This chapter was developed with the intent to explore and recommend strategies for maintaining a safe and efficient road network utilizing techniques that will not destroy or alter the rural character, natural resources, or aesthetic qualities that contribute to the Town’s identity and its quality of life.

This chapter is comprised of three parts: Part 1 is an inventory of Mont Vernon’s existing road network including road classification, road inventory, surface conditions, bridge conditions, travel patterns, accident analysis, level-of-service analysis and future traffic forecasts.

Part 2 contains key transportation issues and strategies for the conservation and preservation of the Town’s rural character including roadway design alternatives, subdivision standards for new roads, access management, scenic roads, road salting, and bicycle & pedestrian issues.

Part 3 is a summary of recommendations and action items.

Part 1: Facts

This chapter provides an inventory of various transportation data for the existing road network in the Town, including road classification, traffic volumes, roadway conditions, and travel patterns.

The State-aid classification system was developed by the state of New Hampshire, as defined by RSA 229 – 231, to determine responsibility for construction, reconstruction and maintenance as well as eligibility for use of state aid funds. The state-aid system consists of: Class I, Primary State Highway System; Class II, Secondary State-Highway System; Class III, Recreational Roads; Class IV, Highways; Class V, Rural Highways; and Class VI, Un-maintained Highways. The total number of miles of roads in Mont Vernon, according to the 1998 NH Department of Transportation Road Inventory, was 47.9 miles. The inventory consisted of 6.6 miles of Class II roads, 37.8 miles of Class V roads and 3.6 miles of Class VI roads.

The major sources of funding for maintenance of minor collector roads and local roads comes from the Town of Mont Vernon and the New Hampshire State block grant aid for roads. The State distributes Block Grant Aid based on its relative population and miles of town maintained roads. A complete description of this information and the other funding sources can be found in Appendix B.

In late summer 2000, the Nashua Regional Planning Commission (NRPC) conducted a survey of roads in the Town of Mont Vernon, including Global Positioning System (GPS) mapping of new roads not included on an April 1996 map provided by the NHDOT. This work was conducted as a part of the transportation planning assistance the NRPC provides to the NHDOT and also to assist the Town of Mont Vernon in the Master Plan development process. Map T-1 shows all existing roads as of September 2000.

At the request of the Town of Mont Vernon, the NRPC began a study of the road surface conditions utilizing the Road Surface Management System (RSMS) software.

BASE MAP GOES HERE

The RSMS software includes a road inventory database, a road surface distresses database, and a database of repairs applicable to various road surface distresses. The software allows the user to tailor the repair strategy database based on the Town’s preferences. The RSMS software matches a repair strategy to a road or road segment based on the extent and severity of the distress and the weight given by the user for the volume of traffic on the road. The final decision on the repair strategy is made by the Road Agent based on experience and the Town’s preferences.

The study was completed by the NRPC in September 2000 and is being reviewed by the Town as of the writing of this Master Plan chapter.

Appendix B contains information that can assist local officials with decisions relative to appropriate standards for roads in terms of road surface and structure and is entitled, "When To Pave a Gravel Road."

The NH DOT inspects locally owned bridges on local roads as well as state owned bridges that, according to state statute, have a clear span of at least 10 feet. Inspection and maintenance of culverts and other structures on local roads that do not meet this 10-foot span definition are the responsibility of the Town.

The municipality bears the responsibility for installing signs for the posting of load restrictions, in accordance with NH DOT recommendations. The NHDOT recommends that every Town develop routine inspection and maintenance for culverts and other structures on local roads that are not inspected or maintained by the state.

According to the bridge mini-list, the bridge on Brook Road over Beaver Brook is the only bridge in Mont Vernon that is regularly inspected by the state. The Brook Bridge is listed as a concrete slab bridge, which is owned by the Town of Mont Vernon. NHDOT recommends posting weight restrictions on the bridge for certified vehicles.

Table T-1
Commuting Patterns from Mont Vernon

Source: 1990 US Census Journey to Work Data.

According to accident data compiled by the NHDOT and the Mont Vernon Police Department, Mont Vernon has no seriously hazardous roads or intersections at this time. A summary of state-logged accident data appears in Appendix B. Mont Vernon rarely sees fatal accidents. This is primarily due to low-speed-limit roads, and good police enforcement of those speed limits.

Many people in the Town of Mont Vernon value highly the rural character of the Town and would consider the installation of traffic signals as a sign of "urban encroachment." A technical overview of how and when signals are considered is provided in Appendix B. Based on this information, there is no need for traffic signals in Mont Vernon at this time, nor is there likely to be in the future.

All Mont Vernon roads currently measure at Level-of-Service (LOS) "A" conditions, with little or no delays anywhere in Town, according to the LOS analysis included in Appendix B.

Future traffic volumes were projected to the year 2020, utilizing the regional traffic model and incorporating forecasts made by the NRPC, in conjunction with local planners, regarding land use growth within the study area. The traffic model converts land use inputs, specifically the number of housing units, employment and school enrollment, into vehicle trips based on pre-determined trip generation equations. The equations were developed based upon a regional home-interview survey that produced specific trip generation data for the NRPC region. The trips were then distributed throughout the regional study area and beyond utilizing a "gravity" dispersal model. Each municipality is divided into a number of subareas known as traffic analysis zones (TAZ). All land use data are entered and vehicle trips are produced at the TAZ level. All trip distribution also occurs between TAZs.

It should be noted that while the model has been calibrated to represent existing conditions, predicting future traffic volumes is not an exact science. Land use growth is the key variable. The future development scenario will depend upon changes in economic conditions, the ability of local planners to identify growth patterns and changes in environmental regulations. Changes in travel behavior, such as the continuing trend toward more autos per household, can also impact volumes in a manner that the traffic model cannot predict.

An estimate of remaining developable land in Mont Vernon was made through an analysis of development constraints by the NRPC in consultation with Mont Vernon officials. These constraints are general landscape conditions that may pose a barrier to using land for residential, commercial or industrial development.

The regional traffic model was then run with the 2020 regional land use forecasts and produced weekday traffic forecasts for Mont Vernon as shown in Table T-2.

Table T-2

Forecasted 2020 Weekday Traffic Counts and Level-of-Service

Mont Vernon’s existing highway system provides adequate capacity for vehicles traveling to and from the Town or through the Town. The existing highway system is also expected to provide adequate capacity to accommodate future needs. New highways, such as a Route 13 By-pass, would not serve a purpose or need for traffic to and from Mont Vernon or for traffic traveling through Mont Vernon, nor is it looked upon favorably by the Town of Mont Vernon.

Part 2: Key Transportation Issues

This portion describes key transportation issues and strategies for the conservation and preservation of Mont Vernon’s rural character and for maintaining the safety of motorized and nonmotorized travel in the Town.

Road design may have the greatest influence on whether or not rural character is preserved or destroyed. The most disturbing fact is that rural communities continue to employ road design standards based on factors devised to accommodate extreme conditions in more urban settings, often destroying the very rural characteristics communities have set out to preserve.

The first impression of a community is typically formed from the vantagepoint of the automobile. The images that make up the rural landscape may include a farmstead surrounded by open fields, hedgerows and large stands of trees, stone walls and fences running along both sides of a gravel road, or mature shade trees protecting the edge of a stream. The qualities of a rural community can be preserved through a variety of methods. Successful integration of roads within the surrounding landscape will enable the preservation of visual, cultural and natural resources. The implementation of sensitive design standards will enable the towns to protect critical resources and preserve the visual attributes of the rural landscape. There are a number of "new, alternative" road standards developed in recent years, endorsed by the proponents of previously excessive methods, including civil engineers, urban planners and builders on the national level who now understand the advantages of designing roads for people as well as vehicles.

It is impossible to discuss road planning as a separate issue from land use development planning. The best examples of rural land development can be derived from historic models. Early 19th century homes were connected by a series of cart roads and paths, and in later years groups of homes were served by short access ways. More desirable rural land use patterns could be achieved following a conservation planning approach, by first siting uses in the most suitable locations, and then providing access that is sensitive to preserving the visual integrity that creates an impression of a community.

Three components of road design to consider include accommodating the needs of people as well as automobiles and various alternatives for moving about on roads, preserving resources, and implementing reasonable construction standards designed to ensure safety and convenience without compromising the needs of people or the character of the community.

The Town of Mont Vernon faces a number of issues regarding rural road standards such as improving existing roads and constructing new roads. For existing rural roads facing the pressures of increased traffic volumes, it is a question of defining best development practices to preserve features like walls, trees, and vegetated shoulders.

Mont Vernon’s unpaved roads add to its rural character. In some cases, as in Mason Road, the unpaved state contributes rather than detracts from the safety of the road, because it forces traffic to proceed slowly. The document entitled "When to Pave A Gravel Road," included in Appendix B, is helpful in considering the pros and cons of this issue, and shows that sometimes it is advantageous and less expensive to leave a road unpaved. It should not be assumed that the townspeople of Mont Vernon support the gradual paving of all unpaved roads in town. As unpaved roads contribute to the rural character of Town, paving of unpaved roads should be listed as separate line items in the budget, in order to give the Town opportunity for input at Town Meeting.

In addition, a chapter on road design standards from "Rural By Design," also included in Appendix B, is very informational on the subject of alternative design standards for preserving rural character.

The following section discusses strategies that should be considered when evaluating new roads and also elaborates on the use of alternative design standards. In general, the Planning Board should require a traffic impact study as a part of the subdivision approval process.

The variety of issues related to people and how they use roads are of primary concern to Mont Vernon during the road design process. Road design that focuses only on providing vehicles uninterrupted movement at optimal speeds disregards the needs of non-vehicular traffic. The Town should avoid making road alterations that diminish the ability of roads to accommodate cyclists, horseback riders, people as pedestrians, or other non-motorized activities.

Mont Vernon favors developing a transportation framework based on desirable characteristics of the past.

Roads that are too wide detract from a sense of community within neighborhoods. Wider roads cost more to build and maintain, and they consume more resources than necessary, including shade trees, stone walls and other natural or cultural features.

In the past, environmental factors related to road design were seen as obstacles to overcome in the process of laying out pavement. Stormwater run-off is one of the major by-products of the impermeable road surface. Curbed streets and closed drainage systems intensify run-off and increase land consumptive mitigation measures. The Town should limit use of curbs and closed drainage to the residential and limited commercial districts, in order to preserve the rural character of the rural residential district.

New road design standards should incorporate reduced pavement widths, improved road construction standards, accommodation for non-motorized uses and environmentally sensitive stormwater management techniques. Local roads should be designed for low speeds, so that people can safely use roads for walking, cycling, riding horses and other acceptable modes that improve community interaction. Private roads and common accessways are two possible methods for implementing this strategy, although current zoning requirements inhibit the most creative design possibilities because too much emphasis is placed on minimum frontage and regular lot shape.

Any road network master plan developed by the Town should look at providing connecting alternative routes through new development to avoid elevating existing local roads to the status of a collector street, and to discourage the design of dead-end streets. (A local road is one that is either Class V, VI or private.) New roads in the Town should be local roads in function and classification, limited to providing access to adjacent parcels in subdivisions.

With this in mind, the Town should consider implementing the following principles using site plan review, driveway ordinances, and/or zoning regulations for new road designs:

• A right-of-way (ROW) width of 50 feet (minimum) is recommended for all new local roads in the Town (except scenic roads), with the exception of private ways and drives. This will allow the upgrading of any roadway, if necessary, should development occur in a manner that was not anticipated. It will also allow for the inclusion of pedestrian and bicycle paths, where desired. A greater width may be required for arterial and collector streets. Travelway width may vary depending on the type of roadway and the nature of the traffic. A minimum single lane width of nine feet is recommended for each direction of traffic traveling at slow speeds.
  
  Higher speeds or traffic volumes will require a wider lane width for each lane of traffic. Generally, the centerline of the travelway should coincide with the centerline of the ROW. The fifty-foot minimum ROW would allow alteration of the roadway in the future but, more importantly, it would allow for the diversion of the roadway to avoid difficult or sensitive natural formations during the course of construction.

• Road widths should not exceed the width of the collector road unless there are plans to widen the collector road.

• Use of sidewalks and curbing should be limited to the residential and limited commercial districts. Gravel pathways would be preferable in the rural-residential district.

• New roads that are off of unpaved roads should also be unpaved unless there is a specific plan in place to pave the collector road. New property owners should be made aware if the Town has no plans to pave their road.

• Turning radii should be minimized to prevent high speeds.

• The Town should encourage creative open space subdivision designs. Hammerhead designs, as shown below, are a viable alternative to the expansive circle most commonly now used in of a cul-de-sacs (also illustrated below). Regardless of design, a right-of-way access should be provided for future road connection or connection to a non-motorized trail network.

• New roadways should follow existing contours to minimize the extent of cuts and fills.
• New roads should not fragment open fields.
• Where sites include linear features such as existing access roads, tree lines, and stone walls, roadways should follow these features to minimize their visual impact.
• Minimum distance between access points on public roads should be 200 feet.
• Access points to new developments should include common drives as well as individual drives and on-site roadways.

The Town should encourage the use of private unpaved drives for subdivisions of 5 lots or less or for those that lack frontage on existing roadways. Such roads should have a width of twelve feet with a twenty-four foot widening located every 1000 feet in the event that an emergency vehicle needs to pass. Deeds should clearly state that the Town does not intend to adopt these roads. No more than five house lots should have frontage on a private unpaved drive. These should include a reduction in road width, waiving the requirements for road-paving when roads come off of dirt roads, and encouraging the use of shared driveways as shown below.

Access Management is the process of managing the placement of driveways on roadways. In general, access management policies involve the regulation of the number of driveways, the design and placement of driveways, and the design of any roadway improvements needed to accommodate driveway traffic. The primary goal of implementing access management policies is to prevent the loss of roadway capacity due to development along arterials by limiting turning movements that conflict with through traffic.

The maintenance of safe and convenient access to roads and highways is an important element of transportation systems planning. To achieve this end, it is recommended that the guidelines and standards of the NHDOT be used in the placement of access points to highway and road corridors. The State requires that the safest possible location for access shall be selected (NH RSA 236:13). There must also be adequate

drainage and grades to permit a safe and controlled approach to the highway in all seasons of the year (NH RSA 236:13). The American Association of State Highway and Transportation Officials (AASHTO) standards should also apply in those instances where State standards are discretionary.

Route 13 and the Francestown Turnpike represent the main corridor roads in Mont Vernon. Traffic congestion on both roads is characterized as level of service "A" (very little delay). In order to preserve the existing road capacity, which has a theoretical limit, access management policies should be applied to future developments along both roads.

The following policies can help achieve the access management goals and can be applied to any zoning district and should be implemented by the Town through site plan review, driveway ordinances, and/or zoning regulations:

• Require developers to make or contribute financially to improvements that reduce the impedance of through traffic, such as right turn lanes, left turn pocket lanes, and bypass lanes for left turning vehicles. A key tool in assessing the impacts of a new residential or commercial development is a traffic analysis that should be required by the Planning Board for all new developments.

• The number of curb cuts along roads should be minimized in new developments, and the use of common driveways encouraged.

• Encourage easements between parcels for the interconnection of non-residential sites that allow employees and customers to move from site to site without repeatedly entering and exiting the arterial.
• Driveways and tapers should be long enough to permit deceleration of entering vehicles. Separate as much as possible, vehicular and pedestrian traffic.

• Place parking behind or beside buildings and screen parking when possible to make the building the focal point of the destination. For non-residential properties, use green spaces to articulate the differences between driveways, parking, and pedestrian areas.

The following policies would help achieve the access management goals specifically in the commercial district and should be implemented by the Town through site plan review, driveway ordinances, and/or zoning regulations. Although Mont Vernon does not foresee great commercial development in the near future, the following policies should be considered to be in place:

• Non-residential driveway entrances should be designed to prevent vehicles on the arterial from queuing while waiting to access the site. By providing adequate depth or driveway length at the curb cut access, vehicles are allowed sufficient maneuvering space on site to move away from the entrance and allow other vehicles to efficiently and safely enter or exit the site.
• Encourage the development of service roads in the commercial zone parallel to arterials that allow for access to adjacent commercial developments.
• Driveways and tapers should be long enough to permit deceleration of entering vehicles. Separate, as much as possible, vehicular and pedestrian traffic. Allow for pedestrian access between commercial developments and be permitted to access buildings without crossing driveways or excessive parking areas.

The NRPC’s Design Guidelines are an excellent resource for further information on alternative techniques for preserving access and enhancing sites associated with non-residential developments.

As New Hampshire's residential, commercial and industrial development has grown, so has the desire to improve the road system, thereby reducing the number of country roads that constitute an important asset to the State. To prevent the elimination of scenic roads, communities are enabled by State legislation to designate roads other than state highways as Scenic Roads. Scenic Roads are special town designations of Class IV, V, and VI roads where any disturbance of a stone wall or cutting or removal of a tree, must go through the hearing process and receive written approval of local officials (See RSA 231). The law is an important tool in protecting the scenic qualities of roads. The large trees and stone walls that line many rural roads are irreplaceable and greatly enhance Mont Vernon’s desired rural character.

The following are Existing Scenic Roads:

• Brook Road from New Boston Road to Tater Street Extension.
• Old Amherst Rd. from Main Street to Amherst Town Line.
• Old Milford Road from Purgatory Road to Jennison Road.
• Old Wilton Rd. from Main Street to Milford Town Line.
• Remington Rd. off Kendall Hill Rd.
• Purgatory Rd. from four corners Route 13 to Purgatory Hill.
• Upton Rd. from Old Wilton Rd.

The Town should consider adopting a 100-foot setback from the edge of the road for structures located on scenic roads and the placement of signs to indicate the status as a Scenic Road.

The following is a list of Proposed Scenic Roads:

• Lamson Road
• Horton Road
• Salisbury Road
• Cross Road

• Mason Road
• Cemetery Road
• Brook Road
• Trow Road
• Dow Road
• Smith Road

The town stores salt in a covered facility located on Mason Road. The town does not have an established sand/salt mixture policy; however, the percentage does vary depending on the type of storm. A number of towns in the region have adopted reduced and/or no-salt programs in sensitive areas such as near public water supply wells, concentrations of individual wells and surface waters. Guidelines for developing such a policy are included in Appendix B. The Town should also consider alternative deicing chemicals for use on roads during winter storms, and should work with the New Hampshire DOT to study the long term affects of alternative deicers on the environment compared with the present policies. Although the Town currently uses very little salt on roads, salt-sensitive areas should be defined and treated accordingly.

In 1995 the NRPC area towns (including Mont Vernon), which make up the region’s Metropolitan Planning Organization, endorsed the Regional Bicycle & Pedestrian Plan (RBPP). The RBPP recommended physical and institutional improvements as well as a non-motorized network comprised of local and state roads on which bicycle and pedestrian improvements should be focused.

As of this writing, the NRPC is in the process of updating the Regional Bicycle and Pedestrian Plan. The purpose of the current NRPC update is to ensure compatibility between the State and Regional Bike Plans. The resulting regional map will become part of the NHDOT’s Statewide Bicycle Network, and will also serve as the most current map of the NRPC Region Bicycle and Pedestrian Plan.

Additionally, the updated regional network will serve to prioritize, schedule, fund, design

and build improvements along the identified routes.

This Master Plan strongly urges the Town to design a trail network for bicycles and hikers. This town bike network is intended to be local in nature and scale and should not necessarily be designed to be an integral part of the regional bike network. The Conservation Commission should research the status of Class VI roads for the purpose of using them for trails.

The key recommendations offered by the Mont Vernon Master Plan Committee for the update to the Regional Plan are:

• Where a bike route on a major road is identified (Route 13 for example) there should be a minimum of a four-foot paved shoulder separated from motorized travel lanes by a 6- to 8-inch painted stripe, and appropriate "BIKE ROUTE" signage should be prominent.

• Install sidewalks, unpaved paths or shoulders on both sides of roads where possible to improve pedestrian safety, keeping in mind the ultimate goal to link paths for walking, mountain biking, and horse back riding.

• The Town should utilize the TEA – 21 Transportation Enhancement funds and other methods to protect view sheds off of public and scenic roads and for the development of a network of biking and pedestrian trails.

• Establish a regular maintenance program for the "non-motorized facilities" (paths, etc.). This program would include regular inspection of facilities to identify hazardous conditions, road shoulder sweeping, and maintenance of facilities based on safety considerations. It would be run by the public works department and volunteers.

• Adopt land use strategies which facilitate non-motorized travel. Strategies such as encouraging mixed-use development, programming non-motorized improvements into the local Capital Improvements Program, requiring non-motorized improvements as a part of development approval, and adopting bicycle and pedestrian-friendly design standards would result in a more attractive traveling environment for non-motorized modes.

Part 3: Recommendations and Action Items

The following is a summary of the key recommendations and action items noted throughout the chapter:

• The Town should post restricted weight limits on bridges.

• The Commuting Patterns table should be updated as soon as the 2000 Census data becomes available.

• The Town should develop and adopt alternative roadway design standards and subdivision standards for new roads as described on pages T-7 through T-9.

• As unpaved roads contribute to the rural character of Town, paving of unpaved roads should be listed as separate line items in the budget, in order to give the Town opportunity for input at Town Meeting.

• The Town should employ access management techniques in the commercial zone along Route 13 for the purpose of preserving roadway capacity and ensuring safe movement for vehicles entering and exiting curb cuts and side roads. This would be accomplished through the adoption of various subdivision and site plan regulations pertaining to Access Management. (See page T-11 for specific policies.)

• The Town should develop design guidelines for commercial site development to preserve the aesthetic qualities along the Route 13 corridor. The site design guidelines would also serve to enhance the access management goals. (See page T-11 for specific policies.)

• The Town should consider adopting a 100-foot setback from the edge of the road for structures located on scenic roads.

• The Town should consider posting "Scenic Road" signs on designated roads.

• The Town should consider designating Lamson Road, Horton Road, Salisbury Road, Cross Road, Mason Road, Cemetery Road, Brook Road, Trow Road, Dow Road, and Smith Road as scenic roads.

• The Town should consider alternative deicing chemicals for use on roads during winter storms, and should work with the NHDOT to study the long-term affects of alternative deicers on the environment compared with the present policies. Salt-sensitive areas should be defined and treated accordingly.

• The Town should utilize the TEA-21 Transportation Enhancement funds and other methods to protect view sheds off of public and scenic roads and for the development of a local network of biking and pedestrian trails.

• Where a bike route on a major road is identified (Route 13 for example) there should be a minimum of a four-foot paved shoulder separated from motorized travel lanes by a 6- to 8-inch painted stripe, and appropriate "BIKE ROUTE" signage should be prominent..

• The Town should develop a town-wide hiking and walking trail system, possibly with the use of TEA-21 Transportation Enhancement funds. Active and abandoned Town-owned Class VI roads and woodland trails should be utilized where possible.

• The Conservation Commission should research the status of Class VI roads for the purpose of using them for trails.

• The Class V road network should be reviewed to determine if any roads should be discontinued i.e. made subject to gates and bars.

• The Planning Board should require a traffic impact study as a part of the subdivision approval process.

• New roads in the Town should be local roads in function and classification, limited to providing access to adjacent parcels in subdivisions.

• The Town should study the need for roadway surface improvements based on an orderly growth pattern. This can be accomplished through the use of the "Road Surface Management System" (RSMS) Plan recently completed by the NRPC.