PURPOSE:     

The purpose of this staff report is to share with the City Council the latest traffic analysis for Sunset Canyon Drive, the results of staff�s meetings with Sunset Canyon Drive residents and options regarding the proposed sidewalk on Sunset Canyon Drive.

BACKGROUND:

1.   In August 2001, staff brought before the City Council the final recommendations of the Citizen Advisory Committee (CAC) for the Hillside Recreation Neighborhood Protection Plan (HRNPP). (This staff report and the HRNPP are attached as Exhibits A and B respectively.)  This was the culmination of a 4 year planning effort to address the traffic issues associated with cars coming down from hillside through the residential neighborhood. The HRNPP was approved by the City Council in June of 2000 and, over the next year, was implemented as approved. 

At the August 2001 meeting, staff reported on the successful implementation of the Plan and the achievement of the Plan objectives. The primary problem addressed by the HRNPP was the disproportionate amount of hillside traffic using Harvard Road; the goal of the Plan was to divert a small percentage of this traffic to Olive Avenue via Sunset Canyon Drive. 

The approved HRNPP recommended, among other things, that the Public Works Department explore the feasibility of installing a sidewalk on Sunset Canyon Drive. In view of the fact that the Plan�s preferred route for accessing the hillside recreation facilities directs additional traffic onto   Sunset Canyon Drive, it was felt that a sidewalk and additional lighting       would increase the safety of both drivers and the numerous walkers on that street.  The City Council directed staff �to look into the feasibility of constructing a sidewalk and adding more street lighting on Sunset Canyon Drive�.

2.  As a first step in assessing the feasibility of a sidewalk on Sunset Canyon Drive, staff sent out a postcard survey to over 500 residents living on, or in the area of, Sunset Canyon Drive.  This survey asked whether or not they walked in the area, whether they would use a sidewalk on Sunset Canyon Drive and whether they were in favor of one.  The survey was coded by location of respondent.  The results showed that a high percentage of the area residents walked on Sunset Canyon and that most of them were in favor of a sidewalk; of the 40 respondents actually living on Sunset Canyon Drive, 50% were in favor of a sidewalk. The result of the sidewalk survey is attached as Exhibit C.

3.  On March 6, 2002, Planning staff hosted a meeting for 40 very concerned residents of Sunset Canyon Drive.  The issue at hand was whether a sidewalk should be installed on Sunset Canyon Drive.  The discussion that evening quickly expanded to include numerous other traffic-related issues on that street. 

A group of Sunset Canyon residents organized to oppose not only the installation of sidewalks, but also the new signage that had been installed on Sunset Canyon Drive and any additional traffic diverted onto their street.

The March 6^th meeting gave staff a chance to explain the background and rational for the existing traffic patterns, and, more importantly, it gave the local residents a chance to share their concerns.  The major concerns expressed by the residents at the meeting were as follows:

• Truck Traffic

Residents of Sunset Canyon Drive identified truck traffic as a problem on their street. Even though Sunset Canyon is one of the City's designated truck routes, residents felt that it is not an appropriate street for this type of traffic.

• Traffic Volume

Residents felt that there is an excessive amount of traffic on Sunset Canyon Drive and that this was exacerbated by the    directional signage installed as part of the HRNPP.

• Speeding

There were several complaints about speeding.

• Need to Change Posted Speed Limits

The speed limit posted on Sunset Canyon Drive is 30mph.  At the Glendale border, the speed limit changes to 25mph.  Residents asked that Burbank lower the posted speed limit on Sunset Canyon to 25 mph in order to reduce the        perceived speeding impacts.

• Lack of Police Enforcement

Residents felt that there was insufficient Police presence and Police enforcement of speed laws.

• Sidewalks would not be used

The residents at the meeting felt strongly that even if sidewalks were installed that they wouldn't be used; that people would prefer to walk on the streets - especially those walking in groups or with dogs.

4. In response to residents concerns, Planning and Public Works staff collected a variety of necessary data to determine if the perceived traffic problems on Sunset Canyon Drive were indeed out of line for that street.  Staff's findings are summarized below.  The report from the City's Traffic engineer, containing the data collected is attached as Exhibit D.  This information, as summarized below, was presented to the Sunset Canyon residents at a second meeting on April 23, 2003.

Truck Traffic

Trucks in the Sunset Canyon Drive area are generally destined to either the landfill or one of the hillside recreational facilities, primarily the Castaway restaurant. 

A daily count of trucks on Sunset Canyon Drive and the surrounding areas showed that Sunset Canyon Drive carries an equitable share of over all truck trips when compared with other streets in the area, including Bel Aire Drive, Harvard Road, Magnolia Blvd., Olive Ave. and Walnut Ave.     However, after reviewing the current trash routes to the landfill, it appears Sunset Canyon is used more then other routes to the landfill.  Public Works will continue to modify the routing to reduce the      total number of trash trucks using Sunset Canyon over a weekly cycle.  The goal of this effort is to equalize the routes so no area receives a disproportionate share of the trash truck traffic over a week.  The new    routing should be fully implemented within 30 days.    

Traffic Volume

Residents of Sunset Canyon Drive raised issues associated with the amount of traffic on their street as a result of recently installed guide signs which direct traffic along the shortest route to major streets and the freeway. Traffic data was collected on Sunset Canyon Drive and on other nearby streets to determine if an abnormal volume of traffic is being directed to Sunset Canyon Drive.

Traffic data collected showed that traffic volumes on Sunset Canyon Drive varied between 2300 and 2600 vehicles per day on an average weekday.  Average weekday traffic on Bel Aire Drive ranges between 2300 and 2500 vehicles daily.  This amount of average daily traffic is typical and considered acceptable for a residential collector street.

An analysis of traffic counts taken for Sunset Canyon Drive and other hillside streets, in 1998, 2000, 2001 and 2002, shows that Sunset Canyon Drive carries a fair and reasonable share of the hillside traffic.  In general, traffic in the Burbank hillside area has increased over the past 5 years; this is a trend observed citywide.  As can be seen in the comparison table           below, there have been significant increases in traffic on the major traffic streets in the hillside - Sunset Canyon Drive, Harvard Road, and Walnut Ave.

            TRAFFIC VOLUME CHANGES ON HILLSIDE STREETS

                1998 � 2002

                                      Based on traffic counts from 1998. 2000, 2001 and 2002

                                      *  From 1998 to 2001 there was a 34% increase in Sunday traffic

                                    **  From 1999 to 2003 there was a  20 % increase in Sunday traffic

Traffic on each of the above streets, however, is considered to be within acceptable levels.

Speed

The posted speed limit on Sunset Canyon Drive is 30 MPH in the City of Burbank and 25 MPH in the City of Glendale.  The Sunset Canyon Drive street width in Glendale, however, is much narrower than in Burbank.  The speed limit in Burbank was established by City code (Section 29-1502) in 1990.  Whereas the City�s General Plan shows Sunset Canyon Drive as a residential collector street, the 1999 Functional Classification Map prepared by the Federal Highway Administration shows the street as a minor arterial.

Sunset Canyon Drive is a residential street. Even though prevailing traffic speeds are consistent with the existing 30 mph posted speed limit, the standard residential speed limit of 25 mph would be appropriate to protect this neighborhood from higher speed through traffic.  The existing speed limit can be modified to a 25 mph residential speed limit, and the limit can be enforced with radar, if the Federal Highway map is changed to exclude the street.  This is an action which can be requested by the City of Burbank through Caltrans.

Traffic speed was measured on Sunset Canyon Drive, and on neighboring streets, to determine if there was a speeding problem. Average speeds on Sunset Canyon Drive were about 26 mph. The existing speed characteristics are consistent with the existing 30 mph speed limit. For comparison sake, speeds on Bel Aire Drive average about 29 mph, and on Kenneth Road average about 25 mph. Similar speed studies on residential streets in Burbank generally show that speeds average about 28 to 29 mph.

The speed data shows that the speed characteristics of Sunset Canyon Drive are not different than most residential streets in Burbank, and that there is no particular speeding problem on this street.

Traffic Accidents

Traffic accident data was reviewed to identify patterns or identifiable incidences of traffic accidents.  Over a three-year period from January 1999 to January 2002, two accidents were recorded on Sunset Canyon Drive between Walnut and Olive Avenues.  This can be compared to four accidents on Bel Aire Drive and seven on Kenneth Road.  The data shows that Sunset Canyon Drive is safer than the other two north/south residential streets in the area.  Police consider Sunset Canyon Drive to be a safe street.

Sidewalk

The sidewalk survey showed that 72% of all the residents in the area between Olive Ave. and Harvard Rd., above Kenneth Rd., were in favor of putting a sidewalk on Sunset Canyon Drive.  50% of the Sunset Canyon residents that responded to the survey that they were in favor of putting in a sidewalk.  At the public meeting held on March 6, 2002, however, almost all of the 40 attendees were opposed to putting in a sidewalk.

Several options were explored for putting in a sidewalk on Sunset Canyon Drive.  One included removing parking on the east (uphill) side of the street and utilizing the easement running across the properties on this side of the street; another involved removing the parking and painting an edge line (like a bike lane) for walkers.  Both of these options had serious flaws.  The best option would be to remove parking on the east side of the street and extend the curb line to allow for a sidewalk.  If the City Council decides to install a sidewalk, this seems to be the preferred method.   The estimated cost of a five foot wide sidewalk with two feet of curb and gutter, on the east side of Sunset Canyon Drive between Olive and Walnut Avenues, is $379,000.

By reducing the roadway width to accommodate a sidewalk, the City Traffic Engineer says that speeds on the Sunset Canyon Drive would be reduced as a factor of the narrower roadway. This would be an added benefit for this neighborhood.  Police have no problem with such a sidewalk or roadway configuration.

On-Street Parking

A street and parking survey found that the street is sufficiently wide to install a sidewalk on the street pavement, if parking is removed from one side of the street.  The parking survey (Exhibit D, Table 4) found that there is enough available parking on the street to allow for parking to be removed from one side of the street to provide for a sidewalk.  Parking removal on the east side of the street would have less impact on the neighborhood than the west side because fewer homes would be affected.

Police Enforcement

Police enforcement on Sunset Canyon Drive was not specifically documented, but enforcement needs of this street are no different than any average residential street in Burbank. 

5.  On April 23, 2003, staff again hosted a meeting for Sunset Canyon residents to share with them the above findings regarding their concerns and to respond to any additional questions they may have. Residents of Sunset Canyon Drive and adjacent streets were noticed by mail and encouraged to participate in the meeting; 24 residents attended the meeting.  This meeting was staffed by Planners, the Public Works Traffic Engineer and a lieutenant from the Police Traffic Bureau.

Staff presented traffic counts from 1998, 2000, 2001 and 2002 taken on Sunset Canyon Drive and adjacent streets (Exhibit E).  These counts show that the amount of traffic on Sunset Canyon Drive has increased, as has traffic on the adjacent streets, but is still well within an acceptable range for a residential collector street.  When compared to other streets in the hillside area, Sunset Canyon Drive carries a similar amount of traffic.  Whereas there were certain times of the day when the   amount of traffic exceeded the desirable level, these were during short peak periods and never came close to the actual carrying capacity of this road. (See Exhibit F) It is the opinion of the City Traffic Engineer that, as measured by the traffic counts, there is not a problem of excessive traffic on Sunset Canyon Drive.

It is important to remember, that it was the intent of the approved Hillside Recreation Neighborhood Protection Plan, to divert a small percentage of the traffic that was using Harvard Road to exit the hillside area onto Sunset Canyon Drive and over to Olive Avenue.  The slight increase in traffic resulting from this diversion was intentional.  It seems that the overall increase in traffic in the hillside area, however, has little to do with the Neighborhood Protection Plan per se, but rather with the overall number of cars accessing the hillside.

Several residents indicated that they would like the truck route and other directional signs removed from their street.  Staff agreed to look at the placement of the signs and to consider the possibility of removing some or perhaps moving them to be less intrusive to the residents. Following the April 23^rd meeting, staff reviewed the signage on Sunset Canyon Drive and found that the freeway route marker and truck route signage just south of Grinnell Drive, could be removed without significantly       impacting the intended route marking sign system; these signs were removed.  Staff feels strongly, however, that it is important to retain a certain number of the remaining to achieving the goal of equitably distributing the traffic load on hillside streets.

Other issues addressed by staff and the Sunset Canyon Drive residents are:

• Accidents � residents reported that there were more accidents on Sunset Canyon Drive than what was reported in Police records. It was explained that if Police were not called to the accident then they go unrecorded. 

• Truck traffic noise �Whereas the City Traffic Engineer has determined that Sunset Canyon Drive carries a fair share of the truck traffic, it was acknowledged that truck traffic on concrete streets is louder than on asphalt.  It was explained that Sunset Canyon Drive is a concrete street because it carries a drainage water during the rainy season.

• It was requested that Bel Aire Drive through the landfill area be opened to provide alternate access to and from the hillside area.  Residents felt that this route would provide direct access to Bel Aire Drive and spare Sunset Canyon Drive.

Bel Aire Drive within the landfill area is blocked by a locked gate about 2,400 feet north of Cambridge Drive for security purposes and to minimize intrusion into the landfill area.  The unblocking of this access route is not expected to materially reduce the level of truck traffic on Sunset Canyon Drive.  As determined in our refuse truck survey, trucks serving Burbank residents living west of the Sunset Canyon Road area use Walnut Avenue or Harvard Road to access the landfill, rather than Sunset Canyon Drive.

• Police Enforcement - Many of the problems which the residents brought up are related to police enforcement.  These problems include speeding, not stopping at stop signs and skateboarders.  The Police representative noted these problems and encouraged the residents to call police when there is a problem.  A speed trailer will be set up in areas that warrant further monitoring.

6. In response to a meeting with Council Member Campbell, staff hosted another meeting with the Sunset Canyon Drive residents on July 10, 2003.  The purpose of this most recent meeting was to inform the residents of the various actions staff has and will be taking to address their concerns; these actions include:

• Adjusting trash truck routes to equalize the amount of trash truck traffic on each collector street;

• Removal and/or moving of truck route and freeway directional signage;

• Reducing the posted speed limit on Sunset Canyon Drive from 30 MPH to 25 MPH to emphasize the residential character of the street;

• Removal of Sunset Canyon Drive from the Federal Highway Map to allow for radar speed limit enforcement;

• Recommendation to City Council that a sidewalk not be installed on Sunset Canyon Drive due to resident opposition.

The issue of increased noise resulting from the concrete surfacing on Sunset Canyon Drive was brought up by residents at the meeting.  Staff agreed to look into the effects of concrete on noise and on the feasibility and costs of resurfacing Sunset Canyon Drive with a quieter surfacing material.  It should be noted that the City wide street resurfacing schedule was prioritized based upon maintenance needs and not on aesthetics or noise.

7. Following the July 10^th meeting, Public Works staff met and spoke with individual residents in an effort to resolve any remaining problems. These meetings resulted in additional signage being removed and relocated.  In addition, an initial cost estimate was made for the street resurfacing.  The �ball park� estimate for asphalt rubberized resurfacing of the entire roadway, ranges from $200,000 to $450,000, depending on the actual condition of the existing concrete pavement.  Recent studies have shown that rubberized asphalt surface is up to 4 decibels quieter than concrete, because noise is trapped in the porous asphalt; this quality deteriorates over time, however, as the asphalt compacts under the weight of traffic.

In response to residents complaints voiced at the meeting, Police Sgt. Pat Lynch agreed to monitor the City�s refuse truck drivers for rolling-type stops at intersections, to monitor the speed of police vehicles traveling to the Police shooting range, and to increase the Police presence and enforcement of speed limit.  Public Works refuse supervisors will also remind all refuse drivers to completely obey the DMV rules of the road.

ANALYSIS:

Staff is aware of and sympathetic to the perception of the residents that there is excessive traffic on their street; this is a concern voiced by residents throughout the City.  Traffic counts do not support this perception.  Citywide there has been an increase in traffic as the development expands, population grows, employment increases, and car ownership trends change.   Burbank continues to attract attention as an increasingly pleasant place to live, do business and recreate.  This fact             has both positive effects, such as increased property values and high quality of life, and negative impacts such as traffic. In an effort to balance the benefits with the impacts so that residents can enjoy a high quality residential environment and the many and varied opportunities for shopping and recreation, staff seeks to mitigate these impacts where possible and equitably distribute what remains.

Whereas for many years Sunset Canyon Drive carried less traffic than it currently does, this is true for many of the streets in the City. 

The goal of the HRNPP was to more equitably share the traffic burden    and to direct it to the most appropriate streets.  Sunset Canyon Drive is designated as a collector street and is one of the City's truck routes; Olive Avenue is a major arterial street.  In addition, there are fewer homes adjacent Sunset Canyon Drive and therefore fewer residents would be impacted. The Police Department, the City's Traffic Engineer and a Traffic consultant working with the City on this matter, considered Sunset Canyon Drive the appropriate street to handle the traffic going to and from the hillside activities. 

As directed by City Council, staff has polled the neighborhood regarding   the installation of a sidewalk on Sunset Canyon Drive.  Whereas the majority of the hillside residents polled (72%) are in favor of installing a sidewalk on Sunset Canyon Drive, the Sunset Canyon residents who responded were evenly divided for and against.  However, there is a significant group of Sunset Canyon residents who are actively opposed to such a sidewalk and feel it would not be used. 

In that Sunset Canyon Drive does not have a record of a significant number of traffic or pedestrian accidents, staff is of the opinion that it is not mandatory to put a sidewalk on this street and therefore recommends against the installation of a sidewalk at this time.  Should the City Council want to install a sidewalk, it is feasible and the cost is estimated at   $379,000.  In light of the current budgetary crisis staff feels that it would   be appropriate to postpone a decision on the sidewalk issue and revisit it when the City is in a better position to fund such an improvement.  Until such time, the Public Works Department and the Police Department could carefully monitor vehicular and pedestrian traffic and accidents on Sunset Canyon Drive as well as speeds.

CONCLUSION:

The only way to access the wonderful hillside resources in this community is to go through some of Burbank's best residential neighborhoods.  While this is a problem that doesn't have a good solution, staff is seeking an equitable one.

The problems and concerns brought up by the Sunset Canyon residents are similar to those voiced by residents throughout the City:  traffic volume, speed, police enforcement enforcement, and truck traffic.  The question is, therefore, whether the speed, amount and type of traffic on a particular street are appropriate for that street's size, type and function.

After taking a close look at the traffic on Sunset Canyon Drive with respect to volume, speed and composition, the City's Traffic Engineer, and the consultant traffic engineer working with the City on this issue, concur that the amount and type of traffic on Sunset Canyon Drive is within acceptable limits for that street.  More specifically:

• The traffic volume on Sunset Canyon Drive is within reasonable and safe volume for a residential collector street.

• Truck traffic is not excessive, and Sunset Canyon Drive carries no more than its equitable share of hillside truck traffic; with the rerouting of refuse trucks, this burden will also be equitably shared. Sunset Canyon Drive is safe and efficient for truck traffic.  

• Speed was not found to be excessive on Sunset Canyon Drive and the area is patrolled regularly by police.                           

• The posted 30 MPH speed limit is not in character with the residential character of this street; the posted speed limit should be reduced to 25 MPH.

• Two traffic accidents were recorded over the past three years and Sunset Canyon Drive is considered to be a safe street. 

• Sidewalks are desired by the majority of residents in the neighborhood and by half of the Sunset Canyon residents.  There is, however, a contingent of Sunset Canyon Drive residents who actively oppose the installation of a sidewalk.  

• There is sufficient parking on Sunset Canyon Drive to allow for parking to be removed from one side to accommodate a sidewalk.

RECOMMENDATION:

Staff recommends that:

a.) The directional signage installed in keeping with the Hillside Recreation Neighborhood Protection Plan be retained, where necessary, to achieve the goals of the HRNPP and that staff continue to work to relocate and/or remove signage, where possible, to minimize impacts on residents of Sunset Canyon Drive;

b.)  Sunset Canyon Drive be removed from the Federal Highway Maps and subsequently, that the speed limit on Sunset Canyon Drive be lowered to 25 MPH to emphasize the residential character of the street;                      

Staff does not recommend that a sidewalk be installed on Sunset Canyon Drive at this time.  In the future, if the City Council is still interested in pursuing the subject of a sidewalk, staff recommends that traffic accidents, walking patterns and traffic speed be carefully updated by the Public Works and Police Departments before a decision is made.

Whereas resurfacing of the Sunset Canyon Drive would most likely lower the noise levels for adjacent properties, the current budgetary constraints and the relatively good condition of the street lead staff to recommend against the resurfacing of this street at present.  Public Works staff feels there are other streets in the City with a greater maintenance and safety need for resurfacing and that those streets should be a priority.

EXHIBITS

EXHIBIT A �  August 21, 2001 Final report to City Council on the Hillside Recreation       Neighborhood Protection Plan

EXHIBIT B �  Hillside Recreation Neighborhood Protection Plan (HRNPP)

EXHIBIT C �  Sunset Canyon Sidewalk Survey and Summary of Most Frequent Comments

EXHIBIT D �  Analysis of Traffic on Sunset Canyon Drive by City Traffic Engineer 10/17/2002

EXHIBIT E �  Hillside Traffic Volumes � Graphs and Numerical Tables

EXHIBIT F �  Sunset Canyon Traffic Capacity

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