Purpose

This report presents the proposed City of Burbank Bicycle Master Plan.  The Bicycle Master Plan is a planning document that ensures that future transportation decisions consider bicycle travel in the design of new facilities and approval of new development projects.  The goal of the Plan is to build upon recent investments in bicycle facilities to further strengthen the use of cycling as a transportation and recreation activity throughout the City.

Background

Bicycle travel is an important component of the transportation network.  It is an environmentally-friendly transportation option for both commuting and recreation that can also serve as an attractive method to reduce traffic congestion. It provides an alternative to the private automobile while at the same time allows a similar freedom of access throughout the City that the auto affords.  When used for short, utilitarian trips, bicycle travel has the potential to reduce vehicle trips, helping to reduce congestion and make the overall road network more efficient.  When integrated with transit service, it can help extend the usefulness of the transit network by providing a final connection from a bus or train terminal to the final destination.  It promotes fitness and enhances quality of life.  Bicycle travel is also compatible with fostering a sense of local community and integrates well with other community planning ideals such as promoting healthy neighborhoods and encouraging auto-independent, mixed-use development.  Finally, bicycle travel is important to those who may not have the means to afford other modes of travel and helps to ensure that all members of the community have access to transportation. 

A safe and effective bikeway network and system of support facilities is crucial to providing and promoting this valuable transportation mode.  Current roadway configurations cater to automobile travel and circulation without taking into full account the needs of other vehicles that use these facilities.  As a result, conditions that are effective for efficient auto travel may not be safe for bicycle travel even though that, by law, bicycles carry the same rights to use the road network as cars.  The Bicycle Master Plan attempts to restore this imbalance by identifying existing routes that are convenient and useful to cyclists as well as ensuring that the bicycle user is considered in future improvements to the transportation network as part of system upgrades or new development. There are three types of bicycle routes that can be used to achieve this.  Class I bicycle routes are paved paths that are completely separated from vehicular traffic. Class II routes are striped and stenciled lanes on a street or highway dedicated to cyclists.  Class III routes are those shared by bicyclists and motorists and are identified by signs only.  Note that although bicycles are permitted on all city streets unless otherwise prohibited, Class III routes identify those streets which provide safer or more direct travel for cyclists.  The Plan also accounts for other critical components of a comprehensive bicycle network � bicycle parking and integration with bus and rail transit.  These items are as equally important as the selection of bike routes and ensure that the system is convenient and accessible to as many people as possible.

Existing Conditions for Bicycle Riders

Many aspects of the physical street network in Burbank currently make biking difficult or unattractive to many riders who would otherwise consider it as a travel option.  The City is bisected in both directions by two railroad lines and the Golden State (Route 5) and Ventura (Route 134) Freeways.  These barriers lack bicycle-friendly crossings, as only a limited number of roadways traverse these facilities, in most cases utilizing narrow underpasses or high-volume freeway-ramp systems.  As for the street system itself, many primary and secondary arterial streets are characterized by narrow lanes that cannot readily accommodate bicycle traffic in a separate, dedicated bike lane or shoulder.  While more bicycle-friendly alternatives to these busy arterials do exist, awkward layout of the street grid itself makes it difficult for riders to navigate the city away from the busy arterials without guidance.

Currently, the City of Burbank has 2.70 miles of bikeways.  This includes a Class I route along the Burbank Western Channel between Cohasset Street and Tulare Ave and from Buena Vista Street to Jackson Street., and a Class II route along Riverside Drive between Bob Hope Drive and the Glendale City limits.  The Chandler Accessway, a Class I bike path to be located in the Chandler Blvd. railroad right-of-way, is currently under construction between Mariposa Street and the western city limits.  There are also existing or planned regional bicycle routes adjacent to the City, including the Los Angeles River Bikeway, Valley East-West Bikeway, and the San Fernando Bikeway.  The Chandler Accessway currently lacks connectivity to these other regional routes as well as to city destinations and transit centers.  An opportunity exists to build upon this valuable facility and develop a complete bicycle system.

In addition to existing bicycle routes, there are a number of existing bike parking facilities throughout the City, notably at the Downtown Burbank Metrolink Station, a number of city parks, and various commercial developments.  The City also has in place a bicycle parking requirement for new commercial development greater than 50,000 square feet, and requires bike parking for billiard parlors and arcades as outlined in the Zoning Code.

Goals of the Plan

Given the limitations of the street network with regards to bicycle travel and a possibility to build upon investments made in the Chandler Accessway, there exists an opportunity to develop a comprehensive network of routes and support facilities that leverages existing and planned regional routes and integrates these facilities into a system that serves the various land uses of the City.  The Bicycle Master Plan serves as a policy document to guide the development and maintenance of a bicycle network, support facilities, and other programs for Burbank over the next 20 years. In particular, the goal of the Plan is to:

�make bicycle travel an integral part of daily life in Burbank, particularly for trips of less than five miles, by implementing and maintaining a bikeway network, providing end-of-trip facilities, improving bicycle/transit integration, encouraging bicycle use, and making bicycling safer.

In support of this goal, the Plan recommends a series of policies related to the City�s bikeway network such as planning, utilization of existing resources, facility design, multi-modal integration, safety, education, and support facilities, as well as specific programs, implementation, maintenance, and funding strategies.  In addition to these policy recommendations, the Plan also outlines a comprehensive package of proposed local and regional Class I, II, and III bicycle routes.  These routes are prioritized by their effectiveness in forming a complete network connecting major destinations and transit facilities in the City with other regional routes.  As a result of establishing a bicycle network, it is hoped that the City can realize a real reduction in vehicle trips, improve air quality, strengthen recreational riding opportunities, and provide transportation alternatives for transit-dependent persons or those with limited transportation options.

Route Criteria

Proposed routes identified in the Plan are chosen and ranked using several criteria.  These criteria include:

• Regional Connectivity

• Closing gaps in the bikeway network

• Connections with major destinations, such as Burbank Village, Media District, employment areas, shopping centers, and Metrolink/Amtrak stations

• Completion of the bikeway network

• Availability of street width or right-of-way

• Existing plans the City has to improve and/or widen streets

• Linkages with adjacent cities

• Linking the Los Angeles River and Chandler Bikeway

Caltrans funding requirements for bicycle master plans dictate that projects be ranked in order of importance and given a priority for funding.  Top priority projects are those projects which meet the greatest number of the above criteria and will form the backbone of the bicycle network.  For each top priority project, the Plan includes a planning level cost estimate and detailed route description including proposed roadway configurations.  Second and third priority projects are those which are less critical to the network yet still provide needed local circulation. These lower priority routes are identified but do not include costs or detailed descriptions.  Because of this priority scheme, the proposed bicycle network is divided into two Phases;  Phase I includes all current routes and the identified top priority projects while Phase II includes all of Phase I with the addition second and third priority projects.

It should be noted that routes identified in the Plan will require further analysis before implementation, although all projects have been identified as being preliminarily feasible.  If Council were to adopt the Bicycle Master Plan, individual construction projects identified would be brought back for further discussion and approval before implementation.  The Bike Master Plan serves as a policy and planning document and sets a direction for further study and as such does not authorize any new construction.

Funding

In addition to outlining goals, policies, and objectives, the Bicycle Master Plan enables the City of Burbank to become eligible for funding opportunities.  A primary source of funding for projects in the Plan is expected to come from the Bicycle Transportation Account, a state program administered by Caltrans, which allows local agencies to apply for funds on an annual basis for bicycle projects contained in a Caltrans-approved Bicycle Master Plan.  Currently, $ 7.2 Million is available each year from this account to fund eligible projects.  This amount will be reduced to $5 Million annually in FY 2006-07, but lobbying in Sacramento by a number of bicycle advocacy groups has the potential to raise this amount in the future.  These funds are attractive because they require only a 10% local match and can be used for a variety of projects, including bike paths, lanes, parking, and signage.  The Bicycle Master Plan meets all of the requirements set forth in Section 891.2 of the Streets and Highways Code that allows the City to be eligible for this funding source.  Additionally, adoption of a comprehensive Bicycle Master Plan enables projects in the plan to be more attractive for funding in other programs, such as the Metropolitan Transportation Authority (MTA) Call for Projects.

Coordination with other Agencies

Due to the regional emphasis of many of the routes in the Plan, especially the Class I routes that connect with those in neighboring cities, coordination of the Bicycle Master Plan with those of neighboring agencies is critical to realizing the maximum benefit of a regional bike system.  The proposed bikeway network integrates with the current and proposed facilities identified in the bike plans of both Glendale and Los Angeles to ensure connectivity to these neighboring cities.  The Plan includes recommendations contained in the Los Angeles River Bikeway Connector Study that was completed in June 2002.  As part of that study, staff from all three cities (Burbank, Glendale, and Los Angeles) along with representatives from the Los Angeles 4^th Council District collaborated on a series of designs to connect this major regional bike route with the Chandler Path and to bike systems in the each of the respective cities.  City staff has also coordinated with Los Angeles to plan a continuous Class I path along the San Fernando Blvd railroad right-of-way.  Portions of the Los Angeles segment are currently funded for design and construction, while Council approved a Call for Projects application seeking funds for the Burbank segment in March of 2003.  Finally, MTA has reviewed the Draft Bicycle Master Plan and has issued a letter certifying that it conforms to the regional bikeway plan (see Exhibit B).

Transportation Commission

The Burbank Transportation Commission reviewed preliminary route choices and discussed possible areas of study at their October 2002 meeting.  Staff presented an overview of the Draft Bicycle Master Plan and reviewed the bicycle route map at their meeting in June 2003, where Commission members stressed the importance of the bike system�s links to transit through provision of bike racks on transit vehicles.  At its meeting of November 24, 2003, the Commission further expressed their support of the plan with a 6-0 vote recommending the final draft be forwarded to City Council for consideration.  The Commission further stressed the importance of linking transit to the system and were also in support of the bicycle safety and awareness programs contained in the education component of the Plan.

Public Works Department / Traffic & Transportation Committee

Staff received comments on the Draft Bicycle Master Plan from the Traffic Division of the Public Works Department who were supportive of the Plan.  Traffic Division staff noted that some of the proposed Class II projects may conflict with possible future plans to widen the roadway for additional lanes, or reduce the number of thru lanes at selected locations.  All projects are believed to be compatible with current traffic conditions as well as staff�s current estimates of future needs.  However, staff continues to progress with the update of the City�s Transportation Element, and it may become evident through this process that arterial reconfigurations or widenings may need to be considered to offset future traffic congestion.  As the Bicycle Plan, if approved by Council, will be incorporated into the Transportation Element by reference when it is completed, Council will have the opportunity to weigh the pros and cons of possible conflicting needs and set policy through the Element or amend the Bicycle Master Plan as needed.  Traffic Division staff also had concerns regarding the installation of traffic signals along selected routes.  These signals and accompanying traffic calming devices are identified in the Plan because they encourage bicycle traffic along corridors connecting regional routes that make numerous arterial crossings.  These select locations were chosen because they represent a potential to offer cyclists an attractive alternative to parallel arterial streets while also introducing a measure of traffic calming to the adjoining neighborhood.  Finally, Traffic Division staff had a question as to the duplicative alignments of some of the routes, especially additional east-west routes identified in Phase II.  The network is designed to offer many choices of bicycle travel for various types of cyclists with distinct needs, from novice weekend riders to experienced cyclo-commuters.  Also, Caltrans requires any routes that a jurisdiction would consider funding under the Bicycle Transportation Account be included in the plan.  Further analysis could warrant removal of certain routes from the plan if they are later determined not to be effective or needed.

The Traffic & Transportation Committee heard a presentation on the Plan at its July 2003 meeting and viewed the proposed route map.  Committee members echoed some of the concerns of Public Works staff regarding traffic signal placement and the number of different routes.  They also discussed the visibility of the system through potential naming of routes and destinations or other signage options.  The Plan includes discussion of route and destination signage techniques to accompany the proposed routes.

Public Outreach

Transportation Division included an exhibit outlining the Bicycle Master Plan and the proposed route map at a community event held on October 18^th, 2003.  This event, the Red Ribbon Ride in the Park, drew over 300 school-aged children accompanied by their parents to a community bike ride raising awareness of drug and drug abuse issues.  Staff made available a copy of the Plan and answered questions about its policies and selection of routes.  The Plan has also been made available via the Community Development Department�s website since September 2003, and visitors were encouraged to review the plan and submit comments or questions.  Finally, a copy of the Plan has been made available at the City Clerk public counter for review.

Environmental Process

The Bicycle Master Plan is a planning and feasibility study that attempts to guide future action by the City Council.  As such, it does not authorize any projects, nor does it commit funding to any project or activity contained the Plan.  Thus, the plan as a project under the California Environmental Quality Act (CEQA) is exempt under section 15262, Feasibility and Planning Studies.  Further action towards implementation of any of the programs or projects contained in the Plan at the later direction of Council would involve preparation of environmental documentation under CEQA at the time the project is considered.

Summary and Analysis

The Bicycle Master Plan is designed to guide the City in fostering a transportation system that can better accommodate bicycle travel.  The plan provides a long-term vision of the bicycle network and ensures that future changes to the transportation system and new development in the City consider bicycle amenities where practical.  It outlines a number of projects for further study in development of a comprehensive bicycle network and support facilities.  It leverages investment in the Chandler Accessway by strengthening connections of this facility to other existing and proposed regional routes, thereby increasing the utility of the entire system.  By conforming to Caltrans requirements, it offers the possibility that these projects can be funded with State funds earmarked for bicycle improvements.  Most importantly, it further facilitates the development of another transportation choice for the residents of Burbank; one that is environmentally friendly and potentially reduces congestion on local streets.

Recommendation

Staff recommends that Council adopt the proposed resolution adopting the Bicycle Master Plan.

Exhibits

Exhibit A:  City of Burbank Draft Bicycle Master Plan

Exhibit B:  Metropolitan Transportation Authority (MTA) Letter of Conformance to Regional Plan

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