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HomeMy WebLinkAbout20230216 118, 121-125 Woodlawn Special Use Permit Traffic Report Engineers Scientists Planners Designers 100 Great Oaks Boulevard, Suite 118, Albany, New York 12203 P 518.389.3600 F 518.452.0324 www.vhb.com November 1, 2023 Ref: 22258.00 City of Saratoga Springs Planning Board c/o Susan Barden City of Saratoga Springs 474 Broadway Saratoga Springs, NY 12866 Re: Response to Supplemental Comments, Woodlawn Club, 118 Woodlawn Avenue, City of Saratoga Springs, NY Dear Planning Board Members: VHB Engineering, Surveying, Landscape Architecture and Geology, P.C., (VHB) is in receipt of the Technical Review #2 Memorandum from Creighton Manning dated October 30, 2023, for the proposed Woodlawn Club located at 118 Woodlawn Avenue in the City of Saratoga Springs, New York. Below is a summary of the traffic-related comments and our responses from Technical Review #1 and the supplemental traffic-related comments and our responses from Technical Review #2. Project Summary and Conclusions As summarized in VHB’s traffic evaluation letter dated July 13, 2023, Updated August 31, 2023, the proposed project includes rehabilitation and re-occupancy of the former Bethel Church with a private professional club. The maximum occupancy at the club will be 75 people, with meeting room and food service being provided on a reservation basis. Club services will only be available to club members and their guests; no public access to the facility will be provided. Primary parking for the club will be provided via the existing 22-space parking lot with access to Woodlawn Avenue. The off-street parking available in this existing 22-space parking lot exceeds the City of Saratoga Springs Zoning Code parking requirement. Additional off-street parking will be provided via 10 spaces in a leased lot with access to Long Alley. On-street parking for six to eight vehicles is also available on Woodlawn Avenue along the project frontage; however, the on-street parking is restricted to the east and west sides of the roadway depending on the day of the week. The proposed project will not significantly impact existing traffic volumes, intersection operations, or available on-street parking capacity. No project-related mitigation is recommended. Comments and Responses Comment 5: Bolster Lane is a single lane alley. Regardless of the proposed security fence/gate at the Bolster Lane driveway, it is agreed that driveway access associated with a parking lot/commercial use be prohibited due to the existing character of the roadway. City of Saratoga Springs Planning Board Ref: 22258.00 November 1, 2023 Page 2 \\vhb.com\gbl\proj\Albany\22258.00 CTM Saratoga Springs\docs\letters\22258.00 Response to Comments_TDE Response 2.docx Response: The parking lot currently provides access to Bolster Lane. As confirmed in Comment 5, the proposed project includes closure of the existing Bolster Lane access for public access. No additional comments were made in Technical Review #2. Comment 6: An existing “Do Not Block Intersection” sign is provided on the eastbound approach of Van Dam Street at the Woodlawn Avenue intersection. What is the compliance of the sign by existing motorists? Are any other strategies necessary to supplement the sign such as pavement markings at the intersection? Response: Compliance of public infrastructure, including roadway regulatory signage, is the responsibility of law enforcement and not private landowners or project developers. However, in response to the comment, the turning movement count (TMC) videos for the weekday PM and Saturday midday peak hours were reviewed to identify compliance. The videos showed that there is good compliance with the “Do Not Block Intersection” sign (i.e., eastbound vehicles on Van Dam Street do not block Woodlawn Avenue). No additional comments were made in Technical Review #2. Comment 7: The crash assessment of the Van Dam Street/Woodlawn Avenue intersection determined that there is a pattern of right-angle crashes at this location. It was noted that 10 of the 12 right-angle crashes involved a northbound vehicle on Woodlawn Avenue and a westbound vehicle on Van Dam Street; however, these were classified as driver error. The detailed MV-104 reports should be reviewed to determine if reduced sight lines from queued vehicles on Van Dam Street contribute to this crash pattern. The MV-104 reports should also be reviewed to determine what types of accidents the “other” crashes should be classified as. Mitigation should be considered at this location if the proposed development intends to increase traffic. Were any injury or fatal crashes reported at this intersection? Response: The crash review provided in the Traffic Assessment looked at crashes for the latest three years prior to the onset of the COVID pandemic (March of 2020). The Department of Motor Vehicles (DMV) website states that they keep accident reports for only four years from the date of the accident, except for rare instances that are described in Vehicle and Traffic Law Section 201(i). The 12 right-angle crashes occurred on or before June 17, 2019. Therefore, the corresponding MV-104 records are older than the four-year record keeping limit and are no longer available. As noted, the Woodlawn Avenue at Van Dam Street intersection experienced a total of 12 right angle crashes over a three year period. This equates to an average of four right angle crashes per year indicating that although there is a pattern identified, the occurrence of crashes annually remains relatively low. Additional review of the crash data revealed that the right-angle crashes primarily occurred during the daylight with clear weather conditions and on dry roadway surface conditions. The contributing factors listed for the crashes included failure to yield the right-of-way, driver inexperience, traffic control devices disregarded, and driver inattention. A table showing the detailed crash data for the 12 right-angle crashes is included in Attachment A. Review of the information available for the three “other” crashes (direction of travel, number of vehicles per crash, pre- crash conditions, and contributing factors), indicates that two of the three “other” crashes were likely rear-end collisions involving three vehicles. One occurred in the eastbound direction, and one occurred in the westbound direction. Based on the available data, the third ”other” crash is unknown. No fatalities were reported at this intersection during the three-year study period. Six crashes at this intersection, including four right-angle and two rear-end, resulted in injuries, equating to an average of two injury crashes per year. City of Saratoga Springs Planning Board Ref: 22258.00 November 1, 2023 Page 3 \\vhb.com\gbl\proj\Albany\22258.00 CTM Saratoga Springs\docs\letters\22258.00 Response to Comments_TDE Response 2.docx There were also 14 crashes resulting in property damage and two crashes that were non-reportable (no injury and less than $1,000 in property damage). The proposed project will increase traffic at the Woodlawn Avenue at Van Dam Street intersection, although the magnitude of traffic generated will be relatively low and vehicles will also access the site to and from the north on Woodlawn Avenue and via Long Alley where the secondary parking lot exists; therefore, safety related mitigation is not proposed at this intersection as a result of this project. However, due to the identified pattern of right angle crashes at the intersection, the applicant would support the City with potential safety related improvements at this intersection such as the installation of a supplemental stop sign on the west side of the roadway and/or intersection warning signs (per the Manual of Traffic Control Devices (MUTCD)) to provide additional visual warning for the need to stop at the intersection. Technical Review #2 Comment: Regardless of what the Department of Motor Vehicles (DMV) website states, the MV-104 reports for the three years reported is available if requested from the New York State Department of Transportation (NYSDOT). The Applicant should request this information to determine the main contributing factor of the 12 right-angle crashes via the detailed descriptions provided in the MV-104s. While it is acknowledged that the development will not substantially increase the total number of trips entering this intersection, it will increase traffic on the side streets at this intersection by approximately 60% when compared to the No-Build conditions. The majority of crashes reported at this intersection involve motorists exiting the minor street approaches and increasing traffic volumes to these movements may contribute to the existing crash pattern already identified. Response: Per further discussions with CM, it was agreed that the information available in the crash summaries provided by NYSDOT, field observations of existing travel conditions, and engineering judgement, provided adequate details of the crashes that illustrated an existing pattern of right angle crashes at the intersection that have resulted in property damage. Based on existing travel conditions and engineering judgement, the crashes are likely influenced by the existing eastbound queue on Van Dam Street from the adjacent traffic signal. Although the traffic generated by the site will be low, as noted in VHB’s initial response above, the Applicant would support the City with potential safety related improvements at this intersection. In addition to the potential for the installation of supplemental stop signs, other measures such as pavement markings to expand the area in which eastbound vehicles on Van Dam Street queue outside of the intersection to increase the sight line, or more extreme measures to restrict movements at the intersection could be considered. Comment 8: The trip generation evaluation only provides an estimate for three (3) of the seven (7) different types of rooms provided by the Club. Based on a review of available seating, it is estimated that the facility has an approximate 115 to 125 person capacity. The trip generation estimate should be updated for worst-case conditions assuming occupancy of each room and all uses. Will the proposed 22-space parking lot on Woodlawn Avenue and 10 additional leased parking spaces on Long Alley provide enough parking supply for the worst-case conditions? Response: Consistent with general industry standards, the trip generation estimate included in VHB’s August 31, 2023, Qualitative Traffic Assessment was based on the potential trip generation characteristics associated with maximum use of regulated spaces (meeting rooms and dining seats) resulting in a maximum 31 peak hour trips. Additionally, the City of Saratoga Springs Planning Board Ref: 22258.00 November 1, 2023 Page 4 \\vhb.com\gbl\proj\Albany\22258.00 CTM Saratoga Springs\docs\letters\22258.00 Response to Comments_TDE Response 2.docx Qualitative Traffic Assessment identified a maximum occupancy of 75 people, which is the maximum capacity agreed to by the applicant. Per the comment, VHB reviewed the trip generation estimate based on the maximum occupancy as a worst-case scenario. Based on a vehicle occupancy of 2.2 people per vehicle, this equates to a trip generation of 34 vehicles. The trip generation estimate in the Qualitative Traffic Assessment included employee trips entering and exiting the site during typical peak operating conditions (a total of 6 trips during each peak period). Based on the reservation-based operating characteristics of the proposed club, under a worst-case maximum occupancy scenario, employees would arrive and depart the site outside of the peak in order to staff appropriately for the maximum occupancy. Therefore, no specific employee trips are included in this trip generation scenario. Parking is allowed on the east side of Woodlawn Avenue on Mondays, Wednesdays, and Fridays and on the west side of the roadway on Tuesdays, Thursdays, Saturdays, and Sundays. Parking observations were conducted during typical weekday PM, Friday PM, and Saturday midday peak hours. Vehicles were parked on the east side of the roadway during the weekday PM and Friday PM peak hours and on the west side of the roadway during the Saturday midday peak hour. During the PM peak hour observations, no vehicles were parked along the east side of Woodlawn Avenue for 200-feet from Van Dam Street to the north. During the midday peak hour observation, one vehicle was parked along the west side of Woodlawn Avenue for the 200-feet from Van Dam Street to the north. Based on field observations, there is space for six to eight vehicles to park on-street without displacing existing parked vehicles on Woodlawn Avenue immediately along the project frontage. Additional on-street parking is available north of the site on Woodlawn Avenue. At a maximum occupancy, worst-case condition, the 34 patron vehicles and up to 6 employee vehicles can be accommodated in the 32 off-street parking spaces and the available on-street parking along Woodlawn Avenue. It is noted that the presented worst-case parking scenario does not account for reductions in the number of vehicles at the site due to the use of transit, walking, rideshare, or higher vehicle occupancy. The proposed 32 off-street parking spaces are expected to accommodate typical operations. As noted, the 22-space parking lot on Woodlawn Avenue provides sufficient parking to meet the City of Saratoga Springs zoning code. No parking variance is needed for the proposed project. Technical Review #2 Comment: Based on the parking assessment provided, it appears that the private parking lots associated with the site and the available on-street parking spaces will adequately accommodate demand for the proposed development. Response: Comment noted. Comment 9: The qualitative traffic assessment acknowledges that existing traffic will often extend back on Van Dam Street from NY Route 50 and impact operations at the Woodlawn Avenue intersection. A review of traffic count data in the project area suggests that the weekday afternoon and Saturday midday peak periods represent worst-case conditions that would overlap with peaking characteristics of the proposed use. Provide a detailed analysis at the Woodlawn Avenue and NY Route 50/Broadway intersections on Van Dam Street to document traffic operations with and without full build-out and maximum occupancy of the site. Response: Detailed capacity analyses for the Woodlawn Avenue at Van Dam Street intersection were completed for the weekday PM and Saturday midday peak hours. Trips were estimated and distributed to the Woodlawn Avenue at Vand Dam Street intersection using the following methodology: City of Saratoga Springs Planning Board Ref: 22258.00 November 1, 2023 Page 5 \\vhb.com\gbl\proj\Albany\22258.00 CTM Saratoga Springs\docs\letters\22258.00 Response to Comments_TDE Response 2.docx  Using the worst-case condition of maximum occupancy of the building (75 people) and 34 vehicles noted in the response to Comment 8.  Assume all 34 vehicles enter and exit the site during a single peak hour (68 trips)  The majority of site-generated traffic (75%) accesses the site through the Woodlawn Avenue at Van Dam Street intersection based on the existing travel patterns at the intersection during the two peak hours. Note this is a conservatively high estimate of the trip distribution at this intersection due to the secondary parking lot located on Long Alley and options through the grid network to enter and exit the site from the north. The results of the analysis are summarized in Table 1 and included in Attachment B. The analysis shows that the Van Dam Street left-turn movements currently operate at LOS A conditions during the weekday PM and Saturday midday peak hours. These levels of service will be maintained with the construction of the proposed project. The Woodlawn Avenue northbound and southbound approaches currently operate at LOS B and LOS C, respectively, during the weekday PM and Saturday midday peak hours. With project construction, the northbound and southbound approaches will both operate at LOS C with a 1.4 to 3.0 second increase in delay. No mitigation is recommended. Table 1 Level of Service Summary Intersection Approach Lane Group 2023 Existing/No-Build 2023 Build Delay a LOS b Delay LOS Weekday PM Peak Hour Woodlawn Ave at Van Dam St EB L 8.1 A 8.2 A WB L 8.5 A 8.5 A NB LTR 14.5 B 17.5 C SB LTR 16.0 C 17.4 C Saturday Midday Peak Hour Woodlawn Ave at Van Dam St EB L 8.2 A 8.2 A WB L 8.4 A 8.4 A NB LTR 13.5 B 15.8 C SB LTR 16.3 C 18.1 C EB, SB = Eastbound or Southbound approach L, R = Left-turn or Right-turn movement a Average delay in seconds per vehicle b Level of service As noted in the Qualitative Traffic Assessment, the eastbound Van Dam Street approach to the traffic signal controlled Van Dam Street at Broadway/NY Route 50 intersection consistently blocks Woodlawn Avenue which is supported by the presence of the “Do Not Block Intersection” sign on Van Dam Street eastbound at Woodlawn Avenue. Based on the trip generation and distribution methodology described above, the addition of two vehicles during the weekday PM peak hour (one vehicle everything 30 minutes) and nine vehicles during the Saturday midday peak hour (one vehicle City of Saratoga Springs Planning Board Ref: 22258.00 November 1, 2023 Page 6 \\vhb.com\gbl\proj\Albany\22258.00 CTM Saratoga Springs\docs\letters\22258.00 Response to Comments_TDE Response 2.docx every six to seven minutes) will not impact operations at the Van Dam Street at Broadway/NY Route 50 intersection; therefore, a detailed analysis was not completed. Technical Review #2 Comment: A detailed assessment of the Woodlawn Avenue and NY Route 50/Broadway intersections on Van Dam Street was specifically requested in the previous comment letter since these intersections are located 325-feet apart. It is acknowledged that new traffic from the proposed development will not substantially impact operations of the NY Route 50/Broadway/Van Dam Street intersection. The traffic analysis provided at the Van Dam Street/Woodlawn Avenue intersection assumes that mainline traffic on Van Dam Street is freely moving; however, as previously acknowledged, the eastbound queue from the adjacent signalized intersection extends back and impact operations of the unsignalized intersection. Vehicle delay at the Van Dam Street/Woodlawn Avenue intersection should be provided from the SimTraffic simulation software in order to account for existing queuing issues that impact operations at this unsignalized intersection. In addition, a review of the No-Build and Build traffic volumes provided in the HCM reports show different trip distributions/assignments for the PM and Saturday peak hours. Please explain. Response: VHB’s evaluation noted that the eastbound Van Dam Street approach to NY Route 50 queues back beyond the Woodlawn Avenue side street approach and that field observations indicated that drivers on Van Dam Street generally adhere to the “Do Not Block Intersection” sign allowing space for Woodlawn Avenue traffic to enter or exit from Woodlawn Avenue. In subsequent conversations with CM, and an email dated October 31, 2023, it was acknowledged that a SimTraffic simulation would illustrate the conditions already reported and no additional detailed analyses are needed. The trip distribution pattern for the two peak hours was based on the existing volumes at the intersection which are slightly different during the weekday PM and Saturday midday peak hours. Comment 10: Attachment B provides an overall graphical summary of the intersection turning movement counts noted in the report at the Van Dam Street/Woodlawn Avenue intersection. Provide the peak hour intersection turning movement counts that include a breakdown of the actual movements on each approach for the worst-case weekday PM peak hour and midday Saturday peak hour. These should be used in the detailed analysis that includes the NY Route 50/Van Dam Street/Broadway intersection discussed under comment 9 above. Response: The peak hour traffic volumes collected at the Van Dam Street at Woodlawn Avenue intersections are included in Attachment C. No additional comments were made in Technical Review #2. Comment 11: Provide a gap analysis to determine if traffic on Woodlawn Avenue has adequate gaps to cross Van Dam Street adjacent to the project site. Response: The good levels of service shown in Table 1 (LOS B/C) indicate that there are sufficient gaps in the existing traffic on Van Dam Street to allow drivers to cross Van Dam Street at Woodlawn Avenue. To respond to the comment, the peak hour TMC videos were reviewed to document the number and length of gaps on Van Dam Street at Woodlawn Avenue during the weekday PM and Saturday midday peak hours. Information published in the American Association of State Highway and Transportation Officials (AASHTO) A Policy on Geometric Design on Highways and Streets, 7th Edition, identifies the minimum gap needed to cross a two-lane roadway as 6.5 seconds while a left-turn movement needs 7.5 seconds. Table 2 summarizes the gap data based on number and length of gaps during the two City of Saratoga Springs Planning Board Ref: 22258.00 November 1, 2023 Page 7 \\vhb.com\gbl\proj\Albany\22258.00 CTM Saratoga Springs\docs\letters\22258.00 Response to Comments_TDE Response 2.docx peak hours. Table 2 shows that there are enough gaps of sufficient length to accommodate the through and left-turn movements anticipated during the worst-case maximum occupancy condition. Table 2 Gap Summary – Build Condition Peak Hour Total Gaps Crossing Maneuver Left-turn Movement Gaps > 6.5 sec Vehicles Gaps > 7.5 sec Vehicles Weekday PM 89 55 44 (25 NB/19 SB) 55 5 (3 NB/2 SB) Saturday Midday 160 65 37 (18 NB/19 SB) 65 8 (0 NB/8 SB) NB= northbound, SB= southbound Technical Review #2 Comment: As noted above, vehicle delay on the side streets is likely higher when accounting for queuing associated with the adjacent traffic signal. In addition, Table 2 indicates that there is a total of 89 gaps during the PM peak hour and 160 gaps during the Saturday peak hour. Are these gaps in both directions? Accounting for impacts that vehicle making right-turns from Woodlawn Avenue may be on the operation of these single lane side street approaches, it is not clear if there are sufficient gaps. Response: As noted in Table 2, the gaps shown are representative of “Crossing Maneuvers” and “Left-turn Movements” and therefore, account for the crossing of two lanes of travel on Van Dam Street and include gaps in both directions. The gaps were documented using existing traffic volumes so account for the existing traffic on Woodlawn Avenue turning onto or crossing Van Dam Street. The gaps observed are in addition to gaps that are already serving existing traffic and further confirm that eastbound vehicles on Van Dam Street are adhering to the “Do Not Block Intersection” sign and leaving a gap in traffic to allow for flow of traffic to and from the Woodlawn Avenue side street approaches. Regarding the vehicle delay, the analysis summarized in Table 1 illustrates that the additional traffic associated with the project results in minor increases in average vehicle delays. If vehicles experience additional delays by maneuvering through the intersection more slowly when accounting for the vehicle queues, ample capacity exists at the intersection to maintain acceptable operations as average vehicle delays are shown to be 18 seconds or less on the side street approaches. Comment 12: Should an all-way stop control intersection be considered at the Van Dam Street/Woodlawn Avenue intersection to help facilitate operations similar to the Walton Street/Woodlawn Avenue intersection? Response: All-way stop control is typically provided at intersections with relatively balanced traffic volumes on all intersection approaches. Walton Street at Woodlawn Avenue is an intersection of two low volume, local streets with similar operating characteristics where all-way stop is an appropriate intersection control. The approach volumes on Van Dam Street are approximately eight times higher than the Woodlawn Avenue approaches which is not typically appropriate for all-way stop control. Additionally, Woodlawn Avenue is located 325-feet west from the traffic signal at Broadway/NY Route 50 and 550-feet east from the traffic signal at Clinton Street. For the above noted characteristics, and based on the results of the level of service analysis and gap evaluation, providing stop control on the higher volume Van Dam Street between the two intersections is not recommended. As noted, drivers turning to and from Van City of Saratoga Springs Planning Board Ref: 22258.00 November 1, 2023 Page 8 \\vhb.com\gbl\proj\Albany\22258.00 CTM Saratoga Springs\docs\letters\22258.00 Response to Comments_TDE Response 2.docx Dam Street can use the existing grid network to turn at an intersection with traffic signal control if additional traffic control is desired when traveling in the study area. Technical Review #2 Comment: Comment noted; however, alternatives should be considered/presented if necessary based on the updated crash, gap, and operations analysis requested above. Response: Refer to the Responses to Comments 7, 9, and 11 regarding potential mitigation alternatives to be considered, gap, and operations analysis. Comment 13: Is there enough on-street parking available in the immediate vicinity of the site if members and guests need off-site parking? What is the current on-street parking demand compared to anticipated demand during peak conditions? It is noted that alternate side parking is permitted on Woodlawn Avenue and on the adjacent residential streets which limits available supply. Response: See response to Comment 8. No additional comments were made in Technical Review #2. Comment 14: Will the 10 additional parking spaces proposed on Long Alley be available to general guests or employees only? It is noted that Long Alley is approximately 11 to 13 feet wide which typically cannot support two- way traffic. It is also noted that the Long Alley intersection on Van Dam Street is 125- feet west of the NY Route 50 intersection and that queuing on Van Dam Street associated with typical operations of the NY Route 50 intersection will impact access to/from this lot. Response: The ten additional parking spaces with access to Long Alley will be used by employees and club members/guests. Long Alley, in addition to many other alleys/narrow roadways in the City of Saratoga Springs, will continue to operate as a very low volume local roadway with minimal traffic volume. The Long Alley parking lot currently acts as a parking lot and will continue to operate as a parking lot with little or no change to operations on Long Alley or the adjacent Long Alley at Van Dam Street intersection. Technical Review #2 Comment: Comment acknowledged. It is agreed that the parking area on Long Alley will operate adequately. It is recommended that the Applicant encourage their employees to use this lot in order to minimize turnover and traffic on Long Alley. Response: Comment noted. Comment 15: Is adequate sight distance provided at the Woodlawn driveway intersection for the parking lot? Will on-street parking need to be restricted near the driveway to ensure adequate sight lines? Response: The parking lot with access to Woodlawn Avenue is an existing parking lot. Review of Google Earth historical imagery shows that this parcel has been an active parking lot for at least 20 years with no parking restrictions on Woodlawn Avenue adjacent to the parking lot access. The City of Saratoga Springs has numerous parking lots with access to local roads with on-street parking. Generally, on-street parking is not restricted adjacent to the parking lot/parking garage driveways. The City could choose to restrict on-street parking immediately adjacent to the Woodlawn Avenue parking lot; however, on-street parking restrictions are not recommended as part of the proposed project. Technical Review #2 Comment: It is acknowledged that this parking lot has been in existence for over 20 years; however, historical imagery does not show very much activity. The proposed development will City of Saratoga Springs Planning Board Ref: 22258.00 November 1, 2023 Page 9 \\vhb.com\gbl\proj\Albany\22258.00 CTM Saratoga Springs\docs\letters\22258.00 Response to Comments_TDE Response 2.docx increase the use and occupancy; therefore, the City of Saratoga Springs could consider restricting parking immediately adjacent to the lot like it has done on other newer developments as shown below on Railroad Avenue. Response: It is likely that historical imagery was not taken at times when the church that previously occupied the site was active with a service or event. The City could choose to restrict on-street parking but the restrictions are not recommended as part of the proposed project. It is noted that the character of Woodlawn Avenue is different than the much more commercialized area shown in the image presented by CM on Railroad Avenue that illustrates access to a parking garage versus a parking lot to be utilized by a private club with varying level of activity. Please call with any questions concerning the above responses to comments. Sincerely, VHB Engineering, Surveying, Landscape Architecture and Geology, P.C. Alanna M. Moran, PE Wendy Holsberger, PE, PTOE Project Manager Managing Director