operators. The MBTA owns the vehicles for the service it operates directly as well as the contracted commuter rail service. The contract bus and boat operators own the vehicles for those services. Since the USDOT ADA regulations are not in effect for boat service, it is not further addressed in this memorandum. This section addresses accessibility requirements and MBTA’s overall program with respect to the requirements. USDOT ADA Regulatory Requirements The regulations require that operators of fixed route systems acquiring new passenger vehicles after August 25, 1990 ensure that the vehicle be readily accessible and usable by individuals with disabilities, including individuals who use wheelchairs (49 CFR Section 37.71). This requirement also applies to private entities primarily engaged in the business of transporting people, such as MBTA contracted service providers. The requirement does not apply to ferries and other passenger vessels. The regulations (49 CFR Section 37.93) also require that, as of July 26, 1995, at least one car per train be accessible. Current MBTA Program All vehicles purchased since August 25, 1990 appear to meet the general requirement that the vehicle be readily accessible and usable by individuals with disabilities A review of access-related fixed route complaints filed by customers during the first calendar quarter of 2005 revealed that none of the 88 complaints appeared to relate directly to vehicle design. Eighteen complaints related to vehicles and 33 to public information. In the 18 vehicle-related complaints, 22 issues were cited. Ten (10) related to vehicle operation and 12 to access equipment: 6 for vehicle lifts, 3 for ramps, and 3 for kneelers. These equipment related complaints could be the result of operations, maintenance, equipment design, or all three. Of the public information complaints, there were 23 regarding stop and route announcements. Although these are likely related to operator performance, faulty public address equipment could be a contributing cause. Nine of the announcement complaints were for rapid rail service, 8 for commuter rail, 4 for bus, and 2 for light rail service. With new vehicle purchases and overhauls, the MBTA is installing PAVMS equipment on its passenger equipment. These systems should be superior to the use of PA by itself in that they are designed to provide clear and consistent messages on stop announcements, route identification, and stop request confirmations to customers. Additionally, the MBTA in some instances is installing PA systems which vary volume based upon ambient noise levels to provide an audible message during noisy train operations. MBTA staff is also considering technology that will automatically delay announcements during periods of high ambient noise levels (when trains are entering or leaving stations) so as to avoid excessive and competing noise. The MBTA should continue its program to install Public Announcement Voice Messaging Systems (PAVMS), with simultaneous automated audio and vidual internal stop announcement, and stop confirmation capability and external audio route announcements on its passenger fleet. The MBTA should continue to explore means of automatically adjusting volumes and/or delaying messages to provide audible messages when ambient noise levels are high. |