1 STAFF REPORT
DATE: March 11, 2025
TO: Justin Hess, City Manager
FROM: Adam Cornils, Deputy Chief of Police
BY: John Pfrommer, Lieutenant
SUBJECT: First Step Report Review ing Motorized Scooter and Personal Mobility Device Usage in the City of Burbank
RECOMMENDATION
The City Council could:
1. Note and file the report; or
2. Direct staff on how to proceed with regulating personal electric mobility devices within the City of Burbank.
BACKGROUND
At the September 24, 2024, City Council (Council) meeting, Mayor Perez requested a first-step report on motorized scooter and personal mobility device usage in the City of Burbank.
The use of personal mobility devices, including motorized scooters, electric bicycles (e- bikes) and electric scooters (e-scooters), has surged in popularity due to their convenience for short -distance travel, cost -effectiveness, and perceived environmental benefits. There has been an increase in personal mobility devices, specifically electric mobility devices (e- mobility), on the City’s roadways, designated bikeways, and hiking trails over recent years, prompting discussions and concerns regarding their proper use, the need for additional enforcement, and stricter regulations. The primary concerns pertaining to personal mobility devices include rising injury rates, pedestrian safety, and insufficient regulation.
The Burbank Police Department (Department) is responsible for both enforcement and education related to traffic safety, including the safe operation of personal mobility POLICE
DEPARTMENT
2 devices. The Department’s Traffic Bureau oversees the distribution of traffic safety educational materials and conducts citywide traffic enforcement with support from Patrol Officers.
The largest concentration of bicyclists, including personal mobility devices, has typically been seen along the Chandler Bike Path, Burbank Channel Bikeway, and Downtown Burbank. In 2023, officers observed an increase in personal mobility devices on roadways outside of these typical areas, with a noticeable rise in juvenile riders in the hillside area of the City (east of the I- 5 Interstate). Juvenile riders also began operating devices that exceeded legal classifications for e-bikes on hiking trails. This raised significant concerns among hikers, who worried about safety issues caused by devices traveling at speeds significantly greater than those of hikers on foot along narrow trails.
Previous Discussions Related to Shared Use Mobility Devices At the June 25, 2019, Council meeting, staff presented a report on Shared Use Mobility Devices and proposed regulating all shared use mobility devices under a comprehensive program (Attachment 1). Shared use mobility devices are small human or battery powered machines to use in the public right of way. Shared use mobility devices include electric scooters, electric bicycles, and regular pedal bicycles. Council expressed concerns about the proposed regulations and requested staff tailor the regulations to the City’s needs, including community engagement, interaction with horses in the Rancho District, and designating operating areas. Council directed staff to revise the proposed regulations and return to the Transportation Commission (Commission) with an updated proposal.
In response, staff updated the proposal by incorporating community feedback , detailing plans for right -of-way signage to address scooter, pedestrian, and horse interactions in the Rancho District, and adding a prohibition of scooters on roads with speed limits of 35 miles per hour (mph) or higher. The amended proposal was presented to the Commission on September 16, 2019 (Attachment 2). The Commission discussed concerns regarding scooter versus bicycle usage , po tential nuisance from shared use mobility devices in neighborhoods, and the City’s current infrastructure for scooter use. T he Commission voted to recommend Council ban shared use scooters while allowing shared use bicycles under the revised regulations proposed by staff.
Following the Commission’s discussion and recommendation, the onset of the COVID-19 pandemic significantly altered commuting and travel patterns in the City. Additionally, shared use mobility operators implemented geofencing (virtual boundaries) around Burbank, leading to decreased usage in the City . The Department has continued to monitor the evolving use of personal mobility devices in the City, with this report focusing on mobility devices for personal use and excluding shared use mobility devices.
3 DISCUSSION
The City’s municipal code (BMC) has several codes related to unauthorized motor vehicles and the operation of self-propelled conveyances, motorized scooters, motorized skateboards, motorized bicycles, and low -speed vehicles. A list of BMC sections applicable to these devices and vehicles is included (Attachment 4).
Enforcing personal mobility device laws is a challenge for the Department due to ambiguous and evolving regulations. Uncertainty about where these devices can be ridden—such as sidewalks, bike lanes, or roadways —further complicates enforcement.
Additionally, ongoing changes to laws regarding speed limits, restricted areas, and age restrictions create enforcement gaps, making it difficult to ensure public safety while adapting to the growing presence of e- mobility devices in the community. The BMC currently lacks clear definitions for modern personal e- mobility devices and does not provide comprehensive rules for their safe operation. Updating the BMC to address e- mobility devices would enhance public safety, improve compliance, and provide the Department with clearer guidelines for consistent enforcement.
Motorized Scooters
Motorized scooters include both electric and gas -powered scooters if they meet the following definition under California law:
• They have two wheels, handlebars, and either:
o A floorboard for standing, or
o A seat with footrests instead of a floorboard.
• They are powered by an electric motor but may also be moved by pushing with your feet.
• If the same type of scooter is powered by gas or another fuel, it is still considered a motorized scooter.
Electric Bicycles and Electric Scooters
State and local regulations for e- bikes and e-scooters vary, creating confusion for both the public and law enforcement. State law requires that e-scooter riders possess a valid driver’s license (or instruction permit), use is prohibited on sidewalks, and have a maximum speed limit of 15 mph. In contrast, e- bike riders are not required to have a driver’s license, may ride on sidewalks unless restricted by local municipal codes, and can travel at speeds ranging from 20-28 mph depending on the e-bike classification. The following sections provide further details on e -bike classifications, designated bikeways, and existing e-mobility regulations.
An "electric bicycle" is a bicycle equipped with fully operable pedals and an electric motor of less than 750 watts. E -bikes come in various types, including cruiser, commuter, mountain, and road e- bikes, each designed to meet different consumer needs. These 4 needs range from comfort and terrain suitability to speed and rider experience levels. To regulate their usage, e- bikes have been categorized into three distinct classes under California law, which help determine appropriate usage based on local regulations.
California Vehicle Code § 312.5(a) defines the three e-bike classes as follows:
• Class 1: A "low- speed pedal -assisted electric bicycle" equipped with a motor that provides assistance only when the rider is pedaling and ceases to assist once the bicycle reaches a speed of 20 miles per hour.
• Class 2: A "low-speed throttle-assisted electric bicycle" equipped with a motor that can propel the bicycle independently without pedaling but ceases assistance once the bicycle reaches a speed of 20 miles per hour.
• Class 3: A "speed pedal-assisted electric bicycle" equipped with a speedometer and a motor that provides assistance only when the rider is pedaling, ceasing assistance once the bicycle reaches a speed of 28 miles per hour.
Electric scooters are subject to similar rules as e-bikes. They are permitted on roads with speed limits of 25 mph or less and may operate in Class II bicycle lanes when the speed limit exceeds 25 mph. Riders must adhere to a maximum speed limit of 15 mph and should stay as close to the right -hand edge of the roadway as possible when traveling slower than the flow of traffic.
Types of Bikeways in California
California offers different types of bikeways to accommodate varying levels of bicycle safety and comfort, depending on road conditions, traffic volume, and user experience.
The California Streets and Highways Code (SHC) § 890.4 defines four types of bikeways:
Class I – Bike Path : Fully separated bike facilities designated exclusively for bicyclists and pedestrians. These paths are located away from main roads and are commonly found in parks, nature preserves, and recreational areas. Only Class 1 and Class 2 e-bikes ("motor assist" and "low speed") are permitted on Class I bike paths.
Class II – Bike Lanes: A designated portion of the roadway marked with striping for one- way bicycle travel. Buffered bike lanes, which include a painted buffer between the bike lane and adjacent parking or travel lanes, also fall under this category. All classes of e- bikes are permitted to use Class II bike lanes in California.
5 Class III – Bike Route: Shared roadways used by both bicyclists and motor vehicles. These routes are typically designed to connect other bikeways (such as Class II lanes) or to designate preferred cycling routes. All classes of e- bikes are allowed on Class III bike routes.
Class IV – Separated Bikeway: Also known as protected bike lanes, these facilities provide dedicated lanes for bicycles that are physically separated from vehicle traffic. They cannot be used by pedestrians or motor vehicles and must include a horizontal and/or vertical barrier for separation. Only Class 1 and Class 2 e-bikes are allowed on Class IV separated bikeways.
Collisions and Collision Factors in the City of Burbank The graph below illustrates the total number of documented bicycle collisions, including e-mobility collisions, in the City of Burbank between 2020 and2024:
Over the past five years, Burbank has
averaged twenty -eight bicycle collisions
annually, with a notable increase in 2024,
reaching forty collisions. In 2024, e- bike
collisions rose from one to six, and e- scooter
collisions increased from two to four
compared to the previous year.
The growing use of e-bikes and e-scooters on
city roadways has contributed to this upward
trend, which is expected to continue as e- mobility device sales are projected to grow exponentially in the coming years. According to the Statewide Integrated Traffic Records System (SWITRS), reported e-bike injury collisions surged from 184 incidents in 2018 to 3,429 in 2023. The severity of injuries in e- bike collisions was higher compared to traditional bicycle collisions. Alarmingly, both bicycle and e- bike collisions have risen significantly across California since 2022.
Between 2020 and 2024, eight e-bike collisions occurred in Burbank, with four determined to be the fault of the e -bike riders. The primary contributing factors included speeding, riding against traffic, improper turns, and right-of-way violations. During the same period, there were nine e- scooter collisions, with six attributed to e- scooter riders. The leading causes of these collisions were speeding, improper turns, stop sign violations, riding on sidewalks, and right-of-way violations.
23 32 27
18 40
0 0 1 1 61 1 1 2 4
0 20
40 60
2020 2021 2022 2023 2024
Bicycle and E-Mobility Device
Collisions 2020-2024
Bicycle Collisions E-Bike Collisions E-Scooter Collisions 6 E-Mobility Laws and Regulations in California
California has enacted several laws and regulations regarding e- mobility devices, as outlined in the California Vehicle Code (CVC). A list of CVC sections, including definitions, equipment requirements, and operational rules is included (Attachment 3).
There are no age restrictions for riding Class 1 and Class 2 e-bikes. However, Class 3 e- bike riders must be at least 16 years old. Similarly, to legally operate an e-scooter, riders must be at least 16 years old and possess a valid driver’s license or ins truction permit.
Helmet requirements vary by vehicle type:
• Riders 17 and younger must wear a helmet when using an e- scooter or Class 1 and Class 2 e-bike.
• All riders, regardless of age, must wear a helmet when operating a Class 3 e-bike.
The CVC also includes safety equipment requirements for both e- bikes and e-scooters.
However, operators of these devices are not subject to the CVC provisions related to financial responsibility, driver’s licenses, vehicle registration, or license plate requirements.
Recent Legislative Actions
To address safety concerns and infrastructure needs resulting from the growing popularity of e-mobility devices, California has enacted several Assembly and Senate Bills. These laws focus on proper device use, stricter safety standards, dedicated infrastructure, educational programs, and enforcement. Recent legislation includes:
• Senate Bill 1271 (Effective January 1, 2026)
o Defines an electric bicycle as one equipped with fully operable pedals and an electric motor not exceeding 750 watts.
o Clarifies definitions for Class 1 and Class 3 e-bikes. o Prohibits the advertisement, sale, or labeling of specified non- compliant devices as electric bicycles.
o Establishes battery safety standards for e-bikes.
• Assembly Bill 1774 (Effective 2025)
o Prohibits modifications that allow e-bikes to exceed 28 mph. o Bans the sale of devices that modify e-bike speeds.
o Requires updated labeling if an e- bike is modified to function as a different class.
• Assembly Bill 1946 (Effective January 2023)
o Required the California Highway Patrol (CHP) to develop a statewide e- bike safety and training program.
7 o The program, available on the CHP website under "Electric Bicycle Safety Training," provides a certificate upon course completion. o CHP was mandated to implement this program by September 1, 2023.
• Assembly Bill 1778
o Authorized Marin County to prohibit individuals under 16 from operating Class 2 e-bikes.
• Assembly Bill 2234
o Authorized San Diego County to prohibit individuals under 12 from operating Class 1 and Class 2 e-bikes.
Authority for Local Regulation
The CVC grants local authorities the power to regulate the use of e- mobility devices in certain areas:
• E- bikes may be prohibited on equestrian, hiking, or recreational trails by a local authority or governing body. Additionally, the Department of Parks and Recreation may prohibit e- bike use on any bicycle path or trail within its jurisdiction (CVC 21207.5).
• E- scooters are legally permitted on bicycle paths, trails, and bikeways, unless a local authority prohibits their operation by ordinance (CVC 21230).
Regional Comparisons
Cities in Los Angeles County and Orange County are currently updating their municipal codes to address the growing use of e-mobility devices. One notable example is the City of Brea in Orange County, which recently adopted municipal codes that:
• Define various types of e-mobility devices.
• Regulate proper operation.
• Outline fines and penalties for violations.
• Designate restricted areas where e-mobility devices are prohibited.
Glendale and Pasadena have municipal codes similar to Burbank’s, but they lack specific provisions regarding e-mobility devices, including definitions, operational rules, restricted areas, and associated fines and penalties for violations. The City of Brea municipal codes could serve as a valuable reference for Burbank’s code update process. R elevant municipal codes from the City of Brea are included (Attachment 5).
ENVIRONMENTAL REVIEW
This report has no potential for resulting in either a direct physical change in the environment, or a reasonably foreseeable indirect physical change in the environment, 8 and as such, is not a “project” subject to the requirements of the California Environmental Quality Act (CEQA) 14 Cal. Code Regs § 15378.
FISCAL IMPACT
This report has no fiscal impact. However, the future adoption of an ordinance may result in costs associated with signage production, maintenance, public education, and enforcement efforts.
CONCLUSION
With the growing popularity of personal e-mobility devices, their presence on Burbank’s roadways has increased significantly and is expected to continue rising. The Department has documented a rise in personal device injury collisions, highlighting the need for enhanced enforcement and education efforts to ensure public safety . Council may wish to consider updates to the BMC to include clear definitions for e- mobility devices and establish comprehensive rules to enhance safety . These updates could include designated restrictions in areas with vulnerable roadway users to help reduce collisions and improve overall traffic safety. Such changes can contribute to creating a safer, more accessible, and well-regulated transportation environment for all residents and visitors.
ATTACHMENTS
Attachment 1 – Staff Report from June 25, 2019 City Council Meeting Attachment 2 – Transportation Commission Minutes from September 16, 2019 Meeting Attachment 3 – California Vehicle Codes Related to Electric Bicycles Attachment 4 – Burbank Municipal Codes Related to Unauthorized Motor Vehicles, Self- Propelled Conveyances, Motorized Scooters, Skateboar ds, Bicycles, and Low-Speed Vehicles
Attachment 5 – City of Brea Municipal Code