PURPOSE:

 

The purpose of this report is to provide a status update on the Beachwood-Sparks Enhanced Class III Bikeway and to seek City Council direction on project implementation in the context of funding issues and local community concerns.

 

BACKGROUND:

 

On January 25, 2005, City Council directed staff to accept a Caltrans Bicycle Transportation Account (BTA) grant in the amount of $265,500 with a local match of $29,500 (for a total grant amount of $295,000) to construct an Enhanced Class III Bikeway for the purpose of connecting the Chandler Bikeway with the Riverside Drive bike lanes.  The goal of the project is to provide a bicycle-friendly north-south connection through the City along residential streets that would cater to the more novice bicyclist who may be uncomfortable bicycling on arterial streets.  This project, identified on the City�s Bicycle Master Plan adopted in December 2003, was originally routed along Mariposa Street and Beachwood Drive, but in December 2005 the project alignment was changed due to concerns of adding closely-spaced traffic signals along Beachwood Drive at Olive Avenue and Verdugo Avenue. To address this design issue, staff recommended changing the project alignment, and the City entered into an amended contract with Caltrans to reroute the project to follow Sparks Street from Chandler Boulevard to Oak Street and Beachwood Drive from Oak Street to Riverside Drive, with a small connecting segment along Oak Street between Sparks and Beachwood. 

 

The proposed project would be implemented as a Class III facility, which includes installing bicycle route signs along the route and painted stencils in the street notifying motorists that the route is a bicycle-friendly corridor.  The project does not include the addition of bicycle lanes or other painted lines in the street, and as such does not require the removal of on-street parking (some limited red-curb applications are proposed near intersections to enhance visibility).  In addition, the project proposes the installation of a new traffic signal at Beachwood Drive and Alameda Avenue, and the relocation of a traffic signal from Reese Place and Magnolia Boulevard to Sparks Street and Magnolia Boulevard, one block to the east.  Also, existing signals at Sparks Street and Olive Avenue / Verdugo Avenue, and Beachwood Drive and Riverside Drive would be modified to include bicycle detection.  The purpose of these signal modifications is to facilitate safer bicycle travel across arterial streets along the route.

 

DISCUSSION:

 

In July 2006, staff received a petition from residents of the 600 and 700 block of Sparks Street objecting to the proposed project routing along their street.  In response to this petition, staff held two community meetings in August 2006 for the purpose of providing information on the proposed project to residents along the route, and to solicit comments on the bikeway proposal.  Both meetings were well attended, with approximately 140 residents from Sparks Street and Beachwood Drive attending the two meetings.  Residents cited concerns over increased bicycle and vehicular travel in their neighborhood as a result of the bikeway and the proposed signal improvements, as well as a fear that the introduction of non-residents to the street on bicycle would increase crime.  Residents of Sparks Street near Chandler believed that installation of the proposed pedestrian ramp at Chandler would result in parking impacts to neighboring residences because people could use the pedestrian ramp as a waypoint to congregate for the purpose of beginning a bicycle or walking trip on Chandler. Some residents also voiced concern that the introduction of bicycles on their street would be unsafe for pedestrians and, specifically, children who lived along Sparks and Beachwood.  Other residents voiced opinions that bicycle routes should be confined to commercial streets where they would not impact residential areas, and that bicycle facilities in Burbank should be centered on travel to Downtown rather than across the city.  Finally, some residents in the Rancho neighborhood were concerned about the potential conflict between bicycles and horses along Beachwood Drive south of Alameda Avenue.  The overall message from residents in attendance at the community meetings was a near unanimous show of opposition to the project.

 

Summary of Major Community Concerns

 

Staff received a number of comments and concerns regarding the proposed Beachwood-Sparks Bikeway project from residents at the community meetings held in August, below are some of the major themes expressed, along with staff response to these major issues.

 

Increased Vehicular Traffic on Sparks Street and Beachwood Drive

 

Residents of both Sparks and Beachwood expressed concern that the installation of new traffic signals at Sparks/Magnolia (relocated from Reese/Magnolia) and Beachwood/Alameda (new signal) would induce more traffic onto their street.  Adding substantially more vehicle trips to any street along the route would indeed be a detriment to both the neighborhood residents as well as bicyclists. Staff believes that design elements of the proposed project will mitigate the possibility of new cut-through traffic encroaching into residential neighborhoods.  Particularly, due to the route�s �jog� at Oak Street, and the fact that the Chandler Boulevard right of way does not permit vehicle proceeding north of Chandler at Sparks, the traffic signals are not expected to create a cross-town, through vehicle route. 

 

Comparison of traffic counts on Sparks and Beachwood to other local streets with existing traffic signals shows similar, to slightly higher, daily volumes on streets with signals.  However, due to different traffic generators and other factors on these different streets, it is difficult to make a precise correlation between signalization and traffic increases.  That said, a direct comparison between Reese Place (with a traffic signal at Magnolia) and neighboring Sparks Street (with no traffic signal) shows some increased traffic along Reese during the AM, mid-day, and PM peak hours.  However, the traffic signal at Reese is an older signal that is not timed in any way to discourage through traffic on Reese. Comparison of Beachwood Drive to nearby signalized intersections is less clear because nearby streets have varying characteristics.  Mariposa Street, to the east, has higher volumes but also serves higher traffic generators (multi-family on Riverside near Mariposa, the Dincara subdivision, and equestrian riding stables).  Reese Place, to the west, is also signalized but is cul-de-sac�d north of Alameda and exhibits very low traffic at this location.  Finally, historical counts were examined on Catalina Street, another signalized local street located west of the project, which showed daily volumes comparable to Sparks Street and slightly higher than Beachwood Avenue.

 

Thus, through review of counts taken on a variety of signalized local streets, it is difficult to make a correlation between signalization and significant cut-through traffic increases.  Nonetheless, as it is difficult to predict how the proposed signals at Sparks/Magnolia and Beachwood/Alameda will affect traffic patterns, it is possible that minor traffic increases could occur as a result of signalization.  As a mitigation to any potential through traffic increases, staff is proposing that signal timing at the two new traffic signals will be set to discourage through vehicle movements.  In addition, if Council elects to proceed with the project, staff proposes to conduct traffic counts every six months for a period of two years to monitor both streets for changes in traffic patterns.

 

Crime and Safety Concerns Caused by Bicyclists

 

Some residents of both streets expressed concern of the potential for increased crime that could result from installation of a Class III bikeway along their street, especially a facility that will be connecting regional facilities outside of the city limits.  Residents felt that encouraging more cyclists to utilize the route would result in unfamiliar people entering the neighborhood, allow more opportunity for property theft (�casing� of neighborhoods to discover crime opportunities), and would create a safety hazard to children living on the street.  While it is true that a better bicycle connection between the Chandler Bikeway and the LA River bikeway may result in more non-resident bicycle riders using Sparks and Beachwood, staff does not believe there is any correlation between increased bicycle ridership on a street and increased crime. 

 

At the request of the City Council, the Police Department conducted a review of crime statistics along Chandler Boulevard before and after installation of the Chandler bikeway.  Review of this data showed a significant decrease in crime after the bikeway opening, including a 68% reduction in index crimes, 67% reduction in violent crimes, and a 28% reduction in all other crimes.  While the Chandler bikeway exhibits tremendous pedestrian and bicycle activity as compared to the users projected to use the Beachwood-Sparks Bikeway, this data does show the potential for a reduction in crime as a result of increasing pedestrian and cyclist activity on a street.  This is consistent with other qualitative observations that show increased presence on a street can result in safer neighborhoods -- a major goal of a more walkable, accessible environment.  Finally, it should be noted that although this route is serving a regional need, staff expects the majority of users of the proposed project to be local Burbank residents who will have a safer north-south travel route between Chandler and the Rancho neighborhood.

 

Some residents were concerned that added bicycle travel on Sparks and Beachwood would be a hazard to pedestrians in the neighborhood and children playing in front yards and in the street. They felt that more �aggressive� cyclists might pose a conflict to other users of the street.  The proposed bikeway will be located in the street, and cyclists will share the roadway with motorists as they are directed through the California Vehicle Code.  Bicycle Route signage will direct cyclists to use the street, and the proposed in-roadway shared lane stencils will encourage proper riding position in the roadway, rather than between parked cars or on the sidewalk.  Issues pertaining to riding on the sidewalk or violating traffic laws are a citywide concern that is being addressed through education and outreach under a California Office of Traffic Safety education grant currently underway in Burbank Schools.

 

Parking Impacts From Pedestrian Ramp at Chandler and Sparks

 

One Sparks Street resident near the corner of Sparks and Chandler commented that the introduction of a pedestrian ramp connecting the Chandler Bikeway to Sparks Street would induce people to congregate at this location before using either facility, thereby impacting on-street parking.  Staff does not believe that the installation of this small ramp would have any impact on motivating bikeway users to congregate at this particular location as opposed to any other street corner along the bikeway.  While there are no other formal access points to the bikeway except at major cross streets, there is currently no physical barrier to prevent people from accessing the path anywhere on the corridor.  Staff does not believe that introduction of a pedestrian ramp at Sparks and Chandler will provide a greater incentive to park in this location for recreational usage of the bikeway.

 

While the proposed pedestrian ramp will not attract additional parking demand, staff will investigate the  existing issue of increased parking utilization by Chandler Bikeway users on Sparks Street and Chandler Boulevard and will work with the community to develop a street parking solution should any parking problems be observed.

 

Bicycle/Equestrian Interaction

 

Residents of the Rancho neighborhood expressed concern over the introduction of cyclists into the equestrian neighborhoods south of Alameda.  In particular, residents commented that the presence of cyclists would disturb and spook horses ridden in the street and could cause a safety issue to riders.  Beachwood Drive is a significant equestrian access point between the horsekeeping neighborhoods north of Riverside Drive and the Griffith Park trail access at Mariposa because of the signalized intersection at Riverside.  While staff recognizes the need to protect equestrian users in the Rancho, staff feels the limited projected bicycle traffic that will be using the facility will not pose a significant conflict to the existing equestrian users.  Further, staff could consider adding additional equestrian warning signage on Beachwood between Alameda and Riverside to inform cyclists who may be unfamiliar with the equestrian nature of the neighborhood of the presence of equestrian activity.

 

Beachwood Drive Emergency Access Route

 

Some residents along Beachwood Drive commented that installation of a signed bicycle route would impede access or constitute a hazard to fire trucks accessing Fire Station 15 at Beachwood and Verdugo.  Community Development Department Staff consulted with Fire Department staff on this issue, who responded that while Beachwood Drive does provide emergency vehicle routing to Alameda Avenue, this access would in no way be obstructed or impeded by the installation of a signed class III bicycle route.

 

Bicycle Safety

 

Residents of both streets expressed concern with the introduction of bicyclists to streets and intersections that were otherwise already congested or unsafe.  Residents were particularly concerned about the mix of bicycles with potential conflicts from vehicles at driveways and alleys along Sparks and near the Olive/Verdugo intersection.  They also expressed concern that speeding vehicles that are already present on these streets would pose a danger to bicyclists, and that cyclists should not be encouraged to ride in this location.

 

City staff reviewed a number of possible alignments for a north-south connection from the Chandler Bikeway as part of a Los Angeles River Extension and Connector Analysis performed in 2002.  In selecting an alignment, staff made every effort possible to find a route that had low vehicle traffic, was a direct route that would be attractive to riders, could accommodate arterial crossings through existing or reasonably located new traffic signals, complemented other routes in the bicycle network, and would minimize cut-through vehicle traffic.  To this end, other streets were considered including Buena Vista, California, Keystone, Mariposa, and Victory/Main.  In most cases, these streets carry significantly more traffic than the proposed routing on Beachwood and Sparks, or require circuitous routing that would be indirect and confusing.  These streets would not be appropriate for the more novice cyclist who may feel comfortable on a Class I separated bike path but may be less comfortable using an on-street facility.  The proposed route was chosen because of its directness between Chandler and Riverside (requiring only one small jog at Oak Street) and because the volumes on Sparks and Beachwood are low compared to the other alternatives.

 

One of the goals of the Bicycle Master Plan is to make bicycling more attractive as  a travel mode by reorienting the street system to be more bicycle friendly.  Strategies to accomplish this include providing for bicycle lanes, installing bicycle signal detection, bridging barriers to travel such as bridges, railroads, and flood control channels, and identifying more lightly-traveled local and collector streets that can serve as through-routes for cyclists as alternatives to busy arterials. The goal is not to completely segregate cyclists onto isolated facilities immune from vehicle conflicts, but to better integrate them within the overall transportation system and to build awareness of the motorist that cyclists exist and are legally permitted on City roadways.  The Beachwood-Sparks Bikeway provides cyclists with a low-volume, residential street with arterial crossings that will be made as safe and accommodating as possible, and permits better north-south travel while also connecting two regional facilities.

 

Non-residential Route Options and Other Alternatives

 

As discussed above, staff believes the proposed alignment offers the best choice between directness, low traffic volumes, and providing safe arterial crossings.  Nonetheless, as a result of resident comments, staff again reviewed some of the possible alternatives considered, particularly those that did not require additional traffic signals or that avoided single-family residential neighborhoods.  Using these criteria, two previously-studied alternatives were identified that met one of these criteria while still maintaining a direct linkage between the Chandler Bikeway and Riverside Drive. 

 

The North Victory/Main alternative would skirt Burbank�s single family neighborhoods and would utilize Chandler Boulevard east to North Victory Boulevard, North Victory Boulevard to Main Street, and Main Street to Riverside Drive.  This alignment would route cyclists on Victory Boulevard, a major arterial, and Main Street, a collector street that is striped for bicycle lanes between Alameda Avenue and Riverside Drive with lanes planned between Victory and Alameda.  While this route would take advantage of bike lanes on Main Street, this alignment is not desirable because its routing along a busy arterial would not meet the goal of providing a bicycle-friendly street with lower volumes.  The value of designating extended segments of arterial roadways as bicycle routes without additional safety accommodations such as bicycle lanes or wide curb lanes is very minimal. Roadway width on North Victory Boulevard is insufficient for bicycle lanes; on-street parking removal on one side of the street or eight feet of street widening would be needed to install them.

 

The Keystone Street alternative would not avoid single-family residential neighborhoods, but it would not require installation of new traffic signals as all arterial crossings are currently signalized.  Volumes on Keystone Street, a collector street, are significantly higher than Sparks Street or Beachwood Drive (due to signalized intersections at all arterials from West Victory Boulevard to Riverside Drive and a crossing at Chandler Boulevard), and thus this route is less favorable than the preferred project for the purposes of catering to novice cyclists.  For this reason, this route was not chosen as a preferred alternative. 

 

The route is, however, currently designated as a bicycle route, and a separate bicycle grant is funding bicycle detection upgrades to selected traffic signals.  If the City Council were to reject the Beachwood-Sparks Bikeway project, staff would recommend designating Keystone Street as the preferred route between Chandler Boulevard and Riverside Drive, and could pursue future grant funding opportunities to study additional traffic calming options on the street to make it safer for cyclists.  However, even with improvements, staff believes this route would still be less favorable than the proposed Beachwood-Sparks Bikeway proposal. Also, due to the constraints of the Beachwood Bikeway BTA grant and the timelines required to spend the funds, it is not likely that money from this project could be diverted to a new project on Keystone Street.

 

In addition to the two alternatives studied above, staff briefly re-examined various permutations of Keystone, Reese, Parish, Sparks, Beachwood, and Mariposa that would route bicyclists through residential neighborhoods between Chandler and Riverside and take advantage of existing traffic signals.  These routes became quite circuitous and confusing, and staff concluded that any alternatives that utilized numerous streets and jogs would defeat the purpose of providing a direct, convenient path for cyclists.

 

Finally, there were some comments from residents questioning why this route was being implemented rather than focusing on routes that serve Downtown Burbank.  The Beachwood-Sparks bikeway is one of a number of bicycle projects that staff is either studying, implementing, or identifying for funding.  One of the higher priority projects is a Class I bike path extension of the Chandler Bikeway to the Metrolink Station, which would be in close proximity to Downtown.  This project is in the conceptual phase, and staff is in contact with Union Pacific officials who must agree to allow the bikeway to encroach onto their active rail spur right of way.  Another project being considered is the implementation of Class II bicycle lanes on West Victory Boulevard with a potential Class II or III connection across Burbank Bridge to Third Street, which would provide an on-street connection to Downtown across the Golden State Freeway.  Finally, staff has already implemented bicycle lanes on Third Street in Downtown and is planning lanes on Verdugo Avenue as well.  The City also has a fledgling bicycle locker program for commuters at the Downtown Burbank Metrolink Station and City Hall.  The Beachwood-Sparks Bikeway is only one component of a larger, evolving master plan with the goal of expanding bicycle facilities citywide.

 

Project Funding and Timeline

 

In addition to the community and neighborhood concerns regarding the Beachwood Bikeway project, staff has encountered a funding shortfall that may require changes to the project scope or a delay in implementation some of the project components.  Since the grant application was submitted in February of 2004, construction costs, specifically for traffic signal equipment, have escalated considerably.  The project has currently been funded for $295,000 between the Caltrans grant and the required 10% local match.  Of this amount, approximately $36,000 will be spent on design costs including traffic signal plans for four intersections, signing and striping plans, and design of the pedestrian ramp at Chandler and Sparks.  However, with the revised costs for signal equipment and a 20% contingency, the estimated project budget has risen to $480,000.  Caltrans has indicated that additional grant money for cost contingencies is not available through the Bicycle Transportation Account grant program, so the additional $221,000 would need to come from local sources.

 

Because of this large cost increase, staff is proposing a delay in implementation of a portion of the project to reduce project costs.  Specifically, staff is proposing to eliminate the new traffic signal at Sparks Street and Magnolia Boulevard (and the subsequent removal of the existing signal at Reese Place and Magnolia Boulevard).  This signal would be upgraded later as additional funding is identified, either through future bicycle grants or as part of future traffic signal upgrade projects. Public Works and Community Development Department staff is still working with Caltrans to determine the actual operation of the bikeway and the crossing at Magnolia Boulevard in this interim configuration from a safety and operations standpoint.  If this interim modification is approved by Caltrans, staff would return to the City Council to approve an amended project scope and Caltrans agreement before construction commences. If the Council were to approve this option, staff would recommend application for future BTA funds in FY 2006/2007 to fund the additional signal at a later date.

 

If staff were to proceed with this change to the project scope and it were accepted by Caltrans, the project costs would be reduced by approximately $155,000.  This would yield a project budget deficit of approximately $66,000.  Staff anticipates that this additional funding could be secured through a combination of Transportation Development Act (TDA) Article 3 Funds, Development Impact Fees, and/or Proposition C local return funds.

 

In addition to the funding challenges described above, the current project timeline for completion is currently very aggressive to accommodate a funding availability deadline of June 30, 2007.  Caltrans BTA funds for this project must be invoiced and approved by the end of the current fiscal year to prevent a funding lapse.  Caltrans has expressed the possibility for receiving an extension to this date, but has indicated that this extension is not guaranteed and that State finance officials have communicated that extensions will not customarily be given for BTA projects that lapse due to the large backlog of un-spent BTA projects around the state.  Staff will work with Caltrans to apply for an extension, but will also be maintain an aggressive implementation schedule should Council decide to go forward with the project. 

 

If directed to proceed, staff will finalize design and go out for bid by the end of 2006, with the goal of finishing construction by April 1, 2007. This allows Caltrans to inspect and review the project prior to reimbursement by the end of the fiscal year.  Should Council direct staff to study additional alternatives to the project and a budget extension is not granted by the State, the grant funds for the project will most likely lapse.  In addition to this funding deadline, proposed traffic signal work at Alameda Avenue and Beachwood Drive must be coordinated with a planned resurfacing of Alameda so that necessary trenching for conduits and signal hardware occurs before resurfacing commences.

 

FISCAL IMPACT:

 

The Beachwood Bikeway project is currently funded through the Caltrans BTA grant which provides $265,500 and requires a local match of $29,500 for a total of $295,000.  The grant funds are currently being fronted by Fund 127 Development Impact Fees, while the local match has been secured from the City�s allocation of Transportation Development Act (TDA) Article 3 Funds.  As described earlier, the current cost estimate for the project is $480,000 which, accounting for $36,000 reserved for design work, leaves a project budget shortfall of approximately $221,000.  Staff is proposing a project scope change that would reduce the total project cost by $155,000 and would result in an unfunded project balance of $66,000.  If Council were to direct staff to pursue this option, Staff would return later this year with a request to amend the Fiscal Year 2006/2007 budget to accommodate additional costs.  If the City Council were to reject the Beachwood Bikeway Project, Caltrans has verbally indicated that 90% of the design costs will still be reimbursable.  The remaining grant balance would be forfeited and returned to the State.

 

CONCLUSION:

 

The Beachwood-Sparks Enhanced Class III Bikeway would provide a much-needed north-south bicycle facility along lightly-traveled residential streets as an alternative to congested arterial roadways.  The project would add a further link in an evolving system of bicycle paths, lanes and routes outlined in the Bicycle Master Plan, the goal of which is to update Burbank�s roadway and transportation systems to better accommodate bicycle travel as a viable alternative transportation mode.  The route would serve local residents by identifying a preferred cycling route through the city as an alternative to Buena Vista Street or Victory Boulevard.  In addition, it provides a regional link between the Chandler Bikeway and the Los Angeles River Bikeway via Riverside Drive.  While many residents directly adjacent to the proposed routing have expressed numerous concerns related to increased traffic, more crime, equestrian circulation, and safety, staff feels that the project will not significantly impact the adjacent residential neighborhoods in any of these areas.  Proposed traffic signal installations at Sparks/Magnolia and Beachwood/Alameda can be designed and timed such that any potential local neighborhood cut-through traffic issues can be minimized, and the inherent design of the facility, with a jog at Oak Street and physical through-traffic blockage at Chandler, will eliminate any potential cross-town, cut-through traffic patterns. 

 

The purpose of the Beachwood Bikeway, and the other bikeways in the Master Plan, is to offer Burbank residents the choice to travel by bicycle.  By designating certain streets as Class III bicycle routes, the city is indicating that certain, lighter-traveled streets are better choices for travel than other, more congested streets while still providing direct connections across town.  The very nature of on-street bicycle travel creates the possibility of vehicle-bicycle conflict.  However, just because this conflict exists does not mean that bicycle travel should be abandoned as a viable option altogether.  The role of the Bicycle Master Plan is to acknowledge that vehicles are the dominant road user but that steps can be taken to ensure that bicycle can co-exist as safely as possible with vehicles.  Part of this strategy is to identify routes that are better choices than busier streets.  While they are not free of potential vehicle conflicts, they offer a lower incidence of conflicts than other comparable streets while still offering a level of convenience and speed for bicyclists that make them attractive alternates.

 

RECOMMENDATION:

 

Staff recommends that City Council direct staff to continue with implementation of the Beachwood / Sparks Enhanced Class III Bikeway such that the project can be completed by the funding deadline of June 30, 2007 and constructed within the budget parameters described in this report.

 

 

LIST OF EXHIBITS:

 

Exhibit A � City of Burbank Bicycle System Including Proposed Beachwood-Sparks Bikeway