VISION 2043

Bangor Area Comprehensive Transportation System Metropolitan Transportation Plan

Storymap Introduction

INTRODUCTION

BACTS Introduction

What is the Metropolitan Transportation Plan?

The BACTS region.

The Metropolitan Transportation Plan (MTP) is a document that provides a vision for the future transportation system in the BACTS area. This includes a review of area infrastructure such as roads, bridges, bike/ped facilities, buses, and trucks. The MTP process includes hearing from the public to plan and prioritize funding for future transportation improvements.

BACTS Overview

Metropolitan Planning Organizations (MPOs) are local transportation planning agencies that are responsible for creating regional transportation plans like the MTP. The Bangor Area Comprehensive Transportation System (BACTS) includes all or part of Bangor, Brewer, Penobscot Indian Island, Veazie, Bradley, Hampden, Hermon, Milford, Old Town, Orono, and Orrington.

The Planning Process

Review the VISION 2043 report and leave your feedback below!

REGIONAL CONTEXT

Population

The BACTS region, encompassing 11 communities, ranks as the third-largest urban center in the State of Maine. Covering a total area of 318 square miles, it is home to a population of 85,470. Within this region, the BACTS area itself spans approximately 40 square miles and has a population of 65,585 people. The map on the right illustrates the population density specifically within the BACTS planning area.

The region population continues to grow but at a slower pace over the last 40 years. This trend of minimal growth is expected to continue through 2050. Rural communities saw a slight increase in population in this time and Bangor has had a decrease in population. This tells us that people are choosing to move to suburb communities to enjoy a more rural lifestyle while taking advantage of job opportunities located in the nearby city. With that, more people are driving instead of public transportation. Additionally, climate-induced population movements may lead to an increase in the overall population of Maine, as individuals seek out a more comfortable and stable climate.

Population in the BACTS area is getting older. This trend is expected to continue through 2050. An aging population will have impacts on the transportation system and workforce.

Employment

The highest job density is in downtown Bangor. This is expected because Bangor is one of the largest cities and transportation centers in the state. The area's largest employers include healthcare and General Electric. Over 66% of residents have a college education.

Many people live and work within the BACTS region, but there is a large number of workers who commute to work from outside of the BACTS area. The map to the right shows the job density in the BACTS area.

Based upon the most recently available data from U.S. Census Bureau on county-to-county commuter patterns (2019 Longitudinal Employer-Household Dynamics), the BACTS area is generally self-sustaining with 67.3 percent of its local labor force residing within the area.

In the BACTS area, the majority of workers drive alone. The average commute time to work is 18 minutes.

 

Land Use + Development

The relationship between land use and transportation is very important to understanding the regional transportation system.

Between 2000 and 2010, almost every urban area in the country expanded with urban sprawl, including Bangor. The negative results mean increased traffic congestion, air pollution, and energy consumption. It also decreases accessibility to a high density of jobs. The costs of providing community services, such as public transit and alternative transportation facilities have risen as homes and businesses spread farther apart. Local governments are forced to provide widely spaced inefficient services. The BACTS area must adopt sustainable patterns of development that foster a healthy relationship between land use and the transportation system. An aging population needs alternative transportation modes with concentrated land uses.

The map to the right shows the land uses in the BACTS area.

CONDITIONS AND NEEDS

Conditions and Need Public Meeting Materials:

BACTS Roadways

Roadways are the largest part of the transportation system in the BACTS area. The BACTS area is well integrated in the regional highway system. Bangor serves as the intersection of two major highways, I-95 and I-395, which are supported by state and local roads. Three major bridges connect Bangor to Brewer including the Joshua Lawrence Chamberlain Bridge (carrying US 1A), the Penobscot River Bridge (carrying SR 15), and the Veterans Remembrance Bridge (carrying I-395).

Federal Functional Classification. For planning purposes, roadways are classified according to two functions, mobility and access. Higher speeds and fewer intersections are preferred for mobility, while lower speeds and more frequent intersections support access. Roadways are classified by the role they play in the overall transportation network, known as Functional Classification. BACTS receives federal funding based on the total mileage for each classification within the highway network. The map to the right shows the federal functional classification in the BACTS area.

National Highway System. The National Highway System (NHS) is a network of strategic roadways important to the nation’s economy, defense, and mobility. The NHS is developed by the federal government in coordination with each state, local officials, and MPOs. More than one-third of all federal transportation funds are dedicated to the maintenance and improvement of NHS roads. The NHS includes the following subsystems of roadways:

  • Interstate
  • Other Principal Arterials
  • Strategic Highway Network
  • Major Strategic Highway Network Connectors
  • Intermodal Connectors

The map to the right shows the NHS in the BACTS area.

Traffic + Congestion

Congestion in the transportation network can have a significant effect on freight movement. One of the most important factors in traffic and freight congestion are bottlenecks on highways. The map to the right shows the average daily traffic on roads in the BACTS area. Congestion is worst within the BACTS area at:

  • US-2 between Hammond Street & I-395 Ramps (Bangor)
  • Route 15 between I-95 Ramps & Griffin Road (Bangor)
  • Maine Avenue between US 2 Hammond Street & Godffrey Blvd (Bangor)
  • Stillwater Avenue between Broadway Route 158 & I-95 Ramps (Bangor)

Conditional Assessment

The BACTS region has recently conducted a comprehensive assessment of all collector roads in the area. This evaluation graded the condition of these facilities and generated a prioritized improvement report, considering factors such as current condition, deterioration rates, construction costs, and available funding. The project aims to aid the region in making informed investment decisions for maintaining our facilities in optimal condition in a cost-effective manner for the future.

Less than 10% of the BACTS area roadways have a pavement condition score of F indicating that most roads are in good condition. The area should continue to prioritize the good condition of infrastructure to ensure long term sustainability and system reliability. The map to the right shows the pavement condition in the BACTS area. Pavement condition is of concern along the following roadway segments within the BACTS area:

  • Route 2 between Rangeley Road (Orono) & Center Street (Old Town)
  • Route 2 between I-95 Ramps & Mount Hope Road (Bangor)
  • Oak Street (Bangor)
  • State Street (Brewer)
  • South main Street (Route 9/158) between I-395 & State Street (Brewer)

Roadway Safety

From MaineDOT crash data, the BACTS area had a total of 2,175 reported crashes in 2019 with a decline in 2020, likely due to a lack of travel because of the COVD-19 pandemic. The BACTS area then experienced a total of 1,980 reported collisions in 2021.

Vehicle collisions are generally concentrated in high density areas and high vehicle traffic areas such as downtown Bangor, as shown in the map to the right.

High Crash Locations

MaineDOT also has a list of high crash locations. A High Crash Location (HCL) is a location that has at least eight crashes and statistically has more crashes than similar intersections in Maine.The figure to the right shows the high crash locations (both intersections and segments) for the 2019-2021 period.

There are a total of 41 intersections and 39 segments on the high crash location list, as shown in the map to the right.

Pedestrian Network

The 2019 Long Range Pedestrian and Bicycle Plan for the BACTS area inventoried the existing pedestrian and bicycle facilities, identified network facility gaps and deficiencies, and offered recommendations to improve the network.

Pedestrian Existing Conditions. Pedestrian facilities are generally concentrated in the downtown areas of Bangor, Brewer, Orono (near the University of Maine), and Old Town. There are few sidewalks in the other communities, which increases automobile dependency in these areas. There are significant network gaps.

Pedestrian Safety. Pedestrian collisions are highest in densely populated areas such as the downtown areas of Bangor, Brewer, Orono (near the University of Maine), and Old Town.

Bicycle Network

The Long Range Pedestrian and Bicycle Plan also looked at the existing bicycle network within the BACTS area. Bicycle facilities that were inventoried included bicycle lanes, wide shoulders (5 feet and greater), and multi-use paths where bicycles are allowed. Very few dedicated bicycle facilities are provided within the BACTS region. Although wide shoulders can accommodate bicycle travel on some roadways, vehicle speed and volume may discourage bicycle use. The map to the right shows the results of that inventory.

It should be noted that both the U.S. Bicycle Route 1 and the East Coast Greenway (ECG) cross through the BACTS region. U.S. Bike Route 1 is a cross country bicycle route that runs the length of the United States east coast. In the BACTS region, the ECG route runs through Bangor and Brewer.

Public Transportation

The fixed route bus service in the BACTS area (shown in the map to the right), the Community Connector, is owned and operated by the City of Bangor. Community Connector provides service in areas of Bangor, Brewer, Hampden, Old Town, Orono, Veazie, and the University of Maine. It has 10 routes and carries around 80,000 passengers per year. However, there has been a steady decline of ridership since 2014. This decline has likely worsened due to CVOID-19. With rising gas prices and inflation, the need for convenient and affordable public transportation system is greater than ever.

While most of the BACTS area population falls within the service area (walking distance with 1/4 mile of a bus stop, shown in the map to the right), adequate sidewalks and bicycle facilities to get there may not exist. With more population choosing to migrate out of the urban area and more of the job growth continuing to occur within the urban area, it is critical to expand the transit system to avoid congestion on local roadways and provide reliable, efficient travel to and from work.

Expansion of service to lower density areas is needed due to the aging population who tends to live in these areas that become more reliant on alternative modes of travel.

Freight Network

Highway. Most freight uses the highway system. System performance for freight-related traffic focuses on congestion, pavement condition, and reliability. Throughout the BACTS area, many roads have been designated as truck routes. The purpose of this system is to encourage truck traffic to roadways that are physically designed and properly constructed to accommodate heavy freight vehicles.

Rail. Rail transportation, particularly freight, provides the region with promising opportunities for economic development and job creation. Rail providers include Pan Am Railways and Central Maine & Quebec Railway, the latter being a successor to locally based Bangor and Aroostook Railroad and the Montreal, Maine & Atlantic Railway.

Air. Cargo, military, and commercial passenger service within the BACTS region is serviced at Bangor International Airport (BGR) and DeWitt Field Old Town Municipal Airport. BGR currently provides up to 20 daily departures. Bangor International Airport remains home to the Maine Air National Guard.

Marine. The Penobscot River corridor extends from Searsport to Bangor on the west side of the river, and from Verona Island to Brewer on the east side. The corridor includes several highways, the Penobscot River, the Bangor International Airport (BGR), two rail lines, and commercial port facilities at Searsport, Bucksport, and Brewer. The Corridor also includes facilities such as the Maritimes and Northeast natural gas pipeline, which crosses the Penobscot River at Orrington. The Penobscot River carries a variety of freight, passenger and recreational vessels.

Trip Scenario Analysis

Business as Usual. The future trips for the BACTS region show the most growth in the northeast of Bangor, within the downtown and out to Stillwater Avenue. The twenty year time-frame shows relatively less growth outside of the Bangor region.

Trip Scenario Analysis

Drastic Scenario. If future investments are concentrated within the denser areas, trips and people will live, work, and move in areas closer to the more urbanized areas. Growth moves away from the Stillwater Avenue area, identified as a congested area within VISION 2043. 

Trip Scenario Analysis

Conservative Scenario. When growth policies and investments are not made to target urbanized areas, more development occurs outside of the urban core and away from transit services and active transportation infrastructure.

COVID-19 Impact. The COVID-19 pandemic changed how BACTS area residents live, work and travel. This MTP was developed with COVID-19 impacts in mind. While the long term effects on transportation are unknown, this MTP helps plan for an uncertain future.

REGIONAL VISION AND GOALS

The Greater Bangor Region will have a safe and sustainable transportation network, including infrastructure and services, that supports equity, efficiency, and community goals.

To use a data-driven, performance-based metropolitan transportation plan (MTP) there needs to be a clear vision for the future. As such, identifying goals and objectives is critical for establishing a strategic direction for the plan.

Maintain. There is a lack of funding to meet current and future needs of the transportation system. As such, funding should be prioritized to maintain and optimize the existing system over expansion, or construction of new facilities to ensure long term sustainability.

Fund. Current transportation funding is inadequate to meet the current and future needs of the transportation system. BACTS must continue to research opportunities for additional funding to increase funding for transportation in the future, safeguard existing funding and increase revenues to support system maintenance, modernization, and strategic growth, as well as increase fiscal awareness among all stakeholders.

Connect. Providing a strong connected network of roads and active transportation facilities is key in decreasing congestion, reducing travel distances and times, improving the routing of public transportation, and reducing walking and biking distances. Connectivity is defined as the measurement of a system of roads with multiple routes and linkages serving the same origins and destinations. However, system connectivity not only relates to the number of intersections or routes in the system but also how the entire region is connected by the transportation system. BACTS should look for opportunities to improve connections between people and places.

Prepare. With advancing technologies, climate change impacts and significant demographic shifts looming in the future, BACTS must proactively prepare for the next-generation transportation system. As such, BACTS should focus on asset management strategies to fund projects based on data, lean into green infrastructure and climate resiliency strategies, and be adaptive to new innovative technologies.

Performance Measures

BACTS employs performance-based planning methods to translate long-term visions into measurable goals and objectives, guiding decisions and measuring success. The safety measures are updated annually, and road condition performance measures are refreshed every three years. This approach offers numerous benefits, including improved decision-making on infrastructure investments, optimized resource allocation, enhanced long-term system performance, increased transparency, accountability, and a direct correlation between system performance and funding. Additionally, BACTS adopts the performance measures tracked by MDOT, further reinforcing its data-driven approach.

Public Process

With public input from public meetings and survey results, a vision for the greater Bangor region sought improved quality of life, safety improvements, and environmental conservation. With that input, goals were crafted to reflect that vision to 2043. By engaging the public in the planning process BACTS aims to foster a community spirit of inclusiveness and ownership of the process.

Link: Final Vision and Goals

PROJECT PRIORITIZATION

By establishing the above clear criteria, vison, and goals, the MPO can make informed decisions that maximize the benefits of transportation investments and contribute to the overall development of the region. The Informed Goals identified through public input were used in consideration for the creation of a complete project weighting system that can aid towns in determining projects they ultimately select.

PROJECT IDENTIFICATION

BACTS conducted significant outreach to the public as well as municipal staff to identify area of concerns and potential projects to include in the Plan. In addition, other recent plans such as the Long-Range Pedestrian and Bicycle Transportation Plan and BACTS Metropolitan Transportation Plan 2018-2038 were researched to document projects identified previously for consideration.

PROJECT SOURCES

 Long Range Bike/Ped Plan   2018-2038 MTP  Municipal Staff Discussion Public Input Survey

PROJECT SOURCES MAP

SYSTEMIC PROJECTS

Project rankings for systemic projects were determined by evaluating all projects against the priorities listed above.

SITE SPECIFIC PROJECTS

Project rankings for site specific projects were determined by evaluating all projects against the priorities listed above.

UPCOMING PROJECTS

The City of Bangor has completed a Community Connector electrification plan and is seeking implementation support from BACTS in the coming years which BACTS is committed to partnering and providing assistance for the plan's successful execution. Similarly, upon the completion of a Rail Feasibility Study for the Bangor Region by MaineDOT, BACTS is positioned to provide resources to analyze fixed route transit connections.

FINANCIAL ASSESSMENT

Federal statute requires MPOs, like BACTS, to plan transportation projects within fiscal constraints, limiting pursuits to realistically fundable projects. The metropolitan transportation plan serves to identify future needs and allocate resources responsibly. Since a majority of funding goes towards system maintenance, limited funds are available for new projects or expansion. Prioritization and creative approaches, along with alternative funding opportunities, become crucial. A financial assessment evaluates projected funding allocation for both MPO and MaineDOT projects in the region, determining feasibility based on anticipated costs and available funding.

The projects, studies, and policies outlined here have to go through additional selection/planning processes to go into implementation (TIP, UPWP, study). Many of which will only be implemented if and when additional funds become available through formula increases or discretionary grants.

RECOMMENDATIONS

Following is an abridged version of the full recommendations found in the VISION 2043 report. Based on the known historical needs and the present desires of our citizens, these are the recommendations for the BACTS region to achieve the VISION 2043 outcome.

The projects, studies, and policies outlined here have to go through additional selection/planning processes to go into implementation (TIP, UPWP, study). Many of which will only be implemented if and when additional funds become available through formula increases or discretionary grants.

Public Transportation

Capital

  1. Reduce headways and increase frequency of service to 30 minutes.
  2. ADA automated audible internal and external announcement of bus route, next stop, etc.
  3. App and/or visual board kiosk at bus stop/hub showing real-time bus status.
  4. Use technology to provide additional service and service coordination (real-time apps, 3 rd  party integration, shared ride services, links between other public and private transit providers to make services more accessible).
  5. Implement transit priority at signalized intersections.
  6. Provide increased transit amenities, such as benches, shelters, landscaping, lighting, walkways, and signage.

Study

  1. Improve bus maps and routes to improve readability and understanding, including improved schedules for identification of routes by color with unique names and/or symbols.
  2. Explore on-demand or dynamic scheduling of transit services.
  3. Implement fixed bus stop locations.

Policy

  1. Provide evening and weekend bus service for targeted high-use routes.
  2. Develop commuter Park and Ride lots with a designated transit stop to reduce traffic congestion at existing large, under-utilized parking lots.
  3. Prepare for autonomous self-driving transit vehicles for public transportation services.
  4. Coordinating the public transportation services in the BACTS area, including additional transit services at the Bangor Transit Center.

Highway Transportation

Capital

  1. BACTS communities should look to update existing traffic signal controllers and cabinets to the MaineDOT Advance Transportation Controller (ATC) specification standard, including the use of Field Monitoring Units (FMU) for remote monitoring and control of traffic signals.
  2. Implement AI based traffic adaptive signal timing and phasing.

Study

  1. BACTS should hire a consultant to produce an analysis and action plan for the inspection of sidewalks and arterial roadways.

Policy

  1. Continue to update timing, phasing, and signal coordination along all major corridors in the region.
  2. Assist with the Bangor region Traffic Incident Management group.

Active Transportation

Capital

  1. BACTS should seek Safe Streets for All Users (SS4A) funding for the development of action plans in the Bangor region.

Policy

  1. BACTS should outline strategies for developing an interconnected transportation network with access to neighborhoods, parks, activity centers, employment centers, parking facilities, bus stops, schools, places of interest, and connectivity to the trails and pathway systems.
  2. Support the use and study of micro-mobility.
  3. Promote alternative modes; transit, van pool, carpool, walk, and bike.

Marine/Aviation/Rail

Policy

  1. Increase BGR passenger intermodal connectivity with regional bus service to allow tourists to fly into BGR and immediately board a bus to their destination.
  2. Encourage efforts to increase intermodal freight traffic through improved highway-rail and water-rail intermodal connectivity.
  3. Support investment in Maine’s industrial ports with emphasis on waterfront infrastructure, intermodal connections, rail connectivity, upland storage facilities, and short sea shipping.

Study

  1. Improve mobility and safety on U.S. Route 1A (from the Port of Searsport to the greater Bangor area) and Route 15 (from Brewer to Bucksport) including access management, construct passing lanes, and improve road shoulders to facilitate more efficient movement of freight to the BACTS region.

Regional Goals

Policy

  1. Encourage municipalities to adopt and implement Complete Streets policies.
  2. Encourage future development policies that preserve key natural features and the small town/rural character of most of the corridor while promoting economic prosperity;
  3. Promote land use policies that are supportive of alternative modes such as Transit Oriented Developments (TOD), and mixed use developments.

Penobscot Climate Action Plan

Policy

  1. Monitor climate effects and weather vulnerability on infrastructure.
  2. Incorporate climate vulnerability criteria into project selection, design, specifications.
  3. BACTS will support the Penobscot Climate Action Plan recommendations, however possible, including through capital projects, programs, policies, studies, and outreach to local stakeholders.

View the October 4, 2023 VISION 2043 Public Meeting

VISION 2043 Final Plan Public Meeting

Please share your comments and feedback

 

 

 

 

 

 

 

 

 

The BACTS region.

 Long Range Bike/Ped Plan   2018-2038 MTP  Municipal Staff Discussion Public Input Survey

Based upon the most recently available data from U.S. Census Bureau on county-to-county commuter patterns (2019 Longitudinal Employer-Household Dynamics), the BACTS area is generally self-sustaining with 67.3 percent of its local labor force residing within the area.