Service Plaza/Rest Area P3
Suitability Study
October 10, 2014
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Study of Service Plaza/Potential Rest Area P3s on MassDOT Highways
• Purpose: Evaluate and classify potential P3 concepts for improving service and utilization of
Rest Areas, Service Plazas, Park-and-Ride, and Weigh Station facilities (“MassDOT’s sites”)
• Preliminary Study Goals: Evaluate the suitability of P3 structures for MassDOT’s sites
– Identify conceptual P3 structure options
– Assess the suitability of MassDOT’s sites for inclusion in a P3
– Establish transparent evaluation criteria (qualitative and quantitative)
– Assess both potential commercial and physical characteristics
• This Document: This document describes an initial list of sites for further investigation, which
were identified through a preliminary screening process.
– A number of options and commercial concepts remain open for additional consideration.
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1
Rest Area, Service Plaza, Park-and-Ride, & Weigh Station Background
• A number of different types of facilities that provide motorists services are located within the
rights-of-way of limited access roadways.
– Rest Area: A public facility accessed directly from a limited access roadway that provides
public rest facilities, but no food, fuel, or other commercial services are offered (except
vending machines).
– Service Plaza: A public facility accessed directly from a limited access roadway that
provides restaurant, fuel, and other services along with restrooms.
– Park-and-Ride: Parking facilities with connections to transit or for carpooling.
– Weigh Station: Facilities with direct access to limited access roadways used for
enforcement of weight limits on trucks.
• Specific uses for these facilities are closely restricted by federal law.
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Existing Legislative Policy Framework
• Examined 5 key policy questions, based on preliminary, policy-level research.
What federal restrictions are placed
on the development of service
plazas on Interstates?
• Federal restrictions do not allow development of new commercial establishments
on Interstate right-of-way.
What facilities are exempt from
federal restrictions on service
plazas on Interstates?
• Service plazas in service before 1960 are allowed under the Federal-Aid Highway
Act of 1956.
What federal restrictions are placed
on the development of service
plazas on non-Interstate highways?
• There are some restrictions on the development of service plazas on nonInterstate highways, but precedent examples exist.
What (if any) workarounds exist for
the federal restrictions?
• No clear workarounds currently exist for federal restrictions on Interstate service
plazas.
What Massachusetts restrictions
are placed on the development of
service plazas?
• It appears that few state restrictions exist in Massachusetts that would affect the
conversion of non-Interstate rest areas into service plazas.
• There is precedent for the redevelopment of existing service plaza sites and for
service plazas on turnpikes.
• Existing state laws may constrain the use of sponsorship/vending machine
contracts as a mechanism to fund rest area operations.
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Potential Commercial Concepts for Consideration
• There are several P3 concepts that may have relevance for MassDOT’s Site Portfolio.
• Sponsorship: MAP-21 authorized the use of sponsorship agreements to fund rest area
operations, which was previously restricted.
– In 2011 Virginia DOT entered into a three-year agreement with a private company to
provide bundled sponsorship, advertising, and vending services across all 43 of VDOT’s
safety rest areas.
• Existing Service Plaza Redevelopment: Existing services plazas can be modernized to harness
additional value and help fund redevelopment costs.
– Both Maryland and Connecticut have successfully implemented service plaza
redevelopment P3s.
• Anchor Sites: Development of service plaza(s) packaged with maintenance responsibility for
additional, non-revenue rest areas and park-and-rides.
– A hybrid approach of the sponsorship and service plaza redevelopment concepts.
– Need to size packaging based on the size of the excess cash flow of anchor sites.
The “anchor” concept is further investigated in this preliminary analysis, but other
concepts remain under strong consideration.
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Existing MassDOT Facilities
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Site Analysis – 170 Sites Reviewed
Sites by Type
Sites by Location
Sites by Average Daily Traffic Volumes (ADT)
Sites by Site Suitability
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Screening Method for Service Plazas, Rest Areas, and Park & Rides
• The MassDOT sites of 170 Rest Areas, Service Plazas, Park-and-Rides, and Weigh Stations
were screened to develop a short-list of potential anchor sites.
– Policy/Legislative Restrictions
– Traffic volume at the site
– High-level assessment of potential physical constraints
• The screening identified 16 sites that have potential as anchor sites and could be further
investigated based on:
– Composition of traffic
– Proximity to competing facilities
– Proximity to ancillary sites that could be packaged
– Further investigation of physical constraints
– Potential for revenue generation
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Preliminary Site Screening Process
Criteria
Assumption
All Potential
Sites
All Potential Sites Include 18 Service Plazas, 105 Rest Areas, 29 Park &
Rides, and 18 Weigh Stations
Federal
Legislative
Constraints
Federal Law Prohibits Development of New Service Plazas on Interstates
• Assumption = For First Round Investigate Only Non-Interstate Sites
• 49 Interstate sites subtracted
• 18 existing full service plazas removed from list
Commercial
Viability
Site
Suitability
Result
170 Sites
111 Sites
To Serve as an Opportunity for Commercial Development Sites Must
Have Adequate Traffic
• Assumption = Minimum of 20,000 Average Daily Traffic (ADT)
• 92 sites with traffic volumes <20,000 subtracted
50 Sites
Site Conditions Such as Size, Geometry, and Utility Access Must be
Suitable for Development
• Assumption = Greater than 1 acre gross area, adequate depth from
roadway, and reasonable distance from existing utilities
• 4 sites subtracted
16 Sites
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For Further
Investigation
8
Preliminary Identified List of Potential Anchor Sites
Site # Town
Site Name
1
Rockland
Route 3/Route 228 Park & Ride
2
Norwell
3
Traffic Volume *
Acreage
104,000
7
Route 3 NB Rest Area
74,000
2
Norwell
Route 3 SB Rest Area
74,000
2
4
Plymouth
Route 25 EB Rest Area
65,000
24
5
Barnstable
US 6 EB Rest Area
52,000
6
6
Lancaster
Route 2 EB Rest Area
51,000
6
7
Sandwich
US 6 WB Rest Area
46,000
8
8
Yarmouth
US 6 WB Rest Area
38,000
7
9
Taunton
Route 140 SB Rest Area
38,000
7
10
Taunton
Route 140 NB Rest Area
38,000
4
11
Dennis
US 6 EB Rest Area (West of Rt 134)
37,000
8
12
Dennis
US 6 EB Rest Area (East of Rt 134)
32,000
5
13
Uxbridge
Route 146 NB Rest Area
28,000
13
14
Uxbridge
Route 146 SB Rest Area
28,000
12
15
Templeton
Route 2 EB Rest Area
22,000
21
16
Templeton
Route 2 WB Rest Area (CLOSED)
22,000
13
* Maximum Average Daily Traffic (ADT) between 2000 and 2009; source: MassDOT count stations
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Poor
Utility Access
Good
9
Subset of 16 Preliminary Anchor Sites for Further Investigation
• Next steps: investigating potential geographic and corridor grouping for P3 packaging.
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Major Next Steps for Assessing Service Plaza/Rest Area P3s
Technical
• Detailed assessment and inventory of utilities for ease of development
• Review of adjacent parcels for potential coordination of development opportunities
• Review of potential zoning and environmental permitting issues
Commercial
• Proof of commercial concept
– Benchmarking of revenue potential
– Packaging and sizing of potential P3 scopes
– Financial feasibility of potential options
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Anchor Site
Fact Sheets
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#1: Route 3/Route 228 Park & Ride, Rockland
Characteristics
Description
Location: Rt. 228 Westbound in Rockland adjacent • Metro Boston location
to Route 3 Exit 14
• Caters to commuter and local traffic
• Has shelters, lighting, and phones
Road Type: Undivided principal arterial adjacent
to limited access expressway
• Adjacent to Exit 14, a full interchange
Use: Existing park and ride lot with frequent P&B
• Nearest rest area (non-commercial) located 8
miles south on Rt. 3 in Norwell
bus service to Boston, Logan Airport, and Cape Cod
Average Daily Traffic: 104,000 (on adjacent Rt. 3)
Size: 7.3 acres with 440 parking spaces
Location Map
• Park and ride lot is not fully utilized
• No restrooms
• Un-zoned
Aerial Photo
Source: ESRI
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Source: ESRI
13
#2: Route 3 Northbound Rest Area, Norwell
Characteristics
Description
Location: Route 3 northbound in Norwell near
North River and Marshfield town line
Use: Rest area with no facilities; has donation
drop boxes
Road Type: Limited access expressway
Average Daily Traffic: 74,000
Size: 2 acres
Location Map
• Metro Boston location
• Caters to Boston and 128 bound commuter
traffic
• Last rest area on Route 3 northbound
• Adjacent to Stetson Meadows reservation
and sizeable vacant state owned land
• Fair utility access; semi-residential area
Aerial Photo
Source: ESRI
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Source: ESRI
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#3: Route 3 Southbound Rest Area, Norwell
Characteristics
Description
Location: Route 3 southbound in Norwell near
North River and Marshfield town line
Use: Rest area with no facilities; has Red Cross
drop box
Road Type: Limited access expressway
Average Daily Traffic: 74,000
Size: 1.6 acres
Location Map
• Metro Boston location
• Caters to commuters and potentially Cape
Cod bound tourist traffic
• First rest area on Route 3 southbound
• Nearest commercial service area located 15
miles south in Plymouth
• Adjacent to vacant state owned land
• Fair utility access; semi-residential area
Aerial Photo
Source: ESRI
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Source: ESRI
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#4. Route 25 Southbound Rest Area, Plymouth
Characteristics
Description
Location: Rt. 25 Southbound in Plymouth near
Bourne and Wareham town lines; 3.5 miles east of
Bourne Bridge
Road Type: Limited access expressway
Use: Non-commercial rest area and seasonal
tourist information center
History: Completed in 1987
Average Daily Traffic: 65,000 (about 40% lower in
off-season)
Size: 24 acres
• Gateway to Cape Cod from suburban Boston,
Mass Pike, and Providence
• Caters to tourist traffic
• Nearest non-commercial rest area located on US
6 Scenic Highway in Bourne
• Nearest same-path service area located 27 miles
northwest on Rt. 24 in Bridgewater
• No local road access; nearest interchange
located 3 miles east at Rt. 28 in Bourne
• Generally good utility access
Location Map
Aerial Photo
Source: ESRI
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Source: ESRI
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#5. US 6 Eastbound Rest Area/Weigh Station, Barnstable
Characteristics
Description
Location: US 6 Eastbound in West Barnstable
Road Type: Limited access expressway
Use: Rest Area/Weigh Station with no facilities;
pull-off only
Average Daily Traffic: 52,000
Size: 6.3 acres
Location Map
• First rest area after Sagamore Bridge
• Adjacent to West Barnstable Conservation
Area
• Off-highway park-and-ride lot with services
located 4 miles east
• Adjacent to Service Road
• Fair utility access; near residential area
Aerial Photo
Source: ESRI
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Source: ESRI
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#6: Route 2 Eastbound Rest Area, Lancaster
Characteristics
Description
Location: Rt. 2 Eastbound in Lancaster opposite • Caters to tourist, commuter, and local traffic
Johnny Appleseed’s rest area on Rt. 2 West
• Metro Boston location east of Leominster
Road Type: Limited access expressway
• Nearest eastbound non-commercial rest area
located 18 miles west in Templeton
Use: Rest area and weigh station with no
facilities
• Adjacent to Old Union Turnpike and MassDOT
maintenance yard
Average Daily Traffic: 51,000
• Good utility access; surrounding area has
Size: 5.6 acres
infrastructure
Location Map
Aerial Photo
Source: ESRI
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Source: ESRI
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#7. US 6 Westbound Rest Area, Sandwich
Characteristics
Description
Location: US 6 Westbound in East Sandwich
Road Type: Limited access expressway
Use: Rest area with no facilities; pull off only
Average Daily Traffic: 46,000
Size: 7.7 acres
Location Map
• Caters to tourist traffic coming from mid and
outer Cape Cod
• Last rest area before the Sagamore Bridge
• Nearest non-commercial rest area located 5
miles east in Barnstable
• No local roadway access; nearest interchange
located ½ mile east at Route 130
• Fair utility access; near residential area
Aerial Photo
Source: ESRI
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Source: ESRI
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#8: US 6 Westbound, Yarmouth
Characteristics
Description
Location: US 6 westbound in Yarmouth west of
Bass River and Dennis town line
• Caters to tourist traffic
• Large site with deep right-of-way and scenic
potential
• Adjacent to Bass River
• Nearest commercial service area located offhighway 9 miles west at Rt. 132 in Barnstable
(park and ride)
• Fair utility access; adjacent to residential
areas
Road Type: Limited access expressway
Use: Rest area with no facilities
Average Daily Traffic: 38,000
Size: 7 acres
Location Map
Aerial Photo
Source: ESRI
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Source: ESRI
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#9: Route 140 Southbound Rest Area, Taunton
Characteristics
Description
Location: Route 140 southbound in Taunton; 2
miles south of Route 24 interchange
• Captures commuter and tourist traffic bound
for greater New Bedford and South Coast
• Nearest interchange located 1 mile south at
Route 79
• Nearest commercial service area located 9
miles north on Route 24 in Bridgewater
• Large site with deep right-of-way and
adjacent vacant private land
• Fair utility access; semi-residential
Road Type: Limited access expressway
Use: Rest area with no facilities; has Red Cross
drop box
Average Daily Traffic: 38,000
Size: 6.9 acres
Location Map
Aerial Photo
Source: ESRI
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Source: ESRI
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#10: Route 140 Northbound Rest Area, Taunton
Characteristics
Description
Location: Route 140 northbound in Taunton; 2
miles south of Route 24 interchange
Road Type: Limited access expressway
Use: Rest area with no facilities; has St. Vincent
de Paul drop boxes
Average Daily Traffic: 38,000
Size: 3.7 acres
Location Map
• Captures commuter and tourist traffic from
greater New Bedford and South Coast
• Nearest interchange located 1 mile south at
Route 79
• Nearest commercial service area located 9
miles north on Route 24 in Bridgewater
• Deep right-of-way and adjacent vacant
private land
• Fair utility access; semi-residential
Aerial Photo
Source: ESRI
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Source: ESRI
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#11: US 6 Eastbound Rest Area, Dennis (West of Route 134)
Characteristics
Description
Location: Route 6 eastbound west of Route 134 • Caters to tourist traffic bound for outer Cape
Road Type: Limited access expressway
Use: Rest area with no facilities; has internal
loop road
Average Daily Traffic: 37,000
•
•
•
•
Size: 8 acres
•
Location Map
Cod
Large site with scenic potential
Unsigned
Adjacent to former Old Colony Railroad and
Bass River
Nearest commercial service area located offhighway 9 miles west at Rt. 132 in Barnstable
(park and ride)
Fair utility access; adjacent to residential areas
Aerial Photo
Source: ESRI
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Source: ESRI
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#12: US 6 Eastbound Rest Area, Dennis (East of Route 134)
Characteristics
Description
Location: US 6 Westbound in Dennis near
Harwich town line on “super two-lane” section
of highway
• Caters to tourist traffic bound for mid and
outer Cape Cod
• Nearest non-commercial rest area located 1.5
miles west
• No local road access
• Fair utility access; semi-residential
Road Type: “Super 2” limited access
expressway
Use: Rest area with no facilities; pull-off only
Average Daily Traffic: 32,000
Size: 4.7 acres
Location Map
Aerial Photo
Source: ESRI
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Source: ESRI
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#13: Route 146 Northbound Rest Area/Weigh Station, Uxbridge
Characteristics
Description
Location: Route 146 northbound in Uxbridge
south of Route 16 interchange; 5 miles north of
Rhode Island state line
Road Type: Limited access expressway
Use: Rest area with and weigh station with no
facilities other than picnic tables; truck parking
Average Daily Traffic: 28,000
Size: 11.7 acres
Location Map
• Caters to commuter traffic, truckers, and
some tourist traffic
• Gateway to central Massachusetts from
Rhode Island
• Roughly midway between Providence and
Worcester
• Deep right-of-way
• Not within 20 miles of other rest areas
• Fair utility access; semi-residential
Aerial Photo
Source: ESRI
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Source: ESRI
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#14: Route 146 Southbound Rest Area/Weigh Station, Uxbridge
Characteristics
Description
Location: Route 146 northbound in Uxbridge
south of Route 16 interchange; 5 miles north of
Rhode Island state line
Road Type: Limited access expressway
Use: Rest area with and weigh station with no
facilities other than picnic tables; truck parking
Average Daily Traffic: 28,000
Size: 13.2 acres
Location Map
• Caters to commuter traffic, truckers, and
some tourist traffic
• Last rest stop on Route 146 SB in
Massachusetts
• Roughly midway between Worcester and
Providence
• Deep right-of-way
• Not within 20 miles of other rest areas
• Fair utility access; semi-residential
Aerial Photo
Source: ESRI
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Source: ESRI
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#15: Route 2 Eastbound Rest Area, Templeton
Characteristics
Description
• Caters to tourist traffic, and potentially local
and commuter traffic
• Midway between Williamstown and Boston
Road Type: Limited access expressway
Use: Non-commercial rest area with bathrooms, • Nearest non-commercial rest area located 18
miles east in Lancaster
sheltered information kiosk, and picnic tables
• No local roadway access; nearest interchange
Average Daily Traffic: 22,400
at Route 2A located one mile west
Size: 21 acres
• Fair utility access; semi-residential
Location: Rt. 2 Eastbound in Templeton (two
miles west of Gardner)
Location Map
Aerial Photo
Source: ESRI
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Source: ESRI
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#16: Route 2 Westbound Rest Area (Closed), Templeton
Characteristics
Description
Location: Rt. 2 Eastbound in Templeton (two
miles west of Gardner)
Road Type: Limited access expressway
Use: CLOSED non-commercial rest area with
bathrooms, sheltered information kiosk, and
picnic tables
Average Daily Traffic: 22,400
Size: 13 acres
Location Map
• Caters to tourist traffic, and potentially local
and commuter traffic
• Midway between Boston and Williamstown
• Nearest non-commercial rest area located 18
miles east in Lancaster
• No local roadway access; nearest interchange
at Route 2A located one mile west
• Fair utility access; semi-residential
Aerial Photo
Source: ESRI
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Source: ESRI
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Additional Sites for P3
Consideration
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I-495 Northbound, Chelmsford
Characteristics
Description
Location: I-495 Northbound in Chelmsford ½
mile west of Route 4 and Chelmsford Center
Road Type: Limited access expressway
Use: Rest area with visitor information center
(currently closed)
Average Daily Traffic: 113,000
Size: 6.7 acres
Location Map
•
•
•
•
•
Metro Boston location
Precedes US 3, I-93, and I-95
High traffic volumes
Deep right-of-way
Nearest non-commercial rest area located 23
miles north on I-495 NB in Haverhill
• Adjacent to town owned land with walking
and biking trails
Aerial Photo
Source: ESRI
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Source: ESRI
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Route 6 Eastbound Rest Area, Barnstable
Characteristics
Description
Location: US 6 eastbound in Barnstable 1 mile
east of Route 132
Road Type: Limited access expressway
Use: None; overgrown pull-off with dirt track
ramps; may have been a rest area in the past
Average Daily Traffic: 36,000
Size: 6.7 acres
Location Map
•
•
•
•
No paved ramps or official public access
Used for storage of median barriers
Deep ROW
Adjacent to Hathaway’s Pond Conservation
Area
• Possible secondary access via Pond Lijah Rd.
• Access to utilities to be determined
Aerial Photo
Source: ESRI
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Source: ESRI
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US 6 Eastbound at Bournedale Rd., Bourne
Characteristics
Description
Location: US 6 eastbound at Bournedale Rd. in
Bourne; adjacent to Cape Cod Canal
Road Type: Undivided principal arterial and
scenic byway
Use: Parking for Herring Run Visitors Center
(NPS)
Average Daily Traffic: 55,000
Size: 1.6 acres
Location Map
• Section of US 6 connects Bourne Bridge and
Sagamore Bridge
• State jurisdiction limited to paved parking
area
• Some portable restrooms
• Adjacent to Cape Cod Canal greenway and
National Park Service Herring Run
Recreational Area and visitors center
Aerial Photo
Source: ESRI
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Source: ESRI
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