Project Summary
Project Identification Number
EEA #12902B
Project Proponent
Massachusetts Highway Department
Introduction
The Massachusetts Highway Department (MassHighway) is proposing the construction of a new interchange on Route 24 between Interchanges 8 and 9 in the City of Fall River and the Town of Freetown (seeFigure 1-1). The Route 24 Access Improvements Project is one component of a larger undertaking involving several related elements, including the conveyance of 300 acres of land, owned by the Department of Conservation and Recreation (DCR) and currently part of the Freetown-Fall River State Forest, to the City of FallRiver for the development of up to 3.0 million square feet of office/industrial space to be known as the Fall River Executive Park (FREP).
The 300 acres of state forest land to be conveyed to the FallRiver Redevelopment Authority will serve as consideration for the City of Fall River’s conveyance of conservation restriction on (CR) approximately 4,300 acres of Cityowned water supply lands to DCR and the Division of Fisheries and Wildlife (DFW). The CR will provide permanent protection to a large parcel, which when taken together with already protected adjacent parcels, will create a contiguous 13,600-acre area of protected openspace known as the Southeastern Massachusetts Bioreserve (seeFigure 1-2).
These two related projects, the development of the FREP and the Route 24 Transporation Improvements Project, arose through the desire to address chronic high unemployment levels in the greater Fall River area. The City of FallRiver, which has a substantial population of low income/minority residents, had an unemployment rate in April 2008 of 7.8 percent, double the the 3.9 percent unemployment rate in Massachusetts.[1] Overall development of the FREP will result in significant economic benefits for the greater Fall River region and the state, including the creation of 8,000new jobs with $350 million in annual payroll, $275 million in private investment, and $14 million in annual state income tax revenue.
In order for the City of Fall River to attract development and create needed jobs for the region, the City, acting through the Fall River Redevelopment Authority (FRRA), developed a Master Plan for the FREP, a three-million square-foot office park development (see Figure 1-3).
As a result, in June 2000, the Massachusetts Department of Environmental Management (nowDCR); the Massachusetts Department of Fisheries, Wildlife and Environmental Law Enforcement and the Division of Fisheries and Wildlife (DFW) (nowMassachusettsDepartment of Fish and Game (DFG)); the MassachusettsExecutive Office of Environmental Affairs (now MassachusettsExecutive Office of Energy and Environmental Affairs (EEA)); the Trustees of Reservations (TTOR); and the FallRiver Redevelopment Authority (FRRA) signed a Memorandum of Understanding To Create The SoutheasternMassachusetts Bioreserve (MOU) (Appendix A). This agreement established the state’s first bioreserve.
A newinterchange on Route24 between Interchanges 8 and 9 is proposed to support development of the FREP by providing highway access to the site. The proposedinterchange would also improve access to the Stop & Shop Distribution Center, Riverfront Business Park, and other development in the area, as well as divert traffic from South Main Street and Interchanges 8 and 9 on Route 24.
The Alternatives section below summarizes the alternatives analysis conducted to support this determination.
Purpose and Need
The purpose of the Route 24 Access Improvements Project is to provide safe and efficient transportation access to the proposed FREP, which currently has no access to the regionalhighway network, and improve transportation access for existing commercial and industrial developments in this region. Providing transportation access to the FREP will allow a priority economic development opportunity to advance in the greater Fall River area, a region of Massachusetts that has a high unemployment rate and a scarcity of developable land.
Permits and Approvals
The following table includes the permits required for the Route 24 Access Improvements Project.
Table S-1
Required Permits and Approvals
PERMIT OR APPROVAL / AGENCYFederal
Environmental Assessment / Federal Highway Administration
Section 4(f) Evaluation / Federal Highway Administration
NPDES General Permit for Stormwater Discharges from Construction Sites / U.S. Environmental Protection Agency (US EPA)
Clean Water Act Section 404 Permit / U.S. Army Corps of Engineers
(Programmatic General Permit (Category 1))
State
Section 401 Water Quality Certification / Massachusetts DEP
Massachusetts Historical Commission Review / Massachusetts Historical Commission
Functional Design Report / Massachusetts Highway Department
Town of Freetown
Order of Conditions / Freetown Conservation Commission
Alternatives
The catalyst for the proposed Route 24 Access Improvements Project is the proposed FREP site, which is adjacent to and east of Route24, just north of the FallRiverCommerce Park and approximately 1.6 miles south of the Route24/SouthMain Street Interchange (Interchange 9) in Freetown. The property currently has no highway access. A review of access alternatives concluded that providing a new interchange at Route 24 was the only feasible and prudent alternative that exists to accommodate the level of development and traffic expected from the FREP and other regional developments.
The development of the FREP using the existing interchanges on Route 24 was found not to be prudent during the alternatives analysis process. The following describes the constraints to improving the interchanges north or south of the FREP property (Interchange 8 or 9).
Interchange 8 Improvements
Providing access from the south via Interchange 8 is not prudent. The only access from the south to the proposed FREP site using the existing roadway network is via Riggenbach Road, a narrow, two-lane road south of the site that provides a connection to the Route24/Airport Road Interchange (Interchange 8) in Fall River. Interchange 8 does not have the capacity to handle the anticipated volume of traffic that would be generated from the FREP. Even including recent and planned capacity improvements at Interchange 8 (specifically, the intersection of the Route 24 northbound ramps and AirportRoad), the interchange could only support 400,000square feet of development in the FREP, rather than the 3.0 million square feet required to meet the project purpose.
Full development of the FREP is a critical component of the land transfer that allows the creation of the Southeastern Massachusetts Bioreserve. To accommodate fulldevelopment of the FREP (3.0 million square feet) and the approximately 3,400 to 3,500vehicles that would be generated by the FREP during the morning and evening peak hours, Interchange 8 would require substantial upgrading, including reconstructing the NorthMainStreet Rotary. In addition, loading all FREP traffic from the south through Interchange8 would require construction of frontage roads to improve the weave condition on Route24between the ramps at Interchange 7 and ramps at Interchange8. Reconstructing Interchange 8 would, therefore, be very costly and would result in major land use impacts that could potentially affect the BethelCemetery, the Calvary Temple, the Fall River Elks Club, JMS Manufacturing, Viveiros Insurance, and severalprivate residences (see Figure2-1). Because of these constraints, the costs associated with upgrading the interchange, the breadth of other traffic improvements, and landuse impacts, access from the south via Interchange 8 is not considered a feasible and prudent alternative and has been dismissed from further consideration.
Interchange 9 Improvements
To access the FREP from the north via the Route24/SouthMain Street Interchange (Interchange 9), a major reconstruction of the Interchange 9 would be needed to increase its capacity. Additionally, a new four-lane roadway, approximately 1.6 miles long, would need to be constructed between the northernboundary of the executive park and either the east or west side of the interchange (see Figure 2-2). The new access roadway would require the use of 17.8 to 23.5 acres of property protected under Section 4(f) (the FreetownFallRiver State Forest), and would cross RattlesnakeBrook, and the railroad tracks. If the new roadway connected to Interchange 9 on the east, it would also need to cross through the CampanelliIndustrial Park. If it connected to Interchange 9 on the west, it would need to cross over Route 24 and require widening a portion of South Main Street totwo lanes in each direction, necessitating the acquisition of approximately 15residential properties. Because of the impacts to the State Forest (land protected under Section 4(f) of the DOT Act) and residential/commercial property and the costs associated with the interchangeimprovements, new roadway, and land acquisition, access to the north via Interchange 9 is not considered a feasible and prudent alternative and has been dismissed from further consideration.
New Interchange Between Interchanges 8 and 9
A review of access alternatives thus concludes that providing a new interchange on Route 24 between Interchange 8 and 9 is the only feasible and prudent alternative that exists to accommodate the level of development and traffic expected from the FREP and other background development in the area and to limit impact to social and natural environmental resources.
According to MassHighway and AASHTO standards, there should be at least onemile between interchanges in urban areas, such as along Route 24 in Fall River/Freetown. The distance between Interchanges 8 and 9 is almost three miles. As a result, a new interchange could be located in the vicinity of the FREP.
Seven interchange alternatives were initially evaluated in the DEIR based on their traffic operational benefits; total land area taken by the interchange; area of stateforest property affected; acreage of wetlands impacts; area in floodplains; and impacts on historic and cultural resources. Based on the analysis, four alternatives were carried forward and included a full diamond interchange and single point urban interchange (SPUI). Each of the concepts had a variation of crossing over or under Route 24. Interchange concepts that were eliminated included a cloverleaf, halfdiamond, and a combination diamond cloverleaf hybrid.
From the four initial interchange concepts, seven specific interchange alternatives evolved. The seven alternatives were subjected to a screening analysis to refine the alternatives and reduce the number for additional analysis. Four of the seven alternatives were carried forward to the second screening process for further engineering and evaluation. At the request of MassHighway, two more alternatives were created at this stage. The six alternatives carried forward were analyzed using updated wetlands data, new aerial photography and a Phase 1 archaeological study.
The second screening analysis of the interchange alternatives was based on a reassessment of the factors analyzed previously and on cost. None of the sixalternatives has an impact on floodplains and, because the interchange location has been shifted 700 feet south, all have minimal impact on wetlands and substantially reduced impacts on state forest land.
The completion of the secondary screening evaluation resulted in the identification of the Single Point Urban Interchange Alternative as the preferred alternative (at that time).
During the period of refining the preferred alternative and subsequent to the filing of the SDEIR, coordination was initiated with Tribal Historic Preservation Officers of the MashpeeWampanoag Tribe and the Wampanoag Tribe of Gay Head (Aquinnah), in accordance with Section 106 of the National Historic Preservation Act. As a result of this coordination, Sensitive Resources in the vicinity of the project were identified prompting the development of two additional alternatives (Alternative8 and Alternative10) to avoid or minimize affecting these Sensitive Resources. At this time, Alternative 10 was identified as the preferred alternative.
Subsequent to this analysis, an additional alternative (Alternative 10 Modified) was indentified based on the results of a ValueEngineering Study Report undertaken by MassHighway. Alternative 10 Modified differs from Alternative 10 only in that the new roadway over Route 24 (Executive Park Drive) intersects with South Main Street 550 feet further south than Alternative 10. This substantially reduces wetland impact and project cost by allowing the existing South Main Street Bridge over the CSX Railroad line to be retained. These three alternatives underwent the samelevel of second level screening analysis as the other six alternatives discussed above.
Alternative 10 Modified (the Partial Cloverleaf with Relocated Main Street) has become the new Preferred Alternative for the Route 24 Access Improvements Project. Alternative10 Modified minimizes impacts on wetlands and avoids the SensitiveResources. As the PreferredAlternative, Alternative10 Modified represents the most cost-effective and practicable configuration for the new interchange as well as the only feasible and prudent alternative.
Traffic
A traffic assessment was conducted in three stages. The first stage examined existingtraffic conditions in the study area and included an inventory of roadwaygeometrics, observation of traffic flow, and collection of daily and peakperiod traffic volumes. In the second stage, the transportation assessment included future traffic demands on the study area roadways caused by normaltrafficgrowth, other proposed area developments, and specific travel demand forecasts developed for the Fall River Executive Park. The design year for this assessment is 2030. The study concludes that a new interchange is necessary to support the development.
Development of the new interchange and access roadways will primarily occur on 35acres of land in private ownership and approximately 16.6 acres of state forest land. Under full build out of the Fall River Executive Park, the interchange is expected to improve traffic operations along North Main Street and Airport Road and at Interchange 8 on Route24.
Wetlands
A total of twelvefederally- or state-regulated wetlands were identified within or adjacentto the project area, including Bank, Bordering Vegetated Wetlands (BVW), Land Under Water Bodies and Waterways (LUWW), Riverfront Area, Vernal Pools, and Isolated Wetlands. Mother’s Brook, a perennial stream south of the proposed new interchange, flows northwest under Route 24 to its confluence with the TauntonRiver. RattlesnakeBrook is north of the proposed project within the Freetown-Fall River State Forest. The Rattlesnake Brook drainage area supports cold water fisheries.
The Preferred Alternative would result in the permanent loss of approximately 10square feet of Bordering Vegetated Wetlands. An additional725squarefeet of Bordering Vegetated Wetland areas and 9linear feet of Bank will be temporarily affected during construction of interchange ramps. Because impacts to federallyregulated wetlands are less than 5,000 square feet, the project qualifies for an Army Corps of Engineers (USACE) Category 1 Programmatic General Permit. In addition, the project requires an Order of Conditions from the Freetown Conservation Commission. The FinalOrderof Conditions will serve as the Section401 Water Quality Certification.
The areas of BVW temporarily disturbed will be restored. An 850square foot wetland replacement area is proposed. This represents an 85:1 replacement ratio.
Stormwater Management / Water Quality
The entire project is within the 562 square-mile Taunton River watershed which eventually discharges into Narraganset Bay. No surface waters are used as drinking water supplies within the project area.
Two perennial streams exist within the project area, Mother’s Brook and Rattlesnake Brook. Mother’s Brook, a Class B waterway west of the proposed interchange, flows northwest under the western limit of the project area to its confluence with the Taunton River. Rattlesnake Brook is north and east of the proposed project site within the Freetown-Fall River State Forest. It flows northward, passing under Route 24 and SouthMain Street before entering Bleachery Pond and an estuarine backwater of the Assonet River.
Rattlesnake Brook is listed in the “Massachusetts Year 2006 Integrated List of Waters” document as a Category 2 water. The uses listed for Rattlesnake Brook are aquatic life and aesthetics. An anadromous fish run of spawning herring occurs in the lower tidally influenced portion of Rattlesnake Brook below Bleachery Pond. Rattlesnake Brook also supports a coldwater fishery and is listed as a trout stocked water.
The stormwater runoff analysis involved the assessment of the existing site hydrology and the proposed development hydrology. The analysis evaluates the hydrology for storm events with recurrence intervals of 2-, 10-, 25-, and 100-years.
The stormwater management system for the project (including the new interchange, relocated South Main Street, and Executive Park Drive) will employ an innovative stormwater management system that will meet the quality and quantity requirements contained in the Massachusetts Stormwater Management Policy (asrevised in February 2008). Infiltration will be maximized, particularly in the Rattlesnake Brook Watershed where soils suitable for infiltration exist. Infiltration is significant to maintaining groundwater levels and base stream flow and therefore opportunities for infiltration will be incorporated in the final design.
Runoff generated from impervious surfaces will predominately be routed through a series of structural stormwater management measures including catch basins and extended detention/infiltration basins with sediment forebays.
The objective of the overall stormwater management system on the site is to maintain water quality and to attenuate peak flow rates for the 2-, 10-, 25-, and 100-year storms, in accordance with DEP standards and regulations. Under postdevelopment conditions, most, if not all, flows will flow into surface detention basins prior to discharge.
As soil conditions allow, vegetated detention/infiltration basins will be incorporated in the stormwater design to mitigate increases in peak flows resulting from the proposed development. The detention/infiltration basins are designed to hold the Water Quality Volume (WQV) below the lowest invert. This will facilitate the settling of total suspended solids as well as provide infiltration into the water table. These basins will be equipped with sediment forebays to allow for pre-treatment of the runoff. Overflow spillways and the pipe discharge locations will be stabilized with riprap to prevent erosion.
Rare Species
The Natural Heritage & Endangered Species Program (NHESP) was contacted during the preparation of the DEIR for information regarding stateprotected rare species in the vicinity of the project site. In the response letter, dated February17,2004 (Appendix D), NHESP indicated that tworare species, the spotted turtle and the climbing fern, occurred in the vicinity of the site and recommended that a rare wildlife and plant survey be conducted. As described in Chapter 6, RareSpecies, a rare wildlife and plant survey was completed in February 2004. Neither spotted turtle nor climbingfern were observed during three site visits. The study concluded that “Based on the literature review and field investigations, it is possible that the southeastern portion of the site provides marginal spotted turtle habitat, and [it is] unlikely that climbing fern occurs on site.” The spottedturtle has since been delisted as a species of special concern. The rare wildlife and plant survey can be found in Appendix E.