Purpose

This report is intended to serve as a backdrop to the City Council�s discussion of traffic and transportation issues.  It includes a comprehensive review of relevant procedures and processes, and an update on current and planned projects.  To ensure that adequate time is available for a full discussion of these matters, the study session is scheduled to continue at the July 15, 2003 Council meeting.            

Major Determinants of Traffic Conditions

Traffic conditions are largely the result of four interrelated variables:  demand, capacity, traffic characteristics, and travel alternatives.  Demand is simply the number of vehicles using a street segment or intersection during any specified time period.  It is typically reported as either a 24-hour total, or as the volume occurring during the busiest 1-hour period (the peak hour).   System capacity refers to the number of vehicles that a street or intersection can carry, which is largely a function of the number of lanes and the signal controls.  Travel characteristics are factors relating to vehicle operations that cumulatively effect roadway circulation.  In addition to the potential for truck traffic to disrupt traffic, other less-visible variables include driver knowledge and ability, and adherence to traffic regulations and controls.  Lastly, trip-reducing options like using public transportation, carpooling, bicycling, and walking are viable travel alternatives that can greatly contribute to easing congestion.                         

This report discusses the various ways by which the City responds to current traffic and transportation needs and plans future improvements by effecting each of these four traffic variables.  Maintaining adequate circulation requires a comprehensive effort in several areas. 

Traffic Demand Definition

Traffic �demand� is an expression of the number of vehicles using a street or intersection during a specified time period.  Street volumes are typically measured with a tube counter that registers directional traffic for a 24-hour period.  For example, one of a series of recent counts taken on Olive Avenue showed a total daily volume of 30,300 vehicles just east of Buena Vista. 

Traffic demand at intersection locations is usually reported as 12 separate numbers that represent the volumes of motorists making each of the possible movements (at a standard, 4-way intersection) during the busiest 1-hour morning and evening periods.  These manually-recorded counts are subsequently used to calculate intersection �levels-of-service (LOS)�, which signify how well traffic moves through an intersection during peak periods.         

Often, the term demand is used to refer to traffic volumes forecasted to occur at a particular intersection.  These forecasts (which are more fully explained below) of future demand are the basis for developing improvements that will maintain an acceptable LOS.

Traffic generation

The demands generated during morning and afternoon commute periods tax the circulation system to the greatest extent.  Within each of the 3-hour periods, the single busiest hour is used as the basis for calculating LOSs, and for forecasting future conditions.  The actual times of day that the AM and PM peak hours occur vary somewhat by location, generally reflecting the types of businesses in the area that are generating the traffic.  Local peak hours tend to be a � hour later than the regional average.

Local trip generation, especially commuter trips, can be somewhat effected through land-use regulation.  The 1991 Media District Specific Plan (MDSP) was the first regulation to directly tie the amount of potential development to traffic generation.  The MDSP permits a studio office, for example, to be built larger in relation to the site it occupies (floor-area-ratio) than a grocery store would be allowed, because a studio office typically generates less of an impact on peak-hour traffic circulation.  The Plan establishes a cumulative ceiling of development and traffic generation in the MD area, which has been adjusted to account for the reduced amount of development entitled through the studio master plans and the cumulative effect of other standards on residentially-adjacent development.

The encouragement of mixed-use and transit-oriented-development (TOD) projects are two examples of how many cities are attempting to minimize the traffic impacts of new development.  Mixed-use projects, especially those with residential components, generate fewer vehicle trips than the comparable number of single-uses, due of the ability to complete multiple tasks with a single vehicle trip.  The same is true of downtown areas or other compact commercial areas that facilitate pedestrian travel between uses. 

TOD projects also typically incorporate multiple uses, and result in additional trip reductions because of the immediate availability of public transportation service.  The two primary transportation planning agencies for the region, the Metropolitan Transportation Authority (MTA) and Southern California Association of Governments (SCAG), encourage the development of TOD projects adjacent to Metrolink, Metro Rail, and other regional transitways as means of reducing congestion and maximizing the investments being made in those services.  Elements of TOD projects that facilitate transit connections are eligible to receive grant funding to cover the costs of those amenities.  As a further incentive for these projects, often they are permitted reductions in the number of vehicle parking spaces they are required to provide on-site.

While land-use policies can largely effect the amount of traffic generated by local development, the amount of regional traffic passing through the city on surface streets to other destinations is more difficult to control.  Freeway congestion and lack of conveniently located access ramps result in regional traffic using local arterials as alternative routes.  Some local north-south streets are used by regional traffic transitioning between the I-5 and SR-134 freeways.  East-west arterials serve as alternatives to congested freeways, and where they are more direct to intended destinations.  SCAG�s regional trip data indicate that pass-through trips account for approximately 5% of all traffic on City streets during a typical day.  While this is not a large percentage, the concentration of that traffic on a few local streets represents a significant factor on those corridors. 

Forecasting future demand

Most of the traffic on Burbank streets either originates within the city or is traveling to a local destination, or both.  For that reason, the amount and distribution of local development are the principal indicators used to forecast future traffic demand.  Reliable long-term forecasts are used to predict conditions and identify needed improvements and programs.  While the actual mechanics of forecasting will be discussed later, the following table summarizing the prior five years of development activity is presented for comparison to the development forecasts recently prepared for the updates of the Land Use and Transportation Elements.   

Five-Year Development Summaries and Updated Forecasts

 Year (June-May)          Amount of Development*

1998-99                                   733,200

1999-00                                net reduction (due to demolitions)

2000-01                                1,660,000

2001-02                                   722,000

2002-03 (through Mar.)             39,000

*  net new square footage of commercial and industrial development

Recently Developed Forecasts

Time Period                         Growth Rate

2002-2015                               648,000/year*

2015-2025                               450,000

2002-2025                               562,000

* net new square footage of commercial and industrial development

The updated forecasts include all projects that have been entitled and are not yet fully developed, and are based upon a block-by-block analysis of development potential given existing development standards, adopted specific plans, and the age and condition of existing buildings.  Such forecasts serve as long-range planning tools and are updated as needed to reflect policy changes and other factors that could effect the development potential of an area or site.

System Capacity

Definition

The capacity of a roadway or intersection is an absolute term that denotes the maximum number of vehicles that a facility can accommodate during a 1-hour period, at prevailing conditions.  Roadway capacity is a function of the number of lanes at a given point, each of which on an arterial street is able to carry 900 vehicles/hour.  The capacity of an intersection controlled by a two-phase signal is 1500 vehicles/hour.  These capacity levels represent ideal movements of vehicles, operating without obstruction and at regular intervals.  Seldom do intersections and roadways operate at their theoretical capacities.  Factors like weather, vehicle characteristics, driver abilities, the presence of driveways or on-street parking, and speed limits, cause reductions in vehicle throughput. 

Level of Service

�Level-of-service� is a quantitative measurement of the relationship between the amount of traffic at a location, and the capacity of that roadway or intersection to carry it.  It is usually expressed using the letters �A� through �F�, with LOS A representing free-flow and LOS F describing forced flow with stoppages of long duration.  The amount of traffic moving through a facility increases until operations reach LOS F, where stop-and-go conditions typically result in a reduction in throughput.  It is generally agreed, therefore, that the operations characterized as LOS E produce the maximum flow rate. 

It�s the City�s policy to maintain operations during peak periods at LOS D or better.  LOS D is characterized by moderate congestion, no long-standing lines forming, with functioning intersections at which motorists may be required to wait through more than signal cycle during short peaks.  This standard for local traffic operations has been in place since prior to 1990, and was likely adopted to establish a higher threshold of circulation than the County or City of Los Angeles. 

Capacity-enhancing Improvements

Physical improvements are generally done to add capacity to the intersection or street segment, thereby improving the level-of-service.  Typical capacity-enhancing improvements include widening the street to add a lane of travel, flaring an intersection approach to create a right-turn-only lane, and synchronizing traffic signals along an arterial to improve flow.  Identifying what improvements are needed requires consistent measurement of operating variables, and the forecasting of future conditions.                   

The following projects were either recently completed or are currently being implemented to provide additional capacity:

• Five Intersections � This project, completed in 2002, involved intersection widening, the modernization of five traffic signals, and addition of signalized left-turn signal phases to five intersections on Empire Avenue and Buena Vista Street.  Traffic signal modifications were completed on Empire Avenue at Victory Place and Buena Vista Street, and on Buena Vista Street at San Fernando Road, Victory Boulevard, and Vanowen Street.  The project was necessitated by traffic demand associated with the Empire Center development and the improvements were enumerated in the Environmental Impact Report for the Empire Center. 

• Five Points Realignment � The realignment of Victory Boulevard at Burbank Boulevard was completed in conjunction with the construction of COSTCO and the Empire Center.  Victory Boulevard was relocated with this project to intersect Burbank Boulevard about 400 feet west of the former five legged intersection.  The intersection of Burbank Boulevard and Victory Boulevard/Victory Place was also widened and realigned.  A new modern traffic signal system was installed at the two new intersections and two new traffic signals were installed for two COSTCO entrances.  The modifications reduced the overall wait time at the intersection, and enabled it to serve the 55,000 vehicles that are currently passing through it each day, including the 20,000 of additional vehicles that are being generated by COSTCO and the Empire Center.  The Five Points Realignment will be will be fully operational with the widening of the Burbank Boulevard bridge over the Golden State freeway. 

• Traffic Signal Upgrades � The traffic signal upgrade program expands the traffic signal control capabilities of individual signal-controlled intersections so that these signals can be interconnected, coordinated, and managed from a centralized location.  The upgrade program includes the installation of modern control equipment and software, installation of vehicle and pedestrian detection systems, and replacement of old poles and indications to meet current Caltrans standards.  Most of the signal systems at major intersections have been upgraded through other projects, and this program involves the upgrade of minor intersections.  About 75 percent of the 190 signalized intersections in Burbank have previously been modernized, and this program is designed to complete the full modernization in 5 to 6 years.  A total of 20 intersections are currently being designed, and about half of those locations will be reconstructed with the next construction project. 

• New Traffic Signals � About six new traffic signals have been installed in the last several years with new, large developments, on Empire Avenue, Victory Place, and Olive Avenue.  Five additional traffic signals are planned or proposed in the next several years with other new developments, on Empire Avenue, California Street, Verdugo Avenue and Olive Avenue.  New traffic signal installations are planned when warranted to control traffic access, and when expected traffic demand or traffic safety conditions conform to criteria established by Caltrans. 

• Separate Left Turn Phasing � The City has just completed the construction of separate left turn phasing at ten major intersections in Burbank.  The intersections are on Alameda Avenue, Buena Vista Street, Victory Boulevard, Glenoaks Boulevard, and Hollywood Way.  The program was designed to increase left-turning capacity or traffic safety at locations where tuning traffic could not effectively be served by existing systems.  The ten locations met established Caltrans delay criteria for separate left-turn signals, and they are an important part of the program to keep through-traffic on arterial streets and out of residential neighborhoods.  The signals are currently being re-timed to maximize the efficiency of both through and left-turn traffic demand, and the new timing will be in place within 60 days.  After individual signals are re-timed, they will be coordinated to operate sequentially, with priority given to the heaviest traffic demand.  Traffic demand and speed data are currently being collected to complete the coordination project. 

• Traffic Signal Interconnect � Modern traffic signal systems must communicate with each other and with a computerized signal management system to achieve maximum efficiency.  Signal interconnect systems, either telephone-type copper wire or fiber optic systems, are used for the communications infrastructure.  Burbank established a program to install interconnect several years ago, and portions of Hollywood Way, Alameda Avenue, Olive Avenue, and Buena Vista Street currently have signal communications systems.  Additional interconnect is planned in the next several years with Federal grant funds and with other construction projects.  Within three years, a majority of signals in Burbank will have interconnect.  The interconnect systems not only enable traffic signal coordination, but communications is also a basic component of interactive operation of the system to identify system malfunctions, recognize traffic accidents or congestion, or provide information to motorists on travel conditions along the route. 

• Turn Lane Striping � The placement, width, and designation of travel lanes on major arterials is a major factor in minimizing travel congestion on the corridor.  Turn lanes can significantly improve the congestion of an intersection, and most of our major arterials have the width necessary to install turn lanes.  However, on-street parking must be removed when turn lanes are installed, and parking is generally of major importance to surrounding property owners.  We must evaluate each location where a turn lane is desirable to balance the needs of the local property owners with the citywide benefits of reduced congestion.

Several improvement projects are currently being designed for construction starts within the next two years.  Each project is fully funded, using combinations of grant funding, local development impact fees, Propositions A and C funds, and various other funds received by the City from the State, and are listed individually as projects on the proposed FY 03-04 Capital Improvement Program.  The short-term improvements are:

• SR-134 Ramps at Hollywood Way�In the Fall of 2004, Caltrans will begin construction of a new on-ramp to the westbound SR-134 freeway.  The ramp will be located just east of the existing BWP electrical substation, where it will dip under the Hollywood Way and Alameda bridges and ultimately join the existing on-ramp, prior to merging with the mainline freeway.  The existing off-ramp and western half of the substation facility are being relocated to provide the necessary space for the new on-ramp.  When completed, the new interchange will allow surface street traffic to be better managed through this busy interchange area.    

• Burbank Bridge Widening � The widening of the Burbank Boulevard bridge over the Golden State Freeway is the last phase of the Five Points roadway improvements.  The existing bridge structure will be widened on the north side between the southbound freeway off-ramp and Victory Boulevard to increase the number of travel lanes over the bridge from six existing lanes to nine travel lanes.  The increased bridge width will allow three through travel lanes in each direction, two left turn lanes, and a westbound right turn lane.  The additional lanes will significantly increase the traffic capacity, thereby greatly reducing the travel time and congestion on the corridor.  The plans for the bridge widening are currently being reviewed by Caltrans, and the reconstruction project is expected to begin during the fall of 2003. 

• Olive / Alameda Intersection � The skewed intersection of Olive Avenue and Alameda Avenue carries significant volumes of both vehicles and pedestrians, and the elongated intersection makes traffic control difficult.  The resulting inefficient signal timing creates a bottleneck and significant congestion in both travel corridors.  A project is currently under design to widen specific approaches to the intersection, install islands, remove some parking, add left turn lanes, and revise signal timing.  This improvement project will be coordinated with improvements required of adjacent developers to provide an ultimate six through travel lanes on both streets, dual left turn lanes on Alameda Avenue, and separate right turn lanes on Olive Avenue.  The project is being funded by a combination of developer funds, grant funds and City contribution. 

• Media District Intelligent Transportation System � The media District ITS project is a $2.2 million federally-funded construction project to install communications, surveillance cameras, automatic traffic coordination systems, and motorist information signs on several streets in the Media District.  Systems will be installed on Alameda Avenue, Riverside Drive, Olive Avenue, Hollywood Way, and Pass Avenue to maximize the flexibility of the traffic signal control system to better react to congestion on major arterials.  The project purpose is threefold: to better manage highly variable re-occurring congestion in the Media District, to improve the response to emergency situations or traffic accidents, and to improve the management of unforeseen conditions on SR-134 that will add detour traffic to the surface streets.  The project design is complete and construction is expected to begin by early Fall of this year. 

• Winona Avenue / Buena Vista Street Improvement � The widening of the intersection of San Fernando Road and Buena Vista Street necessitated the closure of San Fernando Road (East) between Winona Avenue and Buena Vista Street, for safety reasons.  A project was defined to improve the capacity of Winona Avenue between Buena Vista Street and San Fernando Road (East) to reduce congestion.  The project, currently under design, will widen Winona Avenue, improve the curve between Winona Avenue and San Fernando Road, widen Buena Vista Street, and add a northbound separate left turn phase to the traffic signal at Buena Vista Street and Winona Avenue. 

• San Fernando Corridor ITS � This project is a cooperative effort between Burbank and Glendale to maximize the existing traffic capacity of surface streets along the I-5 corridor.  The $5.0 million project will include installation of communications infrastructure, surveillance cameras, automatic vehicle detection, motorist information signs, and downtown parking control signage on Glenoaks Boulevard, San Fernando Road, Empire Avenue, Victory Boulevard, and on streets in the downtown area.  The project will allow better management of reoccurring congestion and incidents on streets along the I-5 corridor, and the communications infrastructure will also allow better management of parking supply in the Downtown area.  The project is currently in the design stage, and construction is expected in the Fall of this year.  The traffic management infrastructure will be particularly beneficial during the reconstruction of I-5 through Burbank, when freeway traffic will temporarily relocate to City streets during phases of construction. 

• Traffic Management Center � The number and complexity of traffic control devices planned for our street system requires that a central location be established to organize traffic data, observe the operation of the street system, and control the field devices (traffic signals, cameras, automatic detection, and signs).  A permanent Transportation Management Center (TMC) is planned for the new DCSB building, but a secondary interim facility is currently under construction at the Public Works Yard.  The centralized management system is essential to effectively operate, with limited manpower, the complex systems that are currently planned or are under construction.  The facility will enable traffic signals in both communities to be more efficiently deployed and maintained.  The interim TMC is expected to be operational in the Fall of this year.

While the implementations of several neighborhood protection plans (NPPs)have not increased street capacity, they do help to ensure that individual streets continue to function as they are intended.  Secondary and Major Arterial streets are the backbone of the local circulation system, carrying large volumes of traffic between parts of the city.  Collector streets function as collectors and distributors of traffic between arterials and local streets.  Local streets are intended to provide for local traffic and direct access to abutting land.  The following NPPs have been completed and implemented to reduce cut-through and speeding traffic on local, neighborhood streets:  Toluca Lake, Magnolia Park, Rancho, Rancho Providencia, Empire-Lincoln, and most recently, the Hillside NPP.  In addition to the protection measures installed through these plans, staff believes that maintaining the operations of the adjacent arterial roadways and intersections is a vital component of any protection plan.  

Most recently, the Council directed staff to work with the residential neighborhood bounded by Hollywood Way, Oak Street, Buena Vista Street, Olive Avenue, and Alameda Avenue to develop a protection plan that addresses current and forecasted conditions on the local streets.  To ensure that traffic counts taken reflect typical traffic conditions, the study will begin at the end of summer when school is back in session and the current utility and freeway ramp construction has been completed.           

Future Conditions and Needs Assessments

Identifying and funding improvements that will be needed to serve future growth and redevelopment involves maintaining accurate base-line data and the forecasting of future traffic demand.   Periodic measurement of volumes and turning movements at arterial intersections and street segments helps identify operational trends that may require the design and implementation of improvements within the short-term horizon.  Oftentimes, minimal changes like restriping the roadway to create added turning capacities at intersections or changing a traffic signal to provide more time for a particular movement, can provide the necessary fix until a longer-term improvement is developed.

The objective, however, is to accurately forecast well in advance the need for specific transportation improvements, and to design and construct them at the appropriate time to meet the identified demand.  The principal forecasting tool used to meet that objective is the City Travel Demand Model.  The Model was originally developed in 1995, and is currently being updated to extend the forecasting horizon from the current 2015 to the new horizon year of 2025.  Based upon a regional framework of socio-economic, trip-generation and transportation network data, the Model forecasts traffic generated from 213 individual �traffic analysis zones (TAZs)� comprising the city, to produce morning and evening peak hour traffic flows.

The Model distributes traffic generated by the land uses within each of the TAZs based upon the amount and type of development.  Growth forecasts were made on a block-by-block basis by Redevelopment and Planning staff, according to adopted Specific Plans (MDSP, City Center, Rancho), Redevelopment Plans, City policies contained in the General Plan, codified development standards, and previously granted entitlements.  The growth forecasts reported earlier, of 648,000 sq. ft./year average of commercial and industrial net new development through 2015, and 450,000 sq. ft./year 2015-2025, are the results of that analysis. 

The Model assigns traffic volumes generated by the individual TAZs throughout the local street system and regional network in accordance with various socio-economic and locational factors.  After making numerous adjustments in routes to maximize aggregate travel times, the Model develops volume forecasts for local intersections and street segments.  That output is then utilized to determine levels-of-service for future study years, indicating where improvements will need to be made to accommodate projected traffic growth. 

Specific improvements that are identified as being needed to provide additional capacity for forecasted growth are periodically added to the City�s Infrastructure Blueprint as updates.  The Blueprint is an adopted list of specific transportation improvements that are designed to address growth throughout the city.  Staff is currently in the process of updating the Blueprint with projects that will be identified during the companion update of the City Transportation Element.  Prior to a project being listed in the Blueprint, it must designed to a level sufficient to determine its approximate cost of construction.  By determining the cumulative cost of all of the Blueprint projects, staff is able to determine whether projected funding will be sufficient to implement the projects when they are needed. 

Each year, as part of the annual budget process, staff proposes a 5-year Capital  Improvement Program(CIP) of traffic and transportation projects.  CIP projects are funded by a number of different funding sources.  Improvements that are listed on the adopted Blueprint are eligible to be funded, in part or totally, with transportation impact fees.  These fees are paid by all developers of commercial and industrial projects to fund infrastructure improvements needed Citywide to accommodate projected growth.  The City has been fortunate to be able to leverage that funding source with sizeable grants of transportation funds awarded by the MTA for specific regional-scale projects. 

Other sources of funding for CIP projects include Proposition A and C Local Returns, the Redevelopment Agency, congressional earmarks, and a myriad of other specialized sources that are focused on achieving public policy objectives.  This does not include the various funding sources that are apportioned on a per capita basis by Federal and State agencies to local jurisdictions for specific uses.   

Traffic Impact Studies

Programmed improvements occasionally need to be modified or accelerated to provide needed capacity for a proposed development project.  As a general rule, traffic impact studies are prepared for projects that will generate 50-or more peak hour trips.  However, a study may be required for a smaller project if it has the potential to impact already congested intersections, or adjacent land uses.  And conversely, a traffic study may not be needed for a somewhat larger project that is consistent with planned development levels and located in an area with compatible land uses.  Traffic studies for smaller projects can be focused to study the impacts to only a few intersections adjacent to the site, the effects of project circulation on adjacent streets or neighborhoods, or the placements and adequacy of project access and on-site parking supplies. 

Larger development projects have the potential to effect traffic operations at locations well removed from the project site, and to necessitate specific improvements to mitigate identified impacts.  The basic steps in preparing traffic impact studies are to:  (1) select the intersections that will be studied, which is usually dependent upon the project size and expected travel corridors; (2) calculate the volumes of traffic that will project will generate during the daily traffic peaks; (3) use the City Traffic Model to forecast traffic conditions, without project traffic, at the study intersections in a year selected to correspond to the initial occupancy of the project; (4)  add project traffic to the forecasted �base line� conditions and determine whether the project causes traffic operations at any of the study intersections to exceed the level-of-service significance test; and (5) develop a program of necessary improvements to mitigate any project impacts that exceed the significance threshold. 

The project�s full traffic impacts occur when it is complete and occupied.  With the exception of multi-phase projects that are developed over lengthy time periods (like the studio master plan projects), a year is selected in the near term that reflects when the project will begin generating the full projected volume.  To determine what that generation will have on future conditions, it�s necessary to add to the current traffic levels that additional growth that will occur during the intervening years.  The growth occurs as a result of general ambient growth in the region and local area, and to specific development projects that are constructed and occupied by the study, or horizon year.  For each study, surrounding jurisdictions and agencies are consulted in preparing lists of projects within their areas that are expected to be developed within this planning period, and for other land use information that may effect traffic levels.  Local development activity is accounted for in the City Traffic Model data files, which are continually updated to reflect any changes in forecasted growth.

The other component of future year conditions that is relevant to determining a project�s impacts is the circulation system, accounting for changes to the roads and intersections within the study area that may effect future operations.  Other than the occasional reduction in capacity that may occur at a specific location, due the narrowing of a street or the implementation of some other constraint, most changes have the effect of adding to the carrying capacity of streets and intersections. 

Project impacts are determined on the basis of whether its traffic causes an intersection to degrade to an unacceptable level-of-service, which by existing City policy is below LOS D; or if the impact of project traffic impacts the operation by 2% or greater when the �without-project� LOS is E or F.  When project traffic causes either of those thresholds to be exceeded, improvements must be proposed that will improve the intersection operations to LOS D or better. 

If the project is ultimately approved and constructed, the developer is required to participate in funding the costs of the improvements through the payment of a Transportation Development Impact Fee, due upon issuance of a building permit for the project.  The Impact Fee paid by the developer is intended to cover the incremental impact of the project on the City-wide system, not necessarily the entire costs of the improvements being recommended to mitigate impacts.  Often those recommended improvements serve to address existing deficiencies or to provide added capacity to serve future development.  Development fees received by all development projects are combined to implement City-wide projects through the Capital Improvement Program process.

Improvements that are needed to serve only the single proposed development project are required to be funded solely by that developer.  For example, new signal systems that are needed to control project access, and the accessways themselves, are the responsibility of the project and are not paid for from the development fees collected. 

Future Improvements

Several improvement projects are currently being developed for implementation during the 3-7 year period.  These projects were identified through prior planning and project impact studies as being needed to accommodate longer-term growth throughout the city. 

• Empire Interchange (and I-5 HOV)�This project will construct a new roadway connection between Empire Avenue on the west side of the I-5 freeway, and San Fernando Road on the east.  The purpose of the project is to provide direct freeway access to the Empire and Airport area, in order to reduce traffic volumes at the Victory-Burbank intersection (former Five Points).  The new, 2-way connection will go beneath Victory Place, the railroad, and the freeway via a widened tunnel, and will be developed as a full freeway interchange by relocating the existing southbound on-ramp so that it can be accessed from this location.  This is a Caltrans project, and will be constructed with the installation of carpool (�high-occupancy vehicle�) lanes on the freeway.  Construction of this combined project is currently scheduled to begin in 2006.     

• Buena Vista-RR Grade Separation�As a component of the Empire project, the RR tracks will be re-aligned and elevated starting south of Empire Avenue, to enable the tracks to be �grade-separated� from Buena Vista Street traffic.  The bridging of the railroad above Buena Vista will improve safety and circulation in this area.   

• Various Arterial Widenings�As identified in the Infrastructure Blueprint and the studio master plans, several segments of the major arterials will need to be widened to provide three travel lanes in each direction.  The right-of-way area needed to widen Alameda Avenue and Olive Avenue in the Media District is being acquired from land dedications made as conditions of entitlement for various adjacent development projects.  Elsewhere, right-of-way limitations or potential impacts to adjacent land uses will may necessitate that alternatives such as removal of on-street parking during peak traffic conditions be considered.      

• Lincoln-San Fernando Reconfiguration�This intersection is increasingly busy as a result of the development of the Empire Center.  While significant reductions in traffic levels will occur as a result of the development of the Empire Interchange project, the intersection will need to be re-aligned to improve circulation and complement the improvements that will be occurring along this corridor. 

• ITS and Signal Synchronization Programs � Federal mandates have established requirements for the management of traffic control systems for communications, operation, deployment, and function to insure that a minimum level of inter-operability is established.  Both Caltrans and Los Angeles County have developed programs to enable the diverse and complex control and management systems in each community in the County to coordinate traffic operations.  Caltrans is currently constructing a new TMC east of Glendale to organize and distribute freeway traffic congestion data, and the County is completing a similar facility in Alhambra to coordinate the operation of signal systems throughout the county.  Burbank, Glendale and Pasadena have an ongoing project to organize and distribute data among the three communities, and Burbank and City of Los Angeles are linked by a fiber optic communications system to coordinate traffic operations.  All of these agencies will be linked to our new TMC to enable a coordinated effort for the management of traffic systems.  All of the planning and design of these systems in Burbank are through federal grants. 

• Regional Signal Coordination � As traffic demand increases, the coordination and control of traffic control systems across jurisdictional boundaries becomes increasingly more important.  Systems and communications facilities are being constructed to enable the coordination necessary to adequately handle future traffic demand.  The coordination of systems is being developed through the establishment of policies on a county and regional level, through methodologies and procedures for coordination, and through the infrastructure needed to establish and maintain coordination under a wide range of traffic conditions.  Regional coordination efforts are being fronted by MTA and the County of Los Angeles 

• Verdugo Extension�As envisioned in the City Center Plan, a new connection between the east and west sides of the I-5 freeway will need to be developed to ease anticipated congestion on the existing bridge connectors.  Due to its proximity to I-5 ramp connections and the Downtown Rail Station, and connection to Front Street, Verdugo Avenue has been considered as the optimal street to extend beneath the railroad tracks to provide the additional east-west connector.  Preliminary design work has demonstrated the feasibility, and further project development is currently on-hold pending further consideration.    

• Barham-Cahunga Corridor Improvements�Studies of how to improve circulation through this corridor have been on-going since the late 1980�s.  The City of Burbank, and the City and the County of Los Angeles have jointly developed a number of improvements that have the support of the surrounding community.  While the improvements will result in only moderate increases in street capacity, they will significant improve operations on the effected streets and freeway ramps.  Funding for the initial phase of improvements is programmed to be available in two years, with subsequent funding for the widening of the Barham Bridge and other needed improvements not yet secured. 

Travel Characteristics

In addition to the amount of vehicles and the road capacity, several other variables affect the level of traffic operations.  The factor having the greatest potential to degrade circulation is the presence of large trucks, buses and other vehicles that utilize more roadway space and are less able to maintain a consistent rate of movement in congested conditions.  Notwithstanding localized effects caused by truck activity associated with construction projects, or in the Downtown area during commute periods when MTA bus frequencies increase, local streets do not typically carry significant volumes of large vehicles. 

Regional truck traffic on the freeway system causes an indirect worsening of local circulation on some local streets during congested periods.  Motorists often choose to use local streets as alternatives to the freeways for travel of intermediate distances.  Local streets like Glenoaks Blvd., San Fernando Blvd., and Alameda Ave., which parallel the freeways, are often moving at better speeds than are the freeways clogged with trucks and commute traffic.  The impact that increasing amounts of truck traffic is having on the regional system has led to the inclusion of truck (only) lanes into long-range freeway plans.  However, the typical lack of sufficient right-of-way width through most corridors makes the addition of these facilities problematic. 

If all motorists were equally capable in their driving abilities, and each was knowledgeable of the street system and knew exactly how to navigate to their destinations, traffic operations would be closer to the design capacity of the roadways.  Motorists violating traffic regulations create unsafe and irregular conditions that have a disruptive effect on normal operations during peak periods.  Police enforcement and public education are generally considered the best means of improving overall compliance with posted traffic control.  Many disruptive vehicle movements, such as abrupt lane changes, are made by motorists that are unfamiliar with the street system.  Signage programs that provide needed directional information at the appropriate points help motorists to plan for turns and other route modifications.

There are several variables regarding the physical characteristics of a street or intersection that have the potential to reduce its effective carrying capacity. The physical condition of the pavement, and the existence of on-street parking and driveways are the two that can most significantly impact vehicle movements.  Because well-maintained roadways are a vital component of a good circulation system, the City has an ongoing inspection program to forecast and schedule streets for periodic resurfacing and reconstruction as necessary. 

While curbside parking reduces the street surface that could otherwise be utilized for traffic operations, shortages of on-site parking for older commercial business and multi-family housing units limit the potential to remove street parking to provide additional roadway capacity.  The more direct impact on traffic movement is the blockages caused by vehicles maneuvering in and out of parallel or diagonal parking spaces.  These delays are especially significant along busy arterial streets where there is a frequent turnover of available parking.

The existence of commercial or residential driveways on arterial streets likewise cause disruptions to traffic flows.  While it is currently the City policy to not allow new driveways to be created off of arterial streets, there continues to be many that serve older land uses.  Frequently there is no alternative access to the properties, and so the of there driveways will continue to effect operations until such time that the property is redeveloped with access from a side street or rear alley.

Travel Alternatives and Transportation Demand Management

It is becoming increasingly apparent within regional planning agencies, and by many sectors of the public as well, that sustaining acceptable levels of mobility requires a comprehensive transportation strategy.  Given the population growth that is forecasted for the county and region, and the cost and difficulty of increasing freeway capacity, public financing is increasingly being programmed for facilities and services that provide alternatives to automobile travel, especially single-occupancy usage.  While auto traffic will likely continue to be the predominant mode of travel for the foreseeable future, many believe that improved transit services will attract growing percentages of daily commuters. 

Locally, several regional and local public transit services are available as travel alternatives.  Serving Los Angeles and the five surrounding counties, Metrolink (Southern California Regional Rail Authority) operates the Ventura County and Antelope Valley lines, which join near the Animal Shelter and continue through Burbank into the Downtown Los Angeles Union Station.  Both lines stop at the Downtown Burbank station, and the Antelope Valley also stops at the Burbank Airport station.   The Downtown Burbank station has historically been the second highest passenger destination in the system.  Metrolink is currently planning major upgrades to its facilities and trains, which will allow the system to expand to meet increasing demand.

While the MTA Metro Red Line does not operate within the city, it does provide a nearby opportunity to access various job and recreational destinations along a route into the LA Basin that differs from the Metrolink corridor.  It, of course, also provides service from the Hollywood area into the Valley, and with connecting service from either the Universal or North Hollywood stations, into Burbank.   

Two potential projects for improving rail service through Burbank have been studied, and one continues to be included on regional lists of �long-term� transit improvements.  In 1990, the City and the County of Los Angeles jointly studied the feasibility of constructing a monorail connecting Universal City to the B-G-P Airport, via Olive Avenue and through Downtown Burbank.  Although it was found to be feasible, the project was ultimately dropped due to its cost and impacts to adjacent land uses.  The second project is a light-rail connection between the B-G-P Airport and Downtown Los Angeles Union Station, following the existing MTA-owned railroad right-of-way used by Metrolink for its Antelope Valley service.  In addition to the Airport and Union Station, the service would stop at both the Downtown Burbank and Glendale rail stations.  While the MTA continues to identify a dedicated rail line for this service in their long-range plans, the availability of Metrolink service along this same corridor, and the need to prioritize available transit funding, have caused this project to rank well below other planned rail improvements.  

The MTA also operates the regional bus service throughout the Valley, and the County.  Several lines operate within Burbank, providing service on the major arterials and connecting to the Downtown and Metrolink station.  There are numerous ways by which the coverage and frequencies of this service can be improved, and Mayor Murphy�s participation on the MTA�s newly-formed San Fernando Sector Council will ensure that the City has the ability to advocate needed service upgrades.

Proposals for improving regional and local bus services are also being developed by the Arroyo Verdugo Cities Subregion, which is comprised of the Cities of Burbank, Glendale, La Canada Flintridge, Pasadena, and South Pasadena.  The Subregion has recently prepared the Transit Audit Study, which analyzes existing bus and shuttle services operating within the AVC area and proposes a number of service upgrades that can be achieved through greater cooperation among the participating five Cities.  That report and findings will be brought to the Council for consideration in two months.

Of course, the City of Burbank operates its own Burbank Local Transit (BLT), Burbank Transportation Service (BTS), and Got Wheels programs.  All funded by Proposition A and C Local Return revenues, each provides a specialized service.  The BLT program provides shuttle connections between the Downtown Burbank Metrolink Station the Media District employment center, and connections by reservation between the rail station and the Downtown and Golden State/Airport areas.  Pending the availability of adequate funding becoming available, the BLT service could be expanded to convert the Downtown and Golden State/Airport services to fixed-route lines, and to add general circulator service within the City, similar to Glendale�s Beeline program.  The delivery of seven new shuttles in October will help reduce current costs, and potentially facilitate some service upgrades. 

The BTS program provides paratransit service to Burbank seniors and persons with disabilities.  This curb-to-curb service provides transportation for any trip purpose, and to any location within the City.  It is very popular with its users and continues to operate at a very efficient level.  The Got Wheels system provides transit between libraries, recreational venues, schools, and other destinations for Burbank youth.  Ridership has continued to grow for each of the successive years that the service has been provided. 

While bicycles are not a viable transportation alternative for most people, a growing segment of daily commuters are using and advocating improved bikeway systems.  The MTA is working toward completing a 406-mile Class I bicycle system of dedicated lanes and a 1,365-mile Class II system using on-street, striped lanes.  Regional Class I routes like the Los Angeles River Bikeway, which is being developed to connect Warner Center to Downtown Los Angeles, and the San Fernando Valley East-West transit and bikeway, will soon be available for long-range bicycle commutes.  The San Fernando Valley East-West transit and bikeway will operate on the old Chandler rail line between Warner Center and the North Hollywood Metro Rail Station, where it will continue eastward as a City of Los Angeles bikeway until it reaches the Burbank City Limit, and becomes the Chandler Accessway.

Staff is currently completing an update of the City of Burbank Bikeway Master Plan, which will propose new bicycle routes to connect to the Chandler Accessway, as well as upgraded bike facilities and services.  Completion of the Plan will allow the City to be eligible to compete for several sources of public bikeway funding.  The Draft Bikeway Master Plan will be presented for Council consideration in late summer of this year.

Transportation Demand Management (TDM)         

TDM programs are strategic attempts to reduce travel demand (vehicle trips) by promoting and facilitating public transit usage, carpooling and vanpooling, and alternative forms of travel like bicycle and walking.  Burbank, as all cities were required to do in the 1990s, adopted a TDM ordinance requiring all new commercial and industrial development to include van- and car-pool parking facilities, bike racks and storage, pedestrian routes within the site to adjacent transit stops, and to post current transit information. 

The City of Burbank took a further step toward reducing trips as a means of reducing congestion with the TDM provisions contained in the Media District Specific Plan and the City Center Plan.  Both require all businesses located within the boundaries of the Plans, having 25 or more employees to achieve yearly reductions in the number of vehicle trips made by their employees between the hours of 4:00 p.m. and 6:00 p.m.  The trip-reduction goals achieve a 38% decrease in the number of commute trips that would otherwise be generated by those larger companies at the end of the 20-year term.  These programs, which include yearly surveying of employee commute activity, are administered by the Burbank Transportation Management Organization (TMO).  The TMO for each of the past thirteen years in the Media District, and past six years in the Downtown area, has successfully assisted its member companies to collectively achieve the yearly trip-reduction goals. 

Element Update and Public Input

In addition to this study session and the follow-up session in July, there will be many upcoming opportunities for the public to learn more about transportation and traffic issues and to comment on work products prepared in connection with the updates of the Transportation and Land Use Elements of the City General Plan, and Infrastructure Blueprint.  A survey form that solicits public views on traffic and transportation issues is currently available on the City website under the Transportation Section.  Public meetings will continue throughout the update process, and periodic progress reports will be presented to the City Council.

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