Introduction

Massachusetts faces growing economic challenges, from housing shortages and labor market constraints to demographic headwinds and uneven regional growth. Meeting these challenges will require the commonwealth to build on its existing strengths. Few assets offer greater potential than the Massachusetts Bay Transportation Authority’s (MBTA) 400-mile commuter rail network. 

With sustained investment and focused execution, this underutilized asset can be transformed into a modern Regional Rail system.¹ From Fall River to Fitchburg, Boston to Worcester, and across the many communities in between, an electrified network would deliver rapid transit-like frequency, speed, and reliability. In doing so, it would expand access to jobs and housing, strengthen regional labor markets, and support economic growth across Massachusetts. 

In a series of policy briefs, the MassINC Policy Center and TransitMatters are examining the practical steps required to advance this long-term vision, with a focus on how the state can make meaningful progress in the near- to medium-term. The first brief, released in December 2025, documented the MBTA’s success increasing ridership through changes to schedules and fares. It also explored opportunities to build on these early gains through off-peak pricing and deeper discounts for low-income riders.²

While scheduling and fare policies remain among the most cost-effective tools to improve service and increase ridership, a number of relatively modest capital investments can also deliver substantial benefits. This brief focuses on these “No Regrets” projects—improvements that provide immediate service enhancements while advancing the long-term transition to Regional Rail.

These investments merit priority for two reasons. First, their relatively modest cost will allow the MBTA to make steady progress on rail transformation in a geographically equitable manner. Second, they are future-proof. Regardless of tomorrow’s advances in locomotive, signalization, and other operating technologies, these projects are essential components of a modern Regional Rail system. By advancing them now, the commonwealth can improve service today while building toward the future.

Many of these projects will produce immediate benefits for riders. Others deserve particular attention because they support transit-oriented development (TOD). Strategic investments around stations can help communities expand housing production, especially Gateway Cities, which face extra difficulty sustaining revitalization efforts in periods of economic uncertainty.

While state leaders have broadly embraced the Regional Rail concept and the capital investments necessary to transform the system, a dedicated funding strategy to enable these improvements has yet to emerge. Recent findings from Governor Healey’s Transportation Funding Task Force underscore the need for a sustainable financing mechanism for long-term rail modernization.³

Absent dedicated funding, Regional Rail projects compete annually within the MBTA’s Capital Investment Plan (CIP). This dynamic forces difficult tradeoffs between maintaining the existing system and investing in its future. The resulting delivery gap carries real costs. Delayed projects become more expensive over time, riders continue to experience uneven service quality, and residents and businesses wait longer for the benefits of modernization.

Recognizing these challenges, the MBTA is developing a more transparent and strategic approach to capital planning for Regional Rail. In February 2026, the agency announced a public outreach process centered on a modernization strategy with four key pillars for the next decade: frequency, reliability, accessibility, and decarbonization.⁴

This policy brief supports the MBTA’s new engagement campaign by detailing key No Regrets projects on each line, including projected costs, existing funding commitments, and progress to date. It estimates a total capital spending gap of roughly $100 million annually to advance construction on all these high-impact projects, which equates to  roughly 20 percent of current commuter rail annual capital spending. The brief concludes with a review of potential revenue sources to close this funding gap and other policy actions that the state should take now to formulate a capital investment strategy to harness the full potential of Regional Rail.  

---

I. No Regrets Investment Projects 

To identify No Regrets investments on each line, we reviewed existing plans and capital budgets and consulted planning and transportation leaders in commuter rail communities, as well as experts in commuter rail operations. Three primary criteria were used to determine inclusion: total estimated project costs, projected service and ridership benefits, and geographic equity.  

While many worthy projects exist beyond this list, and narrowing the scope ultimately required subjective decision-making, the objective of this analysis is to demonstrate the types of achievable projects possible on each line, their status, and the relative investment levels required to carry them out. As such, this list should not be construed as definitive, but rather, as a starting point for public dialogue. The following section presents these projects organized by terminal (North Station and South Station) and line.  

---

The North Side

Fitchburg Line

The Fitchburg Line is one of the MBTA’s longest commuter rail corridors, stretching approximately 50 miles from Boston’s North Station through Cambridge and the inner suburbs along the Nashua River Valley to the outer Gateway Cities of Leominster and Fitchburg. Despite passing through several densely developed communities, peak period frequency remains limited to hourly service. Under the full Regional Rail vision, the Fitchburg Line would offer 10-minute peak service to Waltham and 30-minute all-day service to Fitchburg. One relatively small project on the line would serve as a catalyst for forward progress toward this vision.

Kendal Green Turn Track

A turn track at Kendal Green is essential for providing 30-minute service to stations inside Route 128/I-95. In this heavily congested corridor, more frequent service would make commuter rail a far more practical option for daily travel. The MBTA Rail Modernization team proposed the turn track to the Boston Metropolitan Planning Organization’s Transportation Improvement Program committee in March 2024.⁵ At that time, they estimated the cost at $14 million. Final cost estimates may differ because the location could change if a private developer moves forward with a proposal to relocate the station. However, regardless of where it is situated, the turn track is likely to provide an outsized return on investment by enabling more frequent and reliable service on the busiest portion of the line.

Haverhill Line

The Haverhill Line serves the dense inner suburbs of Melrose, Reading, and Wakefield, along with three Gateway Cities: Haverhill, Lawrence, and Malden. Current service on the line is remarkably infrequent relative to the line’s large base of potential riders: Even during peak rush hour, trains run only about every 40 to 60 minutes. Under Regional Rail, the Haverhill Line would see up to 10-minute peak service to Reading and 15-minute service to Haverhill all throughout the day. There are two potential No Regrets investments that would allow the MBTA to at least double frequency on this line from current levels, bringing service into closer alignment with latent demand.

Reading Turn Track

In 2025, the MBTA advanced plans for a turnback track north of Reading station.⁶ This would allow trains that terminate at Reading to reverse direction without running into conflicts with trains moving to and from Haverhill. This plan faced some local opposition due to concerns over engine idling, increased wait times at grade crossings, and impact on emergency vehicle response. Standard mitigation practices, used elsewhere in the system, could address many of these issues. Shifting the location of the turn track is also a possibility. The MBTA has put plans for this project on hold while it pursues a federal grant opportunity to fully double track the Haverhil Line.

Haverhill Line Double Track

Additional double tracking on the Haverhill Line would allow for greater speed and frequency throughout the entire corridor. This would involve a host of projects—including replacing missing sections of double track, reconfiguring grade crossings, and adding new side platforms at Andover, Ballardvale, North Wilmington, and Reading Stations. MBTA estimates for the full improvement program are around $180 million.⁷ The MBTA is seeking a competitive federal grant to carryout this work in two-phases. If the agency obtains these funds, it could potentially lower the state’s expense for the project to under $40 million.

Lowell Line

The Lowell Line is a key MBTA commuter rail corridor linking Boston’s North Station with the Merrimack Valley. The line runs approximately 25 miles through Somerville and into major suburban employment hubs like Woburn, Wilmington, and Billerica before terminating in the city of Lowell, one of the commonwealth’s largest and most dynamic Gateway Cities. Under Regional Rail, the Lowell Line would see up to 10-minute peak service to Anderson/Woburn and 15-minute all-day service to Lowell. At present, service remains infrequent, with trains running at roughly 40- to 45-minute intervals during rush hour. No Regrets investments could increase frequency and facilitate TOD to support higher ridership and economic growth.

Anderson/Woburn Turn Track

The MBTA is working on improvements to an existing siding just south of the Anderson/Woburn station. This track is heavily utilized by a mix of MBTA commuter rail, Amtrak, and freight trains, creating a significant point of congestion. The agency estimates the upgrades currently underway will cost approximately $3.5 million. This will enable 30-minute service between Boston and Woburn, and even higher frequency levels in the future with electrification.⁸

Gallagher Terminal Strategic Plan

The Gallagher Terminal is a multimodal facility operated by the Lowell Regional Transit Authority. Historically, the station has suffered from its location on the outskirts of downtown Lowell. However, a concerted effort over the past two decades to implement the city’s Jackson/Appleton/Middlesex Plan has successfully channeled growth south and west of downtown toward the station area.⁹ This revitalized corridor now features hundreds of new housing units with many more in the pipeline. While significant infrastructure upgrades have improved bike, bus, and pedestrian access to the station, the station itself needs major upgrades. Resources to help the city craft plans for a public-private partnership to redevelop the station in concert with infill TOD could provide a model for modernizing stations in major urban centers across the commonwealth, creating true gateways to regional cities and a passenger experience that is commensurate with our aspirations for Regional Rail. While there are currently no proposals for station planning, based on similar projects in other communities suggest that $500,000 should be sufficient to produce an exploratory study.

Newburyport/Rockport Line

The Newburyport/Rockport Line originates at North Station and runs along the coast before splitting at Beverly into two distinct branches. One branch continues inland and then along the Merrimack River to Newburyport, while the other hugs the coastline through Gloucester to Rockport. The southern segment serves three growing Gateway Cities (Chelsea, Lynn, and Salem) with strong downtowns and ties to Greater Boston’s job market. North of Beverly, the line supports smaller coastal towns with significant tourism economies and limited highway access. While headways are roughly 30 minutes in the southern section during peak periods, like the Lowell Line this dense corridor would benefit from higher frequencies in the future. Under Regional Rail, the Newburyport/Rockport Line would see up to 7.5-minute peak service to Salem and 30-minute all-day service to Newburyport and Rockport.

Salem Station Second Track

Adding a second track and platform at Salem Station is essential to achieve Regional Rail frequencies on the Newburyport/Rockport Line. This No Regrets project is the main action needed to immediately achieve 20-minute headways in the congested Boston-to-Beverley corridor. Internal planning suggests double tracking and adding a second platform at Salem Station will cost approximately $50 million.¹⁰

South Salem Station

A new station at South Salem has been proposed for nearly three decades. Estimates suggest this investment could yield 1,100 additional riders from the city, and provide better connectivity for the 50% of Salem State students who commute to school. At present, the project is in the planning and design phase. The 15 percent design report estimated total construction costs at $46 million.¹¹ In 2024, the City of Salem received a $2.8 million federal grant to complete the 100 percent design.

---

The South Side¹²

Franklin/Foxboro Line

The Franklin/Foxboro Line runs southwest from South Station, covering about 35 miles through a mix of dense inner suburbs and lower-density outer communities. In its inner segment, the line provides important access to Longwood Medical Area via Ruggles, as well as connections to Hyde Park and other outer Boston neighborhoods. It also serves job-rich suburban areas, such as Dedham and Westwood. In its outer reaches, the line connects smaller towns like Norfolk and Franklin, as well as Gillette Stadium in Foxboro. Under Regional Rail, the Franklin Line would see up to 7.5-minute peak service to Readville and 30-minute all-day service to Franklin.

Franklin Double Track Phase 3

The Franklin Line double-track project extends the double track between Franklin and Norwood Central to increase frequency and reliability. Completed in 2020, Phase 1 of the project added double track between Walpole and Norfolk. Phase 2—double track between Norfolk and Franklin—is under construction, and the MBTA expects this work to be completed by the end of the year.¹³ The final phase—a Walpole-to-Norwood Central connection and new platforms that will allow access to both sides of the new tracks—has received limited funding for planning. An additional $45 million to $55 million will be needed for the tracks. No estimate is currently available for the station improvements. When Phase 3 is complete, train frequencies will improve from every 45 minutes under the current schedule to every 15 minutes to Walpole and every 30 minutes to Foxboro/Forge Park.¹⁴

Old Colony Lines (Kingston, Greenbush and Fall River/New Bedford)

The three branches of the Old Colony Line—Kingston, Greenbush, and Fall River/New Bedford—meet at a junction in Braintree. From there, a single track services trains moving in both directions for five miles between Braintree and Dorchester. This creates a major bottleneck and restricts the amount of service the MBTA can run to generally less than one train per hour on each branch. The Old Colony lines are also plagued by reliability issues because of aging equipment, which exacerbates the problems posed by congestion along the trunk. Addressing the bottleneck is complex because of space constraints and existing bridges. The faster acceleration that electrification will provide will help, but in the meantime, strategic double tracking where space permits will allow for meaningful increases in service. Under Regional Rail, the Old Colony Lines would see 10-minute peak service to Quincy and 30-minute all-day service beyond.

Strategic Double Tracking

Trains on the Old Colony lines currently run every 75 minutes. The MBTA can get to 60-minute frequencies through strategic double tracking at meet sites. Currently, plans call for two sections of double track on the Greenbush Line and a rebuild of the Middleborough Station to allow for movement of meets on the line.¹⁵ The 2027-2031 CIP allocated $9.8 million for pre-design. 

Providence Line

The Providence Line is the busiest and fastest corridor, running 45 miles from Boston’s South Station to Providence with some trains extending to Wickford Junction. It serves a mix of dense urban neighborhoods, the suburban job centers along Route 128, and the Gateway City of Attleboro. Because trains run along Amtrak’s Northeast Corridor, the Providence Line benefits from straighter track geometry, allowing for faster service. With this high service quality, the line draws over 20,000 passengers daily, nearly twice as many as the number-two performer in the system. Under Regional Rail, the Providence Line would see 7.5-minute service to Canton Junction, 15-minute service to Providence, and 30-minute service beyond.

We have not identified any No Regrets investments opportunities for the corridor at this time. However, the line is slated to receive a major upgrade with the procurement of new battery-electric locomotives. While these engines will provide cleaner and more reliable service and some time savings, the time savings will be far lower than Regional Rail standards.

The MBTA is pursuing this option because the current fleet has reached the end of its life and needs to be replaced quickly. Converting to Electric Multiple Units trains with faster acceleration and shorter dwell times would require small stretches of additional catenary to provide power at sidings and service yards, as well as high-level platforms at all stops. With the absence of a financing plan for these improvements and time pressure to replace an aging and heavily polluting fleet, the MBTA has concluded that battery-electric locomotives represent the best path forward even though they are clearly not the most cost-effective approach to achieve the full economic benefits of Regional Rail.

Worcester Line

The Worcester Line connects New England’s second largest city to Boston. Along the way, it passes important regional job centers like Newton, Framingham, and Westborough. It also serves as a critical link to the western part of the state and to the Compass Project, MassDOT’s effort to center intercity north-south and east-west rail in Springfield. While Worcester Line service has improved in recent years, capacity constraints from shared freight tracks and infrastructure limitations still limit frequency, reliability, and speed. With tens of thousands of commuters stuck in Mass Pike traffic, service improvements in this corridor are critical to increase mobility and long-term economic growth. Worcester Line enhancements can also help mitigate the traffic impacts of the Allston Multimodal Project. If the MBTA can provide dependable service during this massive construction project, it will likely convert a generation of drivers to long-term rail riders. Under Regional Rail, the Worcester Line would see up to 7.5-minute service to Framingham and 15-minute service to Worcester.

CP44 and Mile Post 16 Interlockings

To increase service frequency and allow express trains to run faster on the Worcester Line, the MBTA is investing in two new interlockings—intersections where signals and track switches operate together to allow trains to move safely from one track to another. CP44 is in Worcester. Combined with Union Station’s new center island platform, it will reduce conflicts between arriving and departing trains at the terminus of the line. The Mile Post 16 interlocking is in the Natick-Wellesley area. It will allow express trains to pass locals in this congested stretch as well as provide greater operational flexibility.

A 10-mile bypass track between Weston and Framingham—a plan known as the Worcester Triple Track—may become necessary to accommodate higher frequencies in the future. However, it is possible that signalization technologies and station improvements will obviate the need for this expensive upgrade. In the meantime, No Regrets investments in these two new interlockings will allow the line to provide service every 30 minutes. These projects have been fully funded with proceeds from the Fair Share Tax. Construction is currently underway and the MBTA expects the work to be completed in 2027.¹⁶

---

II. Barriers to the Implementation of No Regrets Investments

Developing a regionally balanced list of No Regrets projects that improve performance of all lines shows what is possible. It also enables informed conversations about how Massachusetts can pay for these projects, and how it can deliver them in a timely, cost-effective manner. If the commonwealth is serious about acting on the unique opportunity that Regional Rail presents to improve quality of life and the state’s economic competitiveness, it should not forestall these difficult conversations any longer.

Overcoming the Cost Barrier

The MBTA’s FY 2027-2031 CIP includes roughly $2.8 billion for commuter rail capital projects, or $560 million annually.¹⁷ The total cost of the unfunded No Regrets investments identified above is approximately $503 million. Carrying out these projects over the next five years would require an additional $100 million, a roughly 20 percent increase over current funding levels.

Fair Share revenue could allow the MBTA to tackle these projects one at a time, pay as you go. However, the legislature has already directed substantial Fair Share funding to the MBTA, and it may be difficult to ensure regional equity with this incremental approach. Identifying a new revenue source is a viable alternative. Several potential sources that the Governor’s Transportation Revenue Task Force analyzed could generate the necessary funding, including a 50-cent-per package delivery fee, removing the rental vehicle sales tax exemption, removing the trade-in sales tax exemption, and dynamic tolling.

To be sure, the cost of delivering these No Regrets projects will rise significantly with inflation. However, the commonwealth could select a revenue stream that will also increase in line with inflation. Furthermore, the estimated $100 million annual increase in state capital spending required to tackle these projects is very conservative. Some of these upgrades will undoubtedly receive federal funds, reducing the need for state dollars.

Once these No Regrets investment projects are complete, a dedicated revenue source could then cover a significant share of the debt service necessary to support the larger, long-term capital investment required for full electrification and high-level boarding. However, there will likely still be a funding gap to close. Regional ballot initiatives (RBIs) are a viable solution worth exploring to meet the additional need. This approach would give voters the ability to authorize tax increases to fund the transformation of their corridors. RBIs could be used in combination with a land value capture mechanism to ensure that regions do their part to facilitate optimal land use around transit infrastructure receiving state capital investment.

Estimated Costs for No Regrets Investments on the North and South Sides of the MBTA Commuter Rail Network

Overcoming the Permitting and Regulatory Barriers

Like any infrastructure project, No Regrets investments must go through environmental review and a community input process. These processes often result in lengthy delays and in some cases the rejection of projects that have substantial benefits for both the environment and quality of life for a large majority of residents. Using the environmental impact process to block projects that allow for greater transit use and sustainable development is contrary to the intent of the law and undermines the commonwealth’s efforts to fulfill legally mandated carbon emission reduction targets.

Working with the legislature, the Healey-Driscoll Administration has shown exceptional resolve to tackle similar regulatory barriers to housing production. In 2024, the Governor’s Unlocking Barriers to Housing Production Task Force analyzed housing challenges and made recommendations to lower rising costs and expand stagnant supply. The administration has acted with urgency to advance these recommendations, including by making regulatory changes administratively.

The Healey-Driscoll Administration has championed Regional Rail and can help advance the project by acting with similar urgency to accelerate permitting. The commonwealth can find solutions to streamline permitting for vital infrastructure upgrades that will protect the environment and abutters.

---

III. Defining Moment

The MBTA has done well in recent years, rebuilding trust by providing more reliable service through state-of-good repair projects. The agency now has a much stronger management team and greater capacity to effectively deliver larger capital projects. In the coming year, it will enter into a new long-term commuter rail operating contract, further increasing readiness for Regional Rail investments.

The new rail modernization outreach process is an important step in this direction. It will give us a better understanding of the path to unlocking the full potential of Regional Rail, both with short-term No Regrets investments and major capital projects over the long-term.

These positive developments occur against a challenging backdrop. Rising costs put increasing pressure on Massachusetts residents. State budget makers are also facing new financial stressors, with a slowing economy and a slew of adverse federal policy changes. Given the situation, there will be a very strong instinctive reaction to hunker down and wait for fiscal conditions to improve. The Healey-Driscoll Administration must provide the leadership necessary to resist this urge.

Building on its accomplishments at the MBTA and its record of breaking out of the housing status quo, the administration can help forge consensus on a path forward for Regional Rail among the general public, the business community, legislators, transportation leaders, and environmental advocates.

Aggressively pursuing Regional Rail now will send a loud signal to investors that Massachusetts is bullish on its future, that it has a sound strategy to double down on its values and its strengths, and that it has the capabilities to build public infrastructure in a timely and cost-effective manner.

TransitMatters and MassINC urge the state legislature and the MBTA to take the necessary action to fund a modest but high-impact No Regrets investment strategy that delivers faster, more frequent, and more reliable service for the residents of each Regional Rail corridor. At the same time, legislators and the MBTA must continue working together to explore permitting strategies and funding mechanisms that will enable electrification and high-level boarding in the future. And lastly, they must partner to fashion new land use policies that facilitate optimal development in TOD areas surrounding this invaluable public infrastructure.

These land use strategies will be the focus of the third and final brief in our series.

---

About the MassINC Policy Center

The MassINC Policy Center works to foster civic vitality and promote inclusive economic opportunity across Massachusetts. Through nonpartisan research, reporting, analysis, and civic engagement, the Center equips residents with the knowledge needed to understand policy decisions, inform public debate, and hold government accountable. Founded in 1996 by a group of civic and business leaders, MassINC emerged from a shared belief that the Commonwealth needed more accurate, comprehensive, and unbiased information to guide effective policymaking. 

About TransitMatters

TransitMatters advances people-focused and data-driven solutions to advocate for better public transportation and mobility that provides access and opportunities for everyone across the Commonwealth, addresses climate change and inequality, and strengthens our economy. We envision a sustainable, equitable, and reliable public transportation system that is accessible and affordable to everyone in Greater Boston and across the Commonwealth by advancing proven best practices as well as high-impact, cost-effective initiatives.

This report was advised by Caitlin Allen-Connelly, Executive Director of Transit Matters and the Regional Rail Volunteer Team.

Footnotes

1. TransitMatters for put forward this concept in the 2018 report, Regional Rail for Metropolitan Boston.  ↩︎
2. Ben Forman and Janet Cheung. Harnessing the Full Potential of Regional Rail with Variable Pricing and Equitable Fare Policies. (Boston, MA: MassINC and TransitMatters, 2025).  ↩︎
3. See: Massachusetts Transportation Funding Task Force Final Report (January 2025).  ↩︎
4.  See: https://www.mbta.com/news/2026-02-26/mbta-developing-rail-modernization-plan-provide-more-frequent-reliable-accessible.  ↩︎
5. See: https://www.bostonmpo.org/data/calendar/pdfs/2024/0314_TIPPER_MBTA_MPO_Project_Funding.pdf ↩︎
6. See: https://www.mbta.com/projects/regional-rail-modernization-program.  ↩︎
7. Cost and frequency improvement estimates for these two interlockings provided by the MBTA in response to an information request by the authors.  ↩︎
8. Cost and frequency improvement estimates for these two interlockings provided by the MBTA in response to an information request by the authors. ↩︎
9. See: https://www.lowellma.gov/DocumentCenter/View/1545/Jackson-Appleton-Middlesex-JAM-Urban-Revitalization-Plan-PDF?bidId=  ↩︎
10. Cost and frequency improvement estimates for these two interlockings provided by the MBTA in response to an information request by the authors. ↩︎
11. AECOM. South Salem Station 15% Design Report (September 2025).  ↩︎
12. The Needham Line is not included because TransitMatters believes its transformation into the Orange and Green Line extensions is the optimal long-term strategy for this asset. The Fairmount Line is not included because it is intracity as opposed to Regional Rail. ↩︎
13. See: https://www.mbta.com/projects/franklin-line-double-track.  ↩︎
14. Cost and frequency improvement estimates provided by the MBTA in response to an information request by the authors.  ↩︎
15. Cost and frequency improvement estimates provided by the MBTA in response to an information request by the authors.  ↩︎
16. Cost and frequency improvement estimates for these two interlockings provided by the MBTA in response to an information request by the authors.  ↩︎
17. https://cdn.mbta.com/sites/default/files/2026-05/2026-05-28-fy27-31-final-cip-book.pdf ↩︎