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.
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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.
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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
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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:
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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
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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
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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
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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
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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