Salem Shuttle Studies - Implementation Analysis - Technical Memorandum 2 - Alternative Route and Analysis Recommendations - May 6, 2019T E C H N I C A L M E M O R A N D U M 2
Date: May 6, 2019
Subject: ALTERNATIVE ROUTE ANALYSIS AND
RECOMMENDATIONS
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
Nelson\Nygaard Consulting Associates, Inc. | 2
Table of Contents
Introduction............................................................................................ 3
Major Trip Generators ....................................................................... 4
Seasonal and Special Events ............................................................. 5
Propensity and Equitable Access ...................................................... 6
Transit Demand .................................................................................... 7
Parking and Bikeshare........................................................................ 8
Existing Public Transit Service............................................................ 9
Proposed Route Efficiency and Optimization Assessment .........10
Alternative Service Recommendations ...........................................14
Figure 1 | Major Trip Generators ................................................... 4
Figure 2 | Seasonal & Special Events............................................. 5
Figure 3 | Transit Propensity Factor................................................ 6
Figure 4 | Composite Transit Demand ............................................ 7
Figure 5 | Parking and Bikeshare.................................................... 8
Figure 6 | Salem MBTA Service ....................................................... 9
Figure 7 | Proposed Routes ............................................................10
Figure 8 | Node Based Alternative...............................................14
Figure 9 | Ridership Based Alternative ........................................14
Figure 10 | Coverage Based Alternative ....................................14
Table 1 | Transit Propensity Factors ............................................... 6
Table 2 | Salem MBTA Service Spans ............................................ 9
Table 3 | Proposed Service Statistics ...........................................11
Table 4 | Service Types ..................................................................13
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
Nelson\Nygaard Consulting Associates, Inc. | 3
INTRODUCTION
To ensure the implementation of the most efficient and optimal
transit service possible, Salem must match its service to the
community needs and the local transit market. This includes
matching the level and type of service with the transit demand. It
also includes providing convenient, direct, and easy to understand
services.
This technical memorandum evaluates key market elements that
specifically address the important question of what type of transit
service is needed in Salem a nd how can that service be provided.
This document provides a data point for these questions by
examining:
Major public transit trip generators
Se asonal and special events
Transit propensity and need for equitable distribution of
transit
Transit Demand
Parking and bikeshare services
Existing public transit services
Additionally, this document looks at how well past transit plans
have addressed these key market elements and identifies the
challenges that should be considered prior to service
implementation. This document concludes with a list of alternative
service options that can address the identified challenges and
ensure the implementation of efficient and effective transit service
in Salem.
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
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MAJOR TRIP GENERATORS
Major employers, government fa cilities, schools, medical centers,
shopping centers, and tourist destinations attract large numbers of
people and can generate a significant number of transit trips.
In the City of Salem (Figure 1 ), there are several l arge employers.
These include Salem State University, the North Shore Medical
Center, Salem Five Bank, and the business and industry center at
Shetland Park.
Important civic buildings include the Salem Public Library, newly
opened Community Life Center, and the courthouses, including the
Salem District Court, Essex County Superior Court, and Essex
Family and Probate Courts.
Salem University and Salem High School both represent potential
transit trip generators.
The southern part of the city includes major shopping destinations
such as the Hawthorne Square area with Market Basket, Home
Depot, and Target. Further down Route 107, there is a Walmart.
Additionally, Vinnin Square is another popular shopping center,
located to the southeast.
Tourist Attractions abound in Salem. Downtown locations such as
the Essex Street pedestrian mall, Derby Street, and the waterfront
are all important trip generators. In addition, the Peabody Essex
Museum and Pickering Wharf are popular areas for visitors and
locals, alike.
Most of the major trip generators are found in the northern part of
the city, with Route 107 and Lafayette St reet/Loring Ave nue acting
as important connections to destinations in the southern part of
Salem.
Also of interest are two transportation hubs: t he MBTA Commuter
Rail Station on Bridge Street and the Salem Ferry Terminal located
on Blaney Street.
Figure 1 | Major Trip Generators
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
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SEASONAL AND SPECIAL EVENTS
Because of its unique history and coastal charm, Salem is a
community with many seasonal activities and events.
The entire month of October is dedicated to Haunted Happenings,
with Halloween -themed activities and events taking place every
day. The Biz Baz Street Fair is held October 6 -7 along the Essex
Street pedestrian mall. A n annual carnival has also been held in
past years. In 2018, the corner of Federal and Washington Streets
was the site for the month-long carnival.
Salem Willows is a popular attraction during warmer months, with
an arcade and amusement park open from April to September. An
annual jazz festival is also held in August, attracting 6000 in recent
years.
Many of these events include a transportation component to help
transport tourist s and locals to the activity centers and throughout
Salem.
The Haunted Happenings Shuttle operates from October
20-28 and provides a loop s ervice from parking lots at
Northshore Medical Center, Salem High School, and Salem
State University to downtown.
Salem Harbor Shuttle – the Boston Harbor Cruises-run
shuttle loops between four stops, with an additional round-
trip voyage to Marblehead once per day. Service operates
from June to Labor Day.
The Salem Trolley, which operates April 1 -November 1 ,
provides a tour with many stops in downtown and along
Derby Street. Winter Island and Salem Willows are
available as flag stops.
Figure 2 shows seasonal events and transportation in the city.
Figure 2 | Seasonal & Special Events
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
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Note: This analysis uses census data. It does not include new development.
Source: Calculations developed using 2012-2016
American Community Survey 5-Year Estimates
PROPENSITY AND EQUITABLE ACCESS
Public transit is designed to serve everyone and as such, it is important to
consider the demographic characteristics of the population in a service
area. Title VI of the civil rights act of 196 4 requires public transit to
ensure service s are offered in an equitable manner.
In addition, data shows that e conomically disadvantaged residents,
minority residents, and foreign-born residents are all more likely
to use transit. Further, h ouseholds that do not have access to a
private vehicle are the most likely to use transit. This likelihood to
use transit is referred to as transit propensity and is an indicator of
where transit services will be the most successful. By design, it also
provides a means of identifying populations who benefit the most
from transit. Figure 3 shows this information for Salem.
In Salem, residents of the Point and Broad Street neighborhoods
are the most likely to use transit. North River, McIntire District,
Castle Hill, and Derby Street residents also have a high propensity.
Additionally, t here are 250 affordable housing units at Loring
Towers in Vinnin Sq uare.
Table 1 | Transit Propensity Factors
1 While persons with disabilities, young adults,
and older adults are also documented to use transit at higher rates, propensity for these
demographics is not well captured by journey-to -work data, as these groups are employed at
lower rates than the total population.
2 These figures indicate the relative propensity of different groups to use transit. For example,
a transit propensity factor of 1.50 means that the group is one and a half times more likely to
use transit than the general population. Based on transit mode share of 21.5% for the Census
Designated Places that comprise MBTA service area, and available demographic split on
journey-to -work data.
Demographic Group1 Transit
Propensity2
Race and Ethnicity
White Alone (Not Hispanic or Latino) 0.69
Black or African-American 2.67
Asian (Not Hispanic or Latino) 1.10
Other Race (Not Hispanic or Latino) 1.42
Hispanic or Latino 1.19
Vehicle Ownership
No Car 6.87
One or More Cars 0.39
Country of Origin
Native 0.91
Foreign 1.24
Poverty Level
Under the Poverty Line 1.55
At 100%-149% of the Poverty Line 1.42
At 150% of the Poverty Line or Above 0.96
Figure 3 | Transit Propensity Factor
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
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TRANSIT DEMAND
Population de nsity and employment density are both indicators of
potential demand for transit. When population and employment-
based demand are considered together, it is possible to identify
areas that can support higher levels or more frequent transit
service.
I n Sal e m, the highest levels of demand are in the most densely
developed areas near Downtown. As you move further away from
the city center, demand for transit decreases. The areas in Salem
with the highest transit demand include:
The Point
Downtown
South Salem
McIntire District
Derby Street
North River
Bridge St reet Neck
Salem Common
Castle Hill
Figure 4 shows the composite demand for all neighborhoods.
Figure 4 | Composite Transit Demand
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
Nelson\Nygaard Consulting Associates, Inc. | 8
PARKING AND BIKESHARE
The cost and availability of parking can impact the demand for
public transit. Areas with high parking cost and limited availability
generate more demand for public transit, while the inverse is true
in areas with cheap and abundant parking. Salem has metered
parking on streets and lots throughout downtown. The city parking
guide suggests using on-street meters for 1 -2 hours, parking lots
for 2 -4 hours, and parking garages for 4+ hours. Lots allowing all
day parking are also available.
Three hourly rates are enforced for street and lot parking meters :
$1.50, $1.00, and $0.50. Enforcement is 8 a.m. - 6 p.m. Monday–
Saturday. Parking is free on Sundays.
There are also three parking garages in Salem that allow public
parking. They operate seven days per week.
Museum Place/Downtown Garage- 910 spaces, $1.25 per
hour Located at 1 New Liberty Street. At Museum Place
m onthly passes are available for $80 ($70 for residents).
MBTA Garage – 712 spaces , $5 per day ($2 per day
weekends) Located at 252 Bridge Street.
South Harbor/Waterfront Garage – 287 spaces, $0.75 per
hour on weekdays only ($1.50 per hour weekends).
Located at 10 Congress Street.
In addition to parking, Salem offers a bikeshare program, Zagster,
with 1 6 stations and 80 bicycles. Most of the stations are clustered
in downtown, including two at the MBTA commuter rail station.
Salem State University south campus, Salem Willows, and McGlew
Park also feature stations (Figure 5 ). Bikeshare offers a potential
complement to transit service and increase the “reach” of the
travelers making firs t- and last-mile connections.
Figure 5 | Parking and Bikeshare
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
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EXISTING PUBLIC TRAN SIT S ERVICE
When considering the demand for public transit services, it is
important to complement existing transit services. This ensures
that resources are not duplicated and works to provide a
comp rehensive transit network for customers , which can extend
the reach of transit and capture more of the potential transit
market.
The MBTA currently serves Salem with six bus routes, operating
throughout the day. Service is available in Salem on weekdays and
weekends (see Table 2 ).
Table 2 | Salem MBTA Service Spans
MBTA Route Weekday Span Saturday Span Sunday Spam
450 5:00 am – 1:30 am 6:30 am – 12:00 am 8:15 am – 12:00 am
451 6:00 am – 7:10 pm – –
455 5:00 am – 12:30 am 6:00 am – 12:00 am 6:00 am – 12:00 am
456 5:00 am – 1:30 am 6:30 am – 12:00 am 8:15 am – 12:00 am
459 5:00 am – 12:30 am – –
465 7:00 am – 7:00 pm 9:30 am – 7:00 pm –
An evaluation of the 2018 Shuttle Bus Feasibility Study and a
Qualitative Evaluation of Current Transit Services shows a high
degree of duplication with existing MBTA bus routes (Figure 6 ).
Any new shuttles services in Salem should not compete with MBTA
buses but should instead complement them by connecting to the
existing network while expanding service and offering new
destinations for transit riders.
Figure 6 | Salem MBTA Service
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
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PROPOSED ROUTE EFFICIENCY AND
OPTIMIZATION ASSESSMENT
This technical memorandum outlines the key transit market
elements within Salem, i ncluding major trip generators, se aso nal
and special events, transit propensity, transit demand, parking and
bikeshare, and other public transit services. For new transit service
in Salem to be successful, the proposed service must leverage these
market el ements and develop a service design that efficiently
utilizes resources and optimizes transit for the community.
An evaluation of the proposed shuttle service developed during the
2018 Shuttle Bus Feasibility Study and a Qualitative Evaluation of
Current Transit Services presents several challenges related to key
market elements and efficiency and optimization of transit service
in Salem (Figure 7).
Proposed service challenges:
Service is designed as a one-way loop. This type of service is
designed to provide more geographical coverage at the cost of
customer travel time and service directness. Customers utilizing
loop services are required to go around the entire loop to complete
a round trip. On the proposed southerly loop, this would take 30
minutes to arrive back at your origin.
Out of direction travel. Service alignments that double back
force customers to travel out of direction and extend travel times.
The proposed service has several examples of this, including the
service t o the Highland Avenue Walmart, Paradise Road Whole
Foods, Salem Willows service, and the Salem Council on Aging on
Bridge Street.
Limited connections across Salem. As designed, the service
does not provide connections between north and south Salem.
Cust omers wishing to access shopping area s in south Salem from
areas north of Downtown would be required to transfer.
Service duplicates existing MBTA routes. Over half of the
proposed service is duplicated by an existing MBTA route. Further,
there are no direct transfer opportunities from the southerly loop
to MBTA commuter rail or ferry service.
Service does not match market demand. The proposed
service does not completely match the local transit demand. For
example, demand along Swampscott Road is very low, primarily
saving Salem Woods where no trip generators exist. Alternatively,
areas along Jefferson Avenue and Canal Street have high transit
demand, but little access to the proposed service.
Figure 7 | Proposed Routes
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
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Proposed Service Statistics
The proposed northern lo op is 7.3 miles long, which would take one bus 40 minutes to complete, including layover time. Adding service to
Salem Willows lengthens this route to 8.8 miles, adding 5 minutes (45 minutes ) to complete a full loop. The proposed southern loop is 10.4
mile s long, which would mean one bus, could complete the proposed alignment once per hour (Table 3 ).
The 2018 plan also included an option to double the service frequency of each proposed route by utilizing two vehicles . This would increase the
frequency to around 20 minu tes for the northerly loop (23 minutes with Salem Willows), and around 30 minutes for the southerly loop.
Table 3 | Proposed Service Statistics
Proposed Route Span of Service
Frequency in Minutes
(1 bus)
Total Revenue Miles
(1 bus)
Total Revenue Hours
(1 bus)
Frequency in Minutes
(2 buses)
Total Revenue Miles
(2 buses)
Total Revenue Hours
(2 buses)
North Loop (no Willows) 7 AM-7 PM (10 hours) 40 7.3 10 20 14.6 20
North Loop (with Willows) 7 AM-7 PM (10 hours) 45 8.8 10 23 17.6 20
South Loop 7 AM-7 PM (10 hours) 60 10.4 10 30 20.8 20
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
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Service Design Principals
To address the service challenges identified in the 2018 plan there are several service design principles that must be considered by Salem in
order to best serve residents, workers, and visitors:
Simple Is Better than Complicated: A simple route structure and simple schedules will attract more
riders than a complex system. First and foremost, for people to use transit, they must be able to understand it,
and simpler services are easier for riders to understand. Simpler systems also help ensure that they get where
they want to go when they want to without experiencing frustration and problems.
Routes Should Operate Along a Direct Path: The fewer turns a route makes, the easier it is to
understand. Conversely, circuitous alignments are disorienting and difficult to remember. Routes should not
deviate from the most direct alignment unless there is a compelling reason.
Routes Should Serve Well Defined Markets: The reconfiguration of service around more clearly
defined markets can help to make service easy to understand, provide a basis for developing premium bus
services, and minimize service duplication.
T rans it Service Should be Focused Around Landmarks: Most potential transit users have a basic
knowledge of major landmarks (and are often traveling to them). When transit service is focused around
landmarks, they can also become transit hubs. Travelers traveling in unfamiliar area can more easily find
their way to a landmark to make a transfer than to a lesser known area.
Services Should be Well Coordinated: Where different routes connect or operate along the same
alignment, schedules should be coordinated to the greatest extent possible to provide short connection times.
Service Type
These service designs can be achieved through a range of service types that the City of Salem can choose from when designing new transit
service. Demand-responsive, anchored flex route, microtransit, deviated fixed-route, and fixed-route are all options with their own benefits
and challenges (see Table 4 ). The city must balance coverage, convenience, and cost when selecting a service type. Each service type
represented below was considered when developing alternative recommendations, which are presented in the following section.
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
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Table 4 | Service Types
Demand -Responsive Anchored Flex Route Microtransit Deviated Fixed-Rou te Fixed -Route
Description Customers within a certain
geographic area may call to
schedule a curb-to -curb trip.
Anchored Flex routes have two
fixed time points (usually at major
activity centers or connection
points to other transit services).
Customers who live between the
time points may call to request a
curbside pick -up. The operator
takes the most direct route
between time points to pick up
the passenger.
Personal or shared transit service
with designated pick-up and drop-off
locations that does not run a fixed
schedule. Trips are set up by
customers ahead of time by
contacting the service provider to
arrange travel times and origin-
destination locations. Requests can
be made over the phone, by way of
the internet, or via applications.
Service runs along a published
alignment. Customers within a certain
distance from this route may call to
request a curbside pick-up. Since the
route is specified, the bus must return
to the point where it left the route
after a deviation.
A set route and schedule
that operates along a fixed
path.
Passengers per Revenue Hour 2-3 3-5 4-7 5-8 8-10
Benefits In rural areas with
dispersed destinations,
demand-response service
provides the ability to serve
a large geographic area.
Anchored Flex service combines
the accessibility features of
demand-response with the
scheduled reliability of fixed-route
service.
Flexible service type can be
adapted to community needs. Use
of new technology offers
convenience and can result in
reliable and cost-effective servic e.
In lower-demand areas where
deviations can be accommodated,
the agency effectively provides both
fixed and ADA service with one
vehicle.
This type of service typically
provides the fastest travel
times between points, which
makes service attractive to
c hoice riders.
Challenge Demand-response has high
cost per trip as clients are
typically traveling long
distances. Wait times for
pick-ups can be very long as can time onboard the
vehicle, depending on
additional pickups.
To accommodate flex pick -ups,
the travel time between time
points must be a factor longer
than direct travel.
Has high cost per trip as clients are
typically traveling long distances.
This can also lead to long wait times
for pick-ups.
In areas with sparse road networks,
accommodating out-and-back
deviations may add significant travel
time.
Geographic coverage of the
service is limited to the
route alignments and stop
locations.
Vehicle Type
TECHNICAL MEMORANDUM 2 | SALEM SHUTTLE IMPLEMENTATION ANALYSIS City of Salem, Massachusetts
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ALTERNATIVE SERVICE RECOMMENDATIONS
Many of the identified challenges associated with the 2018 study can be addressed through utilizing alternative service design. To best meet
the needs of Salem and leverage the key transit market elements in the most efficient and optimal way alternative service rec ommendations
should be considered (Figure 8, Figure 9 , Figure 10). It is important to note that MBTA The RIDE provides complementary paratransit to the
entire City of Salem. The Council on Aging vans also cover the transportation needs of seniors in the community.
This mictotransit service operates as a shared shuttle
which serves customers via designated pick-up and drop-off locations that are not served on a fixed schedule. Trips are provided at request, which can be
made over the phone, by way of the internet, or via a smartphone application.
This fixed route alignment largely mirrors that of the
existing MBTA service, serving the areas of highest ridership demand in Salem. Routes provide bidirectional service and add key east and west
connections, not currently served by existing transit options.
This fixed route alignment focuses on providing
neighborhood-based service where there is no or limited existing transit. Routes provide bidirectional service and add key east and west connections, not
currently served by existing transit options.
Figure 8 | Node Based Alternative Figure 9 | Ridership Based Alternative Figure 10 | Coverage Based Alternative
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