PART 2: REGIONAL

ROADWAY SYSTEM

1. ROAD CLASSIFICATION BY FUNCTION
The classification of roadways by function is a fundamental issue in transportation planning. It is a process by which streets and highways are grouped into similar classes according to the character of service they are intended to provide. The classification designation influences the type of roadway expansion projects to be proposed on the roadway.

Basic to this process is the recognition that individual roads and streets do not serve travel independently in any major way. Rather, most travel involves movement through a network of roads. As traffic flows do not change their characteristics at municipal boundaries, road classification is organized on a regional and then state by state basis.

Given the classification of roads, design criteria are then applied to encourage the use of the road as intended. Design features that can convey the level of classification to the driver include number of lanes, continuity of alignment, spacing of intersections, frequency of driveways, width of shoulders, roadway alignment, grade standards, and traffic controls.

These decisions involve trade offs between traffic service and community character. The classifications are described below:

National Highway System: Throughout the USA, the combination of all interstates and some major arterials forms the National Highway System (NHS). The NHS is a federal designation of the very most important roadways in the country, from the perspective of interstate travel, defense, etc.

NHS routes shown in red.

To our west in adjacent New York State the NHS includes Interstate 684 north-south and New York Route 22 north-south. Then entering Danbury from the west, the NHS system across our Housatonic Valley Region includes all of Interstate 84 thru Danbury, Bethel, Brookfield and Newtown.

On the west side of Danbury where I-84's Exit 3 is the interface between the intersection of Route 7 and I-84, all of Route 7 south from Danbury thru Ridgefield, Redding and Wilton is NHS designated. It then interfaces in Norwalk with NHS designated Route 15 (the Merritt Parkway) and then I-95, as an interstate automatically included as an NHS route.

Proceeding easterly thru Danbury to I-84's Exit 7, where Route 7 leaves I-84 and proceeds north, all of Route 7 thru Brookfield to New Milford Center is an NHS designated route. But once in central New Milford, the NHS designation transfers off of Route 7 to Route 202, where it proceeds northeasterly until reaching the NHS designated Route 8 Expressway in Torrington.

Then at I-84 Exit 10 in Newtown, Route 6 westerly to Route 25 is an NHS route. At the intersection of Route 6 with Route 25 (the Flagpole) the designation transfers off of Route 6 to Route 25, where it proceeds thru Newtown southeasterly thru Monroe and Trumbull to the Merritt Parkway and I-95.

Aside from the top level NHS, the remaining classification of roadways by function within the Housatonic Valley Region, as defined by Conn DOT using FHWA guidelines, is summarized as follows:

Interstate: Limited access expressways that are part of the federal interstate system. In our case Interstate I-84 originating in Pennsylvania and terminating in Massachusetts. (As noted, all interstates are within the NHS).

Arterials Overview: These roadways provide the highest level of service at the greatest speed for the longest uninterrupted distance, with some degree of access control. Subcategories include:

Principal Arterial: These roads serve the major movement of traffic within the Region. Included in this class among others are portions of Routes 7 and 25, portions of Routes 53 and 302 connecting Downtown Bethel with Downtown Danbury, and the portion of Route 35 connecting Ridgefield Center to Route 7. (As noted above, Routes 7 and 25 and a small section of Route 6 are also in the NHS).

Routes with this classification are high traffic volume corridors with the largest trip desires and carry a high proportion of total vehicle travel on a minimum of roadway mileage.

Minor Arterial: The minor arterial street system interconnects with and augments the principal arterial system above. It provides service to trips of moderate length at a somewhat lower level of travel mobility than principal arterials. This system distributes travel to geographic areas smaller than those identified with the higher systems.

The minor arterial street system contains facilities that place more emphasis on land access than the higher system, and offer a lower level of traffic mobility. Such facilities ideally should not penetrate identifiable neighborhoods.

Examples from this class of roads include Routes 67 and 109 in New Milford, Route 202 in Brookfield, Route 37 in Danbury, Route 34 in Newtown, Route 58 in Redding, and parts of Route 116 in Ridgefield. Also, many town roads with an intertown travel function are included by Conn DOT in the minor arterial classification.

Excerpt from map of Conn DOT roadway classifications for the region.
Proceed to view the entire regional map.

Collector: These roadways provide a less highly developed level of service at a lower speed for shorter distances by collecting traffic from local roads and connecting them with arterials.

The collector street system includes subclassifications of major and minor and provides both land access service and traffic circulation within residential neighborhoods, commercial and industrial areas.

The collector system differs from the arterial system in that facilities on the collector system may penetrate residential neighborhoods, distributing trips from the arterials through the area to their ultimate destination.

Conversely, the collector streets also collect traffic from local streets in residential neighborhoods and channel it into the arterial system. In central business districts, the collector system may include the street grid which forms a logical entity for traffic circulation.

Local: The local street system consists of all roads not defined as arterials or collectors. It primarily provides access to land with little or no through movement.

These roadways offer the lowest level of mobility and primarily serves to provide direct access to abutting land and to higher order street systems. Through traffic movement on local streets is usually deliberately discouraged.

The debate over local planning and zoning applications can often relate to this classification system. Neighbors opposing a development often say that the roadway classification is too low for the type of traffic expected to be generated. In contrast, development proponents can claim an automatic traffic advantage when their proposal fronts upon an arterial route.

HVCEO can brings request for changes to this classification system to the attention of Conn DOT. Over the years some of these have been successfully made.

2. STATE ROADWAY SAFETY STATISTICS
Conn DOT in carrying out the provisions of federal highway laws participates in funding various safety planning and improvement projects. As part of these processes, Conn DOT surveys and identifies the most hazardous accident sites throughout the State.

To use the details of this data HVCEO staff must certify to Conn DOT that it will not make the data public. However a summary map entitled Roadway Accident Rates is available.

Physical hazards such as drainage ditches and bridge abutments as well as geometric hazards such as sight line restrictions contribute to highway safety problems. High speeds and peak-hour conditions significantly increase the opportunity for miscalculation and accidents.

Improving roadway safety is a
priority for regional transportation planning.

HVCEO endorses the Conn DOT Strategic Highway Safety Plan as a guide for both Conn DOT and HVCEO planning activities. This statewide plan is required by federal transportation laws so that highway safety programs can be data driven to maximize the ability to set priority and getting the most benefit from each highway safety dollar.

3. MEASURING AND
REGULATING CONGESTION

Overview
Since congestion exists at many locations and improvement funds are limited, quantitative measurements to determine where traffic congestion is projected to be most severe are very important for determining the priority of public investments. Major HVCEO traffic studies always include such statistics.

Similarly, projections of traffic are very important for local land use commissions seeking to determine impacts of proposed developments. The key indicator of existing or future congestion is known as "level of service."

The "level of service" reflects driver satisfaction with factors that influence the degree of traffic congestion. These factors include speed and travel time, traffic interruption, freedom to maneuver, safety, driving comfort and convenience, and delays. Transportation professionals utilize six levels (A to F) of service to describe traffic flow conditions.

It is important to state that any rigid adherence during an evaluation to the A to F scale alone would represent less than a comprehensive viewpoint. Traffic improvement decisions shape nearby aesthetics, livability and growth pressures, and these factors should temper rigid terminations based on the A to F scale.

The sacrifices needed to obtain level of service "C" may not be warranted if they reduce the community character in the vicinity to "F!"

This A to F scale is a key management tool and as noted is referred to in HVCEO and also Conn DOT technical reports. HVCEO relies upon this scale in its lobbying efforts since documentation that a proposed traffic improvement will change the level from E up to C is more persuasive than simple generalities about solving driver delays.

HVCEO advises inserting a reference to the A to F scale directly into local zoning regulations. A good example of this is in the zoning of Brookfield, CT, where Section 242-602G reads "Where it is projected that the additional traffic resulting from the project will reduce the level of service to D or below, the Commission shall not approve the project unless and until provision has been made for the improvement of said condition." Thus the townwide standard for Brookfield's roads is C-.

Traffic Impact Assessments
Traffic impact assessments are often prepared to define the impact on existing roadways of a proposed land use change, such as a new development. Typically, they are prepared for the applicant by a registered professional engineer as part of a planning and zoning application, with review and approval the responsibility of local and state agencies.

The traffic report describes potential traffic impacts, and where necessary, possible mitigating measures. It is not always easy for a volunteer zoning commission member to be able to understand a traffic report. In response, in 1984 HVCEO created an easy to read handbook on this topic.

Controlling Congestion
Both municipalities and the State of Connecticut have the dual overlapping authority to regulate traffic generators to avoid traffic congestion. To regulate traffic issues related to land use changes, Conn DOT utilizes a permitting procedure for encroachment to state highways.

In addition the State Traffic Commission (STC) and STC permits provide a system for major traffic generators under Sec. 14-311 of the Connecticut General Statutes.

The statute states that no person or public agency shall build, expand, establish or operate any development generating large volumes of traffic, having an exit or entrance on, or abutting or adjoining any state highway or substantially affecting state highway traffic without obtaining from the STC a certificate that the facility will not imperil public safety.

The STC reviews applications and determines whether or not site access and/or off-site roadway improvements are required to mitigate any adverse traffic impacts resulting from a new or expanding traffic generator. This can be expensive, and any improvements required as a result of the review are to be borne by the applicant at no cost to the town, state or municipality.

Any land use development project that requires the construction or modification of a driveway to a State highway must also have received a Conn DOT encroachment permit (Sec. 13a-143a, CGS). This permit process is designed to assure the proper design and implementation of such driveways and accompanying off-site improvements.

Each municipally in the State has a designated Local Traffic Authority who has the legal responsibility for approving changes in traffic operations or reviewing proposals which may impact traffic flow. Within the Housatonic Valley Region, the designated LTA is usually the chief elected official or the chief of police.

Local regulations may also be adopted for the assessment and control of traffic impact through site plan and special permit/exception procedures. Subdivision regulations at the local level also provide for the proper design of intersections, driveways, and roadways.

4. DRIVEWAY MANAGEMENT
PLANS WITHIN LOCAL ZONING
It is a basic property right that each property owner along a roadway is entitled to access the roadway. As property development is approved thru local planning and zoning, and also thru Conn DOT District 4 and State Traffic Commission processes, conditions for access to local and state roadways are routinely set by zoning and planning officials.

However, the limitations for this parcel by parcel process have become obvious in recent years. As each driveway is a potential conflict point for turning vehicles, any effort to reduce their total number, align them across the road and opposite from each other, and improve their placement in business zones is in the public interest.

Many existing curb cuts preceded modern levels of local and state regulatory scrutiny. As uses change and properties are more intensely developed, local commissions need guidance from a traffic engineer as to the proper arrangements for driveways. The need in this situation is for linear “curb cut and driveway management plans” along major nonresidential corridors.

These curb cut plans consist of a series of adjacent maps showing all properties, all driveways, and the recommended reorganization of driveways as properties develop or redevelop. Implementation comes thru use of the maps by local planning and zoning commissions and by Conn DOT administrators for state roads when conditions of approval are set.

A text supplements the maps, giving traffic engineering advice for each property where there is a recommendation for a change of driveway. These mapped driveway standards appear in the zoning regulations of Bethel, Brookfield, New Milford, Newtown, Redding and Ridgefield, all prepared by HVCEO.

Excerpt from the 6/2005 Ridgefield
Route 35 Driveway and Curb Cut Management Plan,
HVCEO Planning Bulletin # 115, now incorporated
into the Ridgefield Zoning Regulations

Area zoning commissions have significant statutory authority to include driveway and access concerns and such planning maps in permit review activities. First, Section 7-148 of the Connecticut General Statutes authorizes municipalities to regulate traffic. And then, Section 8-2 permits zoning regulations to be designed to lessen congestion in the streets.

Importantly for fairness, there is no enforcement for existing properties not in conformance with the plan when the owner is not seeking any new local or state permits.

Generally the development community has favored these curb cut plans, as they let them know what the commission is seeking in advance as their site plans are drawn. The proposed curb cut drawings provide a base of policy the developers own consultants can react to.

Curb cut plans adopted in the area have been applied flexibly, allowing the developer to offer a better option and to permit some interaction on driveway locations to take place. The point is that the curb cut plan gives the commission a recommendation by a traffic engineer as a minimum to protect public safety, rather than having no technical backup when negotiating with the developer on the issue of driveways.

When Conn DOT undertakes state roadway widening or rebuilding, it makes an effort to use HVCEO's corridor driveway and curb cut plans in roadway redevelopment. HVCEO has produced corridor access management plans for municipalities as follows:

BETHEL DRIVEWAY LOCATION PLANS:
1) 1997: Route 6 from the Danbury Line easterly thru Stony Hill to the Newtown Line.

2) 2008: The Route 6 Plan above was updated as part of a municipal Route 6 Corridor Plan.

3) 2011: Combined and updated plan for Routes 6, 53 and 58 to be prepared by HVCEO.

BROOKFIELD DRIVEWAY LOCATION PLAN:
1) 1994: Routes 805 and 202, from the Danbury line north to the New Milford Line. Updated from 1984.

DANBURY DRIVEWAY LOCATION PLANS:
1) 1985: Route 6 from the New York State Line easterly to I-84 Interchange 4.

2) 1994: Route 805 (Federal Road) from White Street northerly to the Brookfield Line.

3) 1996: Route 7 from the Ridgefield Line northerly to the Route 7 Expressway.

4) 1996: Route 37 from Hayestown Avenue northerly to the New Fairfield Line.

5) 2011: Update Route 7 from the Ridgefield Line northerly to the Route 7 Expressway.

NEW FAIRFIELD DRIVEWAY LOCATION PLAN:
1) 1996: Route 37 from the Danbury Line northerly to the Town Center at Route 39.

NEW MILFORD DRIVEWAY LOCATION PLANS:
1) 2008: Route 7 from the Brookfield Line northerly to the Kent Line, updated from 1997.

2) 2008: Route 202 from Route 7 northeasterly to the Washington Line.

Excerpt from latest Newtown Driveway Management Plan

NEWTOWN DRIVEWAY LOCATION PLANS:
1) 2010: Routes 6, 25 and Church Hill Road. Update of separate curb plans from earlier years.

REDDING DRIVEWAY LOCATION PLANS:
1) 1996: Route 7 from the Ridgefield Line northerly to the second Ridgefield Line.

2) 2011: Update Route 7 from Ridgefield Line northerly to the second Ridgefield Line.

RIDGEFIELD DRIVEWAY LOCATION PLANS:
1) 1996: Route 7 northerly from the Redding Line to the Danbury Line.

2) 2005: Route 35 northerly from the NY Line to Route 7.

3) 2011: Update Route 7 northerly from the Ridgefield Line northerly to the Danbury Line.

5. ROUNDABOUTS
A relatively new intersection design format in the United States is the exciting concept of “roundabouts”. These have become very popular in Europe and are now being built all over the USA.

While they look and function something like rotaries, roundabouts are much smaller and slower, avoiding the high speeds and accident rates of the rotary concept, now in disfavor. Check these web sites:

• Conn DOT's 2004 Roundabout Policy
  
• FHWA's Roundabout Design Solution
  
• Insurance Institute Praises Roundabouts

The modern roundabout has yield at entry control. It can move more cars more safety than modern signalized intersections.

From a traffic safety expert’s point of view, they have only one fourth as many potential contact points as a conventional intersection. The most serious type of crash, head on, is no longer possible with this design. Importantly, their circular centers can be landscaped to complement a surrounding attractive area.

The yield at entry feature allows drivers to slip into traffic gaps in the slow moving circle, optimizing timing even better than a computer managed traffic signal. While with a signal only one or two movements can enter the intersection at a time, with a roundabout all legs can enter simultaneously.

Roundabouts are good traffic calming devices, avoid ugly signals, and are increasingly favored by landscape architects, preservationists and citizens groups.

Capacity and safety advantages of a roundabout
at the intersection of Route 302 with Route 53 in Bethel
are detailed at the end of a discussion of Route 53 North.

An inventory of roundabouts in Connecticut and nearby New York State as of November 2006 is available below. Thanks to Bob White of NorthEast Area Roundabouts for his assistance in generating the list. And special thanks to Will Britnell of Conn DOT for informal commentary on many of the designs, noted by quotation marks attributed to WB.

CONNECTICUT
Coventry, CT built a roundabout at Daly Road and South Street.

Goshen, CT has had an intersection redesigned as a roundabout at Routes 4 and 63. “This design does not yet meet current standards. It uses painted islands instead of raised islands. Conn DOT will be upgrading it but probably not until 2008 - WB”.

Greenwich, CT has a temporary roundabout at the intersection of two local roads, King Street and Rye Lake Avenue. Other Greenwich: "There are apparently two on Lake Ave near the Hospital (I-95 Exit 3) and also two more on Sound Beach Road. I am told that none of these is signed or marked properly, but they operate as roundabouts - WB."

Killingworth, CT at the intersection of Routes 80 and 81. "Very skewed alignments and current design allows for high speeds. Will be upgraded hopefully in 2007 but more likely in 2008 - WB."

Madison, CT at Routes 80 and 79, "old traffic circle was converted to yield on entry, but overall size (300' +/- diameter) is still too large to be considered a true roundabout - WB."

North Stonington, CT Route 2 at Route 184. "Another converted old circle, but too large to be a true roundabout - WB".

New London, CT two roundabouts near Pfizer Global Development facility. The location is Shaw Street at Howard Street and Willets Avenue then Shaw Street at Pequot Avenue, Nameaug Street and Drive to Pfizer.

Seymour, CT at Route 188 with Route 334. “Very poor geometrics at present, and will be upgraded in 2008 or 2009 - WB.”

Roundabout on Hayden Station Road in Windsor, CT

Stafford, CT Rotary on Route 32 at the intersection with Route 190 was retrofitted into a roundabout. “While this location was recently modified with new signs and markings, it is still a confusing area due to other non-roundabout intersections and a railroad grade crossing - WB.”

South Windsor, CT at the Evergreen Walk Mall. "Technically a town owned road, but really a shopping center road. Does have significant volumes at times - WB."

Windsor, CT two roundabouts on locally maintained Hayden Station Road in a suburban residential neighborhood, near Exit 39 off I-91. “These were installed more for traffic calming purposes than for traffic control, but they have moderate volumes. They are on the small side and use flush splitter islands instead of the typical raised splitters - WB.”

Windsor, CT on Prospect Hill Road at Lange Road (entrance to an industrial park). "This is about 10 years old so it isn't up to current design standards, but it is pretty close - WB."


NEARBY NEW YORK STATE
Kingston, NY traffic circle redesigned as a roundabout at Thruway Exit 19.

Malta, NY, Mulit-roundabout corridor that will be expanded with additional roundabouts in coming years.

Part of chain of 5 roundabouts in Malta, NY

Other New York State "In addition to the above, there are single lane roundabouts in the New York State towns of North Haven, Rochester (RIT campus), Great Neck, Voorhesville, Greenwich (pronounced green-witch, like the color, not Gren as in the CT town), Plattsburgh and Ithaca (apparently installed without the New York DOT's knowledge, so it may or may not be a good design).

And double lane roundabouts are found in Corning (two in a row), Rome (at the former Griffiss Air Force Base), and Latham. There are also some that either planned, in construction, or may in fact be built by now: Johnson City, Colonie, Troy, Buffalo area total of 7, Liberty, Kinderhook, and Glens Falls area total of 3.

I have the actual locations for some of these, so if you'd like more information about any of these locations, let me know. New York is said to be averaging 15 new roundabouts per year, so there are probably others - WB."

Informal Conn DOT Comment of 11/06: "None of the roundabouts on Connecticut State roads are what I would consider good examples of a truly modern roundabout, but they can be helpful to see what not to do when designing one.

The best examples of a true modern roundabout operating with significant volumes, in my opinion, would be the two in New London and the three in Windsor. None are "perfect" in my opinion, but they are good examples - WB."

6. DESIGN CONSIDERATIONS
Traffic Calming Techniques
The term "traffic calming" is often described as the combination of mainly physical measures that reduce the negative effects of motor vehicle use and improve conditions for nonmotorized street users. However, the term "traffic calming" also applies to a number of transportation techniques developed to educate the public and provide awareness to unsafe driver behavior.

As traffic calming techniques often differ, techniques include police enforcement and education only in some areas. In others, it means the employment of speed humps only, while in others it means the possible use of a wide array of techniques and devices.

Context Sensitive Design
In the past, transportation planners and engineers were often more concerned with the efficiency, capacity, and safety of a roadway for motor vehicles than on the impacts such roads may have on the surrounding environment and communities they serve.

This approach often created undesirable conditions, including excessive vehicle travel speeds, unsafe environments for pedestrians, the loss of convenient on-street parking, and adverse affects on local businesses.

Recently, transportation planners and engineers have begun utilizing a new approach to roadway design called Context Sensitive Design, also referred to as Context Sensitive Solutions. This approach seeks to design new roadways or modify existing ones to suit all users – motor vehicles, bicyclists, pedestrians, and public transportation passengers. Additionally, to preserve and enhance the character of the surrounding community.

Complete Streets
Note that in recent years both the nation and Connecticut have been gripped by the pedestrian and Smart Growth oriented “Complete Streets Movement.” From this new perspective, roadway corridors can be improved by retrofitting with full provision for pedestrians and transit passengers. Curbs and access points can be rethought to maximize safety and reduce travel.

In July of 2009 Governor Rell signed Senate Bill 735, Connecticut's Complete Streets law. The new law mandates that “accommodations for all users shall be a routine part of the planning, design, construction and operating activities” of all state highways. For a reference see the City of New Haven Complete Streets Design Manual.

See also HVCEO's Brookfield Route 202 Complete Streets Bus Stop and Pedestrian Improvement Plan.

Excerpt from 2009 Brookfield Route 202 Complete Streets Plan.
Red identifies proposed walkways, crosswalks are in black
and white, and proposed bus stops are yellow stars.

7. DESIGNATED SCENIC ROADS
In 1981 the Connecticut General Assembly enacted Section 7-149a of the General Statutes, the State’s "Scenic Roads Act." This enabling legislation has authorized cities and towns to designate lightly traveled local roadways characterized by identified scenic qualities as protected scenic roads.

See full map of scenic roads in Region.

HVCEO maintains a detailed inventory of local scenic road designations within the Region, the designations by Bridgewater, Danbury, New Milford, Newtown, Redding and Ridgefield.

Scenically designated
Poverty Hollow Road in Redding, CT.

For designation as a local scenic road the road must, by law, be free of intensive commercial development and must meet at least one of the following criteria: it is unpaved; it offers scenic views; it is bordered by mature trees or stone walls; the traveled portion is no more than twenty feet wide in width; it blends naturally into the surrounding terrain; or it parallels or crosses over brooks, streams, lakes or ponds.

In addition, for designation to occur the owners of a majority of the land fronting the roadway (or portion to be designated) must agree to the designation by filing a written statement of approval with the town. Usually this takes the form of a petition signed by abutting owners, which will then be verified by the municipal assessor to assure that more than fifty per cent of the road frontage concurs with the designation.

By adopting a scenic road ordinance and designating a certain road as a scenic road, a municipality may more firmly regulate improvements or changes to the roadway which would alter its character. Such alterations include widening, paving, straightening, changes in grade, and removal of mature trees or stone walls, whether proposed by municipal departments, utilities or abutting property owners.

A scenic road ordinance does not interfere with normal maintenance activities, nor prevent essential safety improvements or the construction of new roads or private driveways which intersect with the designated scenic road.

As reflected in the State enabling act and seven scenic road ordinances which have been adopted in the Housatonic Valley Region (Brookfield adopted the ordinance but has not designated any roads), the clear intent of this regulatory process is to protect and preserve those areas of exceptional scenic beauty which occur along our more rural roads.

Redding works to maintain the attractive appearance of its state roadways.
Shown here is Route 53 northbound by the Saugatuck Reservoir,
the only state designated scenic roadway in the Region.

Provisions are also made in the Connecticut General Statutes for the designation of state scenic roads. The designation of a state road as scenic is enabled by Section 13b-31b-31e of the CGS.

There is at present only one state designated scenic road in the Region. This is Route 53 in Redding (Newtown Turnpike and Glen Road), from the Weston Town Line to Route 107.

A study of scenic road potential for the Route 7 corridor from New Milford northward suggested that the portion of Route 7 in New Milford from Gaylordsville north to the Kent Town Line would also qualify.