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Memo - Speed Limit DiscussionPublic Works Department Memorandum To: Honorable Mayor and Members of the City Council Copy: Rick Getschow, City Manager 4�f� From: Steven J. Stadler, Public Works Director Date: October 21, 2009 Subject: Speed Limit Discussion It is not uncommon for residents to request a lower speed limit on local streets or to generally question the current 30 mph statutory speed limit for urban districts. People are driving faster and certainly the number of cars on the road increases each year - this is true on the freeways and even in the residential areas. Accordingly, the local government issue of traffic speed and volume comes up on a more frequent basis. In most instances, in order to change a speed limit an engineering and traffic investigation must be done and, generally, Mn /DOT sets the speed limit near the 85th percentile speed (the speed where 85% of vehicles are traveling at or slower). However, current MN State Law does allow for some local authority to reduce speed limits from the 30 MPH statutory speed limit, as follows: • On a segment of road up to a half -mile long that is classified as a local street, a local road authority may reduce the speed limit to 25 MPH. • In school zones, a local road authority may prescribe a lower limit not less than 15 MPH. School zones are segments of road that abut school grounds where a school crossing is established. • Subject to certain conditions, park roads or roads with bicycle lanes may be set below 30 MPH. In 2008, the State Legislature required Mn /DOT to conduct a speed limit study. They had last formally studied the local road speed limit topic in 1993 -1994. The 2008 study included a Task Force process comprised of Mn /DOT and local municipal representatives as well as research and interviews with local engineering and law enforcement personnel. The resulting Mn /DOT report entitled: " Study and Report on Speed Limits covered several topics including: "Is 30 MPH in urban districts appropriate?" and "Are there locations where 25 MPH is appropriate ?" The study includes the following Mn /DOT recommendations: Do not change the basic Urban District speed limit of 30 MPH. The residential roadway definition be changed to mean a street that is less than one -half mile in length and is functionally classified as a local street. They recommended that the phrase, "or portion of a street" be deleted. The reasons for the recommendation of no change to the 30 MPH statutory speed limit are as follows: • Analysis of pedestrian crash data between Minnesota, Wisconsin and Iowa yielded inconclusive results as to the safety benefits of a 25 MPH (Iowa and Wisconsin) versus 30 MPH speed limit. Plus, pedestrian crashes tend to occur along or crossing higher - volume collector or arterial streets, not in residential areas. The current funding environment precludes establishing proper enforcement of a 25 MPH speed limit. Thus, there would be an even larger disparity in actual travel speed from the posted speed limit. As we know, posting signs does not change driver behavior. The reasons for the recommended change to the residential roadway definition are: The recommendation was based on the understanding that the original intent of this provision was to apply to entire short roads, not to segments of continuous roads. Plus, cities could still request a speed study to support lowering the speed limit to 25 MPH on longer roadways. If a city implements a 25 MPH speed limit on a residential roadway or portion thereof, they are required to install speed limit signs at the beginning and end of the roadway. School zone speed limits Cities may establish school zone speed limits on roads under their jurisdiction. Prior to establishing a school zone speed limit, a traffic investigation must be done. The investigation must consider: the school route plan, hazard identification and education. See attached information sheet. Recently there has been concern regarding the safety of children around the St. John Elementary school at the corner of Interlachen Rd. and Boyce St. In looking at this situation along Boyce Street, it appears that additional crossing signs and on- street parking restrictions could help improve safety. Staff recommends that this area be investigated as a possible school zone to determine if posting school zone reduced speed limit signs, 20 MPH, and /or other measures could improve child safety. St John school has an enrollment of 155 pre -K thru 6th grade students. School hours are 9:00 am - 3:30 pm. Staff does not recommend that we post 25 MPH speed limit signs on any of our residential roadways. As previously mentioned, a pedestrian safety improvement can not be substantiated, it would be very difficult to enforce and the signs would not result in slower speeds. Countless studies have confirmed that reasonable drivers travel at speeds commensurate with the roadway conditions, not based on what the maximum speed limit is, i.e. 30 MPH in urban districts. F MN Statute 169.14 Speed laws are created for the protection of the public and the curbing of unreasonable behavior. To effectively enforce a law, the public must believe that the law is reasonable. Minnesota's speed regulations are based on the same Basic Speed Law that is used in all 50 states: "No person shall drive a vehicle on a highway at a speed greater than is reasonable and prudent under the conditions ". Statutory limits are based on the concept that uniform categories of highways can operate safely at certain preset maximum speeds under ideal conditions. Whether the speed limit is posted or unposted, drivers are required to reduce speed below these values for poor weather conditions, curves or hills and potential hazards such as pedestrians. Drivers must also reduce speed when approaching or passing emergency vehicles with emergency lights flashing. These are the most common statutory speeds: i 10 mph in alleys 1 30 mph on streets in urban districts 70 mph on rural interstate highways 65 mph on urban interstate highways 65 mph on expressways 55 mph on other roads Whenever these statutory speed limits are not the correct value for a specific highway, the commissioner of transportation authorizes the posting of other regulatory speed limits. Interstates are high design multi -lane divided highways that have controlled access interchanges such as cloverleafs or diamond shaped interchanges. Through traffic on the interstate never has to stop or yield. Examples: 1 -94 or 1 -35 all Expressways are multi -lane divided highways but they ® have entries and intersections, sometimes controlled by traffic signals. Some interchanges may exist but they are not the rule. Examples: Highway 10 or Highway 52 The commissioner of transportation sets regulatory speed limits on state and local roads based on a thorough engineering and traffic investigation. These factors are considered: road type and condition location and type of access points (intersections, entrances, etc.) sufficient length of roadway (1/4 mile minimum) existing traffic control devices (signs, signals, etc.) crash history traffic volume sight distances (curve, hill, etc.) test drive results .,..speed study The most important part of the traffic investigation is the speed study. When choosing a speed, drivers take many roadway environment factors into consideration. Therefore, the speed that the majority of people consider prudent is an important value. Data is collected by performing radar checks at selected locations on the roadway under ideal driving conditions. A technical analysis is done on the results to determine the 85th percentile. This is the value indicating the speed at which most (85 %) drivers are traveling under. Experience has shown that a posted speed limit near this value is the maximum safe and reasonable speed. Studies have shown that traveling much faster or slower than this value can increase your chance of being in a crash. Engineering judgement is an important tool. The traffic investigator must use knowledge of nationally accepted principles combined with experience to assign the safe speed. IyNESry, August 2002 $J r Minnesota Department of Transportation _Office of Traffic Engineering & Intelligent Transportation Systems ww wAot.statc. minus /trafficeng .. a REGULATORY SPEED LIMIT SIGN SPEED This black and white sign shows the maximum speed tIM1T that a motorist may travel under ideal conditions. It 50 can be a statutory value or else it must be authorized by the commissioner of transportation. ADVISORY SPEED SIGN This black and yellow speed sign is used to advise motorists of a comfortable speed to navigate certain situations. It is used with a warning sign. For instance, when traveling on a winding road, the curve 2 5 MPH warning sign would be used with an advisory speed M , H sign. This sign may be posted by the local road authority on local roads. SPEED LIMITS IN SCHOOL ZONES sceaw� Local authorities may establish school speed limits on local streets, within a school zone, upon the basis of SPEED an engineering and traffic investigation as prescribed LIMIT by the commissioner of transportation. This 20 regulatory speed limit is in effect whenever children are present, such as before and after school or during recess. The school plate is black and yellow and the other signs are black and white. Optional flourescent yellow green may be used for the school plate. SPEED LIMITS IN WORK ZONES Advisory speed limits are used to identify safe speeds f , for specific conditions within a work zone. These black and orange signs are always used with warning signs. The local road authority can post these plates in work zones on local roads. Work zone speed limits are short tern regulatory speed limits that are established for worker safety due to traffic in adjacent lanes. These speed limits range sPEeD from 20 mph to 40 mph on two lane -two way roads LIMIT and up to 55 mph on divided highways. They can be 40 posted by the local road authority in active work zones on local roads. The FINES DOUBLE plate is black and orange and the speed limit sign is black and white. Temporary speed limits in construction zones are SPEED sometimes needed for long term construction projects LIMIT or detour routes. These regulatory black and white 50 signs are used when a reduced speed is needed for driver safety. Valid 24 hours a day, 7 days a week, these must be authorized by the commissioner of transportation for any roadway. See the website: www.dot.state.mn.us /speed for more information on "Work Zone Speed Guidelines" Will lowering the speed limit reduce speeds? NO. Studies show that there is little change in the speed pattern after the posting of a speed limit. The driver is much more influenced by the roadway conditions. Will lowering the speed limit reduce crash frequency? NO. Although lowering the speed limit is often seen as a cure -all in preventing crashes, this is not the case. Crashes are most often the result of driver inattention and driver error. However, if a posted speed limit is unrealistically low, it creates a greater speed variance (i.e. some drivers follow the speed limit while most drive the reasonable speed). This speed variance can contribute to crashes. Why do we even have speed limits? A uniform speed of vehicles in a traffic flow results in the safest operation. The posted speed limits can keep the traffic flowing smoothly provided the majority of drivers find the speed limits reasonable. To best do this, the limits must be consistent throughout the state. The speed limits also give the motorist an idea of a reasonable speed to drive in an unfamiliar location. The speed limits are used by police officials to identify excessive speeds and curb unreasonable behavior. If you believe that there is a safety concern or an inappropriate speed limit posted, the person to contact depends on the type of road. TRUNK HIGHWAYS For regulatory and advisory speed limits on the trunk highway system, you may contact the district traffic engineer at your Mn /DOT district office. The trunk highway system includes: '; Interstate Highways, 0 U.S. Highways and ❑ Minnesota State Highways LOCAL STREETS AND HIGHWAYS For these roadways, you may contact your local road authority (county, city, or township). For advisory speed limits: The local road authority can determine these advisory speeds and post the plates without authorization from the commissioner of transportation. For regulatory speed limits: The local road authority can pass a resolution requesting an investigation by Mn /DOT. Based upon the results, Mn/DOT may then authorize the local road authority to post new speed limits. The phone numbers to call for state or local assistance can be found in the phone book under government listings. If you are unable to find the proper phone number, you may call the Mn /DOT Information Center at the following numbers: 1- 800 - 657 -3774 Greater Minnesota or 651- 296 -3000 Twin Cities Metro Area J DOUBLE FINES will be imposed for violating any regulatory speed limits in work zones or i in school zones. Fines are also double for failing to reduce speed when passing by a stopped emergency vehicle with its lights flashing. NOt e , S J When an EMERGENCY VEHICLE is approaching you, move to the closest shoulder without crossing the path of the approaching emergency vehicle. You may proceed when the emergency vehicle passes you. If you are approaching a stopped emergency vehicle with its lights flashing, immediately reduce speed and, if it's safe to do so, move over in your lane away from the stopped emergency vehicle. Drivers should actually change lanes if there are two or more lanes in the same direction and there are no vehicles in their path. School Zone Speed Limits SCHOOL ZONE SPEED LIMITS Ensuring the safety of children on public streets near schools is the responsibility of parents, school officials and road authorities. Parents must provide basic training and supervision in order to develop safe behavior and serve as role models. School officials must support and encourage educational safety programs and methods for walking or biking students. Road authorities must provide a safe environment on the street by using proven traffic control methodologies that will minimize the crash probability. THE LAW Each road authority may establish school zone speed limits on roads under their jurisdiction. In order to provide an objective, uniform and safe environment for walking and biking students, Minnesota law requires a traffic investigation as prescribed by the Commissioner of Transportation prior to establishing a school zone speed limit. The school zone is legally defined as that section of road which abuts the school grounds, or where there is an established school crossing with advance school signs that define the area. If a reduced school speed limit is warranted: - It shall not be more than 30 MPH below the establish speed limit - The school speed limit shall not be lower than 15 MPH - All signs erected must be in conformance to the Minnesota Manual on Uniform Traffic Control Devices. Any speeding violations of a school zone speed limit are subject to a double fine. SCHOOL AGE PEDESTRIAN CRASHES While safety is emphasized near schools, pedestrian crash experience requires a broader look. A Minnesota study revealed that 88 percent of school age pedestrian crashes occurred more than one block from school. Similar studies in Idaho showed only 13 percent of school age pedestrian crashes occurred in a school zone but 31 percent occurred on the trip to school. Other states have confirmed similar results. The statistics point out that location is NOT the predominant factor, suggesting that safety education for pedestrians has the greatest potential for improvement since they can use it at all locations.. Further insights can be gathered from analysis of circumstances contributing to school age crashes. - Most crashes occurred when the child dashed from behind parked cars - Many crashes occur at mid -block locations - Kindergarten through third grade pedestrians had considerable difficulty understanding traffic control devices. In realization of these facts it is apparent that school age child safety is not a singular issue of speed limits. Real improvements in safety require a comprehensive study of the school trip and each environment must be specifically addressed. THE TRAFFIC INVESTIGATION Mn/DOT developed the booklet "A Guide to Establishing Speed Limits in School Zones" that is a comprehensive safety outlook and is the prescribed method as required by MS 169.14. Three distinct components are addressed - The School Route Plan Hazard Identification Education. The main objective of the School Route Plan is to establish walking routes that minimize the number of streets crossed and to maximize the safety of approved crossings used by children on the entire trip to school. Hazard Identification addresses nine issues using the school route plan and evaluates each street for what is present as well as what can be changed to enhance the safety of the planned routes. A quick summary: 1) Roadway geometry- crossing narrower roads in straight sections with good sight distance increases the safety to pedestrians. 2) Traffic volume- low volume roads are safer to cross. High volume roads will require adult crossing guards for maximum safety. 3) Pedestrian volumes- number of pedestrians can determine signal timing or necessitate additional traffic control. 4) Parking- parking should be banned in the immediate area of any school crossing. 5) Traffic Control Devices- these should be reviewed to verify they are operating correctly and signs are not hidden by vegetation. 6) Sidewalks - children walking in the street is dangerous. Continuous sidewalks that do not intermittently disappear and force children into the road are the best. 7) Fencing - strategically placed fencing can change walking patterns and prevent dangerous mid -block crossing. At playgrounds, it prevents errant kick -balls from rolling into the street and causing children to chase them from between parked cars. 8) Crash History - crash investigation can reveal locations where remedial measures may not be working and pedestrians should be routed away from these areas. 9) Speed zones- if all other measures have been addressed and a reduced speed is still required to safely navigate the school zone, then a school zone speed limit should be considered. Trained engineering personnel should design speed limits based on the limiting criteria and arbitrary blanket values should be avoided. As noted before, education is the most important. All the best efforts of engineering and planning will be lost if the pedestrian is unaware of the safe routes and safe practices. Children are rarely involved in crashes while crossing properly. Education is not the singular responsibility of one group or person, it requires a partnership and commitment from all. T 1 91 HO I w 1N3S3tld 3tlY END SPEED N3tlDlIX] SCHOOL OR LIMIT O Z ZONE X X 111611 N a33dS "" 0 100H�S� oN c ca s N N a) \ \ \OO \ROp cv r o II�1� SCHOOL II 3NOZ � T X X OR 100H�S 433dS ON3 SchOOC P E ''Y //V" \ SCHOOL SPEED LIMIT 20 WHEN CHILDREN APE PRESENT 0 n t Not more than 700 feet from School grounds I AHEAD OR xxx FEET Minnesota Manual on Uniform Traffic Control Devices Signing for School Area Traffic Control Prepared by the Office of Traffic Engineering and ITS � a htfip:// ww . t.stat . n.us/ ed 4F T