Greater Portland COG Rapid Transit Study by nelsonnygaard

Gorham-Westbrook-Portland Rapid Transit Study

Existing Conditions November 2022

Cover image source: Nelson\Nygaard Consulting Associates, Inc.

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Table of Contents 1

Introduction..................................................................................................................... 1-1 Report Purpose .............................................................................................................................................1-1 Report Outline ..............................................................................................................................................1-1 Study Area ......................................................................................................................................................1-2

Plan and Policy Review .................................................................................................. 2-1 Transportation Plans...................................................................................................................................2-2 Land-Use Plans .............................................................................................................................................2-9 Opportunities ............................................................................................................................................. 2-13

Transit Network Analysis ............................................................................................... 3-1 Existing Service .............................................................................................................................................3-1 Transit Infrastructure ..................................................................................................................................3-8 Ridership ...................................................................................................................................................... 3-13 Opportunities ............................................................................................................................................. 3-20

Road and Railway Characteristics ................................................................................. 4-1 Roadway Characteristics ...........................................................................................................................4-1 Railway Characteristics ........................................................................................................................... 4-14 Opportunities ............................................................................................................................................. 4-16

Market Profile ................................................................................................................. 5-1 Population ......................................................................................................................................................5-1 Socioeconomic Characteristics ...............................................................................................................5-4 Jobs and Economic Activity-Based Demand .................................................................................. 5-15 Travel Flows................................................................................................................................................. 5-30 Opportunities ............................................................................................................................................. 5-36

Land-Use Assessment ..................................................................................................... 6-1 Current Densities and Land Use.............................................................................................................6-1 Current Zoning .......................................................................................................................................... 6-10 Key Trip Generators ................................................................................................................................. 6-19 Anticipating Future Density and Land Use ..................................................................................... 6-21 Opportunities ............................................................................................................................................. 6-27 Next Steps ................................................................................................................................................... 6-27

Nelson\Nygaard Consulting Associates, Inc. | i

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

1 Introduction Report Purpose The Gorham-Westbrook-Portland Rapid Transit Study examines the need for and benefits of various potential alignments and modes of rapid transit linking the municipalities of Gorham, Westbrook, and Portland. The study is based on recommendations from Transit Tomorrow1 (the Greater Portland region’s long-range public transportation plan) and is led by the Greater Portland Council of Governments (GPCOG) in consultation with the City of Portland, the City of Westbrook, the Town of Gorham, the Northern New England Passenger Rail Authority (NNEPRA), the Maine Department of Transportation (MaineDOT), Greater Portland Metro (GP Metro), and other agency and community stakeholders. This Existing Conditions Report collects, synthesizes, and assesses a variety of qualitative and quantitative information that provides context for the rapid transit study. It provides an overview of opportunities and constraints within the study area, identifies the most relevant information and sets the stage for development and evaluation of rapid transit alternatives.

Report Outline This report is organized into six chapters, with each chapter examining a different type of existing conditions information: 

Chapter 1 – Introduction: Introduces report context, the purpose of the report, and describes the study area.



Chapter 2 – Plan and Policy Review: Summarizes existing transportation and land use plans, transportation policies, and other studies which inform potential future rapid transit in the study rea.



Chapter 3 – Transit Network Analysis: Highlights relevant aspects of the transit network and transit performance in the study area.

1 GPCOG. March 2021. Transit Tomorrow. <https://www.gpcog.org/DocumentCenter/View/1697/2020-

Transit-Tomorrow-Plan?bidId=>

Nelson\Nygaard Consulting Associates, Inc. | 1-1

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments



Chapter 4 – Existing Right-of-Way Conditions: Describes existing relevant right-ofway characteristics, such as roadway widths and railroad right-of-way.



Chapter 5 – Market Profile: Describes the market for transit in the study area.



Chapter 6 – Land-Use Assessment: Assesses current and future land uses in the study area, with a special focus on the relationship between land use and rapid transit.

Study Area The Gorham-Westbrook-Portland Rapid Transit Study area (Figure 1-1) can generally be defined as the area from University of Southern Maine (USM) Gorham in the west to the Portland Peninsula in the east, including several potential east-west road and rail alignments connecting these areas. This study area is meant to constrain the study to rapid transit alternatives that satisfy the study’s eponymous geography (the communities of Gorham, Westbrook, and Portland), while also allowing the study to explore a large universe of potential alignments. To develop the study area, a ½-mile Euclidean buffer was prepared around several major road and railways connecting USM Gorham and the Portland Peninsula, including the potential future Gorham Connector highway.2 This buffer was then smoothed to eliminate unnecessarily restrictive study area corners, and was clipped to the Portland Peninsula so as not to infringe on Transit Tomorrow rapid transit corridors that extend from the Peninsula into South Portland and East Deering. Although the study area technically includes the municipalities of Scarborough and South Portland, the study remains focused on a rapid transit connection for the communities of Gorham, Westbrook, and Portland, although residents from other communities may benefit from these potential services as well.

2 The Gorham Connector does not yet have a preferred alignment but information provided by the Maine

Turnpike Authority describes the general area in which the project might be built.

Nelson\Nygaard Consulting Associates, Inc. | 1-2

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 1-1

Map of Gorham-Westbrook-Portland Rapid Transit Study Area

Nelson\Nygaard Consulting Associates, Inc. | 1-3

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

2 Plan and Policy Review The Gorham-Westbrook-Portland Rapid Transit Study is based on years of previous transportation and land-use plans and policies established in Southern Maine. Regional organizations, transit operators, and municipalities have all laid the groundwork for this study through their examination of bus and rail transit systems, road safety, transit-oriented and transit supportive development, and long-range planning for the area. A review of these plans and policies is necessary to better understand the context that led to their creation, the existing conditions that were determined for their time and place, how the ideas presented may be applied today, and what has changed in the years since they were established. List of Policies and Plans Reviewed

Plan Type

Plan Year

Plan Name

Plan Source

2016

Destination 2040

GPCOG, PACTS

2019

Westbrook to Portland Conceptual Rail Transit Study

NNEPRA

2020

High-Crash Locations Study

PACTS

2021

Transit Tomorrow

GPCOG, PACTS

2012

Westbrook Comprehensive Plan

City of Westbrook

2015

PACTS Transit Supportive Development Study

PACTS

2016

Gorham Comprehensive Plan Update

Town of Gorham

2017

Portland’s Plan 2030

City of Portland

Land-Use

Transportation

Figure 2-1

Nelson\Nygaard Consulting Associates, Inc. | 2-1

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Transportation Plans Destination 2040 Report produced by Portland Area Comprehensive Transportation System (PACTS) and published in 2016.1 Destination 2040 is the long-range regional transportation plan for the Greater Portland region. The plan prioritizes expanding public transit through infrastructure improvements and more service. The plan identifies several ‘Priority Corridors’ in the rapid transit study area, which are roadways that benefit the greatest number of modes including transit, bikes, and pedestrians (Figure 2-2). Connect 2045—which is in development—will update this plan. Destination 2040’s goals include maintaining regional focus on transit, enabling economic development through improved transportation options, and improving mobility, safety, and accessibility by expanding transit service. Other goals are to integrate energy conservation into decision-making process for transportation improvements and to strengthen the land use-transportation connection. The plan recommends development of a regional transit plan, reviewing the feasibility of rail transit, increasing transit frequency and reliability, and expanding transit to connect regional destinations and centers. Destination 2040 also calls for prioritization of projects that demonstrate land-use and transportation coordination, creation of regional transit-oriented development (TOD) guidelines, development of a PACTS complete streets policy, and a vulnerability assessment of climate change impacts on transportation infrastructure. Figure 2-2 Map of Priority Corridors and Centers in the PACTS Region

1 PACTS. 2016. Destination 2040. <https://www.gpcog.org/DocumentCenter/View/944/Destination-2040-

Report-PDF>

Nelson\Nygaard Consulting Associates, Inc. | 2-2

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Westbrook to Portland Conceptual Rail Transit Study Report produced by Northern New England Passenger Rail Authority (NNEPRA) and published on June 28, 2019.2 This study evaluated potential rail transit between Westbrook and Portland’s Old Port mostly along existing railroad right-of-way. It identified potential station locations, operating plans, and estimated cost and ridership.

Potential Station Locations In Portland, the study identified one terminal station north of Commercial Street near the Casco Bay Bridge (Figure 2-3). Serving the Old Port area was considered important to make the transit line appealing to riders, however, it would be difficult to extend tracks across West Commercial Street, due to high traffic volumes. Figure 2-3 Map Showing Potential Portland Terminal Station (to right) In Westbrook, the study recommended a terminal station on the west side of Main Street, nearly a mile from downtown Westbrook (Figure 2-4). Operating the transit line as close to downtown Westbrook was considered important.

Figure 2-4 Map of Showing Potential Westbrook Terminal Station (to left)

2 NNEPRA. June 2019. Westbrook to Portland Conceptual Rail Transit Study, 2019. p. 8.

<https://www.nnepra.com/wp-content/uploads/2020/06/Westbrook-to-Portland-Conceptual-Rail-TransitStudy.pdf>

Nelson\Nygaard Consulting Associates, Inc. | 2-3

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Intermediate station locations were also identified, with one potential location at the existing PTC, which would allow connections to the regional and interstate transit network and Thompson’s Point. A second potential location was identified at the ongoing Rock Row development in Westbrook would provide access to retail, work, and planned entertainment opportunities (Figure 2-5). Figure 2-5

Map Showing Conceptual Plan of Westbrook to Portland Rail

The study also assessed rail system improvements that would be required for a passenger service, outlined a preliminary operating plan, modeled potential ridership, and estimated costs for a conceptual rail service between Westbrook and Portland. Required system improvements included assessing how much double-track could be constructed, to increase flexibility of the service. Constraints for this include lack of space or property ownership, potential conflicts with other rail services, and environmental impacts. Additional challenges include coordination with other transit services, such as the Amtrak Downeaster, and complex infrastructure requirements. A preliminary operating plan was assessed for both a high- and low-cost plan. The lowcost plan provides 60-minute peak service, and the high-cost plan provides 30-minute peak service. A Rail Traffic Controller model estimated 20-minute running time estimated for each one-way trip and 10-minute recovery/layover time for both operating plans. The high-cost option would require two vehicles to operate during peak service, while the low-cost option would only require one vehicle.

Nelson\Nygaard Consulting Associates, Inc. | 2-4

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

A ridership estimate was made based on existing transit riders, area residents, Downeaster riders connecting to bus service into Portland, and planned Rock Row development. The results were slightly lower (estimated 337 average weekday boardings) than the results of a previous PACTS model (estimated 356 average weekday boardings), so the latter was used as the baseline. This number was combined with the estimated ridership that would be produced by a full buildout of Rock Row (1,806 average weekday boardings) resulting in a total estimated 2,162 average weekday ridership for the conceptual rail service (Figure 2-6). Figure 2-6

Table Showing Estimated Average Weekday Boardings Ridership Components

Average Weekday Boardings

PACTS Model Ridership Estimate

356

Rock Row Full Build Ridership

1,806 Total

2,162

Estimated costs in this study include capital costs, as well as operations and maintenance costs. Depending on service frequency, two or three vehicles would be needed, with these vehicle costs varying widely (not included in below table). The conceptual cost estimate for the infrastructure is $70.8 million (Figure 2-7), with operations and maintenances costs ranging from $7 to $11 million for 60-minute peak service and $9 to $13 million for 30minute peak service (Figure 2-8). These cost estimates are likely to considerably higher than original estimated, for several reasons, but most notably inflation. Figure 2-7

Table Showing Estimated Capital Costs Work Element

Conceptual Cost Estimate

Track Construction and Improvements

$7,420,000

Turnouts

$1,900,000

Grade Crossing Improvements

$4,040,000

Culvert Improvements

$400,000

Overhead Bridge and Approach Construction

$12,000,000

Communications and Signal System Improvement

$11,640,000

Westbrook Main Street Station and Platforms

$3,500,000

Rock Row Station and Platforms

$3,000,000

PTC Station Platform and Up-and-Over Access

$4,600,000

Commercial Street Station and Platforms

$2,300,000

Miscellaneous Items and Contingency

$13,500,000

Design, Permitting and Construction, Engineering

$6,500,000

Total Conceptual Cost Estimate

$70,800,000

Nelson\Nygaard Consulting Associates, Inc. | 2-5

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 2-8

Table Showing Estimated Operating and Maintenance Costs Service Scenario

Estimated Annual Operating and Maintenance Costs

60-Minute Peak Service

$7 to $11 million

30-Minute Peak Service

$9 to $13 million

Nelson\Nygaard Consulting Associates, Inc. | 2-6

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

PACTS High-Crash Locations Study Report produced by PACTS and published July 7, 2020.3 The PACTS High-Crash Locations Study identified intersections and road segments in the PACTS region with high crash volumes and made safety improvement recommendations. Three locations identified in the study are in the rapid transit study area. Data in the study include number of crashes, injuries, speed limit, and annual average daily traffic (AADT). Morrill’s Corner is a four-way signalized intersection and one of Portland’s highest-volume crash locations, due in part to full-access high-volume intersections and a lack of access management. The study recommends reviewing access management and signal timing, restricting turns, installing advanced detection and signage, and making physical upgrades such as installing high-friction surfaces, realigning lanes, and extending medians. The intersection saw 103 crashes from 2015 to 2018 and had an estimated AADT of 37,500 to 62,500 vehicles. The injury rate4 was 13% at the Forest Avenue road segment and 21% at the Forest Avenue and Allen Avenue intersection. Note: The City of Portland and MaineDOT are currently working to redesign this intersection. Congress Street and the I-295 northbound Exit 5 on-and off-ramps intersection in Portland is a high-crash location due to conflicts with the Congress Street-Park Avenue oneway pair, as well as failures to yield to oncoming traffic, abrupt lane changes, and congestion at driveways and highway ramps. The study recommends ramp consolidation, conversion of some streets to two-way, reconfiguring traffic controls, making physical upgrades, and restriping crosswalks and bike lanes for higher visibility. The intersection saw 41 crashes from 2015 to 2018 and had an estimated AADT of 15,000 to 24,000 vehicles. The injury rate was 9% to 30%. Forest Avenue and Walton Street is a four-way signalized intersection in Portland with a high number of crashes due to an isolated signal, skewed approach angle, two-way left-turn lane, and driveway conflicts. The City of Portland plans to install an adaptive signal system here. The study recommends adding bike lane markings and signage, reviewing signal timing and access management, reassigning turning lanes, and trimming tree limbs. The intersection saw 66 crashes from 2015 to 2018 and had an estimated AADT of 23,500 to 41,000 vehicles. The injury rate was 30% to 33%.

3 PACTS. July 2020. PACTS High Crash Locations Study, Desktop Assessments.

<https://www.gpcog.org/DocumentCenter/View/1377/PACTS-VHB-HCL-Desktop-Assessment-Full-ReportPDF> 4 An injury rate is defined as the percent of crashes with injuries.

Nelson\Nygaard Consulting Associates, Inc. | 2-7

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Transit Tomorrow Report produced by GPCOG and PACTS, and published in March 2021.5 Transit Tomorrow is the Greater Portland region’s long-range public transportation plan. The document is an ambitious strategic plan that outlines how the region would like to see its public transportation network grow over the coming 30 years. The plan summarizes the need for additional public transit investment by explaining how this investment “would allow us to meet the growing demands placed on our transportation network, reduce congestion and its associated environmental impacts, and empower people from all walks of life with reliable access to affordable transportation.”6 Transit Tomorrow includes four strategic goals for enhancing public transportation in the Greater Portland region, one of which is to improve rapid transit. This goal identified four potential rapid-transit corridors and recommended the Gorham-WestbrookPortland corridor as the first candidate for advancement into the alternatives analysis stage. The Gorham-WestbrookPortland Rapid Transit Study represents GPCOG’s follow-through on this recommendation.

Figure 2-9

Diagram of Transit Tomorrow Rapid Transit Corridors

5 GPCOG. March 2021. Transit Tomorrow. <https://www.gpcog.org/DocumentCenter/View/1697/2020-

Transit-Tomorrow-Plan?bidId=> 6 Ibid., p. 4.

Nelson\Nygaard Consulting Associates, Inc. | 2-8

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Land-Use Plans Westbrook Comprehensive Plan Report produced by the City of Westbrook and published in June 2013.7 This plan outlines the City of Westbrook’s vision and goals through 2021. The plan calls for improved transit service to accommodate future growth. The plan’s transportation goals are to create and fund public services that will accommodate future growth, improve transit service, ease congestion, and to better coordinate land-use planning and transportation. The plan notes that much of Westbrook’s housing stock is downtown, caters to low-income people, and is close to existing GP Metro Figure 2-10 Map showing Future Land transit service. Despite this, the plan notes Use in Westbrook that GP Metro service does not meet the needs of all Westbrook residents, and many drive due to lack of service. The plan acknowledges that studies recommend efforts to increase GP Metro ridership by geographically expanding the service area, increasing frequency, and adding transit priority infrastructure. Aside from GP Metro fixed-route bus service, other transportation options available for elderly and disabled community members include RTP Rides, Independent Transportation Network, and transportation provided by Westbrook Housing and Westbrook Community Center. The plan notes several ongoing Westbrook transportation strategies, including regional coordination efforts, consolidating development to encourage density along the Bridgton Road corridor, and maintaining and updating the transportation network plan. 7 City of Westbrook. June 2013. Westbrook Comprehensive Plan, 2012.

<https://www.westbrookmaine.com/DocumentCenter/View/321>

Nelson\Nygaard Consulting Associates, Inc. | 2-9

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

PACTS Transit-Supportive Development Study Report produced by PACTS and published in December 2015.8 The Transit-Supportive Development Study is a review of best planning practices for developing long-term multimodal transportation options for several communities and ‘Centers of Opportunity’, including those in the rapid transit study area. Goals of the study include changing public perception to be more supportive of density and public transit, encouraging complete streets design standards and regulations, and investing in and planning for center-focused development (where center means a place where higherdensity land use is concentrated). The study recommends communities invest in centers and provide strategic technical assistance to achieve transit-supportive development. The study builds on previous studies and includes recommendations from the 2012 Gorham East-West Corridor Feasibility Study, such as introducing new services in towns that are not currently served by transit. PACTS’ 2003 Destination Tomorrow plan supports the development of better land-use policies before allocating funding to large-scale transportation projects. This plan was updated in 2006 and 2010. This Transit-Supportive Development Study highlights how people increasingly want to live in communities served by public transit. In the rapid transit study area, Gorham currently has the least amount of transit service, and many residents are reluctant to support growth in the area, due in part to the lack of non-auto travel options. Conversely, Portland/Libbytown offers access to the Amtrak Downeaster, Concord Coach intercity bus line, and GP Metro routes 1 and 5. Many Westbrook Prides Corner residents are reluctant to support new growth due to existing traffic congestion and limited transit service that is currently provided. These mismatches between housing demand and existing transit service are an opportunity for rapid transit to support both local transportation and land use goals. The Transit-Supportive Development Study also outlines tools for center-focused development. These include complete streets policies and regulations, transit tax-increment financing (TIF), and regional land-use planning.

8 PACTS. December 2015. PACTS Transit-Supportive Development Study.

<https://www.gpcog.org/DocumentCenter/View/2388/2015-Transit-Supportive-Development-Study-PDF>

Nelson\Nygaard Consulting Associates, Inc. | 2-10

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Gorham Comprehensive Plan Report adopted by the Town of Gorham in September 2016 and amended in March 2021.9 The Gorham Comprehensive Plan outlines the vision and goals for the Town of Gorham through 2026, and includes an interest in expanding transit service. The transportation goals in the plan are to develop a regional transit system with neighboring partners and to consider transit TIF if large-scale development occurs. The plan recommends the Town of Gorham provide support for more transit, such as a bus service linking between Gorham Village and USM to Portland (the GP Metro Husky Line route accomplished this). The plan also recommended continuing to pursue the results of previous transportation studies, including the 2012 Gorham East-West Corridor Feasibility Study, which outlines ways to achieve better transit between Gorham and Portland. Another recommendation is to consider methods of providing transit service between Gorham Village and Portland, such as expanding the current GP Metro Service and/or coordinating additional service with USM. Finally, the plan recommends municipal investment in public transit through strategies such as purchasing transit equipment or providing an ongoing subsidy for service.

9 Town of Gorham. September 2016. Gorham Comprehensive Plan Update. <https://www.gorham-

me.org/planning-department/files/comprehensive-plan-2016>

Nelson\Nygaard Consulting Associates, Inc. | 2-11

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Portland’s Plan 2030 Comprehensive Plan Report produced by the City of Portland and published in August 2017.10 Portland’s comprehensive plan outlines the vision and goals for the City of Portland through 2030. The plan encourages TOD and outlines investment strategies for additional transit. Ongoing initiatives outlined in the plan are to create zoning amendments to combine realestate development with transit expansion and to implement TIF districts for public transit. The plan supports investing in transit, building on transportation connections between hubs, and creating dense housing close to transit nodes.

Figure 2-11 Map Showing Existing Land Use in Portland

The plan identifies several nodes and corridors that are described as priority growth areas that are appropriate for new development. These places include several corridors and nodes in the rapid transit study area, including: 

Congress Avenue at Stevens Avenue



Downtown



Eastern, central, and western waterfronts



Morrill’s Corner



Thompson’s Point



Valley Street



West Bayside



Woodfords Corner

10 City of Portland. August 2017. Portland’s Plan 2030. <https://content.civicplus.com/api/assets/7c660148-

e0a2-4eca-8ea5-4a98b81d8f18?cache=1800>

Nelson\Nygaard Consulting Associates, Inc. | 2-12

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Opportunities Together, the plans reviewed in this chapter help define the context in which a potential future rapid transit line must exist. This planning context includes several opportunities for rapid transit, including: 

A desire to use public transit to create better connections between destinations and communities in the Greater Portland area.



Recommendations for improved transit throughout the region, especially in places with higher-density development.



Recommendations to use creative strategies to invest in public transit, such as transit TIFs.



Recommendations for municipalities to update land-use policies that will cater to better transit and support future growth.



General support for TOD.



Acknowledgement that there is a growing desire for improving public transit by expanding and strengthening the current system.



A goal to improve the public’s perception of transit, density, and growth to prevent pushback during transit-related improvements, and also to encourage mode shift.



Recommendations to adopt policies that will support transit, such as complete streets.

Nelson\Nygaard Consulting Associates, Inc. | 2-13

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

3 Transit Network Analysis This Transit Network Analysis is an overview of the state of public transit in the GorhamWestbrook-Portland Study Rapid Transit Study area. It details transit routes operating in the area, highlights transit infrastructure and key transfer locations, and analyzes both prepandemic and current ridership.

Existing Service Gorham, Westbrook, Portland, and the surrounding area are served by transit providers operating fixed-route, demand-response, ferry, and passenger rail services. Within the study area, GP Metro’s Route 4 and Husky Line bus routes are the primary transit service for the Gorham-Westbrook-Portland corridor. Other routes and services provide additional transit mobility around and through the study area (Figure 3-1).

Amtrak Downeaster Amtrak Downeaster passenger rail service connects Brunswick, ME with Boston, MA with five round trips per day. The Downeaster is an Amtrak-operated route managed by NNEPRA. The Portland Downeaster station, located in the Portland Transportation Center, is in the project study area but is not served by GP Metro Route 4 or Husky Line. NNEPRA is actively looking to relocate the Portland station to a mainline location on the Portland Peninsula, and is also exploring a new Downeaster station in West Falmouth, near I95 Exit 53.

Casco Bay Lines Casco Bay Lines (CBL) operates four ferry routes, all of which operate from the Casco Bay Ferry Terminal. CBL ferries carry passengers, vehicles, mail, and freight and serve Bailey, Little Diamond, Great Diamond, Long, Peaks, Cliff, and Chebeague islands. CBL schedules change throughout the year, primarily to accommodate significant summer increases in ridership. The Casco Bay Ferry Terminal is in the project study area but is not served by GP Metro Route 4 or the Husky Line.

Nelson\Nygaard Consulting Associates, Inc. | 3-1

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 3-1

Map of Existing Transit Service in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 3-2

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

GP Metro Husky Line This route profile is adapted from work completed for the GPCOG Transit Together study. The Husky Line operates between USM Gorham and Downtown Portland via Westbrook (Figure 3-2). The route provides limited-stop service, with stops only at USM Gorham, Downtown Gorham, the Westbrook Hub, Rock Row, Stevens Avenue, USM Portland, and the PULSE in Downtown Portland. The route largely serves USM students. Figure 3-2

Map of GP Metro Husky Line Route

Source: Greater Portland Metro. 2022. <https://gpmetro.org/DocumentCenter/View/1278>

From Gorham, the Husky Line mostly operates via Main and Conant streets to Westbrook, Main Street, the Westbrook Arterial, and Larrabee Road to Rock Row. It then operates via Brighton Avenue to USM Portland and Bedford and Preble streets into Downtown Portland. Transfers to other GP Metro routes can be made at the Westbrook Hub and the PULSE, which also serves BSOOB Transit, South Portland Bus Service, and the RTP Lakes Region Explorer.

Nelson\Nygaard Consulting Associates, Inc. | 3-3

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

The Husky Line operates every 30 minutes for most of the day on weekdays and every 45 minutes for most of the day on Saturdays and Sundays. Service operates with a long span of service on weekdays and only slightly shorter hours on Saturdays, and for fewer hours on Sundays. Figure 3-3

Schedule of GP Metro Husky Line Span of Service

Headways (mins.)

Weekdays

6:20 AM to 10:44 PM

30-55

Saturday

8:00 AM to 11:18 PM

45-75

Sunday

8:05 AM to 7:10 PM

On-Time Performance 83%

Note: Span and frequency are from February 2022 data, while revenue hours, ridership, and OTP are from October 2019 data.

Nelson\Nygaard Consulting Associates, Inc. | 3-4

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

GP Metro Route 4 This route profile is adapted from work completed for the GPCOG Transit Together study. Route 4 operates between Figure 3-4 Westbrook and Portland via Brighton Avenue and Main Street, serving Westbrook and Portland’s Nason’s Corner, Rosemont, and Oakdale neighborhoods (Figure 3-4). Key destinations on the route include USM Portland, the Pine Tree Mall/Westbrook Crossing/Rock Row mall district, Sagamore Village, Hannaford, Hamlet Park, IDEXX, and Abbott Labs. From Westbrook, Route 4 primarily operates on Main Street, Brighton Avenue, Bedford Street, and Forest Avenue. At the western end, many trips operate south of the normal terminal at the Westbrook Hub to and from Abbott Labs via IDEXX, as well as the Hamlet Park mobile home community. Some trips also deviate to the Westbrook Hannaford. Transfers to other GP Metro routes can be made at the Westbrook Hub and the PULSE, which also serves BSOOB Transit, South Portland Bus Service, and RTP. Route 4 operates every 30 minutes for most of the day on weekdays and Saturdays and every 45 minutes on Sundays (Figure 3-5). The route has a long span of service on weekdays and only slightly shorter hours on Saturdays, and for fewer hours on Sundays.

Map of GP Metro Route 4

Source: Greater Portland Metro. 2022. <https://gpmetro.org/DocumentCenter/View/1273>

Nelson\Nygaard Consulting Associates, Inc. | 3-5

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Service to Abbott Labs is very irregular, with two trips as close as 30 minutes apart and two other trips more than four hours apart. Most trips operate 60 to 90 minutes apart. Service in and out of Hannaford is similarly irregular, but with a maximum gap between trips of less than two hours. Figure 3-5

Schedule of GP Metro Route 4 Span of Service

Headways (mins.)

Weekdays

5:15 AM to 11:40 PM

30-60

Saturday

5:45 AM to 11:35 PM

30-60

Sunday

8:15 AM to 7:45 PM

On-Time Performance 69%

Note: Span and frequency are from February 2022 data, while revenue hours, ridership, and OTP are from October 2019 data.

Other Service GP Metro operates three other routes that serve Westbrook and the Forest Avenue/Route 302 corridor, which is also served by the RTP Lakes Region Explorer. More detail on these routes can be found in GPCOG’s ongoing Transit Together project, and brief summaries are below.1

GP Metro Route 1 Route 1 connects Portland’s East End residential communities with downtown Portland, Maine Medical Center and Mercy at the Fore, Thompson’s Point, and the PTC. The route primarily operates along Congress Street and provides the backbone of service on the Portland Peninsula. Route 1 serves as a connection for low-income communities in Bayside to medical, employment, and transportation opportunities west of downtown Portland, albeit with some walking required. The route allows for connections to Amtrak Downeaster at the PTC as well as BSOOB Transit, GP Metro, RTP, and South Portland Bus Service at the PULSE. This route operates in part of the study area but does not serve Westbrook or Gorham.

GP Metro Route 3 Route 3 is a crosstown route operating between the Maine Mall area, downtown Westbrook, and Riverton via Cummings Road, Spring Street, and East Bridge Street. It serves Westbrook’s Frenchtown and Portland’s Riverton neighborhoods. Major destinations on the route include the Maine Mall, several major employment sites, Husson University, the Blue Spruce apartments area, and the Riverton Hannaford. This route provides shopping, employment, 1 GPCOG. 2022. Route Profiles. <https://www.transittogether.org/route-profiles>

Nelson\Nygaard Consulting Associates, Inc. | 3-6

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

and some educational opportunities for low-income communities living in Westbrook and Riverton, as well as the ability to transfer to South Portland Bus Service and BSOOB Transit. This route cuts across this project’s study area and does not serve Gorham.

GP Metro Route 5 Route 5 operates between the Maine Mall and Downtown Portland via the Stroudwater, Libbytown, Valley Street, and Parkside neighborhoods. Major destinations along the route include the Maine Mall, Hannaford, the Westgate Shopping Center (where there is a Shaw’s), South Portland Comprehensive Treatment Center, and Maine Medical Center. Some trips also serve the Portland International Jetport and Nichols, and inbound trips serve Union Station Shopping Plaza. This route operates in parts of the study area but does not serve Westbrook or Gorham.

GP Metro Route 9A/9B Route 9A/9B serves Portland and Falmouth with a large bi-directional loop. The route connects the PULSE with the East Deering, North Deering, Deering Center, Oakdale, Libbytown, and Peninsula neighborhoods. The route operates via Congress Street, Stevens Avenue, and Allen Avenue in the study area. Key destinations on the route include Maine Medical Center, Union Station Plaza, Westgate Shopping Center, University of New England, Shaw’s, and the Social Security Administration building. This route also provides service to many schools, including Deering, Portland, and Casco Bay high schools. This route serves three primary purposes: it is a school route, a crosstown route connecting North Deering with Rosemont and Libbytown, and a downtown connection. It operates in parts of the study area but does not serve Westbrook or Gorham.

RTP Lakes Region Explorer The Lakes Region Explorer connects communities on the Route 302 corridor with Portland. It operates between Bridgton and Downtown Portland with stops in Naples, Casco, Raymond, Windham, and Westbrook. There are four inbound and outbound trips every weekday, and the route deviates on request and conducts flag stops. The route’s low frequency and 7:30 a.m. arrival time in Portland (before 9:00 a.m. shifts and after 7:00 a.m. shifts begin) means it is primarily a lifeline service for people without vehicles living northwest of Portland. The Lakes Region Explorer is the only fixed route operated by RTP, which primarily operates demand-response service in Cumberland County.

Nelson\Nygaard Consulting Associates, Inc. | 3-7

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Transit Infrastructure The transit routes operating in the study area are supported by basic transit infrastructure elements such as layover space and bus stops. These assets, although simple, help comfortable waiting areas, easy transfers between routes, and reliability of stop times.

Roadway Transit Infrastructure Roadway transit infrastructure is limited in the rapid transit study area. Transit signal priority (TSP) is not currently implemented in Portland, Westbrook, or Gorham, although GPCOG and MaineDOT plan to introduce TSP in Portland on select corridors: Forest Avenue from Park Street to Warren Avenue, Preble Street from Baxter Boulevard to Marginal Way, and Washington Avenue from Congress Street to Auburn Avenue, including Auburn to Lyseth Moore Drive (see Figure 3-6). GP Metro has layover space on a section of Elm Street at the PULSE in downtown Portland an on USM Gorham campus. There are not currently bus lanes, queue jumps, dedicated busways, or other roadway transit infrastructure in the study area.

Nelson\Nygaard Consulting Associates, Inc. | 3-8

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 3-6

Map of GP Metro Planned Transit Signal Priority in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 3-9

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Bus Stop Infrastructure Bus stops are one of the most important elements of transit service. Bus riders use stops every time they make a trip, and non-riders often gauge the quality of a service based on bus stops they see in their community. Good stops are easy to identify, provide shelter from the elements, allow for safe and easy boarding and alighting of a bus, and include clear information on what service is available at the stop. Transit stops in the study area have a wide range of amenities (Figure 3-7), and stop quality varies dramatically. Some stops include shelters, benches, and trash barrels, while others include only a pole-mounted sign. Shelters are one of the most important stop amenities in areas where rain and snow are common. For some riders, shelter presence is one of the factors that leads them to choose transit over other travel modes. Most of the bus stop infrastructure in the study area is relatively simple and could be moved to accommodate rapid transit service without too great a relative expense. The GP Metro PULSE, however, is a high-quality passenger facility that would be costly and complicated to relocate, although GP Metro may be open to a relocation to accommodate rapid transit service. There is currently no database tracking which stops in the Greater Portland region have shelters or other amenities, though implementing such a database might be beneficial. GPCOG has been working to improve transit stops in the Greater Portland region since at least 2013, when the Regional Bus Sign and Shelter Study Report and Implementation Guide was published. Today, GPCOG administers a Transit Stop Access Project. The benefit of such a database has also been identified in the region’s ongoing Transit Together project.

Nelson\Nygaard Consulting Associates, Inc. | 3-10

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 3-7

Photographs of Varying Bus Stop Quality in the Rapid Transit Study Area

Bus stop quality in the rapid transit study area varies dramatically. Clockwise from top left: limited amenities at the USM Gorham Husky Line stop; a high-quality shelter on Congress Street in Downtown Portland, a basic bus stop on State Route 25 with landing pad, waste barrels, and bench; an indoor passenger waiting area (as seen from outside) at the GP Metro PULSE, just off Congress Street. Images source: Nelson\Nygaard. Nelson\Nygaard Consulting Associates, Inc. | 3-11

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Key Transit Hubs and Transfer Locations There are several key locations in the study area facilitating between routes in the GP Metro system, as well as connection points to other transit providers serving Southern Maine. Casco Bay Ferry Terminal 

Located on Commercial Street/Maine State Pier on the Portland Peninsula, Casco Bay Ferry Terminal is the hub for ferry service in Casco Bay. It is served by CBL ferries and GP Metro Route 8.

Downtown Transportation Center/GP Metro PULSE 

PULSE is located on Elm Street in Downtown Portland and is the primary transfer location for fixed-route bus service in Greater Portland, together with nearby Congress Street.



PULSE is directly served by GP Metro routes 2, 4, 5, 7, and the Husky Line, as well as RTP Lakes Region Explorer.



Congress Street adjacent to the PULSE is served by GP Metro routes 1, 8, 9A/9B, and BREEZ, SPBS routes 21, 24A, and 24B, and BSOOB Transit routes 60 and 70.



PULSE includes a physical transit center that is built into a multi-level parking garage. The enclosed transit center features a seated waiting area and customer service window. The PULSE has still not fully re-opened since the COVID-19 pandemic.

Westbrook Hub 

Located in Downtown Westbrook on Mechanic Street and William Clarke Drive, the Westbrook Hub serves GP Metro routes 3, 4, and Husky Line. The Westbrook Hub consists of an inbound stop at the Westbrook Firehouse on Mechanic Street with a bus pullout serving all three routes; an outbound stop across Mechanic Street with a shelter that serves routes 3 and 4; and an outbound stop on William Clarke Drive with a shelter that serves the Husky Line only.

Portland Transportation Center 

Located on Thompson’s Point and west of Downtown Portland, the Portland Transportation Center (PTC) offers connections between the Amtrak Downeaster, GP Metro Route 1 and BREEZ, and Concord Coach Lines intercity bus. The transportation center features an enclosed station with a seated waiting area, restrooms, vending machines, visitor and customer service information, a Concord Coach Lines ticket counter, and a parking lot with a passenger dropoff/pickup area. The Amtrak platform is connected to the station via an enclosed walkway. The GP Metro bus stop is located outside the station on a short walkway and includes a shelter.

Nelson\Nygaard Consulting Associates, Inc. | 3-12

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Portland Amtrak Station (future) 

The Amtrak Downeaster currently serves Portland at the PTC. However, planning is under way to relocate the station away from its current location on a rail spur and back to the mainline between Fore River Parkway and Congress Street in Portland’s Valley Street neighborhood.



A 2021 MaineDOT study2 included options for relocating the station to the area roughly bounded by Fore River Parkway, Valley Street, and Congress Street.

Other key transfer points: 

Maine Mall: BSOOB Transit Route 60, GP Metro routes 4 and 5, and SPBS routes 24A and 24B all serve Maine Mall in South Portland.



Brighton Avenue at Stevens Avenue: GP Metro routes 4, 9A/9B, and Husky Line all serve Brighton Avenue and Stevens Avenue in Portland’s Rosemont neighborhood.



Forest Avenue at Bedford Street: BSOOB Transit Route 70, GP Metro routes 2, 4, and Husky Line, and RTP Lakes Region Explorer all serve Forest Avenue at Bedford Street, adjacent to USM Portland campus.

Ridership Existing ridership volumes and patterns on the Gorham-Westbrook-Portland study corridor are important context for planning future rapid transit. This section documents changes in ridership since the onset of the COVID-19 pandemic, ridership by stop in the study area, and ridership distribution on key study area routes throughout the day.

COVID-19 Impacts on Ridership As occurred nationwide, GP Metro’s ridership decreased dramatically at the beginning of the COVID-19 pandemic in spring 2020, and has been slowly increasing since. Average systemwide GP Metro weekday boardings for April through June of 2022 were 74% of the same average from October through December 2019. While individual routes vary from the systemwide average, ridership on all routes remains below 2019 levels, except for the Husky Line, which was assessed only for October 2019 and April 2022 ridership (when USM is in session). Notably, Route 4 ridership has recovered at a faster rate than the systemwide average at 87% of pre-COVID ridership (Figure 3-8). The fact that Route 4 and Husky Line have performed better than the system at large shows strong 2 MaineDOT. May 2021. Portland Transportation Center (PTC) Customer and Transportation System Study.

<https://www.maine.gov/mdot/planning/docs/2021/PTC%20Study%20-%20Final%20Report%2005-102021%20.pdf>

Nelson\Nygaard Consulting Associates, Inc. | 3-13

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

underlying demand for those services and corridors in the study area. The resilience of the routes may be because they connect the downtowns of several communities, riders on the route are more transit-dependent than riders on other routes, and/or USM-affiliated riders are more likely to use transit than non-USM affiliates. Figure 3-8

GP Metro Change in Average Weekday Boardings, Pre-COVID to Current

107%

Husky Line 88%

BREEZ

86%

Route 9B - North Deering (c.clockwise)

88%

GP Metro Route

Route 9A - North Deering (clockwise) 94%

Route 8 - Peninsula Loop 70%

Route 7 - Falmouth

75%

Route 5 - JetPort - Maine Mall

87%

Route 4 - Westbrook 66%

Route 3 - Portland - Westbrook

63%

Route 2 - Forest Ave - Riverton 51%

Route 1 - Congress St - PTC Spring 2022 Avg Weekday Boardings

200

400

600

800

1,000

Average Weekday Boardings

Fall 2019 Avg Weekday Boardings

Notes: All routes except for the Husky Line are showing October through December 2019 average daily ridership, and April through June 2022 average daily ridership. Husky Line ridership was assessed for a different time period than other routes so the full impacts of COVID-19 on USM ridership could be examined; Husky Line average daily ridership in this chart is from October 2019 and April 2022 because school is in session for the entirety of both October and April.

Nelson\Nygaard Consulting Associates, Inc. | 3-14

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Ridership by Stop Understanding ridership levels at different stops can indicate where ridership responds most to current service levels. In the study area, the highest levels of transit ridership occur in downtown Portland, which is the densest place in the State of Maine, as well as where all GP Metro routes converge (Figure 3-9). Other takeaways regarding high-ridership locations in the study area include: 

The PULSE is the single highest-ridership GP Metro stop in the study area. Nearby stops along Congress Street, such as Maine Medical Center and on Park Avenue, also have significant boardings.



The USM Portland campus, which is just outside the Peninsula, is another highridership location.



There is strong ridership along the Brighton Avenue corridor, especially near Sagamore Village and Rock Row/Westbrook Crossing.



In Portland, the Stevens Avenue and Forest Avenue corridors exhibit moderate ridership, with many boardings at Deering and Casco Bay high schools.



In South Portland, the Maine Mall area features several higher-ridership stops which are isolated from Westbrook and Portland by low-ridership corridors.



In Westbrook, ridership is concentrated along the Main Street corridor between the Portland city line and the Westbrook Hub. The Westbrook Hub is a relatively highridership location served by three GP Metro routes; many of these boardings are transfers. Areas in Westbrook with fewer boardings include stops in Frenchtown as well as at IDEXX and Hamlet Park.



In Gorham, the USM Gorham campus is the highest-ridership stop. The other two stops in Gorham have relatively lower ridership.

Nelson\Nygaard Consulting Associates, Inc. | 3-15

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 3-9

Map Showing Average Daily GP Metro Boardings by Stop in Spring 2022

Nelson\Nygaard Consulting Associates, Inc. | 3-16

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Ridership by Time of Day Transit agencies generally see their highest ridership during morning and afternoon peak periods, but some routes or regions see high periods of ridership throughout the day, especially where fewer transit riders are office workers with 9:00 a.m. to 5:00 p.m. work schedules. Understanding the distribution of transit ridership throughout the day in the study area is important context for assessing the potential demand for rapid transit over the course of a day.

GP Metro Systemwide Figure 3-10 shows GP Metro systemwide average weekday ridership by time of day before COVID (2019), in 2021, and in 2022. In late 2019, ridership had a morning peak and a sharp afternoon peak during the 2:00 p.m. hour, which is earlier than many places in the country. The earliness of this peak might be related to specific shift work or school schedules in the area. In 2021 and 2022, these same general peak patterns persisted, but with the morning peak staying roughly the same and the afternoon peak noticeably lower than the 2019 peak. Ridership in 2021 and 2022 was steady between 7:00 a.m. and 5:00 p.m. Figure 3-10

Graph of GP Metro Ridership by Time of Day, 2019, 2021, and 2022

Average Weekday Ridership

700 600 500 400 300 200 100 0

Hour Fall 2021

Winter 2022

Spring 2022

Fall 2019

Note: Fall 2019 data are from October through December, fall 2021 data are from October through December, winter 2022 data are from January through March, and spring 2022 data are from April through June.

Nelson\Nygaard Consulting Associates, Inc. | 3-17

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Route 4 Pre-COVID, Route 4 had a major ridership peak in the 2:00 p.m. hour, and otherwise generally high ridership from 6:00 a.m. to 1:00 p.m. (Figure 3-11). Ridership tapered off after 4:00 p.m. and into the evening with few boardings after 7:00 p.m. In general, ridership has slowly recovered throughout the day on Route 4, with spring 2022 ridership exceeding prepandemic levels during some hours. In spring 2022, the 2:00 p.m. peak had flattened, and ridership was highest from about 7:00 a.m. through 5:00 p.m. Figure 3-11

Graph of Route 4 Ridership by Time of Day, 2019, 2021, and 2022

100 90

Average Weekday Ridership

80 70 60 50 40 30 20 10 0

Hour Fall 2021

Winter 2022

Spring 2022

Fall 2019

Nelson\Nygaard Consulting Associates, Inc. | 3-18

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Husky Line Pre-COVID, the Husky Line did not have traditional ridership peaks and instead exhibited moderate ridership beginning at 7:00 a.m. which gradually increased to its highest point in the 4:00 p.m. hour (Figure 3-12). There were about half as many boardings in the evening as during midday. These ridership patterns reflect the high proportion of USM students riding the route. Late 2021 ridership showed a similar trend, with most boardings occurring between 7:00 a.m. and 4:00 p.m. During this period, the highest hourly ridership was during the 12:00 p.m. hour, rather than during late afternoon. Early 2022 ridership trends were similar to late 2021, however there were fewer boardings during nearly all times. Figure 3-12

Graph of Husky Line Ridership by Time of Day, Pre-COVID vs. 2021-2022

Average Weekday Ridership

60 50 40 30 20 10 0

Hour Fall 2021

Winter 2022

Fall 2019

Note: Fall 2019 data are from October through December, fall 2021 data are from October through December, and winter 2022 data are from January through March.

Nelson\Nygaard Consulting Associates, Inc. | 3-19

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Opportunities 

The Husky Line, Route 4, and Downtown Portland all exhibit high ridership. Route 4 and the Husky Line have recovered better than average during the pandemic, indicating strong and resilient transit demand.



Especially in the last year, ridership is steady throughout the day, indicating strong demand outside of peak periods.



There is currently no frequent service in the study area and stop and transit priority infrastructure are lacking. Rapid transit on the corridor would represent a high degree of service improvement for riders.



There are three major transit centers in the City of Portland: the PTC, the PULSE, and the Casco Bay Ferry Terminal. One or more of these transit centers would likely be an essential part of any future rapid transit lines.

Nelson\Nygaard Consulting Associates, Inc. | 3-20

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

4 Road and Railway Characteristics A potential future rapid transit line in Gorham, Westbrook, and/or Portland should work together with existing transportation infrastructure. The line would likely occupy space in existing rail and/or roadway right-of-way, it would interact with existing pedestrian and bicycle infrastructure, and its planning would consider existing auto traffic volumes and chokepoints. This chapter of the Existing Conditions Report documents several key elements of the existing road and railway characteristics and identifies opportunities for rapid transit based on these existing conditions.

Roadway Characteristics The existing roadway conditions in the study area are essential context for this rapid transit study, as many rapid transit options explored by the study will likely consider alignments that operate within the existing roadway or modify the roadway. This section of the report documents existing roadway characteristics.

Number of Travel Lanes Most roadways in the study area are two-lane roads (Figure 4-1). Although rapid transit can operate on two-lane roads, roadways with more travel lanes are wider and so have more opportunities to install transit infrastructure like busways, bus-only lanes, queue jumps, transit stations, and passenger amenities. Several potential rapid transit corridors in the study area have more than two travel lanes in select sections, indicating opportunities for rapid transit infrastructure: 

Brighton Avenue from Larrabee Road to Woodford Street



Congress Street from Skyway Drive to Douglass Street



Forest Avenue between Marginal Way and Ocean Avenue



Marginal Way between Forest Avenue and Plowman Street



Park Avenue between Deering Avenue and Forest Avenue

Nelson\Nygaard Consulting Associates, Inc. | 4-1

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 4-1

Map Showing Number of Travel Lanes in Study Area

Nelson\Nygaard Consulting Associates, Inc. | 4-2

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 4-2

Map Showing Number of Travel Lanes in Gorham

Nelson\Nygaard Consulting Associates, Inc. | 4-3

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 4-3

Map Showing Number of Travel Lanes in Westbrook

Nelson\Nygaard Consulting Associates, Inc. | 4-4

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 4-4

Map Showing Number of Travel Lanes in Portland

Nelson\Nygaard Consulting Associates, Inc. | 4-5

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Congestion This congestion assessment relied on transit agency reports of high-congestion road segments, as well as MaineDOT average annual daily traffic (AADT) counts from 20191. These data show several key corridors and road segments in the study area with high levels of both auto volumes and congestion, where congested places are defined as places local transit operators have identified as negatively impacting speed and reliability (Figure 4-5). These include: Gorham 

Main Street in Gorham town center

Portland 

Congress Street at St. John Street



Congress Street between I-295 and Stevens Avenue, near the PTC



Congress Street at the I-95 interchange in Stroudwater, from Johnson Road to Skyway Drive



Forest Avenue, particularly at and around the interchange with I-295, and major segments in Woodfords Corner and Morrill's Corner



High Street between York and Congress streets



Portland Street/Oxford Street/Preble Street near the PULSE



State Street from the Casco Bay Bridge to Spring Street



Washington Avenue on the Portland Peninsula

South Portland 

Cummings Road from Gannett Drive to Running Hill Road in western South Portland

Westbrook 

Brighton Avenue through Nason’s Corner, from Warwick Street in Portland to Larrabee Road in Westbrook



William Clarke Drive through downtown Westbrook, as well as Main Street at Bridge Street, and at Spring Street at County Road in southern Westbrook

To the extent these corridors are considered for rapid transit alignments in this study, they are likely candidates for more intensive speed and reliability improvement measures, such as bus lanes or TSP.

1 GPCOG. August 16, 2019. MaineDOT Public Roads. <https://data-hub-

gpcog.opendata.arcgis.com/datasets/maine::mainedot-public-roads>

Nelson\Nygaard Consulting Associates, Inc. | 4-6

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 4-5

Map of Annual Average Daily Traffic and Congested Roadway Segments in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 4-7

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Pedestrian Mobility Most transit trips involve a rider walking to or from a bus stop, so the pedestrian environment plays a critical role in the success of transit and riders’ ability to access service. One important way to measure the quality of the pedestrian environment is intersection density. Intersection density is the number of street intersections in a given area, and serves as a measure of pedestrian network connectivity; greater network connectivity makes it easier to reach more destinations within a certain distance. In contrast, discontinuous street networks, large block sizes, and limited-access developments that prohibit transit vehicles and nonresidents all pose challenges to bus service design, as well as pedestrian accessibility. As a measurable feature of the built environment that correlates with walking, intersection density can provide insight into the current state of the pedestrian environment in the study area. The highest levels of intersection density in the study area are found: 

Throughout the Portland Peninsula



In the Oakdale, Rosemont, and Deering Center neighborhoods of Portland, particularly along Brighton Avenue and Deering Avenue



Along Brighton Avenue between Stevens Avenue and Rand Road



In parts of downtown Westbrook, particularly along Main Street between William Clarke Drive and Larrabee Road

Outside of these areas, most parts of the study area have modest or very low intersection density.

Nelson\Nygaard Consulting Associates, Inc. | 4-8

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 4-6

Map of Intersection Density in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 4-9

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Bicycle Mobility Access to transit is an essential component of high-quality rapid transit. Because some people access transit by bicycle, understanding the existing conditions of bicycle mobility in the study area is important. All existing on-street bicycle lanes in the study area are in Portland and South Portland, with multi-use paths in Gorham, Westbrook, and Portland (Figure 4-7). Although there are 17 miles of bicycle lanes and 14 miles of multi-use paths in the study area, these facilities do not provide a comprehensive network of bicycle access to major road and railways in the study area. In particular, there is a dearth of north-south oriented bicycle infrastructure which would provide access to a potential future east-west rapid transit line in the study area.

Portland Most bike infrastructure in the study area is on the Portland Peninsula, particularly along corridors approaching downtown Portland. St. John Street, Park Avenue, Deering Avenue, and Marginal Way have long segments of bike lanes, in addition to northern segments of Forest Avenue and Ocean Avenue. There are few continuous bike facilities through downtown Portland, and lanes are fragmented along many major corridors. There are few east-west facilities off the Peninsula, although the City of Portland is planning protected bicycle infrastructure on Brighton Avenue from approximately Rand Road to Falmouth Street. Other bike lanes and multi-use paths are planned in several locations, including Franklin Street, Elm Street/Preble Street, Congress Avenue west of Park Avenue, and along rail rightof-way connecting the Bayside Trail to the Fore River Parkway Trail.

Westbrook There is relatively little dedicated bicycle infrastructure in Westbrook. A half-mile multi-use path runs along the south bank of the Presumpscot River in downtown Westbrook, and a multi-use path is planned along a similar segment on the north bank of the river. Additional paths are planned along existing rail right-of-way across central Westbrook, as well as along Eisenhower Drive between Saco Street and Spring Street. A bike-accessible trail is planned along the north bank of the Presumpscot River in Westbrook, between the existing pedestrian bridge and the existing Mountain Division railroad bridge.

Gorham The Cross Town Trail is a 1.5-mile multi-use path developed on abandoned rail right-of-way in an east-west orientation through Gorham. East and west extensions of the trail are planned.

Nelson\Nygaard Consulting Associates, Inc. | 4-10

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 4-7

Map of Bicycle Facilities in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 4-11

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Safety Analysis Most transit riders access transit by walking, and many others reach transit by rolling in wheelchairs, biking, or using other non-auto active modes. Therefore, active transportation safety is an important part of the transit experience. Figure 4-8 uses about 10 years of crash data to show the density of bicycle- and pedestrianinvolved crashes in the study area. In general, crashes in the study area occur where there are many people walking and biking, and several key places stand out as high-density crash locations: 

Downtown Portland, the Old Port, and the Congress Street corridor on the Peninsula



Forest Avenue, especially at Morrill’s Corner, Woodfords Corner, and near USM



Main Street in Westbrook, especially downtown



Parts of Brighton and Warren avenues



Parts of Gorham Town Center

Nelson\Nygaard Consulting Associates, Inc. | 4-12

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 4-8

Map Showing Pedestrian and Bicycle Crashes in the Study Area (2010-2021)

Nelson\Nygaard Consulting Associates, Inc. | 4-13

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Railway Characteristics Much of the rail right-of-way in the study area is privately owned and includes a mix of active, inactive, and abandoned right-of-way (Figure 4-9). A key active freight and passenger rail line runs north-south through Portland, approximately parallel to St. John Street and Forest Avenue. The Amtrak’s Downeaster passenger service, which operates between Boston and Brunswick, shares that privately owned track with freight trains. Downeaster trains serve PTC using a spur from the mainline, on the mostly abandoned Mountain Division rail line. Abandoned and active rail also circumscribes the southern and eastern edge of the Portland Peninsula, following Commercial Street and the Eastern Promenade Trail. The southern rightof-way segment, which runs parallel to Commercial Street for about one mile, is inactive. The northern segment runs approximately from the Casco Bay Ferry Terminal and follows the Eastern Promenade Trail. This railway is currently used by the Maine Narrow Gauge Railway as a tourist attraction. An active portion of the mostly abandoned Mountain Division rail line runs between Portland Transportation Center and downtown Westbrook. This is largely privately owned, except for a small segment in downtown Westbrook, between Forest Street and Brown Street crossing over the Presumpscot River, which is publicly owned. The active portion of the Mountain Division has infrequent freight train activity. An inactive rail line runs east-west between Morrill’s Corner in Portland and downtown Westbrook, generally parallel to Warren Avenue. A small segment in downtown Westbrook is active. Right-of-way for an inactive rail line runs east-west across central Gorham and nearly into downtown Westbrook. Formerly served by the York and Cumberland Railroad, a 1.5-mile segment in eastern Gorham has been converted into the Cross Town Trail multi-use path, and the Town of Gorham is considering extending this path on more of the abandoned rail right-of-way.

Nelson\Nygaard Consulting Associates, Inc. | 4-14

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 4-9

Map of Rail Infrastructure in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 4-15

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Opportunities The existing conditions assessment of road and railway characteristics has identified several opportunities for rapid transit in the study area: 

Several study area roadways that may be candidates for rapid transit have considerable right-of-way available for rapid transit infrastructure, including parts of Brighton Avenue, Forest Avenue, Congress Street, and Park Avenue.



These corridors also have high levels of traffic and congested segments, meaning there are considerable opportunities for transit speed and reliability to be improved through rapid transit implementation.



Bicycle infrastructure is limited in the study area. Development of a rapid transit line may be an opportunity to leverage planning, design, and engineering work to build out an improved bicycle network for accessing the transit line.



There are several high-crash locations in the study area. Development of a rapid transit line may be an opportunity to leverage planning, design, and engineering work to improve active transportation safety for people accessing the transit line.



Inactive and lightly used active railways are possible opportunities for re-use as rapid transit right-of-way, especially on the Mountain Division line and parallel to Warren Avenue and Commercial Street.

Nelson\Nygaard Consulting Associates, Inc. | 4-16

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

5 Market Profile Understanding the residential, employment, and demographic makeup of an area is crucial to understanding the demand for transit. Where people live and work is central to understanding what kinds of transit services are feasible. Socioeconomic characteristics like income, race, and car ownership shed additional light on people’s likelihood of using transit and help to identify transit-critical populations. Figure 5-1 shows general population and transit-critical populations in the study area and for the relevant municipalities. Figure 5-1

Table Showing Transit-Critical Demographic Makeup of the Study Area Study Area

Gorham within Study Area

Westbrook within Study Area

Portland within Study Area

Total population

68,943

17,592

18,615

61,607

Racial/ethnic minority population

16%

11%

17%

Low-income population

31%

16%

28%

31%

Total households

30,682

6,018

8,064

28,015

Zero-vehicle households

15%

10%

15%

Total jobs

87,926

6,056

15,619

63,168

Low-income jobs

19%

22%

16%

18%

Source: U.S. Census Bureau. 2020 5-Year ACS. Tables B03002, C17002, B25044. 2019 LEHD.

Population Gorham, Westbrook, and Portland were home to almost 100,000 residents as of 2019, with 63% of those people living in Portland, 19% in Westbrook, and 18% in Gorham. The rapid transit study area includes parts—but not all—of all three municipalities, and includes a total of around 69,000 residents. When estimating transit demand, population density is more important than absolute numbers, as density indicates where many people live in proximity to one another and where transit is likely to have higher ridership (Figure 5-2). Densities also generally indicate land-use types more suited for transit, as denser areas tend to be more walkable and less auto-

Nelson\Nygaard Consulting Associates, Inc. | 5-1

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

oriented, with more limited access to parking and less reason and incentive to own and/or use a private automobile. More people living close to a transit service means more potential riders. The highest concentrations of residents in the study area are on the Peninsula and in nearby neighborhoods, with some clusters of density in core areas of Westbrook and South Portland. Places in the study area with the greatest population density are: 

The East End, West End, and Parkside neighborhoods on the Peninsula



Oakdale and Deering Center



Redbank Village in South Portland



Core areas of Westbrook, including the Frenchtown neighborhood and areas just south of the Presumpscot River



On the USM Gorham campus

Nelson\Nygaard Consulting Associates, Inc. | 5-2

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-2

Map Showing Population Density in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-3

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Socioeconomic Characteristics In addition to population density, socioeconomic characteristics often influence people’s propensity to use transit. Important socioeconomic characteristics that are related to transit propensity include race and ethnicity, income, and vehicle ownership.

Race and Ethnicity In the United States, race is highly correlated with income, generational wealth, and other social characteristics. As a result, people of color tend to ride transit at higher rates than white, non-Hispanic residents. Providing equal access to public transit is required by the Federal Transit Administration (FTA) under Title VI of the Civil Rights Act of 1964. In the study area, most residents identify as non-Hispanic white (84%), 8% identify as Black, 3% as Hispanic, 3% as Asian, and 3% as another race or as two or more races. Different racial/ethnic groups concentrate in different areas (Figure 5-3): 

Hispanic: Hispanic residents live throughout Portland and in core areas of Westbrook, as well as in northwest South Portland. There are concentrations of Hispanic residents in Westbrook neighborhoods just south of the Presumpscot River and around the USM Gorham campus.



White (non-Hispanic): White residents live throughout the study area and are highly concentrated in the East and West End neighborhoods on the Peninsula. White residents are also concentrated in central Westbrook, south of the Presumpscot River, and around USM Gorham campus.



Black: Black residents are most concentrated on the Portland Peninsula in East Bayside, West Bayside, and parts of the West End and Parkside, as well as Riverton. There are also high concentrations of Black residents in Frenchtown and across northwest areas of South Portland.



Asian: Asian residents are distributed across most Portland neighborhoods, but especially on the Peninsula. There are also limited concentrations of Asian residents across eastern areas of Westbrook, and around USM Gorham campus.



Other: Residents who identify as another race or ethnicity are concentrated in Portland in the East End, West End, and Parkside, as well as Nason’s Corner and Oakdale. The residents are also highly concentrated in central-western parts of Westbrook and in around USM Gorham campus.

Nelson\Nygaard Consulting Associates, Inc. | 5-4

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-3

Map Showing Race/Ethnicity Density in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-5

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Income Low-income residents tend to ride transit at higher rates because transit is typically their lowest-cost travel option. In Portland, transportation costs an average of $10,7501 a year for each household, including the cost of owning and maintaining a vehicle. Riding transit is typically a much more cost-effective way to travel than driving, and where transit service is best residents tend to spend less on transportation. Because low-income residents use transit more than an average resident, it is important to understand where low-income residents live. Most of the study area’s low-income residents live in Portland and central parts of Westbrook. The highest concentrations of low-income residents (Figure 5-4) are in: 

The Portland Peninsula, especially the East Bayside, West Bayside, and Parkside neighborhoods



Other Portland neighborhoods including Rosemont, Nason’s Corner, Riverton, North Deering, and Stroudwater



Core areas of Westbrook, particularly Frenchtown and surrounding neighborhoods



In the Redbank Village area of South Portland

1 Center for Neighborhood Technology. 2022. H+T Index. <ttps://htaindex.cnt.org/map/>

Nelson\Nygaard Consulting Associates, Inc. | 5-6

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-4

Map Showing Low-Income Population in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-7

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Zero-Vehicle Households Households with limited or no access to a vehicle, either by choice or because they cannot operate or afford a vehicle, are more likely to rely on transit. Zero-vehicle household rates tend to be higher in urban areas because walking, biking, and transit options make living without a car more viable, and restrictions and costs associated with parking a vehicle in a dense environment discourage car ownership. Zero-vehicle households also generally correlate with low-income households, especially in urban areas. Because people without access to a vehicle use transit more than an average resident, it is important to understand where these people live. In Cumberland County, about 7% of households do not have access to a vehicle. Downtown Portland has over three times the rate of zero-vehicle households than the regional average, at 25% (Figure 5-5). Zero-vehicle households are a large proportion of the population in (Figure 5-5): 

Downtown Portland, except for the East End and West End neighborhoods



Portland neighborhoods east of Stevens Avenue, especially Oakdale, Woodfords Corner, and Deering



Core areas of Westbrook, particularly the Frenchtown neighborhood

Nelson\Nygaard Consulting Associates, Inc. | 5-8

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-5

Map Showing Zero-Vehicle Households in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-9

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Socioeconomic Characteristics and Transit Propensity When many residents who are likely to ride transit cluster together, they influence the underlying demand for transit to an extent that is not captured when only considering population density. In a given location, groups of people from transit-supportive demographics may be too small individually to reveal significant demand for transit service. However, the clustering of people with multiple transit propensity characteristics increases transit demand. Similarly, in places where transit-supportive demographics are underrepresented, transit demand may be lower than population density alone suggests. To take this into account, this analysis uses a transit propensity factor to measure relative demand for transit. Transit propensity factors are created by comparing journey-to-work data for select demographics in Cumberland County (Figure 5-6). A value of one means a group is as likely to take transit as an average study area resident. Anything below one means a group is less likely to take transit than an average resident, and above one means a group is more likely to take transit. Figure 5-6

Table of Cumberland County Transit Propensity by Demographic

Category Race and Ethnicity

Household Vehicle Ownership

Household Income

Demographic Group

Transit Propensity

White alone (not Hispanic)

0.8

Black (not Hispanic)

8.8

Asian (not Hispanic)

1.2

Other race (not Hispanic)

2.3

Hispanic

2.3

No vehicle in household

9.8

One vehicle in household

1.1

Two or more vehicles in household

0.7

Fewer than $10,000

2.0

$10,000 - $14,999

1.7

$15,000 - $34,999

1.3

$35,000 - $49,999

0.6

$50,000 - $64,999

0.6

$65,000 - $74,999

0.4

$75,000 and more

0.6

Nelson\Nygaard Consulting Associates, Inc. | 5-10

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Differences in transit propensity in the study area are mostly based on vehicle ownership, race and ethnicity, and household income. 

People who are more likely to ride transit: Those with a household income under $35,000 per year, Black residents, Asian residents. Hispanic residents, residents who do not identify as a major racial/ethnic group or who identify as more than one race, and residents living in a household with no or one vehicle.



People who are less likely to ride transit: White residents, those with a household income of $35,000 per year or more, and those living in a household with two or more vehicles.

Every part of the study area is made up of different proportions of varying race/ethnicity, vehicle ownership, and income levels. When the values from Figure 5-6 are applied proportionally to the socioeconomic makeup of each area, an average resident’s relative likelihood to take transit can be better understood. Different communities in the study area have different overall levels of transit propensity based on their underlying demographics (see description Figure 5-7, and map Figure 5-8). Figure 5-7 Transit Propensity

Table of Transit Propensity by Study Area Community Study Area Communities

Very High Resident-Based Propensity

 Downtown Portland  Parts of Riverton and Morrill’s Corner  Riverside Street corridor  Frenchtown and west of Bridge Street in Westbrook  The western part of South Portland

High Resident-Based Propensity

 Libbytown, Nason’s Corner, parts of North Deering and Riverton in Portland  Central and eastern Westbrook, especially south and east of Presumpscot River  Central Gorham between School Street and Brackett Road

Average Resident-Based Propensity

 Southwestern Portland/Stroudwater  Northern Scarborough

Lower Resident-Based Propensity

 Deering Center and Rosemont in Portland  Southern Westbrook  Gorham outside of the town’s core areas

Nelson\Nygaard Consulting Associates, Inc. | 5-11

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-8

Map Showing Transit Index Factor in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-12

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Adjusted Population-Based Demand When demographic factors are considered in the context of population density-based transit demand, underlying demand is effectively higher in some areas and lower in others. This underlying demand can also be called the ‘adjusted population density’. Most of the dense parts of Portland and Westbrook, as well as part of South Portland, show an even higher demand for transit when demographic factors are considered than when population alone is considered. Underlying demand for transit is generally low elsewhere (Figure 5-9). The areas in the study area with the highest underlying demand for transit based on both population and demographic factors are: 

Neighborhoods across the Portland Peninsula and in the Oakdale neighborhood



Core areas of Westbrook, particularly the Frenchtown neighborhood



Redbank Village in South Portland



Core areas of Gorham in and around the USM campus and downtown



Some Portland neighborhoods outside downtown, such as Nason's Corner, Morrill's Corner, and parts of Riverton



Central areas of Westbrook just south of the Presumpscot River

Nelson\Nygaard Consulting Associates, Inc. | 5-13

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-9

Map Showing Adjusted Population Density in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-14

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Jobs and Economic Activity-Based Demand This section of the chapter describes demand for transit based on jobs and other forms of economic activity. In other words, it analyzes destinations people are trying to reach each day, as opposed to the places where people typically begin their trips each day.

Employment Density In 2019, Gorham, Westbrook, and Portland had about 85,000 jobs combined; 74% of these were in Portland, 18% in Westbrook, and 7% in Gorham, with employment concentrated in a handful of areas (Figure 5-10). About 17% of these jobs are in places that can likely support frequent transit, occupying only 2% of the total study area’s land area. This also means that most jobs in the study area are not in dense job districts. Commuting is the most frequent and regular trip that most people, including transit riders, make. As a result, employment density is a major indicator of transit demand. Employment density is also an important indicator of demand because it represents other types of ‘ancillary’ travel activity; customers, clients, patients, students, and visitors are also drawn to employment centers, just like employees. Some employment centers, like office buildings, warehouse districts, and manufacturing plants have less of this type of ancillary demand, while other employment centers, like hospitals and universities, generally have more of this type of ancillary demand. Generally speaking, as job density increases, the demand for transit grows, particularly for more frequent service. The highest concentrations of jobs in the study are in: 

Downtown Portland, particularly in the Old Port and West Bayside



Libbytown between Congress Street and Thompson’s Point



Along the Forest Avenue corridor from downtown to Morrill’s Corner



Portions of Stroudwater along Congress Street and adjacent to I-95



The Maine Mall area



Downtown Westbrook



Eastern Westbrook between Main Street and Route 25



The IDEXX/Abbott Labs industrial area along Eisenhower Drive in Westbrook



USM Gorham Campus



Downtown Gorham, along Main Street

Nelson\Nygaard Consulting Associates, Inc. | 5-15

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-10

Map Showing Employment Density in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-16

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Customers, Clients, Patients, and Students Many job sites attract travelers who are not employed at the site and can be broadly characterized as customers, clients, patients, and students. Many non-commute transit trips have destinations at these places, which include restaurants, grocery stores, and hospitals. Consequently, industries that attract customers, clients, patients, and students are associated with higher levels of transit ridership than other industries. Jobs in these industries are also less likely to be done remotely, and are more likely to support high levels of transit demand even as workers in other industries continue to work from home. Figure 5-11 shows the percent of jobs with customers, clients, patients, and students in the study area. Places with high numbers and percentages of these types of jobs are: 

Across most of Portland, with notable concentrations in downtown neighborhoods, Libbytown, areas of Nason’s Corner and Deering Center, and areas just north of Warren Avenue



Areas of Westbrook immediately north and south of downtown, as well as portions of southeastern and western Westbrook, and the USM Gorham Campus



The Maine Mall area in South Portland



Parts of Gorham Town Center

Nelson\Nygaard Consulting Associates, Inc. | 5-17

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-11

Map Showing Percent of Jobs with Customers, Clients, Patients, and Students in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-18

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Adjusted Employment Density Much like the resident socioeconomics described earlier in this chapter, different job types are associated with different levels of transit demand. Because industries with customers, clients, patients, and students create more demand, this market profile adjusts employmentbased transit demand by the following factors, which are based on national transit-ridership research (Figure 5-12, Figure 5-13). Figure 5-12

Table Showing Transit Demand Adjusted by Job Type Job Type

Demand Compared to Avg. of All Jobs (Average = 1)

Jobs with customers, clients, patients, and students

1.3

Jobs without customers, clients, patients, and students

0.9

When the industry types in Figure 5-12 are considered in addition to overall employment density, an even higher demand for transit emerges in Downtown Portland, particularly in the Old Port and West Bayside, and in South Portland. The largest concentrations of employment in the study area, after adjusting for industry types with greater transit demand, are: 

Downtown Portland, especially in the Old Port and West Bayside



Libbytown between Congress Street and Thompson’s Point



The Forest Avenue corridor, from downtown to Morrill’s Corner



Portions of Stroudwater along Congress Street and adjacent to I-95



The Maine Mall area in South Portland



Downtown Westbrook



Parts of eastern Westbrook between Main Street and Route 25



USM Gorham campus



Downtown Gorham along Main Street

Nelson\Nygaard Consulting Associates, Inc. | 5-19

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-13

Map Showing Adjusted Employment Density in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-20

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Off-Peak Commuters Almost 60% of workers in the study area travel to work in the a.m. peak period2, and for that reason, GP Metro provides its most frequent service during that period. This percentage is lower than it is in many major cities, likely due to the area’s strong tourist and medical industries and relatively few office jobs. About 40% of workers in the study area commute when service is less frequent, in the off-peak periods. For the purposes of the analysis in this market profile, peak periods are the morning (roughly 6:30 a.m. to 9:00 a.m.) and evening (4:00 p.m. to 6:00 p.m.). These are generally called ‘peak periods’ or ‘rush hours’ because they tend to have higher travel volumes. Workers who make one or more work trips outside peak periods are more likely to have a low income than peak-period commuters. They are also more likely to have shifts that change on a weekly—or even daily—basis. Workers with varied schedules often have variable transit travel times depending on the times and days they work. The best way to improve service for off-peak commuters is to provide more frequent offpeak service, which is typically a highlight of rapid transit. Areas where workers would benefit the most from more frequent off-peak and weekend service include (Figure 5-14): 

The Maine Mall/Redbank Village area



Gorham, on and around the USM campus



Downtown Portland, particularly West Bayside and the Old Port



Portland’s Oakdale neighborhood



Core areas of Westbrook, including Frenchtown, downtown, and other places south and east of the Presumpscot River



Central Gorham between South Street and New Portland Road

Spotlight on COVID-19 In the U.S. during 2020, rush-hour transit ridership reflecting a ‘nine-to-five’ schedule declined more significantly than ridership during any other time of the day. Many areas with high transit propensity also have high proportions of workers with off-peak schedules, and transit service should be frequent and convenient for these off-peak commuters, as well.

2 U.S. Census Bureau. ACS 2020 5-Year Estimates. Table B08302.

Nelson\Nygaard Consulting Associates, Inc. | 5-21

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-14

Map Showing a.m. Peak Commuter Residents in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-22

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Education Level The COVID-19 pandemic has started what some are calling the ‘work from home revolution’. This revolution, however, has been for those that can work from home. From May to December 2020, workers without a bachelor’s degree were far more likely to work most of their hours at their workplace than workers with a bachelor’s degree.3 Although the future of remote work is uncertain for office workers, certain industries will almost certainly continue to require in-person work, and worker education level remains one of the best proxies for determining if someone must conduct on-site work. In almost all parts of the study area, workers with a college degree do not exceed 40% of total workers. This means that, overall, there will likely continue to be high levels of travel demand in the Greater Portland area, as relatively few people will be able to work from home (Figure 5-15).

3 U.S. Census Bureau. ACS 2020 5-Year Estimates. Table B15003.

Nelson\Nygaard Consulting Associates, Inc. | 5-23

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-15

Map Showing Workers (at Their Job Site) with a College Degree or Higher, in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-24

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Land-Use Mix Although population and employment density are excellent indicators of transit demand, land-use mix is also a critical indicator. A mix of land use in one place can produce even more demand than any one type of land use alone. Places where people are working, living, shopping, going to appointments, or recreating typically see steady activity levels throughout the day, evening, and on weekends, whereas places with solely employment or residential density have shorter, more defined windows of high travel demand. Places with a combination of high population and employment density (shown in purple in Figure 5-16) are concentrated in Downtown Portland, particularly along the Congress Street corridor and in the West End neighborhood, as well as the Woodfords Corner and Morrill's Corner areas. Outside of central Portland, even in higher-density areas, most land use in the study area is either primarily residential (shown in red on the map) or primarily employment (shown in blue on the map).

Nelson\Nygaard Consulting Associates, Inc. | 5-25

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-16

Map Showing Population and Employment Land-Use Mix in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-26

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Composite Transit Demand Population density, socioeconomic factors, employment density, and industry type (i.e., which jobs attract customers, clients, patients, and students) each partially indicate potential transit demand, but the composite created when all these are combined and considered together creates the full picture of underlying transit demand (Figure 5-17 and Figure 5-18). Combining these factors also highlights areas with mixed land use that can generate particularly high transit ridership. This composite transit demand shows the highest underlying demand for transit is in on the Portland Peninsula. Other locations in the study area with high underlying demand include: 

The Deering Avenue and Forest Avenue corridors



Portland’s Oakdale neighborhood



Brighton Avenue near Portland’s Rosemont neighborhood



Core areas of Westbrook, especially in and around downtown and in Frenchtown



The USM Gorham campus



Clusters of demand in the Redbank Village area

Nelson\Nygaard Consulting Associates, Inc. | 5-27

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-17

Graphic of Inputs into Composite Density

Nelson\Nygaard Consulting Associates, Inc. | 5-28

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-18

Map Showing Composite Density in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-29

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Travel Flows For transit to be effective, it must take people from where they are to where they want to go. Examining existing travel flows is one way to estimate where the highest demand for travel is, and where direct or relatively easy connections should be made. Travel flows are typically defined as the number of trips between two areas. The more trips made between two areas, the higher travel demand is.

Weekday Vehicle Travel Flows Figure 5-19 shows travel flows across the study area and includes all trip types made by vehicles, including both transit and automobile trips.4 Downtown Portland has long been the primary business district and employment center in the region and, as a result, the largest numbers of trips are made to and from Downtown Portland. However, major travel flows also occur elsewhere in the study area. Flows of over 1,500 average weekday vehicle trips occur between Downtown Portland and: 

The East End/East Bayside



Ocean Avenue/North Deering/Morrill’s Corner



Oakdale



Rosemont/Deering Center



Stroudwater

Flows of over 1,000 weekday vehicle trips occur between: 

Downtown Portland and Libbytown



The East End and the West End



The West End and Oakdale



The West End and Libbytown



Oakdale and central/downtown Westbrook



Rosemont/Deering Center and Nason’s Corner



Nason’s Corner and eastern Westbrook



Eastern and western areas of central Westbrook



Downtown Westbrook and downtown/central Gorham



Gorham, south of downtown, and eastern Gorham

4 Travel flows are created from StreetLight fall 2019 data.

Nelson\Nygaard Consulting Associates, Inc. | 5-30

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-19

Map Showing Average Weekday Vehicle Travel Flows in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-31

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Equity Travel Flows Large travel flows between places with high percentages of transit-dependent residents are particularly important to serve with transit. Figure 5-20 shows large travel flows with high percentages of trips made by those in zero-vehicle and low-income households. These flows are called ‘equity travel flows’ in this section and are largely between: 

Downtown Portland and several neighborhoods, including the East End, the West End, Oakdale, Back Cove/North Deering, Riverton, and Libbytown



Downtown Portland and eastern parts of Westbrook



West End and the neighborhoods of East End, Back Cove/North Deering, and Libbytown



East End and Oakdale



Between eastern and western Westbrook outside of downtown

Nelson\Nygaard Consulting Associates, Inc. | 5-32

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-20

Map Showing Equity Travel Flows in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 5-33

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Density of Trips to Other Study Area Zones While the previous two maps showed zone-to-zone travel within the study area, Figure 5-21 shows the density of trips from each origin zone to other zones in the study area. Areas with high trip-origin densities are: 

The Portland Peninsula, particularly between Brackett and Franklin streets



The Forest Avenue corridor between downtown Portland and Woodfords Corner



Downtown Westbrook and surrounding neighborhoods

Areas with medium trip-origin densities are: 

Brighton Avenue corridor between downtown Portland and downtown Westbrook



Along Main Street in Westbrook and Warren Avenue in northern Portland



Areas of Gorham west of South Street

Nelson\Nygaard Consulting Associates, Inc. | 5-34

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 5-21

Map Showing Density of Trips to Other Study Area Zones

Nelson\Nygaard Consulting Associates, Inc. | 5-35

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Opportunities The market profile in this chapter reveals several opportunities for rapid transit service to improve mobility and access in Gorham, Westbrook, and Portland. 

People that may benefit the most from high-quality transit service are primarily concentrated in Portland and Westbrook.



Many jobs in the rapid transit study area do not conform to a ‘nine-to-five’ schedule and will most likely continue to be done in person. This creates demand for all-day transit service, not just during peak periods.



Land-use makeup and combined densities on the Portland Peninsula, areas along Forest Avenue, and Downtown Westbrook make these places strong candidates for frequent, all-day transit service, which rapid transit could provide.



Travel flows are particularly strong into Downtown Portland, suggesting that any future rapid transit line would likely need to serve the Portland Peninsula.



Large ‘equity travel flows’ occur between Portland and Westbrook but do not extend into Gorham.



Downtown Portland, the Forest Avenue corridor, areas of South Portland near the Jetport, and Downtown Westbrook and surrounding neighborhoods are places with highest densities of trip origins to other parts of the study area, meaning these areas are highly connected.

Nelson\Nygaard Consulting Associates, Inc. | 5-36

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

6 Land-Use Assessment Land use is one of the most important drivers of transit demand, so understanding current land use in Gorham, Westbrook, and Portland is essential to assessing rapid transit in the study area. This chapter looks at land use, zoning, key trip generators, and major planned land-use changes. In this evaluation, local land use data from each of the study municipalities was used. Property assessment records and use codes were made consistent across each city and use codes were simplified and grouped categorically for mapping purposes.

Current Densities and Land Use This section summarizes overall land use in the study area and in each study municipality, using tables, maps, and prose, and ties findings to the market profile in Chapter 5. The distribution of existing land uses by use category varies among the study municipalities, but most of the study area land is in the study’s namesake communities of Gorham, Westbrook, and Portland. In the study area, 7,014 acres (or 28%) of land are in Gorham, 5,132 acres (or 21%) are in Westbrook, 1,925 acres (or 8%) are in South Portland, 3,167 acres (or 13%) are in Scarborough, and 7,491 acres (or 30%) are in Portland (Figure 6-1, Figure 6-2).

Study Area Portland has the most developed land in the study area, followed by Westbrook and Gorham, respectively. The most-common land uses are higher- and low-density residential, at 23% and 21% of the study area, respectively. Much of the higher-density residential is in Portland, and lower-density residential is more common in Gorham. Although the disparity between low- and high-density residential parcel count is large, the smaller lot size in Portland means total acreage is roughly equivalent. Commercial, civic, and industrial uses are the next-most common land use, and are also dominant in Portland compared to Westbrook and Gorham. Note: Small parts of South Portland and Scarborough are in the study area, as there are potential rapid transit alignments with access-sheds that may reach these communities. This chapter does not closely examine existing land use or zoning in these communities, since any rapid transit corridor advanced by this study will primarily serve Gorham, Westbrook, and/or Portland; the corridor’s relationship with South Portland and Scarborough would be ancillary. If a rapid transit alternative that interacts with South Portland or Scarborough is advanced, more detailed land use assessment would be conducted.

Nelson\Nygaard Consulting Associates, Inc. | 6-1

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 6-1

Summary Table of Existing Land Uses

Land Use Category

Number of Parcels

Total Acres of Parcels

Pct. of All Parcels in Study Area

Pct. of All Land Acreage in Study Area

Pct. of Parcels in Gorham Part of Study Area*

Pct. of Parcels in Westbrook Part of Study Area*

Pct. of Parcels in Portland Part of Study Area*

Residential, Low Density**

11,272

5,290

55%

22%

54%

20%

26%

Residential, Higher Density

4,450

1,739

22%

96%

Commercial

1,550

4,375

18%

75%

Civic

974

4,381

18%

17%

15%

68%

Vacant

927

790

43%

55%

Developable

413

1,258

49%

45%

Industrial

357

3,074

13%

27%

54%

19%

Unknown/Other

224

968

13%

40%

Recreation/Open Space

152

1,267

67%

13%

20%

Lab/R&D

181

98%

Mixed Use

94%

Agriculture

345

100%

20,470

23,735

100%

Total

* These columns show the percentage of each land use in each municipality, within the study area. Not all of each municipality is included in the study area. ** The Low-Density Residential category includes all single-family units. Higher-Density Residential is categorized as more than one unit. Note: Some land-use data may include duplicate parcel polygons for certain uses, which may have an impact on analytical precision for those uses.

Nelson\Nygaard Consulting Associates, Inc. | 6-2

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 6-2

Map of Existing Land Uses across Study Area

Nelson\Nygaard Consulting Associates, Inc. | 6-3

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Gorham The most common land use in the Gorham part of the study area is low-density residential housing (Figure 6-3, Figure 6-4). The next-most common land uses are industrial, recreation/open space, and civic uses, including hospitals and institutions, such as USM Gorham. There are only 13 acres of vacant land in the study area in Gorham. Figure 6-3

Table of Existing Land Uses in Gorham Part of Study Area

Land Use Category

Parcels

Acres

Percent of Gorham Study Area

Residential, Low Density

1,674

2,585

36%

Civic

535

1,099

15%

Residential, Higher Density

472

358

Commercial

102

302

Industrial

842

12%

Developable

610

Recreation/Open Space

844

12%

Unknown

154

Agriculture

345

Mixed Use

Vacant

Lab/R&D

Total

3,125

7,153

100%

Nelson\Nygaard Consulting Associates, Inc. | 6-4

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 6-4

Map of Existing Land Uses in Gorham Part of the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 6-5

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Westbrook The most common land use in the Westbrook part of the study area is industrial, owing to the manufacturing and industrial park districts that dominate County Road, Eisenhower Drive, and Warren Avenue (Figure 6-5, Figure 6-6). The next-most common uses in the study area are low-density residential, commercial, high-density residential, and civic. Much of the commercial land is concentrated downtown in the city center district and in the mall district on Larrabee Road, where the Westbrook Crossing and Rock Row malls are. Figure 6-5

Table of Existing Land Uses in Westbrook Part of the Study Area

Land Use Category

Parcels

Acres

Percent of Westbrook Study Area

Residential, Low Density

2,659

899

15%

Residential, Higher Density

598

Commercial

222

807

14%

Civic

167

646

11%

Industrial

158

1,645

28%

Unknown

810

14%

Developable

571

10%

Vacant

340

Mixed Use

Recreation/Open Space

158

Lab/R&D

Agriculture

4,089

5,977

100%

Total

Note: Almost all the “unknown” land uses in the Westbrook part of the study area include right-of-way, water, paper streets, or other easements.

Nelson\Nygaard Consulting Associates, Inc. | 6-6

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 6-6

Map of Existing Land Uses in Westbrook Part of the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 6-7

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Portland High-density residential buildings are the most common land use in the Portland part of the study area (Figure 6-7, Figure 6-8). Because the Portland Peninsula is the center of the region and is a large part of the study area, commercial and civic uses are the next-most common land uses, followed by low-density residential housing. Figure 6-7

Table of Existing Land Uses in Portland Part of the Study Area

Land Use Category

Parcels

Acres

Percent of Portland Part of Study Area

Residential, Low Density

6,217

1,362

13%

Residential, Higher Density

3,888

1,074

11%

Commercial

1,226

3,266

32%

Vacant

836

437

Civic

743

2,974

29%

Developable

230

Unknown/Other

104

587

Industrial

178

Lab/R&D

254

Recreation/Open Space

Mixed Use

Agriculture

13,426

15,116

100%

Total

Nelson\Nygaard Consulting Associates, Inc. | 6-8

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 6-8

Map of Existing Land Uses in Portland Part of the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 6-9

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Current Zoning Zoning determines how land can be developed in a municipality and so is an important indicator of potential land use. Zoning is especially important when assessing the potential for transit-oriented or transit-supportive land uses, as this rapid transit study will do. Zoning can encourage transit-friendly land uses that concentrate people, and jobs near rapid transit, or it can discourage them by only allowing uses like low-density housing near transit.

Methods To better understand current zoning in the study area, zoning information for each municipality was compiled and categorized by the predominant use type allowed in each district. Zoning categories were standardized and simplified to compare districts across municipalities, as districts are not referred to in the same way in different municipalities, nor are allowable uses categorized the same way (Figure 6-9, Figure 6-10) This analysis is a ‘base-case’ assessment and does not thoroughly account for overlay districts, although some overlays may encourage transit-supportive uses in an area and are noted. This ‘base-case’ assessment will account for what can be developed by right only. Note: Zoning categories in this analysis and in the following maps only represent the predominant allowable uses, instead of the full spectrum of land use classifications allowed by right in the district.

Nelson\Nygaard Consulting Associates, Inc. | 6-10

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Study Area Zoning distribution by predominant use category varies among the study area municipalities. In general, more of Gorham is zoned for low-density residential uses than Westbrook and Portland. While the low-density residential zones do allow for limited other uses by right, the primary land use within these areas will be single-family homes or duplexes which are not generally supportive of rapid transit. Figure 6-9

Summary Table of Study Area Zoning

Zoning Category

Acres

Percent of Study Area

Percent in Gorham

Percent in Westbrook

Percent in Portland

Residential, Low Density

8,983

47%

78%

41%

21%

Industrial

3,560

19%

10%

37%

15%

Mixed-Use

2,282

12%

13%

19%

Residential, Higher Density

1,588

22%

Recreation/Open Space

1,229

17%

Rural

675

Commercial

661

Conditional

101

Total

19,079

100%

Note: Zoning polygons were included in this analysis if their centroid fell within the study area.

The zoning analysis shows that 55% of the study area in Gorham, Westbrook, and Portland is zoned as residential, nearly all of which is low-density residential. Industrial land makes up 19% of zoned land, followed by 12% mixed-use district. Mixed-use districts allow for a greater variety of land uses—for example, both residential and commercial uses—and community amenities to be developed and located in close proximity, encouraging a carlight lifestyle supported by transit use, walking and/or bicycling. High-density residential is 8% of zoned land in the study area, and just 3% of land is zoned for commercial use.

Nelson\Nygaard Consulting Associates, Inc. | 6-11

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 6-10

Map of Zoning in Study Area

Nelson\Nygaard Consulting Associates, Inc. | 6-12

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Gorham Large low-density residential districts cover much of Gorham in the study area (Figure 6-11, Figure 6-12). There are industrial zones north of New Portland Road and east of Brackett Road, surrounding Hutcherson and Sanford drives. The Gorham Industrial Park is located at the western end of this district. Mixed-use districts surround Main Street near USM Gorham, which also includes a Small Dwelling Unit Overlay District that enables higher residential density in the downtown area in converted buildings built in 1925 or earlier by allowing unit sizes as small as 400 square feet for a studio or 1,000 square feet for a four-bedroom unit. There are a limited number of buildings in the overlay district that were built in 1925 or earlier. Gorham’s comprehensive plan aims to concentrate development in Gorham Village and Little Falls because these areas are served by public water and sewer infrastructure. The Gorham Development Transfer Overlay District allows developers to exceed residential densities allowed in the overlay’s base zoning districts by paying a transfer fee for each additional unit and setting aside a minimum of 10% of the gross parcel area for open space; fees are then used to buy and preserve rural, riparian, and scenic land elsewhere in Gorham. This overlay does not allow density above one unit per 6,000 square feet of parcel size in a non-rural zoning district (and minimum lot size of 15,000 square feet for a two-family dwelling and 20,000 square feet for a multi-family dwelling), which is a maximum of seven units per acres. Figure 6-11

Summary of Zoning in Gorham Part of Study Area

Zoning Category Residential, Low Density

Acres 5,532

Percent in Gorham 78%

Industrial

688

10%

Rural

406

Mixed-Use

273

Commercial

157

Residential, Higher Density

Conditional

Recreation/Open Space

7,056

100%

Total

Nelson\Nygaard Consulting Associates, Inc. | 6-13

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 6-12

Map of Existing Zoning in Gorham Part of Study Area

Nelson\Nygaard Consulting Associates, Inc. | 6-14

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Westbrook Westbrook’s zoning is similar to Gorham’s in that much of the land in the study area is zoned as low-density residential and surrounds a mixed-use district at the center of the city (Figure 6-13, Figure 6-14). In the ‘Heart of Downtown’ area within the Village Review Overlay Zone, ground-floor commercial and mixed-use upper floors (including residential) are required of new construction, and buildings on Main Street or a side street must have their main entrance oriented toward Main Street to protect the existing character of the downtown and enhance the pedestrian environment. The Village Review Overlay Zone provides architectural design guidance to property owners in the zone, requiring city staff or planning board approval for exterior changes/additions to an existing building or new construction. While the Heart of Downtown overlay district may increase the transit-supportive nature of development in the area, it is possible the Village Review Overlay Zone restricts the area’s ability to develop quickly, if staff and/or planning board are not supportive of higher-density development. A large mixed-use district off I-95 and Route 25 includes the Rock Row development that plans to dramatically increase office, retail, service, and residential development in the city. This Rock Row mixed-use district is one of twelve Contract Zones enacted throughout the City that are authorized because the unusual nature or unique location of the development proposed necessitates negotiated agreement between the City Council and property owners. Combined, these mixed-use districts cover 13% of Westbrook in the study area. Westbrook also includes large industrial zones to the south (37% of land) along County Road and Spring Street and near Cumberland Street and Warren Avenue. Figure 6-13

Summary of Zoning in Westbrook Part of Study Area

Zoning Category

Acres

Percent in Westbrook

Residential, Low Density

1,980

41%

Industrial

1,789

37%

Mixed-Use

649

13%

Rural

268

Conditional

101

Commercial

Recreation/Open Space

Residential, Higher Density

4,855

100%

Total

Nelson\Nygaard Consulting Associates, Inc. | 6-15

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 6-14

Map of Existing Zoning in Westbrook Part of Study Area

Nelson\Nygaard Consulting Associates, Inc. | 6-16

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Portland Within the study area in Portland, 43% of land is zoned for residential, roughly evenly split between low-and high-density zones located throughout the city, including in the R-6 and R-7 overlay zones that encourage higher-density multi-family dwellings with access to transit for a variety of income levels and household types (Figure 6-15, Figure 6-16). The R-6 and R7 overlays are unlikely to have a tremendous impact on transit-supportive development, however, as they together only cover 12 acres of the Portland Peninsula. There are mixed-use districts downtown and along Forest Avenue and Warren Avenue, making up nearly 20% of zoned land in the study area in Portland. Industrial zones cover 17% of the study area in Portland, and are concentrated between Franklin Street and Washington Avenue, as well as the southern and northern ends of the north-south rail line in the study area. Commercial districts make up 7% of the land and are primarily on Brighton Avenue surrounded by lowerdensity residential districts, and on Congress Street adjacent to higher-density residential and mixed-use districts. Figure 6-15

Summary of Zoning in Portland Part of Study Area

Zoning Category

Acres

Percent in Portland

Residential, Higher Density

1,588

22%

Residential, Low Density

1,471

21%

Mixed-Use

1,359

19%

Recreation/Open Space

1,197

17%

Industrial

1,083

15%

Commercial

468

Conditional

Rural

Total

7,166

100%

Nelson\Nygaard Consulting Associates, Inc. | 6-17

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 6-16

Map of Existing Zoning in Portland Part of Study Area

Nelson\Nygaard Consulting Associates, Inc. | 6-18

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Key Trip Generators A ‘key trip generator’ is a place that typically attracts many trips on an average day, and is sometimes a place that is more likely to attract these trips via transit. As mentioned in the market profile chapter, job sites that attract customers, clients, patients, and students tend to drive transit demand more than job sites that do not, and can be considered a type of key trip generator. These jobs are also less likely to be done remotely and will likely maintain high levels of demand even as work from home continues in other industries. Similarly, trips to meet basic needs (such as food shopping or medical appointments) will remain essential and unlikely to be displaced. In addition, major activity centers such as performance venues and conference centers can support transit ridership for routine trips and for trips that occur only for major events. Key trip generators are concentrated on the Portland Peninsula, where many major event centers, grocery stores, and medical facilities are located. There are grocery stores near Rock Row, downtown Westbrook, and in the center of Gorham. Additionally, other large employer campuses are scattered across Westbrook outside of the Downtown Portland core, including Sappi, IDEXX, Unum, and Abbott Labs (Figure 6-17).

Nelson\Nygaard Consulting Associates, Inc. | 6-19

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 6-17

Map of Key Trip Generators in the Study Area

Nelson\Nygaard Consulting Associates, Inc. | 6-20

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Anticipating Future Density and Land Use There are several ongoing planning and real-estate development efforts and initiatives that may impact transit demand in the study area. In some cases, these projects will likely increase demand for transit, or change the way transportation connections occur. Plans highlighted below call for millions of square feet of new development within walking distance of potential rapid transit corridors.

ReCode Portland ReCode Portland is the first holistic rewriting of the City of Portland’s zoning code in over 50 years. ReCode Portland aims to create a more user-friendly code that advances the goals of the City’s comprehensive plan, Portland’s Plan 2030. The comprehensive plan identified several nodes under three categories (Evaluate, Transform, and Enhance) and corridors that are described as “priority growth areas” that are “appropriate for new development” (Figure 6-18).1 These places include several corridors and nodes within the rapid transit study area: 

Congress Avenue at Stevens Avenue



Downtown Portland



Eastern, central, and western waterfronts



Morrill’s Corner



Thompson’s Point



Valley Street



West Bayside



Woodfords Corner

“Evaluate” nodes includes those that could serve as centers for complete neighborhoods that address neighborhood needs, accommodate growth, and attract potential improvements. “Transform” nodes include those that need comprehensive revisioning. “Enhance” nodes include those that are awaiting or experiencing plan implementation already.

1 City of Portland. 2017. Portland’s Plan 2030. pp. 82-84. <https://content.civicplus.com/api/assets/7c660148-

e0a2-4eca-8ea5-4a98b81d8f18?cache=1800>

Nelson\Nygaard Consulting Associates, Inc. | 6-21

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Figure 6-18

Map of Portland's Plan 2030 Priority Nodes and Corridors

Source: City of Portland. 2017. Portland’s Plan 2030. p. 86. <https://content.civicplus.com/api/assets/7c660148-e0a2-4eca-8ea5-4a98b81d8f18?cache=1800>

Nelson\Nygaard Consulting Associates, Inc. | 6-22

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Rock Row Rock Row is a major mixed-use development planned in the rapid transit study area in Westbrook, just west of I-95 and south of Brighton Avenue (Figure 6-19). The completed Phase One development at the project site consists of a typical auto-oriented shopping mall with grocery and other commercial/retail uses that may also serve transit riders. Planned Phases Two through Four are proposed to include approximately 400,000 square feet of office space, 200,000 square feet of medical space, 300,000 square feet of retail, a 20,000 square-foot food hall, 20+ restaurant spaces, 750 apartments, and an 8,200-attendee capacity conference center.2 If Rock Row is completed as planned, the development will likely generate considerable demand for transit. Figure 6-19

Map of Rock Row Development Site

Parcel source: Press Herald. March 2019. Rock Row Conceptual Site Plan. <https://www.pressherald.com/2019/03/28/rock-row-seeks-waivers-on-zoning-limits/>. Aerial photography source: Nearmap. 2 Waterstone Properties. 2022. Rock Row. <https://rockrow.com/>

Nelson\Nygaard Consulting Associates, Inc. | 6-23

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Portland Peninsula Development Although there are real estate development plans for neighborhoods throughout the rapid transit study area, the Portland Peninsula has the greatest concentration of development projects in the study area, due in part to Portland’s Plan 2030 (Figure 6-20). The Plan identified several parts of the Portland Peninsula as places and priority corridors where development should occur and enhance what is already downtown. In addition to smaller and medium-size residential projects, there are several major commercial, institutional, and/or mixed-use projects being planned for the Peninsula. Most—if not all—of these projects are within walking distance of a potential rapid transit corridor. Figure 6-20 Map of Real-Estate Development Planned and Underway on/near the Portland Peninsula

Note: Several projects included in this map are under construction and/or near completion.

Nelson\Nygaard Consulting Associates, Inc. | 6-24

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Portland Amtrak Station The Amtrak Downeaster’s current Portland stop is at the Portland Transportation Center (PTC), which is an intercity bus and rail station owned by Concord Coach Lines and jointly operated by Concord Coach Lines and NNEPRA. The location of the PTC is approximately three-quarters of a mile from the Downeaster mainline, requiring stops at the PTC to deviate from the train’s primary route, increasing travel times and introducing possible reliability problems. To improve Downeaster service, a relocation of the Portland Amtrak station has been under consideration for several years. A 2021 MaineDOT study3 evaluated several potential mainline locations for a Portland Station and recommended a more detailed evaluation of Alternative 8, which would locate Portland Station along both the mainline and Congress Street, which is the primary bus corridor on the Portland Peninsula, and part of the rapid transit study area. NNEPRA is currently exploring station relocation in the study area shown in Figure 6-21, and it is uncertain where the station will eventually be located. An upcoming feasibility study will likely help finalize station location. Figure 6-21

Recommended Portland Station Site for Additional Evaluation

Source: Provided by NNEPRA. 3 MaineDOT. May 2021. Portland Transportation Center (PTC) Customer and Transportation System Study.

<https://www.maine.gov/mdot/planning/docs/2021/PTC%20Study%20-%20Final%20Report%2005-10-2021%20.pdf>

Nelson\Nygaard Consulting Associates, Inc. | 6-25

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Gorham Industrial Park The Town of Gorham is in the process of expanding its Main Street/Route 25 industrial park by 141 acres, which could produce 24 additional five-acre commercial and/or manufacturing lots (Figure 6-22).4 This expansion, which would be located directly off one of the potential rapid transit corridors in the rapid transit study area, could increase employment in the area and associated transit demand. Although industrial park-type land uses are typically not major transit ridership generators, an expansion of this scale would be likely to result in increased transit demand, assuming there are safe and comfortable active transportation connections from Main Street/Route 25 to employers in the industrial park. Figure 6-22

Map of Planned Gorham Industrial Park Expansion

Parcel source: Town of Gorham. January 2021. Gorham Industrial Park Site Plan. <https://gorhammaine.org/wp-content/uploads/2021/09/UPDATED-Overall-Site-Plans-Gorham-IBP-projectSLR-Logo-1.pdf>. Aerial photography source: Nearmap. 4 Town of Gorham. 2020. Economic Development Special Advertising Section.

<https://gorhammaine.org/wp-content/uploads/2021/09/FB20_EDCProfile_Gorham-FINAL-1.pdf>

Nelson\Nygaard Consulting Associates, Inc. | 6-26

Gorham-Westbrook-Portland Rapid Transit Study | Existing Conditions Report Greater Portland Council of Governments

Opportunities Current and likely future land use conditions are key opportunities for rapid transit in the Gorham-Westbrook-Portland rapid transit study area. Opportunities uncovered in this chapter of the market profile are: 

There are diverse land uses at either end of a potential Gorham-Westbrook-Portland rapid transit alignment, at both USM Gorham and on the Portland Peninsula.



Multiple alignments through the Peninsula bisect dense neighborhoods of residential and commercial land uses with significant ridership potential. The ReCode Portland process will likely concentrate growth in these areas, further strengthening the area’s compatibility with rapid transit.



Existing zoning creates mixed-use districts along Forest Avenue (Route 302), Woodford Street, and Brighton Avenue/Main Street (Route 25) that allow for redevelopment and build-out of a transit-friendly mix of land uses.



In Gorham, higher-density development is encouraged to locate nearer to sewer and water infrastructure, which is largely near the Gorham Town Center and USM.



The Rock Row development is zoned to add substantial ridership potential in the center of the study area, which would further strengthen the market potential of a rapid transit line in the area.



Development occurring on the Portland Peninsula is increasing potential future demand for rapid transit, especially near the Eastern Waterfront and on Congress Street.

Next Steps The information collected and assessed in this Existing Conditions Report will be used throughout the Gorham-Westbrook-Portland Rapid Transit Study. The first application of findings from existing conditions work will be during the project’s public scoping outreach period, which is currently planned to occur in September 2022. In this outreach period, select findings from existing conditions and environmental analysis work will be shared with the public for their vetting and input. As an example, a map of the study area with key destinations could be shared with the public to ensure this existing conditions work hasn’t misidentified or missed key destinations in the study area. Later in the project, existing conditions data will be used to develop corridor and modal alternatives, which will then be assessed using qualitative and quantitative methods. Things like current zoning will be used to assess the development potential of land near potential rapid transit corridors, and the market analysis will be used to estimate future demand for transit on potential rapid transit corridors.

Nelson\Nygaard Consulting Associates, Inc. | 6-27