In recent years, there has been an increase in safety incidents occurring at Massachusetts Bay Transportation Authority (MBTA) Commuter Rail stations that have pedestrian at-grade crossings.17 These incidents have led to serious injuries and, in some cases, fatalities. We found several examples of safety incidents that occurred during and shortly after the audit period:
- On August 30, 2021, a pedestrian was killed after being struck by an MBTA Commuter Rail train at Montello Station in Brockton.18
- On January 18, 2022, a pedestrian was struck by an MBTA Commuter Rail train at the West Concord MBTA Station.19
- On April 6, 2022, a pedestrian was struck by an MBTA Commuter Rail train in Ayer.20
- On August 31, 2022, a pedestrian was struck by an MBTA Commuter Rail train at the West Concord MBTA Station.21
- On October 31, 2022, a pedestrian was struck by an MBTA Commuter Rail train at Montello Station in Brockton.22
While the safety incidents mentioned above occurred at pedestrian crossings at MBTA Commuter Rail stations, similar incidents have also been identified at crossings outside these stations, including those at highway intersections.
- On January 21, 2022, a driver was killed after a car was struck by an MBTA Commuter Rail train in Wilmington.23
- On Friday, May 12, 2022, a pedestrian was killed after being struck by an MBTA Commuter Rail train in Abington.24
- On April 26, 2023, a driver was killed after a car was struck by an MBTA Commuter Rail train in Abington.25
- On December 2, 2024, an MBTA Commuter Rail train collided with a minivan in Abington.26
a. The Massachusetts Bay Transportation Authority should ensure that its inventory of railroad crossings is complete and accurate.
The MBTA is required to maintain an inventory of its railroad crossings and report the information to the Federal Railroad Administration (FRA). This inventory includes details about the location, type of crossing (public or private27), and existing safety features such as lights, signals, gates, and signs. We requested that the MBTA provide us with an inventory of its at-grade pedestrian crossings at Commuter Rail stations. It took the MBTA more than a month to supply this information to us, raising concerns about the adequacy of its record-keeping practices. When the MBTA was able to provide us the inventory, we found discrepancies between the MBTA’s inventory and the data we found in the FRA’s grade crossing database.
The inventory provided by the MBTA contained 57 at-grade pedestrian crossings. We identified an additional 38 at-grade pedestrian crossings listed in the FRA at-grade crossing database that did not appear on the list provided by the MBTA. In addition, we noted that the inventory the MBTA provided included several crossings that were not directly related to MBTA Commuter Rail stations, such as highway crossings. This raises questions about the MBTA’s recordkeeping system, specifically the accuracy and reliability of the data maintained by the MBTA regarding pedestrian crossings at MBTA Commuter Rail stations.
Accurate inventory data is critical for analyzing trends, identifying high-risk areas, and developing strategies to improve at-grade crossing safety. To ensure that it has accurate and current data, we believe that the MBTA should conduct a comprehensive inventory of all at-grade crossings (vehicular and pedestrian) on its Commuter Rail system. This inventory should capture the location of each crossing, the crossing identification number, the physical characteristics of the crossing (including safety mechanisms), whether the crossing is public or private, and whether the crossing is active or passive.
b. The Massachusetts Bay Transportation Authority should convert all Commuter Rail station at-grade crossings into active crossings.
Railroad crossings are categorized as either active or passive crossings, depending on the safety features existing at each location. Passive crossings are those without lights, gates, or any other type of active (electrical or mechanical) warning devices to alert pedestrians about an approaching train. Instead, passive crossings rely entirely on signage and/or pavement markings (see Appendix A for examples). Active crossings have more advanced safety devices, such as bells, flashing lights, and gates that automatically activate when a train is approaching (see Appendix A for examples). Active crossings are usually supplemented with the same signs and/or pavement markings used for passive crossings. Active crossings definitively tell pedestrians when it is no longer safe to cross a railroad track. In comparison, passive crossings rely on the pedestrian’s ability to visually observe the crossing, and accurately gauge when it is safe to cross (based on the speed and distance of an approaching train) making them much more dangerous than active crossings.
The Federal Rail Safety Improvement Act of 2008 directed the FRA to provide guidance to railroads concerning pedestrian safety at or near passenger stations. According to Section 201 of the Federal Rail Safety Improvement Act,
Not later than 1 year after the date of enactment of this Act, the Secretary shall provide guidance to railroads on strategies and methods to prevent pedestrian accidents, incidents, injuries, and fatalities at or near passenger stations, including—
(1) providing audible warning of approaching trains to the pedestrians at railroad passenger stations;
(2) using signs, signals, or other visual devices to warn pedestrians of approaching trains;
(3) installing infrastructure at pedestrian crossings to improve the safety of pedestrians crossing railroad tracks;
(4) installing fences to prohibit access to railroad tracks; and
(5) other strategies or methods as determined by the Secretary.
As a result of this legislation, in 2012, the FRA published a document entitled “Guidance on Pedestrian Safety at or near Passenger Stations,” which stresses the importance and value of having active warning devices present at stations. This document states, that “audible and visual warnings should be used at or near passenger stations, where appropriate, to guide pedestrians to proper crossing points, and also to indicate when it is appropriate to cross the tracks in order to get to the correct station platform to board the desired train.”
According to the Federal Highway Administration’s Railroad-Highway Grade Crossing Handbook, a document containing best practices as well as adopted standards relative to highway-rail grade crossings, “active traffic control devices have proven an effective method of improving safety and operations at highway railroad grade crossings.” The Railroad-Highway Grade Crossing Handbook cites crossing accident data over a period of 30 years that shows that accident rates declined more than 80% when railroad at-grade crossings are upgraded from passive to active.
The use of active warning devices appears to also be an internal requirement of the MBTA. Section 3(7)(b)(1) of the MBTA’s “Commuter Rail Design Standards Manual, Volume I, Section II, Stations and Parking” states the following:
Provide fully automated crossing warning systems at each pedestrian crossing on main line tracks. Secondary and other low speed tracks may be exempted from this requirement on a site specific basis. Locate warning signs on all crossings to be visible from each entry to the crossing. These signs should have the phrase “Look Before Crossing” on both sides.
During our audit, we received information from a stakeholder. This information evidenced a public record indicating that on April 8, 2020, the MBTA Commuter Rail Safety Department was provided with a list from Keolis train engineers that identified the top 20 most problematic stations containing at-grade crossings in the Commonwealth. (See Appendix B.) According to this public record, it appears that the MBTA Commuter Rail Safety Department had identified low-cost safety improvements that it could implement at these 20 most problematic stations and then implement them at all Commuter Rail stations with at-grade crossings. The MBTA Commuter Rail Safety Department believed these safety improvements would be installed in August 2020. However, as of the time of our fieldwork, these safety improvements have still not been implemented.
Despite the fact that using active warning devices appears to not only be the MBTA’s own internal requirement, but also a recommended best practice by the FRA and the Federal Highway Administration, we found that 40 (70%) of the 57 at-grade pedestrian crossings on the inventory provided by the MBTA remain passive crossings. We believe that the MBTA should follow its own policy as well as the guidance issued by the federal government and convert all Commuter Rail station at-grade crossings into active crossings.
As part of this audit, we also performed a visual inspection of 35 at-grade pedestrian crossings located at MBTA commuter rail stations to document the type and physical condition of the safety features existing at each location. We observed the following issues that we believe could increase the risk of accidents and fatalities:
- Crossings with worn-out or faded pavement markings (see Appendix A), making it difficult for pedestrians to recognize.
- Crossings with signage that was obstructed (see Appendix A), reducing its visibility to approaching pedestrians.
- Crossings with “Look before crossing” signage only on one side of the crossing (see Appendix A).
c. The Massachusetts Bay Transportation Authority should conduct diagnostic reviews of all the Commuter Rail stations containing at-grade crossings.
MBTA officials advised that the FRA requires a diagnostic site review be performed for “high-risk” crossings. The FRA has identified high-risk crossings as those that have five or more accidents over a five-year period or two or more fatal accidents over a five-year period. During a diagnostic review of a crossing, representatives from the FRA, the MBTA, the Massachusetts Department of Transportation, the Massachusetts Department of Public Safety,28 and Keolis identify potential hazards and vulnerabilities at the crossing, determine the adequacy of existing safety measures, and recommend improvements to reduce the risk of future accidents or incidents. According to MBTA officials, there was only one diagnostic review conducted of one station during the audit period.29
Rather than waiting for a trend of accidents to develop, we believe the MBTA should immediately conduct diagnostic reviews of all its at-grade pedestrian crossings. This approach would identify hazards and vulnerabilities before they lead to accidents, enhancing safety for both rail operators and the public. Both the FRA and the American Public Transportation Association endorse such a practice. The FRA’s “Guidance on Pedestrian Safety at or near Passenger Stations” document recommends that the hazard management techniques used by railroads not be a one-time task. Instead, the FRA recommends the periodic re-evaluation of pedestrian crossing safety at or near passenger stations. Further, the American Public Transportation Association “Rail Transit Grade Crossing Safety Assessment,” a best practice document for grade crossings, states that a full, systemwide review of new and existing grade crossings should be done on a regular basis. This review should “identify factors at crossings that may have changed or are emerging that may create the potential for new hazards not previously addressed.”
Auditee’s Response
The MBTA agrees with the SAO that pedestrian safety around at-grade crossing is critical to its operation of the commuter rail and appreciates the suggestions made in the Draft Report. The MBTA is actively engaged, with its commuter rail provider Keolis Commuter Services, LLC (“Keolis”), in improving safety at commuter rail grade crossing and raising public awareness of railroad safety around grade crossings. The MBTA also actively engages with Operation Lifesaver, a non-profit organization and nationally recognized leader of rail safety education, to educate communities and raise awareness of grade crossing safety across the commuter rail network. For pedestrian at-grade crossings at commuter rail stations, train engineers observe a special operating rule (121-S1), which goes beyond Northeast Operating Rules Advisory Committee (NORAC) operating rules and allows only one train at a time to enter the station, ensuring that pedestrian can safely transverse the at-grade crossing while a train is stopped at the station.
The MBTA tracks and analyzes every incident involving the collision of commuter rail trains with pedestrians or motor vehicles. With respect to the incidents raised in the Draft Report, the MBTA notes the following:
- Of the five safety incidents identified by the SAO that occurred at pedestrian at-grade crossings, a majority of were determined to be the result of intentional acts that could not have been prevented by the types of safety improvements discussed in the Draft Report.
- Of the three safety incidents identified by the SAO that occurred at highway intersections, all of which are equipped with active warning systems and crossing gate mechanisms, two out of three incidents resulted from motorists failing to yield at the crossing while the active warning systems and crossing gate mechanisms were activated and functioning as intended.
In 2023, the MBTA invested in safety enhances at all its highway grade crossings, including painting fog lines across the tracks to delineate the roadway and installing reflectorized pavement markers and 4-foot-high reflective delineators. The next phase of this work will include upgrading to 12-inch LED lights and adding a hash-marked paint scheme at all crossing to enhance visibility and draw motorists’ and pedestrians’ attention to the crossing areas. To further improve safety at pedestrian at-grade crossings, the MBTA and Keolis are reviewing all commuter rail stations with pedestrian at-grade crossings and/or lack of inter-track fencing, identifying strategies to eliminate these safety risks. Some of the recommended upgrades include removing pedestrian crossings where alternative paths exist, closing gaps in inter-track fencing, and in some cases building Americans with Disability Act compliant walkways between platforms. At some stations, where pedestrian crossings cannot be eliminated, for accessibility reasons, active warning systems are being considered as a potential solution. The MBTA will tailor the solution to the characteristics of each station, as there is no one-size-fits-all approach. The MBTA has updated its inventory of pedestrian crossing to ensure accuracy, completeness, and consistency. In addition, MBTA staff are also reviewing all pedestrian crossings to ensure each location has the markings, signage, etc. that meet the relevant safety standards.
Auditor’s Reply
The MBTA has stated that it, along with Keolis, is reviewing Commuter Rail stations with pedestrian at-grade crossings to identify strategies for eliminating safety risks. However, this process was also mentioned in 2020, yet no significant improvements have been made. Rather than just meeting “the relevant safety standards,” as the MBTA suggests in its response, the agency should go beyond basic requirements and take stronger, more proactive measures to better protect pedestrians and potentially save lives. Given the clear guidance to eliminate all passive crossings, it is essential that the MBTA replace them with active safety measures such as gates, lights, and bells. There is an urgent need for decisive action and a clear timeline to ensure that these necessary improvements are implemented. A clear, specific, and well-resourced timeline would reflect the stated commitment of the MBTA and Keolis to address this critical issue, especially in light of prior inaction on this issue.
We urge the MBTA to fully implement our recommendations, and we will follow up on this matter in approximately six months.
| Date published: | March 10, 2025 |
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