City Council
Staff Report
From: City Manager
Report Type: CONSENT CALENDAR
Lead Department: Transportation
Meeting Date: September 8, 2025
Report #:2506-4873
TITLE
FIRST READ: Adopt an Ordinance Amending PAMC Chapter 10.56 (Special Speed Zones) to Update Speed Limit Studies for 22 Streets and Decrease the Speed Limit for a Portion of Deer Creek Road; and Approve the 2024 Traffic Survey; CEQA status – categorically exempt.
RECOMMENDATION
Staff recommends that the City Council:
1. Approve the 2024 Engineering and Traffic Survey (Attachment A), and
2. Adopt an ordinance re-establishing posted speed limits for 22 streets pursuant to the California Vehicle Code and decreasing the posted speed limit of 40 miles per hour (mph) to 35 mph for Deer Creek Road from Palo Alto city limits to Arastradero Road (Attachment B).
EXECUTIVE SUMMARY
This report presents the results and recommendations of the engineering and traffic survey that was conducted in 2023 for 23 street segments (Attachment A). This updated survey was intended to serve as the basis for the establishment and enforcement of speed limits for certain street segments within the City of Palo Alto. These enforceable speed limits incorporate the provisions of recent laws, Assembly Bill (AB) 43 and AB 1938.
Based on the results of the survey, existing posted speed limits on 22 street segments continue to be justified by the engineering and speed survey, and these street segments are therefore eligible for enforcement by use of radar. Additionally, the survey results justify a 5-mph reduction in the posted speed limit from 40 mph to 35 mph along Deer Creek Road from Page Mill Road to Arastradero Road.
BACKGROUND
Speed limits in California are governed by the California Vehicle Code (CVC), including § 627, 22348 through 22413 and 40802. In conformance with these state laws, vehicle speed laws can only be enforced using radar when speed limits are determined by an engineering and traffic survey that verifies the 85th percentile speeds. However, engineering and traffic surveys for many Palo Alto streets have expired and, hence, the Police Department is currently unable to enforce the speed limits using radar.
Based on CVC § 40802, posted speed limits of 25 mph have been established on designated local streets in Palo Alto that are less than 40 feet in width.
In 2016, Engineering and Traffic Surveys were conducted for all arterial and collector streets in Palo Alto's Street Network system (a total of 70 street segments, not including the 16 segments that were validated in 2014). The 2016 survey validated the existing speed limit for 56 locations and recommended an increase in existing speed limit for 14 locations.
In 2021 and 2022, Assembly Bill (AB) 43 and AB 1938 were enacted which changed how speed limits are set and enforced in California. The new laws (CVC § 22358.6 and 22358.7) authorize local authorities to round down the recommended speed to the lower 5 mph increment, when it would otherwise be rounded up, and then lower the recommended speed by an additional 5 mph under certain conditions including if the corridor is a designated safety corridor.
ANALYSIS
Engineering and Traffic Surveys were completed in 2023 by the consulting firm TJKM for the 23 roadway segments listed in Table 1. These surveys were performed in accordance with the requirements of the CVC and CA-MUTCD.
In order to collect sample speeds on selected street segments, a radar gun was used on days with fair weather, clear visibility, and dry pavement conditions. The radar speed survey data was compiled and analyzed to determine the 50th percentile speed, the 85 th percentile speed, the average speed, the speed range, the 10-mph pace speed, and the percent of vehicles observed within the 10-mph pace. Average daily traffic (ADT) counts for all study segments were also collected using tube counts along the segments.
The counts were used to determine the collision rates for each segment, which in turn was used as a factor in determining the appropriate speed limit for each segment. Other information that factored into the determination of recommended speed included designation as a safety corridor as well as location within a business district or residence district as defined in the CVC.
After initial calculation of a recommended speed limit, a final field check was conducted by driving each study segment to confirm that the recommended speed of traffic was reasonable based on engineering judgment and the 85th percentile speed.
Based on the results of the survey, posted speed limits on 22 street segments continue to be justified by the engineering and speed survey, and are therefore eligible for enforcement by use of radar. Additionally, survey results recommend a 5-mph reduction in the posted speed limit from 40 mph to 35 mph along Deer Creek Road from Page Mill Road to Arastradero Road.
Posted Speed Limit
(mph)
No. Street From To Roadway
Type
85th
%ile
Speed Existing Recommended
1 Alma St. El Camino
Real
University
Ave.
Arterial 32 25 25
2 Charleston Rd. Fabian Way S City Limit Residential
Arterial
39 35 35
3 Embarcadero
Rd.
El Camino
Real
Alma St.
Overpass
Residential
Arterial
35 25 25
4 Fabian Way Charleston
Rd.
W. Bayshore
Rd.
Collector 42 30 30
5 Hanover St. Page Mill Rd. Hillview Ave. Collector 33 30 30 6 Hillview Ave. Hanover St. Foothill Exp. Collector 32 30 30 7 Middlefield
Rd.
University
Ave.
Embarcadero
Rd.
Residential
Arterial
33 25 25
8 San Antonio
Rd.
Alma St. Middlefield
Rd.
Arterial 44 35 35
9 San Antonio
Rd.
Middlefield
Rd.
Charleston
Rd.
Arterial 39 35 35
10 W. Bayshore
Rd.
Loma Verde
Ave.
Fabian Way Collector 45 35 35
11 Charleston Rd. El Camino
Real
Alma St. Residential
Arterial
36 25 25
12 Charleston Rd. Alma St. Middlefield
Rd.
Residential
Arterial
35 25 25
13 Charleston Rd. Middlefield
Rd.
Fabian Way Residential
Arterial
37 25 25
14 Deer Creek Rd. Page Mill Rd. Arastradero
Rd.
Collector 38 40 35
15 El Camino Way Los Robles
Ave.
Maybell Ave. Collector 28 25 25
16 Hansen Way El Camino
Real
Page Mill Exp. Collector 35 30 30
17 Louis Rd. Oregon Exp. Loma Verde
Rd.
Collector 30 25 25
18 Louis Rd. Loma Verde
Ave.
Charleston
Rd.
Collector 25 25 25
19 N. California
Ave.
Embarcadero
Rd.
Middlefield
Rd.
Collector 29 25 25
20 Park Blvd. California
Ave.
Lambert Ave. Collector 29 25 25
Table 1: 2024 City of Palo Alto Engineering & Traffic Survey Segments
NEXT STEPS
Pending Council adoption of the attached ordinance, City staff will work to implement signage for lower speed limits along Deer Creek Road; provide messaging to community members on enforcement; and add the above corridors to traffic enforcement patrols.
Staff is also working on a second phase of Engineering and Traffic Surveys (2025 E&TS), which focusses on nine other roadway segments listed below. Staff will return to Council with an ordinance for these speed surveys in Quarter 4 of 2025.
Street From To
Alma St. University Ave. Lincoln Ave.
Birch St. California Ave. Oregon Expressway
Coyote Hill Rd. Page Mill Rd. Hillsdale Ave.
Embarcadero Rd. Highway 101
Highway 101 Middlefield Rd.
Embarcadero Rd.
Middlefield Rd. Alma St.
Oregon Exp. E. Charleston Rd.Middlefield Rd.
E. Charleston Rd. South City limits
University Ave. E City Limits Middlefield Rd.
Both the 2024 and 2025 E&TS efforts (Phase 1 and Phase 2 respectively) include consideration of AB 43 and AB 1938 which give cities more flexibility to lower speed limits on certain roads, particularly in business districts and areas with high pedestrian or bicycle traffic. AB 43 also allows for speed reduction on the basis of roadway designation as a “safety corridor.” On June 2, 2025, Council adopted the Palo Alto Safety Action Plan, which identified the City’s high injury network. This network also serves as the City’s “safety corridors” as defined in the California Manual on Uniform Traffic Control Devices (CA-MUTCD). Among other corridors, the designated corridors include segments of Alma Street, Charleston Road, Embarcadero Road, Middlefield Road, San Antonio Road, and Quarry Road. When staff return with Phase 2 E&TS efforts, staff will assess if additional speed reductions for either Phase 1 or Phase 2 segments are warranted on the basis of designation as a safety corridor 21 Quarry Rd. El Camino
Real
Campus Dr. Collector 33 25 25
22 Middlefield
Rd.
University
Ave.
N City Limit Residential
Arterial
32 25 25
23 Porter Dr. Page Mill Rd. Hillview Ave. Collector 31 25 25
FISCAL/RESOURCE IMPACT
The consultant fee for completing the engineering and traffic survey data collection, analysis and recommendation was $35,000 and was funded in FY24 and FY25 from the Office of Transportation’s Capital Project PL-12000.
Implementation of the reduced posted speed limit on Deer Creek Road from Page Mill Road to Arastradero will require production and installation of new speed limit signs. The estimated cost for this work is $1,000. There is sufficient budget in PL-12000, Transportation and Parking Improvements, in the Fiscal Year 2026 Adopted Capital Budget. No additional funds are needed.
STAKEHOLDER ENGAGEMENT
The process for establishing speed limits is defined under the CVC and CA-MUTCD. However, recent community engagement activities indicate strong support for this action.
Extensive stakeholder engagement was conducted as part of the Safety Action Plan, which identified a proactive Speed Management Program as a key step to creating a culture and climate of systemic safety. This action is one element of such an approach.
Community members at a recent Neighborhood Town Hall for the Palo Alto Hills, Esther Clark Park, and Miranda also expressed interest for speed reduction efforts in the vicinity of Arastradero Road and Deer Creek Road.
City staff will conduct additional community outreach to inform members of public that enforcement will be undertaken along these corridors.
ENVIRONMENTAL REVIEW
Approval of this ordinance will result in minor upgrades to an existing street right-of-way and would not result in any new impacts to the existing environment. This project is considered as a minor alteration to the existing street system, and therefore categorically exempt (Class 1 Exemption, Section 15301) from the provisions of the California Environmental Quality Act (CEQA).
ATTACHMENTS
Attachment A: 2024 Engineering and Traffic Survey
Attachment B: Ordinance Amending PAMC Chapter 10.56 to Establish and Amend Speed Limits APPROVED BY:
Ria Hutabarat Lo, Chief Transportation Official