TO: Honorable Mayor and Members of the City Council
THRU: Jarad Hildenbrand, City Manager
FROM: Christopher Cash, Public Works Director
1. Subject
title
Public Hearing to consider introduction and First Reading of Ordinance No. 15-26 modifying posted speed limits on various streets throughout the City
body
2. Summary
To be enforceable, posted speed limits must be established in accordance with state law. Assembly Bill 43 provides local agencies with greater flexibility and local control in establishing speed limits. The proposed Ordinance contains speed limit changes for 47 roadway segments in Orange.
3. Recommended Action
recommendation
1. Conduct and close the Public Hearing.
2. Introduce and conduct First Reading of Ordinance No. 15-26. An Ordinance of the City Council of the City of Orange amending Section 10.14.050 of Chapter 10.14 of the Orange Municipal Code pertaining to speed limits.
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4. Fiscal Impact
None.
The proposed changes require replacing associated traffic signs and pavement markings, the costs for which are already included in the FY 2026-2027 operating budget. No appropriation is being requested.
5. Strategic Plan Goals
Goal 5: Improve Infrastructure, Mobility, and Technology.
6. Discussion and Background
Background
Based on state law, specifically the California Vehicle Code (“CVC”), speed limits are established either by:
(1) Statute, or
(2) Speed zones, which require the conduct of Engineering and Traffic Surveys (E&TS).
Common examples of statutory speed limits include the 65-mph maximum speed on many freeways and 25-mph maximum speed in school zones and on certain types of local streets. These speed limits do not need to be supported (established or re-validated) through the conduct of an E&TS.
Notwithstanding certain statutory limits, many speed limits (typically between 30 mph and 60 mph, at 5-mph increments) on city streets do need to be supported by an E&TS and approved by local ordinance, to be enforceable. This requirement generally applies to city streets that are not classified by the State as a local street. The City of Orange has 186 roadway segments (arterial and collector streets) that are subject to this requirement.
Engineering and Traffic Surveys (E&TS)
Setting, maintaining, and changing speed limits on the 186 street segments requiring E&TS is also governed by procedures contained within state law. The basis of the procedure is the 85th percentile speed of traffic, determined by conducting speed surveys (using radar gun.) The 85th percentile speed is the speed at which 85 percent of drivers are traveling at or below. For many years, the 85th percentile speed, rounded to the nearest 5-mph increment, would generally determine the posted speed limit. While local agencies would also have the option of exercising a 5-mph speed limit reduction if certain conditions were present, the ability to implement speed limit reductions from the 85th percent was more limited than it is today. In addition, E&TS previously had a maximum re-validation interval of 10 years (between re-surveys,) and all streets had to be resurveyed when their E&TS expired, without exception.
The posted speed limits on all 186 street segments that required E&TS were developed based on the above requirements. Furthermore, the effective date and the expiration date of these E&TS were historically staggered, with a small batch of surveys expiring every few months that constantly required staff time to manage. It is staff’s belief that this approach, presumably taken because of resource limitations associated with in-house data collection, is less efficient than keeping all E&TS on the same cycle. An added benefit of the below-referenced citywide assessment is the opportunity to get all the E&TS on a single cycle.
AB 43
State Assembly Bill 43 (AB 43), passed in 2021, and fully effective June 2024, provides cities with greater flexibility and local control in setting posted speed limits. While the 85th percentile speed still serves as the basis of the overall process, there are more mechanisms for lowering posted speeds. Among other changes, it allows for rounding the speed survey results downward, to the nearest 5 mph increment below (rather than to the nearest 5 mph increment as in the past.) Moreover, the CVC now recognizes additional characteristics such as safety, land use, bicyclists, transit activity, pedestrians, disabled persons, and vulnerable populations, among other things, as justifications for further speed reduction.
AB 43 also contains other provisions beyond modifying E&TS procedures, including, but not limited to: extending the expiration of E&TS, from 10 to 14 years; allowing for 15 mph limits on certain streets (not being recommended at this time); and allowing agencies to revert back to a previously approved E&TS if certain roadway conditions are satisfied, to avoid the potential of speed limit creep that can occur when streets are resurveyed.
Citywide Assessment
In February 2026, City Council approved a professional services agreement with AGA Engineers, Inc. (AGA), to evaluate speed limits citywide, with the goal of applying AB 43’s provisions where appropriate. In addition, re-evaluating all of the city’s speed limits at once, together with a few of AB 43’s “consistency provisions” (that either extend the life of a E&TS or reduce the need for future re-surveys), provide the added benefit of getting all of the city’s E&TS on the same cycle. Staff expect this to improve operational efficiency moving forward, with fewer resources required to manage the city’s posted speed limits.
While one of the expected outcomes of this assessment (and the legislative intent of AB 43) was the reduction of posted speed limits on some city streets, it is important to keep in mind that there remain limitations, both legal and practical, to such reductions. This includes the locations where reductions are recommended as well as the magnitude of such reductions. Specifically:
• The basis of any posted speed limit is still the 85th percentile speed, as defined above; and the maximum speed differential between the posted speed limit and the observed 85th percentile speed cannot exceed 12.4 mph (sometimes less, depending on road conditions).
• While the list of allowable justifications for reducing posted speed limits has expanded, exercising engineering judgement is extremely critical.
• Continuity (minimizing fluctuations in the posted speed limit); citywide mobility; expected driver compliance (reasonableness); and enforceability play a substantial role in the recommendations.
Recommendations
Based on the citywide assessment, including the revised E&TS, prepared by AGA, and the objectives and constraints discussed above, the recommended speed limit changes are delineated in the table below.
Of the 186 roadway segments surveyed, 46 are recommended for a 5-mph speed limit reduction. One segment, Esplanade Street between Fairhaven and La Veta avenues, is recommended for a 10-mph reduction. No speed limit increases are being recommended. In general, streets affected by the proposed changes are in residential areas; downtown and high pedestrian areas; near schools and parks; and/or on high-accident corridors. The recommendations were developed in consultation with the Orange Police Department (enforcement) and Orange County Public Works Department (shared streets).
Table 1: Recommended Speed Limit Changes
|
Street |
Segment |
Posted Speed Limit (MPH) |
Recommended Speed Limit (MPH) |
|
Almond Avenue |
Flower Street to Main Street |
30 |
25 |
|
Batavia Street |
La Veta Avenue to Chapman Avenue |
30 |
25 |
|
|
Chapman Avenue to AT&SF Railroad |
35 |
30 |
|
|
Katella Avenue to Taft Avenue |
40 |
35 |
|
Cambridge Street |
Katella Avenue to Taft Avenue |
35 |
30 |
|
|
Taft Avenue to Meats Avenue |
35 |
30 |
|
Chapman Avenue |
Main Steet to Batavia Street |
40 |
35 |
|
|
Batavia Street to Lemon Street |
35 |
30 |
|
|
Center Street to Cambridge Street |
35 |
30 |
|
|
Cambridge Street to Tustin Street |
40 |
35 |
|
Collins Avenue |
Batavia Street to Glassell Street |
40 |
35 |
|
Esplanade Street |
Fairhaven Avenue to La Veta Avenue |
45 |
35 |
|
Fletcher Avenue |
Batavia Street to Glassell Street |
35 |
30 |
|
Glassell Street |
South City Limits to La Veta Avenue |
35 |
30 |
|
|
Maple Avenue to Walnut Avenue |
30 |
25 |
|
|
Walnut Avenue to Collins Avenue |
35 |
30 |
|
|
Collins Avenue to Katella Avenue |
40 |
35 |
|
Grove Avenue |
Batavia Steet to Main Street |
35 |
30 |
|
Hewes Street |
Walnut Avenue to Bond Avenue |
40 |
35 |
|
Katella Avenue |
Tustin Street to Sacramento Street |
40 |
35 |
|
|
Sacramento Street to Handy Street |
40 |
35 |
|
La Veta Avenue |
West City Limits to Main Street |
45 |
40 |
|
|
Glassell Street to Shaffer Street |
30 |
25 |
|
|
Yorba Street to Chipwood Street |
40 |
35 |
|
Lincoln Avenue |
West City Limits to Glassell Street |
45 |
40 |
|
|
Glassell Street to Orange-Olive Road |
45 |
40 |
|
|
Orange-Olive Road to Tustin Street |
45 |
40 |
|
Main Street |
South City Limits to Chapman Avenue |
40 |
35 |
|
Parker Street |
Town & Country Road to La Veta Avenue |
40 |
35 |
|
Prospect Street |
Fairhaven Avenue to La Veta Avenue |
40 |
35 |
|
|
La Veta Avenue to Palmyra Avenue |
40 |
35 |
|
|
Palmyra Avenue to Chapman Avenue |
40 |
35 |
|
Rancho Santiago Boulevard |
Chapman Avenue to Walnut Avenue |
35 |
30 |
|
|
Walnut Avenue to Bond Avenue |
35 |
30 |
|
|
Bond Avenue to Hewes Street |
35 |
30 |
|
Santa Ana Canyon Road |
Orange-Olive Road to Tustin Street |
35 |
30 |
|
Spring Street |
Prospect Street to Esplanade Street |
35 |
30 |
|
|
Esplanade Street to East City Limits |
35 |
30 |
|
Taft Avenue |
West City Limits to Glassell Street |
45 |
40 |
|
|
Glassell Street to Cambridge Street |
45 |
40 |
|
Via Escola |
Meats Avenue to Cannon Street |
40 |
35 |
|
Walnut Avenue |
Main Street to Batavia Street |
35 |
30 |
|
|
Batavia Street to Glassell Street |
35 |
30 |
|
|
Glassell Street to Cambridge Street |
35 |
30 |
|
|
Cambridge Street to Tustin Street |
35 |
30 |
|
|
Gravier Street to Hewes Street |
35 |
30 |
|
White Oak Ridge |
Newport Boulevard to Canyon View Avenue |
35 |
30 |
City Traffic Commission Action
The speed limit changes delineated above and contained in Ordinance No. 15-26 were presented to City Traffic Commission at their August 12, 2026, meeting. The Commission voted 6-0 to recommend the changes and forward to City Council for approval.
During discussion, the Commission requested that staff review the recommended speed limit on Meats Avenue between Tustin and Orange-Olive streets, for potential addition to the list of recommended speed limit reductions. AGA reviewed the segment and based on the speed survey results and roadway conditions, determined that the existing speed limit of 40 MPH is appropriate for Meats Avenue.
Of the 47 roadway segments for which a speed limit reduction is proposed, four are partially within unincorporated Orange County. One segment, Hewes Street between Walnut and Bond Avenues, must also be presented to the Orange County Traffic Committee (“OCTC”) for approval, in addition to City Council approval. Staff from Orange County Public Works are scheduled to present an item to the OCTC in October.
If introduced, staff will bring the Ordinance back for a second reading and approval. The speed limit changes would take effect 30 days after the second reading and any replacement signs and corresponding pavement markings being installed.
7. ATTACHMENTS
• Attachment 1 - Ordinance No. 15-26
• Attachment 2 - Ordinance No. 15-26 (Redline)
• Attachment 3 - Map (Existing Speed Limits)
• Attachment 4 - Map (Proposed Speed Limits)
• Attachment 5 - Map (Speed Limit Changes)
• Attachment 6 - February 10, 2026, City Council meeting staff report (without attachments)
• Attachment 7 - Citywide Speed Limit Assessment Report by AGA Engineers
• Attachment 8 - August 12, 2026, City Traffic Commission staff report (without attachments)
• Attachment 9 - Minute Excerpt of August 12, 2026, City Traffic Commission Meeting
• Attachment 10 - Notice of Public Hearing