DATE: December 18, 2023
TO: Mayor and Members of the City Council
VIA: Stefan Chatwin, City Manager
Marlene Subhashini, Assistant City Manager
FROM: Andrew Brozyna, Public Works Director
Justin Lai, Public Works Senior Civil Engineer
Amy Zhou, Public Works Assistant Engineer
DEPARTMENT: Public Works
SUBJECT: ACCEPTING AND ADOPTING THE SPEED LIMITS IN THE 2023
ENGINEERING AND TRAFFIC SURVEY (E&TS) AND
DIRECTING STAFF TO FILE THE 2023 E&TS WITH THE
TRAFFIC COMMISSION
RECOMMENDATION
It is recommended that the City Council adopt the attached resolution authorizing:
1. The acceptance of the speed limits recommended in the 2023 Engineering and Traffic Survey Report (commonly called a “Speed Survey”) prepared by Hexagon Transportation Consultants, Inc; and
2. The direction for staff to file the 2023 Speed Survey sheets for the 34 roadway sections with the Traffic Commission.
EXECUTIVE SUMMARY
Engineering and Traffic Surveys (E&TS) are required to be conducted every five (5) years in order to support posted speed limits for valid speed enforcement by radar. The last E&TS was conducted in 2016, and per the California Vehicle Code (CVC), was extended to be valid for seven (7) years based on certain conditions being met, with an expiry date of December 19, 2023. City Resolution No. 2023-85 executed a Task Order
with Hexagon Transportation Consultants, Inc. (Hexagon) to conduct a new E&TS.
Based on the speed data collected, an analysis of the collision rate for each study segment, and review of other physical and traffic conditions at each location, and in accordance with the 2014 California Manual on Uniform Traffic Control Devices (CA- MUTCD), Hexagon recommends reducing the existing speed limit by 5 miles per hour (mph) on one segment of Foster City Blvd., between E. Hillsdale Blvd. and Bounty Dr., while keeping the existing speed limits on all other roadway sections the same. Public Works and Police staff have reviewed the report and recommend the proposed speed limits be accepted, adopted, and filed with the Traffic Commission.
BACKGROUND
The State of California has a mandated process for the establishment of speed limits on public streets. Speed limits are supported by conducting an E&TS or Speed Survey following the procedures listed in the 2014 California Manual for Setting Speed Limits published by the Division of Traffic Operations, California Department of Transportation.
Per the CVC, the speed surveys are good for a period of 5, 7, or 10 years depending on roadway conditions and enforcement procedures.
The E&TS for Foster City streets was last conducted in 2016 and served as a basis to establish the current posted speed limits as accepted and adopted per City Resolution No. 2016-94 on December 19, 2016.
Per the renewal provisions outlined in CVC Section 40802(c)(2)(B)(i)(I) and the CA- MUTCD, the official standard for traffic control devices the CVC, the renewal time may be extended to seven (7) years when using radar and all of the following criteria are met:
•The citing officer has successfully completed a minimum of 24-hours of certified radar operator course training.
•The radar used to measure the speed meets or exceeds the minimal operational standards of the National Traffic Highway Safety Administration, and has been calibrated within three years of the alleged violation.
In October 2021, upon confirming with the Police Department that the above criteria would be met, the survey was extended by two years, at the discretion of former Interim Public Works Director Ray Towne. The E&TS renewal time extension was transmitted to the Superior Court, Traffic Division on October 25, 2021.
Since the last speed survey is expiring on December 19, 2023, a new survey is needed to maintain or modify speed limits for valid speed enforcement. On August 21, 2023, the City Council adopted Resolution No. 2023-85 authorizing the execution of a Task Order with Hexagon to perform the 2023 E&TS.
Hexagon conducted the survey in compliance with the CA-MUTCD and CVC and produced a final report (Attachment 2) containing the following items:
•A table describing the existing speed zones in the City; •A description of the methodology used for the engineering and traffic surveys; •A summary of the results of the engineering and traffic surveys; •A table describing the proposed speed zones in the City; and •A copy of the E&TS worksheet for each location.
ANALYSIS
The setting of speed limits requires a rational and defensible procedure to maintain the confidence of the public and legal system. Speed limit determinations rely on the premise that a reasonable speed limit is one that conforms to the actual behavior of the majority of drivers (i.e., a speed limit will be able to be selected that is both reasonable and effective by measuring driver’s speeds. Speed limits set by an E&TS are normally set near the 85th percentile speed. The 85th percentile speed is the speed at or below which 85 percent of the traffic is moving, and statistically represents one standard deviation above the average speed.
Hexagon established speed limit recommendations in accordance with CA-MUTCD, which call for the following actions:
1) Rounding to the nearest 5 miles per hour (mph) increment from the 85 th percentile speed determined by the E&TS for the segment, or 2) Reducing by 5 mph from the nearest 5 mph increment the 85th percentile speed, in compliance with CVC Sections 627 and 22358.5, or
3) Rounding down to the nearest 5 mph increment speed below the 85 th percentile speed when rounding up from the 85th percentile speed is required, if no further speed reduction is used per CVC Section 21400 (b).
Additional factors considered per segment, as required by the CA-MUTCD, include prevailing speeds as determined by traffic engineering measurements, collision records, and highway, traffic, and roadside conditions not readily apparent to the driver.
Hexagon conducted speed surveys on 34 segments, spanning the same study locations as the 2016 E&TS with a minor change to split the section of Beach Park Blvd from East Hillsdale Blvd to Foster City Blvd into two segments, at Marlin Ave. Beach Park Blvd was assessed in two segments because of the length of the roadway and to investigate speed limit needs by Bowditch Middle School. In addition to Bowditch Middle School, City Staff identified the segment by Farragut Park as an area of interest due to residential concerns for pedestrian safety.
Staff would also like to acknowledge concerns from residents related to the crosswalk on Gull Ave near Audubon Elementary School. In recent years, implemented improvements include new fluorescent signage, a high visibility crosswalk, and a partially City-funded crossing guard. The Foster City Police Department continues to patrol this area during peak hours and will be providing additional presence during school pick-up hours. Staff is collecting speed data at this specific crossing for review.
Furthermore, staff will work with a traffic engineer to review the areas around Audubon and other schools and recommend improvements as part of the upcoming comprehensive citywide Pedestrian and Bicycle Master Plan. 2023 Speed Survey Results:
Based on the speed data and collision history, and in accordance with the CA-MUTCD, Hexagon recommends reducing the existing speed limit by 5 mph on one roadway section: Foster City Blvd. between E. Hillsdale Blvd. and Bounty Dr. The specified segment of Foster City Blvd. has a posted speed limit of 40mph. During the study period between 2017 and 2021, there were ten (10) reported collisions on this segment.
Additionally, the segments of Foster City Blvd. north and south of the identified segment have a posted speed limit of 35 mph. Thus, to establish a continuous speed limit across adjacent segments of Foster City Blvd., it is reasonable and prudent to reduce the posted speed limit of Foster City Blvd. between E. Hillsdale Blvd. and Bounty Dr. from 40 to 35 mph, as seen below.
If accepted, new signage will be installed by the Public Works Department. Public Works will work with the Foster City Police Department to provide outreach and warnings to the public regarding the new speed limit.
Hexagon recommends keeping the existing speed limits on all other roadway sections the same, as permitted by the 85th percentile speeds, roadway conditions, and speed limit recommendation, action 2 of the CA-MUTCD. In the segments by Bowditch Middle School and Farragut Park, radar speed counts, collision records, and physical characteristics of the location do not indicate a need to reduce the posted speed limit.
Although a speed reduction at Bowditch Middle School is not recommended as a result of this study, traffic patterns around Bowditch as well as other schools will be further evaluated as part of the upcoming comprehensive citywide Pedestrian and Bicycle Master Plan. On a broader scale within Foster City, maintaining the same speed limits in the remaining segments is beneficial for eliminating confusion that would arise if speed limits were changed.
It should be noted that, for the purpose of the E&TS, evaluated road segments are long in length to ensure consistent speed limits over reasonable distances. Since school zones only comprise a small section of a segment, school zone needs may be underrepresented in the E&TS. School needs are better evaluated in efforts such as the upcoming City Master Pedestrian and Bicycle plan next year.
Public Works and Police staff have reviewed the report and determined the results to be reasonable. Staff recommends accepting the speeds as listed in the 2023 Speed Survey (Attachment 2), which will lower the existing speed limit on one segment of Foster City Blvd. between E. Hillsdale Blvd. and Bounty Dr., by 5 mph, while keeping the existing speed limits on all other roadway sections the same. It is also recommended that the City Council direct staff to file the 2023 Speed Survey sheets for the 34 roadway sections with the Traffic Commission. Court acceptance of these speeds will depend on the reasons cited in the 2023 Speed Surveys. The speed limits for all streets surveyed will be enforceable for the next 5 years.
CEQA
Pursuant to CEQA Guidelines Section 15061(b)(3), the “common sense” exemption, the E&TS is an activity that can be seen with certainty to have no possibility for causing a significant effect on the environment.
FISCAL IMPACT
There is no fiscal impact in adopting and filing the speed limits recommended by the 2023 E&TS.
CITY COUNCIL VISION, MISSION, AND VALUE/PRIORITY AREA
Facilities and Infrastructure
Public Safety and Social Equity
ATTACHMENTS
Attachment 1 – Resolution
Attachment 2 – 2023 Engineering and Traffic Survey Report